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04/01/2024 - PacketPLANNING COMMISSION AGENDA – April 1, 2024 City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | Page 1 City of Tigard Planning Commission Agenda MEETING DATE: April 1, 2024 - 7:00 p.m. HYBRID MEETING IN-PERSON: City of Tigard – Town Hall SW HALL BLVD 13125 SW Hall Blvd., Tigard, OR 97223 MS TEAMS: https://www.tigard-or.gov/virtualPC 1. CALL TO ORDER 7:00 p.m. 2. ROLL CALL 7:00 p.m. 3. COMMUNICATIONS 7:02 p.m. 4. DOWNTOWN REIMAGINED FINAL REPORT 7:05 p.m. Staff: Sr. Planner Sean Farrelly and Sr. Planner Schuyler Warren 5. LEGISLATIVE PUBLIC HEARING: 7:45 p.m. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS Staff: Sr. Planner Schuyler Warren 6. RIVER TERRACE 2.0 KICKOFF BRIEFING 8:15 p.m. Staff: Sr. Planner Sean Farrelly, Sr. Planner Schuyler Warren 7. OTHER BUSINESS 8:30 p.m. 6. ADJOURNMENT 8:40 p.m. City of Tigard P lanning Commission MEETING DATE: April 1, 2024 - 7:00 p.m. Location: Town Hall - 13125 SW Hall Blvd. Hybrid Meeting 1. CALL TO ORDER President Jackson called the meeting to order at 7:00 PM. 2. ROLL CALL Present: President Jackson, Vice-President Miranda, Commissioner Bowerman, Commissioner Brandt, Commissioner Choudhury (virtual), Commissioner Schuck, Commissioner Tiruvallur, Alt. Commissioner Sabbe, Commissioner Murphy. Absent: None. Staff Present: Tom McGuire, Assistant Community Development Director, Schuyler Warren, Senior Planner, Sean Farrelly, Redevelopment Manager, Agnes Lindor, Senior Planner, Susan Shanks, Senior Planner, Joanne Bengtson, Confidential Executive Assistant, Joe Patton, Sr. Administrative Specialist. 3. COMMUNICATIONS – There was a reminder to vote in the coming election. 4. DOWNTOWN REIMAGINED FINAL REPORT Presenters: Redevelopment Manager Sean Farrelly and Sr. Planner Schuyler Warren Senior Planner Warren and Redevelopment Manager Farrelly provided brief history of efforts to revitalize Downtown Tigard starting in 2005 and the Council-approved Tigard Downtown Improvement Plan (TDIP). That document reflected stakeholder’s vision of a vibrant, mixed-use, and pedestrian-friendly downtown. In 2020, 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. The study area was expanded to include employment lands and Tigard Library and downtown employment east of Hall Blvd. 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 keeping 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, including six focus groups and multiple briefings to City Council and the Transportation Advisory Commission. Focus was given to engaging key stakeholders and historically marginalized communities. From this work, seven priorities were identified. Current land use development code has similar subareas (7) but this fine tunes them and helps to enhance vibrancy of Main Street in anticipation of transit-oriented development: ▪ Unique Character ▪ Housing Diversity ▪ Destinations and Amenities ▪ Minimize Displacement ▪ Visibility ▪ Natural Assets ▪ Connectivity Planning Commission Meeng| April 1, 2024 2 These community priorities and other feedback from residents 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. (See attached Recommended Connectivity Concept graphic for detail.) QUESTIONS Commissioner K7 asked Mr. Farrelly if he foresees any challenges related to affordable housing aimed at minimizing and mitigating housing displacement. Sean said the challenge could be finding land that’s suitable. Businesses change, people retire, and smaller properties are typically more expensive. The city is always looking for ways to mitigate displacement, and affordability is playing out well in Tigard Triangle. Recently, the Alongside Senior Center housing project was helped by the TIF district. Commissioner Brandt asked Mr. Farrelly about the high traffic areas on Main Street. Given traffic volume in active areas, would those be conditional uses until the business changes hands? Sean said the city won’t “outlaw” existing businesses as long as they keep operating. If a business is there, it gets to stay until it changes use. For example, if a car wash sold to another car wash, the non-conforming use and standards would continue to apply. Sean said it’s worth noting the MADE program does change some of the non-conforming use and standards to allow a longer span of time to re-tenant or get back in business if the use is abandoned so they can re-establish the use. Commissioner Choudhury asked if any design recommendations came from the Hispanic community that might be considered unique to the community? Any design struggles? Sean’s recollection was that many of the comments received were similar in nature, regardless of commenter and none would present a struggle. Vice President Miranda asked how recent changes apply in new design categories – multimodal- Main Street accommodates a lot of uses. With storm water features, on-street parking will need to accommodate walkers and cars; and with no bike lanes on Main Street, we’ll look for more ROW for options to bike. A Commissioner asked about downtown Historic District properties. Tigard’s state-designated historic properties are few in number with almost none in downtown. The Joy Cinema is closest. The rest are scattered sites, mostly older homes from founders. The TDA has gotten the highest level of preservation on Main Street, helping to keep downtown prosperous. When asked if we were considering doing a new historic destination assessment, Schuyler and Tom said there’s been no discussion about updating the analysis. Further, Schuyler said the code is written like the Heritage Tree code. A property owner would have to opt-in to additional recommendations/restrictions and that’s not usually palatable to business owners. With Reimagine Downtown, Sean said we looked at neighboring cities for best practices to consider implementing in Tigard. We learned some cities looked at Tigard’s Facade Improvement Grant program, so we all learn from each other about what works and what doesn’t. President Jackson asked how the city is defining displacement? Are we redeveloping affordable housing outside of downtown in favor of higher rents, businesses? Sean said it’s a delicate balance to mitigate displacement. Rents go up, and older buildings are torn down and redeveloped so it’s important to make sure we are encouraging more and better affordable building. Schuyler added that it's important to recognize there’s a limit to what the city can do. We’re not an actor on every property downtown, but through policy and investment, we can mitigate displacement that happens for vulnerable renters who don’t own their property. We want to keep them in the community. 5. LEGISLATIVE PUBLIC HEARING: DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENT (CPA) CPA2024-00005 Staff: Sr. Planner Schuyler Warren Planning Commission Meeng| April 1, 2024 3 President Jackson opened the public hearing on Downtown Comprehensive Plan amendments. Sr. Planner Warren’s presentation was given, noting these are more vision-oriented policies that will inform the next phase of work we’re doing. This is tied to action taken last year on the 2040 boundary change and has the effect of changing density and transportation impacts. New rules significantly ease the requirements for cities. While there’s not a policy change resulting from the 2040 amendments, the change in boundary does allow us to meet the state rule more easily. CPA2024-00005 removes redundant policies (WES, etc.) and moves the form-based recommendation into policy. The bulk of edits are changes to wording, for increased specificity for outcomes, how we’ll get to them. The biggest edits were to parks and open space goals and policies. The goal is to focus on equitable provision of parks and open space and preserve or expand the tree canopy. We’ve also added messaging about carbon-responsible development and called out the jurisdictional transfer of Hall Blvd. from state to city control as a crucial next step. Map changes are not included tonight, but we plan to bring all of those in one package by the end of year. We have not included policy changes for improving connectivity because they’re partially included in the TSP, which will be updated by 2026 in keeping with new state rules. Next steps will include development code recommendations and building on MADE to make code more efficient and usable. PUBLIC TESTIMONY – None given. QUESTIONS Commissioner Brandt asked why the TSP is getting updated so soon after the 2022 update. Sr. Planner Warren replied the DLCD has largely abandoned Period Plan review but under HB 2001 and 2003, we are required to update housing needs analysis and with every UBG expansion. Climate Friendly and Equitable Communities rule amendments that were adopted by the state's Land Conservation and Development Commission back in 2022 changed that requirement when you're doing that kind of up zoning work in 2040 centers. The new rules significantly reduce the analysis burden for cities that are making these kinds of changes. This is why it was important for us to make that boundary change so that it aligned with our downtown plan district boundary. Commissioner Bowerman pointed out that every time we talk about increasing density, we don’t talk about parking. Is that being considered in these plans? Does everyone accept that parking will be horrible? Sr. Planner Warren recognizes the tension around parking and noted that Redevelopment Manager Farrelly has been working on a downtown parking plan for a while. The reality is that providing surface parking displaces people and businesses in exchange for automobiles. If it displaces businesses, it displaces the things we want to see for an active downtown. Autos don’t activate the downtown, people do. Development code is probably not the place to mandate parking. In fact, state law now says we can't mandate parking minimum. What we're attempting to do in the downtown is develop a district-wide management program that addresses areas with a lot of competition during peak hours, and other times and locations have plenty of parking. We aim to find a balance, managing the parking limits on places where people are parking all day who shouldn't be parking on the street all day. Also, we’re looking for ways that businesses with an excess of parking or unused capacity parking can be matched up with businesses who have a shortage of parking and develop shared parking agreements. A successful business district has a little bit of congestion, which encourages walking. Commissioner Bowerman thanked Mr. Warren and said she gets asked that a lot and now she can answer. Planning Commission Meeng| April 1, 2024 4 President Jackson closed the Public Hearing and moved to deliberation by the Commission. President Jackson asked each Commissioner to summarize their thoughts about the proposal. Each responded positively; stating no major concerns and complimenting staff’s work to address community needs. Commissioners’ discussion resulted in a desire for Council to know they are concerned about homelessness downtown and the importance of community safety. MOTION Commissioner Brandt motioned for the Planning Commission to forward a recommendation of approval to the City Council for Application CPA2024-00005 and adopt the findings and conditions of approval contained in the staff report 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. Commissioner Murphy seconded the motion. President Jackson asked for a yea/nay vote, hearing no opposition, the motion passed unanimously. The hearing date for City Council is May 28, 2024. While these policies do not change the current development standards and approval processes that are in place in the Downtown Plan District, they will inform the next stage of the work that we will do to do just that. 6. RIVER TERRACE 2.0 KICKOFF BRIEFING (RESCHEDULED) Sr. Planner Schuyler Warren said this project has been moved to the June 17 Planning Commission agenda to complete a consultant contract and provide Commissioners with an more detail about project kickoff, timelines, community engagement road map and progress reports. 7. OTHER BUSINESS This was Asst. Community Development Director Tom McGuire’s last meeting with the Planning Commission before retiring. Tom thanked the Commission for their support and community dedication, and he introduced members of CD that would be serving as interim while the search for his replacement was underway. Sr. Planner Susan Shanks will be the official Planning Commission liaison. If there are specific trainings, briefings, tours you want, Susan is the coordinator. Sr. Planner Agnes Lindor will be on point for all quasi-judicial hearings. President Jackson asked about the process for filling the voting position vacated by Commissioner Roberts’ resignation on March 19, 2024 with the Commission’s current alternate, April Sabbe. Tom said the appointment process has changed and only the Mayor can make appointments. City Management is conducting recruitments for boards and committees this summer and he advised Ms. Sabbe to apply when the process opens. ADJOURNMENT President Jackson declared the meeting adjourned at 8:47 PM. Joanne Bengtson, Planning Commission Secretary ATTEST: President Nathan C. Jackson DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 1 OF 10 RECOMMENDATIONS AND FINDINGS OF THE PLANNING COMMISSION FOR THE CITY OF TIGARD, OREGON 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 2 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 (TDIP). 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 3 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 4 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. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 5 OF 10 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 6 OF 10 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 7 OF 10 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; DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 8 OF 10 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. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 9 OF 10 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 5/28/2024 PUBLIC HEARING, PLANNING COMMISSION RECOMMENDATION AND FINDINGS PAGE 10 OF 10 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 April 17, 2024 APPROVED BY: Agnes Lindor DATE Interim Assistant Community Development Director April 17, 2024 APPROVED BY: Nathan Jackson DATE Planning Commission President 7/17/2024 1 DOWNTOWN TIGARD REIMAGINED Land Use & Transportation Concepts Briefing Tigard Planning Commission April 1, 2024 Background & Project Purpose 1 2 7/17/2024 2 DOWNTOWN TIGARD REIMAGINED Project Purpose “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” -Tigard Downtown Vision 2020 3 4 7/17/2024 3 vibrant active welcoming accessible DOWNTOWN TIGARD REIMAGINED Project Purpose DOWNTOWN TIGARD REIMAGINED Study Area 5 6 7/17/2024 4 DOWNTOWN TIGARD REIMAGINED Tools the City Has to Shape Downtown •Reduce or subsidize fees for desired development types •Allow additional scale & height for desired development types DOWNTOWN TIGARD REIMAGINED Community Engagement 7 8 7/17/2024 5 DOWNTOWN TIGARD REIMAGINED Project Priorities Recommended Concepts and Strategies 9 10 7/17/2024 6 Main Street Burnham Mixed-Use Downtown Neighborhood Center Street Commercial . • Pacific Highway Gateway Hall Gateway Mixed-Use Employment 217 99W Legend Study Area Boundary Green Space Rail Line Potential SW Corridor Light Rail Alignment Center Street Commercial Main Street Downtown Neighborhood Burnham Mixed-Use Gateway Mixed-Use Employment W RECOMMENDED LAND USE CONCEPT Main Street Build off existing energy with a concentration of ground flloor shops and restaurants through a mix of existing and new development. •1-6 story buildings Burnham Mixed-Use Encourage high-intensity mixed-use housing with active ground floors along SW Burnham St and SW Hall Blvd. Require building heights to step down to Fanno Creek to limit impacts to the natural area and create opportunities for views. •4-8 story buildings Downtown Neighborhood Foster a range of infill housing options,such as apartment buildings,rowhomes,and civic spaces to meet the needs of the community. •2-6 story buildings Center Street Commercial Allow incremental commercial in the near term, with long term aspirations for more increased heights and development intensity. •2-6 story buildings Pacific Highway Gateway Allow incremental commercial development in the near term. Require a strong building presence at Pacific Hwy and Hall Blvd upon redevelopment. •4 -8 stories Hall Gateway Anticipate future large-scale transit-oriented development that includes a relocated on-street bus transit center and light rail station. Incorporate distinct architecture and strong ground floor activation. •6 -12 stories Mixed-Use Employment Mix of commercial/office and light industrial uses. •2-6 stories 217 99W Legend Study Area Boundary Green Space Rail Line Potential SW Corridor Light Rail Alignment Center Street Commercial Main Street Downtown Neighborhood Burnham Mixed-Use Gateway Mixed-Use Employment W RECOMMENDED LAND USE CONCEPT 11 12 7/17/2024 7 Shared Streets Proposed Paths Main Connectivity Priorities •Provide new connections in the Burnham area to support higher intensity development. •Allow flexibility in connectivity alignment and type in Downtown. •Increase access to Fanno Creek Trail/Park with new connections and limit vehicular impacts. •Complete Ash Ave pedestrian/bike crossing and Tigard Heritage Trail crossing of Main St. •Reduce size of the Burnham St and Ash Ave intersection. •Add crosswalks to Hall Blvd. 217 99W W multi-modal streets,shared streets,and bike and pedestrian pathways. Multimodal Streets W CONNECTIVITY RECOMENDATIONS •Designed to balance the needs of all transportation modes,enabling safe use,supporting mobility for all,and activating street frontages.Target speeds are 25 miles per hour (MPH)and are further managed through traffic calming elements including narrow travel lanes,parking,intersection control devices,and landscaping elements to indicate an urban environment. •The slow speed environment contributes to comfortable experiences for people biking while sharing the road.Parking serves the dual purpose of providing access to local business as well as a physical buffer between the pedestrian realm and the travelway. •Approximate right-of-way (ROW)widths range from 36 to 60 feet depending on sidewalk widths and presence of parking. 7’–8’7’–8’10’–11’10’–11’ ROW 36’–60’ 8’–13’8’–13’ Multimodal Streets 13 14 7/17/2024 8 16’–20’8’–14’8’–14’ ROW 32’–48’ •Designed as shared environments,with an emphasis on people,low speeds,and placemaking.Shared Streets provide vehicular access but are catered to giving people a comfortable,social,and welcoming environment with little modal division.Modal space is defined through pavers and changes to surface material.Parking is flexible and can be provided on a block-by-block basis or at individual locations.Speeds are managed through traffic calming elements. •Approximate ROW widths range from 32 to 48 feet depending on sidewalk widths. Shared Streets 10’–14’1’–7’1’–7’ ROW 12’–24’ •Designed for people walking,biking,and rolling and do not provide access for vehicles.Minimum Path widths are 10 feet and can be widened based on surrounding context,land uses,and anticipated path user volumes. Opportunities for landscaping,placemaking,and path amenities are encouraged. •Approximate ROW widths range from 12 to 24 feet. Paths 15 16 7/17/2024 9 Fanno Creek Open Space +Trails •Use setbacks, building height step-backs, and limited vehicular circulation to protect creek areas. •Complete Nick Wilson Plaza to improve access to and provide views of FC from Main St. •Require new streets and paths at redevelopment to increase access to FC. •Add more wayfinding signage to FC and on the trails. •Add interactive or interpretive play elements along FC trails for younger visitors. •Incorporate trail lighting through Downtown. •Complete Heritage Trail through Downtown. Universal Plaza Enhance and activate the plaza to support development in the Burnham area. Open Space Connectivity Improve access to Fanno Creek Trail/Park from Downtown via pedestrian connections. Red Rock Creek Enhancements •Improve Red Rock Creek Trail rail crossing to allow for better access to FC Trail/Park. •Incorporate better wayfinding to directvisitorsto Downtown via access to FC trail. Legend Study Area Boundary Green Space Plaza Rail Line Existing Trail Red Rock Creek Trail Improvement Proposed Multimodal Street Proposed Path W OPEN SPACE RECOMENDATIONS Market Rate Unit Interventions •Leverage and/or augment loan pro- grams from outside funding to help affordable housing non-profits or the Washington County Housing Authority acquire older,low-cost market-rate properties and convert them to regulated affordable units. •Support tenant protections via targeted outreach,referrals,funding for service providers,property owner /manager education (e.g.,as part of a rental registration program),or other means. Affordable Housing Interventions •Include affordability incentives in city redevelopment projects •In addition to the existing Vertical Housing Development Zone program,consider additional tax abatement programs to incentivize mixed-income residential development and/or affordable homeownership •Provide financial or other support for preservation of mobile home communities through tenant or nonprofit acquisition.. •Partner to connect residents of mobile home communities to displacement management •programs if needed due to a closure. •Purchase detached houses for affordable housing development via willing owners with relocation assistance programs if needed for existing tenants. 217 99W Legend Study AreaBoundary Apartment Duplex.Triplex, &Quadplex Mobile Home Detached House Affordable Housing W HOUSING RECOMENDATIONS 17 18 7/17/2024 10 THANK YOU!!!! 19 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 1 OF 11 Agenda Item: Hearing Date: April 1, 2024 Time: 7:00 PM STAFF REPORT TO THE PLANNING COMMISSION FOR THE CITY OF TIGARD, OREGON 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 Planning Commission’s review are included in Attachment 1 and summarized below in Section III of this report. The 2024 Downtown Reimagined Land Use and Recommendations Report is included as Attachment 2. 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. STAFF RECOMMENDATION Staff recommends the Planning Commission find in favor of adopting the amendments to the Tigard Comprehensive Plan (Attachment 2) and the supporting Land Use and Transportation Recommendations Report (Attachment 3) with any alterations as determined through the public hearing process and make a final recommendation to the Tigard City Council. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 2 OF 11 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 (TDIP). 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. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 3 OF 11 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 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 staff report 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 4 OF 11 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. • 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 three drafts of the proposed Comprehensive Plan amendments (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 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 5 OF 11 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 T riangle 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 i ncreasing 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. 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, staff 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, staff 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 6 OF 11 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 engagemen t 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 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. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 7 OF 11 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 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 level development in the form of proposed amendments will increase the intensity of development in the 2040 Center through the lifting of the maximum 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 8 OF 11 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; 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 9 OF 11 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. 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. DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 10 OF 11 CONCLUSION: Based on the findings above, staff 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 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, staff concludes that the proposed Comprehensive Plan amendments and transportation recommendations are consistent with applicable provisions of the Tigard Development Code. SUMMARY CONCLUSION: As shown in the findings above, staff concludes that the proposed 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 DOWNTOWN REIMAGINED COMPREHENSIVE PLAN AMENDMENTS CPA2024-00005 4/1/2024 PUBLIC HEARING, STAFF REPORT TO THE PLANNING COMMISSION PAGE 11 OF 11 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 March 14, 2024 PREPARED BY: Schuyler Warren DATE Senior Planner March 14, 2024 APPROVED BY: Tom McGuire DATE Assistant Community Development Director 7/17/2024 1 The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence Planning Commission April 1, 2024 Legislative Hearing: CPA2024-00005 Downtown Reimagined Comprehensive Plan Amendments The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence •Work product of the Downtown Reimagined project •Implement the recommended policies of the Land Use and Transportation Recommendations Report •Will inform the next stage of work Comprehensive Plan Amendment Package 1 2 7/17/2024 2 The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence Downtown Reimagined Legislative Process Land Use and Transportation Recommendations Comprehensive Plan Amendments Development Code Amendments The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence Downtown Reimagined Process Land Use and Transportation Recommendations Comprehensive Plan Amendments Development Code Amendments 2040 Center Boundary Change Highway Impact Summary 3 4 7/17/2024 3 The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence •Goal 15.1.1 –extraneous, included in other goals •Compatibility along commuter rail line –included in other policies •Form-based code action item –included in earlier policy Amendment Summary –Removed Items The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence •Wording changes for better clarity •Reference to Streetscape Design Plan –doesn’t exist •Parks and open space goals and policies •Goal rewritten to focus on provision of parks and integration of Fanno Creek •Equity and access to parks and open spaces •Preservation and expansion of tree canopy •Implement scaling of building massing along Fanno Creek Amendment Summary –Edited Items 5 6 7/17/2024 4 The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence •Parking policies required by Transportation Planning Rule (CFEC) •Focus on carbon responsible development •Policy supporting jurisdictional transfer of Hall Boulevard Amendment Summary –Added Items The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence •Development code amendments •Implement the Land Use and Transportation recommendations •Informed by and builds on Tigard MADE •Map amendments •Comprehensive Plan Map •Zoning Map Next Steps –What to Expect 7 8 7/17/2024 5 The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence Recommendation •Community Development recommends forwarding a recommendation to adopt to City Council. The 5 E’s –Tigard’s Community Promise: Equity l Environment l Economy l Engagement l Excellence Discussion and questions Thank You 9 10 Comprehensive Plan Amendments Tigard Comprehensive Plan Chapter 15 CPA 2024-00005 Strikethrough Text shown in strikethrough is to be removed. Text shown in bold, italic, and underlined is to be added. GOAL: 15.1.1: The City will promote the creation of a vibrant and active urban village at the heart of the community that is pedestrian oriented, accessible by many modes of transportation, recognizes natural resources as an asset, and features a combination of uses that enable people to live, work, play, and shop in an environment that is uniquely Tigard. RECOMMENDED ACTION MEASURES: 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 zZoning 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 supportprovide for 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, etc); 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 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. Downtown 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. New housing in the downtown The Downtown Plan District shall accommodate provide for a wide range of housing opportunitiestypes, including ownership, rentalworkforce, and regulated affordable housing in a high-quality living environment while minimizing displacement of existing residents. 7. New zoning and design guidelines on Main Street will emphasize a “traditional Main 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, with quality design and permanent materials, particularly in the building fronts and streetscape. pedestrian-scale design, and active ground-floor frontages. Also develop appropriate density, height, mass, scale, architectural, and site design guidelines. ii. Utilize form based code principles in ways that are consistent with state planning laws and administrative rules. ii.iii. Adopt non-conforming use standards appropriate to a downtown in transition to encourage incremental redevelopment. iv. Develop code measures to mitigate any compatibility issues when new downtown development occurs in close proximity to the downtown’s commuter rail line. 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.Implement strategies to assist in minimizing and mitigating the displacement of existing and future affordable housing as redevelopment occurs. GOAL: 15.1.3 Develop and Improve the Open Space System and Integrate Natural Features into downtownEnsure the Downtown Plan District is adequately serve by high-quality parks and open spaces and is well-integrated with natural features such as Fanno Creek. POLICIES: 1. Natural resource functions and values shall be integrated into downtown urban designThe function and health of Fanno Creek shall be considered of primary importance in development within its proximity. 2. The Fanno Creek Public Use Area, adjacent to Fanno Creek Park, shall be a primary 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. 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. Tree canopy shall be preserved and increased to the greatest extent practicable in order to reduce urban heat island, 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 address concerns with homeless persons and vagrancy reduce the impact of houselessness on natural systems and protect unhoused residents from flood and other hazards. in the Downtown and Fanno 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: 15.1.4 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.street and circulation improvements for pedestrians, automobiles, bicycles, and transit. POLICIES: 1. The downtown shall be served by a complete array of multi-modal transportation 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, bike, transit, and automobile access and mobility. 2. The downtown shall be Tigard’s primary transit center for rail, and bus, and potential future 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, and 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: viii. 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), and 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 Ride lot, and bikeways. vii. Express the themes of an urban village and green heart by utilizing the “unifying elements” palette from the Streetscape 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 Downtown’s public investment / and facility needs into the City’s Public Facility Plan and implementing Community Investment Plan. Kittelson & Associates, Inc. Memorandum November 6, 2023 Project# 23021.047 To: Glen Bolen, AICP; Oregon Department of Transportation (ODOT) Sean Farrelly, City of Tigard From: Nick Gross, Susan Wright, PE, PMP RE: Tigard Downtown Reimagined Multimodal Transportation Gap Summary & Highway Impact Summary DRAFT PROJECT OVERVIEW The Tigard Downtown Reimagined Project (Project) aims to integrate Downtown Tigard’s historic roots with contemporary development patterns and respond to community needs for more housing and multimodal travel options. Building upon previous and concurrent planning efforts, this Project aims to modernize the City’s approach to development, transportation, and equity by providing recommendations for policies, financial investment, and code changes that: ◼ Support Transit Oriented Development (“TOD”) ◼ Set new equity and climate policy and implementation goals ◼ Provide quality walking, cycling and transit choices ◼ Create a vibrant community through strategic investments The Project area is primarily zoned Mixed Use-Central Business District (MU-CBD), with small areas zoned General Commercial, Light Industrial, Industrial Park and Parks and Recreation at the edges of the project area. There is no residential zoning within the project area. The MU-CBD zone is regulated by the Tigard Downtown Plan District, which includes development standards that encourage density and mixed uses, including minimum residential densities, taller ground floor height requirements, reduced parking requirements, small maximum setbacks, and urban-feeling lot coverage and landscape requirements. Issue The City’s development standards are intended to encourage density and mixed uses; however, these patterns have not come to fruition. The Project is looking at refining building heights by downtown subareas1 and eliminating maximum residential densities. To achieve these objectives and vision of the Project, comprehensive plan, development code, and Metro 2040 Center boundary amendments are proposed to allow for and realize the desired development in the downtown core that contributes to a vibrant, active, welcoming, and accessible mixed-use area with increased residential densities and commercial businesses. 1 Refined building heights are generally consistent with existing development code 851 SW 6th Avenue, Suite 600 Portland, OR 97204 P 503.228.5230 November 6, 2023 Page 2 Tigard Downtown Reimagined Study Area Kittelson & Associates, Inc. STUDY AREA The Project is located within an existing Metro Region 2040 Center, which is subject to Climate Friendly Areas (CFA) transportation review per OAR 660-012-0325(1). As part of the Project, amendments to the existing Metro Region 2040 Center boundary are proposed. According to the latest round of draft amendments to Chapter 660 – Division 12 Transportation Planning documented as part of the Climate-Friendly and Equitable Communities Corrections & Clarifications Rulemaking, Rulemaking Advisory Committee Meeting 4,Cities and counties considering amendments to comprehensive plans or land use regulations to adopt or expand a 50 climate -friendly area as provided in OAR 660-012-0310 through OAR 660-012-0320, or a Metro Region 2040 51 center, must make findings, including: (a) A multimodal transportation study as provided in section (4); and (b) The multimodal transportation study must include a highway impacts summary as provided in section (5) if the designated climate-friendly area as provided in OAR 660-012-0315 or Region 2040 center contains a ramp terminal intersection, state highway, interstate highway, or adopted ODOT Facility Plan.” The Multimodal Transportation Gap summarizes the existing facility gaps for the automobile, truck/freight, pedestrian, bicycle, Americans with Disability (ADA), and transit networks. This Highway Impact Summary is intended to address the potential effects on ODOT facilities within the Metro Regional Center or nearby that may occur from proposed changes to the current Comprehensive Plan policies and zoning for the project area. Figure 1 illustrates the Project study area, the proposed Metro Region 2040 boundary, and proximity to the OR217 ramp terminal. November 6, 2023 Page 3 Tigard Downtown Reimagined Study Area Kittelson & Associates, Inc. Figure 1: Study Area November 6, 2023 Page 4 Tigard Downtown Reimagined Study Area Kittelson & Associates, Inc. Existing Downtown Tigard Subarea Map Most of the project area lies within Downtown Tigard and is zoned MU-CBD2. As identified in the City’s Development Code, Downtown Tigard is further divided into four (4) unique subareas as well as a Station Area Overlay. Figure 2 illustrates the Subarea Map for Downtown Tigard. Figure 2: Tigard Downtown Plan District Sub-Areas Map As part of the Project, modifications to the Subarea Map are proposed as well as changes to expand the Downtown mixed-use zone (MU-CBD) to additional parcels east of Hall Blvd. 2 https://www.tigard-or.gov/your-government/departments/community-development/planning/zoning November 6, 2023 Page 5 Tigard Downtown Reimagined Planned Transportation Improvements Kittelson & Associates, Inc. PLANNED TRANSPORTATION IMPROVEMENTS There are several planned transportation facilities and investments within the Project study area that support vehicular capacity improvements, mode shift from single occupancy vehicles (SOV) to active transportation modes, and safety improvements. These improvement projects are documented in the plans and projects summarized below with further detail of their respective benefits described in Appendix A. ◼ Southwest Corridor Light Rail Project ◼ City of Tigard Transportation Safety Action Plan 2019 ◼ City of Tigard Transportation System Plan 2022 ◼ Washington County Transportation System Plan 2019 ◼ Statewide Transportation Improvement Program 2021-2024 ◼ Metro Regional Transportation Plan 2018 ◼ Metro Regional Transportation Plan 2023 ◼ TriMet Pedestrian Plan, 2020 EXISTING TRANSPORTATION NETWORK The following sections describe specific modal infrastructure for the pedestrian, bicycle, and transit networks, and identifies gaps in those networks. These summaries rely on the information published in the City’s recently adopted 2020 Transportation System Plan (TSP) as well as ODOT’s TransGIS website. Automobile Network The general characteristic of the Project area is that of a Traditional Downtown/Central Business District. The Project area is generally bounded by OR99W (Pacific Highway West) to the north-northwest, OR217 to the east, and Fanno Creek to the south-southwest, with OR141 (SW Hall Boulevard/Beaverton-Tualatin Highway) running north-south through the center. State Facilities OR99W (Pacific Highway West) OR99W (Pacific Highway West) is an Urban Other Principal Arterial with a posted speed of 35mph within the Project area (OR217 southbound ramps [MP 8.69] to SW McKenzie Street [MP 9.56]). West of SW Greenburg/Main Street(MP 8.93), OR99W has a 4-lane section. East of SW Greenburg Road/Main Street, OR99W widens to a 5-lane section approaching the OR217 interchange. Shoulders are provided along OR99W within the Project area with the exception of the segment on and approaching the OR99W viaduct over the Portland & Western Railroad/Westside Express Service Light Rail (MP 9.18 to MP 9.38). OR 99W is classified as a Statewide Highway. According to ODOT’s TransGIS, the Average Annual Daily Traffic (AADT) within the Project area on OR99W is approximately 35,500 with a range of 30,001 to 50,000. November 6, 2023 Page 6 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. OR141 (SW Hall Boulevard/Beaverton-Tualatin Highway) OR141 (SW Hall Boulevard/Beaverton-Tualatin Highway) is a 2-lane Urban Minor Arterial with paved shoulders and a posted speed of 30mph between OR99W (MP 4.97) and Tigard City Hall (MP 5.62). Two- way left turn (TWLT) lanes and dedicated left-turn lanes are located intermittently. South of Tigard City Hall, the posted speed increases to 35mph. According to ODOT’s TransGIS, the AADT on OR141 within the Project area is approximately 9,400 with a range of 5,001-10,000 between OR99W and SW Burnham Street and approximately 11,200 with a range of 10,001 – 15,000 south of SW Burnham Street. Interchange The OR99W/OR217 southbound ramp terminal is located approximately 100 feet east, and the OR99W/OR217 northbound ramp terminal is located approximately 730 feet east of the Project study area. Primary Local Streets The primary local streets within the Project area are SW Main Street, SW Burnham Street, SW Commercial Street, SW Hunziker Street, and SW Scoffins Street. A summary of the roadway characteristics including functional classification, number of lanes, posted speed, and on-street parking is summarized in Table 1. Table 1: Primary Local Street Characteristics Roadway Functional Classification Number of Travel Lanes Posted Speed (MPH) On-Street Parking SW Main St Collector 2 20 Yes SW Burnham St Collector 2-3 30 Yes SW Commercial St Local 2 30 Yes SW Hunziker St Collector 2 35 No SW Scoffins Rd Collector 2-3 Not Posted No In addition to the network described above, the Project has identified a Recommended Connectivity Concept that includes the new local multimodal streets, proposed paths, and shared street connections to facilitate the movement of people in and around the Downtown Tigard area. Appendix B illustrates the Recommended Connectivity Concept. Study Intersections The Downtown Tigard Reimagined Plan area includes 11 study intersections analyzed for existing and future motor vehicle traffic operations. These intersections include a mix of Oregon Department of Transportation (ODOT) facilities and City of Tigard facilities. Table 2 describes the intersection jurisdiction and intersection control. November 6, 2023 Page 7 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Table 2. Study Intersections and Intersection Control Type # Intersection Jurisdiction Intersection Control 1 OR 99W/SW Hall Boulevard ODOT Signalized 2 OR 99W/OR 217 (southbound ramps) ODOT Signalized 3 OR 99W/OR 217 (northbound ramps) ODOT Signalized 4 OR 99W/SW Main Street/SW Greenburg Road ODOT Signalized 5 OR 99W/SW Main Street/SW Johnson Street ODOT Signalized 6 SW Hall Boulevard/SW Hunziker Street/SW Scoffins Street ODOT Signalized 7 SW Hall Boulevard/SW Commercial Street ODOT Two-Way Stop Control 8 SW Hall Boulevard/SW Burnham Street ODOT Signalized 9 SW Main Street/SW Commercial Street Tigard One-Way Stop Control1 10 SW Main Street/SW Scoffins Street Tigard All-Way Stop Control 11 SW Main Street/SW Tigard Street Tigard One-Way Stop Control2 1. SW Commercial Street northbound stop controlled. 2. SW Tigard Street southbound stop controlled Truck/Freight Network OR99W is classified as a freight route in the Oregon Highway Plan and is part of the National Freight network. OR99W within the Project area is identified as a Reduction Review (ORS 366.215) Route; however, it is not identified as a High Clearance Route. Trucks compose approximately 3.8 percent of traffic on OR99W within the Project area. None of the local streets within the Project are part of the National or OHP Freight network. Pedestrian Network and Network Gaps The City of Tigard's TSP documents the pedestrian network and network gaps within the Project area. Figure 3 illustrates the existing pedestrian and planned pedestrian network for the Project area3. 3 ODOT’s TransGIS website incorrectly identifies the presence of sidewalks on OR99W. March 18, 2024 Page 8 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Figure 3: Pedestrian Network March 18, 2024 Page 9 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Within the Downtown Tigard Reimagined study area, there are streets with complete sidewalks on both sides, streets with a complete sidewalk on one side, and streets with no complete sidewalks. There is also the Tigard Heritage Trail and the Fanno Creek Trail, the latter of which has overhead flashing beacons at its crossing at SW Hall Boulevard and a rectangular rapid flashing beacon at its crossing with SW Main Street. Streets with complete sidewalks provide a mixture of curb-tight sidewalks as well as sidewalks that are set back from the curb with street trees or stormwater retention facilities. SW Burnham Street has four midblock crosswalks, three of which include brick pavers on an asphalt street, as well as curb extensions to shorten the pedestrian crossing distance. Similarly, all of the crosswalks on SW Main Street on the west side of the railroad tracks use brick pavers to denote crossings at either intersections or at midblock locations. Streets with complete sidewalks on one side of the street are somewhat common within the study area. Among the study area streets, SW Hall Boulevard has a complete sidewalk on the west side of the street, but a limited amount of sidewalk on the east side of the street south of SW Hunziker Street. On SW Hunziker Street, there is a complete sidewalk on the north side of the street and a partially complete sidewalk on the south side of the street. SW Tigard Street has a complete sidewalk on the north side of the street, but the south side of the street only has a complete sidewalk near the SW Main Street intersection. Streets that do not have complete sidewalks vary in where these facilities are lacking. Highway 99W through downtown Tigard has no sidewalks on the bridge over the railroad tracks, but there are sidewalks on either side of the bridge. SW Ash Avenue east of the railroad tracks has no sidewalks at all. And SW Scoffins Street has complete sidewalks north of SW Ash Avenue but no sidewalks south of Ash Avenue. Bicycle Network and Network Gaps The City of Tigard's TSP documents the bicycle network and network gaps within the Project area. Figure 4 illustrates the existing bicycle and planned bicycle network for the Project area. On-street bicycle lanes are located on Highway 99W, SW Hall Boulevard, and SW Greenburg Road. Highway 99W is classified as a principal arterial, and SW Hall Boulevard and SW Greenburg Road are both classified as arterials. The Highway 99W bridge over the railroad does not include bicycle lanes. For the remaining street network within the study area, bicyclists must share the roadway with vehicles. SW Main Street, SW Hunziker Street, SW Burnham Street, and SW Scoffins Street are all classified as collector roadways with shared bicycle and vehicular facilities. The remaining streets in the study area are neighborhood roadways. As shown in Figure 4, two key active transportation connections are proposed to address existing gaps in the active transportation network across the railroad. These proposed active transportation connections include the SW Grant Avenue/SW 9th Avenue railroad undercrossing and the SW Ash Avenue railroad overcrossing. Addressing these active transportation gaps will increase active transportation access in the study area and improve larger active transportation connectivity by providing lower stress, higher comfortable connections accessible to a broader range of populations. Today, the only grade separated railroad crossing within the study area is OR99W which as described previously, does not include sidewalks or bike lanes. March 18, 2024 Page 10 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Figure 4: Bicycle Network March 18, 2024 Page 11 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. American with Disability Act (ADA) Gaps The following section summarizes the presence and compliance of ADA facilities located along the state highways located in the Project area. The majority of intersections are equipped with ADA infrastructure (ramps, push buttons, detectable warning systems), but based on further review, do not meet ADA compliance. Pedestrian Ramps The following intersections do not meet ADA ramp compliance for all corners of the intersection. ◼ OR99W/SW McKenzie Street ◼ OR99W/SW Johnson Street/SW Main Street ◼ OR99W/OR141 (Hall Boulevard/Beaverton-Tualatin Highway) ◼ OR99W/OR217 southbound ramps ◼ OR141 (Hall Boulevard/Beaverton-Tualatin Highway)/SW Commercial Street The following intersections do not meet ADA ramp compliance for most corners of the intersection. ◼ OR99W/SW Greenburg Road/Main Street – the northwest corner ramp meets ADA compliance; all other corners do not. ◼ OR141 (Hall Boulevard/Beaverton-Tualatin Highway)/SW Hunziker Road – the northeast corner ramp meets ADA compliance; all other corners do not. ◼ OR141 (Hall Boulevard/Beaverton-Tualatin Highway)/SW Scoffins Street – the southwest corner ramp meets ADA compliance; all other corners do not. ◼ OR141 (Hall Boulevard/Beaverton-Tualatin Highway)/SW Burnham Street – the northeast corner of ramp meets ADA compliance; all other corners do not. Push Buttons Push buttons are located at all state highway intersections within the Project area; however, all push buttons are flagged as “poor” for functional condition and lack audible signal, making them not compliance to ADA standards. ADA information including ramp compliance, push button information is provided on ODOT’s TransGIS website: ODOT TransGIS (state.or.us). Sidewalks Sidewalk conditions on OR99W and OR141 were evaluated as part of the Multimodal Transportation Summary. As previously state and shown in Figure 3, sidewalk gaps are present along OR99W. Where sidewalks exist, they often do not meet ADA compliance for facility widths due to clearance requirements or pinch points (mailboxes, utility poles, signage, railings, etc.) There remains a need to close sidewalk and ADA infrastructure gaps, consistent with the projects and priorities expressed in the City’s TSP. November 6, 2023 Page 12 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Transit Network and Network Gaps Transit service in Downtown Tigard is provided by TriMet and Yamhill County Transit. There are seven bus lines and one commuter rail line across two transit agencies that serve the Project area. These include two frequent service TriMet bus routes (Line 12 and Line 76), as well as one -seat service to downtown Portland, Beaverton, Tualatin, Lake Oswego, Wilsonville, and McMinnville. Table 3 includes service details for each transit route within the downtown Tigard study area. Each of these transit routes serves the Tigard Transit Center, which is located on SW Commercial Street to the south of SW Main Street. Tigard Transit Center includes a park and ride, and bike lockers/bike racks. Figure 5 illustrates the existing and planned transit network. Table 3. Transit Routes Serving Downtown Tigard Route Operator Service Days Hours Frequency WES Commuter Rail TriMet Weekdays 5:15 AM – 9:30 AM 3:30 PM – 7:45 PM 45 minutes 12 TriMet All Days 5:00 AM – 2:00 AM 15 minutes 45 TriMet All Days 5:45 AM – 8:30 PM (weekdays) 10:30 AM – 7:45 PM (weekends) 60 minutes (weekdays) 75 minutes (weekends) 64 TriMet Weekdays 2:45 PM – 7:30 PM 30 minutes 76 TriMet All Days 6:00 AM – 11:50 PM 15 minutes 78 TriMet All Days 6:00 AM – 11:30 PM (weekdays) 6:00 AM – 8:20 PM (weekends) 30 minutes 94 TriMet All Days 4:30 AM – 1:10 AM 15 minutes (PM peak) 30 minutes (all other times) 44/44X Yamhill County Transit Monday – Saturday 5:10 AM – 8:50 PM (weekdays) 7:45 AM – 7:45 PM (Saturday) 45 minutes (weekday peak) 90 minutes (weekday off-peak) 3 hours (Saturday) Southwest Corridor Light Rail Project Metro, TriMet, and the Federal Transit Administration completed the Final Environmental Impact Statement (FEIS) for the Southwest Corridor Light Rail Project in January 2022. The FEIS identified a preferred route through downtown Tigard, beginning with an at-grade crossing of SW Hunziker Street at SW Knoll Drive, then running adjacent to SW Hall Boulevard to SW Commercial Street, where the alignment turns to the south and runs along the eastside of the existing railroad tracks. Figure 5 includes the routing for the proposed Southwest Corridor project. The Southwest Corridor Light Rail Project was part of a larger transportation funding measure on the November 2020 ballot across the entire Metro region. That measure failed to pass, so design work on the Southwest Corridor Light Rail Project has been paused. November 6, 2023 Page 13 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Transit Bottlenecks During the summer of 2023, TriMet and Metro launched the “Better Bus” program designed to make bus travel more effective and more attractive using a data-driven approach. Preliminary analysis identified in the Better Bus: Simplified Systemwide Review web-based tool provides a detailed look at six evaluation metrics related to transit operations on the entire TriMet bus system. This data was derived from an initial screening of the entire TriMet bus system with exclusion of some geographic locations (e.g., transit mall, Tilikum Crossing, transit centers). High & medium delay locations were identified through the application of a scoring approach using 20 values: four delay and travel time metrics and five time periods. The analysis divided the TriMet service area into 14 subareas and the top 20% of segments within each subarea were selected and incorporated into the Better Bus: Simplified Systemwide Review web -based tool. Exhibit 1 shows Passenger Delay (passenger hours) per mile per day and Exhibit 2 shows travel time variability (ratio of run times) in Downtown Tigard where transit service is provided. Exhibit 1: Passenger Delay (passenger hours) per mile per day Exhibit 2: Travel Time Variability (ratio of run times) As shown in Exhibit 1, greater than 5 hours of passenger delay is reported along OR99W as well as SW Commercial Street in Downtown Tigard. Exhibit 2 shows high levels of travel time variability at the SW Greenburg Road/OR99W intersection. November 6, 2023 Page 14 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Opportunities to address existing transit service bottlenecks including passenger delay and travel time variability should be explored as part of a follow-up transit service and operations study. The City should evaluate grant funding opportunities in partnership with ODOT to address transit bottlenecks and operations. March 18, 2024 Page 15 Tigard Downtown Reimagined Existing Transportation Network Kittelson & Associates, Inc. Figure 5: Transit Facilities March 18, 2024 Page 16 Tigard Downtown Reimagined Existing Development Capacity of the CFA Kittelson & Associates, Inc. EXISTING DEVELOPMENT CAPACITY OF THE CFA Section 18.650.050 Development Standards of the City’s Development Code set the standards for the existing maximum development capacity. The building height maximums and residential density maximums are the most significant development standards impacting development capacity. These standards are summarized below for each of the four (4) subareas within Downtown Tigard. Today, the maximum units per acre within the subareas in Downtown Tigard is 50 units per acre, with densities of up to 80 units per acre permitted in the Station Overlay as shown above. One of the primary proposed changes as part of the Project is to eliminate the maximum residential density and rely on maximum building heights and setbacks. November 6, 2023 Page 17 Tigard Downtown Reimagined Proposed Development Capacity of CFA Kittelson & Associates, Inc. PROPOSED DEVELOPMENT CAPACITY OF CFA The Project study area has a very small supply of buildable (i.e., vacant) land. Much of what is identified as having a high level of redevelopment potential is in the Fanno Creek vegetated corridor and is not developable. The two primary changes resulting from the adoption of the Project and updates to the comprehensive plan that could affect development capacity, in addition to other c hanges affecting the character of future development, are: ◼ Modifications to the City’s Development Code to eliminate residential density maximums. ◼ Modifications to the subarea boundaries within the Downtown Tigard area and expansion of the downtown zoning to adjacent parcels within the Project area east of SW Hall Boulevard to reflect the preferred land use concept more closely. For example, the sites near the future light rail station are shown with industrial zoning but the preferred concept includes 6-12 story development. Modifications to the City’s Development Code As described earlier, the Project proposes to eliminate maximum residential densities currently set for the downtown subareas and identified within Table 18.650.050 Development Standards in t he City’s Development Code Building height maximums are currently set at 80 feet (~7 stories) for the Main Street, Scoffins/Commercial, and Fanno/Burnham subareas and 45 feet (~4 stories) for the 99W/Hall Corridor subarea and any areas within 200 feet of Fanno Creek Park. Building heights by subarea are proposed to be refined as shown in Figure 6. The maximum proposed building heights are primarily 6 stories with some areas up to 8 stories and 12 stories near the future Light Rail Station. Modifications to Subarea Boundaries The proposed modifications to the subarea boundaries within Downtown Tigard and expansion of the MU - CBD zoning district boundary are identified as part of the Preferred Land Use Concept. This overlay, illustrated in Figure 6 identifies typologies, general land use types, district areas, and building story recommendations. March 18, 2024 Page 18 Tigard Downtown Reimagined Proposed Development Capacity of CFA Kittelson & Associates, Inc. Figure 6: Preferred Downtown Tigard Land Use Map March 18, 2024 Page 19 Tigard Downtown Reimagined Summary of Additional Motor Vehicle Traffic Kittelson & Associates, Inc. SUMMARY OF ADDITIONAL MOTOR VEHICLE TRAFFIC As described earlier, the land use changes associated with the Project will be almost exclusively focused on modifying the subarea boundaries within the existing Downtown zone (MU-CBD), which covers nearly the entire Project Area, and changing the zoning for the properties east of SW Hall Boulevard from industrial to urban mixed-use allowing buildings between 6 – 12 stories in height. As a result, the additional motor vehicle traffic generated by the adoption of the Project is primary focused on two changes: ◼ Refinement of building height maximums and boundary expansion in the Hall Gateway District to accommodate future transit-oriented development. ◼ Boundary expansion of the Burnham Mixed-Use District to include the Tigard City Library. Hall Gateway District The Hall Gateway District is anticipated to include future large-scale transit-oriented development that includes a relocated on-street bus transit center and the addition of a light rail station at Hall Boulevard. The Project also proposes expanding the boundary of the Hall Gateway District southwest of SW Hall Boulevard. The feasibility of the Hall Gateway District being built out to 6 to 12 story buildings relies on the development of these non-motorized transportation facilities to attract this level of development and make feasible from a market standpoint. If investment like the relocated on-street bus transit center and light rail station do not come to fruition, it is unlikely that development consistent with this plan in the proposed Hall Gateway District would be catalyzed. Because the development associated with the proposed Hall Gateway District is heavily dependent on the investment in these active transportation facilities, the increase in motor vehicle trips is negligible. For the negligible amount of increased motor vehicle trips generated by the proposed changes to the Hall Gateway District, the currently planned mitigation and transportation improvement projects identified in Appendix A are anticipated to address the additional vehicular trip impacts. Burnham Mixed-Use District The primary change to the Burnham Mixed-Use District is the expansion easterly across SW Hall Boulevard. In this location, high-intensity mixed-use housing with active ground floor is encouraged. Because the Tigard Downtown Plan District Sub-Areas Map already includes most of the Burnham Mixed-use District area, additional trips are only associated with the newly added boundary east of SW Hall Boulevard. Because of the proximity to the planned transit and light-rail station improvements, the increase in motor vehicle trips is negligible. For the negligible amount of increased motor vehicle trips generated by the proposed changes to the Burnham Mixed-Use District, the currently planned mitigation and transportation improvement projects identified in Appendix A are anticipated to address the additional vehicular trip impacts. November 6, 2023 Page 20 Tigard Downtown Reimagined Summary of Additional Motor Vehicle Traffic Kittelson & Associates, Inc. Existing Transportation Analysis Zones Assumptions Metro maintains the travel demand model that estimates current and future housing and employment in the region. The estimates are based on the coordinated population forecast, economic forecasts, land use plans, assumptions and desires about how areas will develop or redevelop. Model development and refinement is completed in coordination with local jurisdictions. The Project study area is primarily covered by four different transportation analysis zones (TAZ) in the model. The table below shows the location of these four TAZs in downtown Tigard and summarize s the projected increase in number of households and in employment between 2015 and 2040. Table 4 below provides further details on household and employment growth. Table 4: Transportation Analysis Zones – Downtown Tigard TAZ 2015 Households 2040 Households Household Increase 2015 Employment 2040 Employment Employment Increase 1,039 95 95 0 3,252 3,555 303 1,041 241 904 663 674 1,335 661 1,042 264 1,141 877 505 1,038 533 1,043 117 341 224 522 735 213 Total 717 2,481 1,764 4,953 6,663 1,710 As shown above, growth of approximately 1,764 households and 1,710 employment is projected for the study area. For context, approximately 28 six-story buildings with 10 units per floor is equivalent to 1,700 households. The proposed changes associated with the Project (subarea boundary and development code modifications) are not anticipated to create new vehicular trips beyond what’s anticipated in the 2040 travel demand model. Instead, these changes are proposed to right-size the development code standards that currently limit the reality of the forecasted development from occurring. The maximum development capacity is unclear at this time; however, these proposed changes are not anticipated to result in 20-year growth exceeding what is currently allocated in the Metro Travel Demand Model. The maximum development capacity is based on full utilization within downtown. Current market conditions and ownerships are not expected to deliver such a level of development within t he next 20 years. Note: An Existing and Future Traffic Conditions Report and Multimodal Transportation and Safety Report (Reference 1) was produced by the Project team. The report documents the Existing Year 2022 and Future Year 2040 traffic conditions. November 6, 2023 Page 21 Tigard Downtown Reimagined Summary of Fatal and Serious Injury Crashes Kittelson & Associates, Inc. SUMMARY OF FATAL AND SERIOUS INJURY CRASHES A summary of fatal and serious injury (Injury A) crashes within the CFA in the five most recent years where data is available is provided below. There were 306 reported crashes within the Project study area between January 1, 2016 and December 31, 2020. Only crashes that were reported to the police are included below; crashes that resulted in minimal to no vehicular damage with no injury or possible injury may not be reported. The 306 documented cras hes are broken down by injury severity below. ◼ 1 fatal crash ◼ 8 serious injury crashes ◼ 29 minor injury crashes ◼ 126 possible injury crashes ◼ 142 non-injury crashes Of these 306 crashes reported within the study area, 197 crashes were reported along Highway 99W, and 93 crashes were reported along SW Hall Boulevard. With 36 reported crashes at the SW Hall Boulevard/Highway 99W intersection, there were a total of 254 crashes on these two corridors alone, representing 83 percent of all crashes within the downtown T igard study area from 2016 to 2020. Fatal and Severe Injury A Crashes One fatal crash was reported in the Project study area during the most recent five-year analysis period. The fatal crash occurred on March 13th, 2018, at 5 PM under clear and dry conditions on SW Hall Boulevard south of SW Scoffins Street. The crash, which involved three vehicles, occurred when a southbound vehicle rear-ended another southbound vehicle. A horizontal curve in the road is present at this location, which the police report indicates to be a factor in the crash. In addition to the crash fatality, one driver suffered a possible injury, and another driver was not injured. The eight serious injury crashes are detailed in Table 5 below. Of these eight crashes, six occurred on an ODOT facility. There were no reported serious injury crashes in 2019 or 2020. Three of the serious injury crashes involved a motorcycle, one involved a bicyclist, and one involved a pedestrian. There was only one serious injury crash that involved two or more vehicles. Three of the crashes occurred at the Highway 99W/SW Hall Boulevard intersection. November 6, 2023 Page 22 Tigard Downtown Reimagined Summary of Fatal and Serious Injury Crashes Kittelson & Associates, Inc. Table 5: Severe Injury A Crashes with Downtown Tigard Study Area – January 1, 2016, to December 31, 2020 Date Time Location Weather Conditions Crash Type Description 2/9/2016 2 PM SW Hall Boulevard/SW Garden Place Clear and Dry Rollover – single car collision A southbound motorcyclist drove over some gravel in the roadway, which led to the collision. 11/23/2016 2 AM SW Hall Boulevard (south of SW Burnham Street) Rainy and Dark Fixed object collision – telephone pole A southbound driver was driving recklessly in excess of the posted speed limit and crashed into a telephone pole. A bicyclist was also injured subsequent to the collision. 5/14/2017 5 AM Highway 99W (east of SW Johnson Street) Cloudy and Wet, Twilight Fixed-object collision – guard rail Eastbound driver was driving carelessly and was drowsy and crashed into the guard rail on Highway 99W 5/25/2017 2 PM Highway 99W/ SW Hall Boulevard Clear and Dry Single car collision Westbound motorcyclist fell off their vehicle 10/30/2017 4 PM Highway 99W/ SW Hall Boulevard Clear and Dry Angle collision Eastbound driver disregarded the traffic signal, striking a vehicle on SW Hall Boulevard 1/6/2018 12 PM SW Garden Place (south of Highway 99W) Cloudy and Dry Single car collision Eastbound motorcyclist turning right from driveway to roadway fell off their vehicle 7/26/2018 12 PM SW Burnham Street (south of SW Ash Avenue) Clear and Dry Angle collision involving a bicyclist Southbound driver did not yield the right- of-way to a northbound bicyclist and struck the bicyclist 12/19/2018 4 PM Highway 99W/ SW Hall Boulevard Cloudy and Dry Collision involving a pedestrian Southbound driver struck a pedestrian crossing the street outside of the crosswalk ODOT Safety Priority Index System The Safety Priority Index System (SPIS) is a method originally developed in 1986 by the Oregon Department of Transportation (ODOT) for identifying potential safety problems on state highways. The Federal Highway Administration (FHWA) accepted SPIS as fulfilling the requirements of the Highway Safety Improvement Program (HSIP). ODOT’s TransGIS website provides SPIS data from 2016 to 2020. Based on a review, the following locations within the Project study area are identified as SPIS sites: ◼ SW Main Street/SW Johnson Street/OR99W ◼ SW Main Street/SW Greenburg Road/OR99W ◼ SW Hall Boulevard (Beaverton-Tualatin Highway No. 141)/OR99W ◼ SW Hall Boulevard (Beaverton-Tualatin Highway No. 141)/SW Scoffins Street/SW Hunziker Road Appendix A Planned Transportation Improvements APPENDIX A Southwest Corridor Light Rail Project Metro, TriMet, and the Federal Transit Administration completed the Final Environmental Impact Statement (FEIS) for the Southwest Corridor Light Rail Project in January 2022. The FEIS identified a preferred route through downtown Tigard, beginning with an at-grade crossing of SW Hunziker Street at SW Knoll Drive, then running adjacent to SW Hall Boulevard to SW Commercial Street, where the alignment turns to the south and runs along the eastside of the existing railroad tracks. The Southwest Corridor Light Rail Project was part of a larger transportation funding measure on the November 2020 ballot across the entire Metro region. That measure failed to pass, so design work on the Southwest Corridor Light Rail Project has been paused. City of Tigard Transportation Safety Action Plan 2019 The Tigard Transportation Safety Action Plan (TSAP), completed in September 2019, examined historic crash data across the city to identify future roadway investments to address safety concerns. Of the six locations with site-specific treatments, the segment of Highway 99W from SW Main Street/SW Greenburg Road to SW Hall Boulevard falls within the Project study area. The TSAP recognizes that there are limited opportunities for safety-focused improvements along this segment because Highway 99W is a seven-lane facility and the Highway 99W/SW Hall Boulevard and Highway 99W/SW Main Street/SW Greenburg Road intersections each have more than 40,000 vehicles that enter each day. However, the TSAP identifies two opportunities for safety-focused improvements – an access management evaluation along Highway 99W in this corridor, and an improvement pedestrian crossing at the SW Greenburg Road/SW Center Street intersection, including curb extensions and a median refuge island. City of Tigard Transportation System Plan 2022 Tigard on the Move, the city’s Transportation System Plan (TSP) was completed in January 2022 and creates a list of transportation projects and programs for the city to implement with available funding over the next 20 years. Projects are grouped into six categories: stronger streets network, urban upgrades and active transportation, connectivity, transit, transportation systems management and operations (TSMO), and special study areas. TSP Chapter 6. Recommended Investments contains the list of projects. TriMet Pedestrian Plan, 2020 TriMet’s Pedestrian Plan focuses on three primary objectives: Removing barriers to riding transit, improving partnership between cities, counties, and the State, as well as equipping partneri ng agencies with an access-to-transit lens to help inform their decision-making and support future funding request. TriMet’s Pedestrian Plan identifies needs in and around Downtown Tigard including previously identified projects (sidewalk infill, new roadways and new trails identified in existing plans) and identified gaps (sidewalk gaps identified through the TriMet Pedestrian Plan). These projects are identified in Appendix E, Appendix F, and Appendix G. Washington County Transportation System Plan 2019 The Washington County Transportation System Plan (TSP) Update provides direct guidance on how to build, operate, and maintain Washington County’s major roadway network, while addressing complementary elements of the larger transportation system – including transit, multi-use trails, state highways and freight railroads – maintained by other entities. No projects are identified within the Project study area based on a review of the Washington Count TSP Update. Statewide Transportation Improvement Program 2021-2024 OR 217 Auxiliary Lanes Project | Project #: 18841 Construction for the OR 217 Auxiliary Lanes Project began in December 2021 and continues through 2025. On OR217, add a southbound auxiliary lane from OR10 to OR99W and a northbound auxiliary lane from OR99W to SW Scholl's Ferry Rd (OR210) to improve safety and traffic reliability. Pave road, add protective screening, and bridge updates on Allen Blvd and Denny Rd structures. Pave road, replace joints, and repair deteriorating concrete columns on OR210 over OR217 structure. Add sidewalks and bike lanes to th e Hall Blvd (OR141) over OR217 overcrossing to improve bicycle and pedestrian connectivity. Add bridge rail that meets the current standards to the Fanno Creek Bridge. Install signs and technology to capture traffic statistics and improve operations. Add a signal pole base and conduit to the design of the Hall Blvd Bridge replacement. OR99: I-5 – McDonald St | Project #: 20435 Repave roadway, fill in sidewalk and bike lane gaps, upgrade curb ramps to current standards, improve access management, and address drainage as needed. Includes full signal upgrade at Johnson/Main. This project will repair rutting and surface damage from vehicles and allow safer travel for motor vehicle operators, bicycle riders and pedestrians. OR141/OR217 curb ramps | Project #: 22431 Construct curb ramps to meet compliance with the Americans with Disabilities Act (ADA) standards. Metro Regional Transportation Plan 2018 As the metropolitan planning organization for the Portland metropolitan area, Metro is authorized by Congress and the State of Oregon to coordinate and plan investments in the transportation system for Clackamas, Multnomah and Washington counties. This is done through periodic updates to the Regional Transportation Plan – now every 5 years. The projects listed below are located within the Project study area. Tigard Bikeway Improvements | RTP # 11221 Description Make spot improvements on key low-volume, low speed through-routes to facilitate bike & pedestrian travel; identify them as bike/pedestrian routes. To Multiple locations From Various Agency Tigard Primary Purpose Increase travel options/alt. to driving alone RTP Category Active Transportation Estimated Cost (2016 $) 4,300,000 Time Period 2028-2040 Tigard Town Center Pedestrian Improvements | RTP # 10760 Description Improve sidewalks, lighting, crossings, bus shelters and benches throughout the Town Center including: Highway 99W, Hall Blvd, Main Street, and neighborhood streets. To Tigard Town Center From Throughout TC area Agency Tigard Primary Purpose Increase travel options/alt. to driving alone RTP Category Active Transportation Estimated Cost (2016 $) 2,000,000 Time Period 2018-2027 Hall/Hunziker/Scoffins Intersection Realignment | RTP # 11223 Description Realign offset intersection to cross intersection to alleviate congestion and safety issues. To Hall Blvd. From Intersection with Hunziker & Scoffins Agency Tigard Primary Purpose Improve system efficiency RTP Category Roads and Bridges Estimated Cost (2016 $) 10,000,000 Time Period 2018-2027 Ash Avenue Extension | RTP # 11407* Description Extend Ash Avenue across the railroad tracks from Burnham to Commercial Street. To Burnham Street From Commercial Street Agency Tigard Primary Purpose Improve system efficiency RTP Category Roads and Bridges Estimated Cost (2016 $) 10,000,000 Time Period 2018-2027 Note: the Ash Avenue Extension project is proposed for removal in the draft 2023 Metro Regional Transportation Plan (RTP). Metro Regional Transportation Plan 2023 The 2023 Regional Transportation Plan and High Capacity Transit Strategy include regional policies and planned projects recommended by transportation agencies to address the region’s significant and growing transportation needs. Public input will help guide decision-makers as they work together to finalize the policies, strategies and projects that will shape greater Portland’s transportation system through 2045. The Joint Policy Advisory Committee on Transportation and Metro Council will take action on approving the 2023 Regional Transportation Plan and High Capacity Transit Strategy in November 2023. Appendix B Recommended Connectivity Concept PLEASE PLACE UNDER CITY OF TIGARD LOGO IN THE LEGAL NOTICE SECTION OF THE TIGARD TIMES, THE FOLLOWING: PUBLIC HEARING ITEM: The following will be considered by the Tigard Planning Commission at a Public Hearing on Monday, April 1, 2024, at 7:00 PM and by the Tigard City Council at a Public Hearing on Tuesday, May 14, 2024, at 6:30 PM. The Planning Commission meeting will be held virtually on the Microsoft Teams platform. The City Council hearing will be held at the Tigard Civic Center - Town Hall, 13125 SW Hall Blvd., Tigard, Oregon and may also be viewed online. Public oral or written testimony is invited. The public hearing on this matter will be conducted in accordance with Title 18 and rules of procedure adopted by the Council and the rules of Chapter 18.710, available at City Hall. The Planning Commission’s review is for the purpose of making a recommendation to the City Council on the proposal. The Council will then hold a public hearing on the request prior to making a decision. Details for viewing these meetings or providing testimony are available at https://www.tigard-or.gov/your-government/public-hearings. If you would like more information on this proposal, please contact the staff person listed below. COMPREHENSIVE PLAN AMENDMENT (CPA) 2024-00005 - DOWNTOWN TIGARD REIMAGINED - Proposal: The City of Tigard proposes to adopt the Land Use and Transportation Recommendations Report and amend Chapter 15 of the Tigard Comprehensive Plan to implement the policy recommendations of that report. Location: Downtown Tigard Plan District. Review Criteria: Statewide Planning Goals 1 (Citizen Involvement) and 2 (Land Use Planning); 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, 9.1.11, 9.2.2, 9.2.5, 9.3.1, 9.3.2, and 10.1.7; and Tigard Development Code Chapters 18.710 and 18.790. Staff person: Schuyler Warren 13125 SW Hall Blvd. Tigard, Oregon 97223 503-718-2437 / schuylerw@tigard-or.gov. PUBLISH DATE: Thursday, March 14, 2024