Waterfront Redevelopment: Incorporating Waterfront Futures Group Recommendations

Almost 2 years ago, on Tuesday, November 22, 2005 to be exact, I was moved to revisit the excellent recommendations submitted by the Waterfront Futures Group [WFG], who had labored for 18 months in a public learning process and then distilling it into what they thought might provide the best benefit to Bellingham from redeveloping its waterfront. They came up with some really good, ambitious ideas! Ideas that can resonate over time as the right way to go about making a 'silk purse out of a sow's ear' for the G-P property. And they did that before we had any certainty that this entire property would be owned by the Port of Bellingham and become the subject of its major collaboration with the City of Bellingham. I think we owe this group, and its leadership, our lasting gratitude.

But, the WFG also have given us a big challenge to incorporate as many of its recommendations as possible into any redevelopment plans that are adopted. Much like our 14 Growth Mangement Act [GMA] Goals, some of the recommendations appear to conflict with, or at least overlap, others. This means that none of the recommendations can simply ignore the others, but a balance needs to be struck that reasonably reflects what is feasible and can be accomplished.

That said, the primary purpose of the Waterfront Redevelopment undertaking is economic development, and all that entails. This project is about stimulating our local economy, creating jobs and growing businesses that are sustainable. That also is how this venture will ultimately be paid for, not from subsidies, get rich quick schemes or excessive taxes on current residents.

Of course, like all such ambitious undertakings, all parts don't just happen at once, or by wishful thinking. They have to be carefully planned, built in prudent steps and gradually achieved over time. That kind of effort takes ingenuity, fortitude and patience that spans multiple terms of office of elected officials, several iterations of plans and cost estimates, and future generations to fully enjoy the ensuing benefits. It is not a simple thing to do, or to describe in sound bytes. It requires an understanding of what is envisioned, what is possible, what is true, and what is not true. In the end, this is more like a team marathon relay race than a sprint for individuals who want to be heroes - or otherwise.

Amazingly, this undertaking has attracted some serious detractors! But, maybe that's not really amazing, because every other project I've seen has also had its detractors, and detractors can serve a useful purpose in asking questions, expressing concerns, or making alternate suggestions. Actually, we need detractors - but not demolition experts who are intent on laying such mine-fields of fear, cynicism, petty jealousy and misinformation that the public is deceived into not believing the WR should, could or would happen.
[Already, Whatcom County seems to be headed in that direction, which is distressing given it's excellent Comprehensive Plan Chapter 7 on Economics, and the supporting information in Appendix C, regarding vision statements on the 14 GMA goals, including the Economic Development Action Plan]

Some detractors do have legitimate concerns about the environmental and social aspects of WR that do need addressing. From my perspective, those concerns will be fully addressed, but I recognize it will require a leap of faith for some to believe that as I do. At this point, my main concern is with the economics side of the issue; specifically how much the required infrastructure will cost and how this will be phased and financed to support redevelopment. That information is being developed, but it does take time because this planning effort is inherently iterative in nature and based upon discovery of actual conditions. practicalities and possibilities.

That leads to the purpose of this piece, which is to make sure the intent of the Waterfront Futures Group is as fully incorporated into WR as possible.
[Note: I apologize in advance for the length of what follows, much of which is available from the City's Web Site at www.cob.org. It is reproduced here for convenience, and as background for these comments]
Appendices A & B are at the end
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Here are some ideas regarding the current discussion of Strategic Principles for the Waterfront Redevelopment as promised last night.
[Tuesday, November 22, 2005]

The 11 "Strategic Guidelines" [SG's] conceived and recently presented by CollinsWoerman seem awkward and do not have the ring of authenticity for those familiar with the excellent WFG effort and final recommendations. They remind of being written 'by folks who are not from around here'! This effort does not seem reflective of the consultant's best work, but does have the appearance that the Port's thumb may have been applied to the scales in an effort to achieve -via after-the-fact executive fiat- what was not accomplished during the 2-year public process.

Whatever happened, these 11 "SG's" don't adequately describe what this community has come to expect from redeveloping its waterfront, and this has been evidenced by the adverse public reaction to the artificially fast-track process that is now being attempted. There are legitimate concerns being expressed that need to be heard and incorporated into the SGs and this will require more time and reflection.

I have given some thought to how the SG's might be rewritten to better capture both the essence and spirit of the WFG recommendations. One thought was to simply accept the 11 SG's presented and rewrite them as abstracts that better reflect local values.
These attempted rewrites are listed in Attachment A [below].

A second approach was to simply review the WFG recommendations, combine this with personal reflection and write another complete set of SG's.
These are summarized in Attachment B [below].

While neither of these 2 rewrite attempts may completely paraphrase the WFG recommendations, they do come closer than CollinsWoerman's version. It is also fair to say that CollinsWoerman did largely capture much of the essence intended by WFG, but missed some emphases entirely and badly described other key points. It is tricky at best to try to paraphrase a larger body of thought, that itself contains very strong inter-linkages, with a few succinct SGs, particularly if only the 4 overarching principles are used as starting points. The goal should be to more elegantly capture the totality of WFG thinking.

The information listed below was taken directly from the WFG recommendations on the COB web-site:

Note the 12 ideas 'that emerged repeatedly' might themselves make good SG's

The four 'overarching principles' are listed below. Each could be expanded with bullet points to flesh out the broader meanings intended. This could be another approach toward developing appropriate SG's. Perhaps this is what the consultant tried to do.

I. Reinforce the Inherent Qualities of Each Place on the Waterfront
II. Restore the Health of Land & Water
III. Improve Waterfront Access
IV. Promote a Healthy & Dynamic Waterfront Economy

The Consultant's two 'Core Ideas' given on page 2 of their report do not seem to serve any useful purpose other than to reiterate what everyone seems to already understand. Why restate these, unless they are targeted at those who are in denial as to the underlying reasons for the Port's initiative and the City's agreement to be a partner in the waterfront redevelopment? Is this intended to inform potential investors? Remind those in opposition? Inform the community? What is the intended audience?

• CBD & Waterfront District are parts of a whole downtown

• Waterfront's potential as a job-source, economic engine and place of enjoyment needs to to be steadily realized

Finally, the GUIDING PRINCIPLES AND RECOMMENDATIONS for the CITY Center are the most appropriate starting point for developing SGs, since this area defines the former G-P site as the single one area -out of the six identified by WFG- with the most potential for redevelopment, and the one for which the Port and City have agreed to a long-term cooperation.

Also note the following 2 points, which many believe to be key in insuring adherence to the WFG vision":

• the Georgia Pacific property should be acquired and held in public ownership as it is planned and developed over time

• development should be phased and coordinated by a public renewal authority or other tools that ensure public accountability while avoiding excess bureaucracy

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Waterfront Futures Group Final Recommendations [Page 3]

A dozen ideas emerged repeatedly during the WFG work sessions and served as a foundation for subsequent decisions. They provide a set of underlying assumptions for a successful waterfront in our community:

1. Successful waterfronts are welcoming to all.

2. Bellingham Bay and its physical landscape are part of larger natural systems.

3. Jobs of the future will help shape waterfront redevelopment.

4. Sustainability is a cornerstone for all waterfront work.

5. Education, training and apprenticeships increase our human capital and workforce capacity.

6. Fishing and food from the sea, deep-water access, and shallow draft marine access will continue to be a significant part of our area’s heritage, economy, and culture.

7. Waterfront redevelopment consistent with community goals will require significant public investment and in some cases public ownership as a catalyst for private reinvestment.

8. The “best” of our waterfront must be reserved for the benefit of our entire community.

9. Our waterfront assets are many and diverse, allowing us balanced development over time with a wide variety of purposes.

10. Successful waterfronts create continuous public access along the entire shoreline.

11. As part of Bellingham’s evolving economy, we will need to make provisions for industries moving off the waterfront.

12. Innovative approaches to cleanup of upland and in-water contamination will be needed to restore the health of our waterfront.
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FOUNDATION FOR DECISIONS - INTRODUCTION

Waterfront Vision & Framework Plan

I. Reinforce the Inherent Qualities of Each Place on the Waterfront

1. Make the waterfront a regular part of the lives of more people.
2. Respect history, cultures and the arts.
3. Make the waterfront inviting to people on foot.
4. Reinforce a unique “sense of place” at different waterfront locations.
5. Complement adjacent uses.

II. Restore the Health of Land & Water

1. Enhance or reintroduce natural systems.
2. Create and restore habitat wherever possible.
3. Remediate upland and in-water contamination.
4. Protect existing natural shorelines.
5. Seek opportunities to soften existing hardened shorelines.
6. Tailor environmental cleanup strategies and remediation to planned use.
7. Manage stormwater to enhance estuarine habitats.
8. Require sustainable practices in all development.
9. Restore, enhance and expand beaches wherever possible.
10. Connect proposed open space and natural areas to regional open space network and wildlife corridors.
11. Explore mitigation banking and incentives (such as environmental credits) for environmental resource protection and enhancement prior to redevelopment.

III. Improve Waterfront Access

1. Develop strong connections between uplands and water.
2. Provide links to regional trail systems.
3. Provide multiple modes of access to each area of the waterfront.
4. Provide convenient connections between different modes of transportation.
5. Create and connect large and small parks and open spaces with a “braided” system of pedestrian trails.
6. Enhance opportunities for visual access to waterfront areas.
7. Provide the opportunity to walk the waterfront while respecting natural habitat.
8. Help people find their way.
9. Provide way finding for the Coast Millennium Trail as a route that follows existing and proposed trails.
10. Explore the concept of public access “banking” and other financing incentives for improving public access.
11. Protect and enhance environmental resources when designing for shoreline access and upland development.

IV. Promote a Healthy & Dynamic Waterfront Economy

1. Create new mixed-use areas on the waterfront for commercial, industrial, educational, recreational and residential uses.
2. Support water-dependent activities and uses.
3. Create conditions attractive to jobs of the future.
4. Strengthen the tie between local jobs and resources.
5. Provide public amenities and infrastructure to support redevelopment.
6. Improve permitting processes to achieve the goals and principles of the Waterfront Vision.
7. Explore economic spin-off related to Bellingham Bay Pilot cleanup strategies.
8. Provide incentives and credits for “green” buildings.

The Waterfront Vision and Framework Plan provides FOUR overarching principles and THIRTY FIVE detailed principles to guide progress toward achieving a successful waterfront. The Waterfront Futures Group recommends all THIRTY NINE Guiding Principles for adoption as public policy. In some cases, bulleted statements follow the Guiding Principle. These statements provide further detail and should be treated as part of the Guiding Principle for that area.
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GUIDING PRINCIPLES AND RECOMMENDATIONS - INTRODUCTION

Waterfront Vision & Framework Plan

CITY CENTER

The vision for the city center waterfront calls for the creation of a mixed-use neighborhood that combines commercial, institutional, educational, retail services and residential uses, and that over time will provide many new job opportunities and a substantial amount of urban housing. It will be a neighborhood that complements the existing central business district.

The neighborhood will provide a place where people can live, work, study and spend their leisure time without relying on vehicular transportation and while offering a healthy and sustainable relationship between the city and the bay.

The existing aeration stabilization basin (asb) will be cleaned and opened up to accommodate either a new marina or new marine habitat combined with stormwater treatment or some combination of those uses.

When the adjacent tissue warehouse closes, the building will be adapted to accommodate a combination of public uses with links to Old Town.

Deep water moorage will be maintained in the Whatcom Waterway and marine-related commerce will continue on both the I & J and Whatcom Waterways. The waterways will retain sufficient depth to support existing and planned shore-side uses.

Public access will be provided throughout the area, with a network of walkways connecting new public spaces and regional trails.

Transient moorage will be provided on both sides of the Whatcom Creek Waterway while avoiding critical habitat areas. Habitat enhancement will be a condition of this new transient moorage provision.

New transit routes will serve the area and public docks will accommodate multiple modes of water transportation.

New facilities for Western Washington University and other educational institutions will be located in the Center City area with new transportation linkages to the main WWU campus.

The Cornwall Avenue landfill site will be improved including open space and pedestrian spaces along the waters edge connected by an over-water trail to Boulevard Park. Mixed-use development on the adjacent uplands could include a terraquarium and a Native American facility.

To realize this vision, the Georgia Pacific property should be acquired and held in public ownership as it is planned and developed over time. Infrastructure and public amenities to support development should be constructed, and development should be phased and coordinated by a public renewal authority or other tools that ensure public accountability while avoiding excess bureaucracy.

Waterfront Futures Group Final Recommendations [Page 19]

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[Page 20] Waterfront Vision & Framework Plan

CITY CENTER - GUIDING PRINCIPLES

Reinforce the Inherent Qualities of Each Place on the Waterfront

1. Make the waterfront a regular part of the lives of more people.
· Foster a greater sense of ownership and stewardship for the health of the Bay and its shore lands by providing places for people to live, work, learn and play as a regular part of their daily activities
· Create physical and cultural conditions that are welcoming to visitors and encourage their participation in waterfront places and activities

2. Respect history, cultures and the arts.
· Embrace, include and expand knowledge of our peoples and their cultural heritage

3. Make the waterfront inviting to people on foot.

4. Reinforce a unique “sense of place” at different waterfront locations.
· Support development of a vibrant area that integrates water-dependent uses with new commercial, institutional, educational, and residential uses and public spaces

5. Complement adjacent uses.
· Create an urban mixed-use neighborhood that will complement downtown

Restore the Health of Land & Water

1. Enhance or reintroduce natural systems.

2. Create and restore habitat wherever possible.

3. Remediate upland and in-water contamination.

4. Protect existing natural shorelines.

5. Seek opportunities to soften existing hardened shorelines.

6. Tailor environmental cleanup strategies and remediation to planned use.

7. Manage stormwater to enhance estuarine habitats. · Treated or otherwise, assure the quality of stormwater used to enhance estuarine habitats.

8. Require sustainable practices in all development.
· Avoid “heat island” effect by utilizing high reflective roofing materials and vegetated roof systems
· Make use of on-site renewable energy such as solar and day-lighting, to satisfy the building’s energy needs
· Incorporate Leadership in Energy & Environmental Design (leed) intentions and requirements in design and construction of new structures

9. Restore, enhance and expand beaches wherever possible.

10. Connect proposed open space and natural areas to regional open space network and natural wildlife corridors.

11. Explore mitigation banking and incentives (such as environmental credits) for environmental resource protection and enhancement prior to redevelopment.

Improve Waterfront Access

1. Develop strong connections between uplands and water.
· Utilize existing streets to make pedestrian and vehicle connections to and from adjacent districts and neighborhoods
· Identify areas where pedestrian access is provided when not in use for commercial/industrial purposes
· Provide transient moorage with easy access from water to upland services

2. Provide links to regional trail systems.

3. Provide multiple modes of access to each area of the waterfront.
· Create and establish circulation routes
· Preserve transportation corridor on railroad right-of-way
· Cluster shared parking away from the water

4. Provide convenient connections between different modes of transportation (jitney/bus).

5. Create and connect large and small parks and open spaces with a “braided” system of pedestrian trails.
· Create water-oriented parks and open spaces
· Connect parks and open spaces with walkways and bikeways through the City Center neighborhood

6. Enhance opportunities for visual access to waterfront areas.
· Preserve, improve and create public views to and from the waterfront

7. Provide the opportunity to walk the waterfront while respecting natural habitat.
· Provide viewing that respects industrial activity areas

8. Help people find their way.

9. Provide way finding for the Coast Millennium Trail as a route that follows existing and proposed trails.

10. Explore the concept of public access “banking” and other financing incentives for improving public access.

11. Protect and enhance shoreline environmental resources when designing for shoreline access and upland development.

Promote a Healthy & Dynamic Waterfront Economy

1. Create new mixed-use areas on the waterfront for commercial, industrial, educational, recreational and residential uses.
· Encourage reuse and renovation of existing buildings
· Identify, preserve and locate sites for water-dependent uses
· Complement existing downtown area with waterfront redevelopment
· Support water-dependent activities and uses
· Retain deep water moorage and entitlement

2. Support water-dependent activities and uses.

3. Create conditions attractive to jobs of the future.
· Create a vision for desired businesses and educational facilities

4. Strengthen the tie between local jobs and resources.
· Encourage and promote fisheries and ocean-related research industries and facilities
· Encourage a range of development and businesses that foster apprenticeships and other educational and training opportunities

5. Provide public amenities and infrastructure to support redevelopment.

6. Improve permitting processes to achieve the goals and principles of the Waterfront Vision.
· Promote a “business incubator” model with access to development resources
· Create flexible zoning in the City Center

7. Explore economic spin-off related to Bellingham Bay Pilot cleanup strategies.

8. Provide incentives and credits for “green” buildings.

Waterfront Vision & Framework Plan
CITY CENTER RECOMMENDATIONS

Future Uses

· When the Georgic Pacific tissue plant closes, use the site of the tissue warehouse for a combination of public uses which could include neighborhood gathering places, community facilities, sites for dry stack boat storage and support facilities for a new marina at the asb site.

· Provide sites for water-dependent uses along both the I & J Waterway and the Whatcom Creek Waterway on either side of the asb peninsula.

· Create beach areas with small parking lots on either side of the asb site and at the end of Wharf Street adjacent to the Cornwall Landfill.

· Relocate rail road tracks from the Georgic Pacific siteto the base of the bluff.

· To cluster shared parking away from the water, consider locating public parking to buffer development areas from the railroad and the Co-Gen plant.

Future Development

· Provide a site for Western Washington University expansion at the foot of Pine Street and the water’s edge.

· Provide for a range of education and research facilities.

· Retain sufficient water depth in I & J and Whatcom waterways to support existing and future water-related uses.

· Create a public renewal authority or use other methods to develop a plan for the City Center area and to coordinate its implementation.

· Purchase the Georgia Pacific site and put it in public ownership to assure that the long term community interest is served.

· Create expedited review and permitting procedures for redevelopment that is consistent with an adopted renewal plan.

· Provide a location for a potential terraquarium as well as other potential cultural facilities.

· Provide an enhanced beach at the north end of the site, and locations for a potential terraquarium as well as a potential Native American cultural facility.

· Coordinate with the Economic Development Council to publicize local resources and maximize use of locally based contractors.

· Accommodate mixed-use development on uplands adjacent to Cornwall Avenue landfill site.

· Along Whatcom Waterway water-related commercial/ industrial development may incorporate some residential components.

Natural Systems & Environmental Cleanup

· Clean up contamination outside of the asb on the bay side.

· Remove all contaminated sediment from the ASB and reconnect with Bellingham Bay.

· Examine implications of leaving the Whatcom Waterway sediment in place.

· Remove creosote piles from intertidal and subtidal areas near RG Haley site.

· Protect habitat enhancements at the log pond site and extend habitat and beach enhancement into upland areas.

· Cap the Cornwall Avenue landfill and provide marine habitat enhancement and a new public open space along the water for the length of the site.

· Examine contamination levels to help shape renewal master plan and then tailor remediation to planned use.

· Restore beaches where possible.

· Investigate opportunities for stormwater treatment and creation of marsh habitat using treated stormwater at outfalls and adjacent to open space areas.

Culture & History

· Collaborate with Native American neighbors.

· Preserve the train depot building off Holly Street.

Water Connections

· Provide transient moorage adjacent to Central Avenue on the south side of the Whatcom Waterway and on the west side of Whatcom Waterway while avoiding critical habitat areas. Habitat enhancement will be a condition of this new transient moorage provision.

· Locate transient moorage east of shipping terminal pier.

· Provide water jitney stops at Whatcom Creek Waterway adjacent to Central and Roeder Avenues and on the east side of the shipping terminal pier.

· Provide hand-carry boat landings on either side of the asb peninsula and at the Cornwall Avenue landfill.

· Remove the sewer pipe under Roeder Avenue Bridge which blocks wate-side access to Whatcom Creek estuary.

Vehicular Connections

· Maintain truck access to the shipping terminal.

· Change Chestnut Street to two-way.

· Maintain Cornwall Avenue and Wharf Street and extend Commercial Avenue and Laurel Street as auto access routes to the City Center waterfront.

· Extend Commercial Street over the railroad to an intersection with an extended Laurel Street.

· Extend Laurel Street over the bluff and relocated railroad to intersect with an extended Commercial Street.

· Design the Commercial Street extension to retain a view of Mount Baker Theatre from the Laurel/Commercial Street intersection.

Pedestrian Connections

· Provide a site for Western Washington University expansion at the foot of Pine Street and the water’s edge.

· Add a vertical connection at the south end of the Cornwall Landfill over the railroad and up the hill.

· Establish an over-water pathway from the Cornwall Landfill to Boulevard Park.

· Connect new pedestrian routes through the City Center waterfront to regional trail systems and provide streetscape improvements conducive to year-round pedestrian use.

· Provide pedestrian routes along the extended rights-ofway of F, C, Central, Commercial and Pine streets.

· Develop safe connections over railroad tracks.

· Provide for direct access to Western Washington University including an on the ground or surface hill climb assist/corridor connection up Pine Street.

Parks & Public Space

· Create a system of connected public open spaces between the Whatcom Waterway and the south end of the Cornwall Avenue landfill.

· Develop public open spaces along the waterfront.

· Create a public gathering space adjacent to the shipping terminal while retaining its availability for vessel staging.

· Provide an enhanced beach south of the shipping terminal at the base of Pine Street and Cornwall.

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Attachment A [A suggested rephrase of CW 11 Strategic Guideline's]
Note: "Waterfront Redevelopment" [WR] substituted for "New Whatcom"

1. Waterfront Redevelopment [WR] requires multiple strategic partnerships to realize its true potential.

2. WR goal should be to become a recognized model for environmental stewardship.

3. WR must carefully integrate with its surroundings and utilize natural access corridors to best advantage.

4. WR must provide extensive water access and connect with Bellingham's maritime history.

5. Bellingham should use WR to expend its viability and attractiveness for residents, employers and visitors.

*6. WR needs to use Transportation Oriented Development {TOD] principles to insure access, walkability and neighborhood friendliness to adjacent areas.

*7. WR needs very careful attention to integrating multi-modal circulation, safety and efficiency.

8. WR must take timely advantage of opportunities as they arise, while retaining fidelity to the long-term goals recommended by WFG.

9. Public interests must be carefully considered during WR.

10. WR deserves extended focus as our area's primary economic development project.

11. WR must preserve and enhance existing systems of public amenities, focused on the Bay and its tributaries.

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Attachment B [Another suggested rewrite of Strategic Guideline's from WFG info]
Note: "Waterfront Redevelopment" substituted for "New Whatcom"

1. WR's main goal is to create jobs & concurrently develop stronger, more sustainable revenue streams for Bellingham & the Port.

2. WR should emphasize traditional waterfront-dependent uses as its priority focus.

3. WR needs to preserve & enhance the area's local character and history.

4. WR must provide extensive, diversified public access & open space to the waterfront throughout its area.

5. WR should occur with concurrent accessibility for freight & services, using TOD requirements and provision for safe pedestrian/bicycle travel.

6. WR must exemplify the highest practicable standards in cleaning up pollution from the past.

7. WR should use care in preserving the environment for the future, including the use of sustainable materials and renewable energy sources, as well as regulatory protections for shorelines and stormwater runoff.

8. WR needs to provide for housing commensurate with the diverse income levels anticipated from workers in the area.

9. WR should connect with adjacent neighborhoods in a manner complimentary to each districts distinctive character, taking care to preserve traditional values.

10. WR should encourage environmentally friendly institutions, paying living wages, such as WWU and other non-seasonal tenants, to locate facilities there.

11. WR needs to maintain active public oversight throughout its duration to achieve the WFG vision intended, and recognize that this is helped by retaining public ownership.