Ordinance No. 24-06 CITY OF TIGARD, OREGON
TIGARD CITY COUNCIL
ORDINANCE NO. 24-0.6
AN ORDINANCE AMENDING THE TIGARD COMPREHENSIVE PLAN CHAPTER 15 SPECIAL
PLANNING AREAS AND ADOPTING THE DOWNTOWN REIMAGINED LAND USE AND
TRANSPORTATION RECOMMENDATIONS REPORT IN SUPPORT OF THESE AMENDMENTS
Q S A►2 -n d ee/
WHEREAS, the city has initiated an application to amend the text of the Tigard Comprehensive Plan;and
WHEREAS, Chapter 15 of the Tigard Comprehensive Plan provides goals and policies for areas of special
significance in the city,including the Downtown Tigard Plan District;and
WHEREAS, the City received a Transportation and Growth Management grant from the Oregon Department
of Transportation to provide recommendations for updated policies within the Downtown Tigard Plan District;
and
WHEREAS, the City engaged various stakeholders in the Downtown including businesses, residents, and
historically marginalized and disenfranchised communities to build a vision for a vibrant downtown;and
WHEREAS, the City desires to modernize the policies of the Comprehensive Plan and align them with other
adopted documents including the Complete Streets Policy, the Transportation System Plan, Housing Needs
Analysis, and the Affordable Housing Plan;and
WHEREAS, the City has an expressed interest in seeing redevelopment in the Downtown Plan District;and
WHEREAS, parks and open spaces such as Fanno Creek Park, Universal Plaza, and the Tigard Heritage Trail
and Outdoor Museum are critical elements of a successful downtown;and
WHEREAS, notice was provided to the Department of Land Conservation and Development and Metro at
least 35 days prior to the first evidentiary public hearing;and
WHEREAS, the Tigard Planning Commission held a public hearing on April 1, 2024 and recommended by
unanimous vote that Council approve the proposed text amendments;and
WHEREAS, the Tigard City Council held public hearings on May 28, 2024 and July 16, 2024 to consider the
proposed map and text amendments;and
WHEREAS, the Tigard City Council has considered the recommendation of the Planning Commission;and
WHEREAS, the Tigard City Council has considered applicable Statewide Planning Goals and Guidelines
adopted under Oregon Revised Statutes Chapter 197; any federal or state statutes or regulations found
applicable; any applicable Metro regulations; any applicable Comprehensive Plan Policies; and any applicable
provisions of the City's implementing ordinances;and
WHEREAS, the Tigard City Council has determined that the proposed Comprehensive Plan amendments are
consistent with the applicable review criteria.
ORDINANCE No. 24-D 6
Page 1
NOW,THEREFORE,THE CITY OF TIGARD ORDAINS AS FOLLOWS:
SECTION 1: The amendments to the Tigard Comprehensive Plan set forth in Exhibit 'A' are hereby
adopted.
SECTION 2: - ! _- .:.. •.ations Re•o - • .
in Ex '.' :' - - . , --.; _- ..a. _, set forth in Exhibit'C'are heereb ado te.
in su.sort • .- - e. 2 e-7
- . . , ..-.. ents. G/�zave C�4 /Ate Ol—
e) e.iee 126d
SECTION 3: The findings and conclusions contained in Exhibit `D' are hereby adopted as the basis in
support of this ordinance.
SECTION 5: This ordinance shall be effective 30 days after its passage by the council, signature by the
mayor,and posting by the city recorder.
PASSED: By 1.07&it/IN 1 f vote of all council members present after being read by number
and title only,this /6#.11:lay of Q G'.L r ,2024.
Carol A. Krager,City Recorder
APPROVED: By Tigard City Council this r e_qday of 9/4dy ,2024.
(11,40.
Heidi Lueb,Mayor
Approved as to form:
City Attorney
1 l Ito 1 a:{
Date
ORDINANCE No. 24-46
Page 2
EXHIBIT A
Comprehensive Plan Amendments
Tigard Comprehensive Plan
Chapter 15
CPA 2024-00005
Strikethrough
Text shown in strik tli fei.gi, is to be removed.
Text shown in bold, italic, and underlined is to be added.
CO
15.1.1: The City will promote the creation of a vibrant and active urban village at the heart of
transportation, recognizes natural resources as an asset, and features a combination of
Tigard.
i. Provide public,including members of the development community,with regular
informational updates on Urban Renewal progress and an accounting of funds
spent by the City Center Development Agency.
GOAL:
15.1.21 Facilitate the development of an urban village a vibrant, active, and welcoming city
center.
POLICIES:
1. New-z oning and design standards, and design guidelines shall be developed and
used to shall ensure that the Downtown Plan District provides a balance of
livability.walkability, and robust economic opportunity.the quality, attractiveness,
and special character of the Downtown as the"heart"of Tigard,while being flexible
enough to encourage development.
2. The Downtown Plan Districtdowntown's land use plan shall include and
supportpfevide-fef a mix of complementary land uses such as:
A.retail, restaurants, entertainment1 and personal services;
B. medium and high-density residential uses, including both rental and ownership
housing, as well as affordable housing opportunities;
C. civic functions uses such as{government offices,community public services, and
public plazas,public transit centers,-ete)
D.professional employment and related office and professional services uses; and
E.natural resource protection, open spaces,plazas. and public parks.
3. The City shall not permit new land uses that are not appropriate for an active,
pedestrian-oriented downtown, such as warehousing. manufacturing, industrial
services, and auto-oriented uses. warehousing; auto-dependent uses;industrial
manufacturing;and industrial service uscs that would detract from the goal of a
vibrant, urban village.
4. Existing nonconforming uses shall be allowed to continue, subject to a threshold of
limits on a' expansion and sunset provisions for discontinued uses.
5. Din The design,and development of the Downtown Plan Districta4
provision of service shall emphasize public safety, accessibility, and attractiveness
as primary objectives with an emphasis on the pedestrian experience.
6. • :. •-: •- . - . . The Downtown Plan District shall accommodate
provide for a wide range of housing opportunities, including ownership,
rentalwo ee,and regulated affordable housing in a high-quality living
environment while minimizing displacement of existing residents.
Street"character.Zoning and design standards shall support an active pedestrian
realm with commercial activity along priority street frontages including Main
Street and Burnham Street.
8. The City shall encourage carbon-responsible development in the Downtown Plan
District that reduces greenhouse gas emissions and vehicle miles travelled.
RECOMMENDED ACTION MEASURES:
i. Develop design guidelines and standards that utilize form-based concepts to
encourage attractive and inviting downtown commercial and residential
architecture,_ ' • . .. :- . . . -- -- - . - '. , particularly in the
building fronts and strcctscapc.pedestrian-scale design. and active ground floor
frontages. - - - . - - .. '. - . ., -- :- , . . ., . - - . .
site design guidelines.
ii. Utilize form based code principles in ways that ar . • - '. . - . . - -
laws and administrative rules.
ii.ii. Adopt non-conforming use standards appropriate to a downtown in transition to
encourage incremental redevelopment.
• . `- - - -- -- - - - - -- - - - . compatibility issues when new downtown
iiiiv. Develop standards for high-intensity residential and mixed-use development
near the potential future light rail station.
iv. Provide areas in the downtown where community events, farmer's markets,
festivals,and cultural activities can be held.
vi. Designate the downtown area as the preferred location for Tigard's core civic
activities.land uses.
vii.Promote an awareness of the downtown's history through measures such as public
information, urban design features, and preservation of historic places.
viii. Monitor performance of design guidelines, standards and related land use
regulations and amend them as necessary.
viii./m,lement strate.ies to assist in minimizi and miti atin! the dis placement of
existing and future affordable housing as redevelopment occurs.
GOAL:
15.1.32 ` . . . .. -- ! . - .. . --- . . - -: . - . . . . - •- .
censure the Downtown Plan District is adequately served by high-quality
parks and open spaces and is well-integrated with natural features such as Fanno
Creek.
POLICIES:
1. • . . . - . . -- - .. . . - -- - . . . - - =-
desiglnThe function and health of Fanno Creek shall be considered of primary
importance in development within its proximity.
focus and catalyst for revitalization.Downtown parks and open spaces shall
equitably serve the Tigard community, with connections to and access from active
transportation facilities.
3. ` . . - - - - -- .. . - - -- - - . . -- .
Creek Park. Tree canopy shall be preserved and increased to the greatest extent
practicable in order to reduce urban heat islands, sequester carbon, and create a
hospitable outdoor environment.
RECOMMENDED ACTION MEASURES:
i. Acquire property and easements to protect natural resources and provide public
open space areas, such as parks blocks, plazas and mini-parks.
ii. Develop"green connections"linking parks and greenways with adjacent land uses,
public spaces and transit.
iii. Incorporate public art into the design of public spaces.
iv. Enhance the landscape and habitat characteristics of Fanno Creek as a key
downtown natural resource.
v. Develop and implement strategies to .:: - : - - . -- • :
vagrancy reduce the impact of houselessness on natural systems and protect
unhoused residents fromflood and other hazards. '- .- - ` - - : -: - -
Crcck Park.
vi. Develop and adopt scaled development standards such as height, massing, and site
design standards to manage intensity of development in proximity to Fanno Creek.
GOAL:
15.1.43 Develop a comprehensive multi-modal transportation network that addresses the
City's climate goals and serves the vision of a walkable, well-connected Downtown Plan
District ctrcct and circulation improvements for pedestrians, bicycles, transit, and
automobiles, bicycles, and transit.
POLICIES:
1. - : : . . . - - . ... . .. .
services including auto,transit,bike, and pedestrian facilities. The City shall plan
for and develop a complete array of multi-modal transportation services based on a
hierarchy prioritizing pedestrian, bicycle, transit, and automobile access and
mobility.
2. The downtown shall be Tigard's primary transit center for rail,_affd bus, and
potentialfuture light rail transit service and supporting land uses.
3. The City, in conjunction with TriMet, shall plan for and manage transit user parking
to ensure the downtown is not dominated by"park and ride"activity, including
consideration of relocating the current park and ride lot.
4. Recognizing the critical transportation relationships between the downtown and
surrounding transportation system, especially bust£ifid Commuter Rail,potential
future light rail, Highway 99W, Highway 217 and Interstate 5,the City shall address
the downtown's transportation needs in its Transportation System Plan and identify
relevant capital projects and transportation management efforts.
5. Streetscape and public area design shall focus on creating a pedestrian friendly
environment without the visual dominance by automobile-oriented uses including
off-street parking areas.
6. The City shall require a sufficient,but not excessive,amount of manage parking to
provide for downtown land uses to ensure parking is not excessive.Joint parking
arrangements shall be encouraged. The City shall allow and encourage the
conversion of existing underused parking areas to other uses.
RECOMMENDED ACTION MEASURES:
i. Develop comprehensive street and circulation improvements for pedestrians,
automobiles, bicycles, and transit.
ii. Develop a circulation plan that emphasizes connectivity to, from, and within the
downtown in the design and improvement of the area's transportation system,
including developing alternative access improvements to downtown, such as
connections across Hwy 99W.
iii. Address public safety and land use compatibility issues in the design and
management of the downtown's transportation system.
iv. Investigate assigning different roadway designations for ODOT-owned and operated
facilities within the general area of the downtown as means to support multi-modal
transportation access to Town Center development such as the Oregon Department
of Transportation's Special Transportation Area(STA),end Urban Business Area
(UBA). and the Blueprint for Urban Design(BUD). Continue City-led efforts to
transfer ownership of SW Hall Boulevard to unlock City's ability to implement a
corridor vision.
v. Implement an integrated downtown pedestrian streetscape and landscape plan.
vi. Acquire property and easements to implement streetscape and landscape plans, and
develop needed streets, pathways, entrances to the Commuter Rail Park and-Rile
lot, and bikeways.
improvements.
viii. Emphasize sustainable practices in street design through innovative landscaping
and stormwater management, climate-resilient infrastructure, and healthy tree
canopy, and provision of multi modal infrastructure.
viii. Develop and implement parking maximums to limit the amount of off-street
surface parking in downtown, and to minimize impacts of parking areas and
driveways on pedestrian circulation.
ix. Encourage the formation of a Downtown Parking and Transportation Management
Association.
xi. Incorporate the Ddowntown's public investment-/and facility needs into the City's
Public Facility Plan and implementing Community Investment Plan.
Comprehensive Plan Amendments
Tigard Comprehensive Plan
Chapter 15
CPA 2024-00005
Strikethrough
Text shown in striketiffettgh is to be removed.
Text shown in bold, italic, and underlined is to be added.
COAL:
Tigard.
• . . . . 61 • . ..
cpcnt by the City Center Development Agency.
GOAL:
15.1.21 Facilitate the development of an urban village a vibrant, active, and welcoming city
center.
POLICIES:
1. New z oning and design standards, and design guidelines shall be developed and
used to shall ensure that the Downtown Plan District provides a balance of
livability. walkability. and robust economic opportunity.the quality, attractiveness,
_ • . . - -- .. .. _ ,, .. 7 . • -
enough to encourage development.
2. The Downtown Plan Districtdowntown's land use plan shall include and
supportpr-evide-fef a mix of complementary land uses such as:
A.retail, restaurants, entertainment.and personal services;
B.medium and high-density residential uses, including both rental and ownership
housing, as well as affordable housing opportunities;
C.civic functions uses such as{government offices,community public services, and
public plazas,public transit centers,);
D.professional employment and related office and professional services uses; and
E.natural resource protection, open spaces,plazas, and public parks.
3. The City shall not permit new land uses that are not appropriate for an active,
pedestrian-oriented downtown, such as warehousing,manufacturing, industrial
services, and auto-oriented uses. warehousing; auto dependent uses; industrial
manufacturing; and industrial scrviee uses that would detract from the goal of a
vibrant, urban village.
4. Existing nonconforming uses shall be allowed to continue, subject to a threshold of
limits on allowed expansion and sunset provisions for discontinued uses.
5. De town The design,and development of the Downtown Plan Districtand
provision of service shall emphasize public safety, accessibility, and attractiveness
as primary objectives with an emphasis on the pedestrian experience.
6. :. •-: •- . - . . The Downtown Plan District shall accommodate
provide for a wide range of housing opportunitiestypes, including ownership,
rental••oma,and regulated affordable housing in a high-quality living
environment while minimizing displacement of existing residents.
Street"character.Zoning and design standards shall support an active pedestrian
realm with commercial activity along priority street frontages including Main
Street and Burnham Street.
8. The City shall encourage carbon-responsible development in the Downtown Plan
District that reduces greenhouse gas emissions and vehicle miles travelled.
RECOMMENDED ACTION MEASURES:
i. Develop design standards that utilize form-based concepts to
encourage attractive and inviting : : - : - •- -- • .. . - - '.
architecture,.with quality design and permanent materials, particularly in the
building fronts and strcetscapc.pedestrian-scale design. and active ground floor
frontages. . .
site design guidelines.
laws and administrative rules.
Adopt non-conforming use standards appropriate to a downtown in transition to
encourage incremental redevelopment.
iv. Develop code measures to mitigate any co .. •. • ' . •- - . . .
iiii . Develop standards for high-intensity residential and mixed-use development
near the potential future light rail station.
iv. Provide areas in the downtown where community events, farmer's markets,
festivals,_and cultural activities can be held.
vi. Designate the downtown area-as the preferred location for Tigard's core civic
activities.land uscs.
vii. Promote an awareness of the downtown's history through measures such as public
information, urban design features, and preservation of historic places.
viii. Monitor performance of design guidelines, standards and related land use
regulations and amend them as necessary.
viii.Im lement strate'ies to assist in minimizi and miti.atin. the dis placement o
existing and future affordable housing as redevelopment occurs.
GOAL:
15.1.32 !- . . .. : -- e : - cc Systcm and Integrate Natural Features int.&
dewntewfiEnsure the Downtown Plan District is adequately served by high-quality
parks and open spaces and is well-integrated with natural features such as Fanno
Creek.
POLICIES:
design The function and health of Fanno Creek shall be considered of primary
importance in development within its proximity.
focus and catalyst for revitalization.Downtown parks and open spaces shall
equitably serve the Tigard community, with connections to and access from active
transportation facilities.
3. ! . . - - - . - - :. ' - - - - - - . . -- .
Creek Park. Tree canopy shall be preserved and increased to the greatest extent
practicable in order to reduce urban heat islands, sequester carbon, and create a
hospitable outdoor environment.
RECOMMENDED ACTION MEASURES:
i. Acquire property and easements to protect natural resources and provide public
open space areas, such as parks blocks,plazas and mini-parks.
ii. Develop"green connections"linking parks and greenways with adjacent land uses,
public spaces and transit.
iii. Incorporate public art into the design of public spaces.
iv. Enhance the landscape and habitat characteristics of Fanno Creek as a key
downtown natural resource.
v. Develop and implement strategies to .: : - -- -- - : -- - --
vagrancy reduce the impact of houselessness on natural systems and protect
unhoused residents from flood and other hazards. '- - - ` - - - - -
Creek Park.
vi. Develop and adopt scaled development standards such as height, massing, and site
design standards to manage intensity of development in proximity to Fanno Creek.
GOAL:
15.1.43 Develop a comprehensive multi-modal transportation network that addresses the
City's climate goals and serves the vision of a walkable, well-connected Downtown Plan
Districtctrcct and circulation improvements for pedestrians, bicycles, transit, and
automobiles, bicycles, and transit.
POLICIES:
1. - - : . . - -. . : . : . - - . . . . - . ' ::. ;: .
-- - - ..•-_ - :, ' , - -. . -•- . The City shall plan
for and develop a complete array of multi-modal transportation services, based on a
hierarchy prioritizing pedestrian, bicycle, transit, and automobile access and
mobility.
2. The downtown shall be Tigard's primary transit center for rails and bus, and
potentialfuture light rail transit service and supporting land uses.
3. The City, in conjunction with TriMet, shall plan for and manage transit user parking
to ensure the downtown is not dominated by"park and ride"activity, including
consideration of relocating the current park and ride lot.
4. Recognizing the critical transportation relationships between the downtown and
surrounding transportation system, especially bus,_ Commuter Rail,potential
future light rail, Highway 99W, Highway 217 and Interstate 5,the City shall address
the downtown's transportation needs in its Transportation System Plan and identify
relevant capital projects and transportation management efforts.
5. Streetscape and public area design shall focus on creating a pedestrian friendly
environment without the visual dominance by automobile-oriented uses including
off-street parking areas.
6. The City shall require a sufficient,but not excessive, amount of manage parking to
provide for downtown land uses to ensure parking is not excessive.Joint parking
arrangements shall be encouraged. The City shall allow and encourage the
conversion of existing underused parking areas to other uses.
RECOMMENDED ACTION MEASURES:
i. Develop comprehensive street and circulation improvements for pedestrians,
automobiles, bicycles, and transit.
ii. Develop a circulation plan that emphasizes connectivity to, from, and within the
downtown in the design and improvement of the area's transportation system,
including developing alternative access improvements to downtown, such as
connections across Hwy 99W.
iii. Address public safety and land use compatibility issues in the design and
management of the downtown's transportation system.
iv. Investigate assigning different roadway designations for ODOT-owned and operated
facilities within the general area of the downtown as means to support multi-modal
transportation access to Town Center development such as the Oregon Department
of Transportation's Special Transportation Area(STA),&nil Urban Business Area
(UBA). and the Blueprint for Urban Design(BUD). Continue City-led efforts to
transfer ownership of SW Hall Boulevard to unlock City's ability to implement a
corridor vision.
v. Implement an integrated downtown pedestrian streetscape and landscape plan.
vi. Acquire property and easements to implement streetscape and landscape plans, and
develop needed streets, pathways, -- .. - . . - _. - - . - '.. •. , ••,
lot, and bikeways.
elements"palette from the Strcctscape Design Plan to design streetscape
improvements.
viii. Emphasize sustainable practices in street design through innovative landscaping
and stormwater management, climate-resilient infrastructure, and healthy tree
canopy, and provision of multi modal infrastructure.
ix. Encourage sustainability features in the design of Downtown buildings.
viii. Develop and implement parking maximums to limit the amount of off-street
surface parking in downtown. and to minimize impacts of parking areas and
driveways on pedestrian circulation.
ix. Encourage the formation of a Downtown Parking and Transportation Management
Association.
xi. Incorporate the Ddowntown's public investments and facility needs into the City's
Public Facility Plan and implementing Community Investment Plan.
EXHIBIT D
RECOMMENDATIONS AND FINDINGS
OF THE PLANNING COMMISSION
FOR THE CITY OF TIGARD, OREGON TIGARD
SECTION I. APPLICATION SUMMARY
CASE NAME: DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS
CASE NO.: Comprehensive Plan Amendment(CPA) CPA2024-00005
PROPOSAL: To amend the Tigard Comprehensive Plan to update the policies and recommended
actions for Chapter 15:Downtown Plan District and to adopt the 2024 Downtown
Reimagined Land Use and Transportation Recommendations Report as the supporting
ancillary document to these policy changes.
The proposed Comprehensive Plan text amendments for the City Council's review are
included as Attachment 1 to the ordinance and summarized below in Section III of this
report. The 2024 Downtown Reimagined Land Use and Recommendations Report is
included as Attachment 2 to the ordinance.
APPLICANT: City of Tigard
13125 SW Hall Blvd.
Tigard,OR 97223
ZONES: Downtown Tigard Plan District(MU-CBD)
LOCATION: Downtown
APPLICABLE
REVIEW
CRITERIA: Statewide Planning Goals 1 (Citizen Involvement), 2 (Land Use Planning), and Goal 10
(Housing); METRO's Urban Growth Management Functional Plan Title 8;
Comprehensive Plan Goals 1.1.2, 1.2.1, 1.2.5, 2.1.3, 2.1.4, 2.1.5, 2.1.6, 2.1.15, 2.1.19,
2.1.20, 2.2.1, 9.1.5, 9.2.2, 9.3.1, 9.3.2, and 10.1.7; and Tigard Development Code
Chapters 18.710 and 18.790.
SECTION II. PLANNING COMMISSION RECOMMENDATION
The Planning Commission recommends unanimously that the City Council adopt the amendments to the Tigard
Comprehensive Plan and the supporting Land Use and Transportation Recommendations Report with any
alterations as determined appropriate by the City Council through the public hearing process.
DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005
5/28/2024 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 1 OF 10
SECTION III. BACKGROUND INFORMATION AND PROJECT SUMMARY
Project History
Efforts to revitalize Downtown Tigard date to 2005 and the Council-approved Tigard Downtown
Improvement Plan (I'DIP). This plan reflected stakeholder's vision of a vibrant,mixed-use,and pedestrian-
friendly downtown.
In 2009, the TCDA engaged the University of Oregon's Portland Urban Architecture Research Laboratory to
refine and visualize the Tigard Downtown Improvement Plan as a design vision. The document showed how
Downtown could grow over 50 years within the framework of the TDIP.
In 2020, as part of the City Center Future Project,the Downtown vision was updated with new visualizations
of a potential build out, showing the locations of Universal Plaza,a redeveloped Civic Center campus, a new
City Hall,and the SW Corridor light rail station on Hall Blvd.The Tigard Downtown Vision depictions
reflected previous planning and conversations with stakeholders.An updated vision statement was also
developed with input from the TCAC and TCDA: "Our vision of Downtown Tigard is a vibrant,active, and
welcoming city center at the heart of our community. It provides transportation,recreational, residential, and
business opportunities that are accessible to everyone."
That same year,the city received a Transportation and Growth Management grant from the Oregon
Department of Transportation and the Oregon Department of Land Conservation and Development to
provide for technical consultant assistance for a project called Downtown Reimagined.
Building on the vision set out in previous planning efforts, the goals of the Downtown Reimagined project are
to update the Comprehensive Plan policies in line with the vision and modernize the development code to spur
growth and ease the path for redevelopment.
This work was informed by extensive community engagement, with particular focus on key stakeholders and
historically marginalized communities.
From this work, seven priorities were identified:
• Unique Character
• Housing Diversity
• Destinations and Amenities
• Minimize Displacement
• Visibility
• Natural Assets
• Connectivity
These priorities and other feedback from the community shaped the proposals for a set of land use and
transportation recommendations, as well as the Comprehensive Plan policy updates needed to effectuate those
recommendations. The report attached to this staff report provides more background on this process as well as
the recommendations that resulted from the work.
Proposal Description
Comprehensive Plan Chapter 15—Special Planning Areas -Downtown
The Tigard Comprehensive Plan features a standalone chapter dedicated to policies specific to the downtown
area. This focus on downtown is emblematic of its importance as the historic and civic core of the city. The
policies that are applied to this area are focused on achieving the vision of the downtown district as the heart of
DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005
5/28/2024 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 2 OF 10
the community and a primary center of civic life. The proposed amendments update this Chapter and are
provided in Attachment 2.
Planning Context
During the time that the Downtown Reimagined project was being completed, there were changes in state
administrative rules that govern planning, particularly transportation planning, in designated Metro 2040
Centers. The Downtown Plan District is part of a larger Metro 2040 Center that includes the Tigard Triangle.
The Planning Commission previously considered an amendment to the Metro 2040 Center boundary to align it
with the Downtown Plan District boundary to the maximum extent possible. While this has no regulatory
impact on the uses and development allowed in the downtown, it does ease the burden on the city to
demonstrate compliance with the statewide Transportation Planning Rule (OAR 660-012).
Another contextual piece of the Downtown Reimagined work is the Tigard MADE project to modernize the
regulation of Tigard's employment lands. This project ran concurrently with the Downtown Reimagined work
and the regulatory outcomes of that work are reflected in many of the recommendations of the Downtown
Reimagined work products.
Future Amendments to the Tigard Community Development Code
The proposal under consideration in this action will only update the policies in the City's Comprehensive Plan.
A subsequent project will be necessary to fully implement these policies and the recommendations of the Land
Use and Transportation Recommendations Report.
In addition, amendments to the Transportation System Plan (TSP) will be needed to fully implement the
transportation recommendations of the report. Those could follow in a separate action or be incorporated into
the city's upcoming update to the TSP in 2026.
Summary
The findings below support the adoption of the proposed Comprehensive Plan amendments, as attached to
this recommendation and provided in the main Downtown Tigard Land Use and Transportation
Recommendations Report.
SECTION IV. APPLICABLE CRITERIA, FINDINGS AND CONCLUSIONS
STATEWIDE PLANNING GOALS AND GUIDELINES
State planning regulations require cities to adopt and amend Comprehensive Plans and land use regulations in
compliance with the state land use goals. Because the proposed Comprehensive Plan amendments have a
limited scope, only applicable statewide goals are addressed below.
Statewide Planning Goal 1—Citizen Involvement:
This goal outlines the citizen involvement requirement for adoption of Comprehensive Plans and
changes to the Comprehensive Plan and implementing documents.
FINDING: The city conducted a comprehensive public engagement process as part of the Downtown
Reimagined project.The following guiding principles were identified to set the process up for success:
• Engagement conversations to be values-based.
• The Project Team to apply the principles of the Racial Equity Toolkit to ensure engagement
opportunities invite meaningful feedback from all community members, particularly historically
underserved groups.
• Online engagement opportunities to be as interactive as possible.
DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005
5/28/2024 PUBLIC HEARING,PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 3 OF 10
• The Project Team to involve key affected parties in information collection to demonstrate process
integrity and build credibility for recommendations.
• The Project Team to identify and work to remove barriers to engagement for vulnerable and
• historically underrepresented community members.
• Concerns and aspirations to be discussed to formulate options for consideration by the City.
The project team held multiple events where community input was gathered, including stakeholder meetings,
focus groups, and public open houses. Translation services were provided to the community at these events.
In addition, notice was provided of the hearings to adopt the proposed amendments. Notice requirements area
set forth in Section 18.710.110 (Legislative Procedure) of the Tigard Community Development Code. A notice
was published in the Tigard Times newspaper on March 14, 2024. Project information and documents were
published to the City website prior to the public hearings. A minimum of two public hearings will be held (one
before the Planning Commission and the second before the City Council). These hearings present an
opportunity for public testimony. A minimum of two drafts of the proposed Comprehensive Plan amendments
(Proposed Draft to the Planning Commission, and Planning Commission Recommendation to City Council)
were made available to the public for review prior to hearings and adoption. This goal is satisfied.
Statewide Planning Goal 2—Land Use Planning:
This goal outlines the land use planning process and policy framework.
FINDING: The Department of Land Conservation and Development (DLCD) has acknowledged the city's
Comprehensive Plan as being consistent with the statewide planning goals. Changes to the city's
Comprehensive Plan must also be consistent with the statewide planning goals. The process for review of
Comprehensive Plan changes is the Post-Acknowledgment Plan Amendment (PAPA). The city submitted the
draft Comprehensive Plan amendments and the Land Use and Transportation Recommendations Report to
DLCD for review through the PAPA process. No comments were received to date. This goal is satisfied.
Statewide Planning Goal 10—Housing:
This goal requires cities and counties to provide adequate capacity for needed housing. OAR Chapter
660 Division 8, which implements Goal 10, states that "the purpose of the division is to ensure
opportunity for the provision of adequate numbers of needed housing units, the efficient use of
buildable land within urban growth boundaries, and to provide greater certainty in the development
process so as to reduce housing costs."
FINDING: The purpose of this legislative process is to update the city's Comprehensive Plan policies. While
Chapter 10 (Housing) of the Tigard Comprehensive Plan is not being amended at this time,the nature of the
Downtown Reimagined project implicates Goal 10.
The city's most recent Housing Needs Analysis, adopted in 2021, demonstrated a need for over 7,000 new
housing units over the next 20 years. While some of that housing need will be met in Urban Growth
Boundary expansion areas like River Terrace 2.0,much of that housing will need to be provided through infill
and redevelopment. The city has demonstrated its commitment to housing development in core areas and its
2040 Centers over the past decade. The Tigard Triangle has seen significant development of new housing,
much of it regulated affordable housing.The city's regulated affordable housing stock for rental has increased
threefold over the past decade, and the city is committing significant financial resources to increasing
affordable homeownership, dedicating roughly half a million dollars a year to down payment assistance
through Proud Ground, as well as establishing the state's first Middle Housing Revolving Loan Fund to
provide construction lending for small-unit housing.
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The Comprehensive Plan policies proposed with this amendment focus on increasing the housing capacity in
downtown while preserving existing low-cost market rate housing to the maximum extent possible. Much of
the increased capacity will come in the form of lifting the caps on density within the Downtown Plan district,
an approach that has been long sought by the development community.
Overall, these policies and the development code amendments to follow them are intended to increase
housing capacity as well as production.
CONCLUSION: Based on the findings above and the related findings below, the Planning Commission
finds the proposed map and text amendments are consistent with applicable Statewide
Planning Goals.
METRO'S URBAN GROWTH MANAGEMENT FUNCTIONAL PLAN
State planning regulations require cities within the Metro service area to adopt and amend Comprehensive
Plans in compliance with Metro's Urban Growth Management Functional Plan. Because the proposed Code
Amendments have a limited scope and the text amendments address only some of the topics in Metro's Urban
Growth Management Functional Plan,only applicable Titles are addressed below.
Title 8—Compliance Procedures
Title 8 requires that the city's Comprehensive Plan and plan amendments be consistent with the
Urban Growth Management Functional Plan. It also requires that Metro be notified in advance of
subsequent amendments to the city's Comprehensive Plan.
FINDING: The Comprehensive Plan has been previously acknowledged by Metro to be in compliance with
Title 8. The only portion of the Comprehensive Plan being amended is Chapter 15 — Special Planning Areas.
Notice of these proposed amendments have been provided to Metro in accordance with the requirements of
Title 8 of the Urban Growth Management Functional Plan.
CONCLUSION: Based on the findings above, the Planning Commission finds that the proposed map
and amendments are consistent with the applicable provisions of Metro's Urban
Growth Management Functional Plan.
TIGARD COMPREHENSIVE PLAN
State planning regulations require cities to adopt and amend their comprehensive plans in compliance with the
state land use goals and consistent with their adopted comprehensive plan goals and policies. The Tigard
Comprehensive Plan therefore implements the Statewide Planning Goals, therefore the above findings of
compliance with applicable statewide planning goals support the findings of compliance with the
Comprehensive Plan.
Comprehensive Plan Goal 1: Citizen Involvement
Policy 1.1.2: The City shall define and publicize an appropriate role for citizens in each phase of the
land use planning process.
FINDING: This policy has been met in multiple ways. The Downtown Reimagined project included a
comprehensive public outreach program. This program included multiple meetings with stakeholders, focus
groups, and two public open houses. Public comment was taken and incorporated into the work products at
each of these events. More detail on the process of public engagement is provided in the attached Land Use
and Transportation Recommendations Report. Notice was provided in accordance with the requirements set
forth in Tigard Development Code Section 18.710.110 (Legislative Procedure). A notice was published in the
Tigard Times newspaper on April 1, 2021. Project information and documents were published to the City
website prior to the public hearings. A minimum of two public hearings will be held (one before the Planning
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Commission and the second before the City Council) at which an opportunity for public input is provided. A
minimum of two drafts of the proposed Comprehensive Plan amendments and transportation
recommendations (Proposed Draft to the Planning Commission, and Planning Commission Recommendation
to City Council) will be made available to the public for review prior to hearings and adoption. This policy is
satisfied.
Policy 1.2.1: The City shall ensure pertinent information is readily accessible to the community and
presented in such a manner that even technical information is easy to understand.
FINDING: Materials were prepared for public events and meetings with the intent to make them easy to
understand and to offer meaningful opportunities for public feedback on the work progress. Events were held
for stakeholders with different levels of technical expertise in a way that allowed them to understand the core
questions and proposals. Focus groups were held with non-English speaking members of the community, and
translation services were provided at public open houses.This policy is satisfied.
Policy 1.2.5: The City shall seek citizen participation and input through collaboration with community
organizations,interest groups, and individuals in addition to City sponsored boards and committees.
FINDING: The project team presented to various community groups, including the Tigard Downtown
Alliance, the Town Center Advisory Committee, the Tigard Transportation Advisory Committee, among
others who were invited to public events. This policy is satisfied.
Comprehensive Plan Goal 2: Land Use Planning
Policy 2.1.1: The City's land use program shall establish a clear policy direction, comply with state
and regional requirements, and serve its citizens' own interests.
FINDING: The proposed Comprehensive Plan amendments comply with all state and regional requirements,
as the previous findings indicate. The proposed amendments update the Comprehensive Plan policies and
recommended action measures to be in alignment with new state laws and rules regarding housing provision.
The proposed amendments also establish a clear policy direction for the equitable provision of housing in the
city. This policy is satisfied.
Policy 2.1.2: The City's land use regulations, related plans, and implementing actions shall be
consistent with and implement its Comprehensive Plan.
FINDING: As demonstrated through the findings and conclusions of this staff report, the proposed
amendments are consistent with the Tigard Comprehensive Plan. This policy is satisfied.
Policy 2.1.3: The City shall coordinate the adoption, amendment, and implementation of its land use
program with other potentially affected jurisdictions and agencies.
FINDING: Copies of the proposed text amendments were sent to affected agencies and each agency was
invited to comment on the proposal. Any comments submitted by affected agencies have been incorporated
into this report and the proposed amendments. This policy is satisfied.
Policy 2.1.4: The City's land use program shall promote the efficient use of land through the creation
of incentives and redevelopment programs.
FINDING: The proposed Comprehensive Plan amendments include policies that will have the effect of
promoting the efficient use of land. Several policies provide guidance in developing new programs and
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maintaining existing ones that provide incentives to developers to produce higher-density affordable housing
options and to redevelop underutilized properties. These policies will have the impact of increasing density,
providing greater housing diversity and opportunity, and diversifying commercial activity in the Downtown in a
manner that increases the efficient use of the land. The Downtown Plan District currently includes incentives
for affordable housing development and the report includes recommendations to expand these types of
programs where possible. This policy is satisfied.
Policy 2.1.5: The City shall promote intense urban level development in Metro-designated Centers and
Corridors, and employment and industrial areas.
FINDING: The Downtown is part of a Metro-designated 2040 Center that includes the Tigard Triangle. A
previous amendment to the Tigard Comprehensive Plan aligned this 2040 Center Boundary with the
Downtown Plan District Boundary. The Downtown Plan District already allows intense urban levels of
development. The proposed amendments will increase the intensity of development in the 2040 Center
through the lifting of maximum density and will lower barriers to development in this area. This policy is
satisfied.
Policy 2.1.15: In addition to other Comprehensive Plan goals and policies deemed applicable,
amendments to Tigard's Comprehensive Plan/Zone Map shall be subject to the following specific
criteria:
A.Transportation and other public facilities and services shall be available, or committed to be made
available, and of sufficient capacity to serve the land uses allowed by the proposed map designation;
FINDING: The Downtown is well served by multi-modal streets, a regional transit hub, and an interconnected
trail network. With a focus on walkability and access, the proposed amendments utilize the existing network
and ensure that future improvements support development patterns and a transportation network that meet
local,regional, and state mobility goals. This criterion is satisfied.
B. Development of land uses allowed by the new designation shall not negatively affect existing or
planned transportation or other public facilities and services;
FINDING: No changes to land uses are proposed with these Comprehensive Plan amendments. This criterion
does not apply.
C. The new land use designation shall fulfill a proven community need such as provision of needed
commercial goods and services, employment, housing, public and community services, etc. in the
particular location, versus other appropriately designated and developable properties;
FINDING: No new land use designations are proposed as part of these Comprehensive Plan. This criterion
does not apply.
D. Demonstration that there is an inadequate amount of developable, appropriately designated, land
for the land uses that would be allowed by the new designation;
FINDING: No changes to land uses are proposed with these development code amendments. This criterion
does not apply.
E. Demonstration that land uses allowed in the proposed designation could be developed in
compliance with all applicable regulations and the purposes of any overlay district would be fulfilled;
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FINDING: All land uses allowed outright in the Downtown Plan District have been allowed for the past 20
years and no compatibility issues have arisen. No concerns about allowed uses were raised by members of the
public. This criterion is satisfied.
F. Land uses permitted by the proposed designation would be compatible, or capable of being made
compatible,with environmental conditions and surrounding land uses; and
FINDING: All land uses allowed outright in the Downtown Plan District have been allowed for the past 20
years and no compatibility issues have arisen with the surrounding natural areas. No concerns about allowed
uses were raised by members of the public. This criterion is satisfied.
G. Demonstration that the amendment does not detract from the viability of the City's natural
systems.
The proposed amendments consider the health and viability of the City's natural systems, particularly Fanno
Creek and the urban tree canopy, of high importance. Accordingly, particular emphasis is placed on the health
and access to these natural areas in the proposed policies. This criterion is satisfied.
Policy 2.1.19: The Planning Commission may at any time recommend to the City Council that it
consider initiating legislative amendments to the Comprehensive Plan, Plan/Zoning Maps, and/or
Community Development Code.
FINDING: The recommendation of the Planning Commission regarding the proposed changes will be
brought to the City Council for consideration of adoption. This policy is satisfied through the provisions of
18.710.110 (Legislative Procedure).
Policy 2.1.20: The City shall periodically review and, if necessary, update its Comprehensive Plan and
regulatory maps and implementing measures to ensure they are current and responsive to community
needs, provide reliable information, and conform to applicable state law, administrative rules, and
regional requirements.
FINDING: The proposed policies will update the Comprehensive plan, its maps, and implementing measures
to better comply with new state laws and regional requirements, as well as locally adopted plans and policies
including the Affordable Housing Plan, the updated Housing Needs Analysis, the updated Economic
Opportunities Analysis, the Complete Streets Policy, and others.This policy is satisfied.
Policy 2.2.1: The City shall maintain and periodically update policies, regulations, and standards to
inventory, manage, preserve, mitigate the loss of, and enhance the community's tree and vegetation
resources to promote their environmental, aesthetic, and economic benefits.
FINDING: The proposed policies expand the city's commitment to tree preservation and tree canopy
expansion explicitly.This policy is satisfied.
Policy 9.1.5: The City shall promote well-designed and efficient development and redevelopment of
vacant and underutilized industrial and commercial lands.
FINDING: The proposed policies will be intended to guide the city's updates to the Development Code to
lower barriers to redevelopment of vacant and underutilized commercial lands within the Downtown. A
particular emphasis is placed on ensuring that properties redevelop in a way that promotes the city's urban
design goals. This policy is satisfied.
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Policy 9.2.2: The City shall periodically review and update its policies, land use regulations, and other
efforts to ensure the City's land use program is responsive to changes in the economic structure, and
is adaptable to businesses[`) changing development needs.
FINDING: The proposed policies will update the Comprehensive plan, its maps, and implementing measures
to better comply with new state laws and regional requirements, as well as locally adopted plans and policies
including the updated Economic Opportunities Analysis. This policy is satisfied.
Policy 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; Regional Center (Washington Square);
High Capacity Transit Corridor (Hwy 99W); and the Tigard Triangle.
FINDING: The proposed policies will update the Comprehensive plan to encourage greater employment
growth in the Downtown Metro 2040 Center. The focus on mixed-use development will ensure that employees
are near jobs and transportation opportunities, meeting regional and local goals. This policy is satisfied.
Policy 9.3.2: The City shall adopt land use regulations and standards to ensure a well designed and
attractive urban environment that supports/protects public and private sector investments.
FINDING: The proposed policies focus on the design of the pedestrian realm to ensure that the Downtown
redevelops with a focus on walkability and livability through attractive urban design features. This policy is
satisfied.
Policy 10.1.7: The City shall provide for high and medium density housing in areas such as town
centers (Downtown), regional centers (Washington Square), the Tigard Triangle, 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.
FINDING: The proposed policies focus on preserving existing medium- and high-density housing while lifting
the cap on density to encourage more housing development. In addition, the proposed policies encourage
affordable housing in the Downtown through investment and incentives.This policy is satisfied.
CONCLUSION: Based on the findings above, the Planning Commission concludes that the proposed
comprehensive plan amendments are consistent with applicable provisions of the
Tigard Comprehensive Plan.
APPLICABLE PROVISIONS OF THE TIGARD DEVELOPMENT CODE
Section 18.790: Zoning Map and Text Amendments
18.790.020 Legislative Amendments
Legislative amendments are processed through a Legislative procedure, as provided in Section
18.710.110.
FINDING: The proposed amendments are legislative in nature. Therefore, the amendments will be reviewed
under the Legislative Procedure as set forth in the chapter. This standard is met.
Section 18.710: Decision Making Procedures
18.710.110 Type IV Procedure
Notice of hearing.
1. All Legislative applications require two hearings, one before the Planning Commission and one
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before the City Council.
FINDING: This procedure requires public hearings by both the Planning Commission and City Council.
These public hearings will be conducted on April 1,2024,and May 14, 2024 respectively.This standard is met.
2. A notice of hearing will be provided as required by state law, and an affidavit of mailing will be
included in the record that identifies the mailing date and the names and addresses of the mailing
recipients.
FINDING: State law provides for specific noticing requirements for legislative changes. Notice must be
provided to DLCD of a proposed Post Acknowledgement Plan Amendment at least 35 days prior to the first
hearing. Notice meeting this requirement was provided to DLCD on February 26, 2024, 35 days prior to the
first hearing. This standard is met.
CONCLUSION: Based on the findings above, the Planning Commission concludes that the proposed
Comprehensive Plan amendments and transportation recommendations are consistent
with applicable provisions of the Tigard Development Code.
SUMMARY As shown in the findings above, the Planning Commission concludes that the proposed
CONCLUSION: amendments are consistent with the applicable Statewide Planning Goals; Metro's
Urban Growth Management Functional Plan; applicable Tigard Comprehensive Plan
goals and policies,and the applicable provisions of the City's implementing ordinances.
SECTION V. AGENCY COMMENTS
TVF&R, METRO, ODOT, DLCD, CWS, TTSD, Tigard Water District, City of Beaverton, City of
King City, City of Lake Oswego, and Beaverton School District were notified of the proposed
Comprehensive Plan amendments.
SECTION VI. PUBLIC COMMENTS
No public comments have been received at the time of the staff report.
ATTACHMENTS:
Attachments:
1. Comprehensive Plan Amendments (Strikethrough)
2. Downtown Reimagined Land Use and Transportation Recommendations Report
April 17, 2024
PREPARED BY: Schuyler Warren DATE
Senior Planner
oe tit/e, April 17,2024
APPRO D BY: Agnes Lindor DATE
Interim Assistant Community Development Director
914CitretA April 17,2024
APPROVED BY: Nathan Jackson DATE
Planning Commission President
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