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City Council Packet - 10/07/2003October 7, 2003 TELEVISED Agenda Item No. 3. 1 Council Meeting of 10-20-03 COUNCIL MINUTES SPECIAL JOINT TIGARD CITY COUNCIL AND WASHINGTON COUNTY BOARD OF COMMISSIONERS MEETING October 7, 2003 1. SPECIAL MEETING 1.1 Council President Dirksen called the meeting to order at 6:11 p.m. 1.2 Roll Call: Tigard City Council: Council President Dirksen, Councilors Moore, Sherwood and Wilson Washington County Board of Commissioners: Chair Tom Brian, Commissioners, Duyck, Rogers and Schouten 1.3 Pledge of Allegiance 2. DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD: The joint meeting provided an opportunity for the Council and County Commissioners to review the draft annexation plan and communication plan for potential annexation of the Bull Mountain area to the City of Tigard. City Manager Monahan introduced the items for discussion at this meting and reviewed the annexation plan draft. A copy of the PowerPoint slide presentation referred to by Mr. Monahan during his report is attached. Community Development Director Hendryx then displayed aerial photographs from 1986, 1999, and 2002 illustrating urban development growth in both the Bull Mountain area and the area within the City of Tigard. Mr. Hendryx distributed a draft "Completing Our Community" brochure, which gave background information, a map, current status of the Bull Mountain area, description of the annexation plan, and a "Q 8i All section. The plans for communication to the citizens were reviewed, including a number of coffee talks and three community meetings (November 19, about January 21- exact date to be determined, and February 18). Washington County Senior Deputy Administrator Ellen Cooper advised that the County Board conducted a first reading on Ordinance 612 to adopt parks systems Page 1 Tigard City Council Meeting Minutes - October 7, 2003 development charges in the Bull Mountain area. Additional readings of this ordinance are scheduled for October 21 and October 28, 2003. During Mr. Monahan's presentation on the annexation plan, he described three phasing alternatives for annexation of the Bull Mountain areas (north, south, east and west. These alternatives were: All areas to be annexed at once. Two phases: north and east, south and west Four phases County Chair Brian noted he would favor the four-phased annexation approach, which would occur in the years 2004, 2005, 2006 and 2007. He said he appreciated the amount of work by the City of Tigard in gathering the information and the planning efforts to date, which lays out the information about the annexation plan. He noted that the public education and involvement component is essential. Commissioner Rogers advised that he lives in the Bull Mountain unincorporated area and said the County is In a neutral position on this issue. He reiterated an earlier recommendation he made at the July 29, 2003, joint Council/Board meeting that community advocates for this annexation effort be sought. He also noted he would prefer a four-phased approach to annexation. He also said it should be made clear as to what the Bull Mountain residents would be receiving for their tax dollars. As an example, he said that potential park areas should be identified. He noted concerns with the "supermajority vote" referring to the fact that there are about 45,000 Tigard residents compared to 7,500 Bull Mountain residents and both areas would be voting on the annexation plan. City Manager Monahan explained that many of the specifics are not available because It was first necessary to prepare the annexation plan framework; the comprehensive planning would then follow. The methods available for voting on an annexation plan would be for both City of Tigard residents and Bull Mountain residents to vote on the annexation or just Bull Mountain residents. Commissioner Rogers asked what specifics could be developed with regard to the transportation system; i.e., plans for a grid system or anticipated improvements? Community Development Director referred to the transportation system plan that was developed and coordinated between Washington County and the City of Tigard. With regard to streets on a neighborhood level, he advised of the application of consistent policies for connectivity and developing a network of streets among several areas. Tigard City Council Meeting Minutes - October 7, 2003 Page 2 Councilor Dirksen advised that the input received at this meeting has been helpful as the City prepares information and anticipates some of the questions that may be asked by the community. Commissioner Schouten referred to past attempts to purchase parcels for land (i.e., Trust for Public Lands) on Bull Mountain for parks, which were not successful. He reflected that this might have been successful if the annexation had been accomplished earlier. He noted that it Is not fair to those who are paying for services that are also utilized by others who are not paying; he supported equity. Councilor Moore said he appreciated the comments from the Commissioners noting that the timeframe is now short and there is much work to be done. He said he believed annexation would be good for citizens. He said he hopes citizens will get their questions answered so they will have a comfort level about the annexation plan. Commissioner Rogers suggested that the different standards between the City and County be listed; i.e., home occupation permits, basketball hoops, code enforcement, etc. Chair Brian said it would also be helpful to note those items that will not change: "...what will and can happen and what won't happen..." Council President Dirksen asked if there was agreement about what had been presented in the annexation plan. Chair Brian noted he had not had the opportunity to read the plan in detail; however, based on the presentation tonight, this is a "good way to go about the conversation" County Administrator Cameron noted that the County Staff had reviewed the draft annexation plan; a number of issues were amplified in the report with no "fatal flaws" identified. He added that the report represented discussions that have been ongoing for a long time. Commissioner Schouten said he likes four-phased approach and recommended to "...err on the side of public involvement... to give the public time to grow into this..." County Administrator Cameron said that the annexation plan will change; however, the basic fundamentals have been presented. It would be presumptuous to think that all questions and information could be anticipated without additional input. Community Development Director Hendryx advised that the Council would be reviewing the annexation plan again on November 4. At that time, the Council would be asked for their preference in the annexation approach for the four areas identified on Bull Mountain; i.e., all at once, half and half, or the four parcels phased in individually. A public hearing on the plan is scheduled for December 2. Tigard City Council Meeting Minutes - October 7, 2003 Page 3 Councilor Sherwood asked if the Commissioners would be able to attend any of the community programs. Chair Brian suggested that the schedule be sent to the County Administration offices so that these dates could be recorded on the Board member's calendars. Commissioner Schouten indicated he would be available to attend the November 19 community meeting. City Manager Monahan said he did not think another joint City/County meeting was necessary. Chair Brian said that if there should be a need for an additional meeting, the Board would be happy to meet with the Council. 3. AD]OURNMENT: 7:29 p.m. Attest: at erne eat ey, ty cor er yor, ity r Date: /0- £ • J3 Tigard City Council Meeting Minutes - October 7, 2003 Page 4 Cathy Wheatley -Mayor Griffith From: Cathy Wheatley To: brian_moore@pgn.com; dirkse:i.home@verzon.net; nick@atlas-la.com; sydneysher@aol.com Date: 10/10/03 9:10AM Subject: Mayor Griffith Here is a message from Bill, updating you on the Mayor: Mayor Jim Griffith has informed us that he is having bowel surgery today to remove a blockage. His message said, "I am having a little bit of bowel surgery later today. Nothing real serious like at Tillamook, thank goodness. I will be out of service for awhile. I missed some programs this week that I wanted to attend. I hope someone kept good notes." We will check on his status later today, after surgery, and report to you on Mayor Griffith's condition. Flowers have been sent to the hospital today from the Council and staff. Mayor Griffith is in room 833 at St. Vincents. /s/ Bill Page 1 CC: Monahan, Bill City of Tigard, Oregon Affidavit of Posting CITY OF TIGARD OREGON In the Matter of the Proposed Notice of Special Meeting STATE OF OREGON ) County of Washington ) ss. City of Tigard ) t) 5\,b , being first duly sworn (or affirmed), by oath (or affirmation), depose and say: That I posted in Tigard City Hall, 13125 SW Hall Boulevard, Tigard, Oregon, a copy of Notice of Special Meeting for the City Council meeting of OZ:~Vp`pCY~ I 3 , with a copy of said Notice being hereto attached and by reference made a part hereof, on the day of 1:~~ , 20 03 . Signature of Person who Performed Posting Subscribed and sworn (or affirmed) before me this 2 9 Lil day of Se-tcmber -200-3- Signature .5]'-~---~ ~ - - - of Notary Public for Oregon OFPICIAI. SEAL ! GREER A GASTON NOTARY PUBUGOREOON COMMISSION NO. 32M MY COMMMION EXPIRES OCT.10. 2003 1:\ADM\GREER\FORMS\AFFIDAVITS\AFFIDAVIT OF POSTING - SPECIAL MEETING.DOC 0 f . CITY OF TIGARD NOTICE OF SPECIAL CITY COUNCIL MEETING Please forward to: ❑ Barbara Sherman, Newsroom, Tigard Times (Fax No. 503-620-3433) ❑ Lee Douglas, Regal Courier, (Fax No. 503-968-7397) ❑ Emily Tsao, The Oregonian, Metro SW (Fax No. 503-968-6061) October 7, 2003 - 6 p.m. Tigard City Hall 13125 SW Hall Blvd Tigard, Oregon Notice is hereby given that a meeting is planned between the Tigard City Council and the Washington County Board of Commissioners. Meeting topics will Include: DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD : ■ Background Information • Communication Plan - Draft ■ Status of Parks System Development Charges ■ Annexation Plan • Review Calendar - Steps between now and December 2 and Beyond ■ Tigard Planning Staff. Why the present effort does not include the two new Urban Growth Boundary areas adjacent to the City of Tigard? ■ Other Issues of Mutual Concern For further information, please contact City Recorder Cathy Wheatley by calling 503-639-4171, ext. 2410. (it Li ru City Recorder Post: City Hall Lobby Date of Notice: September 29, 2003 hADM\CATHY\CCAICC MTG NOTICESWOTICE SPEC MTG 7-29-03.DOC City of Tigard, Oregon Affidavit of Notification CITY OF TIGARD OREGON in the Matter of the Proposed Notification of Special Meeting STATE OF OREGON 1 County of Washington ) ss. City of Tigard ) 1, M . AC,6M5 6\4GYS , being first duly sworn (or affirmed), by oath (or affirmation), depose and say: That I notified the following people/ organizations by fax of the Special Meeting of the City Council on ~~-~'ob I a~ • with a copy of the Notice of Special Meeting being hereto attached and by reference made a part hereof, on the 3q m day of SC~-m be r , 20 lr,~U - 3433 Ef Barbara Sherman, Newsroom, Tigard Times (Fax No. 503-546-G7-2M Qf Lee Douglas, Regal Courier, (Fax No. 503-968-7397) Paige Parker, The Oregonian, Metro SW (Fax No. 503-968-6061) Signature of Person who ge'rformed Notification Subscribed and sworn (or affirmed) before me this cq_- day of .20 OFFICIAL. SEAL GREER A GAS ON Signature of Notary Public for Oregon NOTARY PUSUC4)REWN COMfMMSSION Na 327908 MIY 000M9{SSION EXPIRES OCT. 10, 2003 I:\ADM\GREER\FORMS\AFFIDAVITS\AFFIDAVIT OF NOTIFICATION - SPECIAL MEETING-DOC CITY OF TIGARD NOTICE OF 'ECIAL CITY COUNCIL MEETING Please forward to: ❑ Barbara Sherman, Newsroom, Tigard Times (Fax No. 503-620-3433) ❑ Lee Douglas, Regal Courier, (Fax No. 503-968-7397) ❑ Emily Tsao, The Oregonian, Metro SW (Fax No. 503-968-6061) October 7, 2003 - 6 p.m. Tigard City Hall 13125 SW Hall Blvd Tigard, Oregon Notice is hereby given that a meeting is planned between the Tigard City Council and the Washington County Board of Commissioners. Meeting topics will Include: DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD : • Background Information ■ Communication Plan - Draft ■ Status of Parks System Development Charges ■ Annexation Plan ■ Review Calendar - Steps between now and December 2 and Beyond ■ Tigard Planning Staff. Why the present effort does not include the two new Urban Growth Boundary areas adjacent to the City of Tigard? • Other Issues of Mutual Concern For further information, please contact City Recorder Cathy Wheatley by calling 503-639-4171, ext. 2410. aa, Lt ►'l E City Recorder Post: City Hall Lobby Date of Notice: September 29, 2003 I:WDMCATHY%CCA\CC MTG NOnCESWOTICE SPEC MTG 7-29.03.DOC c.o.Iaono City of Tigard Q001 UU/ZU/2001 11:J0 r-A 0VJUVyI~aI xx.'~'.x xxx xx$xxxxxitx xxxx xxx TX REPORT xxx xxxxxxxxxxxxxxxsxxxxx TRANSMISSION OK TX/RX NO 2119 CONNECTION TEL 5039686061 SUBADDRESS CONNECTION ID ST. TIME 09/29 11:38 USAGE T 00'17 PGS. SENT 1 RESULT OK CITY OF TIGARD NOTICE OF SPECIAL CITY COUNCIL MEETING Please forward to: ❑ Barbara Sherman, Newsroom, Tigard Times (Fax No. 503-620-3433) ❑ Lee Douglas, Regal Courier, (Fax No. 503-968-7397) ❑ Emily Tsao, The Oregonian, Metro SW (Fax No. 503-968-6061) October 7, 2003 6 p.m. Tigard City Hall 13125 SW Hall Blvd Tigard, Oregon Notice is hereby given that a meeting is planned between the Tigard City Council and the Washington County Board of Commissioners. Meeting topics will include: DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD : ■ Background Information ■ Communication Plan - Draft ■ Status of Parks System Development Charges • Annexation Plan ■ Review Calendar - Steps between now and December 2 and Beyond • Tigard Planning Staff Why the present effort does not Include the two new Urban Growth Boundary areas adjacent to the City of Tigard? ■ Other Iccnas of Mwrivii rr%nram CITY OF TIGARD NOTICE OF SPECIAL CITY COUNCIL MEETING Please forward to: ❑ Barbara Sherman, Newsroom, Tigard Times (Fax No. 503-620-3433) ❑ Lee Douglas, Regal Courier, (Fax No. 503-968-7397) ❑ Emily Tsao, The Oregonian, Metro SW (Fax No. 503-968-6061) October 7, 2003 6 p.m. Tigard City Hall- 13125 SW Hall Blvd Tigard, Oregon Notice is hereby given that a meeting is planned between the Tigard City Council and the Washington County Board of Commissioners. Meeting topics will include: DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD : • Background Information ■ Communication Plan - Draft ■ Status of Parks System Development Charges ■ Annexation Plan ■ Review Calendar - Steps between now and December 2 and Beyond ■ Tigard Planning Staff: Why the present effort does not include the two new Urban Growth Boundary areas adjacent to the City of Tigard? 09/2R/2003 11:37 FAX 5036847297 City of Tigard 121001 ..e o. 1 L`AV cnganA7907 city nY Tleard 16001 TX REPORT TRANSMISSION OK TX/RX NO 2121 CONNECTION TEL 5039687397 SUBADDRESS CONNECTION ID Regal Courier ST. TIME 09/29 12:11 USAGE T 00'45 PGS. SENT 1 RESULT OK CITY OF TIGARD NOTICE OF SPECIAL CITY COUNCIL MEETING Please forward to: ❑ Barbara Sherman, Newsroom, Tigard Times (Fax No. 503-620-3433) ❑ Lee Douglas, Regal Courier, (Fax No. 503-968-7397) ❑ Emily Tsao, The Oregonian, Metro SW (Fax No. 503-968-6061) October 7, 2003 - 6 p.m. Tigard City Hall 13125 SW Hall Blvd Tigard, Oregon Notice Is hereby given that a meeting is planned between the Tigard City Council and the Washington County Board of Commissioners. Meeting topics will include: DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD : ■ Background Information Communication Plan - Draft ■ Status of Parks System Development Charges ■ Annexation Plan ■ Review Calendar - Steps between now and December 2 and Beyond ■ Tigard Planning Staff. Why the present effort does not include the two new Urban Growth Boundary areas adjacent to the City of Tigard? ■ Other Issues of Mutual Concern F ARDCITY COUNCIL PECIAL MEETING r 7, 2003 6:00-pm. IGARD CITY HALL 125 SW HALL BLVD GARD, OR 97223 CITY OF TIGARD OREGON PUBLIC NOTICE: Assistive Listening Devices are available for persons with impaired hearing and should be scheduled for Council meetings by noon on the Monday prior to the Council meeting. Please call 503-639-4171, ext. 2410 (voice) or 503-684-2772 (TDD - Telecommunications Devices for the Deaf). Upon request, the City will also endeavor to arrange for the following services: • Qualified sign language interpreters for persons with speech or hearing impairments; and • Qualified bilingual interpreters. Since these services must be scheduled with outside service providers, it is important to allow as much lead time as possible. Please notify the City of your need by 5:00 p.m. on the Thursday preceding the meeting by calling: 503-639-4171, ext. 2410 (voice) or 503- 684-2772 (TDD - Telecommunications Devices for the Deaf). SEE ATTACHED AGENDA COUNCIL AGENDA -OCTOBER 7, 2003 page 1 AGENDA SPECIAL TIGARD CITY COUNCIL MEETING WITH WASHINGTON COUNTY BOARD OF COMMISSIONERS October 7, 2003 - 6 P.M. 1. SPECIAL MEETING 1.1 Call to Order - City Council a County Board of Commissioners 1.2 Roil Call 1.3 Pledge of Allegiance 2. DISCUSSION ON POTENTIAL ANNEXATION OF THE BULL MOUNTAIN AREA TO THE CITY OF TIGARD : • Background Information ■ Communication Plan - Draft ■ Status of Parks System Development Charges ■ Annexation Plan ■ Review Calendar - Steps between now and December 2 and Beyond ■ Tigard Planning Staff: Why the present effort does not Include the two new Urban Growth Boundary areas adjacent to the City of Tigard? ■ Other Issues of Mutual Concern 3. ADJOURNMENT I:\AD M\CATHY\CCA\2003\031007. DOC COUNCIL AGENDA - OCTOBER 7, 2003 page 2 Special Meeting - Joint Tigard City Council and Washington County Board of Commissioners Meeting July 29, 2003 Attendees Name Represent,-,; 1. Mayor Jim Griffith City of Tigard 2. Councilor Craig Dirksen City of Tigard 3. Councilor Brian Moore City of Tigard 4. Councilor Nick Wilson City of Tigard 5. City Manager Bill Monahan City of Tigard 6. City Recorder Cathy Wheatley City of Tigard 7. Community Development Director Jim Hendryx City of Tigard 8. Planning Manager Barbara Shields City of Tigard 9. Assistant Planner Beth St. Amand City of Tigard 10. Chair Tom Brian Washington County 11. Commissioner Andy Duyck Washington County 12. Commissioner John Leeper Washington County 13. Commissioner Roy Rogers Washington County 14. Commissioner Dick Schouten Washington County 15. County Administrator Charlie Cameron Washington County 16. Sr. Deputy County Administrator Ellen Cooper Washington County 17. Planning Manager Brent Curtis Washington County 18. Program Educator Anne Madden Washington County 19. Senior Planner Joanne Rice Washington County 20. Conveyance System Dept. Director Bob Cruz Clean Water Services I:\ADM\CATHY\CCM\2003\030729 ROLL CALL.DOC August 26_2003 WASHINGTON COUNTY OREGON Washington County Local Government Chief Elected and Appointed Officials: Many of you have asked for a summary of the County's current position with regard to implementation of our SB 122 Urban Services Planning process. There are many policy documents and public meeting minutes that, in total, detail the County's position with regard to urban services, but no such single summary exists. Accordingly, we are pleased to provide such a document in hopes it contributes to the progress we have mutually made toward this important endeavor. For a number of years, this Board of County Commissioners and previous Boards have worked with the cities and service districts of Washington County to determine the optimum arrangement of urban service provision in the urban unincorporated area. We mutually agree that cities (in concert with special district partners) are the best providers of municipal services over the long term. That policy has been a part of the County's approach since 1986. Your leadership and cooperation in this effort has been invaluable in the tremendous achievements we have all made through the long SB 122 process. We now find ourselves collectively on the brink of not only establishing the optimum arrangement of services, but also taking well-considered steps to implement the optimum arrangement of urban service providers. We believe the evolving public sentiment, the emerging issues and the sheer magnitude of investment we have already made in this process require us to move quickly to conclude these important decisions through the adoption of a series of Urban Service Agreements and implementing plans and actions. Accordingly we also believe it is imperative we collectively initiate the preparation of an Annexation Plan(s) to implement adopted Urban Service Agreements. Our urgency in moving to completion of the SB 122 process is prompted not only by our eagerness to bring to completion the long-awaited urban service agreements but also by a growing uncertainty about urban service provision within our unincorporated communities. Residents are asking: "What's next?" Our unincorporated residents have, through the recent years, become increasingly aware of-and in many, many cases accepting of-the inevitability that cities (and their partners) will eventually be the chief municipal service providers for the urban unincorporated area. However, beyond the SB 122 process, some key questions remain for our unincorporated communities. One, we have individually and collectively heard from some constituents voicing concern over "cherry- stem" annexations. While we understand this approach is viewed by some cities as an interim solution awaiting a more comprehensive strategy, absent a clear replacement solution, the focus narrows to the short-term approach. We are now pleased that we can move on and abandon "cherry stem" annexations in favor of a more comprehensive approach. Second, County unincorporated area constituents have voiced concern regarding planning authority over properties recently brought within the urban growth boundary by Metro. As you are aware, the planning authority over these properties rests with Washington County. We believe the ultimate planning authority for those properties appropriately lies with the designated city; however, the delegation of that authority would occur through the mutual adoption of an Urban Service Agreement and adoption of an intergovernmental agreement to initiate and pursue the preparation of an annexation plan to be offered to the electorate at a mutually determined time. Indeed, it is our intent to place a "holding" land use designation on recently added UGB lands until we can be assured that those newly added areas will be served by cities. By our mutual adoption of these agreements, both the county and the city will resolve any confusion that already exists as to "who has responsibility for what." As you know, this is our general approach with regard to newly added UGB lands and specifically our current approach in the Beaverton and Tigard areas as well. Board of County Commissioners 97124-3072 155 North First phone: (5035846-8681 M fax: (013) 846-4545 CITY OF TIGARD FACT SHEET 13125 SW Hall Boulevard Tigard, OR 97223 Contact: Beth St. Amand, (503) 639-4171 AGENDA: October 7, 2003 TOPIC: Discussion on Potential Annexation of the Bull Mountain Area to the City of Tigard BACKGROUND: In 1983, Washington County and the City of Tigard signed the Urban Planning Area Agreement (UPAA) that laid the groundwork for Bull Mountain's annexation to Tigard. The UPAA established the City's urban planning area and paved the way for the County and City to jointly serve the area. Over time and through additional agreements, Tigard has absorbed more services. The 2002 Tigard Urban Service Agreement (TUSA) clearly stated this goal, directing the City to initiate annexation of the Bull Mountain area in the near to mid-term (3-5 years). Over the last two years, the City has examined the costs and benefits of annexing Bull Mountain, based on providing urban services to the area. This joint meeting between the Board of Commissioners and Council will provide an opportunity for the Board and Council to consider the City's Communication Plan for Bull Mountain Annexation. The Plan identifies numerous communication tools such as coffee talks, community meetings, Focus on Tigard cable TV presentations, etc. The County's involvement in public involvement and outreach is critical. The County has committed to imposing a Park Systems Development Charge once the Council takes action on the Annexation Plan on December 2, 2003. The Board of County Commissioners is scheduled to consider an ordinance that would provide for Park System Development Charge collection in CORRECTION THE PRECEEDING RECORD OR DOCUMENTS HAVE BEEN REPHOTOGRAPHED TO ASSURE LEGIBILITY OR SEQUENCE AND THEIR IMAGE OR IMAGES APPEAR IMMEDIATLEY HEREAFTER. We remain optimistic that all our SB122 partners are now poised to move deliberately to initiate and finalize the work necessary to prepare an Annexation Plan(s). This will allow us to prepare a third agreement, which would have the county assign planning authority for all recently added UGB areas. We anticipate the city will take the lead in land use planning within the newly added areas and the County will lead the transportation planning effort in the impacted area. Such a plan would also provide appropriate public involvement roles and mechanisms for the individual citizens and community planning organizations of our unincorporated areas. We have come a long way in planning for long-term urban services. While it has taken time and significant resources, we are confident that the difficult work we have collectively done will serve our communities through the distant future. Annexation by cities is key. Annexation plans hold the most promise. We have now settled the responsibilities via the urban services agreements. We need to expeditiously settle the "how and when" questions while the resolve exists and the data is current. As has been the case with regard to other projects, we are eager to share staff and other resources to jointly develop these plans with our partner cities. Thanks again for your long-standing contribution toward this effort. Sincerely, Tom Brian, Chairman Dick Schouten Dist Rct 1 ' Roy Rogers District 3 i2 1 John Leeper District 2 Andy Duyck District 4 CITY OF TIGARD FACT SHEET 13125 SW Hall Boulevard Tigard, OR 97223 Contact: Beth St. Amand, (503) 639-4171 AGENDA: October 7, 2003 TOPIC: Discussion on Potential Annexation of the Bull Mountain Area to the City of Tigard BACKGROUND: In 1983, Washington County and the City of Tigard signed the Urban Planning Area Agreement (UPAA) that laid the groundwork for Bull Mountain's annexation to Tigard. The UPAA established the City's urban planning area and paved the way for the County and City to jointly serve the area. Over time and through additional agreements, Tigard has absorbed more services. The 2002 Tigard Urban Service Agreement (TUSA) clearly stated this goal, directing the City to initiate annexation of the Bull Mountain area in the near to mid-term (3-5 years). Over the last two years, the City has examined the costs and benefits of annexing Bull Mountain, based on providing urban services to the area. This joint meeting between the Board of Commissioners and Council will provide an opportunity for the Board and Council to consider the City's Communication Plan for Bull Mountain Annexation. The Plan identifies numerous communication tools such as coffee talks, community meetings, Focus on Tigard cable TV presentations, etc. The County's involvement in public involvement and outreach is critical. The County has committed to imposing a Park Systems Development Charge once the Council takes action on the Annexation Plan on December 2, 2003. The Board of County Commissioners is scheduled to consider an ordinance that would provide for Park System Development Charge collection in unincorporated Bull Mountain upon action by the City on the Annexation Plan. The current schedule has the Board considering adoption of the Ordinance on October 28, 2003. Development of an Annexation Plan and subsequent vote requires that numerous steps and procedures must be followed. An overview of all necessary steps and requirements will be discussed with the Council and Board of Commissioners. The Bull Mountain Annexation Plan does not include Urban Growth Boundary Expansion Areas 63 and 64. Tigard City Council previously discussed inclusion of these two areas, deciding to separate them from consideration of the Annexation Plan. Further, Intergovernmental Agreements would need to be amended to reflect inc!usion of these two areas. The timeline leading to a possible March election does not allow such amendments. The Bull Mountain Annexation Plan builds upon these efforts and proposes an annexation strategy. It addresses the how, when, where and who of annexation, but in essence, the plan is a proposal for transferring services and households to Tigard in an organized and efficient manner. The annexation plan is based on ORS 195.205 and 195.220, which establish the annexation plan process. ORS 195.205 allows for the annexing city and Plan Area to vote upon the plan's annexation proposal, following public hearings and Council's approval of the plan. The Board and City Council will be provided an overview of the draft Bull Mountain Annexation Plan. The Plan is scheduled for City Council review on November 4, 2003; the public hearing is scheduled on December 2, 2003. Pending Council's action, the Plan could be voted on as early as March 9, 2004. COST: N/A Bull Mountain Annexation Discussion Tigard City Council and the Washington County Board of Commissioners Oct. 7, 2003 The 20-Year Vision: A Joint Endeavor For the last 20 years, the City of Tigard and Washington County have planned together for the City's annexation of Bull Mountain The 20-Year Vision: A Joint Endeavor 1983 ■ Urban Planning Area Agreement. Includes Bull Mtn. in City planning "area of interest" ■ County develops Bull Mtn. Community Plan, assigns urban densities to area, not urban services Implement the Joint Vision Since 1983, urban development has come to Bull Mtn. With additional agreements, Tigard has provided some urban services. ■ 1997 - Intergovernmental Agreement. County transfers building services, development applications and engineering. Long-range planning still under County (1983 plan). • 2002 - TUSA agreement; confirms Tigard as ultimate provider of urban services Implement the Joint Vision 2003 - City and County choose the annexation plan as most appropriate method for Bull Mtn. Sept. 9 - City Council passes a resolution initiating an annexation plan. Dec. 2 - Public hearing for a potential election on March 9, 2004 The Annexation Plan State law ORS195 established annexation plans: ORS195 allows a simple majority vote based on the plan. Both affected areas - the territory to be annexed and the annexing city - can vote. Implement the Joint Vision 2002 - In TUSA, City agrees to "endeavor" to annex Bull Mountain; near to mid-term (3 to 5 years) The City, with the County's support, conducts its due diligence: two annexation studies and a public opinion survey of Bull Mtn. The Annexation Plan What is an Annexation Plan? It is a blueprint for annexation that clearly quantifies the future: When will annexation happen, How will it occur, What services can residents expect, How much will it cost, Why it's going to happen. The Annexation Plan Why complete an Annexation Plan? ■ It is an effective growth management tool • It requires fiscal and territorial coordination between service providers ■ Emphasizes efficiency in service provision ■ Encourages long-term master plans ■ Clarifies annexation's costs and benefits ■ Provides basis for a majority vote ■ Allows both affected areas to vote 2 The Annexation Plan Why now? Step toward completing our community: Implements 20-year old vision, and recent County-City TUSA agreement Urban development without urban levels of service • City lacks authority to manage growth outside its borders • Each incremental delay reduces available funds for parks capital needs Impending plans for adjacent UGB areas The Annexation Plan Where would the plan apply? There are 4 subareas: North, West, South and East Boundaries based on similar development patterns, subdivisions, and major roads All data rests upon these boundaries i Plan Contents To address the plan criteria, the Bull Mtn. plan is based on analytical assumptions: i A) Growth Projections - Expected # homes, people, based on R-7 zoning, Metro growth rate B) Projected Service Needs - Based on # homes, people, current standards, area conditions Costs and Benefits of Annexation The Annexation Plan Where would the plan apply? • Unincorporated Bull Mountain between Tigard City Limits and the new Urban Growth Boundary (UGB) areas, about 1,400 acres. • The plan area includes approximately 7,600 residents; over time, this area could accommodate 10,000 residents h r; Et' Plan Contents Annexation plans must comply with State Law ORS195: ♦ Pre-Requisites - Urban Services Agreement - Fiscal Impact Analysis ♦ Five Plan Criteria 3 Plan Contents e Five Plan Criteria 1. Local standards of urban service availability 2. Schedule for providing urban services 3. Timing and Sequence of Annexation 4. Effect on existing service providers 5. Long-term benefits of the annexation plan Criteria Analysis vi - 2. Schedule for proding urban services • Tigard can serve the area without a significant reduction in service to Tigard residents ■ city will assume all services upon annexation except road/street maintenance (transfer within 1 yr.) ■ city will Initiate parks planning • Police can serve entire area with a slight reduction in response time to Priority 3 calls until more staff is hired. Criteria Analysis 4. Effects on existing service providers Annexation would not significantly I impact Washington County and its i special districts, or other service i providers Tigard Water District's loss of accounts would not cause it to dissolve - it could i continue to serve remaining accounts Criteria Analysis 1. Local standards of urban service availability ■ Local standards and service providers are identified ■ Before annexation, County will need to improve standard and roads to parks SDCslity Criteria Analysis 3. Timing and Sequence • More areas = more efficiency (economy of scale) • A phased annexation provides time to obtain staff/equipment needs • To maximize funds for capital projects, annexation would occur by 2005 Criteria Analysis 5. Long-Term Benefits of the Annexation Plan • Annexations will occur regardless - the plan offers a comprehensive strategy ■ Provides certainty, efficiency, a smooth transition, more capital improvement $$1 urban services, equity, parks, unification Step toward completing our community 4 Additional Criteria An Annexation Plan must also comply with Tigard Comprehensive Plan Policies: Urbanization Standards: a) Can this area be served, and b) Without significantly reducing service levels to existing residents? Phasing Alternatives ■ Alternative 1: All Areas at One Time • T Economy of Scale • Some conditions for service delivery ■ Subarea with parkland annexed from beginning Phasing Alternatives ■ Alternative 3: Four Phases ■ Low Economy of Scale ■ No conditions for service delivery I ■ Most time to adjust to new service boundaries j ■ Subarea with parkland annexed later ■ Comprehensive Plan update delayed 1 I until 2007 Phasing Alternatives ■ The Plan analysis shows that three phasing alternatives comply with annexation plan and Comprehensive Plan criteria: • All Areas • Two Phases: North and East, South and West • Four Phases Phasing Alternatives • Alternative 2: Two Phases 1.North and East, 2. South and West • Moderate Economy of Scale ■ Some conditions for service delivery • Subarea with parkland annexed from beginning • Annex by 2005 • More time to adjust to new service boundaries Phasing Alternatives All Areas M 2 Phases 4 Phases o 5 Subarea Analysis ■ East I ■ Least populated area (4/4); requires least services upon annexation ■ Largest share of future growth due to large, undeveloped lots; maximize future funds tied to development ■ Contiguous to City boundaries ■ Ranked second in report Subarea Analysis ■ South • Most (1/4) homes and population; requires most services upon annexation ■ Limited growth remains ■ Makes a connection to UGB site 63 • Contiguous to City boundaries only on north side • Ranked highest in report Recommendations • The Plan recommended a 4- phase annexation .Decision-making bodies also need to consider other factors gained through public outreach . Focus on the three alternatives Final Policy Choice Subarea Analysis ■ North ■ Ranks 2/4 in population ■ Limited growth remains ■ City owns parkland in this area ■ Makes a connection to UGB site 64 ■ Contiguous to City boundaries ■ Would eliminate Fern St. island ■ Ranked highly in report analysis Subarea Analysis ■ West ■ Ranks 3/4 in population ■ Limited growth remains ■ Makes a connection to UGB sites 63 and 64 • Not contiquous to City boundaries ■ Ranked low in report analysis due to location A Firm Foundation 2003-04 choice 2003 Annexation Plan Bull Mtn. Services Study Assessment 2001-03 Report ;:;;Tigard ;Comprehensive Plan'.. ~,,17 SrUrban,PlanninyArea 119805 Agreement ash County'Butl Mtn o muni PI 6 UGB Areas • Almost 500 acres, 1,735 projected housing units adjacent to Bull Mtn. • In March, City Council stated that it wanted UGB areas and Bull Mtn. on separate paths • Therefore, areas could annex through double majority method by annexation petition i Discussion Points Phasing Alternatives 1. Balance economy of scale, public involvement 2. Use Criteria from Plans Nov. 44th: Choose Alternative to Finalize Plan for Hearing Dec. 2^d: Public Hearing 7 comp.leh"'.Our ommunity With the adoption of comprehensive plans over 20 years ago, Washington Coirnh/ and its partner cities recognized that neighborhood services are best provided by cities and special service districts, such as Tualatin Valley Fire and Rescue (TVF&R) and Clean Water Services (CWS). Together, the Countij and the City of Tigard have taken a number of actions to move in this direction for the Bull Mountain Community. • In 1983, the County and City signed an agreement confirming that Bull Mountain, and other unincorporated lands within Tigard's Urban Planning Area, would become part of Tigard within 20 years. • In 1984, the County adopted the Bull Mountain Community Plan which acknowledged that neighborhood services would ultimately be provided by the City of Tigard or, in the case of parks, either Tigard or a special service district. • In 1997, Tigard Beyori dTomorrozu, a~20 year community vision, was adopted. One of the goals of the Citizen Task Force is;that ':Urban Services are provided to all citizens within Tigard's urba growth boundary and recipients of services pay their share. • Also in 1997, the County contracted with the City to provide planning and building services to unincorporated areas, including Bull Mountain. , and • In 2003, the Tigard Urban Service Agreement was signed by the City, County special service districts recognizing Tigard as the appropriate provider of urban services for all residents and business owners within its boundaries as well as within adjacent unincorporated areas. • Beginning July 1, 2004, the City will provide storm and sanitary sewer services within unincorporated areas, including Bull Mountain. City of Tigard How are Bull Mountain residents already involved in City of Tigard affairs? Adopted in 1983, the City's comprehensive plan called for all of Bull Mountain to ultimately receive services from the City of Tigard. Since that time, residents of Bull Mountain have participated in the Tigard community in the following ways: • As Neighborhood Planning Organization members • As Citizen Involvement Team (CIT) facilitators • As Community Connectors - neighborhood liaisons to the City • As members of the Planning Commission • As survey respondents, Task Force members, and Action Committee members throughout the Tigard Beyond Tomorrozv vision process • As members of a number of City Task Forces, including the Transportation Funding Strategies Task Force and the Mayor's Blue Ribbon Task Force What is the status of neighborhood service delivery to Bull Mountain? Because Bull Mountain residents are involved in Tigard affairs, many people believe that Bull Mountain is already within Tigard city limits. Although a section of Bull Mountain is in Tigard, a larger portion is actually in unincorporated Washington County. Bull Mt Annexation Area wLDLN 1 k-ax SA, Elv LuMR ~CM`LI~ ! 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Bull Mt Annexation Area seai°_y p~_•?L~ ~~.e'".0^ a ~f~+ + 55ss ;....r; f FCGx. y~.dN'V wlR06U., 1 0 f r. _ 1 3°. r'N•ilxl7x}_N 3 1 q xB M i r LWO SDD 0 LDDJ:«r K L rurrcr. ® rREN.pI ~a ` c' efa[fr~ r ewo .o X, d < ptp~Or4~' GOLF .,I a. Bull Mountain residents pay to receive neighborhood services on an interim basis through County service districts and through contract services provided by the City of Tigard, including: • Street lights and street light maintenance through street lighting special districts • Road maintenance through the Urban Road Maintenance District (URMD) • Sheriff's patrol through the Enhanced Sheriff's Patrol District (ESPD) • Building and Planning services from the City of Tigard under contract with the County. If areas of Bull Mountain are annexed, the services above, along with parks, code enforcement, and traffic calming programs, would be provided by the City of Tigard and funded by city taxes. Once annexed, Bull Mountain residents would no longer pay ESPD, URMD, and street lighting district taxes to the County. After twenty years, why are we discussing annexation of Bull Mountain now? • Park Opportunities - The City would like to take advantage of remaining opportunities to locate and develop parks and green spaces on Bull Mountain. By contrast, the County is not a parks provider and there have been no parks system development changes (SDCs) levied on new developments on unincorporated Bull Mountain. As a result, only 11.68 acres of park land have been purchased in the area since 1984 and $1.2 million in potential park SCDs has been lost since 1997. The County has agreed to begin charging new development a parks fee after the City Council sets a voting date for the Bull Mountain annexation plan. These funds would be collected by the City (on behalf of the County) and could only be used to purchase or improve land for parks or open space once the area is annexed. • Other Services - The City would like to begin providing neighborhood services to at least a portion of Bull Mountain residents on July 1, 2004. The City would provide police services to members of the Bull Mountain community as it is annexed and will hire additional staff to maintain current officer-to- citizen ratios throughout the City of Tigard. In addition, the City would provide code enforcement services, road maintenance, and street lights to residents of Bull Mountain as areas are annexed. These services will be funded through property taxes, as they are for all Tigard citizens. • Equity - Residents of unincorporated Bull Mountain enjoy many of the Tigard community benefits, such as parks and the City library, without paying City property taxes. For example, all county property owners pay for library services through the Washington County Cooperative Library Services (WCCLS) levy. However, the City of Tigard receives only 53 percent of its funding for library operations from WCCLS. The remaining 47 percent comes from the City's taxpayers. • Future Neighborhood Planning - Once an annexation plan is adopted, the City of Tigard will involve the citizens of Bull Mountain together with the whole community in updating the community plan to shape the future of Bull Mountain. The plan will address growth management and future infrastructure improvements. It will include the new urban growth boundary expansion areas on the west side of Bull Mountain. How these areas develop will have an impact on the whole Tigard community, particularly on the residents of Bull Mountain. :lat is the annexation plan? At Its September 9, 2003 meeting, the Tigard City Council passed a resolution to initiate the development of an Annexation Plan for the possible annexation of unincorporated Bull Mountain. Tl'.:.e Plan is a comprehensive approach to annexation, identifying: The timing and sequence of annexing the area. The annexation plan could propose that the annexation of Bull Mountain be phased over a few years or all at once. * The schedule for providing (urban) neighborhood services; what services will be provided and when. • The effects annexation would have on existing service providers. • The long-term benefits of annexation to Bull Mountain residents, existing city residents, and the service providers (the City, County, and special districts). How would the annexation of Bull Mountain affect my neighborhood services? Residents of Bull Mountain would receive enhanced neighborhood services including increased law enforcement, park services, additional road maintenance services, and enhanced code enforcement. They would also gain a voice in local policy decisions through five elected officials, more opportunities to serve on City advisory committees, the ability to run for City Council, and the chance to participate as equals in the City's planning process for the expanded urban growth areas. Existing Tigard residents would receive better coordinated infrastructure planning and improvements, including parks, sewers, and roads, as well as consistent standards for development and code enforcement. In addition, newly annexed property owners would contribute to the full range of City services including parks, the local share of library operations and the new library building bond. How would the annexation of Bull Mountain affect my pocketbook? For enhanced neighborhood services, residents of Bull Mountain would pay a net increase of $1.6259 per $1,000 of assessed property value. This is after the rates for the Enhanced Sheriff's Patrol District, Urban Road Maintenance District, and individual annual street lighting district assessments (averaging $35440 per year) have been subtracted. 1 $1.6259 $35 $371/year or $31/month Home with NOTE: The assessed property value is not the same as market assessed value of value. Consult your tax hill to obtain your assessed value and $250,000 the current street lighting district assessment. Current Tigard residents would share with Bull Mountain residents the cost of providing the current level of City services. What impact would annexation have on density and zoning? The Bull Mountain Community Plan, developed by Washington County with input from the Citizen Participation Organization (CPO), and adopted in 1983, assigned the current zoning designations for property on Bull Mountain. As has been the case for the last 20 years, changes in zoning designations on individual properties would only be made after a public hearing process. Would annexation of Bull Mountain change school district boundaries? No, the school district boundaries would not change. Any change in local school attendance areas would continue to be decided by the appropriate school district. What is the timeline? An annexation plan will be completed by mid October for City Council review. Once the annexation plan draft is accepted by City Council, the public will have opportunities to review and comment on it during coffee talks, a community meeting, and a public hearing scheduled for December 2, 2003. The residents of both Bull Mountain and Tigard will then have an opportunity to vote on the plan in 2004. Who is eligible to vote on the annexation plan? Registered voters on Bull Mountain and in the City of Tigard are eligible to vote since the whole community would be affected. How can I learn more and share my thoughts? Opportunities to provide input on the annexation plan include participating in coffee talks and/or a community meeting, sending email to BullMountainC&d.tigard.or.us, calling the 24-hour phone line (503-718-2799), or writing to Barbara Shields, Planning Manager, 13125 SW Hall Blvd., Tigard, Oregon 97223. A public hearing on the Annexation Plan is scheduled for December 2. AGENDA ITEM # 2 FOR AGENDA OF Oct. 7, 2003 C'I'1 Y OI- TIGARD, OREGON COUNCIL AGENDA ITEM SUMMARY ISSUF/A6 FN DA'1'1'1 LF I_)_iscusswn on votentlar A1111CM111011 ►1~~ ~j~~~~ ••~•••••u• • - - - ~~/J In/ • 1 ~ CITY MGR OK ~C'V/ V►~ PREPARED 131':_L3r~l.i st._nin,iiidDEPT MEAD OK ISStll? 131-FORE THE COUNCIL Joint meeting with the Washington C'ount}'Board of C'onlnlissioners and Tigard City Council to continue discussion of the potential annexation of 1iu11 Mountain to the City of Tigard. STAFF RFC0MMF.NDATION Provide direction on proceeding with action on the Bull Mountain Annexation Plan. This will include public outreach in preparation of the November 4,'_11113 Council study session on the Annexation Plan. INI:OItMATION SUMMARY In 1993, Washington C'ounly and the ('it), of" ligard signed the Urban Planning Area Agreement (UPAA) that laid the groundwork fi)r Bull Maunlain's annexation to Tigard. The UPAA established the City's urban planning area and paved the way flor the ('aunty and City to jointly serve the area. Over time and through additional agreements, Tigard has absorbed more services. The 2002 "Tigard Urban Service Agreement (TUSA) clearly stated this goal, directing the City to initiate annexation of the Bull Mountain area in the near to mid-terns (3-5 years). Over the last two years, the City has examined the costs and benefits ofannexing Bull Mountain, based on providing urban services to the area. This joint meeting between the Board of Commissioners and Council will provide an opportunity for the Board and Council to consider the City's Communication Plan for Bull Mountain Annexation. The Plan identifies numerous communication tools such as coffee talks, community meetings, Focus on Tigard cable TV presentations, etc. The County's involvement in public involvement and outreach is critical. The Plan is attached (Exhibit A). The County has committed to imposing a Park Systems Development Charge once the Council takes action on the Annexation Plan. On October 7"', the 13oard of County Commissioners is scheduled to consider an ordinance that would provide 16:- Park System Development Charge collection in unincorporated Bull Mountain upon action by the City on the Annexation Plan. The current schedule has the Board considering adoption of the Ordinance on October 29, 2003. Development of an Annexation Plan and subsequent vote requires that numerous steps and procedures must be followed. An overview of all necessary steps and requirements will be discussed with the Council and Board of Commissioners. The calendar is attached (Exhibit F). The Bull Mountain Annexation Plan does not include UrbaGrowth Boundary Expansion Areas 63 and 64. Tigard from consideration o f he City Council previously discussed inclusion of these two areas, Annexation Plan. Further, Intergovernmental Agreements on does not to be such amended to r amendmeneflect inclusion of these two areas. The timeline leading to a possible March The Bull Mountain Annexation Plan builds upon these efforts nd proposes s an a al fortio transferrn serv It adrand the how, when, where and who of annexation, but in essence, plan is 05 and households to Tigard in an organized and efficient nl`i 195.205 allows for the annexing on yOan Plan2Area to 195.220, which establish the annexation plan process. ORS Counci val of plan. vote upon the plan's annexation proposal, following p obltheldraftldulllMo mtiiinlAnnepa lion Plan.eThe Plan se Board and City Council will be provided an overview scheduled for City Council review on November 4, 2003; the public March hearing is the u led on Dec anon P1 2003. Pending Council's action, the Plan could be voted on as early draft is attached (Exhibit E-1). OTHER ALTLRNATIVES CONSIDERED N/A VISION TASK FORCE. GOAL AND ACTION COMMITTEE STRATEGY al #2 - Urban services are provided to all citizens within Tigard's urban G o Growth and Growth Management, growth boundary and recipients of services pay their share. ATTACIIMENT LIST mo from Jim Hendryx dated September 23, 2003, "Bull Mountain Annexation Plan Update" M Attachment 1: e Exhibit A: B Communications Plan "Completing our Community" : Exhibit Exhibit C: "Completing our Community Q & A Parks" " Exhibit C-1: "Completing our Community Q & A Roads Bill Monahan dated September 12, 2003 to Ellen Cooper regarding Parks Systems Exhibit D: Letter from Development Charges - Bull Mountain Memo from Jim Hendryx dated September 26, 2003, "Discussion of Bull Mountain Annexation Exhibit E: Plan Alternatives Exhibit E-1: Exhibit F: Annexation Plan Draft Bull Mountain Calendar - October 2003 through March 2004 t materials - update on Urban Growth Boundary Expansion Scope k Exhibit G: e March 18, 2003 Council pac H and Process Council Meeting Minutes from March 18, 2003 Cit : Exhibit y FISCAL NOTES N/A I:\LRPLN\beth\Council\AiS 10 7 03.doc Attachment 1 CITY OF TIGARD Coni n ninny Development Shaping A Better Coinntunit" MEMORANDUM CITY OF TIGARD TO: City Council ~ ~<d Community Development Director FROM. Jim Hendryx, DATE: September 23, 2003 SUBJECT: Bull Mountain Annexation Plan Update Background signed the Urban Planning Area Agreement In 1983, Washington County an the City of (UPAA) that laid the groundwork for Bull Moungainds annexation to Tigard The UPAA established erve the the City's urban planning area and paved the T'yafor the County and City to rd has absorbed more servicels.sThe 2002 area. Over time and through additional agreements, Tigard Urban Service Agreement (TUSA) clearly stated annexation tas a he City goal, with the Bed the has exam Mountain area in the mid-term (3-5 years). Over the last two years, costs and benefits of annexing Bull Mountain, based on providing urban services to the area. of a At its September 9, 2003 meeting, Council passed d a resolution hearing on Dtecembep2, 2003~and an Annexation Plan for Bull Mountain, scheduling a public possible election for March 9, 2004. Communications Plan The Communications Plan for the Bull Mountain Annexation Plan (Exhibit A) identifies the various for communication tools, including Coffee Talks, community meetings, Connectors, C'tyscape artiacles~pressre eases, questions and comments, City web site, /or brochures, Focus on Tigard, lobby res dentsv A calendar ayof key dates s atta hed (Edxhibit F). letters to newly annexed Bull Mountain hone B Annexation correspondence, As noted in the Communications Plan, have een steps bo thet taken Plan. The Mountain messages, e-mails, and general questions being ed and complete record, which will include both Annexation Plan discussions proceed developThe var ous be provided to Council and the public as questions and answers that come up during the coffee talks, open houses, and from e-mails, 1:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Attachment l.doc Attachment 1 correspondence, etc., will help form background information for Council and the public. This information will be posted on the web page and used in displays, brochures, etc. To date, three a-mails have been received concerning the Annexation Plan. Staff is in the process of responding individually to the e-mails. (Additionally, the questions and answers will help the public information process that is currently under development, by providing information on the most commonly raised questions.) In general, questions have focused on service delivery, parks and open space, development activity, timing, and need for annexation. Weekly updates will be provided to Council on the number of phone messages, e-mails, coffee talks attended, etc. This will keep Council informed about the volume and nature of public inquiries. Included in this packet is an exhibit which provides initial background information and questions and answers concerning "Completing our Community" (Exhibit B). This material has been used in the Cityscape that has been published. Also included is a Q & A on parks (Exhibit C) and Q & A on roads (Exhibit C-1) . This is being provided as an example of materials being developed for the Bull Mountain Annexation Plan public outreach effort. Washington County is assistingq in preparing these informational packets. Samples will be presented at the meeting on October 7t . Status of Park System Development Charges The County has committed to imposing a Park Systems Development Charge once the Council takes action on the Annexation Plan. On October 7th, the Board of County Commissioners is scheduled to consider an ordinance that would provide for Park System Development Charge collection in unincorporated Bull Mountain upon action by the City on the Annexation Plan. Following is an update on Parks System Development Charges for the Bull Mountain area: From the Washington County staff report for the September 16, 2003 Hearing on Ordinance 614, Washington County and Tigard previously agreed the county would adopt a park system development charge (SDC) for the unincorporated areas of Bull Mountain that would be applicable to new development prior to annexation to the city through a voter approved annexation plan. Exhibit 7 (Park System Development Charge) of the "Urban Services Intergovernmental Agreement Between City of Tigard and Washington County" states: "'If the City undertakes the preparation of an Annexation Plan for the Bull Mtn. area, which the voters approve, the County shall allow the City to collect a Park System Development Charge (SDC) for new development for the period between the approval date of the Annexation Plan and the effr Jve date of the annexation. The initial SDC shall be the City's current rate at the time this provision is implemented, and may be adjusted according to the City's procedures for changes to the SDC. To the extent practicable, funds collected within the Bull Mtn. area shall be expended within the area.' "In order to collect a park SDC for new development in the unincorporated areas of Bull Mountain, the county is required to adopt a park SDC. So that the county may adopt a park SDC, the county must add an implementing strategy to the Washington County Comprehensive Framework Plan for the Urban Area to enable the adoption of a park SDC. Tigard has requested that the County's park SDC for the Bull Mountain area be in effect shortly after the city adopts the annexation plan. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Attachment l.doc Attachment 1 "So that the county can proceed with preparing a park SDC ordinance for Board consideration, staff recommends amending Ordinance No. 614 to include the necessary implementing strategy in the Comprehensive Plan. Once this strategy is in place, staff may then prepare and file an ordinance for the creation of the park SDC...." Attached is a letter from Bill Monahan to Ellen Cooper, Assistant County Administrator, dated September 12, 2003, providing a quarterly update on the loss of Parks SDC money (Exhibit D). Draft Bull Mountain Annexation Plan An Annexation Plan, as outlined by State Statute, provides a method for a committee to consider annexation. In considering the Bull Mountain Annexation Plan, Council has latitude on how it may proceed. Exhibit E outlines the alternatives that Council can consider. The Bull Mountain Annexation Plan is found as Exhibit E-1. The Bull Mountain Annexation Plan builds upon these efforts and proposes an annexation strategy. It addresses the how, when, where and who of annexation, but in essence, the plan is a proposal for transferring services and households to Tigard in an organized and efficient manner. The annexation plan is based on ORS 195.205 and 195.220, which establish the annexation plan process. ORS195.205 allows for the annexing city and Plan Area to vote upon the plan's annexation proposal, following public hearings and Council's approval of the plan. Calendar of Key Dates The Communications Plan for the Bull Mountain Annexation Plan identifies numerous communication methods that will be used for the Annexation Plan. Dates and locations for coffee talks, open houses, etc., are noted in Exhibit F. The City Council and Board of Commissioners need to determine who will be attending these key meetings. Urban Growth Boundary Expansion Areas 63 and 64 In March 2003, the Tigard City Council discussed the relationship between the ongoing Bull Mountain annexation study and the UGB expansion program (Exhibit G). As a result of this discussion, the Council made a determination that the Bull Mountain Annexation Plan and the UGB expansion areas should proceed on "separate paths" (Exhibit H). I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Attachment l.doc EXHIBIT "A" Communications Plan for Bull Mountain Annexation Goal: To ensure all stakeholders are informed about the issues and process involved in an annexation of the unincorporated Bull Mountain area. Comply with required notification requirements for annexation public hearings. Stakeholders: Tigard residents Bull Mountain residents Tigard staff (all departments) Tigard Council and Planning Commission Washington County Staff County Commissioners Communication Plan Key Themes: 1. For over 20 years, the City of Tigard and Washington County have recognized that unincorporated Bull Mountain and its citizens would be best served by the City of Tigard because when services are developed and delivered locally, they tend to be more responsive to community needs. 2. Residents in the Bull Mountain area have historically received many of the benefits of being part of the Tigard Community, such as participating in the visioning process, accessing Tigard library and parks, participating in task forces and in development code and comprehensive plan development. 3. Studies have demonstrated that in order to best serve the unincorporated Bull Mountain area, an annexation, sooner rather than later, is necessary. For example, the ability to provide for parks diminishes over time as land is developed, land costs increase, and funding mechanisms for new parks (SDC's) are reduced. 4. Tigard residents should have a say in whether this area is brought into the City of Tigard because they are part of the community and should have input on how the community grows. 5. An annexation plan is the most effective and efficient way to determine the issue of annexation of the Bull Mountain area because it is a comprehensive method of annexation that allows both the residents in the area to be annexed and the residents of the local jurisdiction to determine the issue. It will establish a timing and sequence for annexation, identify how and when services will be delivered, identify the effects on existing service providers and the long term benefits for all stakeholders. 6. Knowledge and involvement of staff from all departments, the City Council, Washington County staff, and County Commissioners are important to make sure accurate information is conveyed to the Tigard and Bull Mountain citizens. Key communication milestones and outreach strategies: September 9th - Council considers resolution to initiate annexation plan. Outreach strategies used prior to milestone: Development of communication outreach plan. Development of key information pieces. October 7th - Annexation plan presented at joint Council and County Board meeting. Outreach strategies used prior to milestone: Q&A Hotline, Cityscape article, Community Connectors, press releases, web site, informational brochure, displays, traveling display/information, Focus on Tigard presentation. December 2nd - Public hearing on whether to place annexation plan on the ballot and Council considers Ordinance to place annexation plan on the ballot Outreach strategies used prior to milestone: Coffee talks with Bull Mountain residents and other stakeholders, Q&A Hotline, Cityscape article, Community Connectors, cable presentation (Focus on Tigard), press releases, web site, displays, public hearing notice as required by law, traveling display/information to service clubs, community groups and civic groups. March 9th 2004- Election on annexation plan. Outreach strategies used prior to milestone: Coffee Talks with other stakeholders, Q&A Hotline, Cityscape article, Community Connectors, Cable presentation, press releases, web site, informational brochure, flyers, displays, traveling display/information to service clubs, community groups and civic groups. Outreach strategies used after milestone: Press release, web site, if annexation plan passes - welcome packets and/or informational letters mailed to all Bull Mountain residents. 2 Outreach Strategy Details: Coffee Talks Council will hold talks with small groups of interested individuals (Bull Mountain residents, Tigard residents and other stakeholders) at locations throughout the City to answer questions and convey accurate information about the issues surrounding a possible annexation. Timeframe: Initiation of annexation plan development to election (March 2004) Staff involvement: (Bill and Jim) City staff will attend the Coffee Talks to support Council, however Council ri lembers will facilitate the discussions. Staff (Jerree) will schedule the Coffee Talks. Q&A Hotline A "hotline" will be set up for people to call with questions related to the annexation plan. Timeframe: Initiation of annexation plan development to election (March 2004) Staff involvement: (Jerree, Julia, Duane) City staff will develop and maintain the hotline. Web site A page dedicated to accurate and timely information will be developed and maintained. Will include important meeting dates and dates of additional public outreach elements. Also included on the website will be a link to an e-mail for questions. Timeframe: Initiation of annexation plan development to election (March 2004) Staff involvement: (Julia, Duane) City staff will develop and maintain the web site. Print media The following resources will be used to convey information on a larger scale: Cityscape - regular updates (Julia, Duane) Press releases - bi-monthly updates (Julia, Duane) Community Connectors - monthly updates (Julia, Duane) Brochures - after annexation plan is initiated (September) and after Council decides whether to place it on the ballot (December) explaining facts and details. (Julia, Duane) Cable TVTV Focus on Tigard segments will be taped to provide information and process updates at key intervals. It is anticipated that a segment will be provided in October to discuss the general concepts and the public outreach plans, in November once the annexation plan 3 is released and in January prior to a March election (after Council hearing to place annexation plan on the ballot). In addition, update notices of key meetings will be provided at every Focus on Tigard taping. Timeframe: mber mid Focus on Tigard segments anticipated for early October, Tigard taping. January. Also brief monthly updates provided at every Staff Involvement: (Julia for Oct. & Nov.; Duan od c'+an.)Focus on Tigard city staff will be responsible for coordinating (the information. segments. Council will be involved in presenting Lobby displays in the lobby will be provided that has key facts, messages, maps, Informational display etc. Timeframe: From initiation of annexation plan through election Staff involvement: (Julia, Duane) City staff will develop the display and ensure that updates (if needed) are provided. Manager) will Traveling display/information A team of people (most likely the City Manag h as tthe(Rotary, Chamber of Commerce, present information at civic organizations people on the process, the issues and the etc., and department meetingo~able display with key facts, maps, etc. facts. It will also include a p Timeframe: Periodically from initiation though election a }y J t9 W Staff involvement: (Julia, Duane) City staff will prepare basic information and members of the team will take turns presenting the information. y Welcome packets and/or informational letters s to all Bull Mountain residents after election informing them of when their Direct mailing important phone numbers and effective date will be and what services they can expect, contacts. If sequenced annexation is part of the anne n xation plan, additional welcome packets will be mailed when each area's annexatio becomes effective. Timeframe: Within 1 month of election, after votes are certified. if before each area is officially in the City. part of the plan, mailings will also be sent Staff involvement: (Julia, Duane) staff will prepare packets and informational letters. Welcome packet letters City will come from the Mayor. 4 EXHIBIT "B" S i vu,Pi th e' ad a V"M of US, comp rej.e4uu ve, pla vv aver 2 0 yeark a10-, Wa4h,i.~O v Cau~nty avid- US-pa tlner ca-W-k ha4ve r 6wX n~h,o c servtcek arel bey provcde dl by c~. w-4, a.n& specs, serv%cPi d v~tru , sujv a%7 ctcaa L*v Valley Fwe- a*'& Re4C44 (7WEiR) a,ti&CL,a,vvWater Serv%cek (CWS). ro f ether, th& Co uy a,n& the, C i ty of- ri.gard, have, take v a, nc unber of aCrLonk to- w,,"e' i ni th y d 64,ect-W*v far th.Pi 13 alb Mau.ntai'vv Y- > In 1983, the County and City signed an agreement confirming that Bull Mountain, and other unincorporated lands within Tigard's Urban Planning Area, would be part of Tigard within 20 years > In 1984 the County adopted the Bull Mountain Community Plan acknowledging that neighborhood services would ultimately be provided by the City of Tigard or, in the case of parks, either Tigard or a special service district. > In 1997, Tigard Beyond Tomorrow, a 20 year community vision was adopted. One of the goals of the Citizens Task Force is that "Urban Services are provided to all citizens within Tigard's urban growth boundary and recipients of services pay their share." > In 1997, the County contracted with the City to provide planning and building services unincorporated areas, including Bull Mountain. > In 2003, the Tigard Urban Service Agreement was signed by the City, County, and special serve districts recognizing Tigard as the appropriate provider of urban services for all residents and business owners within its boundaries and to adjacent unincorporated areas to meet state law. > Beginning July 1, 2004 the City, through an intergovernmental agreement with CWS will provide storm and sanitary sewer services within the unincorporated areas, including Bull Mountain. Q: ff ow arel3 uW M awvW"ad w r"aZVXS- &nvo4ve d/ LYv C ay of r;,g.a,rcL affVLrk? .T'h& c c ty's- cot p rehen live, pl avv adaptp,& C*V 19 8 3 reco"i e cl- thataWof3uWMovAita wwoul&uX, tnn~eLy recewe'Servicek frotw the l Cxy of rtc x. C& S i Yw& thenv r"6d"-tk of a "W Mau ntm W have., pav'Cu.ipat-e& a,S,, aL Alb rS- of the, rigor rd, y: ■ As Neighborhood Planning Organization members ■ As Citizen Involvement Team (CIT) facilitators ■ As Community Connectors - neighborhood liaisons to the City ■ On the Planning Commission ■ In the „Tigard Beyond Tomorrow" vision process as survey respondents, Task Force members, and Action Committee members • Serving on City Task Forces (Transportation Funding Strategies Task Force, Mayor's Blue Ribbon Task Force) ■ Enjoying City parks and libraries without paying City taxes Because Bull Mountain residents are already involved in Tigard affairs, many people believe that Bull Mountain is already in Tigard. Some of Bull Mountain is in Tigard; however a larger portion is actually in unincorporated Washington County. Residents in unincorporated Bull Mountain do not receive most City services. They are assessed additional fees for special service districts that provide urban levels of services forhere there the area light maintenan (road maintenance, additional Sheriffs shows patrol, are street lights.) Below is a map that annexation. (%N~ map 7) to B ~clL es dz&Nery W hat's t~ of n,e~,0hb°Yho0& servic Mauwtaiw7 B"W MM*-Xai4v r"U 'per, to- receuvPi ovv aav i intPnw bases th.rouo4v Couity sP'~ LC& d vstr mss' ancL ti wcag contract- servLcew provcde& by the- citY of 'M9c+.wd:' ➢ Street Lights through street lighting special districts ➢ Road maintenance through the Urban Road Maintenance District (URMD) ➢ Sheriff's patrol through the Enhanced Sheriff's Patrol District (ESPD) ➢ Building and Planning services from the City of Tigard under contract with the County. These services, as well as parks code enforcement and traff=ic calming programs, would be provided by the City of Tigard and funded by city taxes as areas on Bull Mountain annex into the City. Once annexed, Bull Mountain residents would no longer pay ESPD, URMD and street lighting district taxes to the County. A fte*- p~ fol- twe*ntY years-, why vo, a uW-,Xat'L0-Yv of b ua Meu nta+.rv be4lW dksc~ now 7 ■ pa**,OPP0VtU*1irLe%- The City of Tigard would like to take advantage of the remaining opportunities to locate and develop parks and open spaces on Bull Mountain while land and financial tools are still available. For instance, since 1984 only 11.68 acres of park land have been urchased on Bull Mountain. s have been charged to new development no parks system development charges unincorporated Bull Mountain. As a result, since 1997, $1.2 million of revenue to purchase and develop park land has been lost. The County has agreed to begin charging a park fee on new development (Systems Development Charge) for parks immediately after the City Council sets a date for an election on the Bull Mountain annexation plan. The funds would be collected by the City on new development and could only be used to purchase land for parks or open space once the area is annexed. 00" $erViC~- The City would like to begin providing neighborhood services to at least a portion of the residents of Bull Mountain on July 1, 2004. The City would provide police services to the Bull Mountain Community as they are annexed but must hire additional staff to maintain current officer to citizen ratios throughout the City of Tigard. In addition, the City would provide code enforcement services, road maintenance and street lights to residents of Bull Mountain as areas are annexed. These services will be funded through property taxes as they are for all Tigard citizens. ■ EqU ty- Residents of unincorporated Bull Mountain enjoy many of the benefits of being in the Tigard community, such as parks and the City library without paying City property taxes. For example, all county property owners pay for library services through the Washington County Cooperative Library Services (WCCLS) levy. The city of Tigard receives only 53% of funding for library operations from WCCLS. The remaining 47% comes from the City's taxpayers. Once an annexation plan is adopted, the City o'f`Tigard will involve the citizens of Bull Mountain together with the whole community to update the community plan to shape the future of Bull Mountain. The plan will address growth management, future infrastructure improvements and will include the new urban growth boundary expansion areas on the west side of Bull Mountain. How these areas develop will have an impact on the whole Tigard community, especially on the residents of Bull Mountain. What i,kth& sched ides? A w awvi e Y-C G0Y11 pla~1 wail Lvi cewcple-tecL by m f cL OctoUer for C sty ccepte.& by CouwvLCi,Lre i w. 0vtcep the, aM,ywxarL od v plavv a, C U Y Catwi ca, the, p u.Ir~ w al, have, aw oppowtu 41XY tO - revie-w a *l& coffune*lr 0yI,th~pla4l/. 0pp0V-tuW"~ta prO dew iNV llt 6nauc& coffee to&k, w com"uuiiry wwet"i w, e"wO*,- cv 24 hovw hcdl,Y aMCL carrespandZv 4;&. A pal, ~ heari vt 01 d v-1 a.vu~tWly plow i'k schedue& ft)-r D ecewber 2, 2003. 7-heare~~ofB1,lLMCUntai4Vav the' rep Aentk of rcWwd, w aV the vv ha~v& a.w app0rtu+1WY to- vote' 0tv the' plow %w 2004. what vk tkw avt v►&Xa "l w plavv? altU-kSe.pti *nber ga, ccty COU* a"Jeeriviy, tlwri, "d'city cav c(./ pame& a, re4Clut'w-w to- inita~ww ~ w~ P' t Of avv AnAeXCWUM P1~ f~' the'p~ U41a ,corpora.Ve bL-4,W MOw Ita v. A w A ni't p yccW O W Pl aw &k a'cQwP rehen6"ve' app raac'~'' tc- "'uWL'O'~V Lde~Lfyi*W- v The timing and sequence of annexing the area. The annexation plan could propose that the annexation of Bull Mountain be phased over a few years or all at once. ~01 The schedule for providing (urban) neighborhood services; what services will be provided and when. The effects annexation would have on existing service providers. ➢ The long term benefits of annexation; to Bull Mountain residents, existing city residents, and the service providers (city, county and special districts.) Who- &k eUV iU lei ta- vote, aw th& araW,,Y-aUW-w pla.w? Re j i4rered'vatery an. B ul/ M ott ntai4V a*Ui/ E*V the, c ity of rc ffwd' are, eUgOA - to- vote- a,,+c tiw whal& co» my n tty wot d& b& affected }(aw wauZd' taw avutie.Y~"M Of B UU M oans +v affect my R e~U~,prit~- o f B uU' M awnta,;,w w auld' rece.%vei n,e,64,01.barhood/ a e f,,,;,ce a, i ncre d 4ed , law en f-arce-ww+It, park, servwek, add4rWAall road/ Maj* ten c4ILce~ SerVWe-k, an& cad enfarcemont: Tlwy would/ alga ga4,4V a'vaice' iM' laces/Palley dzas.;,o thrcuq~v 5 elected' o{fici , mare' opportwniUiz"O - Serve' o-w city a dvo of y cam nA ttee-, and' ak eq u.a/ p a s -Uc mltk i vv tkw c%ty'~-pUa.yutti'u~'prac~- for the- expa'vi,dec7' wrbaa'v ~-s'ow~v area: I n,dV4f'aw of tkw 3 wlL M mmVa, b y area, would/ m eaavv that ,SV,yLq, T-C ai'd' re4id e ak would/ rec ai ve' better coctrd iftate,& i.nfrc~tructure'plctitirLtn~~c~.v~.c~i~provemP.v~t~, ' parka-, svwerk a,nd' raad.k, ak wel L ak ~ iV a waky~ a~u~ p ropey'ty de~vezopm~ent and/ code- e afar owvierkwmd&pay OWAr sh"e'of the, new Ul ra ry l ; ban& }(ow wo A cLthea4uiexaU0*vc f 3& V Mawvtaivvaffect mY pocacetiroolv7 For neighborhOO& servtces% residents- Of 3 "W Mo , tauvwould,pay a,netincreaseof $1.6259 per 1,000 of aw4se&property vale after they rate for ESP'D and. Ul?MD hak been, su btra cte&) wu n i,,,k their c,i'u iNcd ta. l muu aV street ' clvstric— (averagivu- $ 3 5 -$40 per yea,r). NOTE - the, m0e, a value, &k n,at the w4Ke, ak ~ and. the eo-nwW your tax b;.& to- obta4'v your ameme& current street U;ghr"ig, d &Lc— Ex-a.vvvtple - home with-aava4sewZvaUte, of $250,000 $200 w$1.6259 - $35.00 = $290.18 per yeas or about$24.19 per remualent d, w&aU sh"e, thel cast of Ex~~ of ri,~a~' p ro~,idivu~ the c,~,u-re-vtt leveL o f sQw ~ w its, 3 uZL M o-~.~.vit r",ci with, no chaNi fie, %vv their to"* W at a& "W Y a t'wiv of 3 "w m awnta.i w chan~ school, d c4crict boc~% CeW7 chaytq& A No-, the, school, district L•,ou'ndariek wouU not wy ch,a.n,je,'irv l aca t WhCOlr attencla4-LCP' area s- would covirun Uel ta- l"e' decid & by the, approprLa tPi sch.ooD ai4trict What— cotpa ct wou lcL a,rul xarL c n, have, o v de4u'ty anal, 349-m.v ? Theo LaV Mou,vitad w c y Flaw developed/ by W a4h,i nI0on, coLLnty with. input frorw the CPO a,n& adaptecL in, 19 8 3 amienecL the current 2 ~ d44 bon's" fOr property o-n, a u lL M of w~ta%n As, hak bee vv the, case for the, last 20 years-, properi',.eswaud& onlry be, mzw~ after ca,pubU:c, hea.rinj-procew What's, next Opportunirtew to-prowde, inpatawthe/ a vv e~caVwvvpla ty i.~ co eata&k a' comownay W, to- o i,c llM pt c v~1~cr.%n~cLtu a s~cL or. ws , calf to-the, 24 -hour phone, U + e, 503 718 2 799, or YYeispowu~en ce, to 3arbara, Sh%elds% Plaaul `,rub Mate, 13125 SW galLBlvd., riWs Oreg0vv97223. A pabU:ci he arC'ug, o-w A nne _at'w-w Pla w Ck for Dec . 2. EXHIBIT "C" C 04np Le tlit11q' 0 LW C r Q Fa- A Pa,r4 How many public parks are on Bull Mountain? There is one piece of property (Cache Creek) that is intended as a nature park because the purchase was funded entirely with Metro Greenspaces dollars. Does the City of Tigard's Park Master Plan address Bull Mountain? Tigard's Park Master Plan identifies the need and general location for 4 parks in the Bull Mountain area, one of which is Northview Park located at 12250 SW Northview Drive (south of Albertson's on Barrows Road). Why doesn't the City of Tigard collect Systems Development Charges (SDC's) on new development on Bull Mountain for parks? By law, the City can only collect SDC's on new development within the city limits. Can Bull Mountain residents reserve City of Tigard park facilities? Yes, but they will be charged a non-resident fee. How many parks are available for active recreation in the City of Tigard? There are 11 parks available for recreation throughout the city from small neighborhood parks to large regional parks. The newly constructed Bonita Park will be open for public use in fall 2003. The park will have a playground and basketball courts. How many acres of public open space are there in the City of Tigard? There are more than 300 acres of parks, greenways and natural areas in Tigard. What is the City of Tigard's park standard? Tigard's park standard is approximately 8 acres per 1000 residents. What is Washington County's park standard? The County does not provide local parks or have a parks standard. I:\admin\1Iz\compietingourcommunity.flyer EXHIBIT "C-1" CO-vnpLetinW O Im" COln*u"wi,'Cy Q Fa- A 2aad4 Would road maintenance be different after annexation? Yes. The City of Tigard sweeps all streets 12 times per year; the County sweeps only those streets with curb and gutter 12 times per year. The City does crack sealing every 4 years, the County every 7 years. The City does annual dust abatement; the County does not do dust abatement. The City's goal is to re-do hot plastic street markings annually: the County replaces street markings every 5 years. The City uses hot plastic for visibility on all street markings. What road improvements would be made if Bull Mountain annexed into the City of Tigard? Many roads in the area are new and will not require improvements for many years. The City has identified several roads that will need improvement; however most of the identified improvements would not be needed for 6 years or more. Is the City of Tigard's Transportation System Plan consistent with Washington County's Transportation System Plan? Yes, the City's Plan was coordinated with the County's. Bull Mountain Road and Roshak Road are identified as the main collector routes. In addition, 7 neighborhood routes are identified. Are standards for road construction the same in the City and the County? Roads built on Bull Mountain since 1997 are built to City standards which the County adopted for the Bull Mountain area. Roads built before 1997 may not meet City standards. Who is responsible for road maintenance and would that change with annexation? The County is currently responsible to maintain and improve roads in unincorporated Bull Mountain. Jurisdiction for roads would be transferred after annexation at a time identified in the annexation plan. The plan calls for roads to be transferred one year after annexation. The City of Tigard would then assume responsibility for maintenance and improvements. EXHIBIT "D" CITY OF TIGARD September 12, 2003 Ellen Cooper, Assistant County Administrator Washington County 155 N. First Avenue Hillsboro, OR 97123 Re: Parks Systems Development Charges - Bull Mountain Dear Ellen, OREGON On Tuesday evening, we discussed the status of the County's efforts to develop a Systems Development Charge (SDC) for unincorporated Bull Mountain. I mentioned to you at that time that the commitment that the City Council heard from the Board of County Commissioners was that a mechanism will be in place for collection of Parks Systems Development Charges as soon as the Tigard City Council takes a vote to place an issue on the ballot to annex Bull Mountain. The Tigard City Council is likely to take action in December of this year. In the meantime, the County has a copy of our Parks SDC methodology to use as a starting point in development of an agreement with Tigard and a mechanism to collect the fees. It is my understanding that that work is in progress and we will be working with you soon to finalize the details. Quarterly I have provided information to Charlie Cameron on the status of "lost" Systems Development Charge revenues from Bull Mountain. Please accept this letter as an update to that information. From June 1997 through June of 2003, 964 single-family and 83 multi-family dwelling unit permits were issued in Bull Mountain. We estimate that applying Tigard's Systems Development Charge to permit issuance at the time of permit generation would have yielded $1.2 million. In the first two months of this fiscal year, 55 single-family permits were issued at a potential loss of $96,085.00. The building activity for the first two months of this fiscal year is running ahead of last year. I hope this information is helpful to you as you develop the mechanism for a Systems Development Charge. Please let me know if you require additional information. Sincerely, 'I- ? Wt tam A. Monahan City Manager i:Wdmlbi11Vetters%2003\e11en cooper - sdcs.doe 13125 SW Hall Blvd., Tigard, OR 97223 (503) 639-4171 TDD (503) 684-2772 Exhibit E CITY OF TIGARD Community Development Shaping A Better Community MEMORANDUM CITY OF TIGARD TO: Mayor Griffith and City Council FROM: Jim Hendryx, Community Development Director DATE: September 26, 2003 SUBJECT: Discussion of Bull Mountain Annexation Plan Alternatives The objective of this memo is to discuss the recommendations contained in The Bull Mountain Annexation Plan in the context of the overall analytical approach presented in The Bull Mountain Public Facilities and Services Assessment Report (June 2003) and Council discussions in July 2003. Typically, annexation plans offer the option of phased, or incremental, annexations. In some instances, it may be more efficient to annex an entire area at one time. In other cases, a phased annexation allows the necessary time for service providers to hire enough staff and buy equipment. Since the annexation plan approach allows for phased annexations, a number of combinations could be developed and proposed. However, three alternatives meet the criteria established in state law and the City's Comprehensive Plan, based on data collected daring the 2003 Assessment Report. This memo makes Council aware of these additional alternatives to fully inform Council of all viable annexation approaches. Analytical Approach The Public Facilities and Services Assessment Report examined nine sequencing options to identify the combinations which allowed the City to annex and efficiently serve the unincorporated Bull Mountain area. It also studied how timing (i.e., the year of annexation) affected service costs and the availability of capital improvement funds in the Plan Area. Two evaluation factors were chosen based on Tigard Comprehensive Plan policies, which require annexations to 1) not significantly reduce service levels to the City of Tigard and 2) provide efficient service provision (no service islands or irregular boundaries). A third factor was also considered and that dealt with adjacency to the Urban Growth Boundary (UGB) expansion areas. Tigard is expected to serve these two areas. Each factor was weighted, based on the extent to which it implements those policies: 1) Financial Impact: Will this area be a financial drain on the City? Do service needs outpace tax dollars, and are there large capital improvements needed in the short term? I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit E.DOC 2) Eficiency of service provision: Is it easy to access this area, or will staff have to cross unincorporated areas to do so? Does it create islands of unincorporated areas? Is there an economy of scale'? 3) Adjacency to the new Urban Growth Boundary properties, located to the south and west of the Plan Area. Metro approved these areas in December 2002. A future City link to these areas would enable long-term planning. In summary, the analysis contained in The Public Facilities and Service Assessment Report lead to the basic conclusion that "...The more areas annexed, the higher the ranking due to an increase in efficiency. Annexing all areas at once ranked highest, due to economy of scale and its ability to support areas that ranked less highly...." This basic conclusion was further influenced by the July 2003 Council discussion on annexation, which emphasized how time can impact service. The discussions focused on how a longer annexation period could provide better service to both new and existing residents by assuring service delivery and addressing the impacts ramping up to serve the City and the annexed area. In short, the four-phase recommendation, discussed below, contained in The Bull Mountain Annexation Plan provides a proposal for transferring services and households to Tigard in an organized manner. It reflects Council's concern related to timing of each phase of annexations and the reduction in service levels. The suggested sequence is based upon the numeric ranking identified in the Public Facilities and Services Assessment Report. However, given the minor difference in the ranking score identified in the assessment report between the South, East, and North, altering the sequence would not impact delivery of services or the City's ability to serve each one of these areas. Altering the sequence of annexation would comply with the Comprehensive Plan policies. Initially starting with annexing the East, then South, North, and West would not significantly reduce service levels to the City, would provide efficient service provision, and would still provide for adjacency to the Urban Growth Boundary (UGB) expansion areas. Summary of the Plan Recommendations In order to provide City service standards to annexed residents and maintain standards to current residents, the plan proposes to annex Bull Mountain in four phases: Phase 1 -2004. Annex South. Next logical area due to location. Provides a connection to Urban Growth Boundary (UGB) expansion site 63. Phase 2 -2005. Annex East. Brings in the area that is closest in proximity to the City and the least developed. Maximizes potential financial contributions by new development toward capital improvements. Phase 3 - 2006. Annex North. Allows the City to begin developing its parkland and makes a connection to Urban Growth Boundary (UGB) expansion site 64. Phase 4 - 2007. Annex West. Final area; also has connection to Urban Growth Boundary (UGB) expansion site 64. However, there are two other alternatives for Council's consideration. These alternatives also provide organized and efficient methods of annexation, although each take a different approach to sequencing and service provision: IXDADMVERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit E.DOC Alternative 1. Annex the entire Plan Area at one time prior to 2005. This option provides the greatest efficiency due to an increased economy of scale, captures the most capital improvement dollars for future improvements, and facilitates comprehensive planning for future growth. However, an all-areas annexation depends on two conditions: 1) Initiate police hiring process prior to annexation, and 2) delay transfer of roads and streets until one year after annexation. Service delivery to existing and new residents would not be significantly lessened. If those conditions cannot be met, the annexation should be phased. Alternative 2. Two Phases: 2004 and 2005 The Public Facilities and Services Assessment Report not only ranked sequential annexations of individual areas, but combinations of areas. Drawing upon efficiency of services and economy of scale led to a two-phase annexation approach. Phase 1: Annex East and North areas in 2004. East would be included in first phase due to impending development. East has less facilities and service needs due to its limited development; it would impact Public Works (Streets) less than a more developed area like the South. North would eliminate the current island of Fern Street and provide a link to Site 64 in the UGB area, and includes City-owned parkland. City boundaries are expanded in a logical manner that does not create inefficient islands of unincorporated areas. Phase I Conditions of Annexation: • Provide all services upon annexation except road and street maintenance. • Begin hiring for police services upon approval of annexation by the voters. • Begin process to transfer roads and streets to City within 30 days after annexation effective date, and complete within one year. Start hiring and acquiring equipment for street maintenance. Begin service upon completion of transfer. • Following annexation and within the first year, Tigard would initiate capital project planning for Parks and Open Space: master planning for Cache Creek Nature Park; exploration of additional park opportunities adjacent to Cache, including the Tigard Water District reservoir property and the Clute property. Develop a playground either on Cache Creek or adjacent property. Maintenance begins once parklands are bought and developed. • Initiate long-range planning. Begin comprehensive plan to guide future growth for a united Bull Mountain and Tigard community. Phase 2: Annex South and West areas in 2005. Annexing all areas by 2005 maximizes the amount of funds available for capital improvements. It also coincides with planning for the Urban Growth Boundary (UGB) expansion areas. By dividing the annexation into phases, and delaying the most populous area (South), the streets department would have time to ramp up staff and equipment to service the entire area. In order to provide City service standards to annexed residents and maintain standards to current residents, the plan proposes the following: Phase 2 Conditions of Annexation: • Provide all services upon annexation except road and street maintenance. Begin hiring and equipment procurement for police services six months prior to annexation effective date. • Begin process to transfer roads and streets to City within 30 days after annexation effective date, and complete within one year. Begin service upon completion of transfer. I:\CDADMUERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit E.DOC Draft Bull Mountain Annexation Plan Recommendations Upon Council's direction, staff will finalize the sequencing that could occur with the Bull Mountain Annexation Plan. The Ball Mountain Annexation Plan will be revised to reflect Council's direction. As discussed above, altering the sequence of annexation would comply with the Comprehensive Plan policies. Initially starting with annexing the East, then South, North, and West would not significantly reduce service levels to the City, would provide efficient service provision, and would still provide for adjacency to the Urban Growth Boundary (UGB) expansion areas. Summary Since the annexation plan approach allows for phased annexations, a number of combinations could be developed and proposed. However, three alternatives meet the criteria established in state law and the City's Comprehensive Plan, based on data collected during the 2003 assessment report. This memo makes Council aware of these additional alternatives to frilly inform Council of all viable annexation approaches. 4 I:\CDADMVERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit E.DOC EXHIBIT E-1 THE BULL MOUNTAIN ANNEXATION PLAN T:.f CITY O~TIOAOD A STEP TOWARD COMPLETING OUR COMMUNITY CITY OF TIGARD DRAFT SEPT. 26, 2003 DRAFT 9 26 03 THE BULL M OUNTAIN ANN EXATI ON PLAN OCTOBER 2003 PRODUCED BY: THE CITY OF TIGARD IN COLLABORATION WITH WASHINGTON COUNTY CITY OF TIGARD 13125 SW HALL BLVD. TIGARD, OR 97223 503/639-4171 DRAFT 9 26 03 TABLE OF CONTENTS EXECUTIVE SUMMARY I. INTRODUCTION 1 II. ANNEXATION PLAN CRITERIA 5 A. LOCAL STANDARDS OF URBAN SERVICES 6 B. SCHEDULE FOR PROVIDING URBAN SERVICES 8 C. TIMING AND SEQUENCE OF ANNEXATION 11 D. EFFECT ON EXISTING SERVICE PROVIDERS 14 E. LONGTERM BENEFITS OF THE PLAN 17 III. ADDITIONAL REQUIREMENTS 19 IV. CONCLUSION 21 APPENDIX A. GLOSSARY APPENDIX B: DETAILED FISCAL IMPACT ANALYSIS APPENDIX C: TAX RATE TABLE APPENDIX D: TIGARD URBAN SERVICES AREA AGREEMENT, FEB. 2003 APPENDIX E: EVALUATION CRITERIA FROM ASSESSMENT REPORT TECHNICAL DOCUMENT B (AVAILABLE SEPARATELYI ■ Thee Faalities and Public Smiw Assessma Report for the Bull Ma vrtainA ma, 2003. DRAFT 9 26 03 EXECUTIVE S~ Twenty years ago, Washington County and the City of Tigard laid the groundwork for Bull Mountain's inclusion in Tigard's city limits (annexation). Although cattle and farms shared the mountain at that time, the County and City recognized that the area's inclusion within the Urban Growth Boundary would eventually lead to urban development. State land-use planning goals require the UGB to contain a 20-year supply of land, and, when conditions warrant, lands within the boundary must be available for urban uses. Washington County and Bull Mountain residents developed the 1983 Bull Mountain Community Plan, which assigned urban densities to the area but did not provide for all urban services. However, statewide planning Goal 14 directs local governments to have a plan in place to allow for an orderly and efficient transition from rural to urban uses. In 1983, the County and City signed the Urban Planning Area Agreement (UPAA). The UPAA established Bull Mountain as part of the City's planning area and paved the way for the County and Gty to jointly serve the area. At the same time, the City's long-term vision for land-use and development in Tigard (the Comprehensive Plan) encouraged the annexation of all unincorporated areas. The City acktiowledged that it should provide urban services to its own citizens - once areas require urban services, residents should receive all the benefits of citizenship, including representation. Today, Bull Mountain has grown beyond its rural roots, and become an urbanized area with streets, sidewalks, and urban service needs. Fanns have been largely replaced by subdivisions built at the same densities as adjacent Tigard neighborhoods. Urban areas need urban service providers - and cities, not counties, are best equipped to provide urban services. Over time, the needs of an urban area will outpace a non-urban provider's service capabilities. There are approximately 7,600 residents living in 2,600 homes on the mountain's 1,378 unincorporated acres. Development of the remaining land to existing zoning standards would raise the overall population to just under 10,000. This additional growth will require additional facilities and services. Without annexation, the City has limited ability to plan for, provide for, and manage growth outside its City limits to ensure that efficient and effective public facilities and services are available when needed. Annexation would allow the City to plan for growth on Bull Mountain with an updated comprehensive plan for the entire community. 'Ihe Tigard City Council established a goal in 2001 to develop an annexation policy/strategyfor unincorporated areas. From 2001-2003, the City has thoroughly examined annexation and urban service issues for Bull Mountain. 7heBu1lMwrainAmocatimA=builds upon these efforts and proposes an annexation strategy. It addresses the how, when, where and who of annexation. State law created the annexation plan process as a growth management tool for jurisdictions: the plan must address criteria related to urban service provision to the Plan Area, and is a pre- requisite for an annexation vote by the annexing city and Plan Area. DRAFT 9 26 03 Recommendation Using existing service agreements among agencies, cost-benefit analyses, and the 2003 Public Facilities and Services Assessrr& Report for the Bull Ma v=in A nu recommendations, the plan addresses all criteria set forth by state law ORS 195: the provision (how and when) of urban services, annexation's impact on existing providers, the tuning and sequence of annexation, and the plan's long-term benefits. The plan also follows Tigard Comprehensive Plan policies, which require a review to determine that services will be available to the annexed area and their provision will not significantly reduce service levels to the City of Tigard. Based on these criteria and previous research, the plan provides a proposal for transferring services and households to Tigard in an organized and efficient manner. In order to provide City service standards to annexed residents and maintain standards to current residents, the plan proposes to annex Bull Mountain in four phases: Phase 1-2004. Annex South. Next logical area due to location. Provides a connection to Urban Growth Boundary (UGB) expansion site 63. Phase 2 -2005. Annex East. Brings in the area that is closest in proximityto the City and the least developed. Maximizes potential financial contributions by new development toward capital improvements. Phase 3 - 2006. Annex North. Allows the City to begin developing its parkland and makes a connection to Urban Growth Boundary (UGB) expansion site 64. Phase 4 - 2007. Annex West. Final area; also has connection to Urban Growth Boundary (UGB) expansion site 64. It must be noted that annexations will occur in the Plan Area with or without an annexation plan. Currently, annexations occur at the owner's request, resulting in a piecemeal approach to incorporation. In contrast, The Bull Maortain A mocation Plan provides a comprehensive strategy for annexation. Long-term planning offers long-term benefits, including certainty of future incorporation, enhanced efficiency, and quantified costs and benefits - which provide certainty to Tigard residents that annexation will not impact their service levels. Financially, it captures more capital improvement dollars for parks and roads, and more funds to enhance capital facilities - such as the library and parks - currently used by both Bull Mountain and Tigard residents but paid for by Tigard residents. Bull Mountain residents would receive park services, local representation, and urban services by an urban provider who can meet the needs of a growing community. Lastly, annexation would unify the community, as both the city and Bull Mountain residents can plan together for their future, a future joined together 20 years ago. In sum, The Bull Mota=in A mnocatron Plan presents a clear and efficient approach to annex unincorporated Bull Mountain and a step toward completing our community. DRAFT 9 26 03 I. INTRODUCTION- Twenty years ago, Washington County and the City of Tigard laid the groundwork for Bull Mountain's annexation to Tigard. Although cattle and farms shared the mountain at that time, the County and City recognized that the area's inclusion within the Urban Growth Boundary would eventually lead to urban development. State land-use planning goals require the UGB to contain a 20-year supply of land, and, when conditions warrant, lands within the boundary must be available for urban uses. Washington County and Bull Mountain residents developed the 1983 Bull Mountain Community Plan, which assigned urban densities to the area but not urban services. However, state planning Goal 14 directs local governments to have a plan in place to allow for an orderly and efficient transition from rural to urban uses. In 1983, the County and City signed the Urban Planning Area Agreement (UPAA), which established Bull Mountain as part of the City's planning area and paved the way for the County and City to jointly serve the area. At the same time, the City's long-term vision for land-use and development in Tigard (the Comprehensive Plan) encouraged the annexation of all unincorporated areas. The City acknowledged that it should provide urban services to its own. citizens - once areas require urban services, residents should receive all the benefits of citizenship, including representation. Today, Bull Mountain has grown beyond its rural roots, and become an urbanized area with streets, sidewalks, and urban service needs. Over time and additional agreements, Tigard has absorbed more services toward an eventual annexation, blurring the line between County and City. However, major services remain under the Count/'s purview, as does jurisdiction. Without annexation, the City has limited ability to manage growth outside its city limits to ensure that efficient and effective public facilities and services are provided. Since 2001, when the Tigard City Council established a goal to develop an annexation policy/strategy for unincorporated areas, the City has thoroughly examined urban service issues for Bull Mountain: The Bull Maarain A mocatiaz Surly (2001), which examined the costs and benefits of annexation; a public opinion survey of Tigard and Bull Mountain residents on annexation (2002); 7hePuYxFaab= aniSmw AsscssnerRTa fa dxB0MawM=Ayaz (2003), which evaluated the factors affecting long-term service provision to Bull Mountain, including annexation. The 2003 Assessment Report demonstrated that annexation would serve citizens the most efficiently and effectively over the long-temp, providing urban levels of services to an area that has grown from a rural community to an urban neighborhood. In addition, annexation would allow the City to plan for Bull Mountain's future. Currently, unincorporated areas cannot collect parks system development charges (SDCs) from new developments or plan for parks, and the County has jurisdiction over the area's long range planning. Annexation would allow the City to plan for growth on Bull Mountain with an updated comprehensive plan for the entire community. As citizens of Tigard, Bull Mountain residents would have a say on local issues that affect their community's future. 7heBull MawrtainAmmationPlan represents a significant step toward the realization of an united Tigard and Bull Mountain community. The plan lays out a blueprint for annexation as required by state law ORS 195.205 and .220, which established the annexation plan process. T)Y IE BULL MOUNTAIN ANNEXATION PLAN - PAGE 1 DRAFT 9 26 03 It addresses the how, when, where and who of annexation, but in essence, the plan is a proposal for transferring services and households to Tigard in an organized and efficient manner. It is based upon existing service agreements among agencies and cost-benefit analyses, and addresses the following, per state law ORS195220: a) Local standards of urban service availability required as a precondition of annexation; b) The planned schedule for providing urban services to the annexed territory, c) The timing and sequence of annexation; d) The effects on existing urban services providers; e) The long term benefits of the annexation plan. The plan examines each criterion separately. Each section offers a brief explanation of the criterion and follows with text based on the City's previous research (7hePublicFadli1ia and Smics A ssessmr Rq wt for the Bull Mowrain A nu, 2003) and recent analysis produced by the City and County for this plan. Appendix A contains a glossary of planning terms used in this document. Technical Document B (available separately) contains copies of previous Bull Mountain reports. A) THE ANNEXATION PLAN AREA. BOUNDARIES The Annexation Plan applies to the unincorporated area of Bull Mountain ("Plan Area"). It is bounded on the north by Barrows Road, on the east by Tigard city limits, to the south by Beef Bend Road, and on the west by the new Urban Growth Expansion Areas (Roy Rogers Road and 150`' Ave.). (See Map 1 on page 3). The land in the Plan Area is sloped- steeply in some areas- allowing for views at higher elevations. There is no commercial or industrial zoned land. Most of the property is zoned R-7, as designated in the Bull Mountain Community Plan, a medium- density residential zone requiring minimum lots sizes of 5,000 square feet. The area consists of a combination of 1) a mix of larger undeveloped lots, 2) larger lots developed through the County under different standards, and 3) smaller lots that are built to the minimum density allowed under the current zoning regulations. Subareas and Population Estimates The Plan Area comprises 1,378 acres,' with approximately 7,600 residents living in 2,600 homes. Numbers are 2003 estimates based on Census 2000 figures and average growth rates? This is consistent with the assessment report methods, with the exception of deducting four annexations that took place from late 2001 to 2003.' Due to the area's size, it has been divided into four subareas: North, West, South and East. These subareas were developed TAle 1. 2003 Estimates Homes Population North 991 2930 West 346 982 South 1174 3259 East 167 452 Total 2678 7622 Based on census 2000/aYera a fvWh rate r Differs from the 2001 study due to four annexations: Pacific Crest, Fern Street, Thornwood, Daffodil Hill. 2 The numbers here (7,622 and 2,678) reflect 2003 projected population and deduct for annexations, differing from 7be Bull Mowuaw Study and Pubuc Fadlity and Semites Assess"V1 Report numbers. 3 Appendix A contains a full description of all adjustments. THE BULL MouNTAINANNEXAnoNPLAN - PAGE 2 11-M BULL MOUNTAIN ANNEXAMONPLAN - PAGE 3 DRAFT 9 26 03 Map 1. DRAFT 9 26 03 based on development patterns, topography, and.man-made boundaries, such as major roads. The South area has the most homes and population, with North close behind. East has the least number of homes and people (Table 1). Future Projections Future projections were estimated by calculating the number of new homes the area could potentially absorb at current zoning (R-7, or 5,000 sq. ft. lots), and taking half to allow for moderate development 4 Based on these estimates, East has the largest share of future growth, due to large, undeveloped lots (Table 2). The remaining subareas have more developed subdivisions and few vacant lots, and have limited growth remaining. The Pudic Facilities and Seruces Assasnra Report (2003) used annewtpns these numbers to approximate service needs, costs, and associated revenues. The condition and number of roads, current condition of facilities, current and future population/homes, and year of development affected each subarea's needs. The Annexation Plan analysis is based upon the 2003 report conclusions and additional refinements to the report data. 4Based on vacant or underdeveloped lots. A moderate scenario was assumed due to the uncertainty of the land market - not every owner will fully develop each vacant or underdeveloped parcel. 5 The 2003 RTW did not deduct for annexations; the change did not significantly affect this analysis. Table 2. Moderate Growth lFetimntarl rnnarity) Homes Po ulation North 1130 3331 West 496 1439 South 1317 3724 East 650 1356 Total 3593 9850 Based ao /omrula ham 200! Study; revised for that occurred since 2001. Ti-iE BULL MOUNTAIN ANNEXATION PLAN - PAGE 4 DRAFT 9 26 03 H. ANNEXATION PLAN CRITERIA In 1993 the State Legislature established the annexation plan approach to make annexation an effective growth management tool for jurisdictions. Annexation plans require fiscal and territorial coordination between service providers, encourage the creation of long-term master plans, address the economic viability of special districts, and clarify the costs and benefits of annexation.' Specifically, state law ORS195.220 requires annexation plans to include the following: a) Local standards of urban service availability required as a precondition of annexation; b) The planned schedule for providing urban services to the annexed territory, c) The timing and sequence of annexation; d) The effects on existing urban services providers; e) The long-term benefits of the annexation plan. What is an Urban Service? ORS 195 defines "urban services" as sanitary sewers, water, fire protection, parks, open space, recreation, streets, roads and mass transit. The Bull MowrainA ramation Plan considers four additional services as essential elements for an urban community. police, storm sewer, building and development services, and street light maintenance. City of Tigard Annexation Criteria The City's Community Development Code criteria for annexations are consistent with ORS195.220. The Code (Title 18) states that the decision to annex property to the Cityshall be based on 1) all services and facilities being available to the area, and with sufficient capacity to provide service; and 2) satisfying all Comprehensive Plan policies. Tigard's Comprehensive Plan policies require a review to determine that services will be available to the annexed area and their provision will not significantly reduce service levels to the City of Tigard. The City's Comprehensive Plan also encourages annexations that eliminate existing unincorporated `islands,' and discourages expansions that result in irregular boundaries. 6 From Department of Land Conservation and Development; http,www.lcd.state.or.us/Igm/pub/3annex.htm. M-1E BULL MOUNTAIN ANNEXATION PLAN - PAGE 5 DRAFT 9 26 03 A. LOCAL STANDARDS OF URBAN SERVICE AVAILABILITY An annexation plan adopted under ORS 195.205 shall include Local standards of urban services required prior to annexation and the availability of porh cer%Ar.- Level of Urban Services The annexation plan process emphasizes coordination between service agencies to identify and address any service deficiencies early in the process, assuring that services can be provided to local standards after annexation. Prior to the plan, state law requires urban service agreements between all service providers in the affected territory. By taking this step first, agencies resolve future service provision issues and lay groundwork for the plan. In February 2003, Washington County, the City of Tigard, other agencies and service districts finalized the Tigard Urban Service Agreement (IUSA) for the Bull Mountain area (Appendix D). In sum, all urban services are available for the Plan Area except recreation. The agreement determines long-term service providers: the City of Tigard is the ultimate service provider for the Plan Area, except for services provided by special districts and agencies. Table 3 sum mm<arizes changes in local service standards between current and future providers. Urban Service Requirements Prior to Annexation Table 3 demonstrates that City of Tigard standards offer higher levels of service for parks and open space, street maintenance, police, and long-range planning. Of those services, parks will require action by the County prior to annexation. Road quality maintenance also will require action per the Tigard Urban Service Agreement (TUSA). County action will allow the City to provide its standard of service following annexation. All other services will require only staffing and equipment to meet local service standards as summarized below. The specifics:'-are addressed in section IIB. Road Quality Maintenance County improves roads so that all individual roads have a pavement condition index (PCI) of 40 or greater and the average PC1 of streets and roads in the area is 75 or higher. Parks and Open Space County collects parks system development charges (SDCs) for new development prior to annexation. Upon annexation, those funds will transfer to Tigard and be used toward new facilities. Summary: Criteria 1 (Local Standards of Urban Service Availability) 0 All services except recreation are available to the Plan Area. 0 Providers for each urban service are established, per urban service agreements. 0 Local standards of urban service are identified. 0 Where applicable, identified steps needed by the County to meet local standards prior to annexation. TI-m BULL MOUNTAIN ANNEXATION PLAN - PAGE 6 DRAFT 9 26 03 7 Neither Washington County nor Tigard Provide this service at this time. However, Tigard has a Park and Recreation AdvisoryBoard that can examine the issue in the future. TEE BULL MOUNTAIN ANNEXATION PLAN - PAGE 7 DRAFT 9 26 03 Table 3. Bull Mountain: Service Standard Changes Following Annexation .w+.er..`. ..n. .r.• .,,.,,C^..,w ..aN~ .uY..r. •.i ~/I,'4 ? i%tiiu4 r d W1':-'~AV 11t~1'. 1 i~ J. 11~i 'mil' ~ 6`Ne. ~i~''4~ •P '~i.Y{„y,'k:..r,! 9•miF~~ ~^'A?~, 0( dam'f ~p .k. Iryt L'!y ' x S y~~ 'Y 'N r : r '.YV . . ' .n i..%P. ! Fire Protection & Emergency Services Tualatin Valley Fire and No Rescue Mass Transit Building and Development Services TriMet City of Tigard No. No. Tigfo Plan Area ddthrough es these an services agreement with Washington County. The agreement will cease but Tigard continues same services. Recreation No provider. Tigard does not i i No. Not currently provided. ard has a Park and Ti However ces. on serv provide recreat g , Recreation Advisory Board that can examine the issue in the future. Schools Annexation does not change school district boundaries. Senice Remains the Same, Provider Cha n es Sanity Sewer Clean Water Services City of Ti and No. Water ani Water District Ci of Ti and No. Street Light Maintenance City of Tigard No. (Washington Coun Storm Sewer Gean Water Services 's Ci of Ti and of Tigard Cit No. No. However, the Tigard Urban Road Quality Maintenance . y Service Agreement ('IUSA) requires (Washington Count}) (*Actions to maintain pavement quality) the County to improve individual roads to a pavement condition index (PCi) of at least 40, with all roads averaging at least 75, prior to transferring the roads and service. Parks and Open Space (NONE) City of Tigard. Washington Yes; 8 acres/ 1,000 people. County does not provide these services to unincorporated areas. Street Maintenance - (Washington City of Tigard Yes. Mowing roadside grass and County through the Urban Road brush (strip and ditch line). Dust Maintenance District) abatement on graveled roads. Vegetation removal for vision clearance. Crack sealing and road shoulders on 4-year cyc le. Police (Washington CountyEnhanced City of Tigard Yes. Additional.5 officers/ standard is 1 5 1000 people (city Sheriff Patrol District) officers/1000). Community Development - Long Range Planning (Washington County). City of Tigard. This includes comprehensive planning, such as Yes. Staff serves smaller area than County, focuses on local projects. l master plans. The 1983 Bull an Annexation will allow the City to p Mountain Community Plan is the for growth on Bull Mountain with an operative plan Washington updated comprehensive plan for the County has for the Plan Area. entire community. TEE BULL MOUNTAIN ANNEXATION PLAN - PAGE 8 DRAFT 9 26 03 B. SCHEDULE FOR PROVIDING URBAN SERVICES An annexation plan adopted under ORS 195.205 shall include The planned schedule for providing urban services to the annexed territory. As shown in section IIA, the Plan Area receives most urban services today, some of which will be provided at higher standards after annexation. All services would be available upon annexation, due to the continuation of existing services per the Tigard Urban Service Agreement CIUSA). To ensure smooth transitions, this section identifies when providers would transfer services. The following analysis reviews staff and equipment needs and evaluates where gradual provider transitions will best serve the Plan Area, are dictated by the TUSA, or are required to maintain existing service levels to current City of Tigard residents. 7be Bull Maenwin A rmation Plan defines the annexation effective date ("upon annexation") as the day properties become part of Tigard's tax rolls (July 1; the first day of the new fiscal year following an approval by voters). Eauiyment and Staff Needs T For 71x Pufiic Fadlities and Ser= A ssessrnnt RepA City of Tigard staff from allaffected area or departments projected start-up costs, needs, and abilityto serve the enttireC~nMountain and individual areas estimates, future service needs a build-out, and service standards. population housing u All departments - except for Public Works (Streets Division) and Police - concluded that they could absorb any or all subareas using current resources, and without significantly reducing services to existing residents. The Public Works and Police departments concluded the following: Public Works. Annexation of the Plan Area would increase the road mile inventory by 23%. The Streets Division could not absorb the entire Plan Area's roads and streets upon annexation without hiring two employees and purchasing three trucks immediately. Police. Police could absorb all or any subareas with existing resources; however, there would be a temporary reduction in response time to Priority Three calls (lowest priority, no one in danger, i.e., car prowl) within a few minutes. Citizens would not see a difference, and the change would not endanger lives. Internal shifts would occur to fully staff patrols until additional officers could be hired and fully trained. Police. The entire Plan Area requires 11 police officers, 1 supervisor, and 1 support staff. New officer hiring procedures established in 2003 now reduce the time needed to six months, as recruiting time has been significantly shortened by maintaining an applicant pool. It would take less than a year for the department to complete its staffing needs, hiring two phases of new officers at three-month intervals, without significantly reducing services to existing residents. gby staff and purchasing or February 2004, as transferring by the eTUSA. nt from A detailed plan and schedule Washington Countywill be developed THE BULL MOUNTAIN ANNExAnoN PLAN - PAGE 9 DRAFT 9 26 03 Agreement Provisions The TUSA includes separate agreements for each service. For those services transferring to Tigard, the agreements state "upon annexation"; however, roads and streets can be transferred up to one year following annexation. The sewer agreement defers to a separate operating agreement between the Cary and Clean Water Services. The operating agreement transfers sanitary and storm sewer maintenance to the Caty on July 1, 2004. The agreement covers an area including Tigard and Bull Mountain, and includes provisions for equipment and funding. Annexation does not affect the transfer or provision of services. Prosed Schedule for Tigard Assuming Urban Services A thorough consideration of TUSA requirements, Bull Mountain's service needs, and the effects on existing services to Tigard residents suggests the following schedule: Table 4. Proposed Schedule for Tigard to Provide Urban Services Building and Development Services (already provided) Parks and Open Space - Bull Mountain receives resident privileges for City parks Police Sanitary and Storm Sewer (provided by Tigard effective July 1,2004) Street Light Maintenance Water Parks and Open Space-Initiate Capital Project planning for Cache Creek Nature Park. Explore additional park opportunities adjacent to Cache, including the Tigard Water District reservoir property and the Clute property. Develop a playground either on Cache Creek or adjacent property. Maintenance begins once parklands are bought and developed. • Road Quality Maintenance and Street Maintenance: Within 30 days of annexation, the City will initiate the process to transfer jurisdiction of County and public streets and roads, including local streets, neighborhood routes, collectors and other roads. This transfer should take no more than one year from effective date of the annexation. Services will commence with full transfer. • Long-Range Planning - Annexation will allow the City to plan for growth on Bull Mountain with an updated comprehensive plan for the entire community. Summary..:riteria 2 (Schedule for Providing Urban Services) 0 City of Tigard can serve the Bull Mountain area without a significant reduction in service to Tigard residents. 0 City of Tigard will assume all services upon annexation, except Road Quality and Street Maintenance. 0 City of Tigard will initiate transfer of roads and streets within 30 days of annexation, serving the area within one year. 0 Following annexation and within the firstyear, Tigard will initiate capitalprojectplanning for Parks 171"/1 fl~" .Cnnro nail 1nnn.r17"fT0 "117" liNn DRAFT 9 26 03 Tf-IE BULL MOUNTAIN ANNEXATION PLAN - PAGE 11 DRAFT 9 26 03 G TIMING AND SEQUENCE An annexation plan adopted under ORS 195.205 shall include Timing and Sequence of Annexation Annexation plans offer the option of phased, or incremental, annexations. In some instances, it may be more efficient to annex an entire area at one time. In other cases, a phased annexation allows the necessary time for service providers to hire enough staff and buy equipment. 7hePublicFaalitia and Seam Assesrrrt Report examined nine sequencing options to identify the combinations which allowed the City to annex and efficiently serve the unincorporated Bull Mountain area.. It also studied how timing (i.e., the year of annexation) affected service costs and the availability of capital improvement funds in the Plan Area. Sequencing Faaw The assessment report examined annexing subareas alone, in contiguous pairs (i.e., West and North); and all areas at once. Three evaluation factors were chosen based on Tigard Comprehensive Plan policies, which require annexations to 1) not significantly reduce service levels to the City of Tigard and 2) provide efficient service provision (no service islands or irregular boundaries). Each factor was weighted, based on the extent to which it implements those policies: 1) Finanx alInpact•. Will this area be a financial drain on the city? Do service needs outpace tax dollars, and are there large capital improvements needed in the short term? (45 points) 2) Effidemy cfsenice pozisi= Is it easy to access this area, or will staff have to cross unincorporated areas to do so? Does it create islands of unincorporated areas? Is there an economy of scale? (30 points) 3) A 4awxy to the new Urban Grouth B= dary properties, located to the south and west of the Plan Area. Metro approved these areas in December 2002. A future city link to these areas would enable long-term planning. (20 points) An additional category was also included to capture additional considerations, such as publicly owned land with park potential, that didn't fit into the three main categories (5 points). Ranking The evaluation matrix ranked the nine options (the full evaluation matrix is located in Appendix E), concluding the following: The more areas annexed, the higher the ranking due to an increase in efficiency. Annexing all areas at once ranked most highly, due to economy of scale and its ability to support areas that ranked less highly. The contiguous pairs were ranked the next highest, followed by all individual subareas, with the exception of West. In every combination except all areas, West ranked low since it does not connect to City boundaries. THE BULL MOUNTAIN ANNEXATION PLAN - PAGE 12 DRAFT 9 26 03 ConsiderA wilabile Rescurw The plan recommendation must also consider comments by individual service providers regarding their ability to serve the area upon annexation, per the Comprehensive Plan. As detailed in section 2B, all service providers except for Public Works (Streets Division) and Police could absorb any or all subareas with current resources. Public Works (Streets Division) requires additional resources to serve the entire area upon annexation. Six months prior to assuming services, the department would require two additional staff and three trucks. Annexing without these resources would reduce services, including street light clearance pruning, crack sealing, and postponement of speed humps, unless the area was annexed in two phases. a one-year Since the transferring assessment ro report's and st eelts (as the Public TUSA allows) would gvelthe delay in department time to obtain resources. Police can serve Bull Mountain and the City of Tigard with current staff, resulting only in a reduction in Priority Three (lowest priority) call response times. The response tune would vary within minutes, and citizens would not see a difference. Internal shifts would occur to fully staff patrols until additional officers could be hired and fully trained. The department will need to hire 11 additional officers, 1 supervisor, and 1 support staff. The PublicFadlities and Sm ceAssessm,79 Repmt concluded that delaying the effective date of annexation by up to a year would allow hiring and training of police staff and purchase of new equipment. However, since the report was completed, Police made two additional statements: all-areas annexation would provide an advantageous economy of scale: 1) a a phased but tax and e reduced larger department can the provide same more services resource less and r sult)in a higher annexation would reach $goal, quality of service in the interim. Cordusian Phase the amxxatxn Timin the of annexation) affects the The assessment report examined how timing (i.e., year o availability of capital improvement funds and general revenues in the Plan Area. Cpital In puwwr Funds arks, and sanitary Funding for capital improvements, such as major road improvements, p and storm sewer, are partially funded by system development charges (SDCs) paid by new development. SDCs act as growth management tools by helping pay for system improvements, such as roads and parks, needed as population and households increase. In the Plan Area, SDCs are collected for storm and sanitary sewer, roads (the traffic impact fee or TIF), and water. However, Washington County does not collect parks SDCs in the applied to new Plan Area or provide each new home built without SDCs represents llostrevenue. developments, eac THE BULL MouNTAtrr ANNExAnoN PLAN PAGE 13 DRAFT 9 26 03 Once the County initiates a parks SDC for the Plan Area, and following annexation, SDCs would be collected and directed into City projects. The City of 'Tigard collects parks SDCs within its city limits, which are used for developing new parks. Without a parks SDC, delaying annexation impacts the City's ability to address Bull Mountain's parks capital needs. Each incremental delay lessens contributions - or eliminates them entirely in some subareas (new developments have been built). Based on recent development trends, the assessment report recommended that annexation of all areas should occur by 2005 to maximize potential financial contributions. Candwian A Wrier all amu by 2005. Timing and Seguencing Recommendation. Based on the timing and sequencing conclusions above, the Comprehensive Plan criteria, and PublicFadlities and Smiz Assessni7r Report, the most efficient recommendation would annex the entire Plan Area at one time prior to 2005. In the assessment report, this option ranked the most highly due to an economy of scale. However, it requires the authorization of police hiring prior to annexation, and a delay in the transfer of roads and streets until one year after annexation. Applying the July 2003 City Council annexation discussion, which emphasized how time can impact service; in particular, how a longer annexation period could provide better service to both new and existing residents, does not support this option. Phase 1-2004. Annex South. Next logical area due to location. Provides a connection to Urban Growth Boundary (UGB) expansion site 63. Phase 2 -2005. Annex East. Brings in the area that is closest in proximityto the City and the least developed. Maximizes potential financial contributions by new development toward capital improvements. Phase 3 - 2006. Annex North. Allows the Caty to begin developing its parkland and makes a connection to Urban Growth Boundary (UGB) expansion site 64. Phase 4 - 2007. Annex West. Final area; also has connection to Urban Growth Boundary (UGB) expansion site 64. Summary: Criteria 3 (Timing and Sequence) 0 The more areas annexed, the higher the ranking due to an increase in efficiency. 0 Based on department resource needs, the annexation needs to be phased. 0 To fund future capital improvements, annexation should occur by 2005. 0 City Council supports an option that takes more time, therefore providing better service to both new and existing residents. 0 Therefore, annex Bull Mountain in four phases to provide City service standards to annexed residents and maintain standards to current residents. THE BULL. MOUNTAIN ANNEXATION PLAN - PAGE 14 DRAFT 9 26 03 D. EFFECTS ON CURRENT PROVIDERS An annexation plan adopted under ORS 195.205 shall include The effects on current urban services providers Previous sections evaluated the City of Tigard's ability to provide urban services to the Bull Mountain area. However, the service providers that cease serving the area would also be affected. This section examines the impact of withdrawing the Plan Area from current service districts, both on service quality and finances. Table 3 on page 7 provides a summary of service provider changes. The following information was developed in coordination with Washington County and the Tigard Water District, and is based upon estimated 2003 population and housing units (Table 1). Washington County Service Districts Washington County reviewed how annexing the Plan Area would impact County services and the services of its special districts. It determined that there will be no significant impact on these services. Ena nxd SWs Patni Dis trict (ESPD) The ESPD is funded with a two-tiered financing plan that includes a permanent rate of $0.6365 per $1,000 and a local option dollar levy of $6,150,000 per year for five years. The local option levy is authorized through 2008. As a result of this financial structure, only property tax revenue derived from the permanent rate will be affected by the proposed annexation. Annexation of the Plan Area would remove an estimated 3,192 properties from the ESPD area, or 5.3% of the ESPD assessed value. As a result, the district would lose an estimated $397,000 from the permanent rate if the entire Plan Area were to annex in one piece. The ESPD supports a total of 94 certified officers. At the ESPD average service level of .51 officers per 1,000 population, the theoretical reduction in staff due to the annexation would be an estimated 3.9 FTE, or 4.1% of ESPD certified officers. However, it is anticipated that growth elsewhere in the district will mitigate the need for actual staff reductions. Therefore the impact on the ESPD from the annexation is considered minimal, due to the expected future growth in the remaining district over the next five years. Urban Rand Mairwunce District (URMD) The property tax revenue loss to the URMD is estimated to be $153,000. This represents 5.5% of revenue of the URMD. The district provides the majority of its services through contracts rather than with paid staff. Due to the relatively small proportion of the URMD service area impacted by the proposed annexation and its reliance on contract-based work, the impact on the URMD is considered minimal. THE BULL MOUNTAIN ANNExA noN PLAN - PAGE 15 DRAFT 9 26 03 Stnxt District far L i&ing (SDL) Washington County operates a street lighting district throughout the County. As areas develop, special assessment areas are established to collect and pay for street light installation, maintenance, and power. The assessments are determined specifically for each area based on actual costs and assessed annually on property tax bills. The proposed annexation area includes 49 street lighting district assessment areas encompassing 2,430 tax lots. The total assessment to be levied in these areas for FY 2003- 04 is $83,530. Upon annexation, the street lighting assessments will no longer be levied. The impact of this lost revenue on the SDL is considered insignificant: the costs to provide maintenance and operation in the Plan Area will be absorbed by Tigard and no longer paid by the district. Because the street lighting assessments are included on property tax bills, coordination of the transition from the County Street District for Lighting to the City of Tigard will be important. Washington Gxoq Washington County would lose its share of County gas tax at an estimated $3.71 per capita or $27,179 due to the proposed annexation. The County would also lose an estimated $43,475 per year in cable television franchise fees. Total County operating revenues from all sources for FY 2003-04 are $297,000,000. The loss of the County gas tax share and cable franchise fee share will not have a significant impact on Washington County. The County also has established a number of Road Maintenance Local Improvement Districts (LIDS) throughout the County. The County establishes these LIDS and determines the assessments, but it has not imposed the assessments. The purpose of each district is to ensure that road maintenance activities will be adequately funded as new development occurs. They are a backup funding mechanism to the Urban Road Maintenance District. No assessments have been levied; therefore, the districts have no fiscal impact. Tigard Water District The Tigard Water District (I'WD) consists of approximately 3,500 accounts within the Urban Growth Boundary (UGB). It is bounded by Barrows Road on the north, Tigard city limits on the east, Beef Bend Road on the west and King City on the south. TWD, the City of Tigard, King City, and Durham compose the Intergovernmental Water Board. TWD serves properties that are inside the Urban Growth Boundary but unincorporated. FinancialInpoz The district collects its only revenues from 1% of total water sales within its boundaries. All water sales are billed and managed by the City of Tigard, and the 1% is remitted on an annual basis. Current accounts generate approximately $18,000 in revenue for TWD. Annexing the Plan Area would withdraw 83% of current accounts and just less than half (48.6%) of the current annual revenue. Approximately 524 accounts would remain in the district, producing approximately $9,450 in revenue (Appendix B contains all figures). THE BULL MOUNTAIN ANNEXATION PLAN - PAGE 16 DRAFT 9 26 03 Instiwio ad Inpaas As Tigard and King Cary annex land, they withdraw those lands from TWD. If the Plan Area is annexed, approximately 83% of the current accounts would be withdrawn. The remaining district territory is within the UGB and would be annexed in the future. At that time, the district will cease to exist. The TWD Board has discussed this scenario and has been briefed by the Tigard City Attorney on the process of dissolving the district, should the need develop. However, annexing the Plan Area would not necessarily cause the district to dissolve since approximately 524 accounts would remain. Those accounts could be annexed into either King City or Tigard in the future. The Tigard Water District Board may choose to dissolve the district following procedures clearly laid out in state law, that decision rests with the TWD Board. Other Districts The Plan Area currently is served by Tualatin Valley Fire and Rescue (TVF&R), TriMet, and Clean Water Services. The proposed annexation will have no impacts on TVF&R or TriMet, which also provide service to the City of Tigard. The City of Tigard and Clean Water Services have entered into an agreement to transfer operation and maintenance of a portion of the Clean Water Services territory, including the Plan Area, to the City of Tigard effective July 1, 2004. The City is already scheduled to provide these services regardless of annexation. Therefore, the annexation of this territory to the City of Tigard is anticipated to have no impact on Clean Water Services. Summary: Criteria 4 (Effects on Existing Service Providers) 0 Washington County's services or the services of its special districts would not be significantly impacted by the annexation. 0 The Tigard Water District would lose 83 % of current accounts and 48.6% of current annual revenue. However, this does not cause the district to dissolve, as it can continue to serve its remaining customers. 0 Other service providers would not be significantly impacted. THE BULL MOUNTAIN ANNEXATION PLAN- PAGE 17 DRAFT 9 26 03 E. LONG-TERM BENEFITS An annexation plan adopted under ORS 195.205 shall include I The long-term benefits of the annexation plan. Annexations will occur in the Plan Area with or without an annexation plan. Currently, annexations occur at the owner's request, resulting in a piecemeal approach to incorporation. In contrast, Tlae Bull Mo a=inA mxxation Plan provides a comprehensive strategy for annexation, and long-term planning offers long-term benefits: • Completing the community. Annexation would allow the City to plan for growth on Bull Mountain with an updated comprehensive plan for the entire community. The plan presents a significant step toward completing our community as it was envisioned 20 years ago. • Smooth transition. The plan's orderly schedule of annexation allows services to be phased in effectively. All needed services have been identified, along with interim measures to get these services on-line prior to annexation. Citizens can depend on a smooth transition. • Efficiency. Ensures that annexations occur in an orderly manner. It eliminates piecemeal annexations, which can create inefficiencies for service providers due to irregular boundaries. By coordinating services, agencies assure that services are not duplicated and are provided by the most appropriate provider, leading to cost- savings and more efficient services. • Certainty. The plan establishes a schedule for annexation and service area adjustments, which allows the City, County and affected special districts time to plan for changes and capital improvements. The plan provides certainty for homeowners and developments on annexation's timeline, which can be factored into future decisions in the Plan Area. • Urban services by an urban provider. Bull Mountain has grown beyond its rural roots, and become an urbanized area with streets, sidewalks, and services that require city=level maintenance. Urban areas need urban service providers, as envisioned in the Tigard and Washington County comprehensive plans. Cities, not counties, are best equipped to provide urban services, and the plan assigns this duty to Tigard. Bull Mountain would receive its services from a provider just down the street who can respond quickly to service needs. Maintaining facilities at higher levels protects the original investment and prevents more costly improvements in the long run, maximizing available funds. Known costs and benefits. The plan clarified the costs and benefits of annexation to Bull Mountain residents, citizens of Tigard, the City and the County, and to all related agencies. By anticipating future needs, the analysis concluded that services THE Bute. MouNTAiN ANNExAnoN PLAN - PAGE 18 DRAFT 9 26 03 can be provided to both Bull Mountain and current residents without a significant reduction in services. It assures current Tigard residents they can continue to rely on the same standard of service they receive today. Annexation will not raise taxes for current Tigard residents. • Equity. Annexation would allow all users to equitably share service costs. Bull Mountain residents enjoy Tigard parks and its library, but Tigard resident taxes pay for parks maintenance and almost half of the library capital costs (the other half comes from the County library system, for which all County residents pay). With annexation, everyone would pay for the same service, and facilities will benefit from increased maintenance dollars. • Parks services. Tigard provides parks services onlyto the incorporated area. Upon annexation, Bull Mountain will receive resident privileges. The plan also allows the County to begin collecting system development charges. The funds would be frozen Sri a fund until annexation. At that time, the funds would transfer to Tigard for acquisition, planning and development of parks, including Cache Creek in the North subarea. • Unify the community. As citizens of Tigard, Bull Mountain residents would have a say on local issues that affect their community's future. Although Tigard has included Bull Mountain residents in its planning efforts (The Parks Master Plan, Tigard Beyond Tomorrow), Bull Mountain residents cannot vote on Tigard issues or its leaders, or run for City Council. Considering this plan together would help both parties work together for their future. Most of all, an annexation plan takes the guesswork out of future annexations. It is a blueprint for the Plan Area that clearly quantifies the future: uben will annexation happen, oing to occur, B stheiPlan Area and the City cyan and plan for the future, as they ovet's going to happen. closer to completing their community. Summary: Criteria 5 (Long-Term Benefits) 0 The plan provides a comprehensive strategy for annexation. The plan's long-term benefits include certainty, e„fJiciency, making a smooth transition, more capital improvement dollars, urban services by an urban provider, quantifying the costs and benefits, equity, parks, and unifying the community. 0 It allows the city and residents to plan for Bull Mountain's future. 'jam BULL MOUNTAIN ANNEXATION PLAN - PAGE 19 DRAFT 9 26 03 III. ADDITIONAL ANNEXATION PLAN REQUIREMENTS The Bull MaowinAmmativnPlan proposes an orderly transition of services. It addresses the criteria contained in ORS 195.220: 1. Local standards of urban service availability required as a precondition of annexation; 2. The planned schedule for providing urban services to the annexed territory, 3. The timing and sequence of annexation; 4. The effects on existing urban services providers; 5. The long-term benefits of the annexation plan. The plan process also requires two additional documents: 1. Urban Services Agreement with all urban services providers in the Plan Area. All providers in the Plan Area signed the Tigard Urban Service Agreement, and it took effect in February 2003. A copy is included as Appendix D. 2. Fiscal impact agreement between the county and annexing city if the annexation causes reductions in the county property tax revenues (compression). The Washington County Finance Department conducted the following analysis: ORS 195.205(2)(b) states that "The territory contained in the annexation plan is subject to an agreement between the city and county addressing fiscal impacts, if the annexation is by a city and will cause reductions in the county property tax revenues by operation of section 11b, Article XI of the Oregon Constitution." Section 11b, Article XI of the Oregon Constitution (commonly known as Measure 5) limits total non-school property tax rates to no more than $10 per $1,000 of assessed valuation. If the tax rates of all non-school taxing jurisdictions exceed $10 per $1,000, the rates of each district are proportionately reduced to bring the total under the $10 limit. This process is called compression. The proposed Bull Mountain annexation area makes up the majority of tax code area 23.78 and 51.78. The government tax rate in both code areas for FY 2002-03 was $5.8878 per $1,000. With tax rate adjustments in both codes due to the proposed annexation, the estimated resulting rate will be $7.1318 per $1,000. This rate is well below the $10 Measure 5 cap and therefore compression is not likely to occur in the near future. The Plan Area will continue to pay County taxes after annexation, as all Tigard areas do. As a result, no agreement between the City and the County is required under this section because annexation of the Plan Area is not expected to cause reductions in County property tax revenues due to compression. THE BULL MOUNTAIN ANNEXATION PLAN - PAGE 20 DRAFT 9 26 03 Summary: All Requirements for Annexation Plans 1. Plan Criteria 0 Local standards of urban service availability required as a precondition of annexation; 0 The planned schedule for providing urban services to the annexed territory; 0 The timing and sequence of annexation; 0 The effects on existing urban services providers; 0 The long-term benefits of the annexation plan. 2. Pre-Requisite 0 Urban Service Agreements in place. (TUBA; effective February 2003) 3. Fiscal Impact Agreement Between City and County if Compression Occurs Z County property taxes will not be reduced due to compression. No fiscal agreement is required. 0 All requirements have been addressed. 'I)~m BULL MOUNTAIN ANNEXATION PLAN - PAGE 21 DRAFT 9 26 03 Iv. CONCLUSION 7heBullMountainArationPlan presents a systematic and efficient approach to annex unincorporated Bull Mountain and move toward completing the Tigard community. Using existing service agreements among agencies and cost-benefit analyses, the plan addresses all criteria set forth by state law ORS195: the provision (how and when) of urban services, annexation's impact on existing providers, the timing and sequence of annexation, and the plan's long-term benefits. Most critically, the plan provides a proposal for transferring services and households to Tigard in an organized and efficient manner, grounded solidly on the ORS195.220 criteria. In order to provide City service standards to annexed residents and maintain standards to current residents, the plan proposes to annex Bull Mountain in four phases: Phase 1-2004. Annex South. Next logical area due to location. Provides a connection to Urban Growth Boundary (UGB) expansion site 63. Phase 2 -2005. Annex East. Brings in the area that is closest in proximityto the City and the least developed. Maximizes potential financial contributions by new development toward capital improvements. Phase 3 - 2006. Annex North. Allows the City to begin developing its parkland and makes a connection to Urban Growth Boundary (UGB) expansion site 64. Phase 4 - 2007. Annex West. Final area; also has connection to Urban Growth Boundary (UGB) expansion site 64. TIE BULL MOUNTAIN ANNEXATION PLAN - PAGE 22 DRAFT 9 26 03 APPENDIX A GLOSSARY Annexation: The act of permanently bringing unincorporated land areas into a City by transferring properties from the County tax roll to the City tax roll. Householders become residents of the annexing city, and receive City resident services. Annexation Effective Date: Following a yes vote and verification of results, annexation would become effective day one of the following fiscal year (July 1). Availability: The service is provided to the area and the infrastructure is present. It does not mean that each household receives the actual service; for example, in the case of sewer, hook-ups are available in the area, but some households maintain septic tanks until they decide to connect. Comprehensive Plan: The document that envisions how lands will be used and developed in a community and sets policy accordingly. It coordinates all functional and natural systems (i.e., facilities and natural resources). Each Oregon jurisdiction is required by state land-use planning laws to have an adopted comprehensive plan. The plan includes a generalized land use map. The land-use zoning code implements the comprehensive plan. Tigard's is available on its website, www.ci.tigard.or.us Long-Range Planning: Arm of Community Development that is tasked with meeting State Planning Goals. Staff develops long-term land use and transportation strategies, and plans for future growth. Plan Area: The Annexation Plan applies to the unincorporated area of Bull Mountain. See Map 1 on page 3 for a delineation of boundaries. Unincorporated: Lands that are not located inside any city limits. These areas are governed by Washington County. Urban Growth Boundary (UGB): Boundary that divides metropolitan areas from the surrounding rural areas. Areas within the UGB can be developed at urban standards; areas outside the UGB cannot. Urban Planning Area: The City of Tigard's ultimate boundary, determined through the Urban Planning Area Agreement with Washington County. Urban Service: Services that typically are provided to incorporated areas. ORS 195 defines urban services as sanitary sewers, water, fire protection, parks, open space, recreation, streets, roads and mass transit. 7heBuRMaurttainA n=ation Planalso considers the following services as urban: police, storm sewer, building and development services, and street light maintenance. THE BULL MouwmN ANNEXATION PLAN - PAGE 23 DRAFT 9 26 03 Urbanization: To provide for an orderly and efficient transition from rural to urban land use, consistent with State Planning Goal 14 (Urbanization). Land within the boundaries separating urbanizable land from rural land (UGB) is considered available over time for urban uses. A(~ONYMS: ORS: Oregon Revised Statutes; state law. SDCs: System Development Charges. Fees paid by new development to fund future capital improvements. SDCs act as growth management tools by helping pay for system improvements needed as population and households increase. TUSA Tigard Urban Services Agreement. Signed by the City, Washington County, and all current and future service providers for the unincorporated areas within Tigard's planning area. Determines future service providers and process for transferring services between providers upon annexation. The TUSA took effect in February 2003, and is a pre-requisite for an annexation plan. UPAA: Urban Planning Area Agreement. An agreement between Washington County and City of Tigard which established Bull Mountain as part of the City's Urban Planning Area. It was originally signed in 1983 and updated most recently in fall 2003. 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STAFF RECOMMENDATION N/A. Review only. INFORMATION SUMMARY The primary objective of the March 18, 2003 presentation is to discuss the major factors that would ultimately shape the City's UGB (Urban Growth Boundary) expansion program and provide an overall context for Council's choices and recommendations to develop the UGB program. The secondary objective is to start a discussion to determine the long-term impacts and relationship between the ongoing Bull Mountain annexation study and the UGB expansion program. It should be emphasized that, given the complexity and timeline for both programs, the development of the combined Bull Mountain/UGB strategy is emerging as one of the truly critical urbanization policy and land use development challenges for Tigard. The two major policy alternatives, contained in the attached memo (Exhibit A), are based on the premise that the service provision and annexation issues, which are central to both programs, are part of the overall Strategic Finance Plan for the City: 1. Should the City focus on the UGB expansion areas for adoption in 2005 with the Bull Mountain program following a separate path? (Attachment 1) OR 2. Should the Bull Mountain and UGB expansion programs merge in one urban service provision program centered on the annexation plan approach? (Attachment 2) The background, context, and rationale for recommendations for the two alternatives are contained in Exhibit A. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc OTHER ALTERNATIVES CONSIDERED N/A VISION TASK FORCE GOAL AND ACTION COMMITTEE STRATEGY Growth and Growth Management Goal #1: Growth while protecting the character and livability of new and established areas while providing for natural environment and open space throughout the community. ATTACHMENT LIST Exhibit A: March 4, 2003, memo to Council - "Urban Growth Boundary Expansion Program/Alternatives for Policy Choices" Attachment 1: Urban Service Provision Programs - Alternative 1 Attachment 2: Urban Service Provision Programs - Alternative 2 Attachment 3: Map - "UGB Expansion Areas Adjacent to Bull Mountain" Attachment 4: UGB Expansion Program Attachment 5: Concept Plan Requirements (Excerpts from Title 11, Metro's Function Plan) Attachment 6: Tigard UGB Expansion Sites - Description FISCAL NOTES N/A I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc CITY OF TIGARD Community Development Shaping A Better COmmlmity MEMORANDUM CITY OF TIGARD TO: Mayor and City Council FROM: Barbara Shields DATE: March 4, 2003 SUBJECT: Urban Growth Boundary Expansion Program / Alternatives for Policy Choices The primary objective of this memo is to discuss the major factors that would ultimately shape the City's UGB (Urban Growth Boundary) expansion program and provide an overall context for Council's choices and recommendations to develop the UGB program. The secondary objective is to start a discussion to determine the long-term impacts and relationship between the ongoing Bull Mountain annexation study and the UGB expansion program. It should be emphasized that, given the complexity and timeline for both programs, the development of the combined Bull Mountain/UGB strategy is emerging as one of the truly critical urbanization policy and land use development challenges for Tigard. The two major policy alternatives, contained in this memo, are based on the premise that the service provision and annexation issues, which are central to both programs, are part of the overall Strategic Finance Plan for the City: 1. Should the City focus on the UGB expansion areas for adoption in 2005 with the Bull Mountain program following a separate path? (Attachment 1) OR 2. Should the Bull Mountain and UGB expansion programs merge in one urban service provision program centered on the annexation plan approach? (Attachment 2) The background, context, and rationale for recommendations for the two alternatives are discussed below. I. General Overview of Metro's UGB Expansion Process A. Background On December 12, 2002 the Metro Council finalized the two-year process reviewing the region's capacity for housing and jobs by expanding the Urban Growth Boundary (UGB). The total UGB expansion is 18,638 acres, with 2,851 acres dedicated for employment purposes. The UGB marks the I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc separation between rural and urban areas for the 24 cities and urban portions of Clackamas, Multnomah and Washington Counties. The Metro Council's decision affects two areas adjacent to Bull Mountain: Area 63 and Area 64 (Attachment 3). Both areas total approximately 480 acres, with the Metro-projected residential target number of 1,735 housing units. B. Content of Metro's decision The complete UGB decision' includes 1) new policies that range from the protection of existing neighborhoods and provision of additional employment land to the improvement of downtown commercial centers; and 2) maps showing the proposed UGB expansion areas. C. UGB Expansion Phases In general, the overall program may be divided into three major phases (Attachment 4). Each phase is described below, with an emphasis on the key-policy considerations that need to be addressed prior to the development of a UGB program expansion. Phase 1. Metro's Compliance with the State (Dec. 2002 - Summer/Fall 2003) Metro completed the UGB legislative amendment as part of its periodic review work program with the State Department of Land Conservation and Development (DLCD). As such, the Land Conservation and Development Commission (LCDC) must first approve the Metro Council's adopted expansion of the UGB before the land is officially brought into the UGB. It is expected that the LCDC will make its determination on the UGB expansion in late Spring/early Summer 2003. Once DLCD makes its determination, there is a 60-day appeal period at which time all or a portion of the decision can be appealed to the State Court of Appeals. Any potential appeal may affect both the proposed amendments to Metro's plans and policies or may target specific expansion areas. It should be noted that the impact and the scope of the UGB decision has raised a number of questions related to both the proposed policies and the methodology Metro developed for the UGB expansion areas. Phase 2. Local Compliance with Metro ("Concept Plan" development) (Fall 2003 - Fall 2005) Once Metro's decision is acknowledged by the State and finalized (possibly in early Fall 2003), the Metro Code requires that a "UGB concept plan" be developed for the affected areas. 1. Who prepares the "UGB concept plan"? The conceptual planning process for areas 63 and 64 may be directed by either Washington County or the City of Tigard and must be completed within two years of the LCDC acknowledgement.2 2. Scope of the "concept plan": The scope for the concept plan is determined by Metro Code. It includes provisions for residential densities, affordable housing, commercial and industrial development, transportation network, natural resource protection, public facilities, and school sites analysis (Attachment 5). Complete decision text (Ordinance No. 02-9696) consists of over 1000 pages 2 Specifically, the Metro Council's decision (Exhibit M to Ordinance No. 02-9696) states that Washington County or, upon annexation of the areas to Tigard, the city shall complete the required planning process. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc Phase3. Land Development/Urbanization/Annexation (after Fall 2005). In general, the plan must provide foundations to address the primary urbanization question for Tigard's UGB expansion areas, i.e., what is the most optimal way to transition from rural to urban densities. The key consideration in the urbanization process is to address provisions for urban services. The Metro Code (Title 11) requires jurisdictions responsible for the plan preparation to include "provision for annexation to a city or (emphasis added) any necessary service districts prior to urbanization of the territory or incorporation of a city or necessary service districts to provide all required urban services." In short, the following annexation issues are central to the concept of service provision in the UGB expansion areas and need to be addressed in the early stages of the program development: 1. Timing of annexation. Should the City require annexations prior to development of the UGB properties? AND 2. Method of annexation. What annexation method would be optimal to provide an efficient transition to urban densities for the UGB expansion areas (areawide annexation, annexation plan, or site-specific annexations)? II. Preliminary Assessment of Tigard's UGB Expansion Impacts A. Preparation of the UGB ""Concept Plan" 1. Current Conditions. Attachment 6 contains a description of the two Tigard's UGB expansion sites. In general, both areas have been developed to rural residential uses with parcel, ranging in size from a few to 25-30 acres. They are currently zoned as agriculture and forest district lands (County zoning) to retain the area's rural character and conserve natural resources while providing for rural residential use and promoting agricultural and forest uses on small parcels. Both sites contain areas recognized as wetlands. 2. Key Evaluation Factors. The primary focus of the concept plan would have to address the "urban edge" issues, i.e. transition and distribution of residential densities at the Bull Mountain "edge." Based on Metro's preliminary assumptions, the expansion area would have to accommodate approximately 1,750 housing units. Currently, this area is occupied by approximately 40-50 houses. In general, the plan would have to include provisions for a diversified housing stock to fulfill a variety of housing needs. The increased residential density would have to be balanced with the adequate provisions for open space/parkland; neighborhood-scale commercial support services; natural resource protection; and public facilities and services, including schools (Attachment 5). 3. Summary of Planning Issues. The major planning challenge for the UGB expansion areas would pertain to the conversion of two rural residential tracts of land into balanced urban communities. A combination of the expansion areas' odd configurations, location, the existing land use pattern, and the Metro Code requirements (Attachments 3 and 5), may not allow them to develop as their own, distinct communities. Consequently, the primary question would be how to best integrate them with the existing surrounding areas. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc III. Preliminary Assessment of "'Edge" Urbanization/ Development Issues in Tigard A. Relationship between the Bull Mountain annexation study and UGB expansion program 1. Service provision versus annexation. Given the existing regulatory context, discussed previously in this memo, one of the key considerations in the urbanization program is to address the provisions for services prior to urbanization. The service provision and annexation issues are central to both Bull Mountain and UGB programs and are part of the overall Strategic Finance Plan for the City. 2. Planning for the Balanced Community. Given the scope of the planning issues, discussed above, and their location between the UGB edge and the Bull Mountain area, both UGB expansion areas would not, most likely, develop as distinct and balanced communities. Therefore, there is a need to integrate the UGB expansion area with the rest of Bull Mountain with regards to open space/parkland, neighborhood commercial services, public facilities, transportation network and schools. 3.Timing. The Bull Mountain Master Plan, which covers approximately 1,400 acres, was originally adopted by Washington County in 1984, is outdated and needs to be revisited to meet the current development needs of the area. This, combined with the Metro requirement for a concept plan for the 480 acres of the UGB expansion in the near future (2005), would provide a good opportunity for a complete analysis of the entire area. 4. Scale and Efficiency. The total planning area, including the UGB and Bull Mountain areas, is approximately 1,880 acres. With the scale, scope, and timing for the two programs, there seems to be a need to evaluate the "economies of scale" approach to determine the efficiency of the two processes/programs by contrasting their objectives and outcomes. B. Alternatives for UGB and Bull Mountain Proorams Given the complexity and timeline for both programs, the development of the combined Bull Mountain/UGB strategy is emerging as one of the truly critical policy and land use development challenges for Tigard. The two major policy alternatives, discussed below, are based on the premise that the service provision and annexation issues, which are central to the both programs, are part of the overall Strategic Finance Plan for the City. Alternative 1 Should the City focus on the UGB expansion areas for adoption in 2005 with the Bull Mountain program following a separate path? (Attachment 1) This approach would allow the City to run two parallel programs with potentially two different strategies for both areas. The UGB concept plan, including an annexation method, would have to be adopted two years from the UGB acknowledgement by the State (Attachment 4). Alternative 2 Z:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc Should the Bull Mountain and UGB expansion programs merge in one urban service provision program centered on the annexation plan approach? (Attachment 2) This approach would allow the City to combine the two programs to address the Bull Mountain issues in a complete fashion to provide foundations for an integrated urbanization process at the edge of the City. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc C. UGB Expansion Program Regardless of the outcome of the primary Bull Mountain/UGB urbanization policy questions (discussed above), the City needs to resolve the following issues to develop the UGB program (Exhibit 4): Should the City lead the planning process to prepare the "UGB concept plan"? 2. Should the City require annexations prior to development of the UGB properties? 3. What annexation method would be optimal to provide an efficient transition to urban densities for the UGB expansion areas (areawide annexation, annexation plan, or site- specific annexations)? I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc Concept Plan Requirements (Excerpts from Title 11, Metro's Functional Plan) 3.07.1120 Urban Growth Boundary Amendment Urban Reserve Plan Requirements All territory added to the Urban Growth Boundary as either a major amendment or a legislative amendment pursuant to Metro Code chapter 3.01 shall be subject to adopted comprehensive plan provisions consistent with the requirements of all applicable titles of the Metro Urban Growth Management Functional Plan and in particular this Title 11. The comprehensive plan provisions shall be fully coordinated with all other applicable plans. The comprehensive plan provisions shall contain an urban growth plan diagram and policies that demonstrate compliance with the RUGGO, including the Metro Council adopted 2040 Growth Concept design types. Comprehensive plan amendments shall include: A. Provision for annexation to a city or any necessary service districts prior to urbanization of the territory or incorporation of a city or necessary service districts to provide all required urban services. B. Provision for average residential densities of at least 10 dwelling units per net developable residential acre or lower densities which conform to the 2040 Growth Concept Plan design type designation for the area. C. Demonstrable measures that will provide a diversity of housing stock that will fulfill needed housing requirements as defined by ORS 197.303. Measures may include, but are not limited to, implementation of recommendations in Title 7 of the Urban Growth Management Functional Plan. D. Demonstration of how residential developments will include, without public subsidy, housing affordable to households with incomes at or below area median incomes for home ownership and at or below 80 percent of area median incomes for rental as defined by U.S. Department of Housing and Urban Development for the adjacent urban jurisdiction. Public subsidies shall not be interpreted to mean the following: density bonuses, streamlined permitting processes, extensions to the time at which systems development charges (SDCs) and other fees are collected, and other exercises of the regulatory and zoning powers. E. Provision for sufficient commercial and industrial development for the needs of the area to be developed consistent with 2040 Growth Concept design types. Commercial and industrial designations in nearby areas inside the Urban Growth Boundary shall be considered in comprehensive plans to maintain design type consistency. F. A conceptual transportation plan consistent with the applicable provision of the Regional Transportation Plan, Title 6 of the Urban Growth Management Functional Plan, and that is also consistent with the protection of natural resources either identified in acknowledged comprehensive plan inventories or as required by Title 3 of the Urban Growth Management Functional Plan. The plan shall, consistent with OAR Chapter 660, Division 11, include preliminary cost estimates and funding strategies, including likely financing approaches. G. Identification, mapping and a funding strategy for protecting areas from development due to fish and wildlife habitat protection, water quality enhancement and mitigation, and natural hazards mitigation. A natural resource protection plan to protect fish and wildlife habitat, water quality I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc enhancement areas and natural hazard areas shall be completed as part of the comprehensive plan and zoning for lands added to the Urban Growth Boundary prior to urban development. The plan shall include a preliminary cost estimate and funding strategy, including likely financing approaches, for options such as mitigation, site acquisition, restoration, enhancement, or easement dedication to ensure that all significant natural resources are protected. H. A conceptual public facilities and services plan for the provision of sanitary sewer, water, storm drainage, transportation, parks and police and fire protection. The plan shall, consistent with OAR Chapter 660, Division 11, include preliminary cost estimates and funding strategies, including likely financing approaches. 1. A conceptual school plan that provides for the amount of land and improvements needed, if any, for school facilities on new or existing sites that will serve the territory added to the UGB. The estimate of need shall be coordinated with affected local governments and special districts. J. An urban growth diagram for the designated planning area showing, at least, the following, when applicable: 1. General locations of arterial, collector and essential local streets and connections and necessary public facilities such as sanitary sewer, storm sewer and water to demonstrate that the area can be served; 2. Location of steep slopes and unbuildable lands including but not limited to wetlands, floodplains and riparian areas; 3. General locations for mixed use areas, commercial and industrial lands; 4. General locations for single and multi-family housing; 5. General locations for public open space, plazas and neighborhood centers; and 6. General locations or alternative locations for any needed school, park or fire hail sites. K. The plan amendments shall be coordinated among the city, county, school district and other service districts. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc Tigard UGB Expansion Sites - Description Sites 63 and 64 are located along the western boundary of Bull Mountain. Each site is adjacent to the Bull Mountain area within the UGB; however, they are not contiguous to one another due to Exclusive Farm Use (EFU) lands. These areas have been developed for rural residential uses. They are currently zoned as agriculture and forest district lands (County zoning) to retain the area's rural character and conserve natural resources while providing for rural residential use and promoting agricultural and forest uses on small parcels. Site Profiles Site 63 Built Environment The area consists mostly of larger rural lots with homes; 27 tax lots total. Median tax lot size is approximately 9 acres, with the largest parcel at 20 acres. Half of the homes were built after 1983; total assessed value for land and homes is almost $11 million. Land Use Ownership Pattern: Although there are three small clusters of property, the majority of land on Site 63 (20 of 27 lots) consists of a dispersed land ownership. The consolidated property occurs along the eastern boundary and accounts for approximately 23% of the total site area. Roads Site 63 is bounded on the east by 150"', a major collector that provides a thoroughfare between Roy Rogers Road eastbound and the northern /central Bull Mountain area. It also contains three local streets: Taylor Lane, which connects to Roy Rogers, and April and Finis Lanes, which connect from Taylor Lane. Natural Environment Site 63 has some steep slopes located centrally. In addition, the northeast corner contains two ponds recognized as Title 3 wetlands. This area is considered agricultural and urban, and about a 1/3 of the site is considered forest. Future Facilities Needed Public Works predicts the need for a water reservoir in Site 63. Currently, this site does not have water. Other facilities have not yet been evaluated. Site 64 Built Environment The area consists of 40 tax lots. Median tax lot size is approximately 5 acres, with the largest at 26.76 acres. Almost half of the tax lots do not have a building on them. For those lots with structures, the majority of homes were built more than 20 years ago - only four of the 22 structures were built since 1983. Total assessed value for land and homes is approximately $8 million. Land Use Ownership Pattern: There are eight clusters in contiguous ownership which account for the 24 of the 41 lots on Site 63. Consolidated property is the predominant ownership pattern and accounts for approximately 63% of the site's total area. Roads I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc The north is bounded by Barrows (an arterial), with a traffic signal at the intersection with Roy Rogers Road. Roy Rogers serves as a local thoroughfare south, continuing as Beef Bend/Roy Rogers east. Bull Mountain, a major collector, begins toward the southern end of Area 64 and continues east through the Bull Mountain area. Friendly Road, located in the northeast portion, is a local street serving homes. Natural Environment There are no significant steep slopes in this area. However, there is a large pond east of Roy Rogers Road in the central area, and a smaller pond nearby that are both recognized as Title 3 wetlands. This area is predominantly agricultural, with a small stand of forest. Future Facilities Needed Water CIP plans for a main line down Roy Rogers (64). The site does not currently have water. Other needs have not been evaluated, although there may be a school sited in the area. I:\CDADM\JERREE\Agenda Sum\10-7-03 Bull Mtn Annex - Exhibit D.doc Winter Spring Urban Service Provision Programs - Alternative 1 (two separate programs) -t~(n t~ n Pao 'An iTram. t',".f, t-x•:.!!t f.~... ti's i ~t'.~k,l Public Facilities and Services Plan (PFBS) developed I M O O N Summer Fall Winter Spring 0 0 N Summer Fall Winter Spring N O O N Summer Fall Winter Spring !0 O O N Summer Fell Council policy choices as outcome of PFBS Plan other strategies Annexation Plan I l -fir,. f c O N X a> c c Nov 2004 E election .c O C Effective prior to Mar 31, 2005 PHASE I - State acknowledgement expansion acknowledged by DLCD PHASE II - Plan Development Development of comprehensive plan for new UGB area (UGB Concept Plan) must: • Include annexation choices which may include an annexation plan. • If Annexation Plan is method chosen, the concept plan will Include annexation plan development. • Concept Plan must be adopted within 2 years after acknowledgement. r Annexation on Tax rolls, July 2005 I:\LRPLMBarbarML1GB\ccrep0rt 3-18-03 UGB - Attachment 1.c November 2005 election (if Annexation Plan is developed) Effective prior to Mar 31, 2006 I Annexation on Tax rolls, July 2006 Winter Spring M O 0 N Summer Fall Winter Spring v 0 0 N Summer Fall Winter Spring in O O N Summer Fall Winter Spring tD O O N Summer - IA - dull Mat4ntJAr~ea~ Public Facilities and Services (PF&S) Plan developed Council policy discussion and recommendation as outcome of PF&S aSJGBI`ICPa~t~o`A! ea `ConcepitrPhim Program PHASE I - State acknowledgement expansion acknowledged by DLCD a ~ If PlarrDev~lo l mf3pl of ,hQjsiep(»rt a 'q ' I till iereQ:(UGB G,gnce~t o r ~ z n -mu A. 'e ;Include.annexatiop choices which may Include an annexation plan. • If Annexation Plan Is method chosen, the concept plan will include annexation plan development. • Concept Plan must be adopted within 2 years o after acknowledgement. CL r- 0 X m c c as E a~ C s'.Y y i November 2005 election (if Annexation Plan is developed) Effective prior to Mar 31, 2006 Annexation on Tax rolls July 1, 2006 I:\LRPLN\Barbara\UGB\=eport 3.18-03 UGB - Attachment 2.doc 0 cc 8 aV .a O 'Z ~ G ~ N~ 'O CL -0 Q J S ~ i ? m cc m W IG ti ' , ° ~;4~~~~. ~ i~:..4 S .."i Neil t~~~y. ~~••t C e rF~•7 ; R w T ^ a .r". ~j~Y•: S ..~(~w`~C ~.~~~k:3t`~ .r = f sr s•.4~,•+t x i} ~iie, f; ir'. , ..`~L~=` ~+,wra l 5 yt }J'` t F •Y~; c. !r `ri_.,..i. c~ti~... ~i ~AlrhjC~ L r r~ir `'1, '1 j~- " ,~W .'r ~ .rte ..1'r 'a'ft ~ r< ~ ~ :L` ~ •~.r't•'..~J•rr~+~`i"'.~r. S i,'S•=.Wi, ^^.I~~ .~,M.=.•. -..,.R~~ ~L':`~ rT l ~"}.`'t:~~ ~ ~ '~t ~ ( ¢ i + -1' ! ~k ~ - 7 µ ! t ~ ~i t L ~ iti N t,. 't"~ ief' it • ► . a Pew, t t:i.- ~ ~ 'r3 1.. _ M,i"~r ` •,q: K .t , f' ~-r%'3r : ~ ' , ',Y ,:l~' J+~ / f i't ~r C'. .'1:~ TfL \L; ~ ,k ~ ~~~'.1 It ~ f~ ''~•X~ ? ' ,.,r /sr.y.r. 7 '+i - A. I p..i~{t ~15J~ IrrS•./j~ i !t ,jf~~~ tI''SF~ t,~r •~f ,yj t r F l! t_L t j.` to, 1 r "`tYi i'+!~ y .y. /.~'~y. J'y .~5 ~ ~1,•' L ~i fir-~: .i :,.,;1 r ~.i: r• ~I• 44 Kt yL..♦ _ -r a_r r ~,r. y~(• t, ~.L.. v:. tin '`t2•~, t1- • All El t l~ ~ ~ 3 ~ dr ~~r-9 ~ fyfyw~,k'.~ 4 x•,> 'i ' n ~IA e- I UG13 EXPANSION PROGRAM Objective: Transition from rural to urban form Phase 1: Acknowledgement (Metro's . UGB expansion part of State periodic review Compliance + State must acknowledge prior to land being officially brought in between Metro . 60 day appeal period and State . UGB expansion anticipated to be acknowledged in Summer/Fall 2003 Phase 11: Concept Plan Development . Concept plan is required by Metro prior to urbanization of the expansion area Compliance . Key considerations: between Metro - Who prepares the concept plan (City or County) and local - Scope of concept plan jurisdiction . Required to be completed within 2 years of UGB expansion acknowledgement (Fall 2003-Fall 2005) Phase 111: Urbanization Key consideration: • Method of annexation Area wide annexation (entire UGB expansion area) Local - Site specific annexation (parcel by parcel) jurisdiction _ Annexation Plan (UGB area only or with Bull Mountain area) • Timing of annexation (prior to development of properties?) • Provision of urban services EXHIBIT "H" COUNCIL MINUTES TIGARD CITY COUNCIL MEETING March 18, 2003 1. WORKSHOP MEETING 1.1 Mayor Griffith called the meeting to order at 6:36 p.m. 1.2 Roll Call: Mayor Griffith and Councilors Dirksen, Moore, Sherwood, and Wilson were present. 1.3 Pledge of Allegiance 1.4 Council Communications 8t Liaison Reports: None 1.5 Call to Council and Staff for Non Agenda Items: None 2. UPDATE ON THE URBAN GROWTH BOUNDARY EXPANSION AND SCOPE Community Development Director Hendryx and Long-Range Planning Manager Shields updated Council on Metro's UGB expansion program and process, including major policy alternatives for Tigard. Concerns and discussion by Council included: • density - what if 10 units/acre is not doable; how to plan next to less-dense areas • new regulations on how to provide housing, including affordable housing • agreement that City should provide planning for the area; explore possibility for assistance from County or Metro for the cost in planning for this area • detailed analysis for area will be needed; outside assistance for staff required for transportation modeling and review of natural resources • ask developers to help pay for this planning ...a possibility? • County is anticipating that the City will do this planning for two areas adjacent to Tigard planning must be done within two years • annexation not required prior to urbanization • these areas are not extensively developed as is the adjacent Bull Mountain area; planning should be looked at differently agreement that potential annexation of Bull Mountain parcels and the two new UGB parcels should proceed on "separate tracks" Community Development staff will prepare information for Council review of the proposed Bull Mountain annexation in June. Tigard City Council Meeting Minutes - March 18, 2003 Page 1 3. DISCUSSION ON THE PROPOSED STREET MAINTENANCE FEE City Engineer Duenas, and Transportation Financing Strategies Task Force Members Bev Froude, Glenn Mores, and Joe Schweitz were present to report to the Council on the proposed street maintenance fee. Council was given background information. Discussion was held on how streets are monitored for deterioration; the methodology for assigning fee assessment (trip generation) for residential and commercial properties; status of other Oregon cities street maintenance fee; faster deterioration of roadways associated with street cuts. Staff and the Task Force members recommended proceeding with establishing the street maintenance fee. Councilor Wilson and Sherwood commented that the timing was not good to implement such a fee because of the poor economy. Mayor Griffith and Councilors Moore and Dirksen indicated support of the fee because delayed maintenance may be more costly in the long run. Direction to Engineering staff was to prepare information for a public hearing to be scheduled for April or May. Additional information would be prepared with regard to fee assessment (i.e., trip generation or 50/50 split between residential and commercial; also, either a sunset clause proposal or a required periodic review). After the public hearing, an ordinance will be prepared for Council consideration if a majority of Council indicates a desire to proceed with a street maintenance fee. 4. PREVIEW AND DISCUSS ATFALATI RECREATION DISTRICT CONCESSION AGREEMENT OPTIONS Public Works Director Wegner reviewed options for the Atfalati Recreation District (ARD) repayment schedule for a portion of land acquisition and improvements to Cook Park. Council and staff also reviewed the proposal for the future operations of the Cook Park Concession Stand. Highlights of the staff presentation are contained in a PowerPoint presentation (copy on file in the City Recorder's office). ARD Representatives present included John Anderson, Valorie Westlund (Southside Soccer Club) and Maria Rose (Little League). The City and ARD agreed to proceed immediately with the Cook Park improvements, rather than a phased-in approach, when it was possible for the City to receive a low-interest loan. The Agreement with ARD was silent about loan interest. Tigard City Council Meeting Minutes - March 18, 2003 Page 2 After discussion about the proposed options for the ARD repayment schedule, Council members agreed they would consider agreeing to a $65,000 credit requested by ARD. With regard to loan interest, Council discussed the state of the City's limited finances as well as the services provided to the community by ARD. An option that Council members would like to review would be to consider a grant to ARD (in the community events portion of the budget) for $5,000 a year for the next 10 years. If approved, ARD would need to apply for a grant each year along with other community event requests. Council agreed with the proposed Concession Stand Operation Agreement Addendum as presented. Public Works staff will return to Council on April 8 with a proposal for Council's formal consideration with regard to the ARD repayment scheduled and the Concession Stand Operation Agreement. > Administrative Items: City Manager Monahan reviewed the following Administrative Items: • Shining Stars Banquet - May 2, 6 p.m. - Greenwood Inn. Councilors Sherwood and Dirksen will attend. • Mayor's Prayer Breakfast - May 7, - 7-9:15 a.m.; Mayor and Councilors Dirksen, Sherwood, and Wilson will attend. • Council Budget - Councilors agreed to cut NLC membership and attendance at the NLC Conference, plus reduce the business meeting lunches 8t dinner line item by $216. • ]olnt meeting with City of Tualatin Council and Tigard-Tualatin School District Board on April. Agenda items were reviewed. "Status of Youth Forum" was added as an item to this agenda. • Councilor Dirksen will serve on the Executive Committee for Atfalati • Councilor Wilson advised he may consider serving on the Metro Regional Center Committee. • Representative Williams cannot meet with Council on March 25 or April 22; he suggested that he could meet with Council on April 8. Senator Burdick will be contacted to determine what her preference would be for meeting with the Council. • After a brief review of the letter received from Lake Oswego Mayor ]udie Hammerstad, Council indicated that it would be open to hear proposals about how cities might be able to assist with funding for school districts. • Council received information from Community Development Director Hendryx about 74th Avenue Greenspaces acquisitions (Metro request for City to assume local management responsibility). Tigard City Council Meeting Minutes - March 18, 2003 Page 3 • City Manager Monahan reported that Tigard Police Officers will be available to assist the City of Portland (mutual assistance) in anti-war demonstration activity expected in Portland. • Council was reminded of Ron Goodpasters' retirement reception on Thursday, March 20, 7 p.m. • A delegation from Indonesia is expected to arrive in April. They will spend time learning about Beaverton's mediation program. 5. COUNCIL LIAISON REPORTS 6. NON-AGENDA ITEMS: None 7. EXECUTIVE SESSION: Not held 8. ADJOURNMENT: 9:21 p.m. Catherine Wheatley, City Recorder Attest: Mayor, City of Tigard Date I:\ADM\CATHY\CCM\030318. DOC Tigard City Council Meeting Minutes - March 18, 2003 Page 4