WIXLIB

Development AlternativesAlternative A:Maximum Commercial/IndustrialClose Troutdale AirportConvert all available land for commercial/industrial usesAlternative B:More Commercial/Industrial, Less AviationReduce and consolidate aviation land to create space for commercial/industrial usesRetain flight training, recreational and maintenance and repair aviation usesLess accommodation for large business jets compared to Alternative CAlternative C:Less Commercial/Industrial, More AviationReduce and consolidate aviation land to create space for commercial/industrial usesRetain flight training, recreational and maintenance and repair aviation usesMore accommodation for large business jets compared to Alternative BAlternative D:Maximum AviationExpand Troutdale AirportRetain flight training, recreational and maintenance and repair aviation usesIncrease accommodation for large business jetsAs a result of this evaluation, a majority of the PACinitially identified two alternatives that best addressedthe sustainability goal and the seven PAC evaluationcategories. Both Alterative B and Alternative Ccontinue TTD’s role as a general aviation airport andaccommodate approximately 99 percent of the currentand future TTD aviation operations. While the PACcontinued to consider all alternatives until the end ofthe process, the PAC voted and directed the projectteam to focus their refined analysis on Alternative Band Alternative C.Refined Alternative B:3,600-foot long and 75-foot wide runway. Runwaylength in Alternative B is determined by the criticaldesign aircraft (Beechcraft King Air). Aviation activitiesrelocated to the south side of the Airport with 56acres on the north side of the Airport redeveloped forindustrial/commercial use and an additional 20 acresat the far west end of the Airport reserved for futureindustrial or commercial use.8Refined Alternative C:4,500-foot long and 75-foot wide runway. Runwaylength is determined by the existing roadways atthe east and west end of the Airport (Graham Road,Sundial Road and Marine Drive). Aviation activitiesrelocated to the south side of the Airport with 56acres on the north side of the Airport redeveloped forindustrial/commercial use.In discussions with the PAC and in balancingsustainability goals, the Port leadership team indicateda preference for Alternative B. This was based oninterest in matching TTD facilities with the forecastaviation demand and the regional aviation system,limiting infrastructure demands and impacts on theenvironment, supporting jobs and economic benefitsin the region and addressing the longstanding financialchallenges associated with TTD.The PAC understands the financial challengesassociated with TTD and the value of an appropriateand financially efficient airport facility. The Airport hasoperated at a loss since the Port acquired it in 1942(revenue compared to expenses), and is projectedto do so for the foreseeable future, unless significantchanges are made to revenues and expenses.The runway and taxiway infrastructure requiresreconstruction and these updates are expensiveand will draw upon limited Port and FAA funds. ThePAC recognizes that the Port has underwritten TTDoperations with PDX Aviation Funds and that privateinvestment in TTD has been limited during the last20 years.

Preferred AlternativeOn March 16, 2016, the PAC voted by majorityto recommend Alternative C. Prior to the vote,four members noted potential modifications to therecommendation: 1) accommodate 100 percent ofaviation activity, 2) use available time before runwayreconstruction to seek other funding for the currentrunway length, but acknowledge funding may not beavailable, 3) include an effort to reduce TTD’s approachceiling to 800 feet and 4) preserve the ability for theAirport to expand.After discussion, the 19 voting members who werepresent (two members were absent) submitted theirvotes. Fifteen members voted a “1,” meaning they fullysupported the recommendation without modification.Three members voted a “2,” meaning they agreed withthe recommendation but preferred to have it modifiedin order to give it full support. Nevertheless, themembers support the recommendation. One membervoted a “2 ,” which is short of a “3.” A “3” means arefusal to support the recommendation. There is noprovision for a “2 ” vote in the Collaboration Principles(see Appendix A). However, the “2 ” was considereda “3.” When there is a majority-minority vote, membersvoting a “1” or a “2” favor the proposal and membersvoting a “3” oppose the proposal, which means theend result was 18 PAC members in favor and one PACmember against.During the final PAC meeting on April 27, 2016, twoPAC members changed their vote on the preferredalternative from a “2” to a “3.” The end result is 16PAC members in favor of Alternative C and three PACmembers against.PAC Vote Summary on TTD Master PlanAlternative C RecommendationAbsent2Non-voting ex officio members2Full support of recommendation (“1”)15Support recommendation withmodification (“2”)1Do not support recommendation (“3”)3Total PAC members23PAC Vote by Member on TTD MasterPlan Alternative C RecommendationVoting MembersVoteTravis Stovall, Chair“1”Chris Berg, Hillsboro Aero Academy“1”Mark Brown, Northwest Aero“1”Mark Clark, City of Wood Village“3”Claude Cruz, West Columbia Gorge Chamberof Commerce“1”Chris Damgen, City of Troutdale“1”Erika Fitzgerald, City of Gresham“1”Bob Fowler, Toyo Tanso“1”Barb Jones, Fairview Neighborhood“1”Bobby Lee, Oregon Governor’s RegionalSolutions Team“1”Brian Lessler, Gresham Chamberof CommerceAbsentKatherine McQuillan, Multnomah County“1”Erika Palmer, City of Fairview“1”Heather Peck, Oregon Departmentof Aviation“2”Jim Rodrigues, ProLogisAbsentJoel Schoening, Multnomah CountyDrainage District“1”Joe Smith, Oregon Pilots Association“3”Alan Snook, Oregon Department ofTransportation“1”Jose Villalpando, At-LargeCommunity Member“1”Steve Wise, Sandy River BasinWatershed Council“1”Marvin Woidyla, Gorge Winds Aviation“3”Non-Voting MembersSteve Nagy, Port of PortlandN/AJason Ritchie, Federal AviationAdministrationN/A9

While recognizing that Alternative B best addressesTTD’s financial sustainability challenges, the PACrecommended by majority vote Alternative C tomaintain maximum flexibility for increased aviationdevelopment at TTD. In making this recommendation,the PAC recognizes that jobs and private sectorinvestment is critical to reversing the disadvantagedeconomic demographics of east Multnomah Countywhile providing the tax base for public services, andbelieves that both Troutdale Reynolds Industrial Park(TRIP) and TTD can play a role in that vision. Further,the PAC recognizes that managing TTD costs andsecuring new private investment is essential to theongoing success of the Airport, and requires an activepartnership between the community and the Port inachieving this community vision. The PAC understandsthat the Port will undertake another master planningprocess within about 10 years and will again considerthe role of the Airport in light of the progress madetoward financial sustainability.Recommendations from the PAC –Majority VoteThe Troutdale Airport PAC recommends that the Portof Portland’s Executive Director accept the PAC Reportand the following recommendations:1. Accept the TTD Master Plan with AlternativeC as the preferred alternative in which theTTD Master Plan would reflect a 4,500-footby 75-foot runway and 56 acres of industrialdevelopment on the Airport.2. Request Port Commission approval to submitthe TTD Master Plan, showing an AirportLayout Plan consistent with Alternative C tothe Federal Aviation Administration (FAA) forreview and acceptance.3. The Port continue to manage TTD as animportant part of the regional and stateairport system with phased implementation ofAlternative C.4. The Port work with tenants on the northside of TTD to allow transition of theirbusiness plans to align with implementationof Alternative C and to retain the vibrancy ofTTD as a regional asset. The transition will becoordinated with tenant lease expirations.105. The Port continue to monitor aviation issuesand trends, and adapt TTD plans accordinglyto meet changing industry needs.6. The Port dedicate revenues from TTDindustrial property leases on the north of theAirport and aviation development on the southside of the Airport to enhance the financialsustainability of the Airport.7. The Oregon Department of Aviation andFAA support investments to help maintainTTD infrastructure and operations, includingrunway rehabilitation. The Port will keep TTDtenants updated on construction impactsrelated to the runway rehabilitation.8. The Port and City of Troutdale work with othereast Multnomah County interests (i.e., EastMetro Economic Alliance, West ColumbiaGorge Chamber of Commerce, MultnomahCounty, Gresham Chamber of Commerce,east county cities and other stakeholders asappropriate) to maintain and enhance TTD’sviability as an important part of the Portlandairport system, and support both the aviationand industrial goals of the community.a. The Port continue its efforts to supportexisting and future TTD tenants (e.g., FixedBased Operations, flight training), provideaviation market rate lease terms/ratesat TTD and market TTD for aviation andindustrial uses and compatible industrialuses at TRIP.b. The City of Troutdale commit to identifyways to assist the Port of Portland tofurther market and incent development atTTD and TRIP.

c. To support this partnership, the Portand City enter into an intergovernmentalagreement which identifies ways to realizethe aviation and industrial goals related toTTD and TRIP and defines benchmarks formeasuring progress.i. Benchmarks may include but notbe limited to: growth in number ofTTD tenants, number of TTD aircraftoperations, amount of new privatecapital investment, TTD revenuesversus expenses; TTD financialsustainability.On April 27, 2016 the PAC voted unanimously toapprove the draft PAC Report and authorized the PACChair to approve any final substantive edits made afterthat date. The PAC Chair approved this final report onMay 11, 2016.Minority OpinionsPAC members were given the opportunity to includeminority reports with this document. One minorityreport was submitted and is included in Appendix E.ii. Where available, the baseline forbenchmark tracking will be the forecastand financial information included inthe 2014-16 TTD Master Plan process.iii. The goal is to realize an improvementin the revenue versus expensebenchmark from the baselinemeasure annually.d. The Port and City of Troutdale providean annual report to review progress ontheir collective work toward benchmarksin support of TTD aviation and industrialdevelopment as well as TRIP industrialdevelopment. The Port and City ofTroutdale will notify involved stakeholderswhen annual reports are available andpresent report findings in a public forum.9. Finally, the PAC recommends that as part ofthe next master plan update (expected to becompleted in approximately 10 years) thatthe Port plan to evaluate progress towardTTD financial sustainability with the goal ofclosing the gap in revenues versus expenses.If TTD continues to operate at a deficit afterthis good faith effort, the PAC understandsthat the Port will need to reevaluatealternatives consistent with the goal offinancial sustainability.11

I. BACKGROUNDA. ContextB. HistoryTroutdale Airport (TTD or the Airport) is a generalaviation airport located within the city of Troutdalenorth of I-84 near the confluence of the Sandy andColumbia rivers. TTD is one of three airports ownedand operated by the Port of Portland (Port) in a systemthat also includes Portland International Airport (PDX)and Hillsboro Airport (HIO). TTD and PDX are eightnautical miles apart, placing TTD’s Class D airspacewithin the Class C airspace of PDX.Troutdale Airport has served many roles as demandfor aviation has changed over time. The Airport beganas a private airfield in 1920 and was purchased bythe Port in 1942 as part of a plan to develop a systemof airports to meet growing demand for commercialand general aviation. Since that time, TTD has serveda variety of roles, including emergency responseoperations, flight training schools and recreationalaviation, as well as business aviation activities.TTD property includes approximately 261 acresgenerally bounded by Graham Road to the north,Sundial Road to the west, Frontage Road to the southand the Sandy River to the east. The north side of TTDis adjacent to the former site of the Reynolds Metalsaluminum smelter, which was acquired by the Portand redeveloped as the Troutdale Reynolds IndustrialPark (TRIP) in 2007. The Columbia River GorgeNational Scenic Area begins on the east side of theSandy River. The Airport is located within a managedfloodplain protected by a system of levees along theSandy and Columbia rivers.Aviation activity decreased nation-wide, including atTTD, following the economic recession in 2008 andhas slowly recovered over time. A helicopter flighttraining school opened at TTD in 2012, contributingto a significant increase in airport operations. In 2014,flight training operations contributed about 50 percentof all operations at TTD. This upward trend is expectedto continue.It is the Port’s goal for all of its airports to besustainable from an economic, environmental andsocial perspective. However, TTD faces significantfinancial challenges. It takes a substantial amount ofresources to operate and maintain the Airport andTTD’s expenses exceed its revenues. The Airport hasoperated at a net loss since the Port acquired it in1942, losing between 500,000 and 1 million peryear. For decades, the Port has supported operationsat TTD using revenue generated at PDX. While aviationactivity has increased in recent years, it has notmade TTD profitable. This negative financial trend isprojected to continue if nothing changes.Adding to this challenge is the fact that TTD’srunway and taxiway infrastructure is in need of fullreconstruction. Private investment has been limitedat TTD in recent decades, requiring the use of finitecapital funds from the Port of Portland and FederalAviation Administration (FAA).Map 1 Airport Location produced by Mead and Hunt12

Figure 1 Project RoadmapC. Purpose and AssumptionsThe Troutdale Airport Master Plan (Master Plan) willprovide a roadmap for the development, operationand investment at TTD over the next 20 years. Thisstudy will assist the Port in determining what rolethe 261-acre Troutdale Airport will play in meetingthe Port’s mission to enhance the region’s economyand quality of life by providing efficient cargo and airpassenger access to national and global markets, andby promoting industrial development. A typical airportmaster plan includes several planning documents thatassess the level of use expected at the airport andthe facilities required to accommodate those uses.The Troutdale Airport Master Plan addresses thisassessment in the following components: Inventory of facilitiesHowever, the scope of this master plan goes beyondwhat is typical for an airport master plan. This planningprocess began at a time when the runway and taxiwaysystem at TTD was reaching the end of its usefullife. Before spending significant financial resourcesfrom limited Port and FAA funds to reconstruct thesefacilities, the Port decided to conduct a broadermaster plan process to evaluate the role of TroutdaleAirport within the local community and regional airportsystem. A primary goal of the Master Plan was tocollect input from community members to understandwhat they value about the Airport and how theyenvision using it for the foreseeable future. As such,the Port broadened the scope of the planning processto include alternative uses for TTD property that couldprovide community benefits and make the Airportmore sustainable. Twenty-year demand forecast ofaviation activity Documentation of facility requirements Evaluation of alternatives Selection of a preferred alternative Capital Improvement Plan Airport Layout Plan13

The Port of Portland convened the Troutdale AirportPlanning Advisory Committee (PAC) to representstakeholders from a broad range of interests that couldbe affected by changes at TTD. The purpose of thePAC was to provide input at key milestones in theplanning process and develop recommendations thatanswer the following questions.What is the role of Troutdale Airport in the future? What markets is the Airport best suitedto serve? Are there legal constraints that impact futureoperations? Are there environmental constraints thatimpact future operations? What are the primary development options? What are the financial impacts ofthese options? What is the community economic benefit ofthese options? How does the community feel aboutthese options? What is the preferred development option torecommend to the Port Executive Director?In addition to reviewing master plan elements, thePAC was asked to consider a range of developmentalternatives that go beyond the scope of a typicalairport master plan. These development alternativesincluded options to develop the Airport’s land forcommercial and industrial uses to address demandfor certain land uses, increase local economic benefitsand contribute to the Airport’s financial health. ThePAC developed a set of evaluation categories basedon the above questions and sustainability principlesto score each alternative, help determine what theAirport’s role should be and identify a preferredalternative recommendation for the Port of Portland’sExecutive Director.This process was designed to be iterative, allowingPAC members the opportunity to provide feedbackand direction at each step before moving to the nextsubject. Several topics were revisited as the PACengaged in discussion about TTD’s future role.14Figure 2 Triple bottom line sustainability conceptD. SustainabilityEarly in the planning process, the PAC agreed toinclude sustainability in its considerations throughthree overlapping “lenses,” which included economic,environmental and social sustainability. The combinedinterests of the PAC members were represented inthese three areas and used to develop the evaluationcategories, which were later used to identify apreferred alternative recommendation (see sectionF below).

E. Planning Advisory CommitteeThe centerpiece of the planning process’s publicinvolvement effort was the PAC. At the outset of theplanning process, the project team met with leadersin the region to seek PAC members who could bring avariety of perspectives to the committee. The PAC wascomposed of 23 members representing community,government and commercial interests from economic,environmental and social perspectives. The PACprovided valuable input to help assess the future andrecommend an optimal role for the Airport over thenext 20 years. The mission of the PAC was to: Support meaningful and collaborative publicdialogue and engagement on TroutdaleAirport-related planning and development

Troutdale Airport Master Plan called, Troutdale Airport: Shaping Our Future. The Master Plan provides a roadmap for the development, operation and investment at Troutdale Airport (TTD or the Airport) over the next 20 years. This study was designed to assist the Port in determining what role the 261-acre Troutdale Airport will play in meeting .