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Tigard Civic Center Long Range Facilities Plan June 2018,. ... 41P 1141lb.. (. ' . N. IS.",,.... '1'' . 4110. .4.le.446.. '. ,i I. . .N44, ' 4 I .� %iy F ' * � . - lleNth. A li �r! ► f., { - - P[,,C& '*A TRANSIT CENTE .•w' '7i' f ,. . L `, • > ,� • F. •••.. .• , .,...0•VI,...,.. . PUELIC WORKS .... : i - CIVIC CENTER .\ \ City of Tigard ' . .FANNO CREEK HOUSE SENIOR CENTER - J • I = � I Civic Center _ _ .. ,___ • _ 1 , _ 7„.,,,,,.____ ,., ,k LONG RANGE FACILITIES PLAN y,rI . - ir V .! - .. , _ JUNE 2018 ,,,,,,„ , AgfrOr _ t \ ' V yam :,-, \ ,, 'r4. f 7 �� `sem/o it �� r„�i- 0 ,,.„, , thirt -.. Iy I X02 �. - - 111 ';- . . CFpT Oji'/ r Y A - T TIGARD m w a r . I .m 1 `"•P'�-s architects . : . .,, • 4,.. PROJECT TEAM CITY OF TIGARD - Lead/Client MWA ARCHITECTS - Planning and Design ARCHITECTURAL COST CONSULTANTS - Cost Estimating BARNEY&WORTH, INC. - Public Involvement DHM RESEARCH - Opinion Research ECONORTHWEST - Futuring INTERFACE ENGINEERING - Mechanical, Electrical, & Plumbing Engineering KITTLESON &ASSOCIATES, INC. - Transportation KPFF - Civil & Stormwater Engineering LELAND CONSULTING GROUP - Asset Management MIG, INC. - Land Use & Landscape Design RICK WILLIAMS CONSULTING - Parking WRK- Structural Engineering TABLE OF CONTENTS 1. EXECUTIVE SUMMARY 1 First Student 12 Winsupply 12 Project Task 1 Plan Overview 1 3.EXISTING FACILITY CONDITIONS 13 Key Needs Assessment Findings 2 Existing Facility Descriptions 13 Jim Griffith Memorial Skate Park 14 Key Redevelopment Opportunities 3 Existing Facilities Condition Assessment 14 Challenges to Redevelopment 5 Police, City Hall and Permit Center Facilities 14 Conclusion and Next Steps 6 Niche/IT 15 Seismic Screening Assessment 15 2.EXISTING SITE CONDITIONS 7 Police and City Hall Buildings 16 Location and Context 7 Permit Center 16 Public Works Facility 17 Parcels Within the Project Area 8 Site Topography 9 4.PROGRAM NEEDS ASSESSMENT 18 Utilities Infrastructure 9 25-Year Employee Forecasting 18 Population and Employment Growth 18 Site Access 9 Service Delivery Models 19 Parking 10 Number of City Employees 21 Vegetation 10 Space Needs Assessment 22 Neighboring Properties 10 Department 25-Year Space Needs 22 Shared Space Needs 24 Tigard Public Works 10 Total Department and Space Needs, Excluding Police 25 Tigard Library 10 Police Space Needs 26 Tigard Senior Center 11 Combined Space Needs 27 Fanno Creek House 11 Community Uses 28 Tigard Christian Church 11 Department Adjacencies 29 Frontier Communications 11 Parking Needs 32 5.SITE DESIGN RECOMMENDATIONS 33 Sustainable Design Features 44 Energy and Water Efficiency 44 Site Vision 33 Renewable Energy 44 Site Goals 33 LEED Certification 45 Placemaking Opportunities 33 Facilities Basis of Design 45 Jim Griffith Memorial Skatepark 33 Police and Emergency Operations Center 45 Public Plaza 34 City Hall and Permitting 46 Corner Site 35 Community Building 47 Fanno Creek Park Connections 35 Senior Center 48 Hall Blvd. 35 Parking Facility 48 Heating,Ventilation,and Air Conditioning 49 Site Access and Circulation 35 Plumbing Systems 50 Parking Strategies 37 Electrical Systems 50 Parking Reduction Strategies 38 Lighting Systems 50 Parking Recommendations 39 Fire Alarm Systems 50 Technology Systems 50 Site Improvements 40 Earthwork 40 7.FACILITIES PLAN IMPLEMENTATION 51 Frontage Improvements 40 Public Utilities 40 Development Strategy 51 Stormwater Management System 41 Property Acquisition and Demolition 52 Property Acquisition 52 6.FACILITIES DESIGN RECOMMENDATIONS 42 Property Demolition 53 Vision 42 Site Concepts 54 Goals 42 Concept 1 54 Concept 2 56 Resilient Design Features 42 Concept 3 58 Facility Seismic Resilience 43 Campus Technological Resilience 43 Sample Phasing Plan 60 Emergency Operations Center 43 Cost Estimate 61 Response and Recovery Opportunities 44 Funding Plan 62 Challenges to Redevelopment 62 Conclusions and Next Steps 64 8.APPENDICES 65 Appendix A: Development Planning Overview 66 Appendix B: Resilience Considerations 78 Appendix C: Public Outreach and Opinion Findings 84 1 . Executive Summary PROJECT TASK In the summer of 2016,the City of Tigard began a visioning process for the future of their Civic Center facilities and site.The City hired MWA Architects to help assess facility needs over the next 25 years (through year 2040) and develop future facility bases of design and site concepts for redevelopment.The project's boundaries were limited to the existing Civic Center site on Burnham Avenue and Hall Boulevard. MWA put together a consultant team of experts in land use planning,transportation and parking,futuring, public involvement,opinion research,and architectural and landscape design.This team,along with Tigard staff, performed the following: • Public opinion research and polling for city services • Needs analysis for staffing and operations space • Existing facilities conditions assessments • Examination of potential improvements to the site,site access and parking • Assessment of additional opportunities for community uses on site • Development of three concepts for new and remodeled facilities and site layout,including facility and site basis of design and preliminary cost estimates This process resulted in the Civic Center Long Range Facilities Plan (the Plan).This effort was coordinated with a concurrent city assessment of operations and funding.To help facilitate citizen recommendations for future Tigard City services and facilities,the Tigard Levy&Bond Citizen Advisory Task Force was formed. During the winter of 2017 and spring of 2018 this task force assessed the City's finances and need for an operations levy and made a recommendation to City Council.An operations levy was put on the May 2018 ballot but failed to pass. In the spring and summer of 2018 this same task force convened to review the City's facility needs and develop recommendations and priorities for redevelopment of Civic Center facilities. PLAN OVERVIEW The Plan outlines the existing site conditions,the existing facility conditions,and the operational program needs of the City departments,such as forecasted number of staff,office spaces,and parking stalls. Considerations were made for additional public uses on the site,such as a public plaza,community center,and new senior center. Planning information in the Plan includes overviews of existing planning documents and their impact on the Civic Center site, hazard and resilience information,and public outreach and opinion Tigard Civic Center I LONG RANGE FACILITIES PLAN 1 findings. Using this assessment,the project team developed three redevelopment concepts for the Civic Center,outlining potential building masses, public spaces,and auto and pedestrian circulation.The Plan provides recommendations for project implementation and phasing strategies for one of the concepts,as well as a baseline cost estimate for phases implementation. This Plan is intended as a high level overview of the City of Tigard's immediate and future needs for operational facilities. Following Citizen Task Force recommendations,and City Council's approval,additional considerations and studies should be conducted to determine the final redevelopment concept for the site,as well as which facility should be considered for the first phase of redevelopment. A phase one funding plan would need to be developed,along with final site selection for facilities. KEY NEEDS ASSESSMENT FINDINGS The following are the major findings from the project's needs assessment: • The number of City staff will grow by 45%over the next 25 years.The Tigard population is forecasted to grow by 30% by 2040.The City of Tigard already has staff deficiencies and is experiencing increasing demands for city services.The City would like to consolidate its Public Works management staff onto the Civic Center site in order to improve work team efficiencies. It is forecasted that an additional 90 employees will need to be added to Civic Center staff by the year 2040 in order to maintain a high quality of service delivery for an expanding resident and workplace population. • Existing facilities are undersized.The City Hall, Permit Center,the Niche and Police Station are all currently deficient in space(especially the Police).This contributes to overcrowding and inefficient work environments.To accommodate future staff and team work styles,the City Hall and Permit Center would need to add 26,000 sf,while Police would need to add 38,500 sf, representing an overall increase of 155% more facility space than currently exists on site. • Existing facilities are in poor condition,and in need of major maintenance and capital improvements.The City Hall, Permit Center, Police Station and the Niche are currently in "good"to "poor"condition, based on a facility condition assessment from 2016.They are in need of an estimated $4.2 million dollars of capital improvements over the next 10 years,with all major systems and finishes nearing the end of their useful lives. • Existing facilities are seismically deficient.The City Hall, Permit Center and Police Station are at risk of moderate to major damage following an earthquake.This damage will prevent Police from responding to emergencies,and prevent City staff from returning to work in a timely manner. It is assumed that repair and re-occupancy would take weeks to months depending on the damage.The Public Works facility across the street (where the current Emergency Operations Center is located) has the highest risk of collapse in an earthquake. 2 Tigard Civic Center I LONG RANGE FACILITIES PLAN • Additional automobile parking will be required. Parking for City staff and fleet would need to increase approximately 67%,from the existing 219 parking stalls to 367. If community uses and Library overflow parking are included that number increases to 582.This amount of parking would necessitate improved parking strategies beyond surface parking,such as shared parking, below grade parking,and a multistory parking garage. • Site access and circulation will need to be improved.The Civic Center site has traffic issues along Hall Blvd.that make egress out of the site difficult at busy times of day.The Police had to acquire an easement with neighboring Frontier Communications in order to secure dedicated access and exiting onto Burnham St.to their semi-secure parking area. Pedestrians currently have to navigate surface parking to reach the building entrances.Access from the site to Fanno Creek Park is tucked behind existing facilities. Reconfiguring automobile access and pedestrian circulation will be key to successful redevelopment. • From public opinion surveys,there is a stated desire for more community spaces.The Jim Griffith Memorial Skate Park on site is considered a very successful public amenity and is recommended to stay in place and be enhanced with a roof for year-round use.The City could also include additional spaces to serve a growing need in the community for recreation, meeting,gathering and events. Opportunities exist on the site for community rooms,shared exercise rooms,and even a new senior center. A large public plaza could provide much needed outdoor and event space and create a new connection to Fanno Creek Park adjacent to the site. KEY REDEVELOPMENT OPPORTUNITIES • The Civic Center site is sufficiently located and sized for redevelopment.The Civic Center is city-owned, and located near the downtown,the main library,and Fanno Creek Park. It is part of the Downtown urban renewal district and is considered part of the"Heart of Tigard". It is an excellent location for city services and public safety facilities,as well as new community uses. With its zoning and development standards, redevelopment on site can accommodate all required City uses, plus community uses and parking structures,through a strategy of efficient, multistory structures and active open spaces. Other uses such as commercial and housing are also possible depending on the final site layout. • Improved site access off Hall and Burnham will push autos to the edges. If the entrance off Hall Blvd. is moved as far south as possible towards Fanno Creek,then autos exiting the site onto Hall Blvd.would have improved visibility and turning opportunities.This strategy will likewise move auto circulation to the edge of the site,freeing up the center for facilities or open space uses. Access off Burnham St.will include the dedicated Police easement,as well as a public entrance that leads around the site to the parking area. The existing entrance road off Hall through the center of the site can be redesignated as a "Festival Street" for pedestrians,emergency use, and as part of an active public space for Saturday Markets,events and celebrations. Tigard Civic Center I LONG RANGE FACILITIES PLAN 3 • A new Police Facility and Emergency Operations Center to improve public safety.A modern, 52,033sf Police Station would serve the City for the next 25-plus years. As an essential facility,a new Police Station would be immediately occupiable following an earthquake event,ensuring seamless service to the community in emergencies.An integrated emergency operations center can double as a large community meeting room,with support spaces such as a commercial kitchen and outdoor space.At$500/sf,this facility is estimated to cost$25-30 million. • A new City Hall and Permit Center to improve public services. A multi-department, 54,104 sf City Hall and Permit Center would house city staff,City Council chambers,courts, public lobby and service desk,and shared uses like break and conference rooms.This facility will allow flexibility for work teams,and accommodate future growth of staff and services. It would be the face of Tigard and create a contemporary civic presence in the downtown area.A new facility would also be seismically resilient to ensure continuity of services after a disaster. At$500/sf,this facility is estimated to cost $25-30 million. • A new Community Building for a growing need.A 27,000 sf Community Building would house new public spaces for Tigard residents and visitors. Potential spaces could include exercise and locker rooms, meeting rooms, incubator business spaces,small commercial spaces,and a new Senior Center and Meals on Wheels kitchen to replace the existing facility.This type of building would serve a growing need in the community,and create more active uses for the site beyond city services.At $350/sf,this facility is estimated to cost$9-12 million. • Multiple parking strategies to reduce impervious surfaces. Beyond surface parking,which takes up vital site area and creates stormwater runoff issues,staff,visitor and fleet parking will have to incorporate a multi-pronged strategy to be successful. If new facilities are constructed, it is recommended that one level of below-grade parking be incorporated within each building footprint. This is an cost-effective way of including parking in a building project,while providing secure parking areas for Police and fleet vehicles. Some surface parking would need be included, but the remainder of the parking need could be achieved with a multi-story parking garage.This would likely be a three to four story structure depending on the number of stalls required. A parking garage would not only serve city staff and visitors, but also serve any community uses on site,and as overflow parking for the nearby Library. Structured parking is estimated to cost$32,000/stall. • A large outdoor plaza for public gatherings. With multi-story facilities and structured parking,open space is freed up on the site for a large public plaza.This plaza will serve a growing need for recreation,outdoor gatherings,and provide additional uses that bring the public to the Civic Center. This plaza, if sited appropriately,would act as an extension to Fanno Creek Park and bring the park trails up to the entrance of the downtown area. At$45-50/sf,site and right of way improvements are estimated to cost approximately$10-15 million. 4 Tigard Civic Center I LONG RANGE FACILITIES PLAN • A phased,city-managed redevelopment is the recommended model. With a site and facility concept and phasing plan,Tigard can leverage its existing property to redevelop the Civic Center itself,as opposed to other development models such as leasing facility space,or sell city property and buying back space from a private developer.That being said, public-private partnership can be beneficial, especially when it comes to community spaces,or housing located on site. CHALLENGES TO REDEVELOPMENT • Development of a final site concept and phasing plan.This study produced three concepts for the redevelopment of the Civic Center site. One utilizes only the existing city-owned property to build all new facilities;one acquires adjacent property to expand the City's site to redevelop with city uses, while also leaving space for future development;and one remodels the existing City Hall and Permit Center and builds new facilities for the remainder of the spaces. Refining one of these,or developing a new site concept,will require staff and public input,design team collaboration,and even developer feedback.A successful phasing plan will require prioritization according to need and cost to bring the most viable facility to construction in the shortest amount of time. For example,it is recommended that a Police/EOC facility be highly considered for a phase one project. • Building public awareness and support.With any large construction effort,cities are challenged to educate their residents as to the need and the vision that will result in successful support for raising funding.According to public outreach surveys, most Tigard residents do not understand the facility needs,and feel the City finances and service levels are acceptable. Illustrating the facility deficiencies, especially as it relates to disaster resilience and public safety,will mean a concerted outreach and marketing effort by the City and concerned residents. • Estimating project costs. Preliminary cost estimates were developed for the Plan's three concepts, but these estimates, performed in 2017,are already out of date. Given the Metro Area's current construction boom,a shortage of labor, little competition,and increased contractor overhead has driven up costs for projects of all types. Major escalation fees in excess of 7% per year should be factored in for any phased project,and extreme escalation fees up to 20%should be included as a buffer against the volatile market factors. It is recommended that each phase of a redevelopment project be carefully designed and priced out with a contractor on-board to guarantee project delivery for the approved price.The 2017 preliminary cost estimate estimated a full redevelopment of the Civic Center at$80-100 million. • Funding for redevelopment. Regardless of any funding plan the City may develop for this project,the residents of Tigard have expressed their desire for the City to do more with less,while maintaining vigilance in their budgeting and spending.This means that a phased approach is likely required,with facility construction spaced out so that funding streams can cover project costs through each phase. Tigard Civic Center I LONG RANGE FACILITIES PLAN 5 Facility bond measures can be brought to a vote,and other funding streams can be considered,such as revenue generating uses(parking,community spaces,commercial, housing),city loans that don't require a public vote,grants for resilience and emergency services,and public-private partnerships. • Property acquisition near the site and beyond. Any final concept plan will need to determine whether additional property adjacent to the existing Civic Center site (specifically the KEI property), or elsewhere in the city is desirable and should be a part of the funding plan.Acquiring the KEI property can provide better continuity for the site development, provide additional site access opportunities,and allow the City to have a greater civic presence along Burnham St. Property acquisition will add at least$1-2 million to the project. CONCLUSION AND NEXT STEPS This Plan outlines the comprehensive need for facility improvements to ensure the City of Tigard can continue to grow and serve its residents for the next 25 years.The Citizen Advisory Task Force has agreed that a need exists and that some form of improvements should be pursued.The Plan's three redevelopment concepts represent a starting point for future discussions around the best use of the existing site,and whether it's the more feasible to build all new buildings or to renovate existing buildings to the greatest extent.The Citizen Advisory Task Force has developed redevelopment priorities and principles that will help guide future work. With the approval by City Council,staff can initiate the next planning phase of the project to create a final site and facility master plan,which would include site layout and project phasing.With this master plan in place, recommendations for funding of phase 1 can be developed for City Council review. 6 Tigard Civic Center I LONG RANGE FACILITIES PLAN 2. Existing Site Conditions LOCATION AND CONTEXT NW Preferred _ •_, 1' Federal'Credit U'ion The Tigard Civic Center project area at 13125 SW Hall Boulevard,shown in Figure 0 �, 1,is bound by Fanno Creek Park to the south, Hall Boulevard to the east, Frontier �+ s� %� Ti`gard public,Works Communications to the west,and Burnham Street to the north.The City-owned , y property includes the Tigard City Hall, Police Department, Permit Center,the IT , ,4. - Tigard,Farmers Market®E. • J office building sometimes called 'the Niche',two modular buildings,and the Jim ~. Griffith Memorial Skate Park.The southern portion of the property is within the , Fanno Creek Park.The remaining portions of the site contain vegetation, The Parity TeamQ Sw$�mnamst�, landscaping and surface parking. ' r y � • • The Tigard Civic Center is considered part of the Tigard downtown area,a .`, l...' designated Town Center,with Main Street less than 1/2 mile to the northwest,and _ `� 'I the Tigard Library less than 1/a mile to the southeast.Additional public services in r' * `' ,, Tigard Skatepark . _ ,`+l,' the area include the Public Works building,the Tualatin Valley Fire& Rescue sr��" r., ',err a = r (TVFR) Station 51,the Tigard WES commuter rail station,and the Tigard-Tualatin f_, r•., ` " 11 �a44 School District bus yard.The site is located amongst a mix of light industrial, g Tigard Police Department j II '" "#// ' is a' residential,commercial,and recreational uses. I ' — — rir A_ Tigard City Hall® if ll' if f et et.—110N,,iihr' � '. � N. - f y Fann4 I, <. Creek Park C�1 VI 21 s ....- - Figure 1. Project site area kIII Tigard Civic Center I LONG RANGE FACILITIES PLAN 7 PARCELS WITHIN THE PROJECT AREA //' s�eGA Or 4 `;` Figure 2 identifies the parcels within the project area.The City Hall facility is f titi9�s0 + 71 •' located on a single 7.9-acre city-owned parcel.The property currently features00•-/"Ajoi/ • r 37,738 sf of existing structures with a total taxable land value of(improved) ♦ r, $6,951,650 according to Washington County tax records. Parcel A in Figure 2. 16,,, -- 0 • er The skate park is on a single 0.90-acre parcel.The property currently features a ..a 0 city-owned skate park.The unimproved value of the property according to Washington County tax records is$245,030. Parcel B in Figure 2. mi/ i 8764 8720 The IT building at the corner of Burnham Street and Hall Boulevard is located on a Grsingle 0.65-acre city-owned parcel.The property currently features a single 2,440 , Jim marl t • sf structure housing IT equipment and offices with a total taxable land value of • Mem Skate Par (improved) $650,580 according to Washington County tax records.This property 0 A a . is included in the project area because it could contribute to a more unified o redevelopment area if acquired by the City. Parcel C in Figure 2. 13125 m The adjacent, privately owned Kim's Embroidery, Inc. property on Burnham Street 's";"' -' an'niii J is a single 0.79-acre parcel.The property currently features a single-story 10,639 II z sf light industrial/warehouse structure with a total taxable land value of (improved) $1,080,800 according to Washington County tax records. Parcel D in Figure 2. 1 The City also owns a 0.13-acre parcel.This property is along Burnham Street northerly of the embroidery business and westerly of the Frontier Communications property. According to Washington County Tax records the property has a value of$89,700 and currently features paving and planters used for circulation for the Frontier Communications facility,the Police Department and 'iI U R.4 , the embroidery business. Parcel E in Figure 2. - . Figure 2. Project Area Parcels 8 Tigard Civic Center I LONG RANGE FACILITIES PLAN SITE TOPOGRAPHY The existing site slopes down from Burnham St.towards Fanno Creek Park,with e era re 1.. Ftl► - • 4 'y! an elevation change of approximately six to seven feet north to south.The ©, , ; . J; \ grading of the site steps down between Burnham and the skatepark,and from ` ', Tf�ard Put3iicWorks1� the skatepark to the Civic Center. No existing survey of the site was available , \ 4 + from the City nor was one completed as part of this study. Tsar Police Only e:® No investigations into the subsurface conditions of the site were made for this ` study.The only available soils report dates to 1984, prior to original development The Party T-;aiI O Sw e- h st `' of the Civic Center.These open test pits,dug with a backhoe, revealed a 11/2 foot • : ` -r' deep organic top layer,with underlying clayey-silt and silt strata with suitable I I' natural firmness to provide structure support in its undisturbed state. Soil 4' loading capacity was found to be up to 2000 lbs/sf.Any site development in theJr- `' , Tigard Skatepark • future should be performed only following a new soils investigation through T ''i. potholing or other methods,especially where below-grade parking is planned. • .opt "�to r,>,�r 'nn; ti a` 1 t 0_.u. -11 , Ii -� -5 Tigard Police Departme' UTILITIES INFRASTRUCTURE ,, - Tigard City 11all QWater,sewer, power,computer fiber cable and other utilities exist at the site - 1currently. No survey or mapping of these utilities were completed as part of this .okr. sfr ` i' ' *�study.Additional capacity upgrades,transportation impact mitigation,and � .•stormwater management upgrades will likely be part of a new development " , t ,approval process. s-. " °o. ; ,,,.. WI.'HSV,` ' �t,, i_ �'4,'��r` 3 Y'`" - SITE ACCESS - ;v ►•.,�« .•_,t - , The existing site has three access points,as shown in Figure 3: Figure 3. Existing Site Access and Exiting • The main entrance and exit on the east edge of the site onto Hall Blvd. serves city staff,visitors,and police.This location is only 370 ft from the Burnham intersection,creating exiting issues for those turning left out of the site.This issue is further exacerbated when school buses from the First Student bus yard across Hall Blvd. queue up in the mornings and afternoon. Additional backups are sometimes caused when WES or freight trains require the crossing at Hall and Burnham to be closed. • A curb cut on the north edge of the site onto Burnham St. near the Niche/IT building provides for secondary ingress and egress for city staff and visitors.This location is only 105 ft from the Hall intersection, making right and left turns out of the site difficult during peak hours. Tigard Civic Center I LONG RANGE FACILITIES PLAN 9 • An easement between the city and Frontier Communications provides for a dedicated egress for police only, north out of the site onto Burnham St.This exit is over 300 ft from the Hall intersection, and allows police and emergency vehicles to safely exit onto Burnham when required. PARKING The existing asphalt surface parking on site serves city staff,visitors and city fleet vehicles.The police maintain a signed semi-secure lot adjacent to their building.The remaining spaces are divided into three lots,with some TABLE 1: EXISTING PARKING ON SITE spaces reserved for disabled visitors and city staff fleet vehicles.Table 1 outlines the allotment of existing PARKING AREA STALLS parking on site. Permit Center 34 Central/West of skatepark 57 VEGETATION Niche/Corner 32 The site contains at least 50 mature deciduous trees, including an allee'along the main east-west entrance Police-fleet 19 road off Hall Blvd. In addition,the southern edge of the site borders the heavily vegetated Fanno Creek Park, whose edge serves as the'vegetated corridor'from which new development must be set back 50 ft. Police personal vehicles 61 Police- behind Building 8 NEIGHBORING PROPERTIES Police- motorcycles 8 Total Existing Parking Stalls 219 TIGARD PUBLIC WORKS The Public Works building directly north across Burnham Street is home to the city's recreation,streets,water, and stormwater departments,as well as its maintenance fleet,supervisors and additional city staff.There are community spaces and meeting rooms in the facility,and it has been home to the city's Emergency Operations Center(EOC). Its proximity to the Civic Center allows staff to collaborate without having to travel by car to meet. Many of the Public Works staff currently housed in this building are expected to move into future Civic Center offices on the project site,and vacated spaces in Public Works remodeled for other needs. (see Figure 4,number 1) TIGARD LIBRARY The Tigard Library is located just south along Hall Blvd.from the Civic Center site.The building,opened in 2004, is home to the City's book and online collections,a small coffee shop,and community rooms. It is also serves as the backup server space and EOC.The Library is well-loved in the community and part of the downtown heart of the city.The library has parking and storage deficiencies that could be addressed in the new Civic Center project.(see Figure 4,number 2) 10 Tigard Civic Center I LONG RANGE FACILITIES PLAN TIGARD SENIOR CENTER The Tigard Senior Center is located just south of the project site,accessible via i .. > ,•ft, • Hall Blvd.or through Fanno Creek Park. It serves as a day use facility for local No . ' it `, 40 ..' . '` • ' il. :1`•lki, ' - : ;I seniors,with craft and computer rooms,a gift shop and kitchen,and is the V" '\ ' . ••,.', , . preparation space for Meals on Wheels services. It is host to community events, t'.: 4e 4. , and is available for use by city staff for meetings in the evenings.A new SeniorICI"' � \ `� Center is being considered as part of the Civic Center project to help activate the • 'space and consolidate activities in one place. New uses for the existing Senior -� ." rCenter could include services for low to moderate income residents.(see Figure 4, 4 ..„ number 3) -A V rw■� - .4., Iiiiit 1 FANNO CREEK HOUSE - �Hh '' The Fanno Creek House is a city-owned and operated repurposed house just ' `, �s` south of the Civic Center site along Fanno Creek,accessible off Hall Blvd.or Fanno _ - Creek Park. It is intended to host small to medium sized events and meetings. -- -,%•i Currently,lack of dedicated city staff prohibits continuous daily operation, but it is __1.. I occasionally used for meetings by City staff. (see Figure 4, number 4) , 1 TIGARD CHRISTIAN CHURCH '" A R R ` ,", Located just south of the Fanno Creek House,and across Hall Blvd.from the i y diAp. .r4 "r"„�,:ir. si , .._ y Tigard Library,the Tigard Christian Church property includes surface parking that *',°' lifiIf *ri..' ' -`-„ i p is available to the Tigard Library staff and overflow from the Senior Center by a .. �� 4 - . --� f lease agreement with the City.This site offers opportunities for additional shared parking for overflow for the Civic Center site during off-peak church hours. (see _:..l Figure 4,number 5) Figure 4. Neighboring Properties FRONTIER COMMUNICATIONS The Frontier Communications facility directly west of the project site is home to one of the region's communications fiber network hubs, maintenance fleet parking,and storage yard. Currently an easement from the property's driveway on Burnham St. provides Tigard Police with a dedicated entrance and exit from the Civic Center site.This property is an opportunity for a long term lease agreement to use some of the Frontier surface parking for city use. (see Figure 4,number 6) Ell Tigard Civic Center I LONG RANGE FACILITIES PLAN 11 FIRST STUDENT The First Student school bus yard directly east across Hall Blvd. is home to approximately 50 buses and vans that transport students to and from Tigard-Tualatin school district locations.An office facility fronts Hall Blvd., with a similar architecture to that of the Public Works facility.This transportation activity has occasionally impacts on Civic Center site access,as buses queue up along Hall Blvd. in the early morning and late afternoons.This property was at one time envisioned for a new Tigard post office as part of the TDIP, but no effort is currently underway to redevelop this site. (see Figure 4, number 7) WINSUPPLY The Tigard Winsupply facility east across Hall Blvd,and directly north of the First Student property,is home to the wholesale distribution of landscape supplies.This concrete facility's blank face provides no pedestrian access along Hall Blvd. and is considered a prime target for future redevelopment in the TDIP,although no efforts are currently underway to redevelop the site. (see Figure 4,number 8) 12 Tigard Civic Center I LONG RANGE FACILITIES PLAN 3 . Existing Facilities Conditions The existing facilities on the Civic Center site serve as the central hub for Tigard city services. Most of the city's offices are located in these buildings. It is where the public comes for city council meetings, municipal court, bill payment, building permits and public records. EXISTING FACILITIES DESCRIPTION The Civic Center site has four primary buildings: • The Niche/IT building,a 5,940 sf two story on the corner of Hall Blvd.and Burnham St., built in 1952 and added on several times,serves as the hub for computer-based services, including the main server room,computer repair and preparations,and City IT staff.This facility also contains separate public restrooms for use by skatepark visitors. • The Police building,an 11,190 sf single story on the west edge of the site built in 1985 and expanded in 1996,serves as the city's primary police station. • The City Hall building,an 11,590 sf single story,connected to the police building on the south edge of the site built in 1985,serves as the city's main public center,with records,court,city council chambers and billing.The facility also houses offices and conference rooms. • The Permit Center,a 13,308 sf single story,originally built in 1982 as the central library and later remodeled for city offices,serves as the public counter for permitting. It also houses offices and meeting rooms for multiple city departments such as engineering and community development. These buildings are built on reinforced slab-on-grade foundations with concrete spread strip footings.The Police,City Hall,and Permit Center are wood framed structures which have a brick cavity wall construction. The exterior walls are comprised of facing brickwork,and an Exterior Insulation and Finishing System (EIFS). The low-slope roof systems consist of a combination of single-ply Ethylene Propylene Diene Monomer (EPDM)with a liquid EDPM rubber coating to the Police and City Hall,and a Built-Up Roof(BUR)system to the Permit Center.The pitched roofing elements are enclosed with a standing seam metal roof system.The exterior walls contain aluminum double glazed windows,aluminum curtain walling,glazed doors,and hollow metal doors. The Niche/IT building exterior walls are primarily comprised of painted plywood board and batten siding,and painted ribbed metal wall panels.The low-slope roofs consist of combination of a 4-ply Built-Up Roofing (BUR),and an Ethylene Propylene Diene Monomer(EPDM) single-ply membrane. In addition to this,the pitched roof is clad with asphalt shingles.The exterior walls contain aluminum single glazed windows,and hollow metal doors Tigard Civic Center I LONG RANGE FACILITIES PLAN 13 In addition to the primary buildings,the site also has several secondary structures: • Two modular buildings are located on the southwest corner of the site. One is used for storage(1500 sf)and one to house additional police staff(2000 sf). • One 300 sf covered parking canopy is used for police parking of motorcycles. JIM GRIFFITH MEMORIAL SKATE PARK Located along Hall Blvd. and opened in November of 2007,the approximately 13,000 sf concrete-lined skate park was designed by Dreamland Skateparks. It is open from sunrise to sunset,and can be used by skateboarders, bicyclists, push scooters,and roller skaters.The skatepark is well-used,and considered to be in a successful location according to city staff,the police,users,and the community. EXISTING FACILITIES CONDITION ASSESSMENT The City of Tigard commissioned facility condition assessments from consultants Faithful + Gould in August, 2016,for several of their city-owned buildings.Their assessments anticipate primary expenditures over a 10-year study period,and calculate the Facility Condition Needs Index (FCNI)which is used in facilities management to provide a benchmark to compare the relative condition of a group of facilities.The FCNI equals costs of maintenance,repair and replacements divided by the current replacement value of the facilities. If the FCNI rating is 60%or greater then replacement of the building should be considered instead of renewal. See Table 2 for a conditions summary. POLICE , CITY HALL & PERMIT CENTER FACILITIES Combined together,the Police, City Hall and Permit Center facilities represent 36,625 sf of occupied space. The current replacement value is estimated at$10,438,125,or$285/sf. Most of the systems in these facilities are nearing the end of their lives and will need addressing or replacement. Immediate capital needs in year 1 are estimated at$1,206,770,over half of which is needed to replace the roofs.The first year FCNI for the Police,City Hall and Permitting facilities is therefore 11.56%, representing "POOR"condition facilities. Future capital needs for years 2 through 10 are estimated at$2,475,561,with major expenditures directed towards electrical and HVAC systems, interior finishes, roofing and site improvements.The year two through 10 FCNI is therefore 23.72%, representing an increasingly"POOR"condition. Total 10-year capital needs for these facilities is estimated at$3,682,331, resulting in a FCNI of 35.28%, meaning the facility is near the end of its useful or serviceable life. 14 Tigard Civic Center I LONG RANGE FACILITIES PLAN NICHE/IT The central IT building contains 5,940 sf of occupied space.The current replacement value is estimated at $1,098,900,or$185/sf.Any new IT and central server space would likely cost much more than this estimate. Immediate capital needs in year 1 are estimated at$53,834, most of which is needed to replace the internal stairs and handrails.The first year FCNI for the Niche is therefore 4.9% representing"GOOD"condition facilities. Future capital needs for years 2 through 10 are estimated at$466,574,with major expenditures directed towards interior finishes, roofing and exterior enclosure.The year two through 10 FCNI is therefore 42.46%, representing"POOR"condition. Total 10-year capital needs for these facilities is estimated at$520,408, resulting in a FCNI of 47.36%, meaning the facility is near the end of its useful or serviceable life. IL_ • TABLE 2: EXISTING FACILITIES NEEDS ASSESSMENT FACILITY CONDITION 1 YEAR CAPITAL 10 YEAR CAPITAL SEISMIC DAMAGE NEEDS NEEDS RISK Police, City Hall, Permit Center Poor $1,206,770 $3,682,331 Moderate Niche/IT Poor $53, 834 $466,574 n/a Public Works n/a n/a n/a High SEISMIC SCREENING ASSESSMENT Structural engineering consultants,WRK, performed preliminary seismic assessments of existing buildings in order to more fully account for their likely performance following an earthquake event,and to assess the potential to reuse or expand these facilities.The evaluation was performed on the Police/City Hall building,the Permit Center,and the adjacent Public Works building. No evaluation was made of the Niche/IT building. The evaluation provided estimates of the expected seismic performance for three critical building measures: Safety, Damage(Cost),and Recovery Time.The methodology used was developed by the United States Resiliency Council (USRC) Building Rating system which is based on FEMA P-58,"Seismic Performance Assessment of Buildings",and also incorporates ASCE 41-13,"Seismic Evaluation and Retrofit of Existing Buildings".The USRC Building Rating system identifies expected consequences of an earthquake or other hazards affecting buildings. Tigard Civic Center I LONG RANGE FACILITIES PLAN 15 The USRC rating considers the performance of a building's structure, its mechanical,electrical and plumbing systems,and architectural components such as cladding,windows, partitions,and ceilings.The performance of these elements affects occupant safety,the cost and time to carry out necessary repairs,and when the building can be used again following an earthquake. Ratings are based on ground shaking intensity expected to occur during the lifetime of the building and is consistent with the benchmarks in the International Building Code. • The SAFETY rating describes the potential for people in the building to get out of the building unharmed after benchmark shaking intensity. • The DAMAGE rating(expressed as Repair Cost)describes the estimated cost to repair the building after earthquake benchmark shaking as a percentage of the building's replacement cost. • The RECOVERY rating(expressed as Time to Regain Basic Function) is an estimate of the minimum time required to effect repairs and to remove safety hazards and obstacles to an extent necessary for using the building.Additional time might be needed to restore the building to provide the functions and operations at levels prior to the earthquake. POLICE AND CITY HALL BUILDINGS The Police Station and City Hall building consists of a commercial wood framed structure that was originally designed for a future 2nd floor(i.e.vertical addition) using the 1982 Uniform Building Code (UBC).The seismic hazard level for the 1982 UBC was roughly 50%of current Code forces for an essential facility. However,since the buildings were potentially designed for 2 times the required 1982 UBC seismic loading, it is likely the building gross strength is close to current Building Code level seismic demands. However, poor structural detailing(by current Code standards)and nonuniform distribution of shear walls in the Police Station portion of the building may likely result in minimal to moderate damage of the structural and nonstructural building systems. It is estimated that serious injuries are unlikely(Safety),the approximate cost of repairs may be between 10%&20%of the building replacement cost(Repair Cost),and occupancy may be regained within days to weeks (Time to Regain Basic Function). PERMIT CENTER The Permit Center building consists of a commercial wood framed structure that was originally designed at the same time as the Police/City Hall Building and also uses the 1982 UBC as the design basis. However, unlike the Police/City Hall Building, it does not appear this building was designed for a 2nd story future addition. When considering this building as an essential facility needed for post-EQ recovery/reconstruction,the seismic hazard level used for the original design was roughly 30%of current Code forces. However,the building did receive partial voluntary seismic strengthening as part of the City Hall &Annex Remodel in 2004. 16 Tigard Civic Center I LONG RANGE FACILITIES PLAN Plywood shear walls were added at the building perimeter as part of this work, but the other portions of the lateral force-resisting system (i.e. roof diaphragm &foundation)were not upgraded at that time.The drawings clearly state the seismic strengthening was not intended to meet Building Code compliance in 2004.As such, we expect the building may experience moderate damage of the structural and nonstructural building systems. It is estimated that serious injuries are unlikely(Safety),the cost of repair may be 20%of the building replacement cost(Repair Cost),and occupancy may be regained within weeks to months(Building Loss of Use Duration). PUBLIC WORKS FACILITY As part of an expanded scope of work beyond this project's site boundary,the Public Works facility directly north of Burnham St.was included in the seismic screening assessment. Both the Office and Maintenance buildings on the Public Works campus were designed using the 1985 UBC.These buildings were constructed with lightly reinforced brick masonry unit bearing walls and wood roof trusses/framing. It does not appear the masonry wall reinforcing is vertically continuous over the full height of wall as it appears to be interrupted by a continuous horizontal concrete architectural accent beam.This appears to introduce a wall "hinge point"that could lead to wall collapse during strong shaking. Also,the walls are tall with respect to their thickness and reinforcing.This condition only exacerbates the"wall hinge"vulnerability. In addition, it appears the concrete footing reinforcing does not extend up into the masonry wall more than 8",which is approximately only 20% of the current required length. As such, it is expected that both of these buildings will suffer substantial damage to structural and nonstructural building systems during the next major earthquake.We estimate the building structural and nonstructural systems performance may result in conditions associated with partial collapse or falling objects, which have a potential to cause loss of life at some locations within or around the building(Safety). In other words,this building may be a significant life-safety hazard during the Cascadia Subduction Zone event. Furthermore,we anticipate the cost of repair may be approximately 40%to 60%of the building replacement cost(Repair Cost),and occupancy may not be regained until between 6 months to one year(Building Loss of Use Duration). Tigard Civic Center I LONG RANGE FACILITIES PLAN 17 4. Program Needs Assessment The Long Range Facilities Plan for the Tigard Civic Center started with a needs assessment and architectur- al programming.Architectural programming is the research and decision making process that identifies the scope of work to be designed.This exercise began with questionnaires that the Leadership Team completed, indicating the staff numbers and types of spaces required to most efficiently do their work, both now and with- in a 25-year planning horizon.This information was then used to calculate the size of new facilities. 25-YEAR EMPLOYEE FORECASTING An important factor influencing the design of the Civic Center space is the number of employees that will work for the City and use the buildings over the coming decades.Tigard Leadership Team members provided their best estimates of the number and type of staff needed over the next 25 years.They used current staffing levels,existing deficiencies,and forecasts based on past experience to provide preliminary estimates.To support this effort,consultants ECONorthwest conducted additional Leadership Team interviews and computer modeling to forecast three factors that may affect the Leadership Team's preliminary estimates: 1. Population and employment growth for the next 25 years 2. Potential changes in service delivery models that might impact space requirements Figure 5. Forecasted 3. The number of City employees, referred to in terms of full-time equivalents(FTE), in 25 years. population and employment in Tigard,2015 through 2040 POPULATION AND EMPLOYMENT GROWTH Demand for City services depends largely on how many people live and work in the 80900 70,000 68.381 city. Figure 5 shows the forecast of population and employment for the City of 61.364 Tigard within the current city limits.The employment count includes all people that 60900 52 674 work in Tigard, regardless of where they reside. In 2015,the model estimates that 50900 381 the City had 52,674 residents and 44,381 employees. Over the course of the next 25 years,the model forecasts that population will grow by 30%to 68,318 residents and 40,000 the number of employees will grow by 38%to 61,364. Peak growth in employment 30,000 will occur between now and 2020,while peak growth in population will occur 20,000 between 2025 and 2030.The growth rate will taper off in 2030. 10,000 The City of Tigard has discussed the possibility of annexing Bull Mountain,a 0 predominantly residential area on the west side of the City. ECONorthwest 2015 2020 2025 2030 2035 2040 considered the potential impact of annexation on population and employment ■Total Population ■Total Employment 18 Tigard Civic Center I LONG RANGE FACILITIES PLAN growth in the City. Figure 6 shows the population and employment forecasts for the combined area (current city limits plus Bull Mountain).The annexation of Bull Mountain would add nearly 10,000 residents to the City. Since Bull Mountain is 90,000 relatively built out compared to the City of Tigard (i.e., it has less undeveloped or 79'997 sa,aao underdeveloped land), its annexation by the City of Tigard would slow the rate of 10,000 residential population growth citywide.The City of Tigard including Bull Mountain 62,313 1901 60,000 would grow at an average annual rate of 0.82%,compared to 1.19% in the current City boundaries. 50,000 823 40,000 Most Leadership Team interviewees did not expect the annexation of Bull 30,000 II II II Mountain to have a substantial impact on the number of City of Tigard FTE,or 20,000 spur significant new development or demand for services.. Most departments do 10,000 not scale FTE solely based on population increases. Rather,factors like amount of new development and funding will impact FTE hiring. 2015 2020 2025 2030 2035 2040 The Police Department is one department that attempts to scale employees in ■Total Population ■Total Employment proportion to population.The FTE forecast in this section assumes the annexation of Bull Mountain. Figure 6. Forecasted population and employment in Tigard, SERVICE DELIVERY MODELS including Bull Mountain The City of Tigard's services are delivered through a combination of teams operating in conjunction with other 2015 through 2040 teams,technology and IT services,outsourcing of certain operations,and sufficient funding to provide this service delivery. ECONorthwest considered the following factors that impact how the City provides services to residents and employees: • Operating models: How the city organizes its internal operation will have implications for Civic Center space needs. A desire by the City to use inter-agency and inter-departmental teams will increase the amount of space per FTE required.This work style can improve the productivity of City operations: it facilitates information flow across agency and department silos,fosters innovation,and allows for comprehensive problem solving, but it requires additional space. In addition to individual workspaces, the Civic Center would need to provide: (1)some senior managers with secondary workspaces near employees of other departments with whom they work regularly,and (2)teams with access to meeting rooms that have adequate storage and technological capabilities.These additional spaces should be flexible,so that management can reconfigure them as teams change. • Technology: According to Leadership Team interviews, it is often the case that improvements in technology improve service delivery but do not reduce FTE.There are even some cases where the adoption of a new technology will increase the number of FTE. For example,Tigard is considering a new ticketing system using red-light cameras.This technology might add 6,000 court cases per year, Tigard Civic Center I LONG RANGE FACILITIES PLAN 19 requiring up to five additional FTE in Central Services. Over this study period,Tigard's department managers(with the exception of Central Services)do not expect technology to have a significant impact on the number of FTE.They do expect to automate some tasks to increase productivity,which would shift labor time from administrative to IT. • Outsourcing:The City of Tigard currently outsources work in four systems: o Central Services outsources 80%of its fleet maintenance work. o Human Resources outsources some risk management functions. o Public Works outsources some utility services. o The City outsources some legal services. Central Services, Human Resources,and Public Works believe the city will continue to outsource the same set of services within their respective departments.The attorney for the City thought it likely that the City would bring this service in house in the next 25 years,so this analysis assumes the addition of these employees. Over the study period,only Public Works envisioned outsourcing additional services.The Director stated that Tigard may contract out parks and recreation services to the Tualatin Hills Parks and Recreation District(THPRD), in which case THPRD would absorb this function and its associated staff.This change is far from definitive,so this report does not make any assumptions about a reduction in Public Works Staff. • Funding: Funding is the most important supply-side factor that impacts the number of FTE employed by the City.The City will only hire new employees to accommodate demand growth if it has the funding to do so. Funding often increases more slowly than population,so the rate of growth of FTEs may be slower than the rate of population growth. ECONorthwest asked each of the Leadership Team if he or she considered funding constraints in the FTE forecast. Each interviewee said, "yes,"and the forecasts confirmed this statement. The City is exploring the possibility to increase its funds through an operating levy,which will allow it to add staff to address current staff deficiencies.This FTE forecast includes those staff that will be added to address current deficiencies as well as the staff that will be added to respond to new demand. 20 Tigard Civic Center I LONG RANGE FACILITIES PLAN NUMBER OF CITY EMPLOYEES Table 3 shows the current and 25-year forecast of FTE by department in the City of Tigard.The forecast includes those employees that currently work at,or would relocate to,the Civic Center site from Public Works. Today,the City has 199.75 FTE that work on the Civic Center site. By 2040,the City expects to employ 290.50 FTE that would work on the Civic Center site.The addition of 90.75 employees represents a 45% increase in the number of FTE,which is higher than the increase in residents(30% in Tigard and Bull Mountain combined). About one-third of those 90.75 new FTE will be hired to accommodate existing demand that is underserved. Excluding these staff,the City will add 58.75 FTE to accommodate demand from new growth. ECONorthwest concluded that the estimates made by department staff of likely increases in FTE over the study period are reasonable, potentially conservative,and appropriate as planning-level estimates for estimating space needs in a new Civic Center. ECONorthwest confirmed and, in some cases,amended the Leadership Team's estimates. In several cases, numbers provided by the Leadership Team reflected a ten-year planning horizon,as opposed to the 25-year used for this study. In two cases,the Police Department and Human Resources, EcoNorthwest did their own calculations based on level of service standards provided during their interviews. TABLE 3: CIVIC CENTER CURRENT AND FORECASTED 2040 FTE DEPARTMENT 2016 FTE 2040 FTE Total Growth Positions to Address Current Deficiencies City Manager 4.00 6.00 50% 0 Central Services 19.00 31.00 63% 0 City Attorney 4.00 6.00 50% 0 Community Development 28.50 43.50 53% 9 Finance and Information 25.50 39.50 55% 0 Human Resources 6.50 9.00 38% 0 Police Department 83.50 114.50 37% 18 Public Works 28.75 41.00 43% 5 Total FTE 199.75 290.50 45% 32 Tigard Civic Center I LONG RANGE FACILITIES PLAN 21 SPACE NEEDS ASSESSMENT The following outlines the major findings for the City of Tigard's departmental space,site,and parking needs for the 25 year planning time frame. It outlines the desired square footage for each department,desired number of parking spaces,and department adjacencies. Declared space needs,such as number of offices, cubicles,and special spaces, per department,were translated into square footages by MWA Architects (MWA)for based on industry design standards.Certain spaces were determined by the Leadership Team to be able to be shared spaces amongst multiple departments,and these were likewise assigned a square footage by MWA.A space factor 1.20,or an additional 20%,was applied to the total base square footages to account for unoccupied areas,such as building structure,circulation,and mechanical systems. For the purposes of this study, no in-depth office design was performed.Additional space programming would need to be conducted during the early stages of actual facility design. DEPARTMENT 25-YEAR SPACE NEEDS This section outlines the office space required for current and future staff of each City department,excluding Police.The types of office or cubicle spaces were outlined by the Tigard Leadership Team,with square footages provided by MWA using typical space sizes.Table 4 outlines the declared office needs per department,with their accompanying square footage. Police space needs are discussed separately below. TABLE 4: 2040 OFFICE SPACE NEEDS, EXCLUDING POLICE DEPARTMENT Small Office Med Office Large Office Med Cubicle Large Cubicle Square Feet 4120 sf 4180 sf @ 200 sf @ 70 sf 4120 sf Needed City Management 2 2 600 Public Works Admin 2 8 3 21 20 6,150 HR/Risk 7 5 1,610 Central Services 2 8 29 3,710 Community Development 7 43 5,400 Finance/GIS/IT 6 6 1 27 3,890 City Attorney 1 7 2 980 22 Tigard Civic Center I LONG RANGE FACILITIES PLAN TABLE 5: 2040 ADDITIONAL SPACE NEEDS, EXCLUDING POLICE DEPARTMENT Special Spaces Storage Equipment Additional SF Additional space City Management 0 needs beyond offices and cubicles were reported by Public Works Admin 3 plotters 550 the Tigard 2 copiers Leadership Team and captured in HR/Risk private storage closet; badge photography 350 Table 5.These storage in shared area equipment; private additional spaces printer;worktable; include room for shredder; badge equipment,storage, desktop computer and special needs. Central Services secure court records; 2 copiers; plotter; 1,075 office supplies; records printer;worktable; vault folder/inserter Community public records station plotter;3 copiers,4 1,000 Development behind counter small copiers;4 (microfiche; printer/pc, personal copiers desk,file cab) Finance/GIS/IT production space for IT storage; secure server for main 1,330 utility billing; accounting/ IT production space for contracting storage IT(work on 6 computers) City Attorney secure files 30 Total Department additional space SF: 4,335 Tigard Civic Center I LONG RANGE FACILITIES PLAN 23 TABLE 6: 2040 DEPT. SQUARE FOOTAGE NEEDED, EXCLUDING POLICE DEPARTMENT Base SF SF with 20% Needed space factor Table 6 outlines total department space needs.The City Management 600 720 "Base SF Needed '"column combines the square footage for office spaces from Table 4 with the square Public Works Admin 6,700 8,040 footage for additional spaces from Table 5.The space HR/Risk 1,960 2,352 factor of 20% is then added to this number for the total gross square footage needed by 2040. Library Storage 667 800 Central Services 4,785 5,742 Community Dev. 6,400 7,680 Finance/GIS/IT 5,220 6,264 City Attorney 1,010 1,212 Court/Jury/Waiting/Office 2,888 3,466 SHARED SPACE NEEDS City Council Chambers 1,465 1,758 Tigard City departments reported the ability and desire to share Totals 31,695 38,034 certain kinds of spaces across all departments.The ability to collaborate and work in project teams also requires larger and more flexible spaces,and the need for more conference rooms, break out spaces,and workspaces.Table 7 outlines what each department stated could be shared with other departments. TABLE 7: DEPARTMENT SHAREABLE SPACES DEPARTMENT COPY MEETING BREAK ROOM/ LOCKER MAIL SERVICE COUNTER/ ROOM ROOMS KITCHEN ROOM ROOM LOBBY City Management • • HR/Risk ■ • • • Central Services ■ • • ■ • • Community Development ■ • • • • ■ Finance/GIS/ IT • • • • • 24 Tigard Civic Center I LONG RANGE FACILITIES PLAN TABLE 8: 2040 DEPARTMENT SHARED SPACES Space SF Amount Total SF People Served Mail Room 250 1 250 all Table 8 outlines the current understanding of these shared spaces and their relative sizes, Copy Room 250 1 250 all assigned by MWA. Break Room/Kitchen 2000 1 2000 all The amounts shown includes the additional Service Counter/Lobby 1000 1 1000 all meeting rooms required to meet projected future needs. Several of the spaces included in Table 5 Extra small meeting rooms 64 3 192 2-3 potentially could be shared with the general Small conference rooms 180 6 1080 6-8 public,such as the kitchen,exercise and locker Medium conference rooms 255 9 2295 10-12 rooms,and the extra-large conference room,if such a strategy is determined to be appropriate. Large conference rooms 375 5 1875 14-16 Staff restrooms 250 2 M,2 W 1000 all Public restrooms 200 2 M,2 W 800 all Janitor 150 3 450 - Storage 350 3 1050 - Backup generators-exterior 200 2-exterior 400 Police/IT Rotating office space-visitors 100 3 300 Fire,etc. Backup server room 450 1 450 - Shared SF: 13,392 Total Shared SpaciSF+20%space factor: 16,070 TOTAL DEPARTMENT AND SHARED SPACE NEEDS, EXCLUDING POLICE Combining all the department office spaces,additional spaces for each department,and shared spaces,the total square footage needed for the City of Tigard departments by 2040,excluding Police, is 54,104 sf. Tigard Civic Center I LONG RANGE FACILITIES PLAN 25 POLICE SPACE NEEDS The Police Department has unique space needs required for their operations as the central station serving Tigard.The report"Tigard Police Space Needs TABLE 9: 2040 POLICE DEPARTMENT SQUARE FOOTAGE NEEDED Assessment," prepared by Mackenzie in 2013,served as the basis for this Space Use SF Needed SF with 1.2 analysis.This report was compiled through facility,operations,and workflow space factor investigations,staff interviews,and the firm's experience with police space Public Lobby 1,532 1,840 standards and facility design. Interviews with police during the facilities study's data collection confirmed that the report's assessment was still current and Police Administration 3,662 4,395 acceptable. Please refer to this report for particulars regarding police department Investigation Services 2,812 3,375 space needs that are captured in each space use in the tables below. Community&Prevention Services 3,440 4,130 The overall police space needs for year 2024 from the Mackenzie report were Information&Support Services 1,740 2,090 reduced to reflect the newly stated needs of the Police Department,and the need to not include certain types of spaces,such as a dedicated firing range. In addition, Evidence Storage 6,212 7,455 some minor adjustments to the report's space sizes have been made based on Police Support 7,625 9,150 information collected from interviews. Dedicated exercise and locker rooms are Facility Support 1,744 2,090 included so as to ensure secure access to police personnel,as opposed to shared facilities with other city employees or the public. Evidence storage,currently Fitness &Training Room/Storage 4,440 5,328 located offsite, is included in the forecasted space needs for a new facility on the Sally Port(2-car) 1,750 2,100 Civic Center site. Future add-on space is included as a contingency for increased staffing due to city population increase,change in work style,or other factors. Future Add-on 4,200 5,460 Table 9 to the right outlines the space needs for Police.The 20%efficiency ratio Total Police Department SF: 39,157 47,413 reflects the ratio used in the Mackenzie report in order to maintain consistency. An Emergency Operations Center(EOC) is a critical component of public safety. TABLE 10: EMERGENCY OPERATIONS CENTER/IT The current EOC is housed in the large community space in the Public Works SERVER ROOM SPACE NEEDS facility,which has been found to be seismically deficient(see Seismic Screening section above).The current alternative EOC location is within the Tigard Library Space SF People Served on Hall Blvd. A new EOC is recommended to be included as part of a resilient Extra Large 2520 75-80 police facility,with spaces that can also be shared community spaces when not conference room used as an EOC during an emergency. Secure room 800 16 As part of a resilient facility,the main IT server room is proposed to be located Storage 400 - within the footprint of a new police building.This space would house the City's Kitchen 400 all servers (with backup servers in a City Hall building)as well as cubicle space for two IT employees.Table 10 outlines the spaces proposed for the new ECC/large IT Server Room 300 - community room,and the IT server room spaces. IT staff cubicles(2) 200 2 Combined together,a new resilient police facility that includes an EOC and IT Total SF: 4,620 Server room will total 52,033 sf. 26 Tigard Civic Center I LONG RANGE FACILITIES PLAN COMBINED SPACE NEEDS Combined,the space needs for all City departments including new police facilities are projected to be a total of roughly 102,680 sf,as outlined in Table 11.This number represents more than twice the square footage currently on the site. New facilities to replace the existing City Hall, Permitting Center,and the Niche functions would be almost one and a half times larger,while new Police facilities would require over triple the size of the current facility. TABLE 11: COMBINED TOTAL 2040 SQUARE FOOTAGE NEEDED Existing SF o New SF on site on site SF Increase /o Increase All Departments+Shared 54,104 28,105 25,999 93% Spaces excluding Police Police+ EOC+ IT Server 52,033 13,525 38,508 284% Totals 106,137 41,630 64,507 155% Some of the factors that contribute to space increases are as follows: • The number of employees currently working in facilities on the Civic Center site are forecasted to increase through additional hires to address current deficiencies and by relocating Public Works administrative staff to the site from across the street, necessitating additional offices and workspaces. • City employees on the Civic Center site will grow from nearly 200 FTE currently to 290 FTE by 2040, representing a 45% increase. • Substantial space and seismic deficiencies in the police facility,and poor space adjacencies as outlined in the Mackenzie report, prevent the police from functioning at full capacity,and especially following an earthquake event. • Uses currently off-site,such as police evidence storage would be relocated to the site. • Existing deficiencies in library storage for used books,as well as other storage needs. • Deficiencies in meeting rooms,collaborative workspaces,staff amenities,and flexible office layout requires additional spaces and a greater efficiency ratio for facilities. • The need for a dedicated Emergency Operations Center(EOC)and its ancillary uses. Tigard Civic Center I LONG RANGE FACILITIES PLAN 27 COMMUNITY USES In addition to the core city services described above,there is a desire to add uses to the site in order to serve additional needs of the citizens, help bolster the likelihood of project success,and help create the vision of the "Heart of Tigard"on the Civic Center site. Resident and stakeholder polling and interviews were conducted to help determine interest in additional uses. Several uses have been identified as highly desirable: • Public Plaza:15,000 sf-45,000 sf hardscape outdoor space,including water feature • Community Rooms:10,350 sf multi-use spaces, including classrooms, multi-purpose rooms,storage, offices,and restrooms. • Exercise and Locker rooms:4000 sf exercise room; 2500 sf of locker rooms • Small commercial space:1,500 sf coffee shop to serve staff and visitors • New Senior Center: 9000 sf day use spaces to replace current senior center • Existing Skate Park:19,820 sf skate park on site can remain as a successful catalyst for outdoor activities Table 12 outlines the community spaces used for site design purposes in this study. 1 TABLE 12: COMMUNITY SPACES Space SF Amount Total SF People Served Locker rooms/showers 1250 1 M,1 W 2500 all Public restrooms 200 1 M,1 W 400 all Exercise rooms 2000 2 4000 all Storage 350 1 350 - Community Rooms 2000 2 4000 all Community Rooms 1350 4 5400 all Commercial Space 1500 1 1500 all Senior Center/Meals on Wheels 9000 1 9000 30-40 Skate Park 19,820 1 19,820 all Total Community Space SF: 46,970 28 Tigard Civic Center I LONG RANGE FACILITIES PLAN DEPARTMENT ADJACENCIES The interviews with the Tigard Leadership Team outlined the needs for departmental adjacencies within new facilities.Adjacencies are intended to be approximate, Figure 7 below captures the adjacency information in graphic form,and will be used by the design team to organize the building massing and site design options. KEY ADJACENT 1 f � COM.DEV. PUBLIC WORK NEARBY f • J • • FINANCE . , , HR/RISK : % \ l BURHHAM Figure 8 illustrates the existing siteN.\ and building footprints on the left,with ni \\:\\\\:\\:\\: . the forecasted City Hall, Police and Community space needs at the same scale on the right.This comparison illustrates ICEI how future facilities will likely need to ix,U175F oasF be multistory to accommodate all of the 11 I space needs on the site,while reserving some site area for open space. - •:))),))))))) I SKATE PARK %)))) 14�8205F llllll-fl 4 P ,..... 11,OLICE190 sF cl #, CRY HALL PERMITTING 11,594 SF 13,308 SF Figure 8: Existing site and facilities(left image) compared to forecasted space needs(right images) 30 Tigard Civic Center I LONG RANGE FACILITIES PLAN OFFICER f SF OFFICES 00 SF I I 1 1 IRR 3 CIT CI-WADERS IL '��01 l08SF ii in IT AMBERS BACKUP GENERATORS I I Jill 1,530 iF 4005E . . . -- SENIOR SPACES `F+�r�ran 1450 SF I I ,=_____ —s_..._...._., COW 1048 SF 39G6 5F I7 W+FFQR IIII I^I 0.-A g OIFY ATTORNEY I I PLF@4iC Fa -- 790SF amst -- DX/EXTRA ■ STAFF RR LARGE II 100D SE -- CONFERENCE POEM ,..wZ rle`.r ..00:14..x. FINAMaiel5 4120 TOTAL i SAve SF LARGE CONFERENCE (OMMLINFTY 1815 5F ROpMS RAMAFYIII SF COMM UNTTT CONE RErtE ■■■■ „nv...4.4...., i.�:r.� .moi 6EME49oMENT ]24.9} OFFrCES 21S0 sf am a 57755E ■■■■ I Wm" ' CONFERENCE CENTRAL 10905E J CLA$SFiOOGti i .11.1.141,. [o......o-a pri..s SERVICES 5,11:4)IF PLPERIC FM ■ . 11 .... 745 MEETING �� 4,74 W 4975 SF R04N15 1512$ESTY13ER71Q - SERVICE usEF11.RIC 55i r COUNITER/LO96Y awa - >Oran HUMAN fOoosF RESOURCES EXERCISE . . 2375 5F F WS L:. BREAK ROOM A=SF POLICE FACILIIYSPACES-43,615 SF 20065E PUBLIC WORKS LOCKER -1 ADMIN. ROOMS 611465ECOPY ROOM RACK UP 2506 DIY CITY U5E5 MAI ROOM III^I SERVERAI MANAGEMENT An,REG 5F 5005F 4505E 610 SF SNARED USES 19,392 SF COMMUNITY SPACES CITE HALL SPACES Tigard Civic Center I LONG RANGE FACILITIES PLAN 31 PARKING NEEDS Parking on the Civic Center site will be a large component and a driver of site planning,as well as a major aspect for determining what additional uses will be able to fit on the site. New parking can cost between $7,000 and $10,000 per space for surface parking,and between $18,000 and $40,000 per space for above-ground structured parking,depending on the parking garage configuration and level of exterior finishes. For each parking space,400 sf is used to calculate the total space needed for a parking area.This area provides for circulation and backing-up space. Total staff and visitor parking needs were gathered from Tigard Leadership Team interviews.The total aggregated number of spaces are outlined in Table 13.These basic numbers assume dedicated parking spaces for each department use. TABLE 13: CIVIC CENTER PARKING NEEDS I IIIIm — — Total Auto Total Auto — Staff Fleet Spaces SF Motorcycles Bicycles All Departments except Police 145 35 180 86,400 8 50 Police 50 50 100 40,000 10 10 Visitors (all departments) 37 14,800 5 30 Library Visitors 90 36,000 Court Visitors 50 20,000 Community Center Visitors 75 30,000 Senior Center Users 50 20,000 Totals 582 232,800' 32 Tigard Civic Center I LONG RANGE FACILITIES PLAN 5. Site Design Recommendations The project team, led the by the Tigard Leadership team,developed a site vision , . d , � ,rte . t ' 4 vision and goals helped inform the concepts discussed later in this report. See 5,�� ,4{--, ':TRANSIT CENTER II--I air - Appendix A for additional site design requirements. �� . .., � f i`�, •, ¢' ' '. at" dr' SITE VISION ;,. ... :tom,, • Be a new living room of the city ' ,/.,::::•.=-•.t „t FIRE STATION �- , • Contribute to the heart of Tigard that includes Main Street, Fanno Creek f + �► �� :• ti`" ,#400.114k..4 PUB LIC WORKS r I. Park and the Library `: ♦ r_. '�"r/� ► . + . SITE GOALS yr / #g Nib. ' , - CIVIC CENTER 1. Make the site urban and dense,and aligned with Tigard Strategic Vision , , ' 2. Create strong connections to Fanno Creek Park, Downtown/Main Street, ` •` FANNOCREEKPARK -.• `\ and the library r FANNO CREEK HOUSE 3. Provide reasons to visit the Civic Center,for both city business and • `` SENIOR CENTER - I community gatherings m� 1-. 4. Include a plaza,with multi functional outdoor spaces - '' PLACEMAKING OPPORTUNITIES The Civic Center site has the potential to become a vital part of the downtown area,with multiple reasons to Figure 9:The Civic Center in the heart of Tigard visit,stay, play and participate in urban life.The site has the benefit of being located near the downtown core of Tigard and Fanno Creek Park.Along with its walkability and proximity to transit,the components of an improved Civic Center will help create a sense of place and vitality for Tigard. JIM GRIFFITH MEMORIAL SKATEPARK This existing recreation amenity for people of all ages will remain an important anchor for the recreational aspects of the site. With the potential to add a permanent cover over the park,this destination could be usable Tigard Civic Center I LONG RANGE FACILITIES PLAN 33 year round,and be a focus of youth programs and inter-generational activities. Enhancements and complementary recreational uses on site will encourage activity beyond just city services. PUBLIC PLAZA The City of Tigard has identified the need for additional public spaces such as plazas,squares,and open spaces that can serve a variety of uses for residents. A new Civic Center should strive to integrate a large central plaza that can be part of the"heart of Tigard"concept,and be used for both passive and active uses. Examples of possible uses include hosting the weekly farmers market, movies,concerts,and waterplay features.The plaza could incorporate outdoor furniture and play equipment, landscaping elements,and sustainable design features that could be used for educational purposes.The plaza could be used by visitors,staff working on site,seniors in the nearby senior center, and public using the community amenities onsite (community classes,workout rooms,etc.).The plaza could also generate revenue through renting the outdoor space for events,shows,and local and regional organizations. r `y - - . '-mss,- 131 ' ,. .., ' „"' `, _ _�.1_. ♦ wss Fa }'sem. P M1 L a ' �y ,t ,.I. t � 1 yX ail& , i t p _ Ali _ ----- 11 . PI d !�0 k.9. -. 31 X04 p1 Taf • -e - —I- • - _ ant : r =, Figure 10: Local Plaza ti Precedents 34 Tigard Civic Center I LONG RANGE FACILITIES PLAN CORNER SITE The predominant corner of the Civic Center site lies at the intersection of Burnham and Hall.This corner site is vital to create a public face for the site,welcoming those arriving by car,foot and bicycle. By locating a new civic building here,the functions and opportunities of the Civic Center could be a gateway and wayfinding element of the City Hall,a new plaza,and Fanno Creek Park. FANNO CREEK PARK CONNECTIONS Fanno Creek Park is a major public open space amenity that runs just to the south of the Civic Center site, connecting the site to downtown,the library,and points beyond. Significant improvements are underway for the park's trail system, lighting and signage.The direct connection from the park to the site represents a major opportunity to incorporate a public plaza as an extension of the park,and provide an expanded public space for events and education. Similarly,a new Civic Center plaza could become a new gateway to the park,drawing people through the site to the trails and creek HALL BOULEVARD Hall Boulevard is currently under the purview of the Oregon Department of Transportation (ODOT). As such, the city cannot make changes to it without ODOT's partnership and approval . If jurisdiction should change in the future,the city could decide to make additional improvements to the street,circulation layout,and connections across Fanno Creek that could improve and benefit the Civic Center site. For example,on-street parking could be added to provide additional short term parking for the plaza and skatepark.A more pedestrian friendly crossing from Fanno Creek to the library could be implemented.Additional stoplights, pedestrian lighting, bike lanes and street furniture could be incorporated to help with walkability and safety. SITE ACCESS AND CIRCULATION There are several access strategies to be considered for the Tigard Civic Center site in order to meet the intent of the Downtown Plan, improve access and exiting,separate automobile and pedestrian traffic,and assist Police in exiting for an emergency. Figure 11 illustrates these opportunities for improvement. Site access strategies include: • New street required:The City has indicated that the existing Hall Blvd.entrance is envisioned as a future street that could be designed as a 'festival street',giving priority to pedestrians during normal conditions.This access could also be used for emergencies,to access the public plaza during events, or become secondary circulation through the site. Tigard Civic Center I LONG RANGE FACILITIES PLAN 35 Hall Blvd.access: It is recommended that the main entrance to the site �'' off Hall Blvd. be moved to the southern site edge along Fanno Creek Park. This would increase the distance from the Hall-Burnham intersection to , , ._ . _. ., ,, , approximately 575 feet,allowing easier left turns onto Hall.This location , - ' 1 . :. would also provide an additional buffer and setback from the upland • eIi " . T..., . ; water edge (50 foot minimum),and the Fanno Creek flood zone.This - entrance could provide access to parking, drop off zones,and any • - secondary exits.Any pedestrian crossings from the site to Fanno Creek ,. .„.' k Park should be designed to maintain low traffic speeds,and prioritize !I pedestrian safety. i' - 1 • Burnham St.access:The existing site access off Burnham St.to the Niche - it$ i , 1 , r parking lot would likely need to be removed with the building of new r ,S 2 !ry;K'¢3!! _ . trr : g p ) I ' facilities. New access for staff,deliveries,and the public would have to be considered.The adjacent curb cut onto the KEI property presents a possible new site entrance,either through acquisition of that property,or "f ♦ - `yi; an easement or shared use agreement. In addition,the easement and existing entrance onto the Frontier property,currently utilized only by police,should remain in effect. However,this entrance would provide • _ft future secondary public access and egress so that police security and A -- • priority are maintained. • Site Circulation: It is recommended that vehicle movement through the site should be limited to parking access and designated drop off areas, „.„..........17 - - with priority given to pedestrian circulation.Access to facility entrances 4. and the public plaza should be clear and protected from the elements as much as possible. Conflicts with police circulation should be minimized. It may be desirable to create a circular path for vehicles to access and Figure 11:Civic Center . , . MAJOR CAR CIRCULATION exit the site from Hall Blvd. or Burnham St.This path may necessitate Site Opportunities MINOR CAR/ vehicle circulation north-south along the Frontier property edge, FESTIVAL STREET reserving the center of the site for public outdoor space. PEDESTRIAN CIRCULATION 1 PROMINENT CORNER ■ PLAZA/FANNO CREEK PARK COMMUNITY LIVING ROOM ' CONNECTIONS/ACCESS y SUN PATH 36 Tigard Civic Center I LONG RANGE FACILITIES PLAN PARKING STRATEGIES Rick Williams,the project's parking consultant, provided preliminary parking strategies to apply to the site. Most significantly is that parking areas should be no more than 750 feet from a person's destination.This is the maximum distance a person is likely to walk from their automobile to a building entrance.This parameter will help inform the final site design for the surface and/or structured parking to best serve visitors and staff. There are several other parking strategies to be considered for the Civic Center site in order to meet the baseline needs of the city departments and their visitors,and to best incorporate parking for any additional uses. Parking strategies include: • New buildings should include at least one underground level of parking within their footprints to serve short term and disabled parking needs.This strategy is most cost effective due to excavation for foundation systems serving 2 - 6 story buildings. A similar strategy could be employed for a new police facility for secure police parking and sally port. • Parking needs for the Civic Center site should not be accommodated solely with surface parking. Structured parking should be considered for staff and visitors. • An above-ground, multi-level parking structure on site could be set back to allow active uses to front the streets.The final footprint and height will be determined as the study progresses. • Police require secure parking for staff and fleet,a secure sally port,and an exit onto Burnham (identified by project consultants, Kittleson Associates as the safest ingress/egress from the Civic Center site). Ideally, police vehicle circulation throughout the site should be separated from visitor and pedestrian circulation,and police should maintain priority for exiting onto Burnham and Hall in an emergency. • The project team has been working with city staff to identify existing surface parking on neighboring properties potentially reducing the overall parking load on the Civic Center site and limiting the amount of structured parking.A long term parking agreement with adjacent Frontier Communications would be optional.This surface parking could be used for secure police parking or visitor parking.The area could also be used for construction staging during redevelopment.Appropriate ingress and egress from this area in the form of an easement should be included in any use agreement. Conversely,failure to secure a long term lease for on-site parking on the Frontier property would likely result in additional stories of structured parking. • Hall Boulevard is envisioned to be redesigned in the future to accommodate on-street parking, but this study does not yet assume any available on-street parking.There is the potential for 30 or more visitor parking spaces on Hall between Burnham and Fanno Creek Park, if Hall is reconfigured in the future. Tigard Civic Center I LONG RANGE FACILITIES PLAN 37 • Some surface parking should be provided for short term visitors,ADA parking spaces near entrances, visitor and senior drop off zones,and temporary parking for the public plaza area. • To discourage automobile trips and encourage walking and biking to the site,the city should consider a parking fee.This would also create a revenue stream to help pay for new facilities and the staff required to maintain parking areas. PARKING REDUCTION STRATEGIES It is desirable to optimize the total number of parking spaces on the Civic Center site so as to keep surface parking to a minimum, reduce the size of a parking garage (reducing construction costs),and encourage people to walk and bike to the site. Structured parking,as with a parking garage,can cost as much as$32,000 per stall. As Table 14 shows,allowable parking per code for the proposed land use mix at the Civic Center site ranges from 356 stalls to 434 stalls.The City's estimated parking need for the proposed uses is 407 stalls,which falls within the allowable quantity. However,when fleet and library visitor vehicles are factored in,the parking need increases to 582 stalls,exceeding the maximum allowance of 434.These estimates assume stand-alone,or dedicated, stalls to meet demand for each land use category.Thus, parking reduction strategies should be employed. The most effective way to reduce parking on site (and construction costs) is through shared use based on demand scenarios. Underutilized parking throughout the day is assumed to be available for use by all land uses. TABLE 14. TIGARD OFF-STREET PARKING REQUIREMENTS ■ A B C D E F G Stalls as Stand- Facility Square City of Tigard Stalls as Stand- City of Tigard City Estimated Proposed Land Use Mix Alone Uses Footage MIN Ratios Alone Uses MIN MAX Ratios Need by Use Office Use 54,000 2.7/1,000 SF 146 3.4/1,000 SF 184 232 Emergency Services 52,000 3.0/1,000 SF 156 3.5/1,000 SF 182 50 Community Services 27,000 2.0/1,000 SF 54 2.5/1,000 SF 68 125 Totals 133,000 356 434 407 City Hall Fleet parking N/A N/A N/A N/A N/A 35 Police Fleet parking N/A N/A N/A N/A N/A 50 Library visitor parking N/A N/A N/A N/A N/A 90 Total w/fleet+Library 582 38 Tigard Civic Center I LONG RANGE FACILITIES PLAN This allows for accommodation of varying peak hour uses characteristic of each unique land use-as opposed to a stand-alone model that assumes parking for a specific land use that is exclusive to that land use. 1111 Rick Williams ran three need models to analyze shared use, based on code minimum allowances,code maximum allowances,and the MWA/City estimates. The most relevant is the analysis for code maximum allowances. Figure 12 shows the results of the shared use parking demand modeling recommended for the Civic Center site. General findings and considerations for parking built to code maximum allowances are as follows: • The actual peak demand is 458 stalls if all uses share parking.The peak hour occurs at 10 AM. shored uses Plus Reets-Maaim.a AIorb ce i5O13 Etinetcd Demand -Mimed Use=458 • A garage built to the maximum allowance(501)would have a buffer of •PoliceR°et •Poke's*i ■may Fla =eet ■city ItiI ■Comm,. Center ■SeniarCeirt- 500 43 stalls at the peak hour to accommodate variations in demand that 450 might occur(e.g.,employee/visitor growth,seasonal variations). y 40D 350 • Based on regional averages of construction cost per stall,a 501 stall 3C0 garage would be approximately$16.03 million; assuming a fully loaded - 250 construction cost of$32,000 per stall. $ 2C0 • Building closer to shared demand (458) could save up to$1.38 million lap - , . . , - - , . , (43 stalls). ISI o T T T T T T • The dedicated City Hall and Police Fleet vehicle parking account for 85 + + + 4.4 �4 e e c4 +* e stalls (18.6%) of the 458 stalls at peak demand occupancy. PARKING RECOMMENDATIONS Figure 12: Maximum Allowance Share Use Based on the shared use analysis and general parking strategies outlined above,it Parking Demand Model is recommended that the redevelopment of the Civic Center include multiple strategies for parking in order to reduce the total number of parking stalls to between 400 and 450. • Solicit a use agreement with neighboring properties (Frontier Communications)for surface parking to accommodate Police fleet and/ or staff parking. 11111 • Design all new facilities to include a sub-grade level of parking under the entire footprint of each facility where appropriate. Tigard Civic Center I LONG RANGE FACILITIES PLAN 39 • Include on-grade surface parking on the site to serve people with disabilities,deliveries,short-term parking,and some visitor parking. • Provide a multi-level structured parking garage to accommodate the remainder of the parking needs on site,for staff, police,visitors,and library patrons. • Encourage uses that have different peak parking hours,such as office and housing,or transit users and housing. SITE IMPROVEMENTS Depending on the extent and phasing of the Civic Center project,site improvements could range in impact and degree of intervention and construction. EARTHWORK The site will require extensive earthwork and likely some small retaining walls along the southern edge to provide level areas for the plaza,access roads and site areas. Further study beyond what has been performed for this planning phase is needed to more fully understand the grading impacts to the site.Also,a full topographic survey of the site is needed. FRONTAGE IMPROVEMENTS If the proposed site circulation plan is implemented,a new driveway onto Hall Blvd.would be needed at the southern edge of the site.The existing driveway at the mid-point of the site on Hall Blvd.will be reused as access to the festival street.The existing public driveway on Burnham would be moved to the west of the new development on the corner of Burnham and Hall,and the sidewalks rebuilt to current Tigard standards.The existing Police egress off Burnham would be maintained and improved as required. PUBLIC UTILITIES The public and franchised utilities surrounding the site are largely unknown. However, based on the existence of current development on the site it is assumed that future development can be adequately served by utilities without the need of off-site utility improvements or new utility main extensions. 40 Tigard Civic Center I LONG RANGE FACILITIES PLAN If redevelopment is extensive, it is assumed that all utilities to support the new development should be new and not reused. Even the utility connections to the city water/fire and sanitary mains should be assumed to be rebuilt as new. However,the existing stormwater outfalls into the Fanno Creek Wetland should be reused,so as to not disturb anything within this environmentally sensitive area.The 1985 Tigard Civic Center plans show that two outfalls were constructed. STORMWATER MANAGEMENT SYSTEM The stormwater runoff from new impervious surfaces(roof and pavement area)would require management using approved Best Management Practices (BMPs). Ideally,those would involve vegetated typed infiltration facilities(aka rain gardens or storm planters), but site uses and grading constraints may prevent the use of those types of facilities. In these situations,treatment requirements may need to be met using proprietary filter cartridge type facilities. Stormwater runoff release into Fanno Creek may require a flow control device to restrict flows to existing development rates, if detention is required.Temporary storage of excess stormwater could be allowed in the rain gardens/storm planters proposed along the southern edge of the development. Tigard Civic Center I LONG RANGE FACILITIES PLAN 41 6. Facilities Design Recommendations Similarly to the site vision and goals from the previous section,the project's Leadership Team developed a vision and goals for proposed city and community facilities that are discussed in this section. See Appendix A for additional facility design requirements. FACILITIES VISION • One stop shop for city services and public interface • Collaborative spaces for city employees to work as teams • Community spaces to activate the site FACILITIES GOALS 1. Resilient public safety facilities are essential 2. Include more shared city spaces: meeting rooms, break rooms,flexible office layouts 3. Public rooms and meeting spaces are desirable 4. Parking is critical,and needs to serve city employees, police,and visitors 5. Health/wellness/community rooms are highly desirable 6. Smaller commercial spaces like incubators are desirable 7. Keep the successful skate park in place,and leverage it for active outdoor spaces RESILIENT DESIGN FEATURES In order to provide for a more resilient future for the City of Tigard and its facilities,there are several resilient design features that are recommended for all new facilities on the Civic Center site. See Appendix B for additional resilient design information. 42 Tigard Civic Center I LONG RANGE FACILITIES PLAN FACILITY SEISMIC RESILIENCE Civic Center facilities that would be needed in and immediately following a major disaster include the Police Station,the Information Technology(IT) department,and the Emergency Operations Center(EOC). It is recommended that the IT server room and EOC be incorporated into the same building so that the structural system and redundancies can be concentrated within one seismically reinforced structure.These spaces could be in the Police or public Community Building. Utilizing a structural system of base-isolated foundation footings, high-strength concrete,and structural steel,this facility should be the most resilient of all the Civic Center buildings,and be designed to be immediately occupiable following an event. In addition to resilient structural systems, non-structural systems such as the HVAC,electrical, plumbing and IT should be reinforced, hardened or otherwise secured to survive and remain in service should an earthquake occur. Backup power generators that serve the critical functions of the Police and IT departments would likewise be located on or near this facility for ease of switching to recovery power. CAMPUS TECHNOLOGICAL RESILIENCE As most of the City's records,communications and services rely on technology and computer systems remaining functional,this aspect of the Civic Center should also receive additional resilient design measures. Locating these critical systems in the most resilient facility is a first step(see above). Providing for redundancy via a multi-trunk fiber optics system would create a"looped"system that can be more easily repaired or bypassed in the event a portion is severed or disrupted. Providing redundant server rooms in multiple facilities could help to recover services more quickly should the primary server go down. Currently there are plans to house a backup server in the Tigard Library across Hall Blvd.and run the fiber between sites. EMERGENCY OPERATIONS CENTER The Emergency Operations Center(EOC)serves the critical function of a command center for local and regional authorities to lead response activities in the event of a major emergency or disaster. An EOC can be a multi-purpose space for monitoring response activities,communicating to the public and response teams,and training room for scenarios and response exercises. Major components of an EOC include a large conference room for tables,chairs,computer monitors,and communications activities; a secure room for computer and communications equipment and supplies;a large kitchen area;and general storage areas. In order to optimize space on the Civic Center site, it is recommended that the non-secure EOC spaces(large conference room and kitchen) be made available for public use when not activated as an EOC.This would provide for a large gathering space and commercial kitchen for a variety of functions and events. Tigard Civic Center I LONG RANGE FACILITIES PLAN 43 RESPONSE AND RECOVERY OPPORTUNITIES The Civic Center site can also serve resilience functions by providing flexible and adaptable exterior spaces that can be used during and after an emergency.A large public plaza and parking area can become staging grounds for First Responders,as well as a distribution point for relief efforts. Emergency shelters could be deployed in this space for displaced residents,and resources from the site used for emergency purposes (like water collected from roofs). It is proposed that these types of functions be considered during a more detailed site and building design phase. SUSTAINABLE DESIGN FEATURES The Civic Center site should strive to incorporate sustainable design features into facilities and the site. Sustainability reinforces the goals of Tigard and provides for more efficient and cost effective buildings. ENERGY AND WATER EFFICIENCY A major component of sustainability is energy efficiency. High-performance buildings,with increased insulation in walls, roofs and foundations,and super-efficient HVAC systems,translate into lower energy bills and operating costs. Centralized systems for heating and cooling that serve all the Civic Center facilities can help reduce costs and repairs even more. High efficiency plumbing systems,with low-flow faucets and toilets can also reduce the environmental impact on water treatment and purification infrastructure. The site design for stormwater should incorporate sustainability features such as bioswales,eco-roofs, permeable paving,and detention ponds.These will help lessen the impact on the storm drain system and the nearby creek, helping to control flooding and site deterioration.These types of features not only help with overall sustainability, but also provide educational opportunities for the public. RENEWABLE ENERGY Solar energy is becoming more affordable,and PV panels on roofs will provide for both renewable energy,and backup power should the electric grid fail in an emergency. Such systems could pay for themselves in a matter of years,and provide for educational opportunities for the public. 44 Tigard Civic Center I LONG RANGE FACILITIES PLAN LEED CERTIFICATION Certification systems,such as LEED (Leadership in Energy and Environmental Design),can push design teams to incorporate even more sustainable features into the Civic Center site.There is also certain funding streams that become available if LEED is achieved.The City of Tigard does not currently have a requirement for LEED certification at any level for municipal facilities. FACILITY BASIS OF DESIGN For each facility,a basis of design was developed using the space programming information outlined in previous sections. Best practices for resilience,sustainability,and civic facility aesthetics also informed the basis of design.This information was used to help specify major structural, mechanical,electrical and HVAC systems,as well as finishes.This in turn informed a preliminary building cost estimate. Additional input from City staff,Citizen Advisory Groups,and design professionals will inform the final facility sizes,design elements, and costs. For each facility,specific space needs assessments and facility designs will occur once funding is acquired and architects are selected to address all building and site parameters. POLICE AND EMERGENCY OPERATIONS CENTER The combined Police Facility and Emergency Operations Center would likely be the most resilient building on the site with the most defined program and spaces,consisting of the following major components: • Square Footage: 52,033 • Structural System: Above grade,structural • Number of Stories: 2-3 steel framed commercial office building with steel beams,girders and columns supporting • Floor-to-Floor Height:12' floors constructed with concrete topping slab • Overall Height: 24'-36' and 3" metal decking. Ordinary Steel Braced Frames placed at strategic locations for • Occupancy Category: IV lateral load resistance. Basement parking • Below Grade Parking Area: 20,000 sf level will consist of base isolated system (using triple friction pendulum isolators and • Exterior Finish Type: brick and metal panels sliders)over concrete columns,shear walls • Roof Area/System:20,000 sf Flat SBS and perimeter basement soil retaining walls. system;or low slope,standing seam metal Conventional concrete footings. • Interior Finish Level: medium,office • Glazing: Storefront systems and office-type windows. Tigard Civic Center I LONG RANGE FACILITIES PLAN 45 CITY HALL AND PERMIT CENTER A new City Hall and Permit Center would serve as the face of the Civic Center and reflect the values of the City of Tigard. Providing for the staff and the services they provide would result in a combination of an office building and public service space,consisting of the following major components: • Square Footage: 54,104 • Number of Stories: 4-5 • Floor-to-Floor Height:12' • Overall Height: 48'-60'v v • Occupancy Category: Ill • Below Grade Parking Area:12,000 Figure 13: Local Civic • Exterior Finish Type: brick and metal panels Building Precedents • Roof System:12,000 sf Flat SBS system `` x x 5 . LOCAL PRE 4 • Interior Finish Level: medium,office �: • Glazing: Storefront systems and office-type _ li 1.11: r 4 windows. I- -1* II_ q =4�' rl111111111 �� II I i_ I �! d ;,: Iasi - r"+- • Structural System: Structural Steel framed R, • :.y commercial office building with steel beams, _ 1 4 '� -4 7 f 1 . t-. Lair. girders and columns supporting floors _J1 constructed with concrete topping slab and ,� r �.-:J s� 3" metal decking. Steel Buckling Restrained 9 �- Braced Frames placed at strategic locations for lateral load resistance. Conventional s, concrete footings. Basement parking levels ,�- will consist of concrete columns,shear walls . _ and perimeter basement soil retaining walls. ` � Conventional concrete footings. .a f - \ \ 19: r y 9 lowit � � I ll 46 Tigard Civic Center I LONG RANGE FACILITIES PLAN COMMUNITY BUILDING The Community Building would serve as a hub for 1 activities,events,and classes for the public. In COMMUNITY ILDING �1i, addition,shared facilities for City staff such as locker i e,7 u�� 1i.-- _.,x.+- v. / rooms and workout spaces would be housed in this +ii y„0,,�6. ` ,��'!$i 1I . ;1 1, f facility,consisting of the following major components: �I ---�_. ''110 iq ,. i 1 I • Square Footage:18,000 II �, M_ ,, "'y�7 1 - ,-- rw , • Number of Stories: 2-3 ;-- p4"Ili • Floor-to-Floor Height:12' _ - j' • Overall Height: 24' 36' _-. '" g E Operatic) Celt_.' �, • Occupancy Category: Ill . „ • Below Grade Parking Area: 5,600 sf T • Exterior Finish Type: brick and metal panel ' I Pr' i •2 Illii _ • Roof System: low sloped, Standing seam _ _ es,0.�,.,_ , ` !? _ 1 PI ' r I metal. Potential for vegetated roof v -- \ -,j 1. . Ji.-. �b t • Interior Finish Level: medium,office .r. kd =-'T _• '�-. _7 , ,- �,,, i s, 1 • Glazing: Storefront systems and office-type 1 windows. > 1 Rooms , Flexible Community Rooms • Structural System: Structural Steel framed Figure 14: Community commercial office building with steel beams, Building Precedents girders and columns supporting floors constructed with concrete topping slab and 3" metal decking. Steel Buckling Restrained Braced Frames placed at strategic locations for lateral load resistance. Conventional concrete footings. Basement parking level would consist of concrete columns,shear walls and perimeter basement soil retaining walls. Conventional concrete footings. Tigard Civic Center I LONG RANGE FACILITIES PLAN 47 SENIOR CENTER The existing Senior Center across Fanno Creek Park from the Civic Center serves local residents as a day-use facility,as well as a hub for Meals on Wheels services.There is an opportunity of incorporating a new Senior Center into the Civic Center site,either as a stand-alone building or as part of an enlarged Community Building.A stand-alone Senior Center would have the following major components: • Square Footage: 9,000 • Roof System: Low Sloped, potential for • Number of Stories:1 Vegetated areas • Floor-to-Floor Height:12' • Interior Finish Level: medium,office • Overall Height: 24' • Glazing: Storefront systems and office-type windows. • Footprint Area: 9,000 sf • Structural System: Conventional wood stud • Occupancy Category: Ill framed building with pre-manufactured gang- ▪ Below Below Grade Parking Area:to be determined nailed roof trusses. Plywood shear walls for lateral resistance. Conventional concrete • Exterior Finish Type: brick and metal panel footings. PARKING FACILITY The structured, multi-level parking facility on site would accommodate the remainder of desired parking stalls not already accounted for below new facilities or on surface lots. Finished size will depend on the final facility and site layout. • Square Footage:approximately 142,800 • Roof System: Flat SBS system • Number of Stories: 3+ roof • Interior Finish Level: none • Floor-to-Floor Height:12' • Glazing: none,openings only • Overall Height: 36' • Structural System: Structural Steel framed • Footprint Area: 33,400 sf parking structure with steel beams,girders and columns supporting floors constructed • Occupancy Category: II with concrete topping slab and 3" metal • Below Grade Parking Area: none decking. Concrete shear walls placed at strategic locations for lateral load resistance. • Exterior Finish Type: North and East sides Conventional concrete footings assumed, but brick and metal panel, West and South sides piles may be required due to proximity of metal screens creek. 48 Tigard Civic Center I LONG RANGE FACILITIES PLAN iarF i 1 Aid ti' ,Y I. ,semi e kr ' :64,=,t1,."-,.' .' • t ; . a —*Ali .alt .: f 41: — Ate, -�a , �1a� _ X ' ' `SII p •r ..,w_ �: tin SMART PARK OLD TOWN.450 SPACES,200'K 200'FOOTPRINT,4 STORIES AND 5 LEVELS,BUILT FOR$41,000 PER STALL PORTLAND AIRPORT PARKING GARAGE:GREEN SCREEN FACADE BUILT FOR$79,000 PER STALL n ,,f , „inn I��'- — .�� ! i Ino 101'LI III1111111111, �, - - - _ ,,t 1,.Vi1 .I I. R _7,__._ .___I- - _I- 3; Figure 15:Structured . r I parking garage t precedents METAL SCREEN WALL SYSTEMS CAN BE MORE AFFORDABLE ABOUT$30,1100 PER STALL HEATING, VENTILATION, AND AIR CONDITIONING SYSTEMS Depending on phasing strategies,several options exist for HVAC systems for redeveloped Civic Center facilities:centralized vs.decentralized. With multiple buildings located relatively close to one another,the recommendation is to utilize a centralized utility plant approach to provide heating and cooling for all buildings. The longevity provided by a robust hydronic system far outweighs the lower first cost of a less robust variable refrigerant system (see Appendix X for a full basis of design explanation).This system would likely be installed on the roof of the Police facility,given that it is a strong candidate for Phase 1 construction.All subsequent facilities would get tied into this central plant system as they are constructed. Additionally,the air source heat pump(ASHP)approach is very attractive from an energy savings and maintenance perspective.The replacement of separate chiller and boiler systems with a single ASHP system allows for simplified maintenance and installation.The energy savings realized by the ASHP will accelerate the payback period and help justify the slightly higher first cost. Tigard Civic Center I LONG RANGE FACILITIES PLAN 49 PLUMBING SYSTEMS Domestic cold water would be run from the city service line to each facility. Domestic hot water would be provided through a single water heater within each building.This water heater would be commercial grade high efficiency gas type. Hot water would be circulated by means of a pump,which would minimize wait times for hot water at the locations it is needed. ELECTRICAL SYSTEMS A recommended central utility plant would utilize a medium voltage distribution switchgear at 7200 volts or 12.47kV.The switchgear would then distribute power via outdoor pad mounted transformers to the respective buildings. In lieu of a central plant approach,an alternative would be to provide separate electrical services to each building via individual pad-mounted utility transformers. Two emergency 600KW diesel-fired engine generators would provide standby and life safety power. LIGHTING SYSTEMS Facility lighting would consist of LED fixtures such as strip lights,surface mounted fixtures,decorative wall mounted luminaires,and pendant luminaires. Dimmable controls and occupancy sensors will be used to increase energy efficiency. Exterior lighting would consist of surface mounted and decorative wall mounted LED luminaires. New lighting would be provided around the plaza and along pedestrian pathways. Site lighting would consist of a combination of pole mounted, LED lamped,full cutoff luminaires and bollard luminaires. Lighting controls would be set to automatically turn on at dusk. FIRE ALARM SYSTEMS The fire alarm systems would be installed to meet the requirements of NFPA 72 and the Oregon Structural Specialty Code. The fire alarm systems would have batteries to provide continuous operation upon loss of primary power. Notification would be provided by horns and strobes. Strobes would be located in all public and common use areas. TECHNOLOGY SYSTEMS Fiber and copper backbone cabling would be installed at either the Centralized Utility Plant or the nearest telecom pedestal (for decentralized system).Cabling into buildings would consist of Category 6 outlets for voice and data at workstations, point of sale locations and wireless access point locations. Horizontal cabling would terminate on rack mounted, Category 6 panels. Provisions for redundancy,"loop"fiber systems,and other resilience measures should be design by a IT professional. 50 Tigard Civic Center I LONG RANGE FACILITIES PLAN 7. Facilities Plan Implementation Leland Consulting Group(LCG) and Barney and Worth (BW) provided input on potential implementation strategies for the Tigard Civic Center project. Redevelopment of the Civic Center would likely take place over a number of years, potentially as many as twenty. Funding streams will necessarily occur over time,with money being devoted to a phased approach to site and facility redevelopment. Implementation would be guided by the Facilities Plan and its supporting documents,with priorities being set by public input and City Council recommendations. See Appendix C for public outreach and polling information. DEVELOPMENT STRATEGY LCG provided the Tigard Leadership Team with four development models based on other Civic Center examples.The Cities of Hillsboro, Eugene,Vancouver,WA,and Long Beach,CA each had different approaches to their developments,with the Hillsboro example being the most appropriate in the opinion of the Leadership Team. The Hillsboro example provided for a mix of uses that are primarily public, but with opportunities for commercial and residential. It is considered the heart of the community and has active uses for all ages. It is well-connected to transit and has adequate parking via an adjacent parking garage. It features high quality design and construction and is certified LEED Gold. The aspects of the Hillsboro development strategy that are applicable to Tigard are as follows: • A vision and concept plan was completed prior to construction. • The city owns the property and the buildings outright,as opposed to leasing facilities or developing under a public-private partnership. • The city and public functions are clustered together, mostly within a single building. For Tigard,some separation of uses would be desirable from a funding and phasing standpoint. • Tigard might not need a "master developer"as was used in Hillsboro. It is possible that the City could select one developer or builder for development of its facilities and select one or more other developer(s)to develop ancillary functions such as housing or incubator office space on separate "pads." In this way,the City could play the role of master"site developer." • City staff could take on the following roles, potentially with assistance from owner's representative or other consultants: o Lead the design and oversee construction of public plazas/open space,and if necessary, lead the design and oversee construction of the interior rights of way and utilities. Tigard Civic Center I LONG RANGE FACILITIES PLAN 51 o Sell or lease"pad"sites. If separate pad sites are a part of the selected Tigard Civic Center plan, such sites would be conveyed to third party developers via competitive processes(RFQ, RFP,or other; property sales are more typical than ground leases). • The City may require additional staff to manage both construction and ongoing maintenance of the Civic Center. Additional components from other development models that could benefit Tigard's approach include: • Build additional office space that is leased to private tenants in the short-term.This can potentially advance several goals, including a) allowing for the future expansion of city workspaces, b)generating additional revenue,or c) increasing the mix of uses in the Civic Center. PROPERTY ACQUISITION AND DEMOLITION Redevelopment of the Civic Center would likely necessitate both the demolition of some or all of the existing buildings on site,as well as acquiring neighboring properties to unify the site boundary and maximize redevelopment potential. PROPERTY ACQUISITION Kim's Embroidery Inc. (KEI) occupies a 0.8-acre site located immediately north of the current city hall. KEI owns the business and associated building. The property occupies an important location vis-a-vis the current and future Civic Center,as it is adjacent, surrounded by City-owned property,and has a frontage on Burnham Street,one of Downtown Tigard's main pedestrian and auto thoroughfares.The Burnham Street frontage is an important one and could provide the Civic Center with much more visibility and integration with the rest of downtown. However, it is still early in the Civic Center planning process,and plans for the future Civic Center will likely include alternatives that make use of the KEI property,and others that do not. Given this situation,the City should begin seriously evaluating and planning for the potential acquisition of the KEI property. Such a potential acquisition should be very thoughtfully managed,as the KEI owners may or may not be willing sellers. Because the inclusion of the KEI site is so integral to the conceptual planning of the Civic Center,acquisition,or at least gaining site control through an option,should be pursued immediately so as to confirm the project site area and create a more compelling vision of the Civic Center for the community.That is,control of the site should occur before a public vote. 52 Tigard Civic Center I LONG RANGE FACILITIES PLAN Tigard should engage a commercial real estate broker to assist with this effort.This brokerage group could perform some or all of the following: • Provide estimates of the property's value based on recent comparable transactions. • Conduct other due diligence regarding the property,on issues such as easements,environmental conditions,etc. • Meet with the KEI owners and understand their goals. • Evaluate potential relocation options for KEI, based on the owners'desired building attributes and locations. • Negotiation of a purchase option,and purchase price and terms. • Relocation assistance, if desired. In addition to the KEI property,an evaluation of offsite properties for purchase or lease should be considered in regards to the phasing needs of the city's functions. For instance, if short term office space is required while new facilities are constructed,a thorough evaluation of cost to lease,cost to retrofit for specific needs,and cost of moving should take place before approving a final phasing plan. PROPERTY DEMOLITION As phasing is implemented based on specific priorities, it is likely that portions of facilities,such as the existing Police station would need to be demolished, if retrofitting is not desirable. Tigard Civic Center I LONG RANGE FACILITIES PLAN 53 SITE CONCEPTS Preliminary work based on the site and facility assessments produced three site concepts for a fully redeveloped Civic Center.Two of the concepts assume demolition of all existing facilities except the skate park. A third concept envisions keeping and remodeling the skate park,the City Hall and Permitting Center facilities,with the demolition of the Niche and Police station.These three concepts provide a starting point for refinement through work with a Citizen's Advisory Group to produce a final recommended concept for the Facilities Plan. . CONCEPT 1 Concept 1 for the Civic Center includes the following major components: --� • No additional land acquired I BURNHAM • New Police Station with EOC I • New City Hall and Permit Center 1r----. City Hall t P • New Community Building with Senior Center KEI l► i It • New 3 story Parking Garage !II0ao ° � a, • Large Public Plaza 7/////////// 1 * Public F' J • Leased surface parking next to site ) U Plaza •i /))))) /� 41,41 .I Skate Figure 16 shows the plan view of Concept 1,and 1 • Police . Park Figures 17 and 18 show perspective views. Il 111 1 111 � •.. i ill Oy .•II Laa 11 1 1 1 1 1 1 . idil FESTIVAL STREET w w w MR/ it k q 1-1 Parking Garage ri Communit rli 1 1 Jcxx,o , _I - NEW DRIVEWAY Figure 16: Concept 1 ,�r� ` Plan View �00 �;J�J�A C -- TO FANNO CREEK PARK 0 Concept 1 1 54 Tigard Civic Center I LONG RANGE FACILITIES PLAN ----,.=1 - Allik '4111111111110111111 4111" 1-4 leibilliridil - , --' '',,A 0,4- - ' - .-- ,J,) , -• ec io , ) , . . c- .,‘ Cl 4 : c) ____, Figure 17: Concept 1 Perspective (looking north) -.... 1 ii Apik % -,--.4111111111111111111:11110.- _. 111111111V11111116- -...............448.48400110, s ,„,111.4hhik ii HI \iliv ,.. , ' ' liShiStbit 1 ' ., -1•,-- , , --- Figure 18:Concept 1 Perspective (looking south) Tigard Civic Center I LONG RANGE FACILITIES PLAN 55 CONCEPT 2 Concept 2 for the Civic Center includes the following major components: • Additional land acquired (KEI property) • Existing land reserved for a future development • New Police Station with EOC • New City Hall and Permit Center • New Community Building with Senior Center • New 3 story Parking Garage , - _--j , \ ss • Large Public Plaza I- BURNHANI • Leased surface parking next to site \\\\\\\\\\ I _ I - Figure 19 below shows the plan view of Concept 2,and Figures 20 Community City Hall and 21 show perspective views. I ` EP I hilitt b ilL i/// Public lee )))))))))� Plaza i 4 Police I�4 Skate Park 411 111111111' � � 1 7 41VW 01 lb A Mb ii n I I I I I I I1)111111111111111 FESTIVAL STREET 1 L , Parking Garage Future , Oevelopmen %1E21.___ 40 • 1 ��00 CI-CIO 0 _= �/ 7�.: III NEW DRIVEWAY Figure 19: Concept 2 -- - -'0 ' r �� O -) � Plan View - I / TO FANNO CREEK PARK 0 Concept 2 1 / I , 56 Tigard Civic Center I LONG RANGE FACILITIES PLAN IP __.. --ii: -----' 41- 111111 "01,--7 111,111111 '':F� � 7? i `vFle Figure 20: Concept 2 Perspective (looking north) __--- MAIMIOW`-. , 1.41-----*Ir a—:___-- — _ } i ` .w, 1i__I.- ir go 0.0 I ka I ‘... ' *464 I 1 11 i 101 WI I� 1 I ' P _____ Figure 21: Concept 2 Perspective (looking south) Tigard Civic Center I LONG RANGE FACILITIES PLAN 57 CONCEPT 3 Concept 3 for the Civic Center includes the following major components: • No additional land acquired • Remodel existing City Hall & Permit Center • New Police with EOC • New City Council and Court chambers • New Community Building with Senior Center \\77 � I\ \ i I • New 3 story Parking Garage • Medium Public Plaza N.. \ -_ BURNHAM • Leased surface parking next to site \\\\\\\\\\ 0 Cl)- ---. -, Figure 22 below shows the plan view of Concept 3,and Figures 23 1 I w Police and 24 show perspective views. KEI ' II§. w! ...cw- 41114 14101 --- 4740,141%111* _."%04111111111111ii --140,, ---7 X1'`111' *410.. , orsis 1 . \ ..► Figure 23: Concept 3 Perspective (looking north) '.- %"-- l'...001.1„...H0:1€46iiill--- - ll.IIIII:::::eA: '4111101b'' - Is ... Nulleibb._ 00.0.1- '4° Ilpr Figure 24:Concept 3 Perspective (looking south) Tigard Civic Center I LONG RANGE FACILITIES PLAN 59 SAMPLE PHASING PLAN Phase 1 ® - - A`' Components: Police/EOC A full phasing plan for the Civic Center redevelopment can only occur after a final concept has been , • i w IT Server room developed,along with cost estimates and funding plans. What follows is a sample phasing plan based on the _ _,o . Skate Park Cover te Access off Burnham Concept 1.This phasing could happen over 5 to 20 years depending on funding availability.The goals with any �: � 1 il9ard Skale phasing plan should be to minimize impacts to city services and staff spaces that are not a part of the building 4 M illb phase.To that end, utilizing the existing surface parking areas for new construction would allow offices to - remain open during construction. Figure 25 illustrates the following four plan phases for Concept 1: , ; 4 of SAMPLE PHASING PLAN FOR CONCEPT 1: It-+ 9a dcrv�all� 11 -S PHASE 1: • Construction staging area set up in adjacent Frontier parking lot Phase 2 '° "'•' \_ � G Components: • Construct new Police Station with an integrated EOC and main server room on west side of site � � City Hall 1 1 �- '�I. Entrance Plaza 1g Way • Construct cover over existing skate park ; - like upgrades • After Phase 1 construction is complete, police can move into their new facility and demolition of the Tigard Ska existing Police Station can commence. -j •Ji'. ' ' ,I =, PHASE 2: ii • Construction staging set up in Frontier parking lot or Civic Center central lot. C" llit,d1,,,,,.7 I • Construct new City Hall and Permit Center with offices, public lobby,court room and city councilI , chambers on northeast corner of the site • New NE corner entrance plaza Phase 3 a "•,- -- Components: i , ' Community Center • Upgrade the adjacent rights of way 1 I jr �� Parkside Plaza 1 ' t Stormwater System • After Phase 2 construction is complete, City Hall and Permit Center staff can move into new space, ; - Auto Entrance and demolition of existing City Hall/Permit Center can commence 's d5,< a..v -� PHASE 3: ', ,Fa7aaa. gI _ ___. uoatil • Construction staging set up in southwest corner or Frontier lot. : + _ � ii m;lk• V • Construct new Community Building in southeast corner of the site , u ii. !,i • Construct new parkside plaza adjacent to Community Building and Fanno Creek park II Et „. 'ooa°"=goo Figure 25: Sample • After Phase 3 construction is complete, prep remainder of site for final phase ->�) i phasing scheme 60 Tigard Civic Center I LONG RANGE FACILITIES PLAN PHASE 4: Phase 4 ® - o :H Components: Parking Garage • Construction staging in Frontier lot —= • � \ Central Plaza Stormwater • Construct new Parking Garage in southwest corner of site • Auto Access • Construct new central plaza with water feature and landscaping -, °' o?` • Complete stormwater systems and landscaping • Complete new automobile access around site and to parking garage • e • Complete pedestrian access and circulation Figure 25: Cont'd -`000Sample phasing scheme COST ESTIMATES Preliminary cost estimates were calculated based on facility basis of design and the three site concepts.The cost estimates are not to be considered the entire cost of the project,as many factors contribute over time to fluctuations in prices for materials,cost of labor,financing of funding,etc. For multi-phased projects,each phase will have an associated cost estimate.The following were included in preliminary cost estimates: • Direct construction costs(Contractor Overhead =4.5%) • Estimating and design contingencies • Phasing costs at+/- 5%/yr • General conditions/insurance/bond allowances • Temporary landscaping on future development areas The following were not included in the preliminary cost estimates: • Soft costs (design fees,etc.) • Property acquisition and lease agreements • Internal city admin/permitting/engineering costs • Moving or temporary relocation costs • Furnishings and equipment • Hazardous materials testing and removal • Financing costs Tigard Civic Center I LONG RANGE FACILITIES PLAN 61 Each major component of the Civic Center redevelopment would have an associated cost.These are estimated in Table 14 below,and grouped together according to how the work would likely proceed according to a Concept 1 phasing plan.These estimates are for a baseline understanding for the potential cost of the Civic Center redevelopment,and should not be considered final. Given the local construction market's volatility and contractor's recent bidding practices,these numbers should be used as a baseline starting point for future budgeting discussions. TABLE 14: PRELIMINARY COST ESTIMATE BASED ON CONCEPT 1 Component Approx.Area(sf) $/sf Approx.Cost Site, Skate Park,and Right of Way 250,000 $44 $11.000,000 Police Station 52,033 $500 $26,016,500 Police Secure Parking(100 stalls) 40,000 $80 $3,200,000 City Hall and Permit Center 54,104 $500 $ 27,052,000 Community+Senior Center 27,000 $ 350 $9,450,000 Parking Garage (357 stalls) 142,800 $80 $11,424,000 TOTALS n/a FUNDING PLAN Likely funding streams for facilities include local bond measures for an increase in property taxes,direct loans to the city,and funds from project income generation (renting of facilities, leasing space, pay for parking,etc.). A complete funding plan would need to be developed based on a final preferred redevelopment concept and phasing plan. CHALLENGES TO REDEVELOPMENT • Development of a final site concept and phasing plan.This study produced three concepts for the redevelopment of the Civic Center site. One utilizes only the existing city-owned property to build all new facilities;one acquires adjacent property to expand the City's site to redevelop with city uses, while also leaving space for future development;and one remodels the existing City Hall and Permit 62 Tigard Civic Center I LONG RANGE FACILITIES PLAN Center and builds new facilities for the remainder of the spaces. Refining one of these, or developing a new site concept,will require staff and public input, design team collaboration,and even developer feedback.A successful phasing plan will require prioritization according to need and cost to bring the most viable facility to construction in the shortest amount of time. For example,it is recommended that a Police/EOC facility be highly considered for a phase one project. • Building public awareness and support.With any large construction effort,cities are challenged to educate their residents as to the need and the vision that will result in successful support for raising funding.According to public outreach surveys, most Tigard residents do not understand the facility needs,and feel the City finances and service levels are acceptable. Illustrating the facility deficiencies, especially as it relates to disaster resilience and public safety,will mean a concerted outreach and marketing effort by the City and concerned residents. • Estimating project costs. Preliminary cost estimates were developed for the Plan's three concepts, but these estimates, performed in 2017,are already out of date. Given the Metro Area's current construction boom,a shortage of labor, little competition,and increased contractor overhead has driven up costs for projects of all types. Major escalation fees in excess of 7% per year should be factored in for any phased project,and extreme escalation fees up to 20%should be included as a buffer against the volatile market factors. It is recommended that each phase of a redevelopment project be carefully designed and priced out with a contractor on-board to guarantee project delivery for the approved price.The 2017 preliminary cost estimate estimated a full redevelopment of the Civic Center at$80-100 million. • Funding for redevelopment. Regardless of any funding plan the City may develop for this project,the residents of Tigard have expressed their desire for the City to do more with less,while maintaining vigilance in their budgeting and spending.This means that a phased approach is likely required,with facility construction spaced out so that funding streams can cover project costs through each phase. Facility bond measures can be brought to a vote,and other funding streams can be considered,such as revenue generating uses(parking,community spaces,commercial, housing),city loans that don't require a public vote,grants for resilience and emergency services,and public-private partnerships. • Property acquisition near the site and beyond. Any final concept plan will need to determine whether additional property adjacent to the existing Civic Center site (specifically the KEI property), or elsewhere in the city is desirable and should be a part of the funding plan.Acquiring the KEI property can provide better continuity for the site development, provide additional site access opportunities,and allow the City to have a greater civic presence along Burnham St. Property acquisition will add at least$1-2 million to the project. Tigard Civic Center I LONG RANGE FACILITIES PLAN 63 CONCLUSION AND NEXT STEPS This Plan outlines the comprehensive need for facility improvements to ensure the City of Tigard can continue to grow and serve its residents for the next 25 years.The Citizen Advisory Task Force has agreed that a need exists and that some form of improvements should be pursued.The Plan's three redevelopment concepts represent a starting point for future discussions around the best use of the existing site,and whether it's the more feasible to build all new buildings or to renovate existing buildings to the greatest extent.The Citizen Advisory Task Force has developed redevelopment priorities and principles that will help guide future work. With the approval by City Council,staff can initiate the next planning phase of the project to create a final site and facility master plan,which would include site layout and project phasing.With this master plan in place, recommendations for funding of phase 1 can be developed for City Council review. 64 Tigard Civic Center I LONG RANGE FACILITIES PLAN 8. Appendices APENDIX A. DEVELOPMENT PLANNING OVERVIEW APPENDIX B. RESILIENCY CONSIDERATIONS APPENDIX C. PUBLIC OUTREACH AND OPINION FINDINGS Tigard Civic Center I LONG RANGE FACILITIES PLAN 65 Appendix A Development Planning Overview TIGARD STRATEGIC PLAN Between 2012 and 2014,the City of Tigard set out to define its sense of place and the direction it wanted to take over the next 20 years. Ideas ultimately coalesced around a vision for Tigard to become a healthy, walkable and interconnected community for all. In 2014,the City Council adopted the Strategic Plan,with the following vision and goals outlined for the City of Tigard: Vision: The most walkable community in the Pacific Northwest where people of all ages and abilities enjoy healthy and interconnected lives. Goals: 1. Facilitate walking connections to develop an identity. 2. Ensure development advances the vision. 3. Engage the community through dynamic communication. 4. Fund the vision while maintaining core services. 2027 COMPREHENSIVE PLAN The project area (Figure 1) is part of the larger Tigard Downtown Improvement Plan (adopted in 2007)that resulted in updates to the Comprehensive Plan and Development Code. Specifically a new'District'in the City's Development Code was created with a host of standards specific to the downtown area,including the project site. As a result,the project area has many development requirements which are detailed in the following analysis that could affect how the project area develops.A few stand out, including: • A required 50-foot setback and a gathering place for the public from the'upland water edge'of Fanno Creek; • Two new street connections that will bisect the site; 66 Tigard Civic Center I LONG RANGE FACILITIES PLAN • A new trail along Hall Blvd; • Hall Blvd is currently an ODOT facility;and, • The Development Code and Comprehensive Plan identifies the area as a location for high density mixed use development. The City's Comprehensive Plan is the blueprint for the city and is divided into sections based on the 19 State Goals. Each of these sections contains goals and policies.The applicable, pertinent policies that could affect the design of the civic center site are listed below.This report does not list every policy because many do not apply to the project site or type.These policies were specifically included here as they may impact the design of the site. Each policy listed below shows both the goal number from the Comp Plan and the implementing policy number. Before each of the 19 goals are reviewed, it should be noted that the Comprehensive Plan also includes a detailed section on Downtown Tigard, including information on the voter-approved Tax Increment Financing District that was approved as part of the Downtown Urban Renewal District in May 2006.While there are many policies regarding Downtown, most are incorporated into the Tigard Downtown Plan District(MU- CBD). Downtown specific policies that are not part of the Development Code, but relevant, include: 15.3-2.The Fanno Creek Public Use Area,adjacent to Fanno Creek Park,shall be a primary focus and catalyst for revitalization. 15.3-3. Development of the downtown shall be consistent with the need to protect and restore the functions and values of the wetland and riparian area within Fanno Creek Park. 15.4-5 Streetscape and public area design shall focus on creating a pedestrian friendly environment without the visual dominance by automobile oriented uses. Other potentially applicable policies that could affect the design of the civic center site are listed below. GOAL 1- CITIZEN INVOLVEMENT The site is within the Citizen Participation Organization (CPO)4B. While not a policy,this will be important as the project moves forward and a public process will be required for both the project development and land use permit approval process. GOAL 2- LAND USE The Land Use Designations from the Comprehensive Plan map are: • MU-CBD- Mixed Use Central Business District • OS-Open Space Tigard Civic Center I LONG RANGE FACILITIES PLAN 67 The requirements of these designations are described in detail in the Development Code requirements(see following section). Other potentially relevant policies from the Land Use goal include: 2.1-5 The City shall promote intense urban level development in Metro designated Centers and Corridors, and employment and industrial areas. 2.1-23 The City shall require new development,including public infrastructure,to minimize conflicts by addressing the need for compatibility between it and adjacent existing and future land uses. 2.2-5 The City shall require the replacement and/or installation of new street trees, unless demonstrated infeasible,on all new roads or road enhancement projects.Trees should be planted within planter strips,or at the back of sidewalks if planter strips are not feasible or would prohibit the preservation of existing trees. 2.3-2 The City shall give priority to the protection of existing trees,taking into consideration the related financial impact of mitigation. GOAL 5- NATURAL RESOURCES, SCENIC AND HISTORIC AREAS AND OPEN SPACES The City shall protect and restore riparian and upland habitats to the maximum extent feasible on public and private lands. 5.1-13 The City shall identify, preserve,and create linkages between wildlife habitat areas,to the extent feasible,as a key component of parks,open space,and surface water management plans. GOAL 6- ENVIRONMENTAL QUALITY 6.1-3 The City shall promote land use patterns which reduce dependency on the automobile,are compatible with existing neighborhoods,and increase opportunities for walking, biking,and/or public transit. GOAL 7- AREAS SUBJECT TO NATURAL HAZARDS 7.1-4 The City shall design and construct public facilities to withstand hazardous event with a priority on hazard protection of public services and facilities that are needed to provide emergency response services. 7.1-10 The City shall work with Clean Water Services to protect natural drainageways and wetlands as valuable water retention areas and,where possible,find ways to restore and enhance these areas. 7.1-12 The City shall encourage pervious,and minimize impervious,surfaces to reduce storm water runoff. 68 Tigard Civic Center I LONG RANGE FACILITIES PLAN GOAL 8- RECREATIONAL NEEDS 8.1-3 The City shall seek to achieve or exceed the ideal park service level standard of 11.0 acres of parkland per thousand population. 8.1-17 The City shall maintain and manage its parks and open space resources in ways that preserve, protect,and restore Tigard's natural resources, including rare,or state and federally listed species,and provide"Nature in the City"opportunities. GOAL 9- ECONOMIC DEVELOPMENT 9.1-6 The City shall promote actions that result in greater, more efficient, utilization of its Metro- designated Employment and Industrial Areas. 9.1-10 The City shall strongly support,as essential to the region's economic future,the development of efficient regional multi-modal transportation systems throughout the Portland Metropolitan area. 9.3-1 The City shall focus a significant portion of future employment growth and high-density housing development in its Metro-designated Town Center(Downtown); Regional Center(Washington Square); High Capacity Transit Corridor(Hwy 99W); and the Tigard Triangle. GOAL 10- HOUSING 10.1-5 The City shall provide for high and medium density housing in the areas such as town centers (Downtown), regional centers(Washington Square),and along transit corridors where employment opportunities,commercial services,transit,and other public services necessary to support higher population densities are either present or planned for in the future. 10.2-2 The City shall seek to provide multi-modal transportation access from residential neighborhoods to transit stops,commercial services,employment,and other activity centers. 10.2-7 The City shall ensure that residential densities are appropriately related to locational characteristics and site conditions such as the presence of natural hazards and natural resources,availability of public facilities and services,and existing land use patterns. GOAL 11- PUBLIC FACILITIES 11.4-8 The City shall locate appropriate municipal administration offices and services in downtown Tigard. Tigard Civic Center I LONG RANGE FACILITIES PLAN 69 GOAL 13- ENERGY EFFICIENCY 13.1-5 The City shall take a leadership role in local energy matters by: A. designing and developing public facilities,wherever possible,that take advantage of alternative energy sources and conserve energy in operations; B. conducting energy audits on existing City facilities and implementing cost-effective recommendations as soon as possible; C. investigating and participating in,when feasible,green energy programs,which use renewable energy resources. 13.1-6 The City shall support energy conservation by encouraging designs that incorporate Leadership in Energy and Environmental Design (LEED)or other accepted standards or achieve a minimum certification. TIGARD DOWNTOWN IMPROVEMENT PLAN The City Council adopted the Tigard Downtown Improvement Plan (TDIP) in 2005.The plan provided a vision and implementing actions that led to the creation of the MU-CBD zone and related Comprehensive Plan amendments.The TDIP recommends actions within the project area, including relocating the Police Department away from the current site,and additional civic/employment development.The TDIP does not identify retail or residential for the project area. TIGARD 2035 TRANSPORTATION SYSTEM PLAN 70 Tigard Civic Center I LONG RANGE FACILITIES PLAN NEW STREETS .111 The Transportation System Plan (TSP)shows two new streets on or adjacent to - ,- I the property that do not currently exist (see Figure Al). Both streets are proposed , ,0 S`•P� of\ for a 52'-56' ROW and are labeled 'Future Connectivity Alignment Area'on Figure �S�s'Pie. ;,,,- ; Apex lndustri 5-14 of the plan. f s . I The first proposed street travels south from Burnham Street between the current NW Preferred \ I %�i \ n •demi Credit.Uriion embroidery building and the Frontier Communications building,and terminating s .,; at the north west corner of the police building.The proposed street follows an .� s' r`ard Pub Public Works ' •access easement currently used by the Police Department(A in Figure Al). O ! Tigard.armers Market0r, r The second proposed street is shown bifurcating many existing uses including a �` ,, ,�► • multi-tenant business center facility to the west of Frontier Communications site, +I the Frontier Communications property,and the Civic Center site.The proposed :The PartyTearn` swPu`arrt Y street (B in Figure Al) is shown continuing southeast bending in the parking area r r . n • of the neighboring lot to the east,continuing just to the north of the existing police - building and ultimately terminating on Hall Boulevard at the existing main ,,• • 64',!'. `• '�j tv entrance into the City Hall property. .'' :; Tigard Skatepark . g -y tt, m _ `tafFanaIP F....rAs it relates to the Civic Center site the proposed street path appears to go . w , t through the existing Police building. Given the current value the trigger, based on /"'. - r `` n _ 0 Tigard Police Department IF - the tax assessed value of the property would then be anything over 4 million •e , "-: I I a dollars.The City of Tigard has indicated that this future alignment should befr. 4t6 �` rr;,, ` 4*., Tigard City Hall® ;i f accounted for in the new Civic Center,either as an automobile entrance,or as a ' 'Festival Street'. Creek Park Cid x Figure Al.TSP proposed streets Tigard Civic Center I LONG RANGE FACILITIES PLAN 71 HALL BOULEVARD Hall Boulevard is an ODOT-owned road.The TSP lists specific'financially ` ra9I constrained' projects required by Metro's Regional Transportation Plan (RTP),one 93 of which is to widen Hall Blvd. between the OR 99W(Pacific Highway) and Fanno ;olhlihmizoihi. of. - , a_ Creek,which is within the project area.The RTP explains that the improvements to Hall Blvd.would be a $2,500,000 project and would be the responsibility of the \. I City and ODOT. Metro has a designation of Minor Arterial for Hall Blvd.The City 111 TSP classifies Hall Blvd.as an Arterial. Improvements include street widening to four or five lanes within a 98 foot right of way(based on the City TSP). Additionally, Figure 5-14 of the TSP identifies a new multi-use path along Hall Blvd.,shown as a dashed green line in Figure A2.These are normally considered off-street trails and include walking and bike uses. While not specifically related to streets or trails,the TSP also states that mixed use is encouraged to help address traffic concerns with growth (Goals 1 and 3 of the TSP). Specifically,the TSP IIIrequires: • Parking management, including pricing and time limits; 1 • Reduced parking requirements or parking maximums for new FA & C & ° �j 110 development; , RK • Improved facilities for pedestrian and bicycle access and circulation; '� In • Complementary mix of land uses; 'I —— I t{J' • Improved connectivity for motor vehicles as well as for bicycles and Figure A2.Additional pedestrians;and trail along Hall Blvd. • Transportation System Management(TSM) measures to improve traffic operations without significant capacity expansions. 11 11 72 Tigard Civic Center I LONG RANGE FACILITIES PLAN SOUTHWEST CORRIDOR PLAN In November,2016 Tigard voters approved ballot measure to allow the city tos` , � : Apex Indus ries in 4.0 participate in regional planning efforts to extend MAX light rail service to Tigard. P.SrP ~,, , Two options currently in development and pending voter approval,will be ''� .„... ,,e), 1 • - r , .,...:, evaluated in an environmental impact statement.The two alignments under f A, / 63 �� ;,W Preferred v/ y ., ,, ,,d� consideration: deralkCreditUni n • R` `,, • A direct route through the cityto Bridgeport Villa e,generallyparalleling ��' '• �s' gg s •` Tigard Public Works the WES line right of way,ander• ' \ \ * O • �,, TigardFarmers Market0f. r t • • An alternative that would include a branch line into Tigard, looping back ; "► 1 to the main line located along 1-5. The Party Team Sw&urnhani • , • • Both options would have the same impact to the Civic Center site, .?It paralleling the existing WES right of way about 300 feet north of the � ' ,` " r . i property.The closest station would be near the existing WES station on �a Air Commercial Avenue,or alongHall of This Blvd. norththe site. wouldr` , ,, Tigard Skatepar'k , \,,„ -i' • mean the closest MAX station to the City Hall site would be about 1,300 d ,t . xf / • ca feet or a 1/4 mile from the site.The proposed rail line as it relates to the i - „ I. ; 3- i�/�h. site is shown on Figure A3 as a dashed yellow line. .'^!Tigard Police Department • 0 T • ./ ,,,, Tigard City Hall® � FANNO CREEK TRAIL ` .�� IQ CWS and ODOT are currently working on improvements to the Fanno Creek Trail •K' • that links the Library to Downtown. Opportunities exist to enhance the connection N -- ;' 4 re. between the trail along the creek and the spur that leads into the Civic Center site. Fanno ^»„uy. , As design progresses,collaboration with landscape architects involved in the Creek Park ��% • Fanno Creek project is recommended. OPEN SPACE REQUIREMENTS Figure A3.Site as it relates to proposed light rail line Open space requirements come from many documents.The Tigard Park System (yellow dashed line) Master Plan was adopted in 2009. A"gathering place” is desired adjacent to Fanno Creek,supporting a range of passive and active open space and public uses, including a farmers market.The Park System Plan and the Comprehensive Plan call for a standard of eleven acres per thousand. Open space requirements are also found in the Development Code.The Downtown Plan District requirements call for: I Tigard Civic Center I LONG RANGE FACILITIES PLAN 73 • Mixed use with commercial and residential:any mixed use development greater than 60,000 sf must include at least one public space with a minimum size of 600 sf. Additionally open space must be abutted on at least two sides by retail shops, restaurants or services with windows fronting the space. • Mixed use with only residential: Buildings with more than 4 units require private open space of 32 sf per unit with a 4-foot min depth,and must be contiguous to the unit. Shared open space is also required for more than 4 units. Open space shall be at least 10%of the site. Partial credit is possible if more private open space is provided or if the project is contiguous with an improved park(Fanno Creek Park would likely not count).An in-lieu fee may be acceptable as well. • These requirements can be addressed by paying a fee. ZONING & DEVELOPMENT STANDARDS Figure A4.Zoning While there are two zoning designations on the site most of the zoning requirements are dictated by the Downtown Plan District(Chapter 18.650 of the Development Code)which is discussed below.The uses t,(Aare dictated by the zoning district(MU CBD)while all standards and entitlement process are dictated by PR the Downtown Plan District. ee� C-G M ZONING U-CBD Zoning(Figure A4)for the project area includes: • MU-CBD-Mixed Use Central Business District:The MU-CBD zoning district is designed to MU—CBD D provide a pedestrian friendly urban village in downtown Tigard. A wide variety of commercial, (pD)f civic,employment, mixed-use, multifamily and attached single-family residences are permitted. o Permitted uses: Residential, Multi-Family and detached single family by right, most civic uses -�C --� by right, medical centers by Conditional Use Permit(CUP), most commercial by right • including hotels, restaurants,and offices, most outdoor activities and car repair require CUP, car lots,fuel stations and storage with staff approval (restricted). Industrial uses are prohibited; except R&D which needs a CUP.Ag,cemeteries, heliports and mining are It 02, prohibited;jails need a CUP.Transportation facilities permitted by right. kms. o Standards:This area is part of a special District that has specific standards found in the R 4 5 ` R-12 >./ • Tigard Downtown Plan District section of the Development Code, Chapter 18.650. zl7-10 /(PD) (PD) 74 Tigard Civic Center I LONG RANGE FACILITIES PLAN • PR-Parks and Recreation:The Parks and Recreation Zone is applicable to all city-owned lands intended as parks,open space,and recreational facilities and may be applied within all comprehensive plan designations. o Permitted uses: Community recreation and some school structures,some limited commercial when ancillary to a recreational use. Conditional uses include dog parks, large picnic areas, community rooms,stages,amplified sound,golf,and illuminated sports fields. No residential. However,given the riparian nature of the park, none of these will likely be practical. See Downtown Plan District also. o Standards:There are minimal standards in the PR zone, particularly when the area is intended to remain undisturbed. Should any structural improvements be planned,such as restrooms or sports fields,they only have setbacks when next to residential zones, not the MU zones. Parking standards do apply to dog parks. • Tigard Downtown Plan District o The project site is within the Downtown Plan District which has specific standards(Chapter 18.650).This is not an overlay.These standards supersede all others in the code. o The Downtown Plan District breaks the Downtown area into sub-areas.The project site is within the"Fanno-Burnham"sub-area which has further requirements/standards. Specifically,the code explains: This sub-area provides an opportunity for medium scale residential or mixed use development. Compatible mixed uses(live-work,convenience retail,office and civic uses)are encouraged on the frontage of Burnham Street. The area in proximity to Fanno Creek Park will be an opportunity to create a high quality residential environment with views and access to the natural amenity of Fanno Creek Park. Building heights will step down to three stories so as not to overwhelm or cast shadows on the park. o Permitted Uses:these are guided by the MU-CBD zone.The Downtown Plan District just regulates form. Tigard Civic Center I LONG RANGE FACILITIES PLAN 75 DEVELOPMENT STANDARDS TABLE Al. FANNO/BURNHAM SUB-AREA DEVELOPMENT REQUIREMENTS Development standards outline requirements for construction and improvements FRONT SETBACK on the site. Min 0 ft. Max 20 Ft. SETBACKS SIDE FACING STREET ON CORNER AND THROUGH LOTS Table Al outlines the setback requirements for the site. Min 0 ft. • These setbacks only apply to new development;existing uses are Max N/A grandfathered. Significant renovation is considered new development. SIDEYARD • It should also be noted that a different section of the Development Code Min/Max N/A and Statewide Goal 5 requires that"good condition"vegetated corridors REAR SETBACK along Fanno Creek specifically be 50 feet measured from the upland edge Min 5 ft. of the associated wetland. Max N/A PARKING BUILDING HEIGHT Min 20 ft. • All parking must be set back 10 feet from the property line, no parking in Max 80 ft. the front of the structure. Parking on the side shall not exceed 50% frontage. Parking on a street must be screened. Within 200 feet of Fanno Creek Park 45 ft. Ground Floor Min Height None • All main entrances must be on the front of the structure, not facing the parking.This is true for residential and commercial. SITE COVERAGE Max 80% • Parking requirements follow the standard city requirements however, MINIMUM LANDSCAPING special exceptions exist for downtown including a 25% reduction in all parking requirements and further reductions in multifamily unit parking 20% requirements. For additional information on parking minimums and MIN BUILDING FRONTAGE maximums for the site,see the Parking Needs section of the Program 50% Assessment Chapter. RESIDENTIAL DENSITY (units per acre, residential only) ROOFTOP SCREENING Min 15 Max 20 • Anything over 2 feet must be screened (solar panels,wind energy and VEGETATED CORRIDOR green roofs do not need screening),and at least 5 feet from the edge of the roof. Min 50 ft. Max N/A 76 Tigard Civic Center I LONG RANGE FACILITIES PLAN BUILDING AND SITE DESIGN STANDARDS • All projects must comply with all standards.There are several specific Plan District design standards including a requirement for vibrant ground floors with weather protection and safety design,cohesive architectural facade standards,integrated facade standards,standards regarding a strong corner identity, building quality standards,open space/public plaza standards,and specific requirements for single family attached dwellings. A full set of standards are attached. ENTITLEMENT PROCESS • A pre-application review is required. • The Downtown District section of the Development Code contains the MU-CBD zone standards. • A Type II permit is a Director level of approval with public notice and appeal rights to the Hearings officer.This includes a review of the project's ability to meet the standards. Given the complexity of the envisioned development,this project will likely fall outside of this track. • A Type III is a Design Review Board level of approval with appeal rights to the City Council. A Type III in Downtown is unique as it is applicant requested and generally used if a project is unable to meet a clear and objective standard. If used,a Type III review has additional specific approval criteria.This is the most likely approval process for the project. • Submittal requirements:The Downtown Plan District has specific submittal requirements in addition to the standard application requirements. Generally,it is the standard site plan,elevations,and floor plans; however,an impact study and urban forestry plan,which focuses on tree canopy requirements, is also required.These plans must be consistent with the Urban Forestry Manual. See application submittal requirements for details. o A Standard Site Assessment and Service Provider Letter by Clean Water Services(CWS) must be issued prior to any entitlement approval because the site is within 200 feet of an identified environmental resource(Fanno Creek). o A CWS stormwater connection permit is required prior to any building permit issuance. o A Sensitive Land Review would be required if any drainage from the site would affect or has the potential to affect Fanno Creek. Tigard Civic Center I LONG RANGE FACILITIES PLAN 77 Appendix B Resilience Considerations Natural hazards become disasters when they impact vulnerable systems,such as cities,economies,and natural environments. Disasters can cause major disruptions to city services,and response and recovery efforts. Designing for resiliency and sustainability should be paramount concerns for the Tigard Civic Center project,especially as it concerns police and emergency operations.The following content is from the Tigard Hazards Mitigation Plan 2010,and the Tigard Emergency Operations Plan) COMMUNITY CONTEXT Tigard, located in Washington County and comprised of approximately 12 square miles, is home to over 50,000 residents with diverse demographics.Thousands more pass through the city everyday by car, rail and bus. As the downtown revitalizes and continues to develop, more people will live and work in Tigard. Tigard is vulnerable to multiple natural hazards,including flood, landslides,wildfires,severe storms and earthquakes.The city is dedicated to taking a regional approach to planning for natural hazards and disasters, and is part of the Washington County Hazard Mitigation Working Group.The city employs an Emergency Management Coordinator and maintains a hazard mitigation plan and emergency operations plan. HAZARD MITIGATION GOALS One of Tigard's three main natural hazard mitigation goals centers on Emergency Services: "Ensure public safety providers(law enforcement,fire safety,and emergency service providers)have the capability to respond to hazard events." One of Washington County's natural hazard mitigation goals also centers on Emergency Services: "Strengthen emergency operations by increasing collaboration and coordination among public agencies, non-profit organizations,business and industry." These goals directly link to the effort by the City of Tigard to replace and enhance their critical and essential facilities,especially the Police Station and City Hall. 78 Tigard Civic Center I LONG RANGE FACILITIES PLAN MULTI HAZARD ACTION ITEMS Multi-hazard action items are those activities that pertain to more than one for the five hazards in Washington County's mitigation plan. For many of the action items,the City of Tigard is the designated coordinating organization. Below are select action items that directly impact the efforts of the Civic Center project: • ST-MH #1: Improve and attain resources and equipment essential for responding to and recovering from disasters. New police and EOC facilities and backup generators would help implement this action item. • ST-MH #2: Ensure there are adequate shelter facilities in hazard-free zones to serve Tigard residents. New community facilities could serve as emergency shelters and help implement this action item. • ST-MH #3: Enhance communications network capabilities during hazard events.A new EOC and meeting spaces would help implement this action item. • ST-MH #10: Develop an inventory of at-risk public buildings and infrastructure and prioritize mitigation projects based on those providing the most benefit(at the least cost)to the city and residents.The Civic Center visioning process has helped to clarify the need for seismically upgraded city facilities. MAJOR SITE HAZARDS AND POTENTIAL MITIGATIONS The Civic Center site and its facilities are vulnerable to most of the major hazards possible for the region.The following outlines potential impacts for this project,and basic ways to address mitigation. FLOODING Oregon's largest economic loss from natural disasters has resulted from flooding. Floods are also Oregon's most frequently occurring natural disaster.The City of Tigard is located in the Tualatin Basin,with the Tualatin River defining the city's southern border. Streams within the city's border include Fanno Creek,which has two primary tributaries,Ash Creek and Summer Creek,and eight smaller tributaries, including Red Rock, Pinebrook, Ball, Derry Dell, Krueger, Hiteon and two unnamed streams.All of these water sources are susceptible to annual flooding events. The Tualatin River and Fanno Creek are susceptible not only to heavy rain but also to the potential failure of Scoggins Dam at Hagg Lake. At times of heavy rain these rivers,creeks,and lakes can overflow. Fanno Creek is the most susceptible to flooding in these instances,with many bridges contributing to the high water.The last major flood in the area was February,1996.The flow of Fanno Creek is constricted by many culverts and bridges,including one at Hall Blvd., resulting in increased upstream heights.The potential for damage is Tigard Civic Center I LONG RANGE FACILITIES PLAN 79 significant due to extensive development in the Fanno Creek flood-basin.The FEMA 100-year floodplain map, shown in Figure X below,shows the extent of flooding possible up to the southern edge of the Civic Center site. Flooding Mitigations Any new development on the Civic Center site will have to include flood mitigations.The 100-year flood plain of Fanno Creek, as well as the CWS 50-foot setback from upland water edges,will require the proper building setbacks from the southern edge of the property. Stormwater systems will be required to detain and treat as much water on site as possible, using detention basins, bioswales,and constructed wetlands. Encouraging pervious surfaces,and minimizing impervious surfaces,will help reduce stormwater runoff. Future Hall Blvd. improvements should also address the Fanno Creek bridge to help maintain flow rates,and reduce flow constrictions. WINTER STORM Tigard is subject to a number of severe local storms such as freezing rain, high winds,snow,sleet,and hail. Ice storms bearing freezing rain and/or sleet occur every few years and can last from one day to several days. Prolonged precipitation or just prolonged cold can cause/prolong destructive ice build-up. Coastal hurricane force winds occasionally penetrate inland to the City of Tigard, resulting in wind gusts of 75 to 80 miles per hour. Approximately 60%of the recorded high winds are from the south or the west. Severe storms can bring power outages and cause transportation and economic disruptions. Specific problems for residences in the city are the number of electrical wires;trees,and tree limbs that come down during severe storms that cause both major and minor property damage as well as a threat to life. Downed wires and trees can make accessibility to residences by Police and Fire difficult. Damage from high winds generally has resulted in downed utility lines and trees. Electrical power can be out anywhere from a few hours to 2 to 3 days. If the high winds are accompanied by rain, blowing leaves and debris clog drainageways,which in turn causes localized urban flooding. During a typical event,an estimated 25%of the population suffers some impact and up to 25%of all property would be affected.Tigard experiences severe weather two to three times a decade Winter Storm Mitigations Any new development on the Civic Center site,especially critical and essential facilities,should include mitigations for severe storms and power outages. New utilities located underground,which is a new development requirement in Tigard,would reduce the chances of disabled power lines due to wind or debris. Sufficient back up power generators will need to last multiple days in order to maintain emergency services. Landscape elements will have to be of hardy enough species to resist strong winds,and maintained so as not to be hazards to life and property. 80 Tigard Civic Center I LONG RANGE FACILITIES PLAN EARTHQUAKE Oregon's Natural Hazard Mitigation Plan (NHMP)cites four possible sources of earthquakes in the northern Willamette Valley:the off-shore Cascadia Subduction Fault Zone,deep intraplate events within the subducting Juan de Fuca plate,shallow crustal events within the North America Plate,and earthquakes associated with renewed volcanic activity.According to the Oregon NHMP, hazards associated with earthquakes include severe ground shaking, liquefaction of fine-grained soils,and landslides. Just off the Oregon Coast lies the Cascadia Subduction Zone,where two major geologic plates come together: Juan de Fuca and North America. According to the Oregon Department of Geology and Mineral Industries' (DOGAMI) relative earthquake hazard data,the Cascadia Subduction Zone could potentially cause a 9+ magnitude earthquake,affecting the entire Pacific Northwest. DOGAMI's HazVu mapping shows the Civic Center site would suffer"Very Strong"shaking from a Cascadia earthquake,with adjacent Fanno Creek Park experiencing"Severe"shaking. A FEMA Rapid Visual Screening analysis of the Tigard Police facility concluded the building had a high potential of collapse. (See the Existing Facilities Condition section above for additional seismic information.) In addition to the Cascadia Subduction Zone large-magnitude earthquake,the Tigard area is at risk for more frequent shallow earthquakes,or crustal fault earthquakes.The County NHMP identified four faults within Washington County:Tualatin-Sherwood, Oatfield,Costco,and Gales Creek faults. In addition, DOGAMI confirmed the nearby Portland Hills Fault as an active fault in May 2001,which could bring a magnitude 6.5 or larger earthquake. The area within Tigard that is vulnerable to earthquakes is larger than the area potentially affected by any other hazard. Earthquakes can cause more damage to life and property,although the degree of damage is clearly related to he degree that structures are impacted.Transportation routes and economics within the city could also be affected. Demand on resources such as Police, Fire, Emergency Medical Services (EMS)and Public Works could also be impacted. Older buildings and the sewer system are most vulnerable to damage from the hazards associated with earthquakes. Earthquake Mitigations Given the critical and essential facilities that are currently located and being planned for the Civic Center site,earthquake resistant facilities should be a priority for designers and planners. Retrofitting any buildings to remain on site,and ensuring new buildings are built with sufficient structural systems to withstand a Cascadia event will be necessary. See the following sections on Critical and Essential Facilities. Investigating the risk of landslides along the Fanno Creek banks on the site's southern edge may reveal that additional mitigations and reinforcements are necessary as part of new development. Tigard Civic Center I LONG RANGE FACILITIES PLAN 81 CRITICAL AND ESSENTIAL FACILITIES According to Tigard's Hazards Mitigation Plan,critical facilities are those that are vital to government response and recovery activities(i.e. life,safety, property,and environmental protection).These types of facilities include 911 centers,emergency operations centers, police and fire stations, public works facilities, roads,and shelters.The plan specifically names the Tigard Police building,the Public Works building,the Permit Center, Tigard Senior Center,the Niche,and the Tigard Library as critical facilities. Essential facilities are those that help a city provide continued delivery of key government services and/or that may significantly impact the public's ability to recover from an emergency.Tigard's essential facilities include its schools,the City Hall, potential shelter sites like the nearby Tigard Christian Church,essential infrastructure like Highway 99W and the Frontier Communications facility. RECOVERY TARGETS The Oregon Resilience Plan has set a recovery target for critical and essential facilities to remain fully functional during and immediately following a major disaster. Engineers assessed critical and essential facilities across the state for current seismic resilience and estimated the current facility recovery time,or the time it would take for these facilities to resume normal functions again.The following outlines the average recovery times for facilities in the Willamette Valley following a Cascadia earthquake: • Emergency Operations Centers: Four months(27%taking 18+months) • Police Stations: Four months(38%taking 18+months) • Fire Stations: 60 days • Critical Government Facilities:30 days • Emergency Shelters:18 months This study's seismic assessment of the existing Civic Center buildings confirms that none of the buildings, including the Police Station,will be immediately functional following a major event.This reality will not only risk the life safety of the building occupants and critical equipment, but greatly hamper any response and relief efforts that need to be performed from these facilities. It is essential that any new Police and Emergency Operations Center be able to withstand a major earthquake and remain functional. A new City Hall and Permit Center facilities should be designed and built to be functional within 30 days of an event. 82 Tigard Civic Center I LONG RANGE FACILITIES PLAN OCCUPANCY CATEGORIES Any new Civic Center facilities will have to meet more strict codes in order to remain functional and operational following a major disaster. Oregon's current seismic design standard for new buildings,the Oregon Structural Specialty Code(OSSC),classifies buildings according to four distinct occupancy categories based on their relative importance to life safety in the event of a natural disaster. Occupancy Categories III and IV are structures that have large assembly areas,such as community centers,or that are deemed essential to emergency response,such as police and emergency operations centers. Under current code,occupancy category type III buildings are designed for a 25-percent higher seismic load than Category I and II buildings. Category IV buildings are designed for a 50-percent higher load.The structural basis of design for Civic Center facilities should reflect the higher occupancy category requirements. Tigard Civic Center I LONG RANGE FACILITIES PLAN 83 Appendix C Public Outreach & Opinion Findings Barney&Worth and DHM Research conducted public opinion research in September-November 2016 on awareness of the need and potential support for a redeveloped Tigard Civic Center. Research included focus groups,telephone survey and stakeholder/City Council interviews.The research was conducted to support the City's decision-making process for the Civic Center. Results show: Tigard residents love Tigard! In the telephone survey,two-third of voters think Tigard is headed in the right direction,with library and police services strongly supported. The recent changes in the downtown,along Main Street and Burnham Street are noted and appreciated. But the momentum doesn't yet translate into support for Civic Center redevelopment. There's little familiarity with the Civic Center complex—and virtually no awareness of problems there(only 4%of telephone survey respondents say there are issues).This is an unfamiliar topic even for most stakeholders who are deeply involved in city affairs. Without understanding of the problems,few voters would be ready to spend money on improvements. A public education campaign can raise awareness and help frame the need for investments. STAKEHOLDER INTERVIEWS Stakeholder interviews were conducted with 17 community leaders in August and September 2016. Results were similar to the focus groups and telephone survey—awareness is low and there is no shared vision for the Civic Center site. • Civic Center redevelopment is a new topic to almost all stakeholders.There is general awareness the Police Department is crowded, but otherwise interviewees did not mention any other issues. • Tigard Civic Center lacks a distinctive identity. Most do not know it is called the Civic Center:They tend to think of it as the City Hall complex. • When asked about a vision for the Civic Center,there are two competing vision: 1. Density: departments consolidated in a 4-5 story building(like Hillsboro) 2. "True Civic Center": includes downtown,community center, library campus and other civic attractions • Participants say there is a need for the Civic Center to have connections. 84 Tigard Civic Center I LONG RANGE FACILITIES PLAN o "Most Walkable City" is a challenge at this location o Barriers include Hwy 99, railroad, Fanno Creek o Need better connections to library,downtown, housing, Fanno Creek Trail • Some stakeholders see the Civic Center as an opportunity for Tigard to"Walk the Talk". Civic Center redevelopment is an important opportunity for Tigard to model the more urban form outlined in the Downtown Plan District. • Everyone agrees funding will be a challenge.Voters may not see this as a necessity,observers say. They point to other city facilities projects that have struggled in elections.They caution the City to not overreach. Some suggest the City pursue funding options other than a G.O. bond. • A frequent suggestion is to involve the development community to enlist their ideas and early advice. Firms experienced in urban development has something to offer for a more contemporary/urban form for Tigard's future development. Some wonder is this is an opportunity for public/private partnership? There is a need to actively engage the community in an inclusive and deliberate process. Public education will be essential for the success of Civic Center development. Stakeholder Interviewees: Joyce Case,City Center Advisory Commission/ Brian Feeney,Tigard Planning Commission Bicycle-Pedestrian Advisory Commission Kevin Watkins,Transportation Advisory Eric Sporre, PacTrust Committee Elise Shearer,Tigard Transportation Advisory Mike Stevenson,Tigard Downtown Association, Committee Area Business Owner Kim Haughn,Tualatin Valley Fire&Rescue Steve DeAngelo,Tigard Downtown Association Nick Wilson,Atlas Landscape Architect Carmen Gloria,Tigard Latino Volunteer Debi Mollahan,Tigard Chamber of Commerce Coordinator Clifford Rome,Tigard Budget Committee Councilor Craig Dirksen, Metro Carine Arendes, City Center Advisory Committee Wayne Gross, Park and Recreation Advisory Board Kathy Stalkamp,Tigard Aquatics Center Susan Stark-Haydon,Tigard Tualatin Schools Committee Tigard Civic Center I LONG RANGE FACILITIES PLAN 85 FOCUS GROUP INTERVIEWS Two focus groups were conducted on September 17,2016 by DHM Research to consider redevelopment options for Tigard's Civic Center. Participants, randomly selected from Tigard registered voters,were 21 to 68 years old and had lived in Tigard from two to 50+years. Discussion highlights: • Focus group members all identify with Tigard and say they moved to town for good schools, neighborhood livability,close proximity to jobs,and small town atmosphere. • The predominant concern for the community is traffic congestion.This topic comes up repeatedly,in different contexts,throughout the discussions.All observers say there's no solution in sight. • Tigard City government isn't on their minds. Only a few can name the Mayor or any City Council member, and the focus group participants have no stories (good or bad)about City services. • The revitalization of Tigard's historic downtown has grabbed attention.This is seen as a possible model for Tigard's future. Fans of the Downtown-Main Street-Burnham Street renewal say they visit nearly every day,although some are disappointed in the slow progress attracting private investment and new shops. • Two redevelopment scenarios both draw some support. Responses to the scenarios tested: Scenario one:This scenario would emphasize bringing together key city services in one location.The building(or buildings)would be designed to improve customer service and boost efficiency for city staff. Efficiency, practicality,and close proximity would help keep operating costs low.There would also be meeting rooms open to the public. Feedback: o Efficient;centralized; lower operating cost/taxes o Convenient for customers; know where to go o Requires building new complex while occupying present offices o Primarily benefits Tigard residents Scenario two:This scenario would combine City services with other types of uses,such as apartments,condominiums,offices,and retail space.Additional features could include an outdoor gathering space for public events,a water feature for children and other amenities. 86 Tigard Civic Center I LONG RANGE FACILITIES PLAN Feedback: o Outdoor gathering space is strongly supported o Unifies Tigard's image o Provides missing amenities o Views on housing are mixed o Market for private development not proven: "why this mix of uses?" o Benefits non-residents and brings more traffic to the site o Raises questions about who benefits from private development • Several possible features of Civic Center redevelopment are broadly popular.An outdoor gathering space, meeting rooms open to the public,coffee shop and "splash pad"for children are mentioned most often. • The most compelling reasons to support Civic Center redevelopment are efficiency,seismic safety and functional replacement. • An even more attractive option for many participants:"fix up what we have."The City Hall complex appears well maintained and not particularly busy. Why not stretch out its useful life for another 20 years or longer? • Both focus groups are highly pessimistic about the prospects for a voter-approved tax increase to support Civic Center redevelopment. None of the 17 participants volunteered their personal support, despite showing interest in the project and acknowledging that property taxes in Tigard and Washington County aren't particularly high. "People shouldn't have to be taxed continuously to pay for something they'll never use."Other funding needs- roads and schools-are their clear priorities for any new taxes. Tigard Civic Center I LONG RANGE FACILITIES PLAN 87 TELEPHONE SURVEY From September 29-October 2,2016, DHM Research conducted a survey of registered voters in the City of Tigard.The purpose of the survey was to assist MWA Architects and the City in the potential redevelopment of Tigard's Civic Center.These survey results supplement recent focus group research completed in September, 2016. • Tigard's voters are largely satisfied with local government services.They would like city leaders to address problems related to traffic and road infrastructure. o A majority(67%) indicated the city was moving in the right direction and a clear majority of voters were very or somewhat satisfied with a spectrum of City government services (75%-86%). o Notably,over one half were very satisfied with library services(61%)and police and public safety services(56%). o Traffic and roads topped the list of concerns. One in four listed traffic and construction as the most important issue for Tigard's elected officials to take up(25%). • Voters are moderately familiar with Tigard's City Hall campus;similarly,a moderate number of voters have visited the campus recently(within the past 6 months). o A majority(64%)were familiar with the campus-although they tended to be somewhat familiar (35%) rather than very familiar. o One in five were not at all familiar with the campus(20%). o One-quarter had never visited City Hall campus(25%). • Voters clearly think the buildings are in good condition. If there are problems with the buildings,the public is not aware of those problems. o Seven in ten thought the buildings are in good or very good condition: 52%thought the building were in good condition,and 21%thought they were in very good condition. o Very few had negative perceptions of the buildings(4%) • When asked to indicate what features they would prioritize in a redevelopment of City Hall,Tigard voters are most interested in spaces for the community to gather and an adequate police facility. o Support was highest around community gathering spaces,whether that be community rooms for public meetings(69%)or outdoor spaces for community events (63%). o Over six in ten thought a modernized police facility to be important(62%),with a high number of voters considering this very important(31%). 88 Tigard Civic Center I LONG RANGE FACILITIES PLAN o Results showed potential opportunity to increase support for adequate police facilities through education and outreach. Uncertainty over the importance of a modernized police facility was higher than for other improvements, in particular among those over the age of forty-five where 17%did not know whether an improved police facility was important. o Given that older voters tended to be supportive of the police in general,they may be especially receptive to messaging that showcases the need for better police facilities. • Messages that link City Hall redevelopment to the provision of adequate police facilities perform best. o Over four in ten voters deemed noncompliance with current earthquake status(47%)—which was linked to potential negative effects on police response in emergencies—or small size of the police facility(41%)as very good reasons to redevelop the City Hall campus. o Support was softer for messages that delays in rebuilding will cost more later or that facilities are currently overcrowded. • About three in ten voters are willing to invest in one large,big facility to create community benefit. o The level of support for the larger facility was consistent when asking voters to choose between three potential options (31%) or two(28%). o In no demographic group did a majority of voters express willingness to invest more in the larger project. o Open-ended responses suggested that voters prioritized wise use of money and careful budgeting,that they did not want to see tax increases,and that they were not convinced building "Success Gauge"for Ballot Measures a new facility was necessary. Agency Credibility RECOMMENDED COMMUNITY ENGAGEMENT STRATEGY Understanding of Need Bond measures are successful when a set of critical factors can be put in place (see"Success Gauge" below). Understanding of Proposal The"Success Gauge" helps cities understand what level of community engagement will be necessary to move "Champions"—Spokespersons a project forward.The results of public opinion summarized above show that very few of these elements are in place. Community Leader Endorsements The starting point is an extended public education process that solidifies the project, makes sure it is better Voter Support known and finds community leadership and "Champions".When more of these success factors are in place, Tigard would be prepared to move to a second phase where the City draft a ballot measure and launches a Grassroots Campaign Force public education campaign to gain public understanding and support. Tigard Civic Center I LONG RANGE FACILITIES PLAN 89 Phase 1 For this phase,we recommend forming a Community Leadership Advisory Panel to advise the City and consultant team on Civic Center redevelopment and funding options. At the same time,the City would embark on a public education program to raise awareness of the issues and the work of the Community Leadership Advisory Panel. This phase would last from 6 months to a year and one-half. Phase 2 Phase 2 begins when there is a shared vision for the Civic Center redevelopment and the success gauge shows an opportunity for success.The public education campaign needs a well-defined ballot measure and a strategic public education campaign that reaches every Tigard voters. The City should allow nine months to one year for Phase 2. 90 Tigard Civic Center I LONG RANGE FACILITIES PLAN