City Council Packet - 12/12/1988TIGARD CITY COUNCIL
REGULAR MEETING AGENDA
STUDY AGENDA
DECEMBER 12, 1988--6:30 P.M.
TI:GARD CIVIC CENTER
13125 SW HALL BLVD.
TIGARD, OREGON 97223
6:30 1. STUDY MEETING
PUBLIC NOTICE: Anyone wishing to speak on an
agenda item needs to sign on the appropriate
sign-.-up sheet(s). If no sheet is available,
ask to be recognized by the Chair at the start
of that agenda item. Visitor's agenda items are
asked to be to 2 minutes or less. Longer matters
can be set for a future Agenda by contacting
either- the Mayor or City Administrator.
1.1 Call To Order and Rol] Call
1.2 Call To Staff and Council For Non--Agenda Items
6:35 2. WORKSHOP WITH CITY CENTER PLAN TASK FORCE
3. UPDATE ON STREET BOND ISSUE
o City Engineer
n. SINGLE OWNER LOCAL IMPROVEMENT DISCUSSION (PACTRUST)
o Community Development Director
5. NON-AGENDA ITEMS: From Council and Staff
6. EXECUTIVE SESSION: The Tigard City Council will go into Executive
Session under the provisions of ORS 192.660 (1) (d), (e), & (h) to
discuss labor relations, real property transactions, and current and
pending litigation issues.
41 7. ADJOURNMENT
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COUNCIL AGENDA - DECEMBER 12, 1988 - PAGE 1
CITY COUNCIL & CITY CENTER PLAN TASK FORCE WORKSHOP
December 12, 1988; 6:30-8:30 p.m.
Town Hall Conference Room
13125 S.W. Hall Blvd., Tigard, OR 97223
A G E N D A
1. Review of Draft Project List
a. City Center Plan Concept
b. Plan Elements
C. Design Districts
d. Capital Improvements List
e. Urban Design Precedents
2. Review of May Election Date
3. Other Business
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T I G A R D C I T Y C O U N C I L
REGULAR MEETING MINUTES - DECEMBER 12, 1988 - 6:30 P.H.
1. ROLL CALL: Present: Mayor Tom Brian; Councilors: Valerie Johnson,
and John Schwartz; Councilor-Elect Kasten; City Staff: Pat Reilly, City
Administrator; Ed Murphy, Community Development Director; Liz Newton,
Senior Planner; Tim Ramis, Legal Counsel; Duane Roberts, Assistant
Planner; Catherine Wheatley, Deputy City Recorder; and Randall Wooley,
City Engineer.
2. WORKSHOP WITH CITY CENTER PLAN TASK FORCE
a. City Center Plan Task Force Members Present: Stuart Cohen,
Chairman; Committee Members: Jolynne Ash, Joy Henkle, Pam Juarez,
Mike Marr, Bill Monahan, and Richard Morley. Also present was Ex
Officio Member Peggy Weston Byrd.
b. Senior Planner Newton advised that the purpose of this meeting was
to:
o Serve as a progress checkpoint on the City Center Plan.
o Present for review and comment a Conceptual City Center
Plan. (Note: The presentation of the conceptual plan at
this meeting was the first time the Committee and Council had
had an opportunity to review.)
o Review of the project timeline.
Senior Planner Newton reviewed the history of the City Center Plan
Task Force's (CCPTF) progress to date, noting they were formed
about 18 months ago. Initially, the CCPTF developed a "Vision
Statement" and then hired the consulting firm of Hobson and
Associates to review whether or not the "Vision statement" would be
feasible. Hobson and Associates encouraged the City to proceed
with recommendations that investments be made in Fanno Creek Park,
improvements be done for access to the downtown area, and to
develop a master plan to guide future development. At that point,
Murase and Associates were hired to complete the Master Plan.
A Transportation Plan was produced by Kittleson & Associates which
focused on accesses in and through downtown.
Senior Planner Newton advised that the consultants of
Guthrie/Slusarenko/Associates with Stastny Architects would be
reviewing the urban design plan element at this meeting. This
conceptual review would give form to the "Vision Statement."
Senior Planner Newton noted alternatives for financing and
implementation of revitalization efforts were also being studied.
Chairman Stuart Cohen introduced Consultants Bart Guthrie and
Donald Stastny.
The consultants presented slides; a copy of the draft report was
submitted for Council review. (Note: The draft report has been
filed with Council packet material.)
Page 1 - COUNCIL MINUTES - DECEMBER 12, 1988
It was stressed that this would be a long-range plan with
implementation scheduled over a 30-year period.
Some of the consultants' comments during the presentation were as
follows:
o The plan design program was reviewed. A conservative
approach with regard to percent of the market which could be
captured was recommended.
o The demand for retail space was projected to level off in the
range of 300,000 to 350,000 square feet while that for
commercial office space was expected to continue a linear
growth curve to a range of 450,000 to 600,000 feet.
o There was a potential demand for 1,440 multi-family units in
the City Center.
o Main Street would be the major retail street with Tigard
Street and Burnham Street developed to provide a better
connection through to the Washington Square area.
o The Fanno Creek Park strip would be a primary resource for
attracting development.
o The transportation infrastructure was reviewed. It was noted
that light rail would be feasible within the 30-year
implementation strategy.
' o Development of the plan concept would include park space,
public open space, and public structures.
o Development of a land use plan would be advisable.
o Design districts would serve to direct development. The
draft report stated that the objective was to create design
districts with distinct and identifiable images.
The design districts identified in the city center were as
follows:
1. Main Street
2. Tigard/Burnham Street
3. Fanno Creek Park Edge
4. Railway/Commercial Street
5. Hall Blvd.
6. Civic Center
o The streetscape for Main Street was reviewed. One item noted
by the consultants was the use of banners along the streets
for advertising both public events and businesses.
o Utilization of the the idea of a "City in the Park" was
advisable.
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Page 2 - COUNCIL MINUTES - DECEMBER 12, 1988
o Main Street could be built modestly over time with an inf ill
strategy. At some point in time, a parking structure would
be required.
o The consultants presented slides which illustrated different
configurations of buildings including structures for parking,
housing, commercial uses, and residential areas.
o Seven entry portals into the downtown area were identified.
o A "Tower Element" was proposed in the conceptual plan. Tower
structures at strategic locations in the downtown area were
shown on the plans.
C. After the consultant's presentation, there were questions and
statements of concern from business and property owners regarding
how the plan would affect them.
Committee and Council members advised that involvement by the
downtown property/business owners was crucial to the downtown
revitalization effort. It was noted that the urban design plan was
to be used as a "anchor" for community discussion to determine how
much of the concept plan was feasible. The final plan would be the
result of an agreement between downtown business/property owners,
the Committee, and City Council.
Chair Cohen noted financing alternatives were being reviewed and
studied. Approximately 13 to 15 different methods of financing had
been listed by the financial consultant to date.
19 One of the areas of concern expressed by individuals in the
audience was zoning; i.e., how would the zoning changes be
transitioned? The consultants responded that rebuilding of the
city center would take many years and would require the effort of
many citizens who accepted a "common vision." Land use would
probably be determined on a case-by-case basis so that the end
result would be that of a distinctive downtown area. Mike Marr
noted the community input process was just beginning and the plan
was still far from final form.
The process to follow at this point in time was outlined as follows:
1. Agree on a concept.
2. Submit one of several implementation tools to a vote (i.e.,
tax increment financing).
3. City Council would designate zone changes through a series of
public hearings.
Mayor Brian reminded everyone why the City Center Task Force was
formed. He recalled that the Central Business District had been
identified in the Comprehensive Plan. Subsequently, there was a
question as to whether the downtown area should remain zoned
Central Business District or be changed to Light Industrial. In
order to attract more business the Committee, after considerable
research, reached the conclusion that the downtown area should
remain zoned "Central Business District" with the focus on business
types of uses in the downtown area.
Page 3 - COUNCIL MINUTES - DECEMBER 12, 1988
Don Stastny, of Stastny Architects, predicted a reaffirmation of
small town centers, noting that Tigard was in a strategic location
with regard to regional business influences due to the confluence
4r of Highway 217, Highway 99, and I-5. He advised that he saw the
potential for very strong development.
Senior Planner Newton reviewed the following timeline:
Date What Who
Dec. 12 Presentation of Consultant CCPTF/CC
Draft Design Report
Jan. 5 Review Draft CCPTF
Design Report
Jan. 12 Revised Draft Out Consultant/CCPTF
for Public Comment
Jan. 30 Revisions Based on Consultant/CCPTF
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Public Input
Feb. 3 Design Concept Plan CCPTF
to CC, PC, Public Staff
Feb. 7 Planning Commission Planning Commission
Hearing
Feb. 13 City Council Hearing Council
(1st Ordinance Reading)
Feb. 27 Council Action on Plan Council
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(Form District)
Mar. 15 Ballot Title to CC Staff
Mar. 27 Action on Ballot Council
April 6 File Ballot with Staff
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Washington County
May 16 Election Voters
d. The City Center Plan Task Force/Council Workshop adjourned at
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8:30 p.m.
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(Point of Order: Mayor noted that Agenda item Nos. 3 and 4 would be reversed
in their order of discussion.)
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3. SINGLE-OWNER LOCAL IMPROVEMENT DISTRICT DISCUSSION (PACTRUST)
,
a. Community Development Director introduced Mr. Dick Buono, Vice
r;
President, of PacTrust.
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Page 4 - COUNCIL MINUTES - DECEMBER 12, 1988
Community Development Director summarized the agenda item. The
city received a request from PacTrust to form a Local Improvement
District (LID) to construct improvements to their property off 72nd
Avenue. PacTrust would be the sole participant in the LID.
Council reviewed the materials submitted by the Community
Development Director in their meeting packet. It was noted that
the general, unwritten policy of the City was to discourage
single-owner LIDs; however, there was no State rule or City
ordinance which outlined that a single-owner LID was unacceptable.
Community Development Director advised the two main issues Council
should consider were the risk factor (financial) and whether the
public purpose (for the public good) was served.
Community Development Director noted that the financial implication
had to do with the City's ability to repay any debt incurred on
behalf of the property owner to construct the necessary public
improvements. Funds for repayment of the debt in case of default
by the property owner, would come from proceeds generated by the
sale or use of the property.
Mr. Buono reviewed the improvements his company proposed to build
on the property. Plans involved the purchase of property currently
owned by Koll Company and the development (called the Pacific
Corporate Center) would consist of 60.436 acres. The acquisition
cost for the land would be over $10 million. The land would be
developed over approximately four years into a business park. The
building improvements included office, light manufacturing,
restaurant, hotel, retail, and service facilities. Other probable
uses may include financial services and physical fitness (athletic)
facilities.
Mr. Buono noted it was anticipated when the project was fully
developed approximately 700,000 to 1,000,000 square feet of
buildings would be constructed. These buildings would house a
potential employment population in excess of 2,500 people.
After lengthy discussion, council consensus was for a policy
statement noting single-owner local improvement districts would be
acceptable subject to the following conditions:
1. Applicant would provide appraisal of the property affected.
The appraisal would be performed by an appraiser acceptable
to the city.
2. Financial documents, as required by the City Attorney, would
be provided to the City.
3. Bond amount would not exceed 25 percent of the appraised
property value.
4. The public purpose issue (i.e., public good) would be stated.
Mr. Buono noted there was a portion of right-of-way which would
have to be purchased in order for the street to connect from Bonita
Road to Upper Boones Ferry Road. Council discussed this and the
consensus was that the Council would like to see the project
presented to them in the LID process substantially as presently
shown including the through road (increases public benefit). The
City would prefer not to be involved in right-of-way acquisition
for the through-street.
Page 5 - COUNCIL MINUTES - DECEMBER 12, 1988
b. Staff was directed to prepare a formal, written policy for Council
review and approval.
C. Council consensus was that it would be acceptable for PacTrust to
proceed with the development process.
4. UPDATE ON STREET BOND ISSUE
a. City Administrator introduced this agenda item, noting that staff
had prepared an itemization of what was needed to be accomplished
so the City could quickly proceed with the implementation of the
street bond issue.
City Engineer reviewed the draft schedule of project implementation
and individual project coordination and timelines were discussed.
City Engineer noted some of the projects would require substantial
coordination efforts with the neighborhoods; namely, the Gaarde
Street/99W project and the McDonald Street project.
The city had issued requests for qualifications from engineering
consultants. City Engineer advised that some projects would be
done in-house, but where it was determined to be more cost
effective, consultants would utilized.
City Engineer noted the Main Street project had not been placed on
the construction schedule since the project was not yet defined.
b. Community Development Director reviewed the various types of public
involvement which included the following audiences:
o city Council
o Citizens At Large
o NPOs
o Transportation Advisory Committee
o Individual Property Owners
o Utilities (undergrounding of utilities would be done on larger
projects)
o Emergency Services
o School District
o County and State
Community Development Director noted staff would be involved in:
o Proceeding with right-of-way acquisition.
o Holding neighborhood meetings (explaining how the right-of-way
acquisitions would proceed)
o Public meetings during the design phase.
o Construction phase.
Comrunity Development Director noted there would be several
"milestones" such as the award of bid and publicity for the
commencement of construction. There was discussion on posting
signs indicating which projects were being paid for by the
Transportation Bond. Council consensus was to defer discussion to
a later date concerning when the signs should be posted (i.e.,
Page 6 - COUNCIL MINUTES - DECEMBER 12, 1988
Should projects to be completed in year three be posted
immediately?).
Amb,
Other methods of public information could be accomplished through
the newsletter, neighborhood meetings, special events, hot line,
letter to the editor, Local Contract Review Board process, and/or a
progress chart in a conspicuous public location.
Community Development Director noted the Council would have several
roles throughout the construction process. These roles included:
o Policy of the overall approach
o Local Contract Review Board
o Budget review
o Responding to citizens questions/concerns
o Design/planning issues (i.e., Main Street, Gaarde Street)
o Role as part of the Budget Committee
The Transportation committee would continue to be available for
consultation. The NPOs would become more active dealing with the
neighborhood concerns.
There was discussion on the right-of-way as it would be affected by
new development. Council consensus was for a policy stating that
half-street improvements for new development along these new
projects would not be required; however, there should be agreement
that once these half-street improvements have been waived, the City
would not be required to purchase the necesssary right-of-way. A
policy statement reflecting the above would be prepared by staff
and submitted to Council for approval within the next three or four
weeks.
5. NON-AGENDA ITEMS. There were none.
6. EXECUTIVE SESSION. Cancelled.
7. ADJOURNMENT: 10:40 p.m.
Approved by the Tigard City Council on January 9, 1989.
Deputy Recorder - City of Tiga d
ATTEST'
Mayor - City of Tigard
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AFFIDAVIT
-24
rURBAN DESIGN PLAN ELEMENT
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Tigard City Center Plan
City of Tigard, Oregon
Draft Report
12 December 1988
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Prepared for the
Tigard City Center Plan Task Force
and the Tigard City Council
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by Guthrie/Slusarenko/Associates
with Stastny Architects
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report
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PROLOGUE
This Urban Design Plan and Report is the result of an intensive design study and public
planning process developed in response to a charge from the Tigard City Council to the
City Center Plan Task Force. The charge from the Council is to prepare a plan to revitalize
the Tigard City Center with economic activity and public life, and to restore the identity
of the City Center as the economic and cultural heart of the City.
The planning process required the substantial commitment of energy, resources and time
on the part of many individuals in order to create a Vision for the future of the City.
A vision which is appropriate to its cultural context, visionary yet feasible, and representa-
tive of a public consensus. As Urban Designers, we have found this public commitment,
especially its voluntary nature, to be exemplary and invigorating, indicative of the public
spirit in Tigard. We wish to acknowledge and commend the efforts of these individuals,
and wish the City great success as the development process proceeds.
CITY CENTER PLAN TASK FORCE
Stuart Cohen, Chairman
R. Michael Marr, Vice-Chairman
Jo Lynn Ash
Pamela Juarez
William Monahan
Richard Morley
Joy Tucker
CITY COUNCIL
Valerie Johnson, Task Force Representative
Gerald R. Edwards, Mayor-Elect
CITY STAFF
Ed Murphy, Director of Community Development
Elizabeth Newton, Senior Planner, Project Director
Duane Roberts, Administrative Planner
We also wish to acknowledge the cooperative participation of the independent planning
consultants, each of whom informed and supported this work in constructive, meaningful
ways.
Wayne Kittelson, Kittelson Associates, Transportation Planning
Robert Moore, Moore & Breithaupt, Economic Development Analysis
Robert Murase, Murase Associates, Park Master Planning
Eric Tinus, Hobson & Associates, Market Research Analysis
D. Bartley Guthrie, G/S/A Architects
Donald J. Stastny, Stastny Architects
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Resort F
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report
TABLE OF CONTENTS
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INTRODUCTION . . . . . . . . . . . . . . 1
Study Objective
Vision Statement
Planning Process
Study Area
Marketing Evaluation Study
Urban Design Methodology
Plan Presentation Format
URBAN DESIGN PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Plan Goals
Plan Design Program
Plan Concept Diagram
Plan Elements
Transportation Infrastructure
Primary Design Structure
Urban Form
Predominant Land Use
Design Districts
DESIGN DISTRICTS . . . . . . . . . . . . . . . . . . . . . 26
Main Street
Tigard/Burnham Street
Fanno Creek Park Edge
Railway/Commercial Street
Hall Boulevard
Civic Center
CAPITAL IMPROVEMENT PROJECTS . . . . . . . . . • • • • . . . . . . . . . 46
Purpose
Financing/Development Strategies
Project List/Draft Prioritization
Keystone Project
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report
Page I
INTRODUCTION
STUDY OBJECTIVE
The purpose of this study has been to prepare an Urban Design Plan for the City Center
of Tigard. The Urban Design Plan is identified as the key physical design element of the
more comprehensive City Center Plan planning effort for the economic revitalization of
the City Center. The focus of the Urban Design Plan is the proposal of concepts which
give physical form to the "Vision Statement" for the City Center, developed by the City
Center Plan Task Force and adopted by the City Council. The Urban Design Plan proposes
a "Primary Design Structure" which provides both a formal concept and a structural
framework for City Center development.
CITY CENTER PLAN VISION STATEMENT
The Vision for Tigard's City Center is a living and growing downtown,
with a special character and identity. The major unifying feature is the
image of a "City in the Park." This image has as its centerpiece Fanno
Creek Park, a large publicly owned area of land dedicated to public use
and enjoyment in the heart of the City. Contributing td the image are
fingers of green extending throughout the downtown in the form of leafy
trees overhanging streets, richly planted pedestrianways, greenway entrance
points, and the region's only tea test garden. This clear and compelling
image shows the value that Tigard's citizens give to quality of life.
Integral to the Vision is the belief that the past is worth preserving.
Accordingly, the Vision foresees the preservation and restoration of the
downtown's few remaining buildings of historical significance. These
contribute to preserving our memory of the origin of the City. Co-existing
with historical buildings are attractive newer buildings set flush with the
sidewalk to create a sense of enclosure and place. To delineate the
downtown area, the Vision foresees clearly defined edges and entrance
points.
Beyond the commercial core, with its predominantly small-scale village center
atmosphere, compatible mixed-use of light industries, factory outlet
showrooms, land extensive retailers, and office developments is achieved.
In other areas, high-quality, multiple family housing provides continuous
support for the City Center economy.
The Vision foresees improved access to downtown from many directions
and, within the area, a grid system of streets with sidewalks to increase
frontage sites and improve traffic circulation. Seen also are several small
parking lots configured to minimize Me visual impact on downtown and
to disperse the parking to serve the most businesses.
TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report Page 2
As attractive as this image is, the Vision recognizes that it is the people
who make the town. To this end, the Vision foresees a multitude of people
drawn to the City Center not only by an appealing environment, but by
available governmental, social. financial, and professional services, and
above all by a strong retail core, with many unique, one-of-a-kind businesses.
Other elements that make the City Center alive and contribute to an ample
nightlife, such as restaurants, street vendors, a storefront theater, and
an outdoor amphitheater are an important part of the Vision.
We believe this Vision Statement describes a city center, with its own
individuality, that is livable and economically strong.
PLANNING PROCESS
The public planning process has been organized around a series of public workshop meetings
with the City Center Plan Task Force. The process was initiated with three introductory
brainstorm sessions on Plan Vision, Plan Goals, design issues and opportunities, key physical
design elements, design objectives, and potential capital improvement projects. The formal
planning/review process was structured with four major workshops spanning a twelve-week
study period. The primary topics of these workshops, in sequence, were "Alternative Plan
Concepts," "Plan Concept Proposal" (integrated with "Transportation System Proposals"),
"Plan Elements and Design Districts" (with "Strategies and Guidelines") and "Draft Plan
Presentation." Several of these meetings involved joint sessions with the City Parks Board
and the Traffic Advisory Committee, with support from the independent consultants for
Park Master Planning, Transportation Planning, Economic Planning, and Marketing. A key
meeting of the consulting team was staged to develop a long-range-vision planning program
for the urban design study. Throughout this process, plan research, technical studies and
design work have been ongoing and coordinated regularly through Elizabeth Newton, the
staff Project Director.
The process has integrated the findings and recommendations of the various workshops and
studies into the Urban Design Plan. The process needs to proceed to formally evolve this
Urban Design Plan into an Action Plan for the revitalization of the Tigard City Center.
The form which the Action Plan takes will depend upon the ultimate development strategies
and financing mechanisms proposed jointly by the City Center Plan Task Force and the
City Council. It will most definitely involve a public hearing/review process and a public
referendum.
CITY CENTER PLAN STUDY AREA
The project Study Area is illustrated on the adjacent Map of Existing Land Use. It is defined
by Pacific Highway on the north-northwest, Southwest Hall Boulevard on the east, Southwest
McKenzie and Southwest Hill Street on the southwest, and by Omara Street on the south.
TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report Page 3
CITY CENTER PLAN STUDY AREA
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URBAN DESIGN PLAN - Draft Report Page 4
The Study Area currently supports a wide range of uses, including government offices,
professional services, retail businesses, personal services and miscellaneous business activities.
Key public, governmental and institutional uses are sprinkled throughout the area and
reinforced by the recent development of the Tigard Civic Center and Library, the Senior
Center, the U.S. Post Office, the Tri-Met Transfer Station, financial offices, social service
agencies and public utilities offices. Commercial and retail uses are most heavily concentrated
along Main Street, Pacific Highway and Hall Boulevard. Land-extensive commercial uses
and light-industrial uses have developed along Burnham Street, the railroad right-of-way,
and to a lesser extent on Commercial Street. Service and auto-oriented commercial uses
are dispersed throughout the area, but most intensively along Main and Hall. Single-family
and multi-family housing is dispersed throughout, with primary development opportunities
proximate to Fanno Creek Park.
MARKET EVALUATION STUDY
An analysis of existing conditions and development opportunities is the primary subject
matter of the "City Center Market Evaluation" study, prepared by Hobson and Associates
for the City Center Plan. The Marketing Study has served as the primary design program
document and point of departure for the Urban Design Plan. The Study reinforces the
concepts embodied in the Vision Statement through its broad recommendations for a Study
Area Development Strategy: "l) Increase the level of public activity [in the City Center]
to support commercial land uses; 2) Accommodate the needs of more public activity
through infrastructure improvements ; and 3) Market the [City Center] as a desirable
place to live, visit, work and play." The study emphasized that this strategy is made most
feasible by "differentiating the Study Area from typical commercial centers (shopping malls)
by creating a unique environment." To that end, the Study recommended the development
of the City Center with the following priority uses: general and specialty retailing,
destination retail, commercial and professional offices, government and institutional uses,
multi-family residential, and (select) light industrial uses.
The Study recognizes the generally underdeveloped conditions within the Study Area and
the constructive potential for land assembly as a potential strategy for consolidating
developable parcels of land. The adjacent diagram, excerpted from the Marketing Study,
maps Areas of Potential Development within the City Center.
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Deft Report Page S
4r POTENTIAL DEVELOPMENT AREAS
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KEY
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Infill
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report Page 6
URBAN DESIGN METHODOLOGY
The design methodology for the Urban Design Plan has been based upon a linear process,
proceeding from a generalized analysis of conditions and opportunities - to broad-form goals
and long-range vision - to the definition of identifiable design districts - and finally to
specific design guidelines and capital improvement projects. The process was initiated through
open dialogue on key issues and opportunities to develop a common vocabulary and a shared
understanding of goals and objectives. It proceeds from general to specific through a range
of design scales - macro or Trade Area scale - to whole City scale - to City Center scale -
to Design District scale - to Capital Improvement Project scale. The basic approach has
been to study and to pose design alternatives on various issues, to present those alternatives
to the Task Force for discussion and evaluation, and to adopt design proposals through
group consensus. I
Extensive discussions on plan goals and objectives, on the proposed uses to be developed,
and on development density led to the proposal of a Design Program, generally accepted
as both feasible and desirable for the City Center Study Area. Then, in conjunction with
the independent studies for Transportation Infrastructure, the design team presented four
alternatives for the Plan Concept Diagram in the form of a Primary Design Structure. The
four alternatives were narrowed to 'two, and subsequently a fifth concept, as a hybrid of
the two, was proposed and adopted. The Plan Concept was then elaborated in its key Plan'
Elements of Transportation Infrastructure, Primary Design Structure, Predominant Land Use
and Urban Form.
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URBAN DESIGN PLAN - Draft Report Page 7
Urban Design Planning Process/Methodology
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Next the Plan Concept is detailed by defining Design Districts - areas which are coherent
zones of the Plan, both in terms of land use patterns and formal structure. Once defined,
the Districts are described verbally and with plan concept diagrams. A combination of
development opportunities and strategies led to the drafting and budgeting of a preliminary
list of Capital Improvement Projects. The final prioritization of these projects should be
based upon both project feasibility and the strategic importance of each project to the
development of the overall Vision for the City Center.
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REPORT PRESENTATION FORMAT
The Plan Report is organized in a manner consistent with the chronological sequence described
in the preceding articles on Planning Process and Design Methodology. The Plan is
documented in three sections, corresponding to the three scales of design - Urban Design
Plan, Design Districts, and Capital Improvement Projects.
The Urban Design Plan section is organized in sequence with Plan Goals, Plan Design
Program, Plan Concept Diagram, Plan Elements (Transportation, Design Structure, Land Use,
Urban Form), and finally Design Districts.
The Design District section describes the key districts of Main Street, Tigard/Burnham Street,
Fanno Creek Park Edge, Railway/Commercial Street, Hall Boulevard, and the City Center.
The Capital Improvement Project section is preliminary in its refinement,
ary pending the conduct
of a public review process. It is organized with articles on purpose, financing mechanisms
and development strategies, leading to a list of projects. The project list is prioritized l
according to the development strategy of putting in place the key elements of the "Primary
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Design Structure," together with key development projects which exemplify opportunities
for public-private partnership. The list includes preliminary budget ranges for project
development costs. Finally, the Plan proposes one "Keystone Project" strategic to the
realization of the Vision for the City Center as portrayed in the Urban Design Plan.
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URBAN DESIGN PLAN
PLAN GOALS
The Urban Design Plan has been guided by the following General Goals, which were reviewed
and adopted at the first major workshop. These Goals provided the foundation for the
planning process and represent the yardstick by which the Plan and City Center development
can be measured. As the Plan proceeds through public review, the Goals should be enhanced
to reflect Development Strategies for the City Center, and should be complemented by
Planning Policies.
f .w GENERAL GOALS
Primary -
To create a Development Plan for the Tigard "City Center," to give
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it a sense of place and identity as the "Heart" of the City - a vital
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living center of social, cultural, economic and political activity.
Functional -
To produce a Plan which provides the appropriate urban infrastructure,
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services and environmental setting to attract and facilitate a functionally
vital central business and cultural district for the City.
Formal -
To provide a comprehensive formal vision of the future of the Tigard
City Center, integrating the Vision Statement of the City with the
development proposals of the Parks and Transportation studies.
Temporal -
To present a phased Development Plan achievable over a ten-to-twenty-
year time frame.
Political/Social -
To describe a coherent representation of the development potential
of the Vision Statement and to inspire public enthusiasm and support
for that vision.
Economic -
To describe a general, yet comprehensive Development Framework Plan
for the City Center, achievable through the implementation of a
prioritized sequence of feasible capital improvement projects, and
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integrating the recommendations of the Marketing and Economic studies.
Strategic/
Operative - To document the planning process and product in the form of an Urban
Design Plan, development strategies and design guidelines, and ultimately
planning legislation and development regulations for the Tigard City
Center.
The General Goals above should also be expanded to include Goals to reflect the desired
mix of uses and for the infrastructure designed to serve those uses.
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URBAN DESIGN PLAN - Draft Report Page 10
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LAND USE GOALS
Mixed Use
Promote the development of the City Center as a desirable mixed-use environment in which
to live, visit, work and play. Development regulations should facilitate a diverse mix of
general and specialty retailing, destination retail, commercial and professional offices,
government and institutional offices, multi-family residential and select light industrial uses.
Multi-Family Housing
Give a high priority to increasing the number of residential accommodations in. the City
Center area for a mix of age and income groups, taking into consideration differing life
styles; and to provide a "quality" environment in which people can live, recognizing that
residents of the City Center and adjacent areas are essential to the growth, stability and
general health of a metropolitan city.
Commerce
Enhance the City Center's role as the recognized center for retail goods and consumer
services in the City of Tigard. Provide an atmosphere conducive to investment.
Office
Strengthen the City Center's role as an important center for administrative, financial,
personal and professional business, service and governmental activities.
Culture and Entertainment
Promote the City Center as the entertainment and cultural center of the City of Tigard.
Encourage public sponsorship of entertainment. Encourage diversification of cultural
entertainment in the core. Provide spaces for community entertainment, exhibition and
meeting facilities.
Industry
Maintain supportive warehousing and wholesaling in a cohesive district close to the City
Center.
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PLAN CONCEPT GOALS
Visual Image /Identity
Create in the Tigard City Center an urban setting with a definite sense of place and identity
by developing strong boundaries, emphatic focal points, unique physical designs for identifiable
districts, and by enhancing special places such as the Fanno Creek Park, and historic or
architecturally significant buildings.
en Space Network
Provide a network of public and private open spaces adaptable to wide variety of uses.
Place priority on the development of Fanno Creek Park as the primary open space resource.
Extend the network of open space from the Park throughout the City Center to develop
the theme of "the City in the Park."
Fanno Creek Park
Develop the Park to the fullest potential of its Master Plan. The Park is one of the few
t places which provides the city dweller with the opportunity to get in touch with the natural
1 environment, and more particularly with the special qualities of a body of water. It should
provide the opportunity for play as well as work, relaxation as well as stimulation, nature
as well as artifice; the opportunity to create for the people of Tigard a combination of
unique activities through which city life can be enhanced.
iTransportation Infrastructure
L' To design a balanced transportation system which is supportive of the other City Center
goals; and which recognizes that the transportation system should provide more efficient
use of both right-of-way and vehicles. Through design, place priority on pedestrian
circulation and pedestrian-scaled "streetscape" within the City Center. This suggests
gradually reducing the reliance on the automobile, increasing the number of persons per
car and increasing the number of persons moving through concentrated areas on transit
facilities. Encourage the development of the Tigard City Center as a major exchange point
for the, metropolitan light-rail transit system. Provide an adequate resource of public parking
to facilitate access to the retail-commercial center.
Building Density
Develop Design Guidelines and. Development Regulations which establish height and bulk
limitations in the context of a building's immediate environment. Careful consideration
should be given to the cost of providing utilities and services and the capacity of the
transportation system which serves it to accommodate a given density.
Historic Preservation
Identify, preserve, protect and dramatize historical structures and locations within the City
Center.
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PLAN DESIGN PROGRAM
The Design Program for the City Center was developed in a workshop involving the staff
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project leaders with the consultants in marketing, economics, transportation and urban design.
The table below, defining "Projected Demand for Land in the Study Area," developed in
the market study for a 15-20 year time frame, was used as a point of departure.
Proiected Demand for Land in the Study Area
1988-2005
L i
za - a toe
"acted Amount of I;-gand Ascent of Aequired Aeouat of 'Asgaired
ow Ousund Building [and At" Building [aid Area Building
nr 1088 - 2005 22Lq (Acres) aweR Merest Qf~a (ACreol
f Lan
•
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VER o
Retail/OffLon 1.500.000 q. ft. 150.000 sq. ft 14 100.000 sq. ft 28 150.003 q. ft 41
4btai Multi-taaily
pesldential 7.600 mite 760 units 18 720 units 76 1.080 wits SO
9 760 units 18 540 wits D
1nrsCala 1.800 units 180 units
Midscale 1.800 units 180 wits 9 760 mite is Sao wits 27
•
Totals 72 66 9s
Mote, lard cNerage cation are as follows metail/office 25t0nits/Aect
rasidentlal
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SouceeI BObeOn a Anociates (19881.
•
The methodology was first to interpolate those market demand numbers, which should be
viewed as "reasonably expected" demand, to a "potential demand" which the City Center
Plan and its infrastructure must be capable of serving. This exercise led to the definition
of program criteria in the following table, under the column entitled "Urban Renewal Plan."
These projections were found to be consistent with the assumptions of the Transportation
Study, verifying the design model utilized in the Transportation Study.
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the last column, "Long-Range Plan Vision," was generated. It is based upon
Finally
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expanding the potential trade area to a 10-minute drive from the City Center and expanding
the time frame to 30 years. The range of potential market demand is deemed feasible by
applying a more conservative capture rate of 12.596-15.096. The market demand figures in
this column provide the design program criteria for the Urban Design Plan. The demand
for retail space is projected to level off in the range of 300,000-350,000 sq.ft., while that
for commercial office space is expected to continue a linear growth curve to a range of
450,000-600,000 sq.ft. Even factored by a conservativc 10% capture rate, there is a potential
demand of 1,440 multi-family units for the City Center.
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PLAN DESIGN PROGRAM CRITERIA
TICARD CITY CENTER URBAN DESIGN PLAN
.
TIGARD CITY CENTER PLAN TASK FORCE
PLAN DESIGN PROGRAM CRITERIA
-
Nabsen
Kiteolww
Urban
Loses-Roass
Mortal: StWV
DoMw Fine
Mansell Plan
Plan Vin
PROGRAM CRITERIA
U-20 Yews
15.70 Yaws
15-20 Yeas
30 roes
TRADE AREA MARKET DEMAND
UnidValae
Ueit/Vak"
Unit/VaION
Unit/Val"
Retail.Ca nardal ONION
1504900 S.P.
1500.000 S.P.
3,004000 S.P.
4000.000 S.R.
Multi -ISM Wly Housing
3.690 Unite
3AW Uoifs
7.700 Units
14400 Units
111 CITY CENTER PLAN CAPTURE RATE
270 Qaao1
3MA-37%
E!e-7D11
ILSR-1SA
CITY CENTER PLAN MARKET DEMAND
Retail.Conttrrdal ONION
300.000 S.P.
4101O00S90.000 S.E
1 000-600M St.
750.000404000 S.P.
Retal!-Canwwrvial
204000 S.P.
3WAVIl-394000 S.P.
304000.304000 S.P.
304000304000 S.P.
Camwrcial 0(fice
104000 S.P.
190000204000 S.P.
130A00.3a000 S.P.
430400604000 S.P.
Multi-Panvir Mousses
7m Units
1p0 time
720.10p Units (10-MIS)
1440 Units (MM
!
Upscale Mousing
360 Units
560 Units
360-S40 Units
720 Units
Midstalo Nouslnj
360 Units
- 544 Units
36O-S40 Units
770 Units
TRANSPORTATION ACCESS
Access Lanes to City Centw
7 leave
10-12 Lana
Access Isnerevwswnt Priorities
Mein. Tigard. Ask Sawn
Swat Crid. UPC Rail
Public Parkins Requ rawer[
(15002000 Spocoei•Streets
(7.50003A00$Pacm)-sroms
1 1 •
water. aveer l
Water. ]Gear 413
DEVELOPMENT STRATEGY PRIORITIES
Infra-Struetere In+Orevelswnts
-
Public Use Facilities
hark. Seavres• M Center.
Done Swat. Swws. Aswan.
Civic Center
uses. uvtt Rai!
PublWPrivate Devekwsnent
-Yaesslll Mrkowisce'
Ups Rail Pararorshloe
Private Dwelogs t
Mein Street. Park Mousing,
Main Stroll.orwondnoosl
Soef!rst
Infill. Hoopes
TOTAL N AM/ a.
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PLAN CONCEPT
The development of a simple "T"-shaped Plan Concept best serves the planning goals for
the Tigard City Center. "A `T' for Tigard." The key descriptive elements of the Plan
Concept are as follows:
1. The reinforcement and development of a compact, mixed-use retail-commercial core
along Alain Street as the top cross-bar of the "T"-shaped plan.
2. The development of a mixed-use commercial office and destination retail street along
Burnham Street, reconfigured to connect to the Main Street core at its intersection
with Tigard Street, as the primary stem of the "T."
3. The development of Fanno Creek Park as a major public open space resource, consistent
with its Master Plan, as the other stem of the "T."
4. The development of a major Public Square bridging the intersection of Fanno Creek
Park and Burnham Street with Main Street, conceptually at the "crossing" of the "T."
5. The reinforcement of the Burnham-Main axis with the expansion of the Tigard City
Center as a strong node at the base of the "T." l
6. The development of a clear Transportation Infrastructure, with strong entry portals,
a clear hierarchy of streets, and future integration of the light-rail system, to serve
and reinforce the diagram.
7. The development of a clear Primary Urban Design Structure and Urban Form to
strengthen the diagram.'
8. The development of identifiable Design Districts and Predominant Land Use patterns I
on the basis of the Primary Design Structure.
PLAN ELEMENTS
The Plan Concept diagram is developed through its dissection into formal Plan Elements,
which articulate the key design aspects of the Plan. The Plan Elements are Transportation
Infrastructure, Primary Design Structure, Urban Form, Predominant Land Use, and Design
Districts.
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PLAN CONCEPT DIAGRAM
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TRANSPORTATION IN'FRASTRUCT'URE
The Transportation element is defined as the basic "infrastructure" or "frame" of circulation
upon which the Plan is developed. The diagram of Transportation Infrastructure for the
City Center is proposed in support and complement to the Transportation Study prepared
by Kittelson & Associates, to serve both the 15-20 year time frame of the proposed Urban
Design Plan and the 30-year time frame of the Plan Vision. It proposes the development
of seven entry portals into the City Center Study Area, complemented by a system of primary
street facilities through the Center and a smaller scale grid of local service streets.
The Key Infrastructure Elements and improvements, illustrated on the diagram, are as follows.
1. Retain Main Street Entry Portals in general current configuration. Improve entire length
of Main Street through the City Center.
2. Improve Tigard Street as primary North Entrance Portal.
3. Plan long-range development of the proposed Pacific Highway/Tigard off-ramp to
strengthen north/east access.
4. Extend the improved Tigard Street across Main Street and diagonally to the south to
form its connection with Burnham Street. Improve Burnham Street continuously to
its intersection with Hall Boulevard.
5. Retain the existing configuration of Burnham Street at Main Street as a local service
street with high pedestrian priority.
6. Improve Ash Street to provide access from the South Residential Area.
7. Continue Ash Street through City Center with a new crossing of the Railroad right-
of-way.
8. Realign Ash Street and Scoffins Street to create a new four-way intersection with
Hunziker Road at Hall Boulevard.
1. Improve Hall Boulevard as a true boulevard facility with landscaped median from the
Fanno Creek Bridge north to its intersection with Pacific Highway.
10. Develop a phased improvement program of dedicated or planned streets within the City
Center to establish a small-scale grid of streets.
11. Develop a South Border Street System with the extension of Southwest McKenzie Place
to Southwest Hill Street at Ash Street.
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TRANSPORTATION INFRASTRUCTURE DIAGRAM
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PRIMARY DESIGN STRUCTURE
The diagram of Primary Design Structure builds upon the Plan Concept and the Transportation
Infrastructure diagrams. Its objective is to illustrate the concept of what we perceive as
the traditional "downtown," the primary core of retail and commercial business activity,
complemented by public, governmental and institutional uses. The diagram also proposes
the location of key public or quasi-public buildings and monuments which define primary
design axes. Together these elements compose the Primary Design Structure, which forms
the skeleton for development. Planning Policies, Development Regulations and Design
Guidelines are detailed subsequently to facilitate and reinforce the Primary Design Structure,
to promote a clear cohesive vision and understanding of the City Center Plan.
The Key Elements and improvements of the Primary Design Structure, illustrated in the
diagram, are as follows:
1. The reinforcement of Main Street as the primary retail shopping street in the City
Center. Entry portals to Main Street are strengthened with commercial office
developments.
2. The development of the new Tigard-Burnham Street connection to form a second primary
street connecting the Tigard Civic Center and south end of the City Center to the I
Main Street core. Uses along the new street are proposed as primarily commercial
and professional office, with ground level retail developed over time.
3. The Main Street and Tigard-Burnham Street primary structure forms a simple,
comprehensible "T" pattern of retail-commercial development, identifiable as the Tigard I
City Center. The urban quality of these primary streets is reinforced with the future
alignment of light-rail systems from the 217 valley ring and the I-5/Barbur radial, i
entering the City Center via Tigard Street and Main Street, respectively, and converging
along the new Tigard-Burnham Street.
4. The "T" plan configuration is further reinforced by the development of a major public
square at the intersection of Main Street and (old) Burnham Street. This square is
developed as the primary civic open space in the City Center. It forms an open space
connection between Fanno Creek Park and the Main Street retail core. It thereby
creates the most intense node of public and private activity at the key point in the
Design Structure.
5. The Primary Design Structure is marked by public and private monuments to form design
axes along Main Street and Tigard-Burnham Street. Main Street is marked by private
office towers as gateway elements at each end and by towers positioned at key
intersections. The public square is marked by a public bell tower or campanile. The
stem of the "T" is strengthened by the placement of another public tower at the
intersection of Burnham and Hall Boulevard. This tower serves as a beacon for the
Tigard City Center, expanded north to Burnham, and also marks the South Entry Portal
into the City Center.
6. The Tigard-Burnham Street, Fanno Creek Park, and the Railroad right-of-way form
linear extensions southeasterly from Main Street and subdivide the City Center into
a series of linear zones, all of which lead to and converge on Main Street as the City
Center core. This linear zone pattern is the basis of the development of identifiable
"Design Districts."
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PRIMARY DESIGN STRUCTURE DIAGRAM
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URBAN DESIGN PLAN - Draft Report
URBAN FORM
The diagram of Urban Form illustrates the application of the long-range vision design
program, modeled three-dimensionally as a development of the Primary Design Structure.
The diagram is an abstract model of building form and is intended to depict "building
envelopes" or zones in which buildings of a given size can be constructed; it is not intended
as an illustration of specific building forms. Its key elements are as follows: l
1. Two-to-three-story office building forms, placed close to front property lines, marking `
the entry portals to Main Street. Ii
2. Three-story mixed-use buildings, office space over ground level retail, with no front
setback, developed continuously along Main Street, from the Fanno Creek Bridge to
Scoffins Street. Special locations designated for four-to-six story tower elements.
3. Two-story office. building forms, with no front setback, developed continuously along
Tigard-Burnham Street to the Tigard City Center.
4. Two-story expansion of the City Center complex.
5. Public Tower elements placed in the. Public Square and at the Civic Center as the two
tallest structures within the City Center. I
6, Infill Housing densities varying in the range of 20-40 units per acre, primarily - in two-
and three-story building elements along Fanno Creek Park, the railroad right-of-way
and the Scoffins Street area.
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7. One- and two-story convenience and service commercial uses along Commercial Street
and Hall Boulevard.
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URBAN FORM DIAGRAM
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PREDOMINANT LAND USE
As set forth in the General Goals, the overriding land use goal is to promote the development
of a heterogeneous mix of uses in the City Center. Nevertheless, consistent with the goal
of also developing identifiable design districts within the City Center, certain land uses
are projected to dominate in certain zones. The Predominant Land Use diagram attempts
to illustrate this concept. This concept is further developed through the creation of the
Design Districts, each with its own planning objectives, development strategies and design
guidelines.
The diagram illustrates a very generalized approach to the concept. Its key elements are
as follows:
1. Mixed-Use Retail and Commercial uses, dominated by retail along Main Street, from
the Fanno Creek Bridge to Scoffins Street.
2. Commercial Office use designations at the entry portal locations to Main Street at Pacific
Highway.
3. Mixed-Use Retail and Commercial uses, dominated -by Commercial Office along the new
Tigard-Burnham Street.
4. Public, Governmental and Institutional uses dispersed, but placed at key locations to
reinforce the Primary Design Structure diagram.
5. Multi-Family Housing of varying densities along both edges of Fanno Creek Park, along
the park development of the Railroad right-of-way, and • within the Scoffins Street infill
zone.
6. Recreational uses permissible' as conditional - ;es along Fanno Creek Park, selected and
limited by the Park District Board policy and by the Park Master Plan.
7. Auto-oriented Convenience and Service Commercial along Commercial Street and along
Hall Boulevard.
8. Light Industrial uses permissible as conditional uses along Hall Boulevard, subject to
further policy review.
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PREDOMINANT LAND USE DIAGRAM
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DESIGN DISTRICT METHODOLOGY
Specific zones or areas of the City Center have the potential to develop in certain ways.
The designation of "Design Districts" serves to recognize and facilitate this potential, and
complement and reinforce the Plan Concept. The objective is to create Design Districts
with a distinct identifiable image, both in terms of urban form and pattern of activity,
while at the same time being complementary to neighboring districts and to the whole
construct of the City Center.
The Design Districts identified in the City Center are as follows:
1. Main Street
2. Tigard/Burnham Street
3. Fanno Creek Park Edge
4. Railway/Commercial Street
5. Hall Boulevard
6. Civic Center
The design methodology for the planning of districts, based. upon a description of its charac-
teristics and potential, is to articulate planning objectives for the district. The objectives
are given form through a Plan Concept diagram which illustrates desired patterns of
development and key plan elements of the Design District.
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DESIGN DISTRICT DIAGRAM
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DESIGN DISTRICT: MAIN STREET
DESCRIPTION: !
■ The center of town. The lifeblood. The spine. The center of retail activity characterized
by easy vehicular access. Opportunities for the individual shop owner to individually l
or collectively contribute to the "fabric" of the street.
■ Mandatory retail at street level. Curb parking (parallel and angle) along street with
parking reservoirs at strategic locations along the street.
■ Lighting and signage appropriate to pedestrian movement. Design criteria strengthening
the storefront; visual access to retail.'
■ Signature buildings at gateway intersections. Civic square at central location.
Intersections to "zoned streets" key to the character of Main.
■ Strategic. land assembly and development offerings at Fanno Creek Park terminus and
civic square/Tigard and Burnham intersection.
ELEMENTS.
m Gateway concept/park entrances
s Civic square
a Signature buildings
■ "Tissue" infill
• Rail corridor/crossing
e LRT alignment `
v Bridge/creek crossing
■ Street trees
■ Lighting and signage
■ Street furniture
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MAIN STREET CONCEPT DIAGRAM
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DESIGN DISTRICT MAIN STREET
DEVELOPMENT STRATEGIES:
■ Relocate auto-related (nonconforming) uses along Main Street
■ Identify strategic Main Street parcels to be made available for development
■ Develop incentives (assistance) for individual business renovation
■ Overall right-of-way improvement
® Tigard/Burnham connection/public space
e Public parking strategy
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MAIS STREET URBAN FORM DIAGRAM
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DESIGN DISTRICT: MAIN STREET
PRIVATE DEVELOPMENT GUIDELINES:
■ Build-to lines
■ Street level uses/street "face" activities
■ Building height
■ Continuity of building front/percent of lot coverage
■ Building entrance
■ Private parking
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MAIN S'T'REET
PROTOTYPICAL
PLAN SEGMENT
1
Public Crosswalks
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Narrowed Street
' at Intersections
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10' Covered Walkway
10' Public Sidewalk
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Ornamental Street
Trees @ 40' O.C.
Ornamental Light
Fixtures @a 40' O.C.
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DESIGN DISTRICT: MAIN STREET
PUBLIC DEVELOPMENT GUIDELINES
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MAIN STREET
PROTOTYPICAL
CROSS SECTIONS
Section A One
M_ thie .~.w. v s . ~c purr a~
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Adml~
MAIN STREET FURNISHINGS
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DESIGN DISTRICT: TIGARD/BURNHAM STREET
DESCRIPTION:
■ Creating "parks in the city" through a series of mid-block open space requirements.
e Development of a light-rail corridor along Burnham with connections at a new
Tigard/Burnham intersection and south of Hall Boulevard.
a Lighting and signage appropriate to vehicle movement, easy and safe access to light rail.
■ Parking areas mid-block east and west of Burnham. .Parking areas grouped to provide
joint and shared parking opportunities.
■ Building form and mass to define mid-block outdoor "rooms" with land use of retail
and commercial office.
■ Street trees and landscaping created for identity of Burnham as primary access between
Main Street and Hall Boulevard.
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I ;ARD/BURNHAM STREET CONCEPT DIAGRAM
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DESIGN DISTRICT FANNO CREEK PARK EDGE
DESCRIPTION:
■ Clusters of building with "finger," ni° green connecting park to mid-block open space
rooms on Burnham.
■ East side: Cluster buildings of high-density housing. with mandatory restaurant space
in each block cluster.
■ West side: High-density housing allowing view corridors and open-space "fingers" to
housing removed from park frontage.
■ Housing views and living space facing park. Parking and service to rear.
a Development at "drive-to" locations, connected by bike and pedestrian paths through
Fanno Creek Park.
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FANNO CREEK PARK EDGE CONCEPT DIAGRAM
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URBAN DESIGN PLAN - Draft Report
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DESIGN DISTRICT: RAILWAY/COMWRCIAL STREET
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DESCRIPTION:
v Convenience commercial area. Provide opportunities for drive-in and drive-thru facilities.
■ Group parking to serve a number of businesses. Parking shared and jointly developed.
■ Lighting and signage scaled to orientation and access from the automobile.
■ Landscaping to provide ease of visibility and vehicular access to "grouped" parking areas. t
■ Railroad right-of-way lined by trees with pedestrian/vehicular ways along side.
■ High-density housing along west side of new "Railroad Park." `
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URBAN DESIGN PLAN - Draft Report Page 41
RAELWAY/COM]MERCIAL STREET CONCEPT DIAGRAM
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URBAN DESIGN PLAN - Draft Report Page 42 f V
DESIGN DISTRICT: HALL BOULEVARD
DESCRIPTION:
■ Gateways to city center marked by "Tigard" monument.
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■ "Boulevard" treatment of street trees and center divider with left-turn lanes.
■ Traffic lights at key cross intersections of Ash, Burnham and Pacific Highway.
■ Signage and lighting geared to major arterial traffic movement.
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URBAN DESIGN PLAN - Draft Report Forge 43
HALL BOULEVARD DIAGRAM
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DESIGN DMIUCT: CIVIC CENTER
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DESCRIPTION: f
■ Extend Civic Center complex north to intersection of Burnham and Hall Boulevard.
s Create axial monument in line with Burnham at Burnham/Hall intersection to establish
visual axis from Civic Center to Main Street.
■ Create major parking reservoir at Civic Center with pedestrian access up Burnham and
through Fanno Creek Park to Main Street retail area.
■ Maintain consistent character of Civic Center in expanded community facilities.
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URBAN DESIGN PLAN - Draft Report Page 45
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CIVIC CENTER CONCEPT DIAGRAM
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URBAN DESIGN PLAN - Draft Report
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CAPITAL IMPROVEMENT PROJECTS
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PURPOSE I
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URBAN RENEWAL PLAN
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DEVELOPMENT STRATEGIES
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' URBAN DESIGN PLAN - Draft Report Page 47
CAPITAL BOROVBMENT PROJECTS KEY MAP
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report Page 48
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CAPITAL IMPROVEMENT PROJECTS
The preliminary prioritization of Projects is based upon a
development strategy of first
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establishing the key elements of the Primary Design Structure of
the Plan.
1.
Tigard/Burnham Street Connection
$1,250,000 - $1,500,000
(Main Street to Ash Street)
2.
Main Street Improvements
$750,000 - $1,000,000
(Fanno Creek Bridge to Tigard Street)
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(Main Street Business Revitalization Program)*
3.
Tigard City Square Development
a. Park Edge, Square and Burnham Street
$1,500,000 - $2,500,000
b. Private Sector Commercial Development
$12,000,000 - $15,000,000
c. Parking Structure Development
$2,500,000 - $3,500,000
4.
Main Street Entrances
$250,000 - $300,000
(Landscaping, Pedestrianways, Entrance Structures)
5.
Civic Center Entrance
$150,000 - $250,000
(Landscaping, Plaza, Tower Structure)
6.
City Center Entry Portals
$500,000
(Landscaping and Entrance Structures only)
7.
Main Street Improvements
(Main Park to Bridge; Liberty Park to Tigard Street)
$800,000 - $1;000,000
(Main Street Business Revitalization Program)*
8.
SeaFirst Property Development
9.
Burnham Street Improvements
$300,000 - $350,000
10.
Ash Street Development
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* Project Budget Estimates are very preliminary, drafted simply to lend "order-of-
magnitude" perspective to potential development, and to facilitate the work of the
Economics Consultants. Several projects need further refinement of scope before budget
ranges should be speculated.
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TIGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report
Page 49
11. Tigard Street Development
12. Main Street North Mixed-Use Development
(Bridge to Tigard Street, Two-Phase Project)
13. Main Street North Structured Parking
(5 Floors @ 100 Spaces - 500 Spaces @ $6,000)
14. Main Street East Office Development
(Pacific Highway to Scoffins Street)
15. Burnham Street Development Project
(Two-Phase Prototypical Project)
16. Fanno Creek Housing Development Project
(Prototypical Multi-Family Project)
17. Railroad Right-of-Way Acquisition
(Future Parkway Development)
18. Burnham-Railway Zone Infrastructure
19. Rail-Parkway Housing Development Project
20. Commercial Street Right-of-Way Improvements
21. Commercial Street Auto-Commercial Project
. (Prototypical Convenience Commercial Project)
*
2 @ $7,000,000 - $8,000,000
$3,000,000
$7,000,000 - $10,000,000
2 @ $5,000,000 - $6,000,000
$5,000,000 - $7,000,000
*
*
s
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* Project Budget Estimates are very preliminary, drafted simply to lend "order-of-
magnitude" perspective to potential development, and to facilitate the work of the
Economics Consultants. Several projects need further refinement of scope before budget
ranges should be speculated.
TTGARD CITY CENTER
URBAN DESIGN PLAN - Draft Report Page SO
KEYSTONE DEVELOPMENT PROJECT:
TIGARD CITY SQUARE
PROJECT DESCRIPTION
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KEY ELEMENTS DEFINED
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URBAN DESIGN PLAN - Draft Report Page SI
TIGARD CITY SQUARE f
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URBAN DESIGN PLAN - Draft Report Page 52
TIGARD CITY SQUARE
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CITY OF TIGARD, OREGON
COUNCIL AGENDA ITEM SUMMARY
AGENDA OF: December 12, 1988 DATE SUBMITTED: December 5, 1988
ISSUE/AGENDA TITLE: Update on PREVIOUS ACTION:
Street Bond Issue
PARED BY: Randall R. Woole 4 r
DEPT HEAD OK CITY ADMIN K4- / QUESTED BY:
POLI Y ISSUE
INFORMATION SUMMARY
The Engineering staff is preparing a project schedule for implementation of
the Traffic Safety Improvement Bond projects. They are reviewing what
projects can be under construction the first year, what work should be
consulted out, and the impacts of the projects on the work program for
Engineering.
The project schedule will be discussed with the Transportation Advisory
Committee on December 8th. At the December 12th Council workshop meeting, the
City Engineer will present the proposed schedule to the City Council.
ALTERNATIVES CONSIDERED
FISCAL IMPACT
SUGGESTED ACTION
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MEMD
TO: Pat Reilly, City Adninistrator
FROK: Ed Murphy, Camwnity Developrient Directo
SEMJECT: Request to form a single owner local t district
DATE: December 12, 1988
I. OVERVIEW:
A. Ste. The city has recieved a request from PacTrust to form a
local improvement district to construct improvements to their
property off 72nd Avenue. They would be the sole participant in
the LID.
B. Policy Implications. The general, unwritten policy of the city is
to discourage single owner LID's for a variety of reasons, which
are discussed below. Allowing PacTrust to form a single owner LID
may set a precedent for other properties, but there are score sound
reasons for favorably considering this request.
C. Financial Implications. A local improvemment district would pay
for any City costs associated with the project, such as engineering
and administration, so there should be no net cost to the City.
M The larger financial implications have to do with the City's
ability or inability to repay any debt that had been incurred by
the City, on behalf of the property owner, to construct the
necessary public improvements. Funds for the re-paymnt of the
debt, in the case of a default by the property owner, would cane
from proceeds generated by the sale or use of the property.
D. Recommendation. It is recc men ed that the City allow the use of
the local improvement district for this project. It is further
recatmended that staff be directed to draft a policy statement for
the City Council's review that would guide future consideration of
other similar requests.
II. ANALYSIS:
A. Background. The current policy of the City is to discourage
single owner local impxwement districts. This policy is unwritten, but has
apparently been the practice for several years. In Tigard, as in many cities
in Oregon, there has been a reluctance to use the LID mechanism for a single
developer for two primary reasons:
1). The potential risk involved should the developer default on
the Bancroft payments, and the value of the property is riot great
enough to cover the debt that has been incurred by the City; and
2). The lack of a "public purpose", in those cases where the
improvements would probably have been constructed anyway, or when there
is no issue of "equitable distribution of assessments" based on the
benefit received.
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The Pacific Realty Associates, L.P. have acquired, or are acquiring,
much of the land along 72nd Avenue between Carmen Drive and Bonita Road. As
they state in their letter of November 28, they plan on developing this
property with a mix of office, light manufacturing, restaurant, hotel, retail
and service facilities.
Significant on-site, as well as some off-site, public facility
its will be neccessary. The project would involve the construction of
a new road connecting Bonita Road and Carmen Drive, which would be very
desirable from a staff standpoint. It would act as an alternate access into the
project, relieve some of the traffic load on 72nd avenue, and generally improve
traffic circulation and emergency access. It would also serve as a "gateway"
into the new area, which may positively influence the quality of the new
development that occurs on this property. And finally, it would be
advantageous to master-plan the utilities and street facilities, and have them
constructed all at one tine, rather than "piece-healed" together as development
occurs.
There are at least two factors that should be considered in responding
to the request to form a single owner LID.
1). Is there a public purpose involved? Basically, an LID allows the
city to design and construct improvements to an area that needs or wants such
.i ovenents. Typically, the city works with the affected property owners to
determine exactly what the project entails, constucts the project, and then
assesses each benefitting property owner a proportionate share of the overall
costs, based on the estimated benefits accruing to that property. The "public
purpose" in all of this is that public improvements are made that may otherwise
not be made. This is because the LID mechanise is a method for fairly
distributing costs, and also because those assessments can be financed over
time at an attractive interest rate.
Another "public purpose" may be the creation of jobs in the co mnuiity.
Just like many other more common financial tools that are used to encourage
economic development, the use of an LID and Bancroft financing may be thought
of as a method of stimulating private investment, and therefore assisting in
the creation of new jobs.
2). Is there a risk to the city government or the general taxpayer
involved? The risk involved in an LID basically comes dawn to whether or riot,
in case of a default by the property owner on their payments to the city, the
city would be able to repay the debt. After the assessing ordinance is
adapted, the city places a lien on the property, in first position, securing
the payment of those assessments to the city. The property owner has the
option to pay in full once the final assessment notices are sent, or to finance
their assessment by "bancrofting" it, meaning they can make payments over time.
The risk factor canes into play if the property owner fails to make
their payments. In that case, the city has the right to foreclose on the
property, and use the proceeds from the sale or use of the property to retire
the debt. Ii the proceeds are not great enough to retire the debt, the city
still has an obligation to repay it, and may levy a general property tax, if
neccessary, to retire the bond. That is, by the way, essentially what allows
the interest rates to be lower -there is vitually no risk to the bona holder,
since the full value of the city is pledged as a back-up guarentee.
If the request from PacTrust is weighed against the above factors, it
would appear that there is a rationale for allowing a single owner LID in this
case. There is a public purpose to be served, which is the need and desire to
have a public street built between Carmen Drive and Bonita Road. And there is
also a desire to see this particular project come abort because of the
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potential jobs that would be created, which PacTrust estimates to be in excess
of 2500. The proposed improvements may not occur at all, may not occur to the
same high quality, or may not occur as soon as they otherwise would, without
the use of the LID mechanism.
There is very little risk involved in this proposal. Any costs
associated with the local improvement district, including engineering and
finance costs, administrative costs and construction costs, would be charged to
the LID, and therefore secured by a lien on the property. The value of the
property eaoceeds the costs of the proposed imprvvetients by roughly $8 million
collars, and the improvements to the property would tend to increase that
difference. Plus, the financial stability and strength of PacTrust would lower
the risk of a default on the assessment paymsits.
It should be noted, by the way, that PaaTrvst is currently making
payments on twenty LID accounts with the city, mostly in connection with the
72nd Avenue LID, and that there have been no problems with delinquencies or
late payments.
The City does have adopted written policies in its' Local Imprwanent
District Policies and Procedures Manual, which are tangently related. These are
as follows:
1). LID's in an undeveloped commercial and/or industrial area are
considered to be "second priority", after developed areas with less than
city standard systems; and
2). Property owners in this second priority category can finance
75% of the allowable omits, rather than 100%.
It is not clear to the current staff why these policies on priority categories
and level of allowable financing were adopted, but it was apparently to try to
stay under an annual indebtedness limit. It does not appear that these
policies have been followed over at least the last few years.
B. Alternatives Considered.
Some of the options considered by staff, and which the City Council may
want to consider, are as follows:
1. Allow PacTrust to form the single owner LID at this time, and
have the staff draft a Resolution in the near future for the Council's
review which would more formally state the City Council's policy
regarding single owner LID's in general.
2. Direct staff to draft a policy statement first, and adapt such
a policy before considering the current request.
3. Indicate that the current request is contrary to Council
policy, and deny the request.
4. Direct the staff to work with adjoining property owners to form
a larger LID, made up of more participants.
5. Allow PacTrust to form the single owner LID, but require one
year's worth of principal payments to be placed in escrow, or otherwise
guarenteed.
6. Allow Padrrust to form the LID, but only allow them to finance
up to 75% of the total allowable costs.
The staff has determined that a larger LID is not likely to be a
feasible option at this time, due to probable lack of interest on the part of
other property owners in the area.
The staff also sees no reason to wait for a formal policy statement to
be adapted in order for the project to move ahead, as the proposal is not in
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violation of any written policy or ordinance. In addition, the property owner
has expressed a desire to move ahead with this proposal as quickly as possible.
staff also sees no particular reason to require the extra security of a year's
principal payments up front, or to only allow the property owner to finance up
to 75% of the total project costs.
III. CCNCLUSICN: The proposal by PacTnist to form a single owner local
district has both policy and financial implications that should be
weighed carefully by the City Council. There is a relatively low financial
risk to the city involved, and there is a general public purpose to be served,
which in this case suggests that the City could grant the request.
att. letter from Richard moo, padirust, dated November 28, 1988
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I11 S.W. Fifth Ave., Suite 2950
Portland, Oregon 97204
503/224.6540
Pacific Realty Associates. L.P. Facsimile: 503/224.6709
November 28, 1988
BY MESSENGER
Edward Murphy
Director Of Community Development
City of Tigard, Oregon
13125 S.W. Hall Blvd.
Tigard, Oregon 97223
Dear Mr. Murphy:
Re: Proposed Local Improvement District
This letter is written to describe, in a general fashion, a project for
constructing the connection of S.W Bonita and S.W. Upper Boones Ferry Road
between I-5 and S.W. 72nd Avenue and to set out the some of the reasons we
feel that a single owner Local Improvement District formed for that
purpose is an appropriate use of Bancroft Bond funding. We would
appreciate the opportunity to discuss this concept with the City Council
at a meeting during which the Council could address formulation of a
policy relating to single owner Local Improvement Districts.
PacTrust has, in the past year, acquired the land or the right to purchase
the land which is shown on the attached site plan as Pacific Corporate
Center. The South 38 acres of this land was acquired from Southern
Pacific Industrial Development Company and Southern Pacific Transportation
Company. The balance will be acquired from Ford Motor Company Predelivery
Service Corporation (through a transaction with the Koll Company). The
Ford Motor Company land purchase closing is imminent and will be triggered
by completion of the fuel tank removal.
The total land in Pacific Corporate Center consists of 60.436 acres and
the acquisition cost for this land will be over $10,025,000. In addition,
approximately $325,000 has been expended for surveys, soils reports,
environmental studies, engineering studies, preliminary grading and other
such improvements.
This land will be developed over approximately four years into a high
quality business park which will be called Pacific Corporate Center. The
building improvements will include office, light manufacturing,
restaurant, hotel, retail and service facilities. Other probable uses may
include financial services and physical fitness (athletic) facilities.
We anticipate that when this project is fully developed 700,000 to
1,000,000 square feet of buildings will have been constructed. These
buildings will house an employment population potentially in excess of
2,500 people.
LA
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Edward Murphy
Page 2
November 28, 1988
The site plan shows the preliminary design configuration of a street
system within Pacific Corporate Center which will connect S.W. Bonita
Road to S.W. Upper Boones Ferry Road. As currently planned this street
system will include approximately 5,000 lineal feet of street with the
necessary curbs, sidewalks, landscaping, street lights, storm sewers and
sanitary sewers. Our preliminary estimate of the cost of these public
improvements is $1,800,000.00. Added to this sum will be the acquisition
cost of the Northerly 500 lineal feet of right of way which could run as
much as an additional $300,000.00.
The construction of the street and other public improvements mentioned
above will provide significant benefits to the City of Tigard. It will
allow the development of the 60 plus acres in Pacific Corporate Center
into a major employment center as well as other development in the area
without adverse impact on the existing streets and other public
facilities. The addition of the street connecting Bonita Road to Upper
Boones Ferry Road will alleviate existing traffic problems and
substantially improve traffic flow in the area even after full
development of Pacific corporate Park.
We will apply to construct the public improvements described above
through the vehicle of a Local Improvement District funded under the
Bancroft Bonding Act. While we recognize that such a district is
normally made up of several property owners we feel that this project is
a proper use of the Bancroft Bonding Act by virtue of the substantial
public benefits in both economic development opportunity and
transportation improvements.
It should be noted that the estimated cost of the improvements to be
funded under the proposed Local Improvement District is less than 25% of
today's market value of the land which will secure the bonds. As
additional improvements are constructed in the area under the lien of the
bonds, the safety ratio becomes even more favorable. This means that the
risk factors on such a bond issue will be extremely low. This fact
together with the substantial public benefits accruing from the proposed
project provide justification for allowing this public improvement
project to be constructed under a Local Improvement District.
We anticipate starting engineering design of the proposed improvements in
December of 1988 with bidding to take place in early spring of 1989.
Construction should start in late spring of 1989. This timetable is as
we have previously discussed and is subject to the close cooperation
between the Tigard engineering staff and our project organization.
C
Mr. Edward Murphy
Page 3
November 28, 1988
Please share this information with the City Council. We are prepared to
discuss the concept with the Council at their earliest convenience.
PACIFIC REALTY ASSOCIATES, L.P.
By PacTrust Realty Inc ral Partner,
By
ichard P. Buono
Vice President
Encl.
cc: Peter F. Bechen (w/o Encl.)
Kenneth E. Grimes (w/o Encl.)
Leon M. Hartvickson (w/o Encl.)
Stephen L. Pfeiffer, Stoel Rives Boley Jones & Grey (w/Encl.)
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