Falls City, OR Parks Assessment

Parks & Recreation Needs Assessment

Falls City, Oregon

June 2014

Portland State University

2| Brian Gunn, Kara Srnka, Kate Washington | June 2014| USP 531| Portland State University

ACKNOWLEDGEMENTS

Mid-Willamette Valley Council of Governments

Suzanne Dufner, Community Development Director

City of Falls City

Amber Mathiesen, City Manager

Portland State University

Yiping Fang, Assistant Professor

Report prepared by:

Brian Gunn – 2015 MURP Candidate

Kara Srnka – 2016 MURP Candidate

Kate Washington – 2015 MURP Candidate


Table of Contents

Introduction 4 Executive Summary 5 Falls City Profile 6 Data Preparation Summary 10 Methodology 11 Conclusions 13 User Perspectives 13 Recommendations 15

Figures and Tables

Figure 1. Age Distribution 7 Figure 2. Potential Park Areas 14 Table 1. Population Trends 6 Table 2. Housing Trends 8 Table 3. Median Household Income and Poverty Rate 8 Table 4. Data Used for GIS Analysis 10

Appendices

Appendix A. Comprehensive Plan Parks Inventory 17 Appendix B. Zoning Map 18 Appendix C. Public Lands Map 19 Appendix D. Surrounding Public Lands Map Appendix E. Quarter and Half Mile Public and PAI Lands Map Appendix F. Existing Conditions Map Appendix G. Southwest Corner Quarter Mile Buffer Map Appendix H. Aggregations of Analysis: Possible Park Locations Map

20 21 22 23 24


INTRODUCTION

Planning Mandate for Parks and Recreation

The Willamette Valley is home to a number of small, growing communities. Planning for adequate parks

and recreation facilities is important for preserving the high quality of life valued by residents of these

areas. Unfortunately providing adequate facilities is a challenge for many small communities. Lack of

resources, both staff and funding, limits many communities’ ability to develop and maintain their open

spaces. Identifying system priorities and matching them with available resources requires careful

planning and is useful when preparing a master parks plan that will guide development and justify the

associated fees.

Parks provide a variety of resources and opportunities for communities. These include passive and

active recreation, conservation of open space, and preserving historic, cultural, and natural resources. In

addition, parks may serve as informal meeting places in a community, creating more opportunities to

foster a sense of cohesiveness.

Local governments prepare and adopt local parks master plans pursuant to Statewide Planning Goal 8:

Recreation Needs and Oregon Administrative Rule (OAR) 660-034-0040. These plans may be integrated

with local comprehensive land use plans. Parks master plans provide a community with direction in

developing further parks, making improvements to existing parks, and assist in the creation and

adoption of Parks System Development Charges or requirements for land donations for the provision of

future parks.

Statewide Planning Goal 8 gives the following guidelines for developing parks master plans:

1. Create an inventory of recreations needs

2. Create an inventory of recreation opportunities

3. Coordinate with all regulatory agencies and with private interests

4. Design recreation opportunities that accommodate multiple uses

5. Refer to the State Comprehensive Outdoor Recreation Plan (SCORP) for advice

6. Prefer non-motorized activities over motorized activities

7. Prioritize high density areas, be sensitive to all mobility and financial limitations, conserve

resources, preserve the environment, meet the needs of visitors

8. Identify and acquire unique areas capable of meeting multiple needs

9. Prioritize public waters and shore lands as potential recreation opportunities

10. Do not exceed the carrying capacity of the air, land, and water resources in the area

Project Context

This report is the result of a project carried out by graduate students at Portland State University. They

were tasked with creating a city profile and inventory of existing parks and recreation facilities in order

to identify current and future recreation needs for Falls City.


EXECUTIVE SUMMARY

Falls City, Oregon is a small, rural city about 1.5 hours southwest of Portland, between Salem and

Lincoln City. The nearest large city is Salem and Dallas is a nearer, middle-sized city. Falls City is home to

1,089 people who live on 1.2 square miles of land, surrounded by forest-covered hills. Falls City is split in

the middle by the Little Luckiamute River that runs approximately east-west through town. Centrally

located in the town are the dramatic falls for which the city is named.

Falls City already more than adequately provides open spaces, parks, nature areas, and recreation

facilities for its residents. Even with its projected growth, it will not need to add more parks in order to

meet the Oregon SCORP service standards. However, future development in the southwest corner

would put new homes outside a half mile radius of the existing parks. Additionally, Falls City is in a

unique position to capitalize on the local mountain biking economy if it can make itself attractive to

mountain bikers.

After evaluation of demographic data, analysis of maps, and conversation with city representatives, we

make the following recommendations:

Invest in existing parks.

Falls City already has more than adequate open space for its residents and future population. Its open

space provides a variety of recreation opportunities such as fishing, swimming, picnicking, and sports.

However, the parks in the heart of town, along the Luckiamute River, should be prioritized for

infrastructural improvements to create more inviting spaces that serve multiple uses. Memorial Park

might be preserved as a more natural area and Riverside Park might be converted into a more civic area.

Improve connectivity.

Falls City is fortunate to have so much access to parks within walking distance of most homes. It is likely

many people make their way to the central parks on foot or by bike, but in order to discourage the need

to drive and in order to encourage a healthy, multi-modal lifestyle, connections to these parks and

beyond the city limits can be made even more appealing.

Acquire and preserve future open spaces.

When it comes time for Falls City to update its urban growth boundary, acquire flatter land beyond the

current southwest boundary in order to set it aside as open space for future development.

Create a mountain bike destination.

Due to its close proximity to the Black Rock mountain biking area, Falls City has a unique opportunity to

not only connect its residents to more recreation opportunities, but also, potentially, to capturing

revenue from the mountain bike economy around Black Rock.


CITY PROFILE

Falls City

Falls City is a small, rural town occupying 1.2 square miles in the center of Polk County, Oregon. The city

once supported a large regional logging population with three mills, a few grocery stores and various

shops and services to meet the daily needs of the community. The city is named for the striking Little

Luckiamute Falls at the heart of town. Residents enjoy the natural resources in and around the city and

value the quality of life that goes with small town living. Falls City often hosts mountain bikers who

come to the area to enjoy the Black Rock mountain biking facility a few miles west of town.

Population

According to the 2008-2012 American Community Survey estimate, Falls City has a total population of

1,089, an increase of 142 people since the 2010 Census. This population lives in 383 households with an

average of about three people per household. Falls City is a predominantly white (91.5%) community

that is primarily middle-aged (45 to 64 years old) (31.8%). While Falls City is slightly less diverse than

that of both Polk County and Oregon, increased diversity should be expected and accounted for as a

product of projected population growth in the area.

Falls City experienced population growth between 1990 and 2000 with an average annual growth rate

(AAGR) of 1.8%. However, between 2000 and 2010, while the county and state experienced growth, the

city’s population declined slightly at an AAGR of -0.2%. (Table 1) Despite the recent downturn in

population growth, Falls City is expected to grow along with Polk County for the foreseeable future.

Polk County as a whole is expected to nearly double its population by 2030, with some of that

population growth anticipated in Falls City. The City is expected to attract older residents and retirees

due to its rural charm and proximity to Salem and the larger cities in the region. The city has the

potential to attract younger adult age groups that appreciate a small town setting with plenty of natural

and recreational facilities.

Table 1: Population Trends for Falls City, OR.

Year Falls City AAGR Polk County AAGR Oregon AAGR 1990 818 49,541 2,842,23

1

2000 966 1.8% 62,380 2.5% 3,421,399

2.0%

2010 947 -.2% 75,403 2.0% 3,831,074

1.2%

2020 1,195 2.6% 95,594 2.6% 4,260,393

1.1%

2030 1,352 1.3% 117,557 2.3% 4,833,918

1.3%

% Change 2008-2040 40% 72% AAGR 1996-2020 1.5% 2.5%

Source: U.S. Census Bureau, 2006-2010 American Community Survey and 1990, 2000 & 2010 U.S. Decennial Census


Falls City’s predominantly middle-aged (31.8%) population demonstrates both the city’s aging

population and its attractiveness to older people. People over the age of 65 years old make up 16.3% of

the population and children under 18 comprise 22.9%. The typical child-rearing aged group (29%) may

add to the population, therefore, it is important to design recreation facilities that can be used by all

ages, from toddler to senior. (Figure 1)

Housing

Housing trends are an important factor in parks planning in that different types of ownership and

occupancy require different facilities. Those in rentals, namely multi-family, are less likely to have

private yards and therefore require adequate public space to fill the void. This data is also incredibly

useful for anticipating potential revenue from property taxes, systems development fees, etc. In Falls

City, 82% of residents own their homes. (Table 2) With such a large share of owner-occupied housing,

Falls City can safely anticipate a steady revenue stream for parks planning. The rate at which housing is

built gives insight into the demand for housing and an indication of growth in the area. Considering

there has been an average of approximately 30 structures built every ten years since 1940, 31 (13%) of

the newest 240 structures added in the past decade, it is evident that while growth is small, it is present.

(Table 2)

Figure 1: Age Distribution in Oregon, Polk County and Falls City.

Source: U.S. Census Bureau, 2010 U.S. Decennial Census.

0%

5%

10%

15%

20%

25%

30%

35%

40%

Younger Than 18 18-44 45-64 65+

Per

cen

tage

of

the

Po

pu

lati

on

Age Group (years)

Oregon Polk County, OR Falls City, OR


Economic Context

While Falls City’s median household income ($40,083) certainly falls below both Polk County ($50,975)

and Oregon ($49,260), as a whole, residents have experienced a 23% increase in income from 2000 to

2010. This is promising, and demonstrates rising potential tax base for Falls City. Surprisingly, as incomes

increased, so did the poverty rate. Poverty for people under the age of 18 increased by 12.4% between

2000 and 2010; for the population over 18, there has been slightly more than a 4% increase. Poverty has

increased in both Polk County and Oregon as well, although not nearly as much (Table 3). This tells us

that the improvements are primarily happening for the higher incomes, which is seen nationally. As a

result, the City should expect to create park spaces that can accommodate people who have less ability

to spend money on recreation.

Applicable Documents

In accordance with Oregon’s Statewide Planning Goals 5 and 8, the Comprehensive Outdoor Recreation

Plan (SCORP), outlines guidelines for the state and for other communities wishing to create a parks

master plan. Some of these concepts are reflected in Falls City’s comprehensive plan.

Section I of the Falls City Comprehensive Plan responds to Goal 5: To protect natural resources, scenic

and historic areas, and open spaces. This section provides an inventory of Falls City’s resources. Of note,

Table 2: Housing Trends for Falls City, OR.

Tenure Falls City

Polk County Oregon

Own 82.0% 66.2% 62.2% Average household size 2.49 2.62 2.53

Rent 18.0% 33.8% 37.8% Average household size 3.03 2.55 2.36

Construction # of Bldgs.

% of total

Before 1940 193 44.5% 1949-2004 209 48.3% 2005-2014 31 7.2%

Total 433 100% Source: U.S. Census Bureau, 2006-2010 American Community Survey and 2010 U.S. Decennial Census

Table 3: Median Household Income and Poverty Rate for Falls City, OR.

Income Falls City Polk County Oregon 2000 $32,461 % Change $42,311 % Change $40,916 % Change 2010 $40,083 23.5% $50,975 20.5% $49,260 20.4%

Poverty 2000 16.8% 12.6% 13.0% 2010 25.1% 49% 15.0% 19.0% 16.0% 23.0%

Source: U.S. Census Bureau, 2000 and 2010 U.S. Decennial Census


the plan classifies Riverside Park and the Little Luckiamute River “and its resource” as both Class I and II

Scenic resources. This means the City has to retain and preserve the visual quality of the river. As part of

the inventory, this section lists and describes Falls City’s three city parks: Riverside Park, Michael S.

Harding Park, and Upper Park (see Appendix A).

Section II: Goals & Policies outlines four policies for the City’s public and semi-public land:

1. Encourage cooperation and collaboration between the school district, Polk County, and various

state agencies and the City of Falls City

2. Require adequate park, open space and rights of way in residential and commercial

developments

3. Encourage preservation of stream corridors to maintain a buffer from the creeks and the Little

Luckiamute River in the city to allow an area for storm water management and to maintain the

benefits of the vegetative riparian habitat

4. Encourage open spaces and recreation facilities for leisure time needs of residents and visitor


DATA PREPARATION SUMMARY

Polk County’s website (http://www.co.polk.or.us) provided a majority of the data utilized for this

analysis. City limits and zoning data were provided by Falls City (Table 4). At first glance, the city limits

and urban growth boundary provided by Polk County appeared identical. The Mid-Willamette Council of

Governments confirmed this was accurate. Also, there was a discrepancy with the zoning shapefile

(published in 2009). This file indicated that there was a “split zone” located in the southwest portion of

the city. The existing zoning map (also published in 2009) marked these zones as either residential or

forestry. To determine the implications of a “split zone,” we performed an in-depth desk study,

determining there are no records of split zoning in Falls City. The lack of a “split zone” was confirmed by

a city official. Consequently, the shapefile was edited to reflect the existing zoning map.

The United States Geological Survey (nationalmap.gov) provided digital elevation models (DEMs). Four

DEM files, derived from the Central Coast and Willamette Valley regions, were utilized to encompass

Falls City. In GIS, we used raster tools to mosaic the four DEMs into one raster file. This file was then

projected (North Oregon State Plane) and converted from meters to feet. To conduct this conversion,

we used the raster calculator with a multiplier of 3.28084. Using the GIS raster clip tool, we clipped the

mosaic within three miles of the city limits. The DEM to slope tool then created a slope raster in percent

rise. The raster was reclassified in order to convert it to a polygon. This created four slope classes: less

than 10%, 10% to 20%, 20% to 25%, and more than 25%.

Lastly, U.S. Department of Fish and Wildlife provided wetland data. More specifically, the National

Wetlands Inventory (www.fws.gov/wetlands). This data remained unchanged.

Table 4: Data used for the 2014 Falls City Parks & Recreation Need Assessment, by Name, Source, and Year last Updated.

File Name Source Updated (year)

City Limit Falls City 2009 City Zoning Falls City 2009 County Zoning Polk County Online 2006 Urban Growth Boundary Polk County Online 2014 Tax Lot (Parcels) Polk County Online 2014 Roads Polk County Online 2014 Waterways Polk County Online 2014 Water bodies Polk County Online 2014 Wetlands U.S. Department of Fish and Wildlife Online 2014 Flood plain Polk County Online 2014 Digital Elevation Models- Central Coast U.S. Geological Survey Online 2011 Digital Elevation Models- Willamette Valley U.S. Geological Survey Online 2009


METHODOLOGY

Data

We used Social Explorer to download demographic and economic data about Falls City. Data sources

include the 1990, 2000, and 2010 Decennial Census and the 2006-2010 American Community Survey 4-

Year Estimate. We initially pulled a great deal of data to get a large picture of Falls City, but narrowed

the topics we found relevant to parks provision: population trends, housing trends, and income trends.

Population growth projections help the City understand how the population has changed, which may be

linked to how parks have been used in the past. Population projections indicate how many people the

City will need to provide for in the future and help the City calculate its service minimums according to

the SCORP standards.

Housing trends are another way to explore growth in Falls City. Tenurship is the breakdown of housing

units to owners and renters. This is important to understand because owners and renters often have

different needs for open space, depending what kind of land is included in a rental. Quantifying home

ownership helps the City anticipate a tax base that can support parks improvements. Further, evaluating

household size and the number of homes built helps the City calculate how many people per acre are

added and how much land to allot for future growth.

Finally, examining income gives the City an idea of how many people in Falls City can afford various

types of recreation, including travel outside city limits to nearby recreation facilities and open spaces.

Maps

We utilized GIS to create a series of maps in order to examine Falls City’s current and potential open

space opportunities. We approached this in a methodical way, in order to illustrate each step taken so

that Falls City officials can replicate our approach if necessary. Firstly, to provide an overview of Falls

City context, we created a zoning map (Appendix B), then assembled an overview of public lands located

within city limits (Appendix C). We then broadened our scope to the larger region because there are

surrounding Polk County lands (i.e. Gerlinger Park, Camp Tapawingo, and Black Rock) that offer

residents additional, nearby amenities. These lands also represent a potential for economic growth

(Appendix D).

Utilizing the Fall City public lands map, we created quarter and half mile buffers to discover whether any

residential neighborhoods lacked access to parks and other public spaces (Appendix E). We used public

lands, rather than residential areas, as the epicenters of these buffers because a majority of Falls City is

residential and the public land buffers better illustrate residential areas lacking parks (outside the

buffer). The buffer map reveals that the southwest corner of Falls City does not have quarter mile access

to parks and, therefore, is an ideal area for potential parks. Though this section of the city has

significantly less residential development than the rest of the city and is designated as forestry

(Appendix B), we proceeded as if a majority of development and growth will occur within this region, as

there is little space elsewhere in the city.

To ensure that our proposed park locations are in safe areas, we then evaluated the existing conditions

(i.e. waterways, floodplains, and slopes) (Appendix F). Slopes of 25% or more were included on the map,

as the Falls City Municipal Code classifies such slopes as having “severe development limitations.” Next,


a quarter mile buffer was placed around the southwest corner of the city (Appendix G) and taxlots

within or touching this buffer were selected to determine whether they were appropriate sites for open

spaces. We then added these taxlots to the existing conditions map to determine whether they met our

criteria as follows (Appendix H):

1. Have slopes less than 25%

2. Are not located within a flood plain

3. Could be reached by an existing road

4. Are within close proximity to residential development.

Rather than exclude several specific taxlots, we chose to provide general areas (Figure 2). To do so, we

used the GIS dissolve tool to eliminate the inner boundaries of taxlots that met the above criteria, thusly

recommending larger areas to work within. Additionally, we included a site located within the city’s

northwest corner; this site was outside the quarter mile buffer surrounding the southwest corner of the

city. Conversation with a city official indicates that this site, a covered landfill, could potentially

accommodate another recreation facility.

Interviews

We connected with Amber Mathiesen, the City Administrator for Falls City. Ms. Mathiesen made herself

available through email for questions and to provide additional information. She made herself available

for a phone interview early in the process. Ms. Mathieson shared valuable information about the

existing conditions and culture in Falls City as well as the City’s limitations and hopes for the future.

Suzanne Dufner is the Community Development Coordinator for the Mid-Willamette Valley Council of

Governments. Ms. Dufner visited our class to introduce the project and field initial questions. She also

returned to our class to see preliminary presentations, answer further questions, and give feedback. Ms.

Dufner made herself available throughout the process via email.


CONCLUSIONS

Falls City is fortunate to have a great deal of open space. Most housing is single-family on a lot, providing

abundant lawns for access to nature. Further, the City has three large parks, one pocket park, two

school fields, and two church yards where residents can enjoy their leisure and recreation time. Further,

mobile residents of Falls City have access to a county park, a mountain bike facility, and a private camp

within a few miles of the city.

Oregon’s SCORP document suggests a minimum of 6.25 to 12.5 acres of park land for every 1,000

residents. Totaling only the three city parks, Falls City provides 12.34 acres for 1,089 people. This is well

within the range of the recommended minimums. With a projected average annual growth rate of 1.5%,

Falls City can expect to add approximately 16 people per year, meaning that by 2030, the predicted

population will be 1,352 (Table 1). Even if Falls City did not increase its supply of parkland, it would still

meet the SCORP’s recommended service minimums.

However, if Falls City develops the southwest corner of its city limits (Figure 2), some of the population

would be outside a half mile radius of public open space. Our map analysis concluded that the

southwest portion of the city lacks access to parks, which is further exacerbated by incomplete street

connectivity and slopes greater than 25%. These same slopes present a hindrance for park development.

Properties located within Falls City’s southwest region, but outside city limits, are less sloped and if the

City can acquire them, they may be appropriate for supplying public open spaces to the southwest

corner of Falls City.

Falls City’s population includes all age groups, but is predominantly middle aged. It is likely these middle

aged residents will age in place, creating a need for open space that is very accessible to people with

varying abilities and mobilities. A common planning adage is that if you plan for the oldest and youngest

people in your population, you’ll create spaces that are suitable for all age groups. Falls City has a strong

homeowner base, indicating a steady tax revenue source. Economically, Falls City is experiencing an

increase in income as well as a smaller increase in poverty. The City may be able to capitalize on the

additional wealth in order to provide quality recreation facilities for residents of all incomes.


Figure 2: Potential Park Areas for the City of Falls City.


RECOMMENDATIONS

In light of these findings, we propose the following recommendations:

Invest in existing parks.

Falls City already has more than adequate open space for its residents and future population. Its open

space provides a variety of recreation opportunities such as fishing, swimming, picnicking, and sports.

However, the parks in the heart of town, along the Luckiamute River, should be prioritized for

infrastructural improvements to create more inviting spaces that serve multiple uses. Memorial Park

might be preserved as a more natural area and Riverside Park might be converted into a more civic area.

Convert part of Riverside Park into a plaza-like setting to create a more formal community

gathering space for events such as evening concerts or weekend markets.

Trails accessing Memorial Park can be completed and made ADA accessible to ensure people of

all ages have access to the falls.

Set aside a portion of Riverside Park to install a skate park to create space where younger

people know they are welcome.

Improve connectivity.

Falls City is fortunate to have so much access to parks within walking distance of most homes. It is likely

many people make their way to the central parks on foot or by bike, but in order to discourage the need

to drive and in order to encourage a healthy, multi-modal lifestyle, connections to these parks and

beyond the city limits can be made even more appealing.

Identify at least one street route from the south and from the north leading to both central

parks and make improvements to ensure pedestrian and bicycle safety.

Provide bike storage at parks where people can safety stow their bicycles while playing.

Acquire the railroad right of ways through town and outside town to undergo a Rails to Trails

project that can link residents and visitors to destinations within and beyond Falls City.

Acquire and preserve future open spaces.

When it comes time for Falls City to update its urban growth boundary, acquire flatter land beyond the

current southwest boundary in order to set it aside as open space for future development.

Begin exploring this option now in order to be prepared when the next UGB update happens.

Create a mountain bike destination.

Due to its close proximity to the Black Rock mountain biking area, Falls City has a unique opportunity to

not only connect its residents to more recreation opportunities, but also, potentially, to capturing

revenue from the mountain bike economy around Black Rock.

Convert the old landfill into a campground that is designed to serve mountain bikers who visit

the area.


Facilitate a conversation between the Greater Oakridge Area Trail Stewards (GOATS) and the

Blackrock Mountain Biking Association (BRMBA) to garner lessons learned and develop a

strategy to negotiate with Weyerhauser for better access to Black Rock.


APPENDIX A

Parks Inventory from Falls City Comprehensive Plan, Section I, page 10

Fay Wilson Memorial Park (Riverside Park or Lower Park) is a tree shaded 2.24-acre (0.91 hectare) area

adjacent to the south bank of the Little Luckiamute River near the City center. Its facilities include a

tennis court, barbecue grill, playground equipment, and picnic tables. Easy access to the river makes it a

very desirable spot for fishing. Evening activities can be accommodated due to the availability of

electrical connections. Michael S. Harding

Michael S. Harding Memorial Park (South Falls Park) is a .50-acre (.20 hectare) area adjacent to the

south side of the river about a quarter of a mile from the City center. Its main attraction is a close-up

view of the falls for which the City is named.

George Kitchen Memorial Park (Upper Park) is a 9.60-acre (3.88 hectare) area abutting the City's

northern boundary in the northwest section. It is the largest of the City parks and offers a wide array of

recreational activities. Picnic tables, grills, playground equipment, and a covered entertainment platform

are intermingled among towering Douglas fir trees that dominate the park’s landscape. Electrical

connections make this park a popular site for night activities. Also, a 2.00-acre (0.81 hectare) baseball

field equipped with a diamond and dugouts adjoins the park to the north.

Although not within the City limits, mention should be made of George Gerlinger State Park. This 3.3-

acre (1.34 hectare) area is 1.5 miles (2.4 km) from the western edge of the City on the south side of the

Little Luckiamute River. Swimming and fishing are popular at the park as is hiking on any of the scenic

trails that lead upstream and downstream.

Additional Open Spaces

The Erma Fergusson Pocket Park is a small, bus station-sized curbside park on the corner of 1st and

North Main Street. It contains a bench and a concrete pad imprinted with an accurate compass rose.

Falls City’s elementary and high school fields are wide open public spaces centrally located in the north

half of Falls City on Prospect Avenue that are used by school children during the week and open to the

public at other times.

Church yards are public assembly institutional lands. Falls City has two: First Christian Church and

Seventh Day Adventist Church.


APPENDIX B


APPENDIX C


APPENDIX D


APPENDIX E


APPENDIX F


APPENDIX G


APPENDIX H

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