White Rock Center Master Plan/ Economic Development Strategy pot

PRE P ARE D B Y
I N
C ONJU N C T ION WIT H
Economic & Planning Systems, Inc.
Robert Peccia & Associates
Economic Development Strategy
White Rock Center Master Plan/
JUNE
VOLUME 2:
APPENDICES
2008

appendix a: Case study Communities
Prepared by MIG, Inc.
February 2008
a-1

appendix b: market analysis
Prepared by Economic & Planning Systems, Inc.
January 2008
b-1

TABLE OF CONTENTS
OAKRIDGE, TENNESSEE A-4
SISTERS, OREGON A-8
CORTEZ, COLORADO A-12
SQUAMISH, BRITISH COLUMBIA A-15
CONCLUSION A-19
LIST OF TABLES
TABLE A.1 DEMOGRAPHIC COMPARISON - OAKRIDGE, TN A-5
TABLE A.2 DEMOGRAPHIC COMPARISON - SISTERS, OR A-9

TABLE A.3 DEMOGRAPHIC COMPARISON - CORTEZ, CO A-13
TABLE A.1 DEMOGRAPHIC COMPARISON - SQUAMISH, BC A-16
appendix a: case study communities
APPENDIX A: CASE STUDY COMMUNITIES | A-1

AS THE WHITE ROCK CENTER MASTER PLAN/ECONOMIC DEVELOPMENT
STRATEGY moves forward to implementation, examples from other communi-
ties that share similar circumstances and struggles can be useful in determining
specific strategies. White Rock is a unique place, but the consultant team has
identified four communities in North America that White Rock can look to for
inspiration:
Oak Ridge, Tennessee; •
Sisters, Oregon; •
Cortez, Colorado; and •
Squamish, British Columbia. •
This appendix provides demographic information for these four areas, as
well as detailed information on paths to revitalization that these communities
chose.
introduction
APPENDIX A: CASE STUDY COMMUNITIES | A-3
oak ridge, tennessee
Community Overview
Like White Rock, Oak Ridge, Tennessee experienced tremendous growth dur-
ing World War II when it was chosen by the federal government as a research
lab for the Manhattan Project. Characteristics including Oak Ridge’s remote-
ness, the town’s available infrastructure and its valley topography made the site
ideal for the establishment of the Oak Ridge National Laboratory. Laboratory
and housing facilities were quickly built, and employees, their families and a
range of services soon flooded the area. Today, the Department of Energy lab
remains the area’s primary employer, which contributes to a large daily com-

muter population. Oak Ridge’s residents are of a similar age and education
levels to White Rock’s but have a lower median income and house value. Both
the median income and house value are nearly half of those found in White
Rock. This could relate to the less specialized nature of work occurring at this
lab and to the area’s larger population and land area. Oak Ridge, which covers
around 85 square miles compared with White Rock’s seven square miles, has a
population of nearly 30,000 compared with approximately 6,000 in White Rock
and 20,000 in Los Alamos County.
Oak Ridge has capitalized on its cold war heritage by building the American
Museum of Science and Industry. In addition, the Department of Energy has
opened the Oak Ridge National Laboratory to limited access public tours
during the summer months. The extremely popular public tours have a long
waiting list of interested participants. The American Museum of Science and
Industry accommodates visitors to the region who are interested in its scientific
history, but who cannot participate in the National Laboratory’s summer tours.
Economic Redevelopment Strategies
Oak Ridge has begun several efforts to attract investment and ensure imple-
mentation of the community’s vision. These efforts are a combination of
community input, private investment, and Department of Energy programs.
Community input drove the development of the 2001 City Center Master Plan,
which was intended to serve as a conceptual and practical guide to future de-
velopment. A major component of this plan was to increase city center density,
increasing public open space (including roads and walkways) while decreasing
the retail supply. The Oak Ridge Mall, an obsolete structure, would be “de-
Brian Stansberry
A-4 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
oak ridge, tennessee
malled,” creating a town center-style retail environment, eliminating 40% of the
structure’s space and opening up the area to attract more shoppers. This type
of development reflects one of the elements of White Rock’s preferred devel-

opment scenario: the mixed-use Town Center suggested for the A-19 site. (As
of this writing, the Oak Ridge plan has stalled, due to confusion and negotia-
tions regarding placement of an additional strip mall—in an area that was origi-
nally zoned industrial—instead of redevelopment of the Oak Ridge Mall. The
private developer involved has stated his intentions to proceed with revamping
the mall, but no resolution has been reached.)
The City Center Master Plan also involved Oak Ridge’s Industrial Development
Board (IDB). IDBs have been formed across the United States, largely due to
their provision of PILOT—payment in lieu of taxes—programs that have been
used in the development of retail centers. Under a PILOT program, a property
is deeded to an organization—in this case, the IDB—and developed by the
“real” owner. Instead of paying property tax to a municipality, the developer
pays an amount equal to the tax burden to the IDB, which in turn uses this
in-lieu-of-tax money to repay bonds it has issued. In this way, the city does not
need to issue bonds on its own, and its bond rating is not affected.
table a.1 demographiC Comparison of white roCk to oak ridge, tn
APPENDIX A: CASE STUDY COMMUNITIES | A-5
The Department of Energy also participates in a PILOT program. The DOE
owns approximately 60% of the land mass in Oak Ridge, and has discretion-
ary authority to make payments in lieu of taxes to the City. These payments
amount to 10% of the property tax that private industry would pay, and help
to offset the tax revenue that the City loses on land that is federally owned.
In addition, the DOE can transfer property at below fair market value or at no
cost to municipalities that are economically harmed by the elimination of gov-
ernment facilities, and the Department has been authorized by Congress to
indemnify entities or individuals who purchase or lease real property from the
DOE. Furthermore, the Department can, at its discretion, make direct financial
assistance payments to communities that are adversely affected by the DOE’s
presence. Oak Ridge continues to try to receive PILOT funds from the DOE, as
well as to encourage the agency to give the City land that the DOE has deter-

mined it no longer needs.
Oak Ridge is also taking advantage of regional connections and programs. The
Oak Ridge Chamber of Commerce and the East Tennessee Economic Council
joined forces in 2000 to create the New Business Development Program. This
is a comprehensive program of small business development tools, designed
to achieve a pro-small business environment within the City of Oak Ridge and
the East Tennessee Technology Corridor. The program comprises three areas:
below-market real estate space, business training and support, and financial
assistance. This last is led by a $1.7 million DOE-funded Revolving Loan Fund
and aimed at technology-based businesses.
The New Business Development Program has an exact parallel with an impor-
tant element of the preferred development scenario for White Rock. The be-
low-market real estate space offered by the program includes a small business
incubator. Approximately 38,000 square feet of new and existing commercial
space makes up the incubator, with a portion set aside for businesses requiring
state-of-the-art technological amenities. Rents in the small business incubator
space are below market rate, and leases last for three years, with rents increas-
ing each year until they approach market rate. This special space is intended
as a training ground for new businesses—not as competition to existing firms
who must pay market rate rents—and is supplemented by access to shared
oak ridge, tennessee
A-6 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
office equipment, conference and training rooms, and the latest in communica-
tions technology. Preference is given to firms in the technology industry, and
to those that demonstrate possibilities for expansion. A similar small business
incubator facility is proposed for the office concentration near the gateway to
White Rock near Rover Road.
APPENDIX A: CASE STUDY COMMUNITIES | A-7
oak ridge, tennessee
Community Overview

Sisters, Oregon has capitalized on its western heritage and proximity to resorts
and natural forests to capture tourist dollars along its vibrant main street cor-
ridor. Similar to White Rock, Sisters has a median age of around 40 years old,
a high median house value of over $200,000, and a low population density.
The two towns differ in that Sisters’ population is much smaller at around
1,000 people, the median income is half that of White Rock’s, and Sisters has a
smaller geographic area of only two square miles.
Sisters relies on its surrounding resources for its success. Located near the
Deschutes National Forest, visitors are afforded unlimited access to hiking,
swimming, and fishing in the area’s forests, mountains, rivers and lakes. Sum-
mer activities are supplemented by winter sports including downhill and
cross country skiing at Mt. Bachelor. The area’s tourism draw has spawned the
development of several area resorts and second home communities, including
Sunriver, Camp Sherman and Black Butte Ranch. In the 1970s, developers took
Black Butte, an active cattle ranch dating back to the area’s early history, and
converted it into a resort community with biking and horse trails, lakes, and
golf courses.
With so many competing interests, Sisters could have become a ghost town.
Instead all of these nearby activities and communities feed into Sisters’ eco-
nomic development and sense of place. Located at the intersection of two
major highways, Sisters has capitalized on its location and re-envisioned its
community as a retail and event destination. The main street was restored to
evoke its 19th century ranch town heritage. In addition, several festivals and
events have been started over the years such as the Sisters Rodeo and Sisters
in Sisters, an extremely popular event for siblings. Just recently the town devel-
oped a branding plan for the community and adopted a new logo and slogan.
Economic Redevelopment Strategies
A major driver of Sisters’ transformation is the Sisters Area Chamber of Com-
merce, founded in 1974. In an effort to enhance economic vitality and unite
the community, the Chamber offers business training, networking, workshops,

and advocacy, as well as relocation information. Since tourism is the primary
sisters, oregon
Wikipedia
A-8 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
industry in the area, the Chamber serves as a vital resource for visitors, answer-
ing questions and providing referrals. It also sponsors nine community events,
including Sisters in Sisters and several seasonal fairs and festivals. These events
provide 57 percent of the Chamber’s operating budget; the other two major
revenue streams are the City’s transient room tax (18%), and member dues
(16%). Merchandise sales and donations make up the remaining nine percent of
the budget.
Around the time the Chamber of Commerce was created, the private develop-
er responsible for Black Butte Ranch—a facility which threatened to turn Sisters
into a ghost town—helped to stop the City’s decline by sponsoring a storefront
improvement program. Businesses were given $1,500 to convert their store-
fronts into western styles, creating the downtown’s theme. This 1880s western
theme was written into the city code in the late 1970s. Shops, galleries, lodging,
and more are united by their historic appearance, drawing tourists in their own
right.
sisters, oregon
table a.2 demographiC Comparison of white roCk to sisters, or
APPENDIX A: CASE STUDY COMMUNITIES | A-9
A-10 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
Formal design guidelines have since been adopted to ensure a coherent and
identifiable theme throughout Sisters’ commercial core. The 1880s western/
Frontier theme has been extended into all of Sisters’ commercial districts, for
new and existing buildings alike. Highway-Commercial Sub-Districts (C-HC
Districts) are located at the entrances to Sisters along U.S. Highway 20 and U.S.
Highway 20/Oregon Highway 126, and are intended to provide areas for com-
mercial uses and services primarily oriented to auto traffic. The historic theme

applies here as well, distinguishing Sisters from all other commercial areas in
Deschutes County.
Sisters adopted a Downtown Urban Renewal Plan in 2003, in order to promote
downtown as the City’s commercial and cultural core. While the attraction and
retention of tourism-related businesses was and remains a key strategy, the
City recognized that the lower-wage jobs that tourism provides in turn require
low- and moderate-income housing for employees. In response, Sisters pro-
vided height and density incentives to “income and rent controlled housing,”
increasing the allowed maximum density for affordable development by 25%.
To further improve access to affordable housing, the City plans to use tools
such as land trusts, shared appreciation mortgages, annexation policies, down
payment assistance programs, and gap financing. This focus on higher density
and the provision of affordable and workforce housing options applies to the
preferred scenario for White Rock’s downtown core, where a mixed-use town
center has been proposed near the downtown’s “center of gravity.”
Another strong parallel between Sisters’ successful downtown and the antici-
pated redevelopment of White Rock lies in Oregon’s Special Transportation
Areas (STA). The establishment of STAs reflects the Oregon Department of
Transportation’s understanding that highways must act more like main streets
in situations like Sisters’ where a state highway runs through downtown.
Pedestrian safety and comfort are highlighted in an STA, and local auto and
bicycle traffic circulation are considered as important as moving highway thru
traffic. Direct street connections and shared on-street parking are encouraged,
direct property access is limited to facilitate traffic flow, and traffic speeds are
generally 25 mph or less.
sisters, oregon
Similar to Sisters’ special designation, the preferred development scenario in
White Rock includes strong traffic calming measures and traffic lane narrowing
along SR-4 to facilitate pedestrian and bicycle movement. Successfully improv-
ing SR-4 to accommodate all users will require a strong partnership with the New

Mexico Department of Transportation.
APPENDIX A: CASE STUDY COMMUNITIES | A-11
sisters, oregon
A-12 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
Community Overview
Cortez, Colorado is one of three gateway communities serving Mesa Verde
National Park. Originally established during the area’s mining boom, Cor-
tez has established itself as a destination town for those visiting the popular
national park, other tourist destinations such as Four Corners and Monument
Valley, and the nearby rivers and mountains. Cortez has a similar terrain and
climate to White Rock. In addition, they share proximity to a national park that
celebrates the Native American heritage of the Southwest.
Like Sisters, Cortez has increased its attractiveness as a destination by organiz-
ing and hosting several annual events, including balloon and harvest festivals,
arts and crafts bazaars, and car shows. The primarily service and tourist-based
industry contributes to differences between White Rock and Cortez. Its young-
er citizens have not attained as many professional and doctorate degrees,
and the median income and household value are only about a third of White
Rock’s. Strong growth in the area has necessitated the development of a Com-
prehensive Plan and Design Guidelines, which are currently underway.
Economic Redevelopment Strategies
Located nine miles from Mesa Verde National Park and at the heart of the
Four Corners, an official Colorado Welcome Center was established in Cor-
tez in 1985. This facility serves as a comprehensive visitor resource, offering
free maps and coffee, parking for ten RVs, parking shared with the municipal
swimming pool, a bookstore, and a collection of Pueblo artifacts. The Wel-
come Center also houses City organizations and staff, including the Chamber
of Commerce, the Tourism Office, the Retail Enhancement Program, the City
events planner, and the City computer specialist. The Center’s staffing is .5
FTE, with 35 volunteers assisting as well. Reflecting and influencing its diverse

uses, the Center’s funding comes from three sources: the State of Colorado,
the City of Cortez, and the Chamber of Commerce.
Also located in downtown is the Cortez Cultural Center, run by a charitable
nonprofit. Similar to other civic organizations, the Cultural Center focuses on
raising awareness of the unique local culture, education, and general enhance-
ment of community life. This is a private group which relies on member do-
cortez, colorado
pigseye.com
nations for support; memberships range from $25 annual individual to $5000
permanent sponsor. The Cultural Center hosts or organizes several annual
events, such as the Pueblo-to-Pueblo Run and the Dawg Days Chili Cook-off. It
also sponsors the Four Corners Lecture Series, touching on topics of interest to
the region for the next 100 years. The Cultural Center hosts field trips to various
area attractions for the Boy Scouts, school groups, etc., and features an art gal-
lery with changing monthly exhibits.
While their shared Southwest location and heritage generally link the two com-
munities, one of Cortez’s programs has particular relevance to the plan to rede-
velop White Rock’s commercial core. The Cortez Retail Enhancement Associa-
tion (CREA) began as a program administered by the Chamber of Commerce,
but it became a separate nonprofit in 2006. The CREA is overseen by a Board of
Directors, and an advisory group made up of a City Council representative, City
Sales Tax License Holders, and other interested parties. The CREA supports
special events and offers seminars to business owners, but focuses on promot-
ing Cortez as a regional marketplace. An important element of this marketing
campaign is the Cortez Cash program, a citywide gift certificate that works like
cash.
cortez, colorado
table a.3 demographiC Comparison of white roCk to Cortez, Co
APPENDIX A: CASE STUDY COMMUNITIES | A-13
A-14 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY

Potential customers can purchase Cortez Cash at the Colorado Welcome
Center or online, for themselves or as gifts or corporate incentives. Over 150
merchants throughout Cortez, from auto repair shops to restaurants, accept
Cortez Cash as payment for their goods and services, and are reimbursed by
the Welcome Center as soon as they present their Cash. This type of program
could be useful in implementing White Rock’s preferred development scenar-
io; specifically, it could assist in developing tourist and resident-oriented retail
(like that proposed for the A-19 site).
cortez, colorado
Community Overview
Squamish, British Columbia is experiencing tremendous growth due to its
proximity to Vancouver and Whistler and those cities’ roles as the hosts of the
2010 Winter Olympics. Squamish shares similar demographics with White Rock
in that both have high median incomes and house values and have a high
percentage of married residents. However, Squamish has a larger population of
15,000 compared with 6,000 in White Rock; a younger population; and a larger
geographic area, 35 square miles compared with just seven square miles in
White Rock.
Squamish’s popularity stems from the area’s mining history, and its proximity to
prominent natural features including Mt. Garibaldi, the Squamish Estuary, and
Stawamus Chief, the second largest freestanding piece of granite in the world
and major rock climbing destination. The community has also organized the
Eagle Festival to capitalize on a unique annual occurrence when eagles flood
the area to feast on spawned salmon. Squamish also provides a great deal of
organized recreation amenities to its citizens, especially at the Brennan Park
Recreation Centre.
Squamish has been working to shape the community’s plan for its future, which
is centered on the smart growth principles of varied housing types and com-
pact neighborhoods; expanded transportation choices, including walking and
cycling; a vibrant downtown core; and using “green” standards when develop-

ing buildings and infrastructure to conserve natural resources.
Economic Redevelopment Strategies
Capitalizing on Squamish’s unique recreation attractions—which include Stawa-
mus Chief, the second largest freestanding piece of granite in the world—the
Canadian Ministry of Tourism, Sport and the Arts (MTSA) developed the Sea to
Sky Corridor Recreation Trail Strategy. The strategy is the result of an inclusive
process, involving consultants, local governments, First Nations (Native Cana-
dian tribes), and other stakeholders. It outlines the establishment and preserva-
tion of a trail network that caters to a wide variety of users, ensuring environ-
mental sustainability and preventing or solving land use conflicts. The strategy
provides a framework for developing trails on previously unauthorized Crown
squamish, british columbia
britishcolumbia.com
APPENDIX A: CASE STUDY COMMUNITIES | A-15
A-16 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
squamish, british columbia
lands, and presents system-wide standards for all aspects of the trail network
from construction to signage.
The spectacular natural setting that impacted the Recreation Trail Strategy also
serves as the backdrop to Squamish’s downtown. In 2004, public and private
partners, including the local development corporation and the District of
Squamish, created the Downtown Revitalization Initiative. From this initiative
came the 2005 Squamish Retail Strategy, which had two goals. The first goal
was to examine outshopping—Squamish residents spending their money in
other communities—in an effort to stop this phenomenon from undermining
downtown retailers. The Retail Strategy’s second focus was to find a balance
between attracting additional, potentially big box, retail, while not detracting
from downtown revitalization efforts.
Several key recommendations of this strategy have resonance for White Rock’s
downtown redevelopment. Like White Rock, downtown Squamish has many

assets, including its unique setting, opportunities for commercial and residen-
tial development, and a potentially lucrative tourist and resident market. Its
constraints include outshopping, lack of awareness of the commercial core, low
table a.4 demographiC Comparison of white roCk to squamish, bC
downtown residential density, and small lot sizes. The Squamish Retail Strategy
determined that a Business Retention and Expansion Program (BRE) would
address many of these concerns. Although external investment can be antici-
pated, a focus on those businesses already present in and contributing to the
community is beneficial. (Some studies show that between 60% and 80% of new
employment is created by existing businesses.)
In addition to sheer job creation numbers, a BRE program has other benefits,
which include:
Better understanding of issues facing local business, leading to proactive •
government initiatives;
Notification of companies’ plans for expansion or relocation, enabling the •
community to act to enhance or preserve employment;
Specific local information on economic performance and the effectiveness of •
policies and programs; and
Higher profile and positive image of an economic development office or •
similar agency in the business community.
A BRE program relies on adequate agency staff time for in-depth interviews
with company decision-makers, as well as time to analyze, report, and act on
the results of those interviews. The team in Squamish recommended an annual
target of 45 interviews; this would require 45 staff-days for the interviews, plus
an additional 20 to 40 days for analysis, reporting, and initiative development.
Therefore, no more than one half-time staff person would need to be devoted
to the BRE program. Squamish’s Retail Strategy, with its BRE program, suggests
paths to implementation of White Rock’s preferred development scenario, in
particular the proposed commercial development along SR-4 and at the A-19
site, as well as the office concentration suggested at the SR-4 and Rover Road

intersection. A BRE-like program will be beneficial in supporting and retain-
ing existing businesses through anticipated periods of transition and potential
moves into new facilities.
table a.4 demographiC Comparison of white roCk to squamish, bC
APPENDIX A: CASE STUDY COMMUNITIES | A-17
squamish, british columbia
A-18 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
White Rock’s preferred scenario also focuses on improving links between White
Rock, the Los Alamos townsite, and the region, and on enhancing transporta-
tion methods other than single-driver auto. Squamish and Whistler teamed
to offer commuter service between the two communities in 2005, beginning
in January and ending in April (at the end of the ski season). Not only did the
two municipalities join forces to create this service, but multiple transit provid-
ers were involved in developing the commuter service, which also features an
Emergency Ride Home program in case of Whistler employee emergencies.
While the service benefits local residents, the greatest benefit has been visitors
choosing to park and/or stay in Squamish while skiing at Whistler. Local busi-
nesses, especially those near the shuttle pick-up locations, have reported sig-
nificant increases in business. Similar shuttles should be considered between
White Rock and Bandelier National Monument.
squamish, british columbia
All four communities in the case study share similarities with White Rock’s his-
tory, population, and location near significant natural and cultural resources.
Each has established a clear community vision and focused investment on
developing one or two unique aspects of their settings and histories.
The following strategies were identified as particularly useful examples in pre-
paring the economic development strategy for White Rock Center:
Oak Ridge, Tennessee
Investment in the construction and operation of the National Museum of •
Science and Energy

Creation of the 2001 City Center Master Plan with strategies to:•
Reduce the overall supply of retail space in the commercial core•
Landscape key corridors and create a network of paths and public spaces•
Creation of an Industrial Development Board and a payment in lieu of taxes •
(PILOT) program
Pursuit of Department of Energy PILOT funds and land to compensate for •
workforce reductions
Creation of a New Business Development Program and small business incu-•
bator
Promotion of State of Tennessee tax credits and training programs•
conclusion
APPENDIX A: CASE STUDY COMMUNITIES | A-19
Sisters, Oregon
Funding, codification, and design guidelines promoting 1880s western/•
Frontier theme
Establishment of Chamber of Commerce, annual events, promotional mate-•
rials, etc.
Promotion of auto-oriented retail along transition areas of State Highway 20•
Provision of density bonuses for affordable housing•
Creation of an affordable housing toolbox including land trusts, shared •
appreciation mortgages, annexation policies, down payment assistance
programs, and gap financing
Establishment of Special Transportation Areas allowing State Highway 20 to •
act as a pedestrian friendly main street through downtown
Cortez, Colorado
Investment in an official Colorado Welcome Center with shared funding •
(State, City, and Chamber of Commerce)
Placement of the Welcome Center in a facility with a myriad of active uses, •
RV parking, and shared parking facilities
Support of the Cortez Cultural Center with annual events, lecture series, •

and a museum
Establishment of the Cortez Retail Enhancement Association that supports •
existing businesses and recruits new businesses
Creation and promotion of the Cortez Cash program to encourage local •
spending
conclusion
A-20 | WHITE ROCK CENTER MASTER PLAN / ECONOMIC DEVELOPMENT STRATEGY
Squamish, British Columbia
Creation of a Sea to Sky Corridor Recreation Trail Strategy to connect local •
and regional destinations and preserve natural amenities
Creation of a Downtown Revitalization Initiative to reduce out-shopping and •
mitigate the impact of new “big box” development
Creation of a Squamish Retail Strategy to promote, recruit, and support local •
retailers
Organization and marketing of existing retailers through a Business Reten-•
tion and Expansion Program
Establishment of a shuttle between Squamish and Whistler•
APPENDIX A: CASE STUDY COMMUNITIES | A-21
conclusion