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PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 1
MEETING DATE: November 3, 2025 - 7:00 p.m.
HYBRID MEETING IN-PERSON & MS TEAMS
1. CALL TO ORDER
President Jackson called the meeting to order at 7 p.m.
2. ROLL CALL
Present: President Jackson, Vice-President Miranda (remote), Commissioner Bowerman, Commissioner
Brandt, Commissioner Sabbe, Commissioner Schuck, Alt. Commissioner Sprague.
Excused:. Commissioner Tiruvallur, Commissioner Choudhury
Absent: Commissioner Murphy
Council Liaison: Councilor Schlack, Council President Wolf (remote)
Staff Present: Assistant Director of Community Development Schuyler Warren, Senior Planner Brittany
Gada, Senior Planner Agnes Lindor, Police Public Information Officer Kelsey Anderson, Planning
Commission Secretary Joanne Bengtson.
3. COMMUNICATIONS
President Jackson encouraged attendance at the November 4 Council meeting to support two new
appointments to the Commission! He also thanked City Councilor Schlack, the Planning Commission’s
Council liaison who showed Planning Commission solidarity in August by bringing up the Oregon
planning goal with SB 974 during the legislative session.
4. APPROVE DRAFT MINUTES from July 7, 2025
President Jackson asked for a motion to approve July 7, 2025, draft minutes with Sr. Planner Gada’s edits.
Commissioner Brandt motioned to accept the minutes as amended, Commissioner Bowerman provided a
second, and the motion passed unanimously.
5. QUASI-JUDICIAL PUBLIC HEARING ANNEXATION - SANDER’S ANNEXATION -
ZCA2025-00001 Senior Planner Agnes Lindor
President Jackson described the hearing’s procedures. As a quasi-judicial hearing, he read required
procedural statements and asked if any Commissioners wished to abstain or declare a conflict of interest
in this case. There were none. He asked if any members of the audience wished to challenge the
commission for bias or conflict of interest; hearing none, he asked if any Commissioners had ex parte
contact to report or if any had visited the site of the proposal. Hearing nothing, he welcomed Sr. Planner
Lindor to present her staff report.
Sr. Planner Lindor described the Sanders Annexation as a request to annex one property into the city to
connect to city sewer. The property is generally located east of River Terrace and is 0.46 acres in size.
There's no other development proposed besides the connection to sewer. The staff report details how the
proposed annexation meets all applicable approval criteria in the city’s development code, comprehensive
plan, Metro code and State statutes.
City of
Tigard
P lanning Commission
Minutes
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 2
Staff is asking the Planning Commission to send a recommendation of approval to City Council for the
approval of this annexation which is scheduled before City Council on December 2, 2025.
Questions: Commissioner Brandt asked if there would be a separate applicant presentation and Sr.
Planner Lindor said no, and noted the applicant was present tonight.
With no further questions from the commission, President Jackson moved to public testimony, but none
was offered so President Jackson closed the public portion of the hearing. He explained that even though
this is a quasi-judicial hearing, and the commission would typically be the approval authority, but in this
case the commission is providing a recommendation to the City Council.
He asked each Commissioner for their thoughts on the case. Feedback from each Commissioner was
positive in support of approval and there were no further questions.
Motion & Vote: President Jackson asked for a motion; Commissioner Schuck motioned for the Planning
Commission to forward a recommendation of approval to the City Council for application ZCA2025-
00001 with adoption of the findings and conditions of approval contained in the staff report.
Commissioner Brandt seconded the motion and when called to vote, Commissioners Schuck, Brandt,
Bowerman, Miranda, and Sabbe all voted ‘Yes’. The Commission’s recommendation for annexation will
go to Council for December 2, 2025.
6. QUASI-JUDICIAL PUBLIC HEARING – LEGISLATIVE ANNEXATION -RIVER TERRACE
2.0 ANX2025-0001 Community Development Assistant Director Schuyler Warren
President Jackson moved to the next hearing; a legislative annexation of the area collectively known as
River Terrace 2.0. He noted the uniqueness of this case, but with the exact same hearing procession so he
didn’t repeat instructions. He welcomed Asst. Director Warren to present the staff report.
Asst. Director Warren stated that ANX2025-0001 is a legislative annexation representing nearly 500 acres
of land. The city received a petition from property owners in this area to annex. He noted that the land
was included in Tigard’s application to expand the urban growth boundary. In February 2023, Metro
approved a land swap between Tigard and Clackamas County, trading difficult to urbanize lands in
Clackamas County for land outside Tigard city limits, but included in our concept plan.
Asst. Director Warren shared a map and stated the legislative nature of this case has broad policy
implications beyond property-specific impacts, elevating it to governance with statutory requirements.
The Oregon Revised Statutes (section ORS 222) provides specific standards and procedures that must be
met, and Asst. Director Warren gave a brief history of Oregon’s annexations being referred to voters for
approval.
When the Legislature adopted certain procedures for annexations without a referral to voters, there were
three pathways for those types of annexations under statute:
1. Island annexation - a process where a property(ies) surrounded by urbanized, incorporated land is
annexed without reference to the voters.
2. Double Majority - allows annexation without a full city-wide election if the petition is signed by a
majority of property owners and a majority of registered voters within the territory proposed for
annexation.
3. Triple Majority – this is the procedure required for ANX2025-0001. This path requires assent to
annex from a majority of property owners in the area; those property owners must represent a
majority of the land area, and the land represents a majority of the assessed value according to the
property tax assessor.
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 3
As detailed in the staff report, Tigard received petitions from owners of 29 of the 39 properties involved
representing 71.8% of the owners. Those owners represent a total of 407 of the 487 acres in River Terrace
2.0 or 83.6% of the land area, and the assessed value of the properties they own is $94,000,000; roughly
85% of the total assessed value of $110,000,000. This meets all three majority requirements.
The city’s working on a Community Plan that will apply new zoning and development standards to this
area and will include infrastructure plans and a financing strategy to support development and growth.
Until planning is complete, Washington County’s zoning and development standards will continue to
apply.
Asst. Director Warren concluded his report with a request for the Planning Commission to recommend
approval of the annexation to the City Council.
Questions:
President Jackson asked if there’s an idea about the costs the city could expect to see with development?
Asst. Director Warren said we try to use system development charges to get development to pay for
the infrastructure it will utilize, but he couldn’t provide a firm number with so many factors to
consider. He said the concept plan contains rough order of magnitude estimates for infrastructure
costs in this area - what the roads will cost, the publicly financed sanitary system and water system
costs but those figures are being refined through the RT2.0 community plan and will be used to set
fees associated with development in this area.
Commissioner Bowerman noted the percentages of property owners supporting this annexation but
asked what feedback the city received from the individuals that didn’t support the annexation?
Asst. Director Warren said we didn’t receive any public comments. The city sent over 900 notices; all
the property owners and property owners within a certain distance surrounding the entire area, which
included folks in Beaverton. We received one question from a resident outside the property boundary
who asked who would be involved in the annexation.
Commissioner Brandt asked about road development – will it be all at once or piecemeal? Is this going
to be city roads or private roads.
Asst. Director Warren said it depends, but our development standards should be able to support both.
most development aggregates multiple sites for a more efficient build-out of infrastructure. We won't
have any arterials within the area – Scholls Ferry, Beef Bend and Roy Rogers will serve the area, all are
maintained by the county. Collectors, Neighborhood and Local streets would all be maintained by the
city. We’re mindful of when and where to allow private roads and alleys (also private). If the HOA
that owns the private street isn’t active and dissolves, the street falls into disrepair and homeowners
come to the city for maintenance, unaware that it’s their responsibility. It sets up difficult
conversations and sometimes the city ends up taking on the road’s maintenance as a public street and
applying our code to setbacks and easements.
Commissioner Bowerman asked for an estimate of the number of homes this annexation will support?
Asst. Director Warren said the concept plan shows between 3,000 – 4,500 home units but the
unknown factor is how much land is protected by Title 13 and Goal 5 environmental protections.
With no one signed up to offer public testimony, President Jackson closed the public portion of the
hearing and opened it for Commission deliberation. Commissioners provided their feedback on the
annexation:
Commissioner Brandt supports the controlled development.
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 4
Commissioner Bowerman said she’s in support of it, especially given the number of units projected to
be built and how that could help meet our housing needs.
Commissioner Sabbe agreed, she’s heard about this for months and has been present at public
outreach events where we sought feedback.
Alt Commissioner Sprague said it looks good.
Vice President Miranda concurred with the group and said she appreciates all the information now
and in the past. She said it’s nice to know there were no complaints.
President Jackson said this is a big chunk of new housing and mused whether it will strain our existing
services. Overall, he supports the annexation and asked for a motion.
Motion & Vote: Commissioner Schuck motioned for the Planning Commission to forward a
recommendation of approval to City Council of application ANX2025-0001 and adopt the findings presented
by staff tonight and the lack of objection from the public. Commissioner Bowerman seconded the motion.
President Jackson asked all those in favor of approving the motion to recommend approval to City Council of
ANX2025-0001 say ‘Aye’. It was unanimous from those in attendance. With no Commissioners opposed, the
Planning Commission will send a recommendation for approval of this annexation to City Council.
7. FACILITY BOND UPDATE Public Information Officer Kelsey Anderson, Tigard Police Dept.
PIO Anderson briefed the Commission about plans to build a consolidated facility that will be modern and
safe for our city's first responders in the police and public works department. The city will be asking the
community to support a bond package on the May 2026 ballot.
PIO Anderson offered tours of current facilities and then shared photos of current conditions to illustrate
some of the issues necessitating a new building:
Police staff have outgrown current space; “temporary” modular buildings behind the police building
have been in regular use since 1994 to accommodate staffing, training space and evidence storage.
Water is infiltrating the Police Records area; roof leaks above desks in the Police Records unit, require
a tarp to capture the water and funnel it into a bucket.
Female officers use a cramped and aged locker room and at this time we don't have available locker
space for a new officer. We lack training space and pay to send officers to classes outside of Tigard.
Evidence storage is limited; criminal case evidence is in leased, offsite storage to securely retain for a
potential appeal.
The city’s streets crews work out of a utility building farther down Burnham St. and oftentimes hold
morning staff check-ins outside because of lack of space. To accommodate space needs, staff work
out of nine scattered sites throughout the city.
When city facilities were built, Tigard’s population was 1/3 of today’s figure. Today there are ADA access
issues, security challenges and structural stability concerns for the future. Studies of current facilities predict
buildings will crumble in the event of a Cascadia-magnitude earthquake. The new facility will add security and
stability for police staff, public works staff and their expensive equipment, and Tigard’s Emergency
Operations Center (EOC) during a disaster.
If the bond is approved, the new facility would be built on a city-owned 9.5-acre site on Wall Street. Staff are
undertaking due diligence to have a shovel-ready project if the bond passes. PIO Anderson shared the project
team names and estimated project costs of $150 million (including the land purchase, furniture, equipment
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 5
and all development costs). Teams are considering the merits of a 20-year or 30-year bond, and depending on
the life of that bond, the average homeowner would pay an additional $8 - $15 per month.
Any bond the city goes out for will require accountability to taxpayers, including auditing and oversight from
an independent committee to make sure money is spent as voters intended. Support for the May 2026 bond
will result in a facility that supports our work for decades to come and helps attract high-quality, diverse
candidates to serve on our police department and public works teams.
Questions?
Commissioner Bowerman asked how we’ll know whether to a 20- or 30-year bond will be pursued? PIO
Anderson said City Council will likely refer the measure in February 2026, and we’ll know more about the
option selected.
8. RIVER TERRACE 2.0: UPDATE ON HOUSING, NATURAL RESOURCES, PARKS,
AND TRANSPORTATION
Senior Planner Brittany Gada
President Jackson called on Sr. Planner Gada to provide an update on River Terrace 2.0 (RT2.0), this time on
Natural Resources, Parks, and Housing.
Sr. Planner Gada presented an update on three development scenarios in RT2.0 and asked for feedback from
the Planning Commission on the draft Natural Resources, Parks and Housing approaches created as a part of
this project.
The materials in tonight’s meeting packet contain detailed outreach and study information, so Sr. Planner
Gada began with the Natural Resources approach: RT2.0 is subject to Metro’s Title 13 for natural resource
protection. No other area in Tigard has been or is currently subject to these rules.
Staff have been working with
consultants and Metro to design
an approach that maximizes
flexibility and land for housing
while complying with Title 13.
The intention is to balance
comments from the community
and developers. Residents have
been clear: protecting natural
resources is their priority.
Developers are concerned about
having more land available for
housing and more flexibility for
the resources that must be
protected and how they can comply with the rules.
Tigard’s unique approach develops a natural resources inventory and categorizes habitat areas. We protect
more land in high ecological value areas and less land in low ecological value areas. This approach preserves
our highest quality natural resource areas and provides flexibility for development.
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 6
The first development pathway is the “clear and objective path”- development must meet numerical
requirements for development, and the second development pathway is the “discretionary path” which is
more flexible and performance based. Developers have options for flexibility such as reducing or eliminating
Tier 2 protections in exchange for more, higher quality Tier 1 areas.
The map (left) shows the Parks
approach.
The draft parks system plan includes
a variety of parks and trails across
River Terrace 2.0, with three
different locations studied for a
possible community park. When
development occurs, the draft
approach will require open space be
set aside for public or private use,
with incentives to support dedicated
public park/open space.
The project team will discuss needs
and funding implications for future community parks.
Overall, community parks require more resources than larger neighborhood parks. Sr. Planner Gada
emphasized the need for better planning of parks and trails so operations and maintenance in RT2.0 don’t
impact existing park/open space resources.
Sr. Planner Gada moved to the Housing approach for Commission feedback. She recognized work done
since the concept plan process finished in 2021 and the housing plan was completed for the community plan
project in June 2025. Since Covid, economic and societal shifts have changed community priorities. Public
outreach consistently shows residents’ desire for more affordable housing in an array of options and sizes to
make home ownership possible for more people. For the first time, the State of Oregon will hold cities
accountable for housing production by income band according to the findings of the Oregon Housing Needs
Analysis.
Community and developer feedback has been incorporated into this refined housing approach and reflects
the community’s top priorities of affordability, accessibility, and climate resilience to ensure that needs are
met.
Sr. Planner Gada shared a zoning map with three
draft residential zone districts; red areas indicate
commercial use, including an overlay area in
hatched red where both commercial and
residential is allowed.
Minimum net density numbers shared in June
were refined in some areas without compromising
the average 20 units per net acre goal.
Sr. Planner Gada explained three development
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 7
scenarios created by the consultant team to test the
feasibility of the housing and natural resources
approaches and visualize neighborhood scale.
o Scenario 1: Clear & Objective Path: meets
minimum density by zone
o Scenario 2: Discretionary Path: reconfigures
density across zones
o Scenario 3: was added recently at the request of
a developer to study feasibility on a smaller
scale.
For Scenario 3, an 18.8-acre site was selected to study the implications of the housing natural resources
approach if an existing, smaller-scale lot decided to develop. The site accommodated 22 units/acre by
providing a combination of single detached homes, townhomes and apartments.
Based on the findings of all three development scenarios, the draft housing and natural resources approaches
were found to be feasible without a significant departure from density or scale seen in development of River
Terrace or Kingston Terrace.
Scenarios were created using property-specific information from real parcels in RT2.0 and lot size, building
footprint, and building height information from recent nearby developments.
Undersupplied housing options have been refined
from the Housing Plan based on the findings of
housing needs analyses and community input. The
proposed credit-based system has options to
maximize flexibility for developers while supporting
needed housing features in neighborhoods.
Questions?
Alt. Commissioner Sprague said staff has been
creative and done an amazing job. She’s served on the
RT2.0 Community Advisory Committee, and she
thinks we’re on the right track.
Commissioner Sabbe said she appreciates the
diversity in the housing options and parks and likes
the accessibility accomodations.
Commissioner Bowerman said she loves the mix of
housing options and praised teams for really listening
to what the community wants. Although a challenge,
it’s a nice complement to the city.
Vice-President Miranda asked if the three approaches are in conjunction or separate? Sr. Planner Gada said
they’re all in conjunction with development.
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 8
Vice Pres. Miranda asked if there’s an option to have
higher density at the edges of development closer to
nature; she’s concerned that like River Terrace 1.0,
density will be on the main roads. Sr. Planner Gada said
there’s still more time to work on plans; the team has
completed just the first draft of the zoning map and we
have another year before finalization.
President Jackson noted the three approaches
(housing, parks, and natural resources) do not following
the zoning.
Housing does, but parks and natural resources will be
treated with an overlay – a special set of rules for a
geographic area. There are other mechanisms we can use
to make sure we comply with land use law, community
needs, etc.
Commissioner Brandt said he too has been involved
with RT2.0 outreach. He noted his preference for zero
compromise on parks, sidewalk width, etc. if there aren’t
concerted efforts to accommodate e-bikes and transit.
Adding 10,000 people with no transit is untenable. Beef Bend, River Terrace and Kingston Terrace MUST
include public transit and walkability and urged planners to advocate for future services before cars congest
the area and remove any options we have to negotiate service. Sr. Planner Gada responded that the focus is
on walkable neighborhoods and proximity to services so residents can access services within the
neighborhood without driving. The team is working closely with TriMet, and they are aware of transit
planning in the area.
Commissioner Schuck- Thanked the team for the presentation. He said he works for a developer and in the
six years he’s served on the Planning Commission, he realizes how difficult it is for staff to get something
passed while complying with all regulations – he also acknowledged the difficulties developers face in building
within existing requirements. He asked why RT2.0 doesn’t build along same guidelines as RT1.0? It was a
good model, affordable for developers and with appropriate density. Sr. Planner Gada said the community
found RT1.0- largely unaffordable and excluded many from buying there. The City Council directive to staff
was to plan for 20/units per acre, approximately five more units per acre than RT1.0. It’s not a significant
departure but adds more options for middle housing and housing affordability. To satisfy our housing policy
and meet the Oregon Housing Needs Analysis, we’ll have to slightly change the way we’ve planned for RT2.0.
President Jackson observed that based on the zoning map and the approach models, there’s a lot less mixed
use. Why? Sr. Planner Gada said mixed use was removed but replaced with a commercial options overlay to
allow some commercial uses in more residential areas. In the overlay areas, even a home could be made into a
commercial use provided they meet all the requirements.
OTHER BUSINESS:
Asst. Director Warren (Schuyler) reported that planning staff attended the Oregon APA conference in Bend
and saw first-hand how the city is wrestling with the same urbanization challenges that we are (workforce
housing, developer feasibility, etc.)
PLANNING COMMISSION Minutes – November 3, 2025
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | 9
He also attended the Urban Land Institute Housing Conference and the CEO of ECONorthwest gave
opening remarks. His address was interesting and noted that housing itself is economic development. Housing
is the fundamental driver of Economic Development because you need housing to attract employers.
Community Development has hired a Housing Planner –Trinity Miller was the planner working on the Tigard
HOME project. She’ll take the lead on our housing capacity analysis and housing production strategy.
Tigard’s affordable housing plan from 2019 serves as a roadmap and has been used by other cities so our
innovative housing policy is good.
Our new Associate Planner taking the lead on Tigard HOME is Amber Gomez. She was with the USDOT
and then Troutdale and brings a lot of experience to the team.
In the new year staff will be back with more RT2.0 updates and in February 2026 the state begins a new
legislative short session. We know it will be robust and certainly produce policy that impacts land use and
development. Schuyler will keep the commission up to date on rule making.
President Jackson asked about the Transportation bill – will the jurisdictional transfer of Hall Blvd. still
happen with stopgap funding? Schuyler said great streets program funding would fund these jurisdictional
transfers, but he will get more information from our Principal Transportation Planner, Tiffany Gerhke and
share it with you
Commissioner Schuck said this could be his (and Commissioner Brandt’s) last meeting of 2025, as their
terms expire. Commissioner Schuck thanked Tom McGuire, Doreen Laughlin, Joe Patton, Joanne and
Schuyler for their work, and thanked all the planning staff he’s worked with over the years.
Asst. Director Warren thanked both Commissioners for their service and said we’ll invite both commissioners
to our first meeting in 2026 to share our farewell.
Commissioner Brandt shared his appreciation for working with Schuyler and thanks to his fellow
commissioners. He told President Jackson he was stepping away from the commission but not going away
and will keep watching their work. He said it’s been a wonderful opportunity to get to know staff.
MOTION FOR ADJOURNMENT
President Jackson received a motion to adjourn from Commissioner Schuck, seconded by Commissioner
Brandt. Commissioners voted unanimously to adjourn the meeting at 8:46 p.m.
Joanne Bengtson, Planning Commission Secretary
ATTEST: President Nathan C. Jackson