Ordinance No. 21-16 CITY OF TIGARD, OREGON
TIGARD CITY COUNCIL
ORDINANCE NO. 21-`6
AN ORDINANCE ADOPTING AMENDMENTS TO THE TIGARD COMPREHENSIVE PLAN AND
COMMUNITY DEVELOPMENT CODE SPECIFIC TO THE WASHINGTON SQUARE REGIONAL
CENTER, INCLUDING NEW LONG-RANGE GOALS, POLICIES, AND RECOMMENDED
ACTION MEASURES IN RESPONSE TO CURRENT COMMUNITY NEEDS AND ASPIRATIONS,
EMERGING MARKET TRENDS AND REALITIES,AND TIGARD'S VISION TO BE A WALKABLE,
HEALTHY,AND INCLUSIVE COMMUNITY. (CPA2021-00005 and DCA2021-00003)
WHEREAS, Washington Square is one of eight regional centers in the Metro 2040 Growth Concept that is
intended to contain compact and urban-scale development with high-quality transit service and multimodal
transportation facilities;and
WHEREAS,the first plan for the Washington Square Regional Center (WSRC)was adopted by Tigard in 2000;
and
WHEREAS, existing city policy directs a significant portion of Tigard's future employment growth and high-
density housing to the WSRC;and
WHEREAS, the WSRC has substantial redevelopment potential but does not yet contain all the desired
elements of a regional center;and
WHEREAS, the City of Tigard was awarded a grant from Metro to identify regulatory barriers and develop
new policies that support more compact,urban-scale development and multimodal transportation options;and
WHEREAS, the City of Tigard engaged the community in a two-year WSRC planning project that included
equitable engagement strategies and outcomes;and
WHEREAS, the City of Tigard developed a new WSRC land use and transportation policy framework for
inclusion in Chapter 15 of the Tigard Comprehensive Plan that replaces the original WSRC plan (Ordinance
No. 00-18) with new goals, policies, and recommended action measures for guiding future public and private
investment in the WSRC;and
WHEREAS, the City of Tigard also drafted minor code amendments to Chapter 18.670 of the Tigard
Community Development Code consistent with recent policy decisions that regulate development in the
WSRC;and
WHEREAS, the City of Tigard intends to develop a more comprehensive set of WSRC code amendments in
the near future to fully implement the new Comprehensive Plan goals and policies adopted herein;and
WHEREAS on November 15,2021,the Tigard Planning Commission held a public hearing,which was noticed
in accordance with city standards, and recommended approval of the amendments with a vote in unanimous
support;and
ORDINANCE No.21-16
Page 1
WHEREAS, on December 14, 2021, the Tigard City Council held a public hearing, which was noticed in
accordance with city standards,to consider the Planning Commission's recommendation,hear public testimony,
and review the findings and conclusions in support of the amendments.
NOW,THEREFORE,THE CITY OF TIGARD ORDAINS AS FOLLOWS:
SECTION 1: The amendments to the Tigard Comprehensive Plan that are attached as Exhibit A are
hereby adopted.
SECTION 2: The underline and strikeout amendments to Tigard Municipal Code Title 18 Chapter 18.670
that are attached as Exhibit B axe hereby adopted.
SECTION 3: The findings and conclusions that are attached as Exhibit C are hereby adopted as the basis
in support of this Ordinance.
SECTION 4: If any provision of this ordinance or the application thereof to any person or circumstance
is held invalid, such invalidity does not affect the other provisions or applications of the
ordinance which can be given effect without the invalid provision or application,and to this
end the provisions of this ordinance are severable.This City Council hereby declares that it
would have adopted this ordinance irrespective of the invalidity of any particular portion
thereof and intends that the invalid portions should be severed and the balance of the
ordinance be enforced.
SECTION 5: This ordinance shall be effective 30 days after its passage by the council, signature by the
mayor,and posting by the city recorder.
PASSED: By L1i2-1 Mibt..-- vote of all council members present after being read by number
and title only,this !Y day of ,ter?fl d,•r ,2021.
;f/ 6i=- '4, 2s2 r.
Carol A.Krager,City Record
APPROVED: By Tigard City Council this /0"day of /fee-erne e✓' ,2021.
Jason B.Snider,Mayor
Approved
as to form:
City Attorney
12/15/2021
Date _ -- ---_
ORDINANCE No.2144
Page 2
EXHIBIT A
Tigard Comprehensive Plan
Special Planning Areas I Chapter 15
Washington Square Regional Center
Washington Square Regional Center
Overview
The Washington Square Regional Center(WSRC) encompasses approximately 1,000 acres of commercial
and residential land that is located on the northern edge of Tigard, the southeastern edge of Beaverton,
and the eastern edge of unincorporated Washington County. While centered on the Washington Square
Mall, it extends nearly a mile in all directions from the mall itself. Designated a regional center in 1995, it is
one of eight regional centers identified in the Metro 2040 Growth Concept. Regional centers are intended
to contain compact and urban-scale development adjacent to major transportation corridors with high-
quality transit service and multimodal transportation facilities.
Washington Square was designated a regional center because of its concentration of jobs and stores that
are accessible from around the region via Highway 217, Hall Boulevard, Scholls Ferry Road, and multiple
transit lines. However, the area does not yet contain all the desired elements of a regional center.The
development pattern is predominantly suburban in scale and character, and multimodal transportation
facilities are nonexistent or substandard.
The first plan for the WSRC was developed in 1999. It envisioned the area as a dense and walkable
commercial hub with lots of housing, urban amenities, and mixed-use development served by commuter
rail, multiple bus lines, and a local shuttle.These aspirations are reflected in various chapters of the
Comprehensive Plan. It has long been the City's goal to direct a significant portion of Tigard's future
employment growth and high-density housing to this area.
This goal still guides long-term planning for the WSRC. However, many things have changed since the
development of the original plan. Online shopping has disrupted the retail sector, and technological
innovations are changing the way people travel and work. Equity has become a higher priority for the City,
and housing and climate issues have become more severe.
In 2020-2021,the City engaged the community in a long-range planning project to update the original plan.
The main goal of this update project was to refine the original vision and update existing policies to better
align them with current community needs and aspirations, emerging market trends, and Tigard's goal to be
a walkable, healthy, and inclusive community per the City's 2020-2025 Strategic Plan.The project team
made a special effort to engage community members who reflected the diversity of the WSRC community,
particularly those from historically marginalized populations. Hundreds of community members
participated in the project and helped shape project outcomes.
Page 1 of 9
EXHIBIT A
The findings,goals, policies, and action measures in this Special Planning Areas section are from the 2020-
2021 update project.The focus of this section is the portion of the regional center within Tigard's Urban
Planning Area, which includes land within Tigard and unincorporated Washington County. For the purposes
of this chapter, this subset of the regional center is referred to as the Tigard WSRC.
Key Findings
• Development of the regional center into a dense,walkable, and vibrant place has been challenging.
The regional center is located within three jurisdictions and served by even more service providers.The
various jurisdictions and service providers have not always shared the same priorities over time. More
than a dozen zones regulate development in the area, and there is no dedicated funding source to build
needed public improvements.The market and physical conditions that would support more intense and
compact development on a broad scale do not yet exist.
• The majority of land in the regional center is devoted to commercial activity in single-use buildings
with large surface parking areas.There is very little vacant land. Existing zoning allows for more intense
mixed-use development, but the area remains largely underdeveloped and auto-oriented. Lincoln
Center is the exception. It is a compact, multi-story development that provides employment for almost
1,000 employees in over a hundred businesses, but the rest of the area lacks this level of development
intensity and diversity. Very little new commercial development has occurred in the last several
decades. However, the Washington Square Mall is poised to redevelop portions of its site with taller,
mixed-use buildings, potentially signaling additional changes to come.
• The regional center population is more diverse than the City as a whole and has above average
indicators of potential disadvantage. The regional center is home to roughly 2,000 people. Compared
to the city overall, the regional center is home to more renters and households with low and moderate
incomes.
• Renters in and adjacent to the regional center may be at risk for displacement. Those who live in
older, unsubsidized housing;face more discrimination in the housing market; or pay more than 30%of
their income for rent(i.e., cost-burdened households) are at particular risk. The conditions that could
cause displacement are already present in the area.There is a large renter population (roughly half of
whom are cost-burdened) and a number of older, unsubsidized apartment buildings, particularly along
Hall Blvd. Moreover, future public or private investment has the potential to make the area more
desirable, which can lead to higher rents, redevelopment, or major renovations, particularly if new
housing is not built to absorb the increased demand. Large-scale displacement is likely not imminent,
but displacement is hard to address after the fact and requires early intervention.
• The number of employees and businesses in the regional center has declined by about 12 percent
since 2003.Salaries across all industries in this area have declined as well.The lowest-paid employees
made up roughly one-third of the 2018 workforce—totaling over 5,000 employees—and earned 33
percent less than their 2003 counterparts.
Page 2 of 9
EXHIBIT A
• The retail landscape is changing.The large concentration of existing retail businesses at a highway
interchange makes the area relatively attractive for retail businesses serving southeastern Washington
County. However, recent retail trends suggest dramatic shifts occurring in the suburbs, especially
around suburban shopping centers and malls. Demand for urban-style living and experiential and
entertainment retail has increased over the past several years, coupled with the closure of big box
stores.
• Employment areas are in transition. Existing business parks have lower rents compared to other
nearby employment areas. Vacancy rates are high, and some tenant spaces have begun to transition to
other uses—such as specialty retail and light manufacturing—indicating reduced demand from
traditional office users.These business parks have limited opportunities for redevelopment but offer
potential for property owners to improve and modernize their properties to attract tenants who would
otherwise look elsewhere in the region.
• There is strong potential for residential infill development. Recent and pending construction activity in
the area shows fairly strong demand for residential development such as apartments, rowhouses, and
detached houses, all of which are consistent with the vision for the area.
• City regulations are an impediment to desired development.While existing zoning allows for a variety
of development types and scales, development regulations make high-density development
prohibitively expensive (because of minimum parking and landscaping requirements) and largely
preclude low-and medium-density development (because of minimum density and height
requirements).
• There is good vehicle access to the regional center. However, travel within the area is difficult for all
modes of travel—but especially for people walking and biking—due to barriers created by existing
development, major roads,train tracks, and Fanno Creek.
• Pedestrian and bike facilities are disconnected or non-existent.All major roads in the regional center
have discontinuous pedestrian and bike facilities that are not appropriately sized or buffered for the
road conditions. Existing crossings of major roads, including Highway 217, are few and far between,
making it difficult for people on foot or bike to access parks,trails, transit, services, and schools. Fanno
Creek Trail provides a continuous north-south route for people on foot or bike, but it is difficult to reach
without a vehicle.
• Transit service is present but poorly integrated.The area is served by multiple bus lines and the WES
commuter rail. However,the WES station and the Washington Square Transit Center are separated by
Highway 217, and neither offers many amenities for riders. A park and ride lot located between the two
is difficult to access by foot or bike from either direction.Additionally,the Southwest Corridor Light Rail
Project is being planned for elsewhere, making the area one of only two regional centers not served by
light rail.
Page 3 of 9
EXHIBIT A
GOAL 15.1: Develop a coordinated land use and transportation framework that supports
development of the Tigard WSRC into a dense, walkable, and vibrant place and that also
reflects market realities, community needs and aspirations, and City goals related to
sustainable growth.
POLICIES
1. Promote the efficient use of land through regulations, incentives, and partnerships.
2. Allow a complementary mix of land uses that are appropriate in a walkable urban environment.
3. Prioritize high-intensity, transit-supportive development on both sides of Greenburg Rd and along Oak
Street. Limit new low-intensity development in these areas to preserve opportunities for higher
intensity development over the long-term.
4. Allow incremental increases in development intensity outside of areas prioritized for high-intensity,
transit-supportive development.
5. Regulate the design and location of streets, buildings, parking areas, and other site improvements to
support the development of a walkable urban environment.
6. Utilize a variety of strategies over time to minimize and mitigate the impacts of increased on-street
parking and traffic that potentially may occur with higher intensity development.
RECOMMENDED ACTION MEASURES
i. Update land use regulations for the Tigard WSRC as follows:
a. Zone the areas on both sides of Greenburg Rd, including the Washington Square Mall,for
horizontal and vertical mixed-use development in buildings up to 12 stories tall that support a
wide range of stores, services, and housing options.
b. Zone the areas west of Highway 217 for a mix of commercial and light industrial uses in
buildings up to 7 stories tall, with an option for housing on upper stories.
c. Zone the areas west of and along Hall Blvd for a variety of housing types and densities in
buildings between 1 and 3 stories tall in most places and up to 7 stories tall along Oak Street,
with an option for ground floor commercial uses in some locations.
d. Zone the existing commercial node along Hall Blvd, roughly between Locust Street and Oak
Street,for small-scale neighborhood-serving businesses in buildings up to 2 stories tall, with an
option for additional stories if housing is provided on upper stories.
ii. Update street, site, and building design regulations consistent with these goals and policies.
iii. Allow a range of building heights by-right and with discretionary approval as a strategy for
achieving higher intensity development in targeted areas.
iv. Incentivize vertical mixed-use development in targeted areas through measures such as height
bonuses or the creation of a Vertical Housing Development Zone.
v. Work with property owners, businesses, residents, and neighborhood or homeowner associations
to develop traffic calming or parking management plans as needed.
vi. Apply City land use designations and zoning classifications to properties in unincorporated
Washington County only upon annexation to the City of Tigard.
Page 4 of 9
EXHIBIT A
GOAL 15.2: Implement and advocate for an equitable and inclusive approach to public
investment in the Tigard WSRC in which the benefits of development are broadly shared by
all.
POLICIES
1. Support the development and preservation of regulated affordable housing.
2. Work to prevent displacement of socially vulnerable households in anti-displacement priority areas.
3. Seek opportunities to expand the amount of green space for active or passive recreation in areas with a
large number of market affordable or regulated affordable housing units.
4. Prioritize and advocate for active transportation improvements that improve access to nature,
recreation, schools,transit,jobs, and services in areas with a large number of market affordable or
regulated affordable housing units.
5. Work to increase business diversity, especially the number of minority-and women-owned businesses
in the area.
RECOMMENDED ACTION MEASURES
i. Partner with culturally diverse community organizations to reach socially vulnerable households,
understand their needs and priorities, and involve them in the public investment planning process.
ii. Look at ongoing funding solutions, such as setting aside development fees, to support development
of affordable housing, prevent residential displacement, improve the active transportation
network, and expand green space for recreation.
iii. Implement the Tigard Affordable Housing Plan, especially those policies and programs that support
rental housing stability and affordable housing development.
iv. Offer height bonuses and some City fee exemptions for developments with affordable housing units.
v. Partner with non-profit and multicultural business partners to support women-and minority-
owned businesses.
Page 5 of 9
EXHIBIT A
GOAL 15.3: Prioritize improvements to the active transportation network in the Tigard
WSRC to improve safety, access, and comfort for people of all ages and abilities and to
advance the City's climate resiliency and equity goals.
POLICIES
1. Include Tigard WSRC active transportation needs and recommendations in the Tigard Transportation
System Plan.
2. Require development to improve the transportation network for all modes of travel in proportion to its
impact on the network.
3. Develop one or more safe and comfortable active transportation routes across Highway 217 and along
and across Greenburg Rd for people traveling to Fanno Creek Trail,Tigard Heritage Trail, Metzger
Elementary School, or Fowler Middle School in coordination with ODOT and Washington County.
4. Advocate for TriMet to provide high-quality transit facilities and services to,from, and within the area that
will provide a competitive travel option for workers and residents, resulting in less vehicle miles traveled
per capita and related greenhouse gas emissions.
5. Advocate for the applicable road authorities to expand and enhance pedestrian and bicycle facilities,
especially on major roads and transit streets.
6. Seek opportunities to connect the area to regional and local trails in Washington County, Beaverton,
and Portland.
RECOMMENDED ACTION MEASURES
i. Evaluate alternative pedestrian and bicycle routes from the area north of Highway 217 to the
Tigard Heritage Trail northern terminus and the Fanno Creek Trail access on North Dakota Street,
including a new Highway 217 overcrossing at 95th Ave.
ii. Develop street cross sections for Greenburg Rd and Oak Street that reflect their role in the active
transportation network, are consistent with their functional classifications, and respond to right-of-
way constraints created by existing development.
iii. Pursue jurisdictional transfer of Greenburg Rd from Washington County to Tigard.
iv. Pursue Washington County MSTIP funding for Greenburg Rd to improve pedestrian and bicycle
safety, access, and comfort between North Dakota Street and Hall Blvd.
v. Complete pedestrian and bicycle facilities on Oak Street, including a grade-separated pedestrian
and bicycle path and intersection improvements at Greenburg Rd, Hall Blvd, and 87th Ave. Reclassify
the segment between Greenburg Rd and 90th Ave as a Collector Street.
vi. Extend Lincoln Street south to Oak Street and reclassify as a Local Street.
vii. Advocate for Washington County to complete pedestrian and bicycle facilities on 90th Ave,
reclassify as a Neighborhood Route, and evaluate for Neighborhood Greenway treatments.
viii. Advocate for Washington County to evaluate the feasibility of a pedestrian connection between
Borders Street and Hall Blvd.
ix. Advocate for ODOT to improve pedestrian and bicycle safety, access, and comfort along Hall Blvd and
Scholls Ferry Rd through measures such as protected bike lanes, sidewalk infill, and enhanced crossings.
x. Discuss jurisdictional transfer and right-of-way annexation with ODOT for the portion of Hall Blvd within
the Tigard WSRC after the jurisdictional transfer discussions for the southern portion of Hall Blvd have
concluded.
Page 6 of 9
EXHIBIT A
xi. Advocate for TriMet and Washington Square Mall to evaluate and modify transit facilities and
services as needed in the future to better serve Washington Square Mall as it redevelops, including
an evaluation of the need for and location of the Progress Ridge Park& Ride.
xii. Evaluate and pursue opportunities to connect the area to regional and local trails outside the City
during the City's next update of its Trails and Greenways Plan.
GOAL 15.4: Provide recreational opportunities and access to nature for all, especially for
households in the Tigard WSRC with little or no private open space.
POLICIES
1. Work to ensure that sufficient publicly-accessible open space is built, such as parks and plazas, to
adequately serve existing and future residents, workers, and visitors through the use of acquisitions,
incentives, regulations, and partnerships.
2. Improve multimodal access to existing and planned parks and trails.
3. Seek opportunities to expand the amount of green space for active or passive recreation, especially in
areas planned for higher intensity development.
4. Seek opportunities to partner with private property owners, public agencies, and public service
providers to advance these policies.
RECOMMENDED ACTION MEASURES
i. Develop a Tigard WSRC Open Space Plan that identifies open space needs, potential land
acquisitions or public-private partnerships, funding sources, and priority projects.
ii. Work to overcome the transportation barriers for people on foot or bike north of Highway 217
traveling to Fanno Creek Trail,Tigard Heritage Trail, and Bagan Park.
iii. Work to formalize the Washington Square Loop and Metzger-Fowler Loop including, but not limited
to, interjurisdictional coordination, community engagement, wayfinding signage, and street
improvements.
iv. Approach private property owners west and north of the planned park on Steve Street to explore
interest in and the feasibility of providing public access to the park from Hall Blvd or Spruce Street.
v. Partner with Washington County to advocate for ODOT to provide a safe crossing of Hall Blvd at or
near Hemlock Street to improve access to Metzger Park across Hall Blvd.
vi. Require higher intensity development to provide public open space or amenities upon
redevelopment through regulatory incentives, proportional exactions, or System Development
Charge credits.
vii. Engage private property owners and Clean Water Services in the City-led Washington Square
Stormwater Retrofit Project to study the feasibility of retroactively adding aboveground
stormwater facilities that also provide public open space or recreation opportunities.
viii. Partner with Tigard-Tualatin School District to improve Metzger School Park.
ix. Partner with CPO-4M or other community-based organization to explore interest in Ash Creek
wetland restoration, including limited public access, with private property owners.
Page 7 of 9
EXHIBIT A
GOAL 15.5: Facilitate the development of a variety of housing types and densities in the
Tigard WSRC to meet the needs of households of all incomes and sizes.
POLICIES
1. Allow housing everywhere in the Tigard WSRC.
2. Support the development of a variety of housing types and densities in single-use and mixed-use
buildings.
3. Support the development of needed housing, including middle housing.
4. Encourage housing above ground-floor commercial uses.
RECOMMENDED ACTION MEASURES
i. Remove regulatory barriers for medium-and high-density housing development.
ii. Implement the Tigard Affordable Housing Plan, especially those policies and programs that support
middle housing development.
iii. Offer height bonuses for residential mixed-use developments in Hall Blvd "Main Street" area.
GOAL 15.6: Support regional-serving businesses in the Tigard WSRC while working to grow
traded-sector and local-serving businesses in order to advance economic mobility for all.
POLICIES
1. Foster economic and business growth by providing incentives and removing regulatory barriers where
consistent with these goals and policies.
2. Support and encourage major redevelopment of the Washington Square Mall where consistent with
these goals and policies.
3. Utilize a variety of strategies to support Hall Blvd businesses.
RECOMMENDED ACTION MEASURES
i. Remove regulatory barriers in targeted areas including, but not limited to, minimum requirements
for parking, building height, residential density, and floor area ratio.
ii. Offer height bonuses for commercial mixed-use development in medium-density residential areas.
iii. Explore the feasibility of a community commercial investment pilot project along Hall Blvd.
iv. Explore interest in an Oregon "Main Street" designation for Hall Blvd.
v. Explore interest in a business incubation program to grow the local labor and supply chain.
vi. Develop a variety of resources and materials in multiple languages for small businesses, such as a
list of small business advisors.
Page 8 of 9
EXHIBIT A
GOAL 15.7: Collaborate and coordinate with applicable agencies, service providers, and
community partners to implement the Tigard WSRC land use and transportation framework.
POLICIES
1. Advocate for financial and political support at the state and regional levels to realize the land use and
transportation vision for the Tigard WSRC in recognition of the critical role it plays within the region and
beyond for managing growth and creating climate-resilient and equitable communities.
2. Coordinate with Metro to ensure that the Tigard WSRC goals and policies are consistent with the Metro
Regional Framework Plan and Metro 2040 Growth Concept.
3. Collaborate with applicable agencies and service providers to ensure that needed transportation,
transit, and utility infrastructure improvements are identified and prioritized for strategic public and
private investment.
4. Maintain existing relationships and cultivate new relationships with community partners to advance
these goals and policies.
5. Seek funding from a variety of sources to advance these goals and policies.
RECOMMENDED ACTION MEASURES
i. Participate in the Oregon Climate-Friendly and Equitable Communities Rulemaking efforts and
amend policies and regulations as appropriate for local compliance.
ii. Work with ODOT to evaluate the feasibility of improving the existing Greenburg Rd bridge over
Highway 217 and installing a new pedestrian bridge at 95th Ave over Highway 217.
iii. Advocate for ODOT to prioritize pedestrian and bicycle improvements along Hall Blvd.
iv. Discuss jurisdictional transfer and right-of-way annexation with ODOT for the portion of Hall Blvd
within the Tigard WSRC after the jurisdictional transfer discussions for the southern portion of Hall
Blvd have concluded.
v. Advocate for Washington County to prioritize MSTIP funding for Greenburg Rd improvements.
vi. Work with Washington County to transfer jurisdiction of Greenburg Rd from the County to the City.
vii. Partner with Clean Water Services to complete the City-led Washington Square Stormwater Retrofit
Project.
Page 9 of 9
EXHIBIT B
Text shown in bold, italic, and underlined is proposed to be added.
Text shown in strlet-hfough is proposed to be removed.
Tigard Municipal Code I Title 18
Tigard Community Development Code I Chapter 18.670
Washington Square Plan District
18.670.020 Applicability
C. Subdistrict. In addition to the land uses allowed in Table 18.120.1 for the MUC zone, Motor
Vehicle Sales/Rental is allowed as a primary use in the subdistrict identified on Map
18.670.A. In addition to complying with all applicable development standards, Motor
Vehicle Sales/Rental uses that are primary uses must meet the following standards:
1. Properties located east of Highway 217 must contain all sales and rental inventory,
materials and equipment, and vehicle service areas inside a building, except for the
existing Motor Vehicle Sales/Rental development located at the northwest corner of
Highway 217 and Greenburg Road.
2. Properties located west of Highway 217 must contain all sales and rental inventory,
materials and equipment, and vehicle service areas inside a building or behind a
building such that inventory and service areas are not visible from Cascade Avenue.
18.670.025 Application Type and Approval Criteria for Motor Vehicle Sales/Rental Uses
A. A new Motor Vehicle Sales/Rental Use allowed by Table 18.120.1 that includes
maintenance and repair activities as an accessory use requires a site development
review or major modification application. The approval authority will approve or
approve with conditions a site development review or major modification application
when all of the applicable approval criteria listed in Chapter 18.780. Site Development
Reviews, or Chapter 18.765, Modifications, are met.
B. In addition to the approval criteria identified in Subsection 18.670.025.A above, the
approval criteria listed below must be met when a new Motor Vehicle Sales/Rental
Use includes maintenance and repair activities as an accessory use and is located on
a property identified in Paragraph 18.670.020.C.1.
1. Any adverse impacts from the proposed maintenance and repair activities are
mitigated to the extent practicable, including but not limited to noise, odors, and
vibrations,and
2. All customer vehicle drop-off areas associated with the proposed maintenance
and repair activities are clearly identified and designed to prevent vehicle idling
and queuing outside of a building;and
Page 1of2
EXHIBIT B
3. The proposed maintenance and repair activities and associated driveways,
accessways, drive aisles, and parking areas are located and designed to support
pedestrian access, safety, and comfort.
18.670.100 Street and Accessway Standards
A. The recommended roadway functional classification map and street cross-sections in the
Washington Square Regional Center Plan govern the improvement and construction of
major streets within the Washington Square Regional Center Plan District, with the
exception of Oak Street as provided below
B. The following street design standards apply to Oak Street between Greenburg Rd
and Hall Blvd.
1. The cross section for the north side of the street must be consistent with Table
18.910.1 for Collector streets, except that on-street parking is allowed and no bike
lane is required;and
2 The cross section for the south side of the street must be consistent with Table
18.910.1 for Collector streets, except that on-street parking is allowed and a 12-
foot-wide,grade-separated, multi-use path is required in lieu of a bike lane and
sidewalk.
Page 2 of 2
EXHIBIT C
FINDINGS AND CONCLUSIONS
This document contains all applicable city, regional, and state provisions that apply to the package of
legislative amendments known as the Washington Square Regional Center Comprehensive Plan Update
(CPA2021-00005 and DCA2021-00003) and describes how each provision is met. Provisions that are
not included are not considered applicable.
TIGARD COMMUNITY DEVELOPMENT CODE (TCDC)
Title 18 of the Tigard Municipal Code
Chapter 18.710.110 (Legislative Procedure) and Chapter 18.790 (Text and Map Amendments)
18.790.020.A Approval process. A legislative amendment application is processed through a
18.710.110.A Legislative procedure, as provided in Section 18.710.110.
FINDING: The proposed Comprehensive Plan Amendment(CPA) and Development Code
Amendment(DCA) are being processed through a legislative procedure, as provided in TCDC
Section 18.710.110, using the approval criteria outlined in TCDC Section 18.790.020.
Additionally, TCDC Section 18.710.110 requires two public hearings: one before Planning
Commission (scheduled for November 15, 2021), and one before City Council (scheduled for
December 14, 2021). Following a recommendation from Planning Commission, City Council
will make a decision on this application. These requirements have been or will be met.
18.790.020.B Approval considerations. A recommendation or a decision for a legislative
amendment application may be based on consideration of the applicable legal
requirements.They may,but do not necessarily include: Oregon Revised Statutes,
Oregon Administrative Rules, one or more Statewide Planning Goals, Metro's
Urban Growth Management Functional Plan and any other regional plans.
FINDING: The following city, regional, and state provisions apply to the proposed CPA and
DCA:Tigard Community Development Code Chapters 18.670, 18.710, and 18.790;Tigard
Comprehensive Plan Goals 1, 2, 8, 9, 10, 12, and 14;Oregon Statewide Planning Goals 1, 2,
8, 9, 10, 12, and 14;and Metro Urban Growth Management Functional Plan(Chapter 3.07)
Titles 1 and 6.As detailed in the findings below, the applicable city, regional,and state provisions
are met for this proposal.
Chapter 18.670 Washington Square Regional Center Plan District
18.670.010.A.1 The purpose of this chapter is to implement the vision, concepts, and principles
contained in the Washington Square Regional Center Plan, and the
recommendations contained in the Phase II Implementation Plan Summary
Report prepared by a task force appointed by the City of Tigard.
FINDING: The CPA proposal replaces the 1999 Washington Square Regional Center Plan
and Phase II Report with a new Comprehensive Plan section that includes updated goals,policies,
and action measures specific to the WSRC. The City anticipates preparing a package of code
amendments for the public's consideration within six months of its adoption. This package of
future code amendments would be designed to implement many of the newly adopted goals,policies,
and action measures and, at a minimum, would include recommendations to change the Tigard
Findings and Conclusions(CPA2021-00005 and DCA2021-00003) Page 1 of 14
EXHIBIT C
Comprehensive Plan Map and Zoning Map and repeal and replace Chapter 18.670, which
currently regulates development in the IVSRC. The proposal is consistent with this provision.
18.670.010.A.2 Metro's Regional Urban Growth Management Functional Plan target growth
capacity for the Washington Square regional center will be met by allowing mixed-
use development within the regional center at densities appropriate for an urban
center.
FINDING: The CPA proposal contains new goals and policies that allow vertical and
horizontal mixed-use development at densities appropriate for an urban center and that reflect
current and projected market realities and community needs and aspirations. The proposal is
consistent with this provision.
18.670.010.A.3 A mixed-use regional center will contain a variety of districts that vary in scale,
predominant use,and character. Distinct districts,connected to each other and to
the rest of the region by a multimodal transportation system,will provide a range
of working,living, and shopping opportunities.
FINDING: The CPA proposal contains new goals and policies that allow development to
vary in scale, use, and character based on location. The CPA proposal is a distillation of what
the 2020-2021 WSRC Update Project heard from the community and learned through its
technical analysis. The rationale for directing derent types and scales of development to d Brent
areas within the regional center varies widely. In most cases, the final proposal balances competing
interests, such as the community's need and desire for a variety of housing options and their desire,
in some cases, to maintain longstanding low-density residential areas.
The CPA proposal also contains new goals and policies that prioritize projects that improve the
multimodal transportation network. There is good access to the WSRCfrom around the region,
especially by car. However, travel within the area is difficult for all modes of travel, but especially
for people walking and biking due to barriers created by existing development, major roads,
train tracks, and Fanno Creek. The proposal is consistent with this provision.
18.670.010.A.4 Improved multimodal transportation links, higher densities, variety of land uses,
and enhanced environmental qualities will all contribute to create a desirable,
livable community in the face of dramatic population and employment growth
FINDING: The CPA proposal includes several new policies and specific action measures that
support the WSRC becoming a "dense, walkable, and vibrant place,"including but not limited
to: regulating the design and location of streets, buildings, and parking areas to maximize
pedestrian safety, access, and comfort; incentivi7ing vertical-mixed use development; supporting
the development of needed housing working to improve multimodal access to existing nearby
parks and trails; and prioritizing improvements to the active transportation network. The
proposal is consistent with this provision.
18.670.010.A.5 New mixed-use zoning districts, along with existing residential zoning districts in
established areas, are appropriate for the regional center
FINDING: The CPA proposal contains new goals and policies that direct higher-intensity,
transit-supportive, mixed-use development on both sides of Greenburg and along Oak Street,
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EXHIBIT C
with medium-density development that is primarily residential directly adjacent to these areas that
respects the scale of existing housing. The proposal is consistent with this provision.
18.670.020.0 In addition to complying with all applicable development standards, Motor
Vehicle Sales/Rental uses that are primary uses must meet the following
standards:
1. Properties located east of Highway 217 must contain all sales and rental
inventory and vehicle service areas inside a building,except for the existing Motor
Vehicle Sales/Rental development located at the northwest corner of Highway
217 and Greenburg Road.
2. Properties located west of Highway 217 must contain all sales and rental
inventory and vehicle service areas inside a building or behind a building such that
inventory and service areas are not visible from Cascade Avenue.
FINDING: The DCA proposal clarifies that materials and equipment must also be screened
or inside a building and adds a new section(TCDC.670.025)that addresses new car dealerships
east of Highway 217 that include maintenance and repair activities. Staff was directed to develop
these amendments by City Council when they approved modifications to the subdistrict on June
1, 2021 that allows car dealerships (Land Use File DCA2021-00001). Given that
maintenance and repair activities are prohibited as a primary use in this area, the purpose of
these amendments is to minimize the potential impact of maintenance and repair activities on the
pedestrian environment when they are accessory to an allowed car dealership. The proposed
amendments strike a balance between this outright prohibition and the market reality that many
car dealerships include maintenance and repair activities as an accessory use. The proposal is
consistent with this provision.
18.670.100 The recommended roadway functional classification map and street cross-
sections in the Washington Square Regional Center Plan govern the improvement
and construction of major streets within the Washington Square Regional Center
Plan District
FINDING:The DCA proposal includes a new cross section for Oak Street between Greenburg
Rd and Hall Blvd. This segment of Oak Street was identified in the 2011 Tigard Greenways
Trail System Master Plan as the preferred alignment for the Washington Square Loop Trail.
A section of this 12 foot wide,grade-separated path on the south side of Oak Street has already
been constructed by private development. The proposed amendment codifies this cross section for
the entirety of Oak Street between Greenburg Rd and Hall Blvd. The proposal is consistent with
this provision.
CONCLUSION: The applicable provisions of the Tigard Community
Development Code are met.
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TIGARD COMPREHENSIVE PLAN
Goal 1: Community Involvement
Goal 1.1 Provide community members, affected agencies, and other jurisdictions the
opportunity to participate in all phases of the planning process.
FINDING: City staff followed the legislative notice requirements in TCDC Section
18.710.110, including the required 35-day notices to DLCD, ODOT, and Metro. As a
courte y, notice was mailed to individuals on the citywide interested parties list on October 27,
2021, published in the Tigard Times on October 28, 2021, and emailed to Macerich on
November 1, 2021. Notice of Public Hearing was also posted on the ci y's website, and the two
public hearings scheduled before Planning Commission and City Council provide another
opportunity for the public to provide input. Extensive communiy engagement was also conducted
throughout the Washington Square Regional Center Update Project.
The project's community engagement strategy included three major types of outreach:
• Stakeholder Working Group:A Stakeholder Working Group (SWG) was
convened to provide feedback to the project team for the duration of the pr ject. The
SWG roster consisted of residents, businesses, service providers, communiy
organizations,and public agency partners. This mix was intended to ensure that d Brent
types of stakeholders would hear each other's perspectives. The SWG met as a fullgroup
three times during the project, with supplemental meetings for residents and small
business owners at the beginning and end of the project. An interpreter provided
simultaneous Spanish interpretation for several Spanish-speaking SWG members at all
meetings, and key materials were translated into Spanish. Residents and small business
owners who participated in the SWG were given an honorarium to compensate them for
their particOation.
• Metzger Neighborhood and Underrepresented Communities
Outreach:An overarching goal of the project was to conduct "robust business and
community outreach to involve the public and historically marginalised communities,
particularly the Metzger communiy, so that they may contribute their knowledge and
shape project outcomes."As a result, the project team engaged Verde—a communiy-
based organization with expertise in community organising and capacity building—to
assist with community engagement efforts in the ethnically and socioeconomically diverse
neighborhoods in and adjacent to the project area. Outreach efforts sought to reflect the
demographics of the regional center, with an emphasis on reaching marginalized and
underrepresented communities and engaging residents in the Metzger neighborhood.
Outreach and engagement activities were conducted by Verde, SWG community
members, and City staff in English, Spanish, and Swahili.
• Broad Public Outreach:The project sought input from a broad group of interested
parties and community members at kg milestones. The input from these activities was
balanced with the input received from the targeted outreach described above.
The project's community engagement plan included five rounds of engagement to gather input at
different stages of the project starting in June 2020. The methods varied from one round to the
next, allowing the project team to adapt and respond to changes in the COVID-19 pandemic
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EXHIBIT C
and emerging project needs. Input was received from a wide variety of stakeholders through
different engagement activities, including but not limited to the following:
• Stakeholder Working Group Meetings
• One-on-one Community Interviews
• Online Survey
• Online Open House
• Community and Professional Organisation Presentations
• Culturally-Specific Focus Groups
Hundreds of community members provided input, and the project team used this input to directly
shape project outcomes, including the goals,policies, and action measures contained in the CPA
proposal. The proposal is consistent with this goal.
Goal 2: Land Use Planning
Goal 2.1 Maintain an up-to-date Comprehensive Plan,implementing regulations and action
plans as the legislative foundation of Tigard's land use planning program.
Policy 5 The City shall promote intense urban level development in Metro-designated
Centers and Corridors, and employment and industrial areas.
FINDING: The WSRC is a Metro-designated regional center. The CPA proposal provides
the City with a much more detailed set of goals,policies, and action measures than currently
exists. Collectively, they promote intense urban level development through:provisions for compact,
transit-supportive development that require less parking, incentives for vertical mixed-use
development, and recommendations for regulating the location and design of streets, buildings, and
parking areas to facilitate the development of a walkable urban environment. The proposal is
consistent with this policy.
Policy 18 The Council may at any time, upon finding it is in the overall public interest,
initiate legislative amendments to change the Comprehensive Plan text,
Plan/Zoning Map(s) and/or the Community Development Code.
FINDING: City staff initiated the WSRC Update Project in 2019 with City Council support
and approval to advance city goals that were in place at the time:
City Strategic Plan Goal 2—Ensure development advances the vision.
City Council Goal 2—Promote economic growth and community vitality by identiing and
removing barriers to redevelopment in Washington Square Regional Center.
The CPA proposal is the result of the WSRC Update Project, which included a robust
community engagement program to ensure that the community's needs and aspirations shaped
pr ject outcomes and reflected their interests. Consistent with the City's equity goals, the project
team made a special effort to engage community members who reflected the diversity of the WSRC
community, particularly those from historically marginalised populations. The proposal is
consistent with this policy.
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Policy 20 The City shall periodically review and, if necessary, update its Comprehensive
Plan and regulatory maps and implementing measures to ensure they are current
and responsive to community needs, provide reliable information, and conform
to applicable state law, administrative rules, and regional requirements.
FINDING: The CPA proposal is the result of a 2-year Washington Square Regional Center
Update Project funded in part by a Metro 2040 Planning and Development Grant to update
the Tigard Comprehensive Plan consistent with current community needs and aspirations,
emerging market trends, and Tigard's goal to be a walkable, healthy, and inclusive community
as directed by the City's 2020-2025 Strategic Plan. The original plan for this area was developed
in 1999, and many things have changed in the last 20 years. Online shopping has disrupted the
retail sector, and technological innovations are changing the way people travel and work. Equity
has become a higherpriorityfor the City,and housing and climate issues have become more severe.
The CPA proposal is a necessary and timely update to the Tigard Comprehensive Plan and the
City's land use program. The proposal is consistent with this policy.
Goal 8: Parks, Recreation,Trails, and Open Space
Goal 8.1 Provide a wide variety of high-quality park and open spaces for all residents.
FINDING: The CPA proposal recommends expanding and enhancing parks and open spaces
in and adjacent to the WSRC, where possible. It also recommends prioritizing access to existing
or planned parks and trails. The proposal is consistent with this goal.
Goal 8.2 Create a Citywide network of interconnected on- and off-road pedestrian and
bicycle trails.
FINDING: The DCA proposal codifies the Oak Street cross section, which includes a grade-
separated path on the south side of the street. This path is one segment of the Washington Square
Loop Trail. The CPA proposal recommends taking steps to formalize and implement the revised
and more financially feasible alignment for the Washington Square Loop Trail and the new
Metzger-Fowler Loop Trail, both of which share the same critical gap in their alignments, which
is roughly the area between the Hwy 217 Greenburg interchange and the North Dakota,
Tiedeman, and Greenburg intersection. This proposal is consistent with this goal.
Goal 9: Economic Development
Goal 9.1 Develop and maintain a strong, diversified, and sustainable local economy.
FINDING: The CPA proposal includes a number of goals and policies that support mall
redevelopment, foster economic growth through the removal of regulatory barriers, encourage
ground floor commercial uses below housing, and support the small, neighborhood-serving
businesses on Hall Blvd. The proposal is consistent with this goal.
Goal 9.3 Make Tigard a prosperous and desirable place to live and do business.
Policy 1 The City shall focus a significant portion of future employment growth and high-
density housing development in its Metro-designated Town Center; Regional
Center(Washington Square);High Capacity Transit Corridor (Hwy 99W); and the
Tigard Triangle.
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FINDING: The WSRC is a Metro-designated regional center. The CPA proposal provides
the City with a much more detailed set of goals,policies, and action measures than currently
exists. Collectively, they promote intense urban level development through:provisions for compact,
transit-supportive development that require less parking, incentives for vertical mixed-use
development, and recommendations for removing regulatory barriers to medium-and high-density
housing. The proposal is consistent with this policy.
Goal 10: Housing
Goal 10.1 Provide opportunities for a variety of housing types at a range of price
levels to meet the diverse housing needs of current and future City
residents.
FINDING: The CPA proposal includes several goals and policies that support rental housing
stability and the development of a variety of housing types and more affordable housing. It
recommends removing regulatory barriers to medium- and high-density housing adopting local
tenant protections to supplement statewide protections, and supporting the development of middle
housing and affordable housing with fee exemptions, revolving loan funds, and other similar
methods. The CPA proposal also includes agoal specific to equity and inclusion that recommends
the City actively work to prevent displacement of socially vulnerable households from high priority
anti-displacement areas. The proposal is consistent with this goal.
Goal 12: Transportation
Goal 12.1 Develop mutually supportive land use and transportation plans to enhance the
livability of the community.
FINDING: The main goal of the WSRC Update Project was to update the land use and
transportation policy framework for the area. The project team coordinated closely with land use
and transportation staff from affected jurisdictions and road authorities and held three transit-
oriented development workshops with TriMet and Macerich representatives. The project team
also coordinated closely with the Tigard Transportation System Plan update project. As a result,
the CPA proposal includes many interrelated goals and policies that promote transformative
redevelopment supported by transit and multimodal facilities, including projects to overcome the
Hwy 217 barrier and increase access to nearby parks and trails. The proposal is consistent with
this goal.
Goal 12.3 Provide an accessible, multi-modal transportation system that meets the
mobility needs of the community.
FINDING: The DCA proposal codifies the Oak Street cross section, which includes a grade-
separated path on the south side of the street. This path is one segment of the Washington Square
Loop Trail. The CPA proposal includes a goal to prioritize improvements to the active
transportation network and identifies specific projects to fill critical gaps and overcome existing
barriers for people walking and biking. The proposal is consistent with this goal.
Goal 12.5 Coordinate planning, development, operation, and maintenance of the
transportation system with appropriate agencies.
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Policy 1 The City shall coordinate and cooperate with adjacent agencies and service
providers—including Metro, TriMet, ODOT, Washington County, and
neighboring cities—when appropriate, to develop transportation projects which
benefit the region as a whole,in addition to the City of Tigard.
FINDING: Through the WSRC Update Project,the City coordinated with staff from adjacent
agencies and service providers, many of whom served on the project's Stakeholder Working
Group, including but not limited to:
• Metro
• TriMet
• ODOT
• Washington County
• Beaverton
• Portland
• Tualatin Hills Parks and Recreation District
• Clean Water Services
The proposal is consistent with this goal and polig.
Goal 14: Urbanization
Goal 14.1 Provide and/or coordinate the full range of urban level services to lands
and citizens within the Tigard City limits.
Policy 3 The City shall, as needed, coordinate and/or participate in planning
activities or development decisions within the Tigard Urban Services
Area.
FINDING: The CPA proposal includes land use and transportation recommendations for the
portion of the WSRC outside city limits in unincorporated Washington County because it is
within Tigard's Urban Planning Arra. The CPA proposal also specifies that the City will apply
land use designations and toning classifications to properties in unincorporated Washington
County only upon annexation to the City of Tigard The proposal is consistent with this goal
and polig.
Goal 14.3 Promote Tigard citizens' interests in urban growth boundary expansion
and other regional and state growth management decision.
Policy 3 The City shall maintain the low-density residential character of its
existing single family residential neighborhoods and accommodate more
intense urban land uses in its regional and town centers and within major
transportation corridors to be consistent with Statewide Planning Goals
and the Metro Framework Plan.
FINDING: The WSRC is a Metro-designated regional center. The CPA proposal provides
the City with a much more detailed set of goals,policies, and action measures than currently
exists. Collectively, they promote intense urban level development through:provisions for compact,
transit-supportive development that require less parking incentives for vertical mixed-use
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EXHIBIT C
development, and recommendations for removing regulatory barriers to medium-and high-density
housing. The proposal is consistent with this policy. The proposal is also consistent with Statewide
Planning Goals and the Metro Framework Plan as detailed elsewhere in this report.
CONCLUSION: The applicable provisions of the Tigard Comprehensive
Plan are met.
Metro Urban Growth Management Functional Plan
Title 1 Title 1 requires each city and county to maintain or increase its housing capacity
Housing except as provided in section 3.07.120.
Capacity
FINDING: The WSRC has made very slow progress towards becoming a dense, walkable,
and vibrant place in the past two decades. This is partly because zoning and development
standards were out of sync with the market and planned public investment never materialized.
As a result, the CPA proposal includes several recommendations that are collectively designed to
support the development of the WSRC into a principal center of urban life in a way that balances
market realities and the community's need for more housing and more housing options. The
following is a summary of key findings and recommendations from the WSRC Update Project
that relate to housing and that are reflected in the CPA proposal:
• Continue to prioritize high-density, mixed-use development on and around the mall site,
especially high-density housing, recognizing that mall redevelopment is the primary
opportunity for regional center trap formation.
• Seek opportunities to partner with and leverage mall redevelopment to support
community desires for open space, housing options, and diverse businesses.
• Right-size the aspirations for all other areas, recognizing that tall mixed-use buildings
are highly unlikely in these areas for the foreseeable future. Focus on fostering
incremental growth and change, such as supporting a range of new housing options,
including middle housing.
• Support residents who need access to low-cost housing so they can remain and thrive in
the regional center.
The intent of the CPA proposal is to maintain housing capacity and increase housing production
in the WSRC. To that end, the CPA proposal includes goals,policies, and action measures
designed to facilitate the development of needed housing in more areas of the WSRC. It
recommends the following three approaches: 1) expand the areas where medium-density housing
is allowed, also known as middle housing,2)change some areas zoned for mixed-use employment
to mixed-use residential, and 3)remove regulatory barriers to high-and medium-density housing.
1) The WSRC is predominantly zoned for mixed-use development, with some areas of low-and
medium-density residential. The CPA proposal recommends rezoning the low-density residential
areas within the City to medium-density mixed-use residential.
2) The WSRC contains a large area zoned for mixed-use employment east of Greenbury Rd
The CPA proposal recommends rezoning the southern portion of this area to high-density mixed-
use residential.At a minimum, this ensures that the remaining developable properties will develop
with housing and not commercial-only uses.
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3) The City's existing regulations are an impediment to high-and medium-density housing. High
parking and landscaping requirements make high-density housing less efficient and harder to
build, while medium-density housing, such as row houses and low-rise apartments, are often
precluded by minimum density and height requirements intended to encourage higher-density
development. The CPA proposal recommends removing these regulatory barriers in targeted
mixed-use areas,particularly in the mixed-use commercial area in the center of the regional center
that is over 100 acres in site and includes Washington Square Mall and other large format
retail stores.
In closing, the CPA proposal, with its housing-specific goals,policies, and action measures, is
intended to create more opportunities for medium- and high-density housing development in the
WSRC. It is supported by the extensive technical analysis completed by the WSRC Update
Project that included a code audit, market study, development feasibilig study, and displacement
risk study. The proposal is consistent with Title 1.
Title 6 The Regional Framework Plan identifies Centers, Corridors, Main Streets and
Centers Station Communities throughout the region and recognizes them as the principal
centers of urban life in the region. Title 6 calls for actions and investments by
cities and counties to enhance this role.
FINDING:The WSRC has an adopted boundary pursuant to 3.07.620(a)(1),and the CPA
proposal is not recommending any modifications. The WSRC Update Project performed an
assessment of the regional center pursuant to 3.07.620(a)(2), and the CPA proposal includes
new Comprehensive Plan goals,policies, and recommended actions measures in partial compliance
with 3.07.620(a)(3) that considered this assessment. The CPA proposal is not changing the
Comprehensive Plan designations, honing classifications, or development standards for this area
at this time. The City plans to address these elements of 3.07.620(a)(3) in the near future. The
proposal is consistent with Title 6.
CONCLUSION: The applicable provisions of the Metro Urban Growth
Management Function Plan are met.
OREGON STATEWIDE PLANNING GOALS
Goal 1 Public Involvement
FINDING: Goal 1 requires the City to provide opportunities for the public to participate in
all phases of land use decision making. In this case, the City's Goal 1 obligations are satisfied
by compliance with the procedural requirements for a Legislative Amendment in TCDC Section
18.710.110 and by the extensive community engagement conducted as part of the Washington
Square Regional Center Update Project that are detailed earlier in this report in response to the
City's community involvement goal. The proposal is consistent with this goal.
Goal 2 Land Use Planning
FINDING: Goal 2 requires local governments to adopt a comprehensive plan and
implementing ordinances that are consistent with its plan. The CPA proposal updates the Tigard
Comprehensive Plan,providing the City with a much more detailed set of goals,policies, and
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EXHIBIT C
action measures than currently exists. Assuming the CPA proposal is adopted, the City
anticipates preparing a package of code amendments for the public's consideration within six
months of its adoption. This package of code amendments would be designed to implement many
of the newly adopted goals,policies, and action measures and, at a minimum, would include
recommendations to change the Tigard Comprehensive Plan Map and Zoning Map and repeal
and replace TCDC Chapter 18.670, which currently regulates development in the WSRC.
Goal 2 also requires an "adequate factual base"for legislative decisions. The CPA proposal was
developed with the help of a consultant team with expertise in land use planning, multimodal
transportation planning housing and economic analysis, and displacement risk analysis. It is
supported by the extensive technical analysis completed by this team, including but not limited to
a code audit, market study, development feasibility study, displacement risk study, and
nonconforming analysis.
Finally, Goal 2 requires coordination between local governments and state agencies. The City's
Goal 2 obligations in this regard were satisfied through ongoing coordination with and notices to
affected local, regional, and state governmental entities. The proposal is consistent with this goal
Goal 8 Recreational Needs
FINDING: Goal 2 requires each community to evaluate its recreation areas and facilities and
develop plans to address projected demand. The WSRC Update Project identified the location of
existing and planned parks and trails and evaluated how easy they were to access from the
WSRC. It determined that access was deficient for all parks and trails that were meant to serve
WSRC residents and workers. As a result, the CPA proposal recommends prioritizing park
and trail access forpeople on foot or bike. It also recommends specific action measures to improve
access,such as new or improved crossings along Hall Blvd to access Metzger Park, a public access
easement from the west or north to access the planned park on Steve Street, and a new pedestrian
bridge over Highway 217 to access Bagan Park, Fanno Creek Trail, and Tigard Heritage
Trail. The proposal is consistent with this goal.
Goal 9 Economic Development
FINDING: Goal 9 calls for diversification and improvement of the economy. The CPA
proposal includes a goal that calls for the City to support regional-serving businesses while working
to grow traded-sector and local-serving businesses in a number of ways, including but not limited
to: supporting and encouraging mall redevelopment,fostering economic and business growth by
removing regulatory barriers, supporting neighborhood-serving businesses on Hall Blvd, and
partnering with non-profit and multicultural business partners to increase the number of women-
and minority-owned businesses in the area. The proposal is consistent with this goal.
Goal 10 Housing
FINDING: Goal 10 requires each city to plan for and accommodate needed housing types. To
this end, the City adopted a Housing Strategies Report in 2013 that included recommendations
forpolicy changes to allow a wider variety of housing types in Tigard,particularly middle housing
development. This was followed by adoption of code amendments in 2018 to allow middle housing
development consistent with Senate Bill 1051. The City went on to complete a Housing Needs
Analysis (HNA) in 2020 that identified Tigard's future housing needs and available land
supply. This analysis determined that Tigard complied with Title 1 of the Metro Urban Growth
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EXHIBIT C
Management Functional Plan regarding housing capacity and with the Metropolitan Housing
Rule regarding residential densities and housing types. Most recently in 2021, the City updated
Chapter 10 of its Comprehensive Plan to incorporate its 2020 HNA.
The City's HNA identified a need of 7,416 housing units over the next 20 years. The analysis
also found that the current capacity of buildable lands within the city would only accommodate
4,206 units, leaving a shortfall of 3,210 units. It is worth noting that this figure is likely even
higher. The city is required to use datafrom Metro's forecast to determine housing need.However,
a 2020 report by Oregon Housing and Community Services and the Department of Land
Conservation and Development demonstrated that the regional figures are low because they only
calculate need based on population growth, which does not account for the needs of unhoused
residents or the current undersupply of housing. When these factors are taken into account, the
report determined that the regional housing need attributed to Tigard may be as high as 12,000
units over the next two decades.
As a result of this demonstrated need for more housing—including affordable housing and higher
density housing to make the most of the City's limited land supply—the WSRC Update Pr ject
evaluated how to facilitate the development of high-and medium-density housing in the WSRC.
This evaluation included a code audit, market study, and development feasibility study.
Additionally, and in response to the growing unhoused population, the pr ject also completed a
displacement risk study to identift existing housing most likely to redevelop, remodel, or raise
rents that could potentially lead to the displacement of socially vulnerable households in the near-
or long-term.
The WSRC Update Pmject subsequently used this information to develop housing and anti-
displacement recommendations, and these recommendations are reflected in the goals,policies, and
action measures included in the proposed Comprehensive Plan Amendment (CPA)for the
WSRC, which is the subject of this staff report. This is significant because development in the
WSRC is currently guided by a 1999 plan that was adopted as a standalone document. There
are limited references to the WSRC in the Tigard Comprehensive Plan today. The proposed
CPA is designed to augment Chapter 15 of the Tigard Comprehensive Plan. This chapter is
reserved for special planning areas and currently includes goals and polices for the City's town
center. This augmentation will allow for better coordination and alignment between WSRC
housing goals and policies and citywide housing goals and policies, which are currently located in
Chapter 10 of the Tigard Comprehensive Plan.
The proposed CPA is designed to increase the City's ability to meet its growing housing need as
identified in its 2020 HNA. There are seven proposed goals in total, and three in particular
relate to housing. These goals and their applicable policies are listed below for reference. They are
designed to either increase housing production,particularly high-and medium-density housing or
minimise displacement.
Goal 15.1: Develop a coordinated land use and transportation framework
that supports development of the Tigard WSRC into a dense, walkable, and
vibrant place and that also reflects market realities, community needs and
aspirations, and City goals related to sustainable growth.
1. Promote the efficient use of land through regulations, incentives, and partnerships.
2. Allow a complementary mix of land uses that are appropriate in a walkable urban
environment.
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3. Prioritize high-intensity, transit-supportive development on both sides of Greenburg Rd
and along Oak Street. Limit new low-intensity development in these areas to preserve
opportunities for higher intensity development over the long-term.
Goal15.2: Implement and advocate for an equitable and inclusive approach
to public investment in the Tigard WSRC in which the benefits of
development are broadly shared by all.
1. Support the development and preservation of regulated affordable housing.
2. Work to prevent displacement of socially vulnerable households in anti-displacement
priority areas.
Goal 15.5: Facilitate the development of a variety of housing types and
densities in the Tigard WSRC to meet the needs of households of all
incomes and sizes.
1. Allow housing everywhere in the Tigard WSRC.
2. Support the development of a variety of housing types and densities in single-use and
mixed-use buildings.
3. Support the development of needed housing, including middle housing.
4. Encourage housing above ground floor commercial uses.
Goals 15.1 and 15.5 (including their applicable policies and action measures) are designed to
increase housing production in three ways, namely by 1) expanding the areas where medium-
density housing is allowed, also known as middle housing, 2) changing some areas zoned for
mixed-use employment to mixed-use residential, and 3)removing regulatory barriers to high-and
medium-density housing.
1) The WSRC is predominantly zoned for mixed-use development, with some areas of low- and
medium-density residential. The CPA proposal recommends rezoning the low-density residential
areas within the City to medium-density mixed-use residential.
2) The WSRC contains a large area zoned for mixed-use employment east of Greenburg Rd.
The CPA proposal recommends rezoning the southern portion of this area to high-density mixed-
use residential. This will ensure that, at a minimum, the remaining developable land will develop
with housing and not commercial-only uses.
3) The City's existing regulations are an impediment to high-and medium-density housing. High
parking and landscaping requirements make high-density housing less efficient and harder to
build, while medium-density housing, such as row houses and low-rise apartments, are often
precluded by minimum density and height requirements intended to encourage higher-density
development. The CPA proposal recommends removing these regulatory barriers in targeted
mixed-use areas,particularly in the mixed-use commercial area in the center of the regional center
that is over 100 acres in size and includes the Washington Square Mall and other large format
retail stores.
Goal 15.2 (including its applicable policies and action measures) is designed to support the
development of affordable housing and prevent displacement of socially vulnerable households in
anti-displacementprioriy areas. It specifically recommends that the City more fully implement its
Affordable Housing Plan, especially those policies and programs that support rental housing
stability and affordable housing development. This is because the regional center population has
Findings and Conclusions(CPA2021-00005 and DCA2021-00003) Page 13 of 14
EXHIBIT C
above average indicators of potential disadvantage. Compared to the city overall, the regional
center is more diverse and home to more renters and households with low and moderate incomes.
Additionally, renters in and adjacent to the regional center may be at risk for displacement. Those
who live in older, unsubsidized housing face more discrimination in the housing market;or pay
more than 30% of their income for rent(i.e., cost-burdened households) are at particular risk.
The regional center has a large renterpopulation (roughly half of whom are cost-burdened)and a
number of older, unsubsidi?ed apartment buildings,particularly along Hall Blvd. Moreover,
future public or private investment has the potential to make the area more desirable, which can
lead to higher rents, redevelopment, or major renovations,particularly if new housing is not built
to absorb the increased demand.
In summary, the CPA proposal, with its housing-specific goals,policies, and action measures, is
intended to create more housing opportunity,promote housing equity, and mitigate displacement
in the WSRC. The proposal is consistent with this goal.
Goal 12 Transportation
FINDING: Goal 12 calls for "a safe, convenient and economic transportation ystem" that
addresses the needs of the "transportation disadvantaged" There is good access to the regional
center by car; however, walking and biking within the area can be unsafe and uncomfortable.
Large parking lots, highways, buy roads, train tracks, and creeks are *cult barriers to
overcome. Despite these challenges, it is more important than ever from a climate-resiliency and
equity perspective—to prioritizefunding for transportation improvements forpeople who need(or
choose) to walk and bike to get around, including walking and biking to transit. As a result,
the CPA proposal recommends prioritizing improvements to the active transportation network
that improve safety and access to nature, recreation, schools, transit,jobs, and services in areas
with a large number of market affordable housing units or regulated affordable housing units.
The proposal is consistent with this goal.
Goal 14 Urbanization
FINDING: Goal 12 requires cities to estimate future growth and needs for land and then plan
and zone enough land to meet those needs. Since the WSRC was designated a regional center in
1995, it has been the City's goal to direct a significant portion of Tigard's future employment
growth and high-density housing to this area. The first plan for the IY(SRC was developed in
1999, but the area has made slow progress towards becoming more intensely developed in the
intervening decades. The 2020-2021 WSRC Update Project was initiated by the City to update
the existing land use and transportation policy framework in order to better align it with current
market realities while still supporting higher intensity development in the area so as to meet
Tigard's future growth needs. The proposal is consistent with this goal.
CONCLUSION: The applicable provisions of the Oregon Statewide
Planning Goals are met.
Findings and Conclusions(CPA2021-00005 and DCA2021-00003) Page 14 of 14