November 2003
CITY OF PORTLAND
OFFICE OF TRANSPORATION
RUSSELL STREET
IMPROVEMENT PLANNING PROJECT
Final Report
Prepared by
CITY OF PORTLAND
OFFICE OF TRANSPORTATION
Jim Francesconi, Commissioner
Brant Williams, Director
Laurel Wentworth, Planning Program Manager
PROJECT STAFF
Steve Iwata, Program Manager
Philip Harris, Russell Street Project Manager
Art Pearce, Killingsworth Project Manager
Lore Wintergreen, Community Involvement
Kathy Mulder, Traffic Engineer
Lidwien Rahman, ODOT TGM Grant Manager
Samy Fouts, Graphics
PROJECT CONSULTANTS
Ben Ngan, Nevue Ngan and Associates
Ross Swanson, Nevue Ngan and Associates
Ellen Vanderslice, Ellen Vanderslice Architect
Jason Franklin, Parametrix
Sumner Sharpe, Parametrix
The Russell Street Improvements Project is one of two project areas that are the focus of the Station Access Street Improvement
Project that focuses on planning street improvements in two key opportunity areas along the Interstate MAX light rail line:
Russell Street and Killingsworth Street. The project is partially funded by a grant from the Transportation and Growth
Management (TGM) Program, a joint program of the Oregon Department of Transportation and the Oregon Department of
Land Conservation and Development. This TGM grant is financed, in part, by the Federal Transportation Equity Act for the
21st Century (TEA-21), local government and the State of Oregon funds.
The contents of this document do not necessarily reflect the views or policies of the State of Oregon.
Photos on the cover from left to right:
N Interstate Ave and N Albina Ave, looking north.
Zed-40 Streetlight.
Russell Street and N Kerby Ave, looking northwest.
Russell Street And I-5 overpass, looking east.
COMMUNITY ADVISORY COMMITTEE
Jill Bates, Kevin Campbell, Derrick Moten, Deb Damron, Tiffani Ellis, Jason Graf, Gary Hampton,
Stan Herman, DA Hilderbrand, Julie Keefe, John McBarron, Terry Michaelson, Anthony L Perez,
John Reid, Chris Reisner, Bob Short, Carla Sosanya, Skip Tarr, John Vosgien, Harold Williams
TECHNICAL ADVISORY COMMITTEE
Ben R. Hufford, Yost Gruber Hall; Steve Berg, Bureau of Maintenance; Don Piero, City Fleet;
Alan Hipo?Lito, Hacienda; Ann Becklund, TriMet; Jillian Detweiler, TriMet; Tony Mendoza, TriMet;
John Southgate, PDC; Crysttal Atkins, PDOT Transportation Options; Courtney Duke, PDOT Pedestrian
Coordinator; John Bustraan, PDOT Signals and Street Lighting; Mike Coleman, PDOT Traffic Engineer; Julia
Gisler, Planning Bureau
Crysttal Atkins, Caitlin McCollum, Jillian Detweiler, Courtney Duke, John Gillam, Jeanne Harrison, Mauricio
Leclerc, Deena Platman and Steve Spitulski for their help at public meetings.
Donna Beck for her many phone calls to publicize meetings.
Immaculate Heart Church and Emanuel Hospital for providing meeting space.
We would also like to thank the following community members for taking the time to
participate in the planning process:
Eric Adams, Peg Adams, Ginger Adamovich, Annette Albright, Lenny Anderson, John Bartles, Bridget Bayer,
Telethia Benjamin, Graham Bergh, Joyce Boles, Brian Borello, Pauline Bradford, Kevin Campbell, John Canda,
Mary Ann Cassin, Nancy Chapin & Roger Jones, Sarah Cloud, Chris J. Cocker, Harvey Collier, Peter Corvallis &
Paul Staver, Ray Culi, Krystyna Czarnecka, Rosie Tahlia & Kanesia Dean, Caren De la Cruz,
Paul & Heather Dorsy, Mary & Greg Dyson, Kefle Eeyob, Jamaal T. Folsom, Louis Fontenot Jr., Joan Franklin,
Molly Franks, Alem Gebrehiwot, Amber Geiger, Phil Goff, Angela Goldsmith, Storman Norman Grusy,
Gary Hampton & Laurie Fenk, Michael Herb, Tim Hills, Carrie Holliday, Leah Honchcliff, Andrew Houston,
Marty Houston, Jim Howell, Beate Ioanide, Sam Jackson Jr., Chris Poole Jones, Carol Kennedy, Jeaneen R. Klitz,
Marcine Kment, Susan Laarman, Jeffrey Lamb, Charlotte Larson, Eddie Lincoln, Robb Lukes, Nicolaus Marandu,
David McMahon, Edward & Catherine Murphy, Eleanor Mynick, Kay Newell, Micheal Odya, Steve Orr,
Emma Parks, Milan Patel, David Paulson, Robert Paz, Brad Perkins, Lee Perlman, Kevin & Andrea Perry,
Rocky Polzin and Nancy Johnson, David Poulson, Gioconda Quintero, Margaret Mary Regun, Benjamin Riemer,
Perlee Rodgers, James Rout, Dan & Molly Sadowsky, Missy Schachner, Sherrie, Robert Smith, George Spaulding,
Fred Streimer, Steve L. Streimer, Trent Thelen, Jaksa Thompson, Kathryn Thomsen, MS Vockrudt, Johest L. Wade,
Lavern & Bertha Walson, Celeste Ward, Frank Warren, Terry Watson, Yvonne Williams, Bill Wright, William Wright
CHAPTER 1? INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  1
Project Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  1
Public Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  1
Preferred Plan Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  2
Background and Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  4
History of the Street . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  6
Community Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  8
CHAPTER 2? EXISTING CONDITIONS SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  15
Roadway Configuration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  15
Traffic . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  17
Policy Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  18
CHAPTER 3?DESIGN ALTERNATIVES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Evolution of Design Concepts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Russell Street Improvements Design Concepts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Concept Evaluation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
CHAPTER 4?PREFERRED DESIGN PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
Preferred Design Concept and Themes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
Realizing the Concept and Themes in the Design  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
The Ribbon Elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
The Places Elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
Additional Elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Preferred Plan Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
CHAPTER 5?IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43
Public Improvements  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43
Transportation Demand Management  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
Funding Opportunities  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
Design Details  . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
Next Steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
APPENDICES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .  51
Appendix A:  Glossary
Appendix B:  Summary of Community Input
Appendix C:  Traffic Analysis Report
Russell Street Improvements Planning Project
TABLE OF CONTENTS
Russell Street Improvements Planning Project 1
INTRODUCTION
PROJECT PURPOSE
Russell Street was the main street of the original City of Albina and
connected the Lower Albina industrial area and the river with the
commercial hub at the intersection of Russell Street and N Williams
Ave. The construction of the Memorial Coliseum, the Minnesota
Freeway (I-5), as well has the clearance of the commercial and
residential areas to the east of the freeway along Russell Street for the
proposed expansion of Emanuel Hospital were all factors in the decline
of area. The Interstate MAX (yellow) light rail line (due to open in May
2004) provides an opportunity to enhance the pedestrian connection
between the Albina/Mississippi MAX station, the Lower Albina industrial
area and Emanuel Hospital and the residential part of the Eliot
neighborhood.
The Russell Street Improvements Planning Project outlines a street
design concept plan for Russell Street, N Mississippi and N Albina
Avenues. MAX will bring increased pedestrian traffic to the Lower
Albina industrial area. The project had two major challenges: How to
safely accommodate the increased pedestrian traffic without a negative
impact on truck traffic. The other major challenge was how to
reinforce the east-west connection between the upper and lower parts
of Russell Street by changing the perception of the I-5 overpass from a
barrier to a gateway destination or focal point. The project has been
funded in part by Oregon Transportation and Growth Management
(TGM) grant.
PUBLIC INVOLVEMENT
The Russell Street Improvements Plan is the result of extensive
community involvement in the planning process. An objective of the
involvement process was to ?go through a public process to identify
the character of the project area and develop streetscape design
concepts to support the identified character.? Meeting this objective in
a diverse community required a variety of approaches to make sure
the process was accessible to the widest audience possible, including
groups traditionally underrepresented in the planning process. The
inclusive nature of the process helped to build trust for community
members. The outreach methods included:
? Door-to-door surveying
? Focus groups
? Four larger events: a Community Walk, a Design Work Session, an
Alternatives Evaluation Workshop and a Preferred Plan Open
House
? Community Advisory Committee meetings
? Outreach to groups and individuals
The project team consisted of staff from the City?s Office of
Transportation and a design team of consultants.
1
Albina/Mississippi MAX Station.
Participants at the Alternatives Prioritization Workshop,
September 24, 2002.
Russell Street Improvements Planning Project2
INTRODUCTION
Preferred Design Concept
PREFERRED PLAN SUMMARY
The Russell Street Improvements Planning Project evolved through a
series of four community events. A Community Advisory Committee
(CAC) reviewed input from the community events and recommended a
preferred design concept and themes for street improvements.
The CAC recommended a design concept called ?Ribbon with Places.?
This concept features the idea of a continuous element, or ?ribbon,?
that would help to guide people from one end of the project area to
the other. Places identified by the community as most important will
be given significant attention with special improvements.
The theme selected by the CAC to guide this design is: ?Historic,
cultural and ethnic identities that have contributed to the area will be
expressed artistically all along the street. The unique mix of industrial,
commercial and institutional uses would be recognized at the ?places.??
The ribbon portion of the plan includes new sidewalks, street trees
and streetlights throughout the project area. The most distinct ribbon
element is the incorporation of unique markers in the sidewalk. The
markers are conceived as bronze diamonds, with a design that
reflects a theme chosen by the community, placed every twelve feet in
the new concrete sidewalks. New pedestrian-scaled streetlights will be
included throughout the project area, giving a unified look.
Specific improvements will be applied to each of the places that have
been identified by the community.
The Conservation District? In this section of Russell Street, between
Interstate and Albina, the existing historic feeling will be maintained
with minimal addition of furniture. A gateway element will be added at
N Interstate Ave and Russell Street.
The MAX Station?Gateways to the Russell Street area will be added at
N Interstate Ave and N Albina Ave as well as at N Interstate Ave and N
Mississippi Ave. The installations will include signage or maps that
direct people to the upper part of Russell Street.
Russell Street Improvements Planning Project 3
INTRODUCTION
I-5 Overpass? Lighting and art will be the main elements used to
enliven the scary space under the I-5 overpass. In addition, the upper
reaches of the space under the freeway will be blocked off. The new
streetlights will continue through the overpass area, and additional
flood lighting is added. The art should be of such scale and quality
that this area becomes a destination, gateway and focal point rather
than a barrier.
Curb extensions and a marked crosswalk will be installed across
Russell Street at the vacated N Gantenbein Ave site. A new entrance to
Lillis-Albina Park will be constructed opposite the crosswalk. The new
entrance area will include seating, drinking fountains, stairs and a
ramp into the park.
The sidewalk on the north side of Russell Street between N Gantenbein
Ave and N Williams Ave will be widened (with the cooperation of
Legacy Emanuel Hospital) to form a ?promenade? with benches,
planters, trees and historic markers. Gateway elements will be included
at the northwest corner of Russell Street and N Williams Ave and the
southeast corner of Russell Street and N Vancouver Ave. Special transit
shelters with community and historic information will be installed at
the northbound transit stop north of Russell Street on N Williams Ave
and the southbound stop on N Vancouver Ave south of Russell Street.
Additional Elements
New transit stops? New transit stops will be added for the Line 33 on
its proposed Russell Street route, near N Albina Ave.
Crossing improvements? Improved pedestrian crossings with curb
extensions and marked crosswalks will be installed across Russell
Street at N Albina, N Borthwick and N Ross Aves. Crosswalks will be
marked at N Commercial Ave and on the west side of the N Flint Ave
intersection. An improved crossing with curb extensions and overhead
signs will be installed at N Williams Ave and N Stanton St.
School Safety improvements? Speed bumps will be installed on N Flint
Ave.  Flashing school beacons will be added to the school zone signs
on N Vancouver Ave and N Williams Ave at Page St.
Art
An important component of this design is the art that is still being
defined. This project can be realized as a truly community-based effort
through the definition, creation and selection of that art. The
community itself may wish to take control of that process. The art will
provide an opportunity to reflect the theme of historic, cultural and
ethnic identities that the community has identified for this project.
Different pieces installations or performances may emphasize different
themes. Historic photos and documents may be incorporated into the
artistic expression.
Russell Street Improvements Planning Project4
INTRODUCTION
BACKGROUND AND CONTEXT
The construction of Interstate MAX provides an opportunity to link
major employment centers, local businesses and neighborhood
residents to light rail. The existing infrastructure is auto oriented and
contains barriers to access this new major transit investment.
Sidewalks accessing the LRT stations and bus stops are also not fully
ADA compliant and need to be redesigned to improve access for those
using wheelchairs and other mobility devices.
The Albina Community Plan (1993) prepared a policy framework for
development around light rail stations and for providing safe and
attractive routes for pedestrians and bicyclists. The Eliot Neighborhood
Plan (1993) emphasized Russell Street as a main street within the
district. The Interstate Corridor Urban Renewal Area and Plan
supported these goals with principles that included revitalization along
mainstreets and optimizing light rail investment.
In 2000/2001 the Interstate MAX Station Area Revitalization Strategy
looked at five station areas along the Interstate Avenue Corridor and
discussed development strategies for each station area. The project
was funded by a state Transportation and Growth Management (TGM)
program grant. Although the Albina/Mississippi station area was not
included in the revitalization strategy, many community members from
the Eliot neighborhood attended the work sessions and the Russell
Street/Lower Albina area was identified as a heritage district gateway.
Business owners and community members in the Eliot neighborhood
(which includes the Lower Albina Industrial Sanctuary) were
concerned about the impact that the new light rail station would have
in their area and requested a meeting with city and TriMet staff to
discuss this and other related issues. This effort led to an application
for TGM funding to study and plan street improvements for the Russell
Street corridor.
Project Area
The Project Area focuses on the specific street sidewalks and
roadways (rights of way or ROW) that will be included in the detailed
street design concept. The Russell Project Area is the ROW of Russell
Street between N Interstate Ave and N Williams Ave and of N
Mississippi Ave and N Albina Ave between N Interstate Ave and Russell
Street. Russell Street is the main east-west corridor in the Lower
Albina area and provides a connection from the Mississippi/Albina
light rail station and the Lower Albina industrial area to the major
employment center at Legacy Emanuel Hospital and the residential
part of the Eliot neighborhood.
Russell Street at N Interstate Ave looking east.
Russell Street at I-5 overpass looking west.
Russell Street Improvements Planning Project 5
INTRODUCTION
Russell Study Area
Using a larger study area allows the project to look at Russell Street
in the context of its relationship to the surrounding neighborhood,
especially in terms of land use and urban design. The study area
also allows the project to develop solutions to pedestrian and traffic
issues on streets connected to the project area. The study area is
shown on the map below. It includes Emanuel Hospital, Harriet
Tubman Middle School and the Lower Albina Industrial Sanctuary.
As a major employer, Emanuel Hospital is an institution that could
benefit from improved access to the light rail station. Pedestrian
access, however, is unattractive and the freeway overpass is perceived
as a divide and a disincentive to many people who would otherwise
use light rail. Russell Street provides important east-west access
across the I-5 Freeway but is not considered safe or comfortable for
pedestrians and bicyclists due to its auto orientation.
The Russell Street Improvements Planning Project shall:
? Identify barriers to pedestrian and bicycle access to light rail
stations.
? Define priority access routes for pedestrian and bicycle travel, and
any needed improvements along those routes.
? Create a streetscape design plan for N Mississippi and N Albina
Avenues from N Interstate Ave to Russell Street and Russell Street
from N Interstate Ave to N Williams Ave.
? Identify streetscape improvements to create attractive, safe,
convenient pedestrian and bicycle access to light rail and to
support planned land uses.
? Provide connections to the residential part of the Eliot
neighborhood and Emanuel Hospital via Russell Street.
? Enhance the pedestrian environment around light rail station.
RUSSELL
RUSSELL
STANTON
PAGE
MARTIN LUTHER KING JR. BLVD.
RODNEYWILLIAMSVANCOUVER
KERBY
INTERSTATE
ROSSBORTHWICKALBINA
MISSISSIPPI
I-5
FREMONT BRIDGE
Emanuel
Hospital
Gantenbien
(vacated)
Lillis-
Albina
Park
Tubman
Middle
School
Union
Pacific
Albina
Yard
Mississippi
Albina
MAX Station
Willamette 
River
FLINT
RUSSELL STUDY AREA
Russell Street Improvements Planning Project6
INTRODUCTION
HISTORY OF THE STREET
Russell Street was once the main street of the City of Albina, which
was platted in 1872 and became part of the City of Portland in 1891.
The street is named after Edwin Russell, a prominent local banker.
Today?s Eliot neighborhood occupies the area of the original City of
Albina.
The City of Albina grew rapidly in the 1880s as a result of railways
coming to the area; Russell Street?s proximity to the river and the
railyard gave it prominence as Albina?s main street. The street
provided a connection from the river and railyard to the west to the
residential area to the east. The Union Pacific yard remains as a
source of employment and traffic today.
Streetcar Commercial Development
Much of the commercial development of Russell Street is tied to the
spread of the streetcar lines serving Portland and Albina. The coming
of the streetcar lines on N Williams Ave and Russell Street led to the
development of Russell Street as the main commercial corridor of the
City of Albina. Russell Street remained a commercial hub after the
consolidation of the cities of Albina and East Portland with Portland in
1891. The intersection of N Williams Ave and Russell Street became a
focal point as it lay at the intersection of two streetcar lines. The Hill
Block building was located at the northwest corner of the Russell/
Williams intersection; this landmark building was famous for its onion
dome. The dome itself was saved and has been preserved as the
gazebo in nearby Dawson Park after the Hill Block was demolished in
1969. N Mississippi Ave also carried a streetcar line, and its
intersection with Russell Street formed another commercial node. This
intersection is now at the center of the Russell Street Conservation
Area.
Immigration and Ethnic Groups
The Albina area served as a gateway for newly arrived ethnic groups
in Portland, from the 1880s onward it continued to gain an increasing
number of immigrants compared to the rest of Portland. At first,
immigrants from Italy, Greece, Hungary, Poland and Russia joined the
established immigrants from Germany and Ireland in the area. Lower
Russell Street served as the main commercial area for the
Scandinavian community. Polish immigrants established the White
Eagle saloon on Russell Street in the early part of the 20th century.
Many of these immigrants had jobs at the railyard and at the grain
elevators, mills and shipyards located along the river. The area around
the intersection of Russell Street and N Mississippi Ave has been
designated a conservation district.
Oregon Historical Society, #OrHi 51709
N Williams Ave at Russell Street, 1910.
N Interstate Ave and N Albina Ave looking north, 1945.
Russell Street Improvements Planning Project 7
INTRODUCTION
The early 1900s also saw the beginning of the second wave of ethnic
migration as Portland?s African-American population began moving to
Albina from the area near Union Station on the west side of the river.
New waves of African-Americans moved to Portland during and
following WWII. Most were accommodated in Vanport. When 5000
African-Americans were displaced by the Vanport Flood in 1948, most
were forced to come to Albina because of restrictive (redlining)
practices by realtors in other parts of the city. The relative
concentration of the African-American population in the area led to a
number of businesses being located in the area of the Russell/
Williams intersection.
Decline
The decline of Russell Street as a commercial corridor began with the
construction of the Memorial Coliseum in the late 1950s. This project
displaced a largely African-American community. This was followed by
the construction and opening of the Minnesota Freeway (I-5) in 1964.
The freeway led to further displacement throughout north Portland and
also had the effect of dividing the neighborhood and creating the
barrier that divides Russell Street into the lower and upper portions
that this planning project addresses.
In the late 1960?s, Emanuel Hospital planned to build a 19-acre health
campus around the existing hospital. Clearing the land for this project
removed the last remaining sections of Russell Street?s commercial
area as well as further displacing many residents from the area. The
health campus was never built. At this time city policy was that the
area west of Union Avenue (now Martin Luther King Jr. Boulevard)
would be rezoned to commercial and industrial uses.
I-5 construction also had the effect of isolating the Lower Albina
district from nearby residential areas, this isolation has been
reinforced by the vacant land left over from the proposed Emanuel
Hospital expansion and the Fremont Bridge ramp construction.
Russell Street Today
The I-5 overpass still forms a barrier that divides Russell Street into
two distinct halves. West of I-5, the street has an industrial character
during the day and has become an entertainment district during the
evening hours. N Mississippi and N Albina Aves also have a light
industrial character. Recent years have seen signs of a revival as new
restaurants and other businesses have moved into the area. East of
the freeway, the street is wider and has open space on either side,
much of it resulting from clearance of the land for the proposed
expansion of Emanuel Hospital in the late 1960s and early 1970s. As
in the past, transportation improvements will provide an opportunity
for Russell Street to regain some of its former use and importance.
Oregon Historical Society, #OrHi 25043
N Williams Ave at Russell Street, 1962.
Russell Street and N Mississippi Ave. looking east.
Russell Street Improvements Planning Project8
INTRODUCTION
COMMUNITY INVOLVEMENT
The public process for the North Russell Street Improvement Planning
Project included a wide range of involvement opportunities for
residents, business owners, workers and others who use the street
regularly.
The goal of the community involvement process was to build the
capacity of diverse community members to make informed
recommendations by respectfully listening, promoting dialogue, and
providing technical support and information in accessible,
understandable, and creative formats.
The stated objective of the involvement process was to ?go through a
public process to identify the character of the project area and
develop streetscape design concepts to support the identified
character.?
To involve a diverse community requires a variety of approaches,
though much of our success in involving diverse peoples had to do
with the relationship building that the project team has been
establishing for the past three years. The relationships have been built
on a track record that has reflected the consistent commitment to fully
informed, constructive participation that has stressed the importance
of inclusiveness, the encouragement of expression, and the desire to
bring conflicting perspectives to the table to negotiate the best plan
possible.
The community involvement process was about listening and
promoting dialogue. As recommendations and plans were being
developed, project staff made themselves readily available to research
and respond to inquiries that could assist the community in making
better-informed decisions. This process served to build further trust, as
participation has been more inclusive of traditionally underrepresented
peoples and community members have seen evidence of being heard
reflected in the planning. There is now a collective memory of why
and how decisions have been made, and a collective investment in
creating the best project possible.
Written Materials
An important part of making the planning process accessible was to
produce materials that were clear and understandable to a variety of
people. Flyers and posters listing project objectives and timelines were
created to advertise the project, and the schedule for the Community
Walk, the Design Work Session, the Alternatives Prioritization
Workshop and the Preferred Plan Open House was publicized at the
beginning to give community members advance notice of the process.
Participats prepare for the community walk, June 11, 2002.
Russell Street Improvements Planning Project 9
INTRODUCTION
Written materials were provided in Spanish, Cantonese, Korean, and
Vietnamese, as well as English.
During the door-to-door survey flyers, posters and postcards were
distributed  to residents within a two-block radius of the project area
and to businesses within the broader study area and beyond.
Community Survey
A community survey was developed to identify how the street was
being utilized and what improvements were needed. The survey effort
was aimed at residents and businesses located within a two-block
radius of the project area. Approximately 140 surveys were completed.
Survey forms were printed in the above mentioned five languages, plus
Mandarin. During the survey, interpreters were made available via cell
phone in the above mentioned six languages, plus Somali.
Community-Based Groups and One-On-One Outreach
Community-based racial/ethnic identified groups, environmental and
social service organizations, government agencies, churches; and
neighborhood and business associations were briefed on a regular
basis. The briefings served to inform community members about the
Project, to encourage thinking about the various ramifications of the
Project decisions, to build organizational representative capacity and to
sustain community involvement.
One-on-one meetings and phone calls were made to community stake-
holders, as ?regular folks? need to be kept apprised of the decisions
being made and how those decisions might affect their specific
interests. Staff would often strategize with community members,
alerting them to important junctures/times/meetings wherein they
might most effectively access pertinent decision making and authority.
Media
The Public Service Announcements for the community meetings were
distributed to print, radio, and television media for each of the four
community meetings. Media representatives serving underrepresented
populations received personalized phone calls explaining the
significance of each meeting. Articles that we know of appeared in:
The Portland Observer, The Asian Reporter, Noticias Latinas, El
Hispanic News, The Scanner, The Oregonian, The Portland Tribune,
Eliot Neighborhood Association Newsletter, Boise Neighborhood
Association Newsletter and the Interstate Corridor Urban Renewal Area
Bulletin. Announcements were also broadcast on Portland Cable
Access Community Calendar and KBOO radio.
Russell Street Improvements Planning Project10
INTRODUCTION
Public Events/Community Meetings
This project provided a number of opportunities for the community to
get involved. Community members were given an opportunity to
provide input at each key phase of the planning process, from the
identification of issues at the beginning of the process to the final
location of street furniture and the type of streetlights.
The project team wanted to welcome to the meetings as many
community members as possible, and they made a number of special
provisions, these included:
? Holding meetings in the evening.
? Providing meals from local vendors.
? Providing certified child care.
? Offering language interpretation and translation.
? Providing bus service information with meeting notices and
individualized transportation when requested.
Community meetings were preceded by direct contact that described
what would be discussed and why community members should be
involved. These included over 350 phone calls and more than 1,000
e-mails per meeting. Over 5000 postal mailers were sent the first and
last meetings and went out to the other two meetings.
The project meeting schedule is shown below:
EVENTS DATES
Existing Conditions
Community Walk
Design Work Session
Community Advisory
Committee Meeting
Alternatives Prioritization
Workshop
Preferred Plan Open House
Community Advisory
Committee Meeting
City Council
Hearing Adoption
June 11, 2002
July 23, 2002
Sept. 24, 2002
Oct. 8, 2002
Oct. 22, 2002
Nov 19, 2002
Fall, 2003
Russell Street Improvements Planning Project 11
INTRODUCTION
Community Advisory Committee Meetings
A 19-member Community Advisory Committee (CAC) was appointed to
advise the project team on the design process, evaluate the public
comment, and represent the varying perspectives in each project area.
CAC members were recruited to bring diverse backgrounds and
interests to the table to formulate a fully considered final
recommendation.
The first CAC meeting was held as a focus group. The focus group
gave the CAC members a chance to meet and talk about the big issues
and to learn each other?s perspectives. Two of the CAC meetings were
held in conjunction with the community meetings: The Community
Walk and the Design Work Session. Combining the public events with
the CAC meetings served two purposes; it gave the public a chance to
attend the CAC meetings and encourage CAC members to attend the
public events. There were six CAC meetings for the Russell Street
Improvements Community Advisory Committee.
The CAC made decisions based on the consensus of the group, and
the meetings were operated based on meeting principles that all CAC
members agreed to before the process began.
Community Focus Group
A post survey/pre-Community Walk focus group convened to explore
potential issues and ideas, to help frame the future community
meeting discussions. Focus Group members were selected because of
their diverse interests, backgrounds, and relationships to the street.
The facilitated Focus Group lasted 2-hours and was audio taped in
addition to having note takers. Notes were documented in the
?Summary of Community Input?. (Appendix B)
Community Walk
Forty two community members took the opportunity to walk through
the project area and talk with each other and project staff about
specific issues and ideas. At the beginning of the walk, a history of the
area was given by historians Cathy Galbraith of the Bosco Milligan
Foundation and Tim Hill of McMenamins. To provide some context for
the discussion, community members were encouraged to contribute
their knowledge and memories. Participants were given note pads and
were divided into groups. Each group included a facilitator and an
architect. The facilitator moved the groups along, took written notes,
architects sketched participant?s ideas. Notes and drawings were
documented in the ?Summary of Community Input?. (Appendix B)
Russell Street Improvements Planning Project12
INTRODUCTION
Design Work Session
Fifty eight community members attended a design work session that
was held to establish ideas for alternatives. The design team presented
a ?toolbox? of design items. Community Advisory Committee (CAC)
and project team members performed a short play that demonstrated
what was going to happen during the small group discussions. The
participants then broke into small groups, each of which included at
least one CAC member, a facilitator, a designer, and a policy expert.
The groups spent most of the evening hovering over a large table map
of the project area, discussing and deciding how to apply the design
tools (stickers depicting each tool were distributed, as well as pens,
which community members applied directly to the maps). Groups
identified unifying themes for the project area. The final half- hour of
the night was reserved for a report back by a CAC member from each
small group. The input from the design workshop was used to create
different alternatives.
Alternatives Prioritization Workshop
The Alternatives Prioritization Workshop was designed to narrow the
alternatives down to a preferred alternative. The project team started
the workshop with a brief power-point visual description of each of the
design issues to be discussed. Participants then broke into small
groups around a large map (which they were encouraged to draw on)
depicting the project area and pictorially articulating some of the
issues raised previously. An assigned facilitator used a pre-written
discussion guide as a mechanism to advance discussion toward
addressing identified issues and choices (so as to encourage collective
decision making about what solutions the groups? community
members preferred). The second part of the workshop was a
discussion of broader area organizing concepts that, when applied to
a design and identified themes, served to unify the details of the
design throughout the project area. The discussions were summarized
by the facilitators and given to the design team to produce a preferred
alternative.
Russell Street Improvements Planning Project 13
INTRODUCTION
Preferred Plan Open House
The 47 community members who attended the open house had the
opportunity to comment on the Community Advisory Committee?s
preferred alternative for the Russell Street Improvement Plan. The
Open House included three separate and progressive station areas
separated by curtains. The first station was a slide presentation on the
history of the project and the process, along with an opportunity for
initial questions and answers. Upon entering the next station, there
was a display of the actual maps and produced documents from the
previous community workshops. Central to the second station was the
large map and picture display of the preferred alternative for people to
make comments on. The design team was on hand to facilitate the
comments and answer questions. The last station gave participants an
opportunity to vote on the details of the plan, including their preferred
streetlights, trees, benches, banners and waste receptacles. In
addition, community members were able to make notes on a blank
map as to what and who used to be in the area prior to its? current
incarnation.
Continuing Outreach
An important part of the outreach process has been to keep working
with stakeholders to address outstanding issues in the area.
Project staff continued the outreach process beyond the main public
meetings as the project moved forward towards the finalization of a
draft preferred plan and adoption by City Council.
Project staff worked with local businesses to ensure that the proposed
plan did not have a negative impact on the truck traffic that is vital to
businesses in the lower Albina industrial area. Staff worked with
businesses such as Striemer Sheet Metal Works, Tarr Inc. and Widmer
Brewing. In one case, the preferred plan was modified to ensure
driveway access was maintained.
Staff have also worked with members of the city?s traffic investigations
team to address continuing traffic concerns on the edges of the
project study area along N Williams Ave. and N Vancouver Ave. In
these cases, a solution may not be addressed as part of this planning
project but may only be arrived at through a comprehensive study of
the N Vancouver/Williams corridor and through continued work by the
traffic investigations team with community members.
Russell Street Improvements Planning Project14
Russell Street Improvements Planning Project 15
EXISTING CONDITIONS SUMMARY
2
ROADWAY CONFIGURATION
N Russell Street has a 60 foot wide Right Of Way (ROW)
between N Interstate Ave and N Ross Ave. The sidewalks in this
section are 12 feet wide with a roadway width of 36 feet. East
of N Ross Ave and under the I-5 overpass the ROW gradually
widens to 90 feet. Between I-5 and N Williams Ave the 90 foot
wide ROW includes sidewalks that are 12 feet wide and a
roadway that is 66 feet wide. The section of Russell Street east
of the freeway has a median that varies in width from 3 to 15
feet to accommodate turn lanes.
Russell Street has one travel lane in each direction between N
Interstate Ave and N Williams Ave with on street parking in
most locations except between N Ross and N Commercial Aves
where Russell Street passes under I-5. Bicycle lanes are
provided on both sides of the street from N Ross to
N Williams Aves.
N Mississippi and N Albina Aves between N
Interstate Ave and Russell Street both have a
60 foot ROW with 12 feet wide sidewalks and
36 feet wide roadway. These streets each
have one travel lane in each direction with on
street parking.
Sidewalks
Russell Street has a continuous sidewalk that
is adjacent to the street in the Project Area
west of I-5. The sidewalk in this section is 12 feet
wide and mostly dates back to the early part of the 20th century. In
many locations the sidewalk is in a poor state of repair. At the start of
this project, most of the intersections west of I-5 did not have curb
ramps to ease access for people using wheelchairs and strollers. In
the spring of 2003, curb ramps were constructed at intersections on
Russell Street from Interstate Ave to Ross Ave as part of the city?s curb
ramp program. East of I-5, the configuration of the Russell/Kerby
intersection means that there is no marked pedestrian access across
N Kerby Ave for people using the north side of Russell Street. The
sidewalk east of I-5 is also 12 feet wide on the south side on the
street, on the north side of Russell the sidewalk is 7 feet wide with a 5
feet wide planting strip. The longest distance between protected
pedestrian crossings (crossings with traffic signals) is currently about
1900 feet (from N Mississippi Ave to N Vancouver Ave).
RUSSELL STREET WEST OF I-5
RUSSELL STREET EAST OF I-5
Russell Street Improvements Planning Project16
EXISTING CONDITIONS SUMMARY
N Mississippi Ave and N Albina Ave have continuous 12 feet sidewalks
on both sides of the street. As part of the Interstate MAX construction,
the sidewalks on the east side of N Mississippi Ave and on the west
side of N Albina Ave between N Interstate Ave and Russell Street have
been upgraded to include curb ramps and other amenities such as
new street lighting.
Parking
On street parking is available on most parts of Russell Street, N
Mississippi Ave and N Albina Ave in the Project Area on both sides of
the street. Some parking is limited to one hour and two-hour zones or
restricted during business hours to allow for truck loading in the
section of Russell Street west of N Borthwick Ave.
Traffic Signals
Traffic signals are located on Russell Street at the intersections with N
Interstate Ave, N Mississippi Ave, N Vancouver Ave and N Williams Ave.
A traffic signal is also located at the intersection of N Albina Ave and N
Interstate Ave. The traffic signal at the intersection of Russell Street
and N Mississippi Ave is scheduled for removal. The signal equipment
at this location has reached the end of its service life. A traffic study
has shown that the volume of traffic at this intersection is well below
that required for signalizing an intersection, the study also showed
that the intersection would function better as an all-way stop with a
flashing red signal.
Lighting
The streetlights on Russell Street west of I-5 and on N Mississippi and
N Albina Aves are of the cobra head style typically used on city streets
outside of downtown. East of I-5, the lights used are typical of the
Emanuel Hospital campus that extends several blocks north of Russell
Street between N Kerby and N Williams Aves.
Pedestrian scaled single ornamental street lights have been placed on
the east side of N Mississippi Ave and the west side of N Albina Ave
between N Interstate Ave and Russell Street as part of the Interstate
MAX light rail construction.
Transit
Russell Street, N Mississippi Ave and N Albina Ave do not presently
carry transit service in the Project Area. However, each end of the
project area is served by a number of TriMet bus routes: line numbers
1 and 5 on Interstate Avenue, and lines 4, 33 and 40 on N Vancouver
and N Williams Aves.
TriMet is currently assessing a proposal to re-route line 33 to travel on
Russell Street between N Interstate Ave and Williams/Vancouver Aves.
If the reroute of line 33 goes ahead, the preferred location for bus
stops along Russell Street would be at the intersection with N Albina Ave.
Russell Street Improvements Planning Project 17
EXISTING CONDITIONS SUMMARY
Trees
There are few street trees on the portion of Russell Street west of I-5,
or on N Mississippi and N Albina Aves, except for the block of Russell
Street between N Interstate Ave and N Mississippi Ave where a number
of trees have been planted by the adjacent property owners. East of
I-5, there are mature trees regularly spaced on both sidewalks and in
the center median of the street. Street trees have been added to the
east side of N Mississippi Ave and the west side of N Albina Ave
between N Interstate Ave and Russell Street as part of the Interstate
MAX light rail construction.
TRAFFIC
On average, Russell Street carries between 3,800 and 5,600 vehicles
per day in both directions. Traffic volumes are highest around N
Vancouver and N Williams Aves and between N Interstate and N
Mississippi Aves (see Appendix C). The lowest volumes are east of N
Mississippi Ave. N Albina Ave carries 1,100 vehicles per day in both
directions. (9% of traffic on Russell Street is trucks, west of I-5 that
proportion increases to 25%).
Russell Street, between N Interstate Ave and N Williams Ave carries
between 3,000 and 6,000 vehicles per day. Truck traffic accounts for
approximately 13 percent of the total volume of traffic on Russell
Street between N Interstate Ave and N Ross Ave, west of the I-5
overpass, and 9 percent of traffic volume east of the I-5 overpass to
N Williams Ave.
Speeds
The 85th percentile is a standard engineering measure of speed,
indicating the speed at or below which 85 percent of the traffic is
moving. Traffic speed data is measured for a 24 hour time period
during a normal weekday.
The speed limit on Russell Street is posted at 25 mph. The current
85th percentile speeds on Russell Street vary by location. Just east of
N Interstate Ave, the 85th percentile speed is 23 mph. Near N Ross
Ave, the 85th percentile speed is 36 mph. Between the I-5 over
crossing and N Vancouver Ave, the 85th percentile speed is 33 mph.
85th percentile speeds greater than 5 mph over the posted speed are
considered excessive.
On N Williams Ave south of N Stanton St, the speed posted on N
Williams Ave is 30 mph and the 85th percentile speed is 32 mph.
Russell Street Improvements Planning Project18
EXISTING CONDITIONS SUMMARY
Safety
Vehicle crashes reported to the Oregon Department of Transportation
(ODOT) for the five years, 1997 through 2001, are compiled in a table
(see Appendix C). The locations included all cross streets in the
project area and crashes east of Interstate and west of Williams Ave
only.
The signalized intersection of Russell Street and N Vancouver Ave had
the highest number of crashes in the 5-year time period. Several of
the collisions at N Vancouver Ave were vehicles turning from the
wrong lane. There were no reported collisions at either N Borthwick
Ave or N Ross Ave for the 5-year time period.
One pedestrian collision was reported at N Kerby Ave resulting in a
pedestrian injury.
POLICY CONTEXT
Albina Community Plan & Eliot Neighborhood Plan (1993)
The Albina Community Plan represents a commitment to improving the
quality of life in north and northeast Portland. It emphasizes jobs and
wealth creation in the Albina Community, and implements land use,
transportation and public use strategies. It also focuses on the
preservation of the Albina neighborhoods, historic areas, and housing
stock. The Russell Street Improvements Project  supports the Albina
Community Plan?s objectives related to the addition of light rail on
Interstate Avenue and the emphasis of Russell as a main street in the
district.
The Eliot Neighborhood Plan was developed as part of the Albina
Community Plan Process and is based on the ?Eliot Neighborhood
Vision Statement? that was developed jointly by the Eliot Neighborhood
Association and Emanuel Hospital. The Plan includes a specific vision
for Russell Street and Lower Albina: ?Russell Street has become a
historic design district between I-5 and Interstate. While this historic
district retains its light industrial flavor, at night its combination of
brewpubs, loft housing, shops, a jazz museum, live music clubs,
restaurants and cafes makes it one of Portland?s premier
entertainment areas. The area is connected to adjacent residential
neighborhoods by attractive and safe walkways for pedestrians leading
to the east on Russell Street and to the North on N Mississippi Ave.?
Goals and objectives related to Russell St include:
? Provide safe and attractive routes for pedestrians and bicyclists.
? Strive for fully-improved rights-of-way which include curb ramps
for disabled persons.
? Protect residential areas from impacts of through-traffic and the
traffic of commercial, employment and institutional districts.
Russell Street Improvements Planning Project 19
EXISTING CONDITIONS SUMMARY
? Reduce the environmental impacts of the I-5 freeway.
? Use entertainment activities, hospitality industries, athletic and
recreational centers, and daycare, park and other community
facilities as attractors or primary anchors for the development and
revitalization of small commercial centers and nodes.
? Use public resources to improve streets and amenities within
business and employment centers to attract private sector
investment and stimulate business growth.
? Develop symbols and design themes unique to the Albina
Community?s residential, commercial and employment districts that
reinforce their positive characteristics.
? Design and install public improvements that are attractive and
responsive to the needs of the area.
? Foster the creation and enhancement of district and neighborhood
attractions and focal points.
? Create a network of safe, comfortable, pedestrian pathways that
link the district?s neighborhoods, commercial areas, transit
facilities, parks, water features and other attractions.
? Protect and enhance Albina?s historic and cultural characteristics
and encourage compatible, quality development.
? Gateways: Emphasize the major gateways to Eliot including
Interstate and Russell using transportation system improvements
and other amenities.
? Plant street trees on Russell Street, Interstate Avenue, and Greeley
Avenue.
? Create a gateway at the intersection of Russell and Interstate
celebrating arrival at Russell Street entertainment district.
Central City Plan
West of the I-5 freeway, Russell Street is in the Lower Albina section of
the Central City Plan area. The Central City Plan also calls for
gateways to the Lower Albina area and to develop Russell Street as a
pedestrian connection to the Eliot neighborhood. Russell Street is
designated as an historical district and as an industrial sanctuary.
Emanuel Hospital Impact Mitigation Plan (1994)
The Emanuel Hospital Impact Mitigation Plan requires the hospital to
address neighborhood livability issues proactively and provides it with
flexibility in development, expansion and construction. The pedestrian
circulation objectives and guidelines related to Russell Street include:
Providing a pedestrian circulation system that connects buildings with
bus and future light rail transit and adjacent residential areas.
Establishing attractive outdoor spaces for pedestrian activities. The
plan specifically calls for minor pedestrian access between the hospital
buildings and Russell Street in the area of the vacated portion of N
Gantenbein Ave.
Russell Street Improvements Planning Project20
EXISTING CONDITIONS SUMMARY
Urban Renewal Areas
Urban renewal is a state-authorized, redevelopment and finance
program administered by the Portland Development Commission
(PDC) designed to help communities improve and redevelop areas
that are physically deteriorated, suffering economic stagnation, unsafe
or poorly planned. PDC uses urban renewal as a tool to focus public
attention and resources in blighted or underused areas to stimulate
private investment and improve neighborhood livability.
Parts of the Russell Street project area lie within one of two separate
Urban Renewal Areas (URAs); The Interstate Corridor URA and the
Oregon Convention Center URA (see map below). Both Urban Renewal
Areas provide means to implement components of the Albina
Community Plan and also provide important funding sources for
development projects and for supportive public infrastructure
improvements. Specific urban renewal objectives related to Russell
Street include revitalization along mainstreets, optimizing light rail
investment, and the importance of transportation improvements as a
catalyst for redevelopment.
RUSSELL
RUSSELL
STANTON
PAGE
MARTIN LUTHER KING JR. BLVD.
RODNEYWILLIAMSVANCOUVER
KERBY
INTERSTATE
ROSSBORTHWICKALBINA
MISSISSIPPI
I-5
FREMONT BRIDGE
Emanuel
Hospital
Gantenbien
(vacated)
Lillis-
Albina
Park
Tubman
Middle
School
Union
Pacific
Albina
Yard
Mississippi
Albina
MAX Station
W
illam
ette 
R
iver
FLINT
Interstate Corridor Urban Renewal Area
Oregon Convention Center Urban Renewal Area
URBAN RENEWAL AREAS
Russell Street Improvements Planning Project 21
EXISTING CONDITIONS SUMMARY
Transportation System Plan (TSP) and Central City
Transportation Management Plan (CCTMP) Street
Classifications
The segment of the Project Area from the I-5 overpass west to N
Interstate Ave is within the Central City Transportation Management
Plan (CCTMP). The Russell Street Project Area is partially within two
plan districts. The segment of the Project Area from N Williams Ave to
the I-5 overpass is within the North District of the Transportation
System Plan (TSP). The street classifications from both plans are
outlined below.
Street classifications included in the TSP and CCTMP specify the
functional purpose of the street and dictate what types of automobile,
transit, bicycle, pedestrian, truck, and emergency response uses
should be emphasized in the design of each street and its surrounding
land uses.
Street Classifications for Russell Street
Traffic
Transit
Bicycle
Pedestrian
Freight/Truck Routes
Emergency Response
Street Design
West of I-5
Traffic Access Street (CCTMP)
Transit Access Street
Local Service Bikeway
City Walkway
Local Service Truck Street
Major Emergency Response Street
Community Main Street
Neighborhood Collector
Transit Access Street
City Bikeway
City Walkway, Pedestrian District
Minor Truck Street
Major Emergency Response Street
Community Main Street
East of I-5
Street Classifications for N Mississippi & N Albina Avenues
Traffic
Transit
Bicycle
Pedestrian
Freight/Truck Routes
Emergency Response
Street Design
Mississippi
Local Service Traffic Street
Transit Access Street
Local Service Bikeway
City Walkway
Local Service Truck Street
Major Emergency Response Street
Local Street
Local Service Traffic Street
Local Service Transit Street
Local Service Bikeway
Local Service Walkway
Local Service Truck Street
Major Emergency Response Street
Local Service Street
Albina
Russell Street Improvements Planning Project22
EXISTING CONDITIONS SUMMARY
Pedestrian Master Plan (1998)
Russell Street east of I-5 is part of the Eliot pedestrian district. The
Pedestrian Master Plan details recommended pedestrian policies,
street classifications and design guidelines. The Plan also designates
areas within the city as Pedestrian District project areas. Pedestrian
district projects include a wide range of improvements including
widening sidewalks, curb extensions, street lighting and signing.
The Russell Street Improvements Project Area east of I-5 lies within the
Eliot Pedestrian district.  Sidewalks in pedestrian districts are
recommended to be 15 feet wide and should be separated from
vehicular traffic by landscaping or on-street parking. Crosswalks,
signalized crossings, curb extensions and pedestrian refuges are also
recommended. Protected crossings should be considered at every
corner or at 400-foot intervals, whichever is less. Where two arterial
streets cross within a Pedestrian District, design treatments such as
curb extensions, median pedestrian refuges are recommended. In
addition, marked crosswalks and traffic signals should be considered.
Land Use and Zoning
Russell Street once served as the main street of the City of Albina. The
construction of I-5 and the expansion of Emanuel Hospital changed
the role of the street from being a neighborhood commercial street to
what it is today.
West of I-5, land use is mostly industrial and commercial. This area,
also known as Lower Albina, is designated as an Industrial Sanctuary.
The Industrial Sanctuary Designation is intended for areas where City
policy is to reserve land for existing and future industrial development.
A full range of industrial uses is permitted and encouraged. Non-
industrial uses are limited to prevent land use conflicts and to
preserve land for industry. The corresponding zones are General
Industrial 1 (IG1), General Industrial 2 (IG2), and Heavy Industrial (IH).
East of the freeway, the primary land use is Emanuel Hospital on the
north side of Russell Street. On the south side of Russell Street, east
of the freeway, most of the land is open space with a small
commercial strip between N Flint and N Williams Aves. East of N
Williams Ave, the land use is largely residential.
Russell Street Improvements Planning Project 23
EXISTING CONDITIONS SUMMARY
The zoning classifications for Russell Street, N Mississippi Ave and N
Albina Ave in the Project Area are:
? Central Employment (EX) in the area of the Russell/Mississippi
intersection.
? General Industrial 1(IG1) along N Mississippi and N Albina Aves
and along Russell Street between Albina Ave and the I-5 overpass.
? Institutional Residential (IR) on the north side of Russell Street
between N Kerby and N Williams Aves.
? Open Space (OS) on the south side of Russell Street between
Commercial and Flint Aves.
? Storefront Commercial (CS) on the south side of Russell Street
between N Flint and N Williams Aves.
? East of N Williams Ave, the zoning is primarily residential (R1).
The 2 blocks of Russell Street between N Interstate Ave and N Albina
Ave (in addition to buildings at the Knott/Mississippi intersection) form
the Russell Street Conservation District. Design guidelines for this
district are meant to encourage the retention and rehabilitation of
those elements that constitute the historical and architectural character
of the district while accommodating reasonable changes. These
elements include buildings built right to the front and side property
lines, and pedestrian orientation in scale and function.
STUDY AREA ZONING
Russell Street Improvements Planning Project24
Russell Street Improvements Planning Project 25
DESIGN ALTERNATIVES
3
EVOLUTION OF DESIGN CONCEPTS
The streetscape design portion of the planning process for the Russell
Street Improvements Planning Project began with the first Community
Design Workshop on July 23, 2002. Community members were asked
to work with detailed maps of the project corridor and begin to record
the kinds of improvements they would like to see there.
Workshop participants were randomly assigned to five different
groups, with each group assisted by a designer, a facilitator and a
recorder. Each group addressed the entire corridor, recording their
ideas by drawing on the maps or applying icon stickers to represent
various streetscape elements such as street trees, streetlights,
benches, telephones, curb ramps, and curb extensions. Each group
was also asked to rate the importance of those same amenities.
In the month following the workshop, the design team analyzed the
information recorded on the maps, looking for patterns and common
areas of concern. The design team produced design analysis sketches
that summarized the salient points of each of the five maps. The
sketches show some commonality between the concerns of the five
groups. Every group called out the I-5 underpass as an issue of
central importance. Problems at the intersection of Russell Street and
N Kerby Ave were also noted.
The analysis also revealed some common themes identified by the
community. For example, several of the groups called for gateway
elements to mark the entry into the neighborhood.
Based on the analysis of the community design maps, the design team
began to formulate some choices for the community to make at the
alternatives evaluation workshop, and to think about organizational
structures for the design elements identified by the community. In
August, the design team prepared three distinct concept ideas for the
project. Each concept is a way of thinking about the project area that
guides the design decisions and choices of improvements. Each
concept was also associated with certain themes.
Russell Street Improvements Planning Project26
DESIGN ALTERNATIVES
RUSSELL STREET IMPROVEMENTS DESIGN
CONCEPTS
Concept A: ?Ribbon with Gateways?
This concept featured the idea of a continuous element, or ?ribbon,?
that would help guide people from one end of the project area to the
other, and gateways that would define the entrances to the area.
Themes:
? ?Indomitable spirit? of the people and neighborhood
? Historic recognition
? Artistic wayfinding
Concept B: ?Places and Links?
The four areas identified by the community as most important would
be given the most attention with special improvements. In the links
between these places there would be a basic level of improvements,
such as new sidewalks, curb ramps, and street lights.
Themes:
? Celebrate the eclectic mix of uses in the neighborhood
? Celebrate the historic identity of the neighborhood
Russell Street Improvements Planning Project 27
DESIGN ALTERNATIVES
Concept C: ?Distinct Districts?
This concept divides the project area into two distinct districts, the
?Lower Albina? district west of I-5 and the ?Upper Albina? district east
of I-5. Different treatments would be applied in the two districts to
highlight their distinct characters. To knit the two districts together, a
special treatment would be applied at the I-5 underpass.
Themes:
? Recognition of historic character and ethnic identities in each
district
? Honor the industrial use and character of the area
? Respect the unique mix of industrial and commercial uses in the
area
? Promote the day/night business uses in the area
CONCEPT EVALUATION
At the Community Design Concept Evaluation Workshop in September
2002 the community responded to these three design concepts.
Participants divided into small groups to discuss and record their
responses. There was divided opinion about the concepts presented.
Generally, there was strong support for some kind of unifying element
as opposed to the separation of a district approach. Project staff
reviewed the community responses and comments and recommended
blending elements of some of the concepts to create a preferred
concept of ?Ribbon with places,? that would include a unifying element
throughout the project and special treatment at the places identified
by the community as most important.
Russell Street Improvements Planning Project28
DESIGN ALTERNATIVES
At the workshop, the design team also looked at nine areas with more
detailed design issues for the community to address in the small
group setting. Following the evaluation workshops, City staff
synthesized the community?s responses and prepared draft staff
recommendations for consideration by the Community Advisory
Committee. A discussion of each decision follows.
1.  Russell from Interstate to I-5
On the walks and in the Design Workshop, the community identified
both a need for more places to cross the street safely in this section
and a desire to make things better for truck movements. The traffic
engineer illustrated how ?truck-friendly? curb extensions (see sidebar)
could be used to benefit both truck movements and
pedestrian crossings. The design team offered
the community two variations on the
application of truck-friendly curb
extensions. Idea A added curb
extensions at the intersections of
Russell Street and N Albina Ave and
Russell Street and N Ross Ave. Idea
B included those two intersections,
and, in addition, proposed truck-
friendly curb extensions at Russell
Street and N Borthwick Ave.
Community opinion on these two
alternatives as well as on whether
to use curb extensions in this
section at all was divided. While
some people enthusiastically
supported the installation, others
commented that this stretch of
Russell Street is already relatively
narrow and is not that hard to
cross.
Balancing the community?s ambivalence and the technical advantages
of the curb extensions, staff recommended that Idea B be
incorporated into the final design.
IDEA A
IDEA B
Russell Street Improvements Planning Project 29
DESIGN ALTERNATIVES
The Community Advisory Committee, in considering this
recommendation, looked closely at the issue of on-street parking.
They concluded that, in fact, the installation of the curb extensions
would provide the greatest retention of on-street parking, and
concurred in the recommendation to include curb extensions with
marked crosswalks at N Albina, N Borthwick and N Ross Aves. The
CAC helped the design team choose exactly which of the corners
would receive this crossing treatment, taking into account existing
driveways and parking restrictions. The City staff committed to
consciously designing the curb extension to occupy as little of
the on-street parking area as possible.
After the CAC?s recommendation, city staff
took another look at the planned curb
extensions to be sure that there were no
negative impacts. Staff met several times
with Streimer Sheet Metal Works, Inc. to
discuss their use of the driveways on
the north side Russell Street
opposite the intersection of N
Borthwick Ave. After careful study
of truck turning radii and
movement into and out of the
driveways, it was decided that
placing curb extensions on both
sides of the street at this location
would not work. This meant that
idea A would be the preferred
option and this is the one that has
been shown on the final plan.
However, if Streimer decides to
reconfigure its property or sell,
idea B could be used. A plan of
this option is shown on the
previous page.
What is a ?Truck-Friendly? Curb Extension?
Curb extensions help make crossing the street safer and
more convenient for pedestrians by shortening the crossing
distance and putting pedestrians where they can see and be
seen. Curb extensions can be truck-friendly when they are
designed with a generous compound curb radius that a truck
can easily turn around.  By preventing on-street parking of
cars too close to a corner, curb extensions improve sight
distance at intersections for all drivers, and make truck
movements easier.
Russell Street Improvements Planning Project30
DESIGN ALTERNATIVES
2.  N Mississippi and N Albina Avenues
The Interstate MAX project included the installation of some new street
trees and streetlights on the east side of N Mississippi Ave and the
west side of N Albina Ave, between N Interstate Ave and Russell Street.
The design team asked the community to help decide what level of
additional improvements would be appropriate for the final plan,
whether new sidewalks should be put on both sides of the street. One
consideration is that the west side of N Mississippi Ave in this stretch
is mostly driveway. In the final plan, improvements are shown on both
sides of both streets.
3.  I-5 Overpass
There was a high level of community consensus in identifying the
safety and appearance of the I-5 underpass as major community
concerns. The design team responded with a sketch of one possible
intervention which included lighting, screening and designation art.
The troll sculpture under the Fremont Bridge in Seattle was shown as
an example of such art. At the Design Concept Evaluation workshop,
the community was asked what they liked and disliked about this
concept.
Better lighting got a very favorable response, as did the idea of
destination art. People responded well to the idea of introducing color.
However, ODOT expressed a concern about any prominent element
that might distract drivers. Subsequent work with the CAC established
the importance of the lighting and the art as well as the importance of
closing off the upper reaches of the space under the bridge.
Marking Crosswalks
There is a legal crosswalk at every leg of every intersection,
whether or not there are crosswalk markings, unless otherwise
indicated. The one exception is that, under State law, if a
crosswalk is marked at an intersection that becomes the only
legal crosswalk. The City of Portland generally does not mark
crosswalks at unsignalized intersections, except where markings
are needed to indicate to pedestrians and motorists the safest
place for pedestrian crossing. At offset intersections, or at
closely spaced ?T? intersections, overall pedestrian safety and
convenience may be increased by selectively enhancing some
crosswalks while eliminating others.
N Mississippi Ave.
N Mississippi Ave with sidewalk improvements.
I-5 overpass.
Russell Street Improvements Planning Project 31
DESIGN ALTERNATIVES
4.  Russell Street and N Kerby Avenue
The interruption of the pedestrian path on the North side of Russell
Street at the N Kerby Ave intersection was identified as a problem,
especially with higher pedestrian use expected along both sides of
Russell Street. At the Design workshop, a number of people supported
a conceptual alternative that would realign the entire N Kerby Ave
intersection into a more standard ?T? configuration. However, due to
the grades, the surrounding hillside and the proximity to the I-5
structure, such a realignment was judged to be problematic by the
traffic engineer and the design team. Working together, the engineer
and the design team proposed to implement a more modest
realignment that would allow the installation of a continuous sidewalk
along the North side of Russell Street. The channelization of the two
southbound lanes would be eliminated as they are realigned to be
nearly at a right angle to Russell Street. A larger pedestrian refuge
island would separate the north- and southbound lanes, and the
northbound lane of N Kerby Ave would be narrowed at the throat of
the intersection to slow traffic, shorten the crossing and improve
pedestrian safety. The new crosswalk would be aligned so that
pedestrians have a good view of approaching vehicles. The new
crosswalks and sidewalks section would complete the pedestrian
network on the North side of Russell Street.
At the Concept Evaluation Workshop, there was support for making
changes to this intersection. Some felt the proposed changes
described above were ?too timid.? The CAC also suggested a more
aggressive intervention, but after discussion of the constraints, they
supported the partial realignment, with the caveat that, in the future,
should traffic and pedestrians volumes increase, the possibility of
using an all-way stop will be reexamined.
The design team recognized that
the grades on the north side of
Russell Street may create some
running slopes in the sidewalk that
compromise the accessibility for
people with disabilities. Although
the ADA allows sidewalks to follow
the grade of the roadway, the team
felt that giving people the option to
cross Russell Street to the more
moderately-sloping sidewalk on the
South side would provide a greater
level of accessibility. As a result, a
marked crosswalk across Russell at
Commercial was added to the
preferred design.
Russell Street at N Kerby Ave.
Russell Street at N Kerby Ave showing interrupted sidewalk
on north side of street.
Russell Street Improvements Planning Project32
DESIGN ALTERNATIVES
5.  Russell Street from N Kerby Avenue to
N Vancouver Avenue
In this section, the design team responded to two concerns identified
by the community: the need for an additional opportunity to cross
Russell Street, and a desire for a more open entrance to Lillis-Albina
Park. The team proposed curb extensions and a marked crosswalk
across Russell Street at the point where the now-vacated N
Gantenbein Ave intersects Russell Street. On the North side, the
Emanuel Hospital Master Plan calls for the Gantenbein corridor to be
developed as a pedestrian connection to the Emanuel campus. On the
South side, the proposal included a new stairway and entrance to the
park, with pedestrian amenities such as pedestrian seating and
drinking fountains.
The community was asked whether they supported this idea, and the
response was overwhelmingly positive. Staff recommended
including this in the plan, and the CAC reaffirmed this
decision.
In the course of discussing this area, the project
team and the community were able to resolve
some other issues related to the safety of students
at Harriet Tubman Middle School. Subject to the
standard community approval process for traffic
calming devices, three speed bumps will be added
on N Flint Ave near the school. Flashing lights will
be added to the school zone signs on N Vancouver
Ave and N Williams Ave at N Page St. A crosswalk
will be marked across Russell Street on the west
side of N Flint Ave.
6.  Russell Street and N Vancouver Avenue
During the Community Walks, the length of the crosswalks at the
signalized intersection of Russell Street and N Vancouver Ave were
noted as a problem. The traffic engineer identified that there is more
pavement than needed for the traffic movements in that intersection,
and the design team proposed to narrow the intersection at the
corners to make the crosswalks shorter and allow the crosswalk on
the east side of N Vancouver Ave to align better. This solution would
create additional pedestrian space on the corner outside Sloan?s
Restaurant.
This idea was strongly supported by the community in the Concept
Evaluation Workshop, and staff recommended inclusion in the plan.
The CAC modified the recommendation by removing the proposed
curb extension on the northwest corner of the intersection to preserve
the existing right-turn-only lane.
Russell Street at vacated N Gantenbein Ave
Russell Street and Gantenbein Ave pedestrian connection with new entrance to
Lillis-Albina Park.
Russell Street Improvements Planning Project 33
DESIGN ALTERNATIVES
7. Russell Street from N Vancouver Avenue to
N Williams Avenue
Out of a suggestion made during the Community Walk came the
proposal to put a ?Promenade? along the north side of Russell Street
between N Vancouver Ave and N Williams Ave. This section has the
vacant Legacy parcel to the north, and
the proposal was to encroach (with
permission) on the Legacy property to
create a much wider sidewalk area
that would feature a high level of
amenities such as seating, drinking
fountains, planters and historic
markers.
The community was asked to respond
to what they liked and disliked about the
promenade proposal, and the response
was generally very positive. The reservations
expressed were related to what impact the
promenade might have on future development,
and possible problems with undesirable activities that
might be associated with an attractive seating area that has
no real pedestrian generators such as restaurants and other
businesses.
There were a number of people who suggested extending the
promenade concept further, and the CAC eventually decided to include
in the final plan an extension of this treatment all the way to
Gantenbein to connect to the proposed crosswalk and new park
entrance.
8.  Russell Street from N Williams Avenue to NE Martin
Luther King, Jr. Blvd.
Although the project boundaries
end at Williams, there were several
members of the community who
suggested that the project be
extended east to NE Martin Luther
King Jr. Blvd. There was general
community support for this idea.
NE Martin Luther King Jr. Blvd and Russell Street looking west.
Russell Street Improvements Planning Project34
DESIGN ALTERNATIVES
9.  N Williams Avenue and N Stanton Street
Although this intersection was not within the project boundaries, there
was an extremely strong community request for action to address
safety concerns at this location. At the Concept Evaluation Workshop,
the community was asked whether they preferred to add curb
extensions to shorten the crossing distance or to study the possibility
of adding a pedestrian-activated signal at this location.  Opinion was
somewhat divided, with a slight margin of support for the curb
extensions. From a technical point of view, a traffic signal was not
warranted here. The traffic engineer also analyzed the possibility of
adding a median refuge. The CAC was presented with a refined
alternative that included the curb extensions along with pedestrian-
activated flashing overhead cabinets. This solution was accepted by
the CAC with one dissenting vote.
Due to continued concern about the safety of this intersection, the
traffic investigations group in the Office of Transportation completed a
detailed study of traffic conditions at this location. Based on this
evaluation, traffic conditions did not meet warrants. Traffic Design staff
suggested a median island in addition to curb extensions as a
solution. The analysis is shown in Appendix C. Engineering staff also
said that pedestrian activated flashing overhead signals were not a
good option due to cost and being unproven technology.
Project staff suggested that traffic issues along N Williams and N
Vancouver Aves could not be remedied on a piecemeal intersection by
intersection basis. A better way to deal with the problems along these
streets was to study a stretch of the streets as a single project or
study and that the city should seek funding for such a study.
The design alternatives discussed here were combined with the
recommended concepts to create the preferred plan.
Russell Street Improvements Planning Project 35
PREFERRED DESIGN PLAN
4
PREFERRED DESIGN CONCEPT AND THEME
The design concept organizes the design elements for street
imporvements. The preferred concept and theme is as follows:
?Ribbon with Places: This concept features the idea of a
continuous element, or ?ribbon,? that would help to guide people from
one end of the project area to the other. Places identified by the
community as most important will be given significant attention with
special improvements. Historic, cultural and ethnic identities that have
contributed to the area will be expressed artistically all along the
street. The unique mix of industrial, commercial and institutional uses
would be recognized at the places.?
In assessing the design concepts, CAC members needed to decide if
the concepts meet the objectives listed below.
? Recognize the diverse historic, cultural, and ethnic identity of N
Russell Street east and west of I-5.
? Design improvements in a way that accommodates the truck traffic
serving businesses in the industrial area.
? Identify improvements to create not only safe and convenient
pedestrian and bicycle access to light rail, but improvements that
draw and motivate people to want to explore this unique area and
benefit from the transportation opportunities.
? Provide connections to the Eliot neighborhood and Emanuel
Hospital via Russell Street.
? Enhance pedestrian environment around the light rail station.
? Balances the needs of retaining businesses in the Lower Albina
Industrial Sanctuary with the needs of providing safe pedestrian
access to the light rail station for existing institutions and residents.
? Bicycle access will be planned around truck access, on street
parking and the limited Right-of-Way.
PREFERRED DESIGN CONCEPT
Russell Street Improvements Planning Project36
PREFERRED DESIGN PLAN
REALIZING THE CONCEPT AND
THEMES IN THE DESIGN
THE RIBBON ELEMENTS
The plan calls for new sidewalks, street trees and
streetlights throughout the project. As called out in
the concept, these elements will be applied
differently in the three types of design districts.
Ribbon Sidewalk Markers
The most distinct ribbon element is the plan to
incorporate unique markers in the sidewalk. The
markers are conceived as bronze diamonds, with a
design that should reflect the community?s chosen
theme. The markers are to be placed every twelve
feet in the new concrete sidewalks. The sidewalks
will be scored as shown on page 45.
Streetlights
New pedestrian-scaled streetlights will be included throughout the
project, giving a unified look. The proposed stretlights are of the Zed-
40 type Luminaire and pole assembly. This type of streetlight has
been used for the new lighting on the east side of N Mississippi Ave
and west side of N Albina Ave that was porvided as part of the
Interstate MAX light rail construction.
Street Trees
More street trees would be added in the project area west of I-5. The
selection of trees will be a partnership between the adjacent property
owner and the City?s Urban Forester. Tree placement will be
determined by property visibility, driveway location and safety issues.
BASE PLATE
ORNAMENTAL LUMINAIRE
16
1
/
8
?
20
1
/
8
? O.D.
SILICONE CAULK
COLOR TO MATCH
POLE FINISH (AFTER PAINTING)
12A
11A
10A
FLUTED, TAPERED
STEEL POLE
NOT TO SCALE
ZED 40 GLOBE ASSEMBLY
2?-8?
14?-10? 
POLE 
HEIGHT
16?-6? 
CENTER 
OF 
LIGHT
1
1
/
8
? 0 SLOT3? MIN.
BOLT
PROJECTION TYP.
1? STL. PLATE
5
3
/
4
? 0 POLE
9?
9?
9? 
B.C.
Ribbon sidewalk markers.
Russell Street Improvements Planning Project 37
PREFERRED DESIGN PLAN
THE PLACES ELEMENTS
The Historic District
In this section of Russell Street, between N Interstate Ave and N Albina
Ave, the existing historic feeling will be maintained with minimal
addition of furniture. A gateway element will be added at N Interstate
Ave and Russell Street.
The MAX Station
Gateways to the Russell Street area will be added at N Interstate Ave
and N Albina Ave and at N Interstate Ave and N Mississippi Ave. The
installations will include signage or maps that direct people to the
upper part of Russell Street. Signage will include information for
persons with disabilities regarding the easiest route (up Mississippi).
The I-5 Underpass
Lighting and art will be the main elements used to enliven the scary
space of the I-5 underpass. In addition, the upper reaches of the
space under the freeway will be blocked off. The new streetlights will
continue through the underpass area, and additional flood lighting will
be added. This additional flood lighting may be implemented ahead of
other improvements. The art should be of a scale and quality that it
becomes a destination.
The Gantenbein Crossing
Curb extensions and a marked crosswalk will be
installed across Russell Street at the vacated N
Gantenbein Ave. A new entrance to Lillis-Albina Park
will be constructed where the crosswalk terminates.
The new entrance area will include seating, drinking
fountains, stairs and a ramp into the park.
The Promenade
The sidewalk on the north side of Russell Street between N Gantenbein
Ave and N Williams Ave will be widened (with the permission of and
consultation with Legacy Emanuel Hospital) to include benches,
planters, trees and historic markers. Gateway elements will be
included at the northwest corner of Russell Street and N
Williams Ave and the southeast corner of Russell Street
and N Vancouver Ave. Special transit shelters with
community and historic information will be installed at
the northbound transit stop north of Russell Street on
N Williams Ave and the southbound stop on N
Vancouver Ave south of Russell Street.
Concept for I-5 overpass.
Russell Street Improvements Planning Project38
PREFERRED DESIGN PLAN
ADDITIONAL ELEMENTS
New Transit Stops
At the time of this report, TriMet was working on a plan to reroute bus
Line 33 to provide service on Russell Street between N Vancouver Ave
and N Interstate Ave. The decision was still in process. It is likely that
new transit stops will be located along Russell Street near N Albina
Ave.
Crossing Improvements
Improved pedestrian crossings with curb extensions and marked
crosswalks will be installed across Russell Street at N Albina Ave,
N Borthwick Ave and N Ross Ave. Curb extensions will be ?truck
friendly? (see page 29) to minimize the loss of on-street parking.
Crosswalks will also be marked at N Commercial Ave and on the west
side of the N Flint Ave intersection. An improved crossing with curb
extensions and overhead signs will be installed at N Williams Ave and
N/NE Stanton Street.
School Safety Improvements
Speed bumps will be installed on N Flint Ave. Flashing school beacons
will be added to the school zone signs on N Vancouver Ave and N
Williams Ave at N Page St.
Russell Street Improvements Planning Project 39
PREFERRED DESIGN PLAN
Preferred Plan
Interstate Avenue to I-5 Overpass

Russell Street Improvements Planning Project 41
PREFERRED DESIGN PLAN
Preferred Plan
I-5 Overpass to Martin Luther King Jr. Blvd.

Russell Street Improvements Planning Project 43
IMPLEMENTATION
5
PUBLIC IMPROVEMENTS
Project Phasing
The improvements outlined in this plan would cost approximately $3.3
million. The total consists of:
N Mississippi Ave ? N Interstate Ave to Russell Street
N Albina Ave ? N Interstate Ave to Russell Street
Russell Street ?N Interstate Ave to N Williams Ave
N Williams Ave at N Stanton Street intersection
Although the phasing of improvements was not discussed in detail by
the CAC, the following outlines a possible strategy for project phasing.
? Phase I improvements could emphasize sidewalk improvements on
Russell Street between N Interstate Ave and I-5 and also on N
Mississippi Ave and N Albina Ave between N Interstate Ave and
Russell Street. Russell Street itself is on the Bureau of
Maintenance list to be re-paved in 2003/2004. Improvements
such as crossing markings could also be done as part of the
re-paving project.
? Phase II improvements would include the portion of Russell Street
east of I-5 to N Williams Ave. In this section, the promenade
improvements would require a partnership with Emanuel Hospital
as the widened sidewalk would be constructed on land owned by
the hospital.
? A final phase of the project would be to add pedestrian-scaled
lighting along Russell Street from N Williams Ave to NE Martin
Luther King Jr. Blvd. This phase would also add a gateway marker
at the intersection of Russell Street and NE Martin Luther King Jr.
Blvd. This portion of Russell Street received some sidewalk
improvements in early 1990?s.
Some incremental improvements may be implemented through other
city programs. In the spring of 2003, ADA compliant curb ramps were
constructed at all intersections on Russell Street west of I-5 as part of
the curb ramp program. Community members at the start of this
project cited the lack of curb ramps at these locations as a major
problem. Also in the spring of 2003, an Audible Pedestrian Signal
(APS) was installed to assist sight impaired community members at
the intersection of Russell Street and N Vancouver Ave.
Public improvements in the project area may also help to leverage
privately funded investment to improve properties adjacent to the
project area.
$245,000
$390,000
$2,437,000
$255,000
Russell Street Improvements Planning Project44
IMPLEMENTATION
Other Project Elements
The I-5 overpass improvements to provide a more attractive
environment for people using Russell St. will require a targeted
funding strategy. Providing bright lighting under the bridge structure
may require that lights be attached to the structure itself which would
require working with the Oregon Department of Transportation, who
owns the structure. Making this area more attractive provides an
opportunity for local artists to work with the community to provide an
attractive space. This location may also provide an opportunity for
alternative ways of providing improvements using the model of the City
Repair Project, who have worked with the community and the city to
do neighborhood street improvement projects in several City of
Portland neighborhoods.
TRANSPORTATION DEMAND MANAGEMENT
N/NE ECO-Collaborators
The N/NE ECO-Collaborators group grew out of the desire of large
employers within the Lower Albina Industrial area to meet the newly
created Employee Commute Option (ECO) Rules adopted by the
Oregon Department of Environmental Quality in 1996. These
employers originally came together to share ideas and strategies for
reducing drive alone commute trips and for completing the required
ECO surveys. The group found the collaboration helpful and has
continued to meet over the years. The group provides advice to help
businesses meet ECO requirements. Several members of the N/NE
ECO-Collaborators actively participated in the Russell Street project.
Currently, representatives from the following employers and interested
organizations participate in the group: City of Portland Water Bureau,
City of Portland Bureau of Maintenance, City of Portland Bureau of
Transportation System Management, Portland Public Schools, Legacy
Emanuel Hospital, Widmer Brothers Brewing, Swan Island
Transportation Management Association, TriMet, and the Eliot
Neighborhood Association.
The City of Portland Bureau of Maintenance, Legacy Emanuel Hospital
and Portland Public Schools all participate in TriMet?s passport
program which provides reduced rate bus passes for employees.
FUNDING OPPORTUNITIES
Portland Development Commission (PDC)
The Portland Development Commission (PDC) will be a key funding
partner in implementing the street improvements outlined in this
report. PDC oversees both of the urban renewal areas (URAs), the
Interstate Corridor URA and the Oregon Convention Center URA of
which the project area and study area are parts. Both urban renewal
areas serve as primary means of implementing components of the
Albina Community Plan.
Russell Street Improvements Planning Project 45
IMPLEMENTATION
Urban Renewal Areas provide funding sources for development
projects and supporting public infrastructure improvements.
PDC has developed the Storefront Improvement Program. This
program provides grants to assist property and business owners in
rehabilitating their storefronts. The following are allowed if these
repairs are part of the work directly affecting the building facade:
landscaping, fences, sidewalk repair, bike racks, seal coating and
restriping of parking lots and interior window display lighting.
DESIGN DETAILS
A number of elements that will eventually define the Russell Street
project have been left unspecified to increase the opportunity for
artistic expression, as described in the previous section. There are
four elements for which more detail is provided as part of this plan:
Gateway Element
The gateway element is designed to make a playful historic reference
to the onion dome that once graced the Hill Block building on the
corner of Russell Street and N Williams Ave and now stands alone as a
gazebo in Dawson Park. The gateway element would be constructed in
different versions according to location. At the MAX station and at N
Interstate Ave, the gateways would incorporate community and historic
information. At N Williams and N Vancouver Aves, those functions
would be transferred to the special transit shelters, and the gateway
elements would be gateways only. An example is shown here.
Sidewalk Scoring
The dimensions for the sidewalk scoring pattern and location of the
diamond markers are shown to the right.
Streetlights
The pedestrian scale streetlights for this area will be the Zed 40 in
green. See cut sheet (on page 36) and photo to the right.
Street Trees
There was unanimous support by the CAC for more trees in the area
west of I-5. Selection of street trees will be a partnership between
each affected property owner and the Urban Forester, with
consideration of visibility needs.
The design team met with Urban Forestry staff to discuss selecting the
appropriate trees for the street improvements. Street trees are a highly
desirable part of the pedestrian environment. Shade trees moderate
sidewalk temperatures and can extend the life of asphalt. However,
selecting the right tree to fit the differing conditions and provide long-
lasting value is a challenge.  One very controlling factor is availability
Russell Street Improvements Planning Project46
IMPLEMENTATION
of trees in the required 3.5 inch to 4 inch caliper size. Because of
this, it was decided to provide a suggested list of species choices
rather than specifically determine what trees should be used for each
block of the study area. As the streetscape is incrementally built when
each property redevelops, the designer can select trees based on
availability using the list as a guideline.
The team discussed the possibility of specifying one tree for the entire
streetscape plan to link together the entire length of the street. This
approach would be more successful if the entire streetscape were
implemented at the same time. Currently there is no funding for total
redevelopment, but there are individual properties that could
potentially redevelop. Availability again plays a role because the
nursery industry could not provide the number of trees in the
required size to plant the entire corridor. Another factor making one
tree selection difficult is the variety of existing trees that include a
major stand of Sweetgum trees east of the I-5 overpass and several
Ash trees at the Widmer properties.
For this and other reasons, the design team and Urban Forestry
recommend planting many different species along Russell Street, N
Mississippi Ave and N Albina Ave. This strategy reinforces the design
concept by helping to differentiate the districts along the study area. It
also allows the designer to select trees of the right size and habit to fit
the different spatial opportunities or limitations.
The following are guidelines for selecting trees at different conditions
along Russell Street, N Mississippi Ave and N Albina Ave:
The sidewalk width throughout the study area is 12 feet.
Overhead power lines exist on the south side of Russell Street.
However, at a few locations, there are auxiliary poles to feed specific
lots on the north side of Russell Street. Power lines are also along the
east side of N Mississippi Ave and the both sides of N Albina Ave. Trees
selected to be planted underneath power lines should not exceed 30
feet at maturity.
On Russell Street between N Interstate Ave and N Mississippi Ave, the
existing Ash trees are in good condition, but block views of the historic
building.  They should be pruned as they mature to create an open
canopy that will allow the buildings architectural detail to be viewed
from the street. New trees shown on the plan for this area should be
of a matched species.
Russell Street Improvements Planning Project 47
IMPLEMENTATION
At Russell Street between N Mississippi Ave and N Albina Ave, there are
existing Crabapple and Flowering Plum trees at the east end of the
area. New trees shown on the plan do not need to match existing
species. At the White Eagle Tavern, tree selection should be carefully
done to avoid interfering with views of this historic building.
At Russell Street between N Albina Ave and the I-5 overpass, there is
only one existing Columnar Norway Maple at the SW corner of N Ross
Ave and Russell Street. As new trees are selected for this block face
(with overhead power lines above), the Maple should be replaced with
the newly selected species to create uniformity for the block face.
On N Mississippi Ave between Russell Street and N Interstate Ave, there
are two Columnar Norway Maples at the south end of the west side of
the street. As new trees are selected for this block (with overhead
power lines above the east side of street), the Maples should be
replaced with the newly selected species to create uniformity for the
block.
On N Albina Ave between Russell Street and N Interstate Ave, there are
two Purpleleaf Norway Maples at the north end of the west side of the
street and two Columnar Norway Maple trees at the middle of the east
side of the street. The northern-most Purpleleaf Norway Maple is
shown on the plan to be removed to allow better street light coverage.
As new trees are selected for this block (with overhead power lines
above the both sides of street), the Columnar Norway Maples should
be replaced with the newly selected species to create uniformity for
the block. The remaining Purpleleaf Norway Maple may remain as a
specimen, but will need extensive pruning because of the overhead
power lines.
On Russell Street between the I-5 overpass and N Williams Ave, there
are existing Sweetgum trees planted along both sides of the street and
the center median south of Emanuel Hospital. There is one new tree of
another species planted along the south side of the street between N
Vancouver and N Williams Aves. Many are in good health, but all of the
Sweetgum trees along the south side of the street have been topped
because of the existing overhead power lines. Where the median is
shown on the plan to be extended, additional Sweetgum trees should
be added. Along the north side of the street, if redevelopment on
hospital property requires removal of the existing Sweetgums, a
different species of replacement tree is recommended for more variety
and better longevity of the sidewalk improvements.  Along the south
side of the street, the topped Sweetgum trees should be removed and
replaced with a different tree species with a 30 foot maximum height
at maturity.
Russell Street Improvements Planning Project48
IMPLEMENTATION
The following are tree selections are provided to help the designer
select trees to fit the varying conditions along Russell Street, N
Mississippi Ave and N Albina Ave. Other trees may be proposed by the
designer subject to approval by Urban Forestry:
Acer buergeranum ? Trident Maple
Height 20?, spread 20?, deciduous, glossy green foliage, red orange
fall color
Acer campestre ? Hedge Maple
Height 35?, spread 30?, deciduous, dark green foliage, yellowish fall
color
Acer davidii ? David?s Maple
Height 35?, spread 25?, deciduous, glossy deeply veined foliage,
yellow, red, orange and purple fall color, distinctive bark with silvery
white stripes on glossy green background
Acer truncatum x platanoides ? Pacific Sunset Maple
Height 30?, spread 25?, deciduous, dark green glossy smooth foliage,
yellow orange ? bright red fall color.
Betula jacquemontii ? Jacquemontii Birch
Height 40?, spread 30?, deciduous, dark green thick glossy foliage,
yellow fall color, whitest bark of all birchs, does not suffer from aphids
as other birchs
Cladrastis kentukea ? Yellowwood
Height 30?, spread 40?, deciduous, bright green foliage, brilliant yellow
fall color, spectacular white fragrant flowers May - June
Cornus capitata ?Mountain Moon?
Height 30?, evergreen, grey-green foliage, large sulfur-yellow flower
bracts June - July
Cornus kousa ? Kousa Dogwood
Height 20?, spread 20?, deciduous, medium green foliate, reddish fall
color, many varieties with different colors of flowers
Cornus omeiense ? Mt. Omei Dogwood
Height 30?, evergreen, glossy foliage with red new growth, creamy
yellow flowers in June
Davidia involucrata ? Dove Tree
Height 30?, spread 30?, deciduous, unique flowers with long white
bracts that flutter in the wind
Fagus sylvatica ?Roseo-marginata? ? Tricolor Beech
Height 30?, spread 20?, deciduous, purple foliage marked white with
pink edge
Russell Street Improvements Planning Project 49
IMPLEMENTATION
Gleditsia triacanthos ? Honeylocust
Height 35?-45?, spread 35?-40?, deciduous, several varieties suitable for
use as street tree, can be shaped to fit tight conditions, open habit
allows filtered sun through
Magnolia denudata ? Yulan Magnolia
Height 30?, deciduous, densely branched, pure white, fragrant, orchid-
scented flowers Mar-Apr, flower petals edible, buds used in traditional
Chinese medicine
Michelia maudiae
Height 30?, evergreen, Magnolia relative, fragrant pure white flowers
that are used in traditional Chinese medicine
Nyssa sinensis ? Chinese Tupelo
Height 40?, deciduous, coppery red new growth, glossy deep green
foliage, brilliant pink ? red fall color
Parrotia persica ? Persian Parrotia
Height 30?, spread 20?, pink-tinted new growth, green foliage, yellow
orange red fall color, exfoliating bark, hazy red flowers
Prunus cerasifera ?Thundercloud? ? Thundercloud Plum
Height 20?, spread 20?, deciduous, dark purple foliage, featuring light
pink plum blossoms
Quercus frainetto ?Schmidt? ? Forest Green Oak
Height 50?, spread 30?, deciduous, dark green glossy foliage with
rounded lobes, yellowish brown fall color
Styrax obassia ? Fragrant Snowbell
Height 25?, spread 15?, deciduous, large deep green foliage, white
fragrant flowers in June, drought tolerant
Viburnum odoratissimum ?Awabuki? ? Awabuki Viburnum
Height 30?, evergreen, glossy green foliage, fragrant white flowers in
spring
Zelkova serrata ? Zelkova
Height 40?-50?, spread 40?, green foliage resembles Elm, orange fall
color, varieties include ?Green Vase? and ?Village Green?
Russell Street Improvements Planning Project50
IMPLEMENTATION
The Art
An important component of this design is the art that is still to be
defined. This project can be realized as a truly community-based effort
through the definition, creation and selection of that art. The
community itself may wish to take control of that process, and might
very appropriately choose to work with local artists.
The art for Russell Street will provide an opportunity to reflect the
theme of historic, cultural and ethnic identities that the community has
identified for this project. Different installations or performances may
emphasize different themes. Historic photos and documents may be
incorporated into the artistic expression.
The art may be reflected in much of the street furnishings. The
?ribbon element? of a bronze diamond marker in the sidewalks is one
obvious opportunity for art and design. Other opportunities for artistic
expression include benches, drinking fountains, trash receptacles and
historic markers.
NEXT STEPS
Implementation of the Russell Street Improvement Planning Project will
include the following steps:
? Present the plan to the Portland City Council for adoption, by
resolution, as the guiding document for public right-of-way
improvements along Russell Street and along N Mississippi Ave
and N Albina Ave between N Interstate Ave and Russell Street.
? Seek funding to design and construct the recommended
improvements.
? Work with local businesses to plan and schedule construction in a
manner that minimizes impacts on businesses and community
uses on the street.
? Continue to work with the Eliot neighborhood, local businesses
and the artists? community to define public art projects, identify
funding sources and to write or support grant applications for
public art.
Recommended Action
The Office of Transportation should seek funding to study the N
Vancouver Ave and N Williams Ave couplet. This would allow a full
investigation of pedestrian and traffic issues in the area. Such a study
would also help to avoid the problem of dealing with each intersection
on a piecemeal basis that merely moves the conflict to another nearby
intersection.
Russell Street Improvements Planning Project 51
APPENDICES
6
Appendix A:  Glossary
Appendix B:  Summary of Community Input
Appendix C:  Traffic Analysis Report