11/15/2021 - PacketPLANNING COMMISSION AGENDA – November 15, 2021
City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | Page 1
City of Tigard
Planning Commission Agenda
MEETING DATE: November 15, 2021 - 7:00 p.m.
MEETING LOCATION: Members Remote via Microsoft Teams
Link to virtual hearing online: www.tigard-or.gov/virtualPC
Call-in number for public testimony: 503-966-4101
Public testimony call-in time is between 7:15 p.m. and 7:45 p.m.
1. CALL TO ORDER 7:00 p.m.
2. ROLL CALL 7:00 p.m.
3. COMMUNICATIONS 7:02 p.m.
4. CONSIDER MINUTES 7:04 p.m.
5. LEGISLATIVE HEARING 7:05 p.m.
WASHINGTON SQUARE REGIONAL CENTER
Comprehensive Plan Update
CPA2021-00005 & DCA2021-00003
Staff: Senior Planner Susan Shanks
PROPOSAL: The proposal is the result of a long-range planning project to update the land use and
transportation framework for the portion of Washington Square Regional Center within Tigard’s planning
area. The proposal creates a new section within Chapter 15 of the Tigard Comprehensive Plan that includes
new goals, policies, and recommended action measures that are specific to the Washington Square Regional
Center. It also makes minor changes to Chapter 18.670 of the Tigard Community Development Code that
regulates development in the Washington Square Regional Center consistent with past policy decisions.
6. OTHER BUSINESS 8:35 p.m.
7. ADJOURNMENT 8:45 p.m.
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Hearing Date: November 15, 2021 Time: 7:00 P.M.
STAFF REPORT TO THE
PLANNING COMMISSION
FOR THE CITY OF TIGARD, OREGON
120 DAYS = N/A
SECTION I. APPLICATION SUMMARY
FILE NAME: Washington Square Regional Center (WSRC) Comprehensive Plan Update
CASE NO: Comprehensive Plan Amendment (CPA) CPA2021-00005
Development Code Amendment (DCA) DCA2021-00003
APPLICANT: City of Tigard
13125 SW Hall Blvd.
Tigard, OR 97223
PROPOSAL: The proposal is the result of a long-range planning project to update the land use
and transportation policy framework for the portion of the WSRC within Tigard’s
planning area. The proposal creates a new section within Chapter 15 of the Tigard
Comprehensive Plan that includes new goals, policies, and recommended action
measures that are specific to the WSRC (Attachment 1). It also makes minor changes
to Chapter 18.670 of the Tigard Community Development Code that regulates
development in the WSRC consistent with past policy decisions regarding a multi-
use path on Oak Street and new car dealerships east of Highway 217 that include
maintenance and repair activities (Attachment 2).
LOCATIONS: The portion of the WSRC within Tigard’s urban planning area, which includes land
within the City of Tigard and unincorporated Washington County.
ZONES: MUC (Mixed-Use Commercial); MUE-1/MUE-2 (Mixed-Use Employment); MUR-
1/MUR-2 (Mixed-Use Residential); R-12 (Medium-Density Residential); R-4.5 (Low-
Density Residential); and PR (Parks)
APPLICABLE
PROVISIONS:
Oregon Statewide Planning Goals: 1 (Citizen Involvement), 2 (Land Use Planning),
8 (Recreational Needs), 9 (Economic Development), 10 (Housing), 12
(Transportation), and 14 (Urbanization)
Metro Urban Growth Management Functional Plan (Chapter 3.07) Titles:
1 (Housing Capacity), and 6 (Centers)
Tigard Comprehensive Plan Goals: 1 (Citizen Involvement), 2 (Land Use Planning),
8 (Parks), 9 (Economic Development), 10 (Housing), 12 (Transportation), and
14 (Urbanization)
Tigard Community Development Code Chapters 18.670, 18.710, and 18.790
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SECTION II. STAFF RECOMMENDATION
Staff recommends that the Planning Commission recommend approval of the proposed Comprehensive Plan
Amendment and Development Code Amendment to the Tigard City Council as provided by the public hearing
process.
SECTION III. BACKGROUND INFORMATION
Proposal Description:
The proposal creates a new section within Chapter 15 of the Tigard Comprehensive Plan entitled Special
Planning Areas. It includes new goals, policies, and recommended action measures specific to the WSRC.
Existing policies and action measures specific to the WSRC are currently minimal and scattered throughout
the plan. This is because the more detailed land use and transportation policy framework that guides
development in the area is contained in the 1999 Washington Square Regional Center Plan. The proposed
new section within Chapter 15 replaces the 1999 Washington Square Regional Center Plan in its entirety and
is consistent with existing Tigard Comprehensive Plan policies.
The proposal also includes minor changes to Chapter 18.670 of the Tigard Community Development Code,
which regulates development in the WSRC. Both proposed amendments are consistent with past policy
decisions.
• The first amendment includes additional approval criteria for new car d ealerships 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 that allows car dealerships on June 1, 2021
(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 attempt to 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 second amendment 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 T rail. 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.
Project Background:
The WSRC is located at 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. Washington Square is one of eight regional centers designated
in the Metro 2040 Growth Concept 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. The
WSRC is also home to a culturally diverse and growing community.
The first plan for the WSRC from 1999 envisioned the area as a dense, walkable, and vibrant place with
more housing options, better transit service, and more urban amenities. The area has made slow progress
towards that vision in the past two decades. Additionally, many things have changed since the adoption of
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the original plan. Online shopping has disrupted the retail sector, and technological innovation s 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.
Recognizing the WSRC’s potential for transformative, equitable, and sustainable growth, the City of Ti gard
led a 2020-2021 project to update existing policies and the original land use and transportation vision . The
main goal of the WSRC Update Project was to better align future development with current community
needs and aspirations, emerging market trends, and Tigard’s goal to be a walkable, healthy, and inclusive
community as stated in 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. See Attachment 3 for a draft of the WSRC Update Project Final Report.
WSRC Update: A Refined Vision
The Washington Square Regional Center of the future is a multicultural hub of activity that is accessible by multiple
modes of transportation from across the region. It is easy and comfortable for people to travel by bus, commuter rail,
foot, or bike to reach jobs, services, parks, schools, and local amenities. Large parking lots are redeveloped with new
buildings at a variety of heights that connect to wide sidewalks and inviting pu blic spaces. New development creates a
greener urban environment that benefits people, habitat, and streams. Large and small businesses have opportunities
to locate here and grow and evolve in place. These changes make the area more attractive, but existin g communities of
color are not priced out as the area redevelops. All are welcome and have the opportunity to call this area home.
WSRC Update: Project Highlights
• Transformative Redevelopment that Benefits Everyone .
Like many suburban malls working to remain competitive in the market, the Washington Square Mall is
beginning to redevelop parking lots and buildings left vacant by large retailers. This could make the
regional center generally more attractive to businesses and customers and drive further red evelopment
in the area. While this kind of transformative change is something the City and the community wants to
see, the challenge for the City is to prevent socially vulnerable households and historically marginalized
communities from being disproportionally impacted by this level of change. The main concern with
large-scale redevelopment is displacement of at-risk households. This occurs when households are
forced to move because rents are rising faster than they can afford or property owners require them to
move to remodel or redevelop. In addition to preventing negative impacts where possible, the City also
hopes to partner with the mall and leverage mall redevelopment to ensure new mall amenities benefit
the community at large. Community members specifically expressed a desire for more public spaces to
gather and recreate.
• Equitable Transportation Investment.
There is good access to the regional center by car, but walking and biking within the area can be unsafe
and uncomfortable. Large parking lots, highways, busy roads, train tracks, and creeks are difficult barriers
to overcome. Previous ideas for overcoming these barriers were ultimately too aspirational and expensive
and failed to obtain necessary political support or funding. Despite all these challenges, it is more
important than ever—from a climate-resiliency and equity perspective—to prioritize funding for
transportation improvements for people who need to (or choose to) walk and bike to get around,
including walking and biking to transit. As a result, the project team identified many opportunities where
the City and other road authorit ies could fund improvements that would make a meaningful and
immediate difference for people walking and biking in the area.
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• Transit-Oriented Development .
The area is currently served by multiple bus lines and a WES commuter rail station, but access to transit
and amenities for transit riders is lacking. Additionally, the Southwest Corridor Light Rail Project is being
planned for elsewhere. Despite these existing and future conditions, there is great potential for this area
to be well-served by transit. The Washington Square Mall, which leases land to TriMet for the existing
transit center, understands the benefits of and wants to leverage this potential, and the City and TriMet
want to encourage and support redevelopment of the mall site with transit -oriented development. The
need for more sustainable transportation and development options is only going to increase as the
number of people and workers in the region increases.
• Housing Options.
There is need and market demand for more and different types of housing in the regional center.
Community members specifically expressed a desire for affordable housing and housing that could
accommodate larger households, such as those living with multiple generations or several children. They
also expressed a desire for a variety of housing options, not just apartments, that respected the scale of
existing residential areas. Even though the City does not build or manage h ousing, there are many ways
the City can support affordable housing providers and local middle housing developers. In the near -
term, the City can update its regulations, which currently include requirements that unintentionally
prevent a variety of housing types from being built. The City can also modify the locations where certain
kinds of housing are allowed to better facilitate a gradual scale change between low - and high-density
housing areas. The challenge for the City is to successfully facilitate the development of housing in
mixed-use commercial and employment areas—where housing is allowed but not required—through
the right combination of incentives, partnerships, and regulations.
• Access to Nature and Recreation.
There is almost no undeveloped land in the regional center that is suitable to be developed as park land.
The Metzger Elementary School Community Park is the only public park in the area today, but it is only
available when school is not in session. There are several existing or planned par ks and trails nearby, but
they are difficult to access from the regional center. As a result, the project team identified several
opportunities for improving access to nearby parks and trails. In order to expand public open space and
recreation opportunities for residents and workers in the area, the project team identified a number of
opportunities where land could be used for multiple purposes. This approach requires willing property
owners and creative partnerships, and, as such, is difficult to achieve. However, there are many successful
examples around the region of public-private partnerships where land is used for both stormwater
management and public open space or wetland restoration and passive recreation.
• Flexibility for Businesses.
Online shopping has disrupted the retail sector and technological innovations are changing the way
people travel and work. In response to these market changes, business needs are changing more rapidly
than they have in the past. Given the system of land use laws in which the City must operate, it is difficult
for the City to respond in kind. The challenge for the City is to create a new set of regulations that
acknowledges the pace at which the market is changing and that is also flexible enough to allow
businesses to grow and evolve in place, especially when they are advancing the regional center vision in
ways no one could possibly anticipate today.
• Implementation Challenges.
The regional center spans portions of three jurisdictions and is served by several road auth orities and
service providers. Each of these agencies has their own list of public projects to pay for and build, and
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their own goals and priorities. Staff from Beaverton, Washington County, ODOT and other public
agencies participated in this planning process and support the project’s recommendations. However,
maintaining support for, and focus on, implementing these recommendations in the near- and long-term
will be challenging given the number of agencies involved and the turnover that will naturally occu r over
time with elected officials and staff.
SECTION IV. APPLICABLE PROVISIONS, FINDINGS, AND CONCLUSIONS
This section contains all applicable city, regional, and state provisions that apply to the proposed
Comprehensive Plan Amendment and Development Code Amendment, and findings detailing how each
provision is met.
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
18.710.110.A
Approval process. A legislative amendment application is processed through 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.
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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. 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 Chapter 18.670, which currently regulates development in the WSRC.
See Attachment 4 for preliminary code amendment recommendations. 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 different types and scales of development to different 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 WSRC from 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; incentivizing vertical-mixed use development; supporting the
development of needed housing; working to improve multimodal access to existing nearby parks
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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, 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.C 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.
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CONCLUSION: The applicable provisions of the Tigard Community
Development Code are met.
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
courtesy, 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 city’s website, and the two
public hearings scheduled before Planning Commission and City Council provide another
opportunity for the public to provide input. Extensive community 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 project. The
SWG roster consisted of residents, businesses, service providers, community
organizations, and public agency partners. This mix was intended to ensure that
different types of stakeholders would hear each other’s perspectives. The SWG met as a
full group 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 participation.
• 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 marginalized communities,
particularly the Metzger community, so that they may contribute their knowledge and
shape project outcomes.” As a result, the project team engaged Verde —a community-
based organization with expertise in community organizing 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 key milestones. The input from these activities was
balanced with the input received from the targeted outreach described above.
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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 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 Organization 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 identifying 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 project outcomes
and reflected their interests. Consistent with the City’s equity goals, t he project team made a special
effort to engage community members who reflected the diversity of the WSRC c ommunity,
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particularly those from historically marginalized populations. The proposal is consistent with this
policy.
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 higher priority for 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.
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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.
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 similar methods.
The CPA proposal also includes a goal specific to e quity 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 tr ansit-
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 consi stent with
this goal.
Goal 12.3 Provide an accessible, multi-modal transportation system that meets the
mobility needs of the community.
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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.
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 policy.
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 Area. The CPA proposal also specifies that the City will apply land
use designations and zoning classifications to properties in unincorporated Washington County
only upon annexation to the City of Tigard. The proposal is consistent with this goal and policy.
Goal 14.3 Promote Tigard citizens’ interests in urban growth boundary expansion
and other regional and state growth management decision .
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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 fo r vertical mixed-use 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
Housing
Capacity
Title 1 requires each city and county to maintain or increase its housing capacity
except as provided in section 3.07.120.
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 unrealistic and out of sync with the market. 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 transformation.
• 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
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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 Greenburg 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.
3) The WSRC Update Project determined that 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 Washington Square Mall and
other large-format retail stores. Note: The WSRC contains some land zoned mixed-use
residential; however, the vast majority of land in the regional center is zoned for mixed -use
commercial and employment uses. As a result, these lands were not included in the City’s 2021
Housing Needs Analysis because, while many different kinds of uses are allowed in these areas—
housing being one of them—housing is not required and, therefore, could not be counted on to meet
Tigard’s future housing needs. As a result, any housing built in these mixed-use commercial and
employment areas will be above and beyond Tigard’s projected housing capacity as identified in the
2021Tigard Housing Needs Analysis.
In closing, the change in housing capacity between existing and recommended future zoning and
regulations in an area that is predominantly zoned for mixed-use development is extremely difficult
to quantify given the number of variables involved. However, the CPA proposal is supported by
the extensive technical analysis completed by the WSRC Update Project that included a code
audit, market study, development feasibility study, and displacement risk study . The proposal is
consistent with Title 1.
Title 6
Centers
The Regional Framework Plan identifies Centers, Corridors, Main Streets and
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, zoning classifications, or development standards for this are a 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.
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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 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 th is 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 for people 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 pu blic 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
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FINDING: Goal 9 calls for diversification and improvement of the economy. The CPA proposal
includes a goal that calls for the City to s upport 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
for policy 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. Most recently, the City completed a Housing Needs
Analysis in 2021 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 Management
Functional Plan regarding housing capacity and with the Metropolitan Housing Rule regarding
residential densities and housing types.
The WSRC Update Project sought to build on this recent work by evaluating how to facilitate the
development of needed housing (i.e., high- and medium-density housing) in more areas of the
WSRC. The findings and recommendations from the WSRC Update Project are reflected in the
CPA proposal and are the result of extensive community engagement and technical analysis,
including a code audit, market study, development feasibility study, and displacement risk study.
The CPA proposal includes goals, policies, and action measures designed to facilitate the
development of needed housing in the WSRC 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 properties will develop
with housing and not commercial-only uses.
3) The WSRC Update Project determined that 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. Note: The WSRC contains some land zoned mixed-use
residential; however, the vast majority of land in the regional center is zoned for mixed-use
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commercial and employment uses. As a result, these lands were not included in the City’s 2021
Housing Needs Analysis because, while many different kinds of uses are allowed in these areas —
housing being one of them—housing is not required and, therefore, cannot be counted on to meet
Tigard’s future housing needs. As a result, any housing built in these mixed-use commercial and
employment areas will be above and beyond Tigard’s projected housing capacity as identified in the
2021Tigard Housing Needs Analysis.
In addition to the recommendations to facilitate the development of needed housing described above,
the CPA proposal also includes goals, policies and action measures to support the development of
affordable housing and prevent displacement of socially vulnerable households in anti-displacement
priority 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 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 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.
The proposal is consistent with this goal.
Goal 12 Transportation
FINDING: Goal 12 calls for "a safe, convenient and economic transportation system" that
addresses the needs of the "transportation disadvantaged." There is good access to the regional
center by car, but walking and biking within the area can be unsafe and uncomfortable. Large
parking lots, highways, busy roads, train tracks, and creeks are difficult barriers to overcom e.
Despite these challenges, it is more important than ever —from a climate-resiliency and equity
perspective—to prioritize funding for transportation improvements for people 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 WSRC 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
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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.
SECTION V. CITY STAFF AND AGENCY COMMENTS
The following agencies, departments, and jurisdictions had an opportunity to review the proposed
Comprehensive Plan and Development Code Amendment:
• City of Tigard Public Works
• City of Tigard Finance
• Oregon Department of Land Conservation and Development (DLCD)
• Oregon Department of Transportation (ODOT)
• Metro
Metro responded by email with a general statement of support, and DLCD responded by email with a
clarifying question. As of the writing of this report, no other agency comments have been received.
SECTION VI. PUBLIC COMMENTS
City staff followed the legislative notice requirements in CDC Section 18.710.110. Notice of the proposed
Comprehensive Plan Amendment and Development Code Amendment was sent to individuals on the
citywide interested parties list and the property owners/managers of Washington Square Mall (Macerich).
Notice was also published in the Tigard Times and on the city’s website. Additional public outreach was
conducted as part of the Washington Square Regional Center Update Project. Further details are provided
earlier in this report in the findings for Tigard Comprehensive Plan Goal 1 (Community Involvement). As
of the writing of this report, no public comments have been received.
SECTION VII. CONCLUSION
The proposed Comprehensive Plan Amendment and Development Code Amendment meets all applicable
provisions of the Tigard Community Development Code, Tigard Comprehensive Plan, Metro Urban
Growth Management Functional Plan, and Oregon Statewide Planning Goals. Therefore, staff recommends
that the Planning Commission recommend approval of the proposed Comprehensive Plan Amendment and
Development Code Amendment to the Tigard City Council as provided by the public hearing process.
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November 8, 2021
PREPARED BY: Susan P. Shanks
Senior Planner
November 8, 2021
APPROVED BY: Tom McGuire
Assistant Community Development Director
ATTACHMENTS:
• Attachment 1: Proposed Tigard Comprehensive Plan Text Amendment
• Attachment 2: Proposed TCDC Chapter 18.670 Text Amendment
• Attachment 3: Draft Final Report, Washington Square Regional Center Update Project, Nov 2021
• Attachment 4: ECONorthwest Memo, Preliminary Recommendations for Future Map and Code
Amendments, Nov 2021
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Page 1 of 9
Tigard Comprehensive Plan
Special Planning Areas | 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 i ntended
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.
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Page 2 of 9
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.
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• 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. The
Fanno Creek Trail is the only continuous north-south route available 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.
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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.
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Page 5 of 9
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 housing or regulated affordable housing.
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
housing or regulated affordable housing.
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. Identify and commit financial resources on an ongoing basis to support development of affordable
housing, prevent residential displacement, improve the active transportation network, and expand
green space for recreation. Consider setting aside development fees generated by private
development, such as system development charges, at levels that are proportional to the private
investment projected in the area.
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.
PLANNING COMMISSION DRAFT 11/15/2021
Page 6 of 9
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
or across Greenburg Rd for people traveling to Fanno Creek 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,
including park and ride facilities, that offer a competitive travel option for workers and residents and
results in less vehicle miles traveled per capita and transportation-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.
vi. Extend Lincoln Street to create a local road connection between Locust Street and Oak Street.
vii. Advocate for Washington County to complete pedestrian and bicycle facilities on 90th Ave and
evaluate the corridor 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 separated bike lanes, sidewalk infill, and enhanced crossings.
x. 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.
xi. 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.
PLANNING COMMISSION DRAFT 11/15/2021
Page 7 of 9
GOAL 15.4: Provide recreational opportunities and access to natur e 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.
PLANNING COMMISSION DRAFT 11/15/2021
Page 8 of 9
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.
PLANNING COMMISSION DRAFT 11/15/2021
Page 9 of 9
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
Highyway 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. Advocate for Washington County to prioritize MSTIP funding for Greenburg Rd improvements.
v. Work with Washington County to transfer jurisdiction of Greenburg Rd from the County to the City.
vi. Partner with Clean Water Services to complete the City-led Washington Square Stormwater Retrofit
Project.
PLANNING COMMISSION DRAFT 11/15/2021
Page 1 of 2
Tigard Municipal Code | Title 18
Tigard Community Development Code | 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 standard s:
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 applica tion
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
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.
PLANNING COMMISSION DRAFT 11/15/2021
Page 2 of 2
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.
WASHINGTON SQUARE REGIONAL
CENTER UPDATE PROJECT
November 2021
Draft FINAL REPORT
2 3
TABLE OF CONTENTS
1. INTRODUCTION ...................................... 4
2. PLANNING PROCESS............................... 6
3. WHAT WE LEARNED............................... 12
4. WHAT WE HEARD................................... 22
5. PROJECT RECOMMENDATIONS............ 27
6. PROJECT IMPLEMENTATION................. 46
ACKNOWLEDGEMENTS
AMINA ABDIRAHMAN, RESIDENT
MARI YENI DOLORES, RESIDENT
ROCIO DOLORES, RESIDENT
SABRAH SEIF, RESIDENT
DOLLY SPECHT, RESIDENT, TIGARD COMMITTEE FOR COMMUNITY ENGAGEMENT
JAMIE NOELLE WATSON, RESIDENT, TIGARD PLANNING COMMISSION
MOHAMED BAHAMADI, HAKI COMMUNITY ORGANIZATION
LINDA DOVE, BETHLEHEM HOUSE OF BREAD
RACHAEL DUKE, COMMUNITY PARTNERS FOR AFFORDABLE HOUSING
KATI CLINE, NIMBUS BUSINESS
SCOTT FOUSER, DEVELOPER, ENTREPRENEUR
JEFF GROW, GREENBURG BUSINES
MARIA HALSTEAD, WASHINGTON SQUARE MALL
JACOB KNUDSEN, WASHINGTON SQUARE MALL
GENE TUPPER, NIMBUS BUSINESS
STAKEHOLDER WORKING GROUP
SUSAN P. SHANKS, PROJECT MANAGER
TOM MCGUIRE, ASSISTANT COMMUNITY DEVELOPMENT DIRECTOR
LLOYD PURDY, ECONOMIC DEVELOPMENT MANAGER
DAVE ROTH, SENIOR TRANSPORTATION PLANNER
SCHUYLER WARREN, SENIOR PLANNER
AGNES LINDOR, PROJECT PLANNER
LAUREN SCOTT, COMMUNITY ENGAGEMENT COORDINATOR
DYLAN DEKAY-BEMIS, ECONOMIC DEVELOPMENT COORDINATOR
TIGARD CITY STAFF
BECKY HEWITT, ECONORTHWEST
TYLER BUMP, ECONORTHWEST
OSCAR SAUCEDO-ANDRADE, ECONORTHWEST
JESSICA ZDEB, TOOLE DESIGN
GWEN SHAW, TOOLE DESIGN
KERRY ASZKLAR, TOOLE DESIGN
MARTIN GLASTRA VAN LOON, SERA ARCHITECTS
STEVE FAUST, 3J CONSULTING
ANAIS MATHEZ, 3J CONSULTING
ANNA GORDON, VERDE
PEDRO MORENO VERDE
CONSULTANT TEAM
This project was funded in part by a Metro 2040 Planning and Development Grant
YI-KANG HU, PRESIDENT
NATHAN JACKSON, VICE PRESIDENT
MELANIE BROOK, COMMISSIONER
DARLENE DICK, COMMISSIONER
AHSHA MIRANDA, COMMISSIONER
ALEXANDRIA QUINONES, COMMISSIONER
JOHN ROBERTS, COMMISSIONER
CRAIG SCHUCK, COMMISSIONER
KESHAVAN (K7) TIRUVALLUR, COMMISSIONER
JAMIE WATSON, COMMISSIONER
COLE WHITEHURST, COMMISSIONER
TIGARD PLANNING COMMISSION
JASON B. SNIDER, MAYOR
HEIDI LUEB, COUNCIL PRESIDENT
JOHN GOODHOUSE, COUNCILOR
LIZ NEWTON, COUNCILOR
JEANETTE SHAW, COUNCILOR
AISHIKI NAG, YOUTH CITY COUNCILOR
TIGARD CITY COUNCIL
COMMUNITY MEMBERS/ORGANIZATIONS AND BUSINESSES
MIKE WILLIAMS, CITY OF BEAVERTON
ANNA SLATINSKY, CITY OF BEAVERTON
JEAN SENECHAL BIGGS, CITY OF BEAVERTON
CHRIS FAULKNER, CLEAN WATER SERVICES
BRIAN HARPER, METRO
GLEN BOLEN, ODOT
MARAH B. DANIELSON, ODOT
GUY BENN, TRIMET
FIONA CUNDY, TRIMET
SUZANNE SAVIN, WASHINGTON COUNTY
STEVE KELLEY, WASHINGOTN COUNTY
AGENCY PARTNERS
Cover artwork by Elise Chelak and Spencer West,
SERA Design
54
While the Regional Center spans multiple jurisdictions, this report primarily focuses on the portion of the regional
center within the city of Tigard and the unincorporated portions of Washington County that may someday be part
of the city (i.e., land within Tigard’s urban planning area). For the purposes of this report, this subset of the regional
center is referred to as Tigard’s portion of the WSRC.
The Washington Square Regional Center (WSRC) is located at 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. Washington
Square is one of eight regional centers designated in the Metro
regional growth plans 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. The WSRC is also home to a culturally diverse and growing
community.
The first plan for the Washington Square Regional Center from
1999 envisioned the area as a dense, walkable, and vibrant place
with more housing options, better transit service, and more
urban amenities. The area has made slow progress towards that
vision in the past two decades. Additionally, many things have
changed since the adoption 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
priority for the City, and housing and climate issues have become
more severe.
Recognizing the WSRC’s potential for transformative, equitable,
and sustainable growth, the City of Tigard led a 2020-2021
project to update existing policies and the original land use
and transportation vision. This update project sought to better
align future WSRC development 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. This report summarizes the project’s findings and
recommendations.
INTRODUCTION
PLANNING PROCESS
COMMUNITY ENGAGEMENT STRATEGY
A Stakeholder Working Group (SWG) was convened to provide
feedback to the project team for the duration of the project.
The SWG roster consisted of residents, businesses, service
providers, community organizations, and public agency
partners. This mix was intended to ensure that different types
of stakeholders would hear each other’s perspectives. The
SWG met as a full group 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 participation.
Stakeholder Working Group
An overarching goal of the project was to conduct “robust
business and community outreach to involve the public and
historically marginalized communities, particularly the Metzger
community, so that they may contribute their knowledge
and shape project outcomes.” As a result, the project team
engaged Verde—a community-based organization with
expertise in community organizing 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.
Outreach to the Metzger Community and
Underrepresented Groups
The project’s community engagement strategy included three
major types of outreach and engagement:
The project sought input from a broad group of interested parties
and community members at key milestones. The input from these
activities was balanced with the input received from the targeted
outreach described above.
Broad Public Engagement
ADAPTING TO
ENGAGEMENT DURING A
PANDEMIC
The Washington Square Regional Center Update
Project began in spring of 2020—the early
months of the COVID-19 pandemic. Although the
City remained committed to meeting the goals
of its original community engagement strategy,
the uncertainty associated with the length of the
social distancing requirements, coupled with the
emotional and economic impact of COVID-19
required alternative engagement strategies to
provide meaningful dialogue and input.
The City used the following guiding principles to
develop the alternative engagement strategy:
• SENSITIVE. Sensitive to the larger issues
that the community may be experiencing
because of COVID-19 and the related
economic disruptions.
• SAFE. Safe for all stakeholders and project
team members through social distancing,
direct mailings, and technology.
• SUPPORTIVE. Supportive of those
stakeholders who have historically
experienced barriers to participation and/
or who may currently experience barriers to
participation because of COVID-19 through
financial or technological assistance.
• MEANINGFUL. Meaningful involvement of
stakeholders through a combination of in-
depth one-on-one interactions, small-group
virtual meetings, and short-format surveys.
6 7
8 9
Planning for the future of the Washington Square Regional
Center was a collaborative effort, and gathering meaningful
input from the community was essential to this effort. The
project’s community engagement plan included five rounds of
engagement to gather input at different stages of the project. The
methods varied from one round to the next, allowing the team
to adapt and respond to changes in the pandemic and emerging
project needs. The diagram below shows the five rounds of
engagement that were conducted relative to other project tasks.
The specific methods and types of input gathered in each round
are described as follows:
• Recruitment: City staff and Verde recruited residents,
small businesses, and community organizations to the SWG
and introduced them to the project and their roles and
responsibilities. City staff invited representatives from large
businesses, service providers, and public agency partners to
round out the SWG roster.
• Agency Work Session: The project team met with public
agency partners to solicit information on what may cause or
act as a barrier to change in the WSRC.
Round 1: June - July 2020
• Project Orientation: SWG community members participated
in a project orientation meeting to become familiar with the
virtual platform, build camaraderie, and learn more about
the project in preparation for the first full SWG meeting.
• SWG #1—Project Introduction: The project team provided
a presentation on current land use, housing, and market
conditions, as well as infrastructure conditions and needs.
SWG members discussed what currently works well in the
WSRC and what they would like to see change or improve in
the future.
Round 2: August – September 2020
• Community Interviews: SWG community members and
Verde and City staff conducted phone interviews with
community members in their networks, asking the same
questions discussed at the SWG meeting about what
currently works well in the WSRC and what they would like
to see change or improve in the future. Interviews were
conducted in English, Spanish, and Swahili and garnered
a total of 35 responses. Residents were asked additional
questions about their housing stability to inform work on
residential displacement risk.
• Online Survey: Interested parties were asked the same
questions about what currently works well in the WSRC and
what they would like to see change or improve in the future
via an online survey. Forty-three people participated in the
survey.
• Agency Work Session: The project team met with public
agency partners to discuss and coordinate our Highway 217
crossing plans.
• SWG #2—Sharing Findings and Initial Ideas: The project
team provided a summary of community engagement
results from the interviews and online survey and led a
discussion on initial ideas for updating the land use and
transportation plans for the area. Feedback from the SWG
helped to shape these initial ideas into a set of proposed
recommendations, which were then broadly vetted in an
online open house.
Round 3: October – December 2020
• Community Briefings: City staff presented at seven
community organization meetings on the project and the
upcoming open house. A SWG community member gave
a similar presentation at their neighborhood association
meeting.
• Online Open House: More than 800 people visited the
online open house, which was available in English and
Spanish, to review information and provide feedback about
the proposed WSRC recommendations. More than 230
people provided feedback.
• Culturally Specific Focus Groups: SWG community members
hosted two focus group discussions with their peers: one
with Spanish-speaking community members and another
with Swahili-speaking community members. More than 20
people participated in the focus group discussions.
• SWG #3—Sharing Findings and Recommendations:
The project team provided a summary of community
engagement results from the online open house and focus
groups and facilitated a roundtable discussion to solicit
feedback to further refine the proposed recommendations.
All feedback from Round 4 was used to prepare the project’s
final set of recommendations.
Round 4: February – May 2021
• Project Evaluation: SWG community members participated
in a project evaluation meeting to reflect on their experience
in the project and to help the project team understand what
had (and hadn’t) worked for them from an engagement
perspective. SWG members also reviewed the final set of
recommendations and assessed whether organizational and
communal priorities were reflected in them.
• Agency Review: The project team met with public agency
partners to review project recommendations.
• Final Project Briefings: City staff presented the final set
of project recommendations to the Planning Commission
and City Council. This concluded a series of briefings on the
project to these groups. In total, staff briefed the Planning
Commission six times and City Council four times over the
course of the project.
Round 5: August – December 2021
COMMUNITY ENGAGEMENT PROCESS
FALL
WINTER
SPRING
SUMMER
FALL
WINTER
10 11
TECHNICAL ANALYSIS
As a complement to the project’s community engagement
efforts, the project team conducted extensive analysis of the
built environment, market conditions, and the policy and
regulatory context of the WSRC to understand existing conditions,
opportunities, and challenges.
The analysis included in each stage of the project that informed
the recommendations in this report is summarized below.
• Analysis of resident demographics and employment
composition and trends
• Evaluation of current land uses and development intensity
• Identification of nonconforming development and uses
DOCUMENT EXISTING CONDITIONS
• Summary of challenges with implementation of the original
plan
• Analysis of market conditions for a range of development
types, including apartments, for-sale housing, office, and
retail
• Identification of potential redevelopment sites and site-
specific development constraints
• Review of regulatory obstacles to development in the area
• Documentation of existing multimodal transportation
conditions, including gaps and barriers
• Assessment of infrastructure needs, including stormwater
and public utility deficiencies
• Evaluation of residential displacement risk in the WSRC and
adjacent Metzger neighborhood
• Exploration of Transit-Oriented Development opportunities
specific to the Washington Square Mall site
EVALUATE OPPORTUNITIES, NEEDS AND CHALLENGES
• Identification of potential land use changes that align with
findings and vision
• Study of potential transportation improvements to
Greenburg Road to improve access between the Metzger
neighborhood and mall
• Further evaluation of active transportation opportunities
and options to improve access to parks and open space
• Discussions with staff about land use recommendations and
potential housing and economic development strategies
DEVELOP FUTURE LAND USE AND TRANSPORTATION
IDEAS
DOCUMENT EXISTING CONDITIONS
EVALUATE OPPORTUNITIES, NEEDS AND CHALLENGES
DEVELOP FUTURE LAND USE AND TRANSPORTATION IDEAS
PRODUCE RECOMMENDATIONS REPORT
TAKE RECOMMENDATIONS TO CITY COUNCIL
2020
SPRING
SUMMER
2021
2022
Who works here?
22-33%
Salaries
across all
industries
have declined
between 22
- 33% since
2003.
14,456
Total Jobs
994
Total
Businesses
Average Salary 2003-2018
Share of Employment by Sector 2003-2018
$56,182$73,549
$20,257$30,264
$67,922$88,269
15%
36%
49%
21%
37%
42%
Manufacturing & Skilled Trade
Retail & Consumer-Related
Technical & Professional
2018 2003
15%
36%
49%
21%
37%
42%
Manufacturing & Skilled Trade
Retail & Consumer-Related
Technical & Professional
2018 2003
40% Renters
63% Renters
WSRC
City of Tigard
Who lives here?
Data Source: 2010 and 2017
American Community Survey
WSRC Data: Census Tract 309
Block Group 2
Data Source: OR Emp Dept QCEW Data
Data Source: Tigard GIS and Metro RLIS
How is land used?
Growing
Population
12 13
WHAT WE LEARNED
DEMOGRAPHICS AND EMPLOYMENT
The regional center is home to roughly 2,000 people. The area’s
population is more diverse than the city as a whole and has
above-average indicators of potential disadvantage. Compared to
the city overall, the regional center is home to more renters and
households with low and moderate incomes.
RESIDENT DEMOGRAPHICS
CURRENT LAND USE AND RECENT
DEVELOPMENT
The WSRC study area is largely developed. Most of the land
in the regional center is devoted to commercial activity.
Almost all commercial buildings were built before the
original 1999 plan. There are very few vacant buildable
sites remaining. Much of the vacant land in the area is
constrained by wetlands or lacks transportation access.
The area remains auto-oriented, and there has been
some recent large-format retail development, including a
car dealership. Still, many of the existing surface lots are
oversized relative to parking needs. There has also been
some residential infill development over the years since the
plan was adopted, including one recent and relatively large
multifamily development.
57%
Commercial 19%
Residential
4%
Vacant
20%
Open Space/
Public Land
Fanno
Creek
SSS
SSS
HALLBLVD
P A C IF IC H W Y
DENNEY RD
GREENBURGRDSCHOLLSFERRYRDTIEDEMANAVEALLENBLVD
92NDAVEGARDEN HOM E RD
GREENWAY121ST AVEO LESO N R D
217
Red Tail
Golf Course
Transit
Center
Fanno
Creek
Limited
Crossings
Lincoln
Center
Metzger
Elementary
School
WES
Station
WA
Square
Mall
The number of employees and businesses in the regional center
has declined by about 12 percent since 2003. Salaries across all
industries have declined as well. The lowest-paid employees—
those working in the retail and consumer-related industry—
made up roughly one-third of the 2018 workforce (totaling over
EMPLOYEES AND BUSINESSES
5,000 employees) and earned 33 percent less than their 2003
counterparts. Lincoln Center consistently has the highest number
of employees per acre, and Washington Square Mall consistently
employs the greatest number of people.
Higher Risk Area:
Some rental houses on Oak Street and
Hall Blvd could be redeveloped with
higher-density housing, potentially
displacing a small number of renters.
Higher Risk Area:
Rental units closest to the mall could
potentially experience greater market
pressure over time to raise rents or
redevelop.
Lower Risk Area:
Rental units further from the mall are
less likely to experience an increase
in market pressure to raise rents or
redevelop.
Potential Effects of Future Changes
on Residents in the Washington Square
Regional Center (WSRC)
The conditions that could cause current residents
to be displaced from their homes are already
present here.
Additionally, major redevelopment by property
owners is expected in the future, and the City
is hoping to improve streets, housing options,
and access to parks in the area. When a place
experiences these kinds of changes, current
residents may face higher risk of displacement if:
⊲Rents rise faster than they can afford, or
⊲Rental property owners require them to
move to redevelop or remodel.
Compared to the City overall, this area has a
higher share of renters, low-income households,
and historically-marginalized community
members. These households tend to be at higher
risk of displacement than other households.
Hall
B
l
v
d
.
Locust St.
Metzger
Park
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Washington Square Mall
Hall Blvd.Tigar
d Heritage Trail
Oak St.Fanno Creek
T
r
ail
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ Residential Displacement Risk
Higher Risk Area
Lower Risk Area
Major redevelopment is likely to occur on and
around the mall property. This is expected to
start soon but will happen over many years.
Legend
City Boundary
Green Spaces
Metzger Elem. SchoolTigardCITY OF
Higher Risk Area:
Some rental houses on Oak Street and
Hall Blvd could be redeveloped with
higher-density housing, potentially
displacing a small number of renters.
Higher Risk Area:
Rental units closest to the mall could
potentially experience greater market
pressure over time to raise rents or
redevelop.
Lower Risk Area:
Rental units further from the mall are
less likely to experience an increase
in market pressure to raise rents or
redevelop.
Potential Effects of Future Changes
on Residents in the Washington Square
Regional Center (WSRC)
The conditions that could cause current residents
to be displaced from their homes are already
present here.
Additionally, major redevelopment by property
owners is expected in the future, and the City
is hoping to improve streets, housing options,
and access to parks in the area. When a place
experiences these kinds of changes, current
residents may face higher risk of displacement if:
⊲Rents rise faster than they can afford, or
⊲Rental property owners require them to
move to redevelop or remodel.
Compared to the City overall, this area has a
higher share of renters, low-income households,
and historically-marginalized community
members. These households tend to be at higher
risk of displacement than other households.
Hall
B
l
v
d
.
Locust St.
Metzger
Park
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Washington Square Mall
Hall Blvd.Tigar
d Heritage Trail
Oak St.Fanno Creek
T
r
ail
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ Residential Displacement Risk
Higher Risk Area
Lower Risk Area
Major redevelopment is likely to occur on and
around the mall property. This is expected to
start soon but will happen over many years.
Legend
City Boundary
Green Spaces
Metzger Elem. SchoolTigardCITY OF
14 15
DISPLACEMENT RISK
With new development occurring in the WSRC, some existing
residents in and adjacent to the regional center may be at risk
for displacement. Displacement occurs when a household is
forced to relocate as a result of changes in the housing market,
either because their housing is being redeveloped or undergoing
major renovations or because their housing costs are increasing
faster than they can afford. Renters are at greater risk because,
even after the passage of statewide renter protections, they are
still subject to changing market conditions and property owners’
decisions about redevelopment, remodels, rent increases, etc.
WHAT IS DISPLACEMENT AND WHO IS AT RISK?
Possible changes to the WSRC area—public investment in
transportation and public amenities, changes to development
regulations, and incentives for mixed-use development—all have
the potential to make the area more desirable. This is intentional,
but it may also attract more affluent households to the area,
which can impact existing residents and businesses. While the
possible changes are not likely to cause substantial near-term risk
of displacement, they could increase market pressure on existing
housing over the long-term. However, if the area becomes more
attractive (with or without public support) and new housing is not
built, this could have an even greater impact on rents for existing
housing.
DISPLACEMENT VULNERABILITY AND POTENTIAL
EFFECTS FROM THE PLAN
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ
In Residential Areas:
Opportunity for infill housing
at a variety of scales.
The market will
likely support:
• 2–3 story apartments
• 4–6 story apartments
• Attached and detached homes on small lots
Development Opportunities & Challenges
Hal
l
B
l
v
d
.
Locust St.
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Hall Blvd.Oak St.Fanno Creek
T
r
ail
Metzger
Park
Tigar
d Heritage Trail
Around the Mall:
Opportunity for large-scale redevelopment that is walkable, reinforces identity as regional destination, and supports a broader mix of uses and public amenities.
In Commercial/Employment Areas:
Opportunity for reuse and redevelopment of vacant and underutilized properties.
The market will likely support:
• New car dealerships
• Light manufacturing and industrial uses in existing buildings
• Retail and entertainment uses in new or existing buildings
TigardCITY OF
Legend
City Boundary
Green Spaces
Commercial/Employment Areas
Around the Mall
Residential Areas
Challenges for Development:
• Minimum height and density requirements are too high in some areas
• Minimum parking requirements increase costs and consume land
• Many light manufacturing uses not allowed in employment areas
• Major redevelopment requires substantial private investment and a strong market
The market will likely support:
• New apartments with ground-floor commercial uses (4–7 stories now, possibly more in the future)
• New office buildings (2–4 stories now, possibly more in the future)
• Redesigned retail and entertainment spaces
• Conversion of retail spaces to other uses
Washington Square Mall
Metzger Elem. School
16 17
MARKET CONDITIONS AND DEVELOPMENT
OPPORTUNITIES
Recent retail trends suggest dramatic shifts occurring in the
suburbs, especially around suburban shopping centers and malls.
The retail industry has shifted away from brick-and-mortar stores
to online shopping, leading to closures of big-box retail stores and
an increased demand for urban-style living and experiential and
entertainment retail. The COVID-19 pandemic has exacerbated
these retail trends but is also disrupting experiential retail and
restaurants at present. Overall demand for retail space is likely
to hold or decline, but some new, smaller retail spaces could be
built (on their own or as part of a mixed-use development) that
are better tailored to the format and amenities that are currently
in demand.
A CHANGING RETAIL LANDSCAPE
New flex or industrial development is unlikely in the WSRC due to
a lack of vacant sites large enough for this type of development,
which typically can’t afford the cost of redevelopment, and traffic
congestion on Highway 217 that makes the area less attractive to
production and distribution businesses. Demand for the existing
flex and industrial buildings is likely to shift toward other types
of businesses that need low-cost flexible space, such as repair
businesses, fitness and recreation uses like gyms, and smaller
e-commerce and distribution-related companies.
The existing office parks in the WSRC have lower rents and higher
vacancy rates than some adjacent employment areas (e.g., Kruse
Way), indicating reduced demand from traditional office users,
such as professional services companies. Some may continue to
transition to other types of businesses and organizations (e.g.,
specialty retail, childcare, and religious institutions) while others
may be modernized to attract new office tenants, particularly if
the area becomes more desirable.
EMPLOYMENT AREAS IN TRANSITION
Recent and pending developments show demand for residential
development (apartments, row houses, and detached houses)
that is consistent with the vision for the area. There are
smaller-scale residential infill opportunities in the surrounding
neighborhoods that could support medium-density housing if
permitted by zoning.
RESIDENTIAL INFILL POTENTIAL
Most large-scale redevelopment opportunities in the study area
are on large commercial sites with underutilized surface parking
lots, such as the Washington Square Mall and around the edges
of the mall on SW Greenburg Road and SW Hall Boulevard. The
mall site itself offers the greatest potential for redevelopment.
MIXED-USE (RE)DEVELOPMENT POTENTIAL
OBSTACLES TO DEVELOPMENTThe mall owners will need to find other uses to keep the mall
successful as times get increasingly challenging for retailers.
Opportunities exist in the mall’s parking lots to leverage both new
and existing development by developing a master plan. The mall
owners have already proposed redevelopment on the southern
portion of the site, with a second phase potentially including
residential development. Over the long term, this redevelopment
could expand to include a mix of uses, such as office, residential,
retail, entertainment, and hospitality. These types of amenities
and a concentration of activity could help support both residential
and commercial development throughout the WSRC.
A wide range of development types and scales are allowed
under the existing zoning in the WSRC, from single-family
homes to 20-story towers, with taller mixed-use buildings
and higher-density housing and office buildings planned for
much of Tigard’s portion of the WSRC. However, many of the
intended types of development would be difficult to develop
today due to the costs of high-rise construction and the
challenges associated with developing mixed-use buildings.
In addition, high parking requirements, lot coverage, and
landscaping requirements make high-density development less
efficient and harder to build, while lower-density developments
(including townhomes, low-rise apartments, and single-story
retail) often don’t meet the existing minimum density and
height requirements intended to encourage higher-density
development.
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQWASQ
Hal
l
B
l
v
d
.
Locust St.
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Hall Blvd.Oak St.
Washington Square MallFanno Creek
T
r
ail
Tigar
d Heritage Trail
Metzger
Park
Transportation Opportunities & Challenges
Safe Routes to School project will make
Locust Street safer for walking
ODOT Hwy 217 project will improve sidewalks
and bike lanes on Hall Blvd overcrossing
New planned parks
Few sidewalks and a disconnected street network
make walking difficult in Metzger and around the Mall
Few crossings and gaps in sidewalks, bike
lanes, and lighting on Greenburg Road and
Hall Blvd make it unsafe to reach parks,
transit, services, and jobs by foot or bike
Area served by many bus lines but poor
pedestrian connections to transit center
Park and ride is 0.4 miles from transit center
Scholls Ferry Road interchange area very
inhospitable for people on foot or bikes
Fanno Creek, railroad, and Hwy 217 create
significant physical barriers for connectivity
Trail crossing improvements at Scholls
Ferry Rd will avoid flooding and
provide year-round access
Redevelopment of Sears site will include
sidewalks and bike lanes on new streets
ODOT Hwy 217 project will improve sidewalks
and bike lanes on Hall Blvd overcrossing
TigardCITY OF
Existing access to Fanno Creek Trail
and Tigard Heritage Trail
Legend
City Boundary
Green Spaces
Opportunity
Challenge
Metzger Elem. School
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQWASQ
Hal
l
B
l
v
d
.
Locust St.
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Hall Blvd.Oak St.
Washington Square MallFanno Creek
T
r
ail
Tigar
d Heritage Trail
Metzger
Park
Transportation Opportunities & Challenges
Safe Routes to School project will make
Locust Street safer for walking
ODOT Hwy 217 project will improve sidewalks
and bike lanes on Hall Blvd overcrossing
New planned parks
Few sidewalks and a disconnected street network
make walking difficult in Metzger and around the Mall
Few crossings and gaps in sidewalks, bike
lanes, and lighting on Greenburg Road and
Hall Blvd make it unsafe to reach parks,
transit, services, and jobs by foot or bike
Area served by many bus lines but poor
pedestrian connections to transit center
Park and ride is 0.4 miles from transit center
Scholls Ferry Road interchange area very
inhospitable for people on foot or bikes
Fanno Creek, railroad, and Hwy 217 create
significant physical barriers for connectivity
Trail crossing improvements at Scholls
Ferry Rd will avoid flooding and
provide year-round access
Redevelopment of Sears site will include
sidewalks and bike lanes on new streets
ODOT Hwy 217 project will improve sidewalks
and bike lanes on Hall Blvd overcrossing
TigardCITY OF
Existing access to Fanno Creek Trail
and Tigard Heritage Trail
Legend
City Boundary
Green Spaces
Opportunity
Challenge
Metzger Elem. School
18 19
TRANSPORTATION CONDITIONS
There is good access to the WSRC from around the region,
especially by car. However, travel within the area is difficult for all
modes of travel, particularly for people walking and biking, due
to barriers created by existing development, major roads, train
tracks, and Fanno Creek.
The bike and pedestrian networks are disconnected and, in some
places, nonexistent. Existing bike lanes have gaps and difficult
intersections. Bike lanes, where present on higher-speed, higher-
volume roads, are not comfortable for most riders. There are
few sidewalks within the Metzger neighborhood, near the Mall,
around the WES Transit Center, or in the Lincoln Center office
park. The Fanno Creek Trail is the only continuous north-south
route available for people walking and biking. Existing crossings
of Highway 217 offer narrow sidewalks next to high-speed traffic,
making walking unpleasant.
Transit service is present but poorly integrated. The area is served
by multiple bus lines and the WES commuter rail, but the WES
station and the 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. In addition,
the Southwest Corridor Light Rail Project is being planned
elsewhere, making the WSRC one of two regional centers not
served by light rail.
Planned projects for the WSRC would address many of these
issues, but many of the recommended transportation and transit
projects from the original plan have not been implemented due to
cost, complexity, or controversy.
2120
WATER, SEWER, AND STORMWATER
INFRASTRUCTURE
Multiple public agencies provide public utility infrastructure in the
area. The Cities of Tigard and Beaverton share responsibility with
the Tualatin Valley Water District for water and with Clean Water
Services (CWS) for sewer and stormwater.
There are several infrastructure deficiencies that could create
barriers for (re)development in the WSRC in the near and
midterm:
• Stormwater: Most existing development in the WSRC, being
originally built when there were minimal (if any) stormwater
regulations, is far from meeting current stormwater
standards. The large parking lots and buildings, which block
rainwater from filtering into the ground, increase the need
for stormwater treatment (to remove pollution and improve
water quality) and detention (so water reaches streams
gradually). Redevelopment of these impervious areas will
need to meet current stormwater standards, which will be
challenging due to the lack of open space and vacant land for
stormwater facilities. However, there may be opportunities
for regional or shared facilities and for incorporating
stormwater into landscape features on the mall site and
other large properties as redevelopment occurs.
• Sewer: Two main CWS sewer lines (the Fanno Creek and
Metzger Interceptors) currently have insufficient capacity,
which may restrict certain development. Future development
should look into any downstream deficiencies and work with
Tigard and CWS on needed improvements.
IMPLEMENTATION CHALLENGES
Implementation of the original plan from 1999 has been
challenging. Key reasons include:
• The regional center is large and spans three jurisdictions.
Planning for the area is not well coordinated.
• Existing zoning and development standards adopted
following the original 1999 plan were intended to facilitate
more intense mixed-use, pedestrian-oriented development,
but some standards may be problematic. In addition, more
than a dozen zones regulate development in the area.
• There is no dedicated funding source to build the original
plan’s recommended projects, and there are competing
demands for public investment from both Beaverton and
Tigard. Downtown Beaverton, Downtown Tigard, and the
Tigard Triangle have been the focus of recent planning
initiatives and public investments, which will likely attract
private investment to these areas over the WSRC.
Community input guided and shaped the recommendations.
Several themes stood out for the features that stakeholders and
community members valued in the WSRC:
• Diverse, family-friendly, and safe community
• Great location for freeway access
• Great access to shopping and services
The graphics to the right summarize community and stakeholder
desires for the future of the area.
WHAT WE HEARD
Address traffic issues
• Address speeding through the neighborhood, especially on 90th
Avenue
• Evaluate intersection operations on Greenburg near Hwy 217
interchange to maximize through and side street traffic movement
• Evaluate left turn locations into and out of mall property along
Greenburg
Better walking and biking facilities thorugh the neighborhood and
mall area and to parks, trails, and transit
• Fill in sidewalk and bike lane gaps on major streets
• Add more crossings on major streets, especially to transit stops,
mall, and parks
• Add more lighting along transit streets, particularly along
Greenburg Rd in front of the cemetery, and at bus stops for transit
users and pedestrians
• Add wayfinding signage to major destinations and stores
• Create a safe and easy way to get across Hwy 217 to access parks,
trails, and Downtown Tigard
More parks and green space
• Require green space with commercial redevelopment, especially
on the mall property
• Add landscaped areas next to sidewalks wherever possible
• Create more kid-friendly outdoor spaces
More Housing
• Actively support and encourage more affordable housing options
and more large-household housing options
• Allow a broader range of housing types, not just apartments, to
address market demand and community housing needs that fit
with the scale of existing housing in the area
More business diversity and commecial vitality
• Actively support bringing a grocery store and multicultural
shopping and dining options to the area
• Actively support and encourage redevelopment of mall parking
lots
• Remove barriers to filling vacant buildings
22 23
COMMUNITY VALUES, DESIRES AND
CONCERNS
OVERVIEW
The interviews conducted during the project show that
many area renters may be vulnerable to displacement.
While homeowners who participated in interviews generally
reported feeling stable and experiencing minimal housing
cost increases, most renters who participated expressed
more concerns. Most renter participants said they felt stable
at the moment but weren’t sure about the longer term due
to rising rents/housing prices or, in some cases, non-COVID-
related job losses, property management issues, and/or
family situations. Many reported recent increases in housing
costs and struggling to afford housing in the past year.
HOUSING STABILITY
EVALUATING OUR
ENGAGEMENT METHODS
SWG community members said that group
orientation prior to meeting with the full
SWG was appreciated and helped people feel
comfortable. The stipend that was provided
to honor their time participating in the
project was very helpful for them, especially
during the pandemic. Doing outreach to their
communities using a multilingual interview
tool and focus groups was a good way to bring
their communities’ voices into the project.
In addition, providing timely, in-language
communications and understanding each
member's communication preferences was
key. SWG members said that they would like to
stay engaged with the City on future projects to
make their voices heard and continue learning.
WHAT DO YOU LIKE ABOUT YOUR NEIGHBORHOOD
AND THE WASHINGTON SQUARE AREA? WHAT
WOULD YOU LIKE TO SEE CHANGE?
24 25
“I’ve been a community leader
for decades and this is the first
time I was actively invited to
participate in something I am
passionate about. In the past, I
had to seek it out. The process
was good for me to witness
and then go back to share
information with people from a
first-person basis and say there
is a process, the City does listen.”
“I would like to see more
affordable housing for people
who don’t earn a lot.”
“Me gusta el mall de
Washington Square. Es muy
conveniente para hacer
compras y tiene un ambiente
familar”
“We would like more accessible
public transportation that
connects with the MAX and a
safer way to cross HWY 217”
• Continue to prioritize high-density, mixed-use development
on and around the mall site, recognizing that mall
redevelopment is the primary opportunity for regional center
transformation.
• Seek opportunities to partner with and leverage mall
redevelopment to support community desires for open
space, stable housing, and diverse businesses.
• Rightsize 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 and expanding opportunities for new
businesses to reuse existing buildings.
• Focus on achievable, high-priority transportation
improvements to make it safer and easier for pedestrians
and cyclists to get to transit, schools, parks, trails, jobs, and
services.
• Support residents and businesses who need access to low-
cost housing and commercial space to remain and thrive in
the regional center.
PROJECT
RECOMMENDATIONS
LAND USE01
The core recommendations are organized by five topics:
The graphics that follow summarize the recommendations for
each topic area.
02 HOUSING
03 BUSINESS AND ECONOMIC
DEVELOPMENT
04 TRANSPORTATION
05 PARKS, OPEN SPACE AND RECREATION
26 27
The Washington Square Regional Center of the future is a multicultural hub of activity that is accessible by multiple modes of
transportation from across the region. It is easy and comfortable for people to travel by bus, commuter rail, foot, or bike to reach
jobs, services, parks, schools, and local amenities. Large parking lots are redeveloped with new buildings at a variety of heights that
connect to wide sidewalks and inviting public spaces. New development creates a greener urban environment that benefits people,
habitat, and streams. Large and small businesses have opportunities to locate here and to grow and evolve in place. These changes
make the area more attractive, but existing communities of color are not priced out as the area redevelops. All are welcome and
have the opportunity to call this area home.
CORE RECOMMENDATIONSGUIDING PRINCIPLES
A REFINED VISION
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ Land Use Recommendations
Hall
B
l
v
d
.
Locust St.
Crescent
Grove Cemetery
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Hall Blvd.Oak St.Fanno Creek
T
r
ail
Metzger
Park
Tigar
d Heritage Trail
Foster a range of housing options
that meets the needs of the community, respects the scale
of existing housing, and acknowledges market realities
Increase opportunities for new and existing businesses
in response to business needs
and the changing economy
TigardCITY OF Legend
City Boundary Green Spaces
Washington Square Mall
Metzger Elem. School
LAND USE RECOMMENDATIONS01
28 29
(To be determined w/ future project)
Mixed-Use Employment
Mix of commercial and light
industrial uses with option for
housing on upper stories
⊲ 1–3 stories
(To be determined w/ future project)
⊲ 1–7 stories
Help the mall transform into adense, walkable, and vibrant place
recognizing that mall redevelopment is the
primary opportunity for regional
center transformation
Mixed-Use Commercial
Wide range of stores and services
with high-density housing and
pedestrian amenities
⊲ 1–12 stories
(Limits on new 1-story commercial
buildings)
Residential
Low density housing
⊲ 1–3 stories
Mixed-Use Residential
Medium density housing with
option for ground floor commercial
⊲ 1–3 stories
(4 stories if affordable housing or
ground floor commercial provided)
Mixed-Use Residential
High density housing with option
for ground floor commercial
⊲ 3–7 stories
Recognize Hall Blvd “main street”
area by applying new land use designation
Neighborhood Commercial
Mix of small-scale businesses with
option for housing on upper stories
⊲ 1–2 stories
(3-4 stories if upper-story housing
provided)
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ
Hall
B
l
v
d
.
Oleson
Rd.
Green
b
u
r
g
R
d
.Scholls Ferry Rd.Scholls F
e
r
r
y
R
d.Fanno Creek
Tr
a
il
Tigar
d
Heritage Trail
Metzger
Park
Support rental housing stability
f Adopt local tenant protections to
supplement statewide protections
f Create a housing preservation fund
f Prioritize existing apartment renters in
displacement risk areas (see map)
Support the development of more affordable housing
f Continue to exempt affordable housing
projects from some city fees
f Provide height bonuses for affordable
housing projects
f Help fund affordable housing projects with
development fees generated by private
development that is proportional to the
private investment projected in the area
Legend
City Boundary Green Spaces Metzger Elem. School
Near-term anti-displacement priority area
Longer-term anti-displacement priority area
Washington
Square Mall
217
Oak St.
Locust St.Greenburg Rd.Hall Blvd.
Support the development of a range of housing types
f Remove regulatory barriers to medium-
and high-density housing development
f Create a revolving loan fund for middle
housing development that benefits
moderate-income households
Housing Recommendations
TigardCITY OF
Housing allowed on upper floors
above businesses
Allow Housing Everywhere
Housing allowed by itself and on
upper floors above businesses
Housing allowed by itself
HOUSING RECOMMENDATIONS02
30 31
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ Business Recommendations
Ha
l
l
B
l
v
d
.
Locust St.
Crescent
Grove Cemetery
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Hall Blvd.Oak St.Fanno Creek
T
r
ail Metzger
Park
Tigar
d Heritage Trail
Support Hall Blvd businesses
⊲Change zoning to support existing
neighborhood-scale commercial area
⊲Explore feasibility of community
commercial investment pilot project
⊲Explore interest in Oregon “Main Street”
designation for Hall Blvd
Incentivize ground floor commercial uses below housing
⊲Offer height bonuses to residential
mixed-use projects in medium-density
residential areas
TigardCITY OF Legend
City Boundary Green Spaces
Washington Square Mall
Metzger Elem. School
Support mall redevelopment
⊲Allow buildings at a variety of heights,
including single-story buildings
⊲Allow a broader range of businesses that are a
good fit in a walkable urban environment
⊲Reduce parking requirements
Foster economic growth byremoving regulatory barriers
⊲Allow more types of businesses
⊲Allow businesses to more easily expand
their operations and grow in place
Facilitate business diversity
⊲Continue to partner with non-profit and
multicultural business partners to support
women- and minority-owned businesses
⊲Explore interest in a business incubation
program to grow the local labor and supply chain
⊲Cultivate a variety of resources for small
businesses, such as a list of small business
advisors
BUSINESS AND ECONOMIC DEVELOPMENT
RECOMMENDATIONS03
32 33
217
217
99W
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ
217
Hall
B
l
v
d
Metzger
Park
Oleson RdWashington Dr90th AveGre
e
n
b
u
r
g
R
d
North Dakota St 95th AveTiedeman AveGreenburg RdScholls Fe
r
r
y
R
d
Washington
Square Mall
Hall BlvdTigard He
ritage Trail
Oak St
Locust StFanno
C
r
e
e
k
T
r
a
i
l
Transportation Network Recommendations
TigardCITY OF
1 6
7
Extend Lincoln St south and reclassify as a
local street. In the near-term, pave existing soft
surface trail.
8
Complete pedestrian and bicycle facilities on
90th Ave. Reclassify as a neighborhood route
and evaluate for Neighborhood Greenway
treatments.
9
Study feasibility of adding westbound left turn 10
west of Montage Ln.
11
Improve the street network with mall
redevelopment. 12
13
Modify northbound bike lane on Scholls Ferry Rd
to improve safety.14
2
3
4
5
1
12
13 11 10
9
8 6
7
14 4
2
3
5
Complete pedestrian and bicycle facilities on Oak St,
including multi-use path and intersection improvements
at Greenburg Rd, Hall Blvd, and 87th Ave.
CT
W
Priority Projects
North Dakota St
3
Location of
upcoming
circulation
study
Tiedeman AveGr
e
enburg Rd
Transit Center
WES Station
TC
W ArterialCollectorNeighborhood Route
Street ClassificationsMetzger Elementary School
City Boundary
Alternative Connections
Future Street
ParkFuture Park
Legend
TRANSPORTATION RECOMMENDATIONS04
34 35
Enhance pedestrian and bicycle safety and
access along Hall Blvd, such as the provision of
enhanced mid-block crossings at key locations.
Study the feasibility of a pedestrian and bicycle
connection between Hall Blvd and the future
park.
lane on Hall Blvd at 90th Ave.
Pursue a publicly accessible pedestrian and
bicycle connection at the site on Greenburg Rd
Improve pedestrian access to transit and
consider transit service and bus stop changes
with mall redevelopment.
Enhance pedestrian and bicycle safety and comfort
along Greenburg Rd through measures such as
separated bike lanes, sidewalk infill, and enhanced
crossings. Pursue jurisdictional transfer from
Washington County.
Improve pedestrian and bicyclist safety
and access along Greenburg Rd at Hwy 217
interchange.
Study the feasibility of alternative pedestrian
and bicycle connections to Fanno Creek Trail,
including a new Hwy 217 overcrossing at 95th Ave
and an off-street connection through the future
park (see inset map).
» This study should build on the upcoming North
Dakota/Tiedeman/Greenburg circulation study.
Improve pedestrian and bicycle safety and access
to and across Hall Blvd near Metzger Park.
» Evaluate need for traffic control at Washington Dr.
» Evaluate feasibility of pedestrian connection
between Borders St and Hall Blvd.
WASHINGTON SQUARE
REGIONAL CENTERREGIONAL CENTER
SQ
WA SQ
Hal
l
B
l
v
d
.
Locust St.
Oleson Rd.
Greenb
u
r
g
R
d
.Greenburg Rd.Scholls Ferry Rd.Scholls Fe
r
r
y
R
d.
217
Hall Blvd.Oak St.
Washington Square MallFannoCreek
T
r
ail
Tigar
d
Heritage Trail
Metzger
Park
Parks, Open Space, and Recreation Recommendations
TigardCITY OF
Improve access to parks and
recreational opportunities
Ensure the mall includes
public outdoor space with mall
redevelopment
Study the feasibility of adding
stormwater facilities that also provide
public open space, in cooperation
with private property owners
Improve Metzger School Park, in
partnership with Tigard-Tualatin
School District
Explore ideas for wetland
restoration and limited public
access, in cooperation with private
property owner
Legend
City Boundary Green Spaces Future ParkMetzger Elem. School
➊
➎
➎➎➏
➐
➊➊
➋
➋➋
➌
➌➌
➍
➍➍
Expand and enhance parks
and open space
➏➏
➐➐➐➐****
**Potential Bike/Ped Loop
Provide access to Metzger Park
across Hall Blvd.
(see Transportation recommendations)
Establish a clear and safe ped/bike
route on quiet streets that connects
neighborhood parks and Fanno Creek
Trail, in partnership with Washington
County and Portland
(see Special Study C)
Improve access to future parks from
adjacent neighborhoods
(see Transportation recommendations)
PARKS, OPEN SPACE AND RECREATION RECOMMENDATIONS05
36 37
38 39
SPECIAL STUDIES AND SPECIFIC IDEAS FOR
FURTHER EXPLORATION
During the course of the project, the project team identified
several issues that warranted more detailed study based on
priorities that emerged from community and stakeholder
engagement. These included:
• Special Study A: Opportunities to enhance transit service
and transit-supportive development on the mall site
• Special Study B: Opportunities to improve conditions on
Greenburg Road to make it safer and more comfortable for
pedestrians and bicyclists
• Special Study C: Opportunities to provide safe, comfortable
bicycle and pedestrian routes linking nearby trails, parks, and
schools to enhance access to recreational opportunities and
open space
Highlights from these studies and the ideas that emerged for
further exploration are summarized on the following pages.
EXISTING SITE
HAS SINGLE-USE
BUILDINGS, NO
HOUSING, AND
MINIMAL OUTDOOR
PUBLIC AMENITIES
EXISTING PARKING
LOTS ARE NOT
PEDESTRIAN
FRIENDLY
PLANNED DEVELOPMENTFUTURE CONNECTIVITY CONCEPTTransit-oriented development
(TOD) is an integrated urban
development approach designed
to create walkable and sustainable
mixed-use communities within easy
walking or biking distance of high-
quality frequent transit service.
Washington Square Mall is
planning to redevelop portions of
their property with TOD Design
Principles in mind (see inset), and
TriMet and the City want to support
and encourage this transformation.
EXISTING TRANSIT
CENTER IS AN
ISLAND IN A SEA OF
PARKING
• Seamless multimodal
transfers
• Amenities benefit the mall and
the community
• Integrated with surrounding
neighborhood
• Safe and secure
• Ability to redevelop in phases
TOD DESIGN PRINCIPLES:
• Human-centric design
• Dense, livable, and
complete community
• Equitable, inclusive, and
multicultural community
• High-quality public realm
• Multimodal
transportation options
FUTURE TRANSIT CONCEPT
Buses serve the entire site with
multiple bus stops.
Planned street connections
SPECIAL STUDY: OPPORTUNITIES TO ENHANCE TRANSIT SERVICE AND TRANSIT-
SUPPORTIVE DEVELOPMENT ON THE MALL SITEA
40 41
EXISTING CONDITIONS CROSSING RECOMMENDATIONS
RECOMMENDED STREET DESIGN
SPECIAL STUDY: OPPORTUNITIES TO IMPROVE CONDITIONS ON GREENBURG ROAD
TO MAKE IT SAFER AND MORE COMFORTABLE FOR PEDESTRIANS AND BICYCLISTSB
42 43
• Wider (8’ - 12’) sidewalks on both sides of street, with
landscaping in planting strips or tree wells .
• Safer 7’ bike lanes on both sides of street, with 2’ - 3’ raised
buffers to protect bikes from cars .
• Up to 3 additional crossings with signals and reconstruction
of the existing crossing at Locust St. to improve safety .
• Narrower 11’ vehicle travel and turn lanes to make space for
bike lanes and sidewalks .
• Maintain the same number and type of vehicle lanes as exist
today in most areas, but remove one turn southbound lane/
turn lane between Washington Square Road and Hall Blvd.
• Acquire small amounts of property from owners in key
locations to allow for a consistent design .
• Transfer responsibility for Greenburg Road from Washington
County to City of Tigard .
• Request funding from Washington County’s Major Streets
Transportation Improvement Program .
SUMMARY OF RECOMMENDATIONS
A large variety of businesses are located on both sides of
Greenburg Rd that provide the neighborhood and region with
many jobs and services. New housing is being built on the east
side of Greenburg Rd, and more housing is anticipated on both
sides of the road in the future, most notably on the mall site.
Greenburg Rd is also a transit street, and a regional transit center
is located on the west side of the road.
Today, Greenburg Rd acts as a barrier for people walking and
biking. It is unsafe and uncomfortable because of missing
sidewalks and bike lanes, high traffic volumes, and high travel
speeds. This study recommends redesigning Greenburg Rd so
that it serves as a seam, not a barrier. In order to achieve the
vision for this area, residents, workers, and visitors need to be
able to safely and comfortably reach destinations, including
transit, on both sides of the road, especially as the mall begins to
redevelop.
Walking and Biking Network Opportunities
Existing City or Regional Trail
Tigard
Beaverton
Portland
Park or Plaza
Existing Quiet Connecting Neighborhood Street
Legend
Planned Path Next to Street
Existing or Planned Portland Route
A 4.5-mile loop that connects one plaza, two schools, and
three parks while celebrating nature, community and
history. Filling the network gap in this area would help
students on both sides of the highway, some of whom are
members of the city’s most vulnerable households, walk or
bike safely to school.
The Washington Square area needs more
parks and public open space to
adequately serve existing and future
residents and employees. The area has
very little vacant land, but there are
several nearby parks and trails, as well as
other key destinations community
members want to reach by foot or bike.
The network opportunities identified on
this map leverage existing quiet streets
and trails to create needed access to
recreation opportunities, green spaces,
and other community amenities.
Washington County
For improved access to parks, trails, schools, transit, jobs, and services
WASHINGTON SQUARE
REGIONAL CENTER
SQ
WA SQ
Implementation of this neighborhood
street route requires interjurisdictional
coordination, community engagement,
wayfinding signage, and some street
improvements to make it safe for all users.
This area includes several major barriers for people
walking and biking. It represents a critical gap in the active
transportation network. See Priority Projects 1, 2, and 3 on
the Transportation Recommendations Map for more detail.
0’4,000’
Recommended Connection to Portland Route
School
Metzger-Fowler Loop
A 9-mile loop that utilizes Fanno Creek
Trail and connects neighborhood
parks on existing quiet streets.
Washington Square Loop
METZGER
PARK
FLORENCE
POINTE
PARK
GARDEN HOME
REC CENTER
SENN
PARK
FUTURE PARK
GREENWAY
PARK
DIRKSEN NATURE
PARK
UNIVERSAL
PLAZA
WASHINGTON
SQUARE MALL
DOWNTOWN
TIGARD
HWY 217
HWY 217
HWY 99WScholls Ferry
R
d
Tiedeman AveGreenbug RdGarden Home Rd
Oleson Rd
Taylors Ferry Rd
Multnomah Blvd
74th Ave85th AveHall
B
l
v
d
Denny Rd
Oak St
Landau StFANNO CREEK TRAILTI
G
A
R
D HERITAGE TRAIL
Fowler Middle
School
Elem.tzgerMe
School
Brugger
Neighborhood Greenway
SW Trail #5
SW Trail #3
SPECIAL STUDY: OPPORTUNITIES TO PROVIDE SAFE, COMFORTABLE BICYCLE AND
PEDESTRIAN ROUTES LINKING NEARBY TRAILS AND PARKS TO ENHANCE ACCESS TO
RECREATIONAL OPPORTUNITIES AND OPEN SPACE
C
44 45
Implementation of the original plan from 1999 has been challenging.
Some of the same obstacles remain, including fragmented planning
and leadership with three jurisdictions regulating different parts of
the regional center, lack of a dedicated funding source for needed
infrastructure improvements, major physical barriers that divide the
area, and uncertainty about the extent of the private market’s ability
to deliver transformational redevelopment on key sites.
The overall approach to implementing this Report’s recommendations
is illustrated in the diagram at right. Next steps include:
• Adopting a new set of goal and policies into the Tigard
Comprehensive Plan consistent with the refined vision to guide
future development in the regional center.
• Updating development regulations in the Tigard Community
Development Code to ensure future development is consistent
with the new vision, goals, and policies.
• Aligning City programs and resources to implement project
recommendations such as supporting affordable housing,
funding sidewalk improvements, and cultivating more resources
for small and minority-owned businesses.
• Coordinating with the cities of Beaverton and Portland,
Washington County, and other service providers (such as Clean
Water Services and Tualatin Hills Parks and Recreation District)
to advance planning and implementation for interjurisdictional
projects and programs.
• Outreach to key private property owners to explore potential
partnerships.
IMPLEMENTATION PRIORITIES
Successful implementation of this Report’s recommendations will
depend on sustained commitment by staff and local officials to the
following implementation priorities:
• Interjurisdictional coordination: With multiple jurisdictions
involved, ongoing efforts to engage and partner with Beaverton,
Washington County, and the City of Portland will be needed to
deliver on many of the goals for this area.
• Funding commitments: While the project list is more
focused and realistic than the one in the prior plan, it will still
require resources to make public investments, particularly
improvements to support walking and biking.
• Centering equity: Advancing programs that help stabilize
less-affluent renters, reduce the risk of displacement, and
support diverse business owners in starting and growing
their businesses is important citywide, but it is particularly
important to delivering a future for the area that is both
vibrant and inclusive.
• Leveraging the market: The City will need to be strategic
in seeking opportunities to partner with proponents of (re)
development to deliver community benefits and advance
the vision for the regional center without overburdening
development in ways that hamper investment.
PROJECT
IMPLEMENTATION
TIGARD
COMPREHENSIVE
PLAN
INFRASTRUCTURE PLANS
TRAILS PLAN
TRANSPORTATION SYSTEM
PLAN
PARKS PLAN
STORMWATER PLAN
PROGRAMS
HOUSING
ECONOMIC DEVELOPMENT
REGULATIONS
ZONING MAP
DEVELOPMENT CODE
PUBLIC FUNDING
CAPITAL IMPROVEMENT PLAN
PROGRAM IMPLEMENTATION
PRIVATE FUNDING
PRIVATE DEVELOPMENT
PUBLIC
IMPROVEMENTS,
SUCH AS STREETS
AND PARKS, BUILT BY
THE CITY AND OTHER
PUBLIC AGENCIES
AS FUNDS BECOME
AVAILABLE
FINANCIAL AND
TECHNICAL
ASSISTANCE FOR
BUSINESSES,
RESIDENTS AND
DEVELOPERS
NEW HOUSING
AND COMMERCIAL
BUILDINGS (AND
RELATED PUBLIC
IMPROVEMENTS)
BUILT BY PRIVATE
DEVELOPERS AS THE
MARKET ALLLOWS
WSRC REPORT
46 47
48
ECONorthwest | Portland | Seattle | Los Angeles | Eugene | Bend | Boise | econw.com 1
DATE: November 3, 2021
TO: City of Tigard Planning Commission
CC: Susan Shanks and Tom McGuire, City of Tigard
FROM: Becky Hewitt, ECONorthwest
SUBJECT: WSRC Code Recommendations
Introduction
The Washington Square Regional Center (WSRC) Update Project does not include zoning map
or development code amendments to implement the project’s land use and transportation
policy recommendations at this time. As a result, this memorandum is intended to summarize
the project team’s preliminary recommendations for this future work. The preliminary map
amendment recommendations are from City staff and informed by WSRC Update Project goals,
findings, and recommendations. The preliminary code amendment recommendations are also
informed by WSRC goals, findings, and recommendations, and ECONorthwest’s market and
development feasibility analysis in particular.
There are two projects underway within the City of Tigard to update the Tigard Community
Development Code (code) or the Tigard Zoning Map. These include:
▪ Tigard MADE: An effort to Maintain, Advance, and Diversify Employment in Tigard
through development code and zoning map updates; and
▪ Code updates to comply with Oregon House Bill 2001, which requires updates to some
of Tigard’s regulations for duplexes, triplexes, fourplexes, townhouses, and cottage
clusters.
Because these projects have not yet finalized their code or map updates, this memorandum
identifies where these updates may overlap with future WSRC code or map updates.
Preliminary Map Amendment Recommendations
Development in the WSRC is currently regulated by special Plan District standards within
Chapter 18.670 of the code. This is consistent with how development in other special planning
areas, such as the Tigard Triangle and Downtown Tigard, are regulated. The existing Plan
District standards function like an overlay district in that they modify the underlying zoning
standards rather than replace them entirely.
City staff recommends continuing to use the Plan District approach to regulating WSRC
development and applying a new Washington Square Mixed-Use (WSMU) zone with
subdistricts to regulate the many unique areas within the WSRC. This is illustrated in the
following maps provided by City staff.
ECONorthwest 2
Exhibit 1 shows the proposed preliminary Comprehensive Plan land use designations and Plan
District boundary. This exhibit is consistent with and would implement the recommended land
use policy framework for the WSRC.
Exhibit 1: Proposed Preliminary Land Use Designations and Plan District Boundary
ECONorthwest 3
Exhibit 3 shows the proposed preliminary Washington Square Mixed Use (WSMU) zone
boundary and other zoned areas within and adjacent to the WSRC Plan District.
Exhibit 2: Proposed Preliminary Zoning
ECONorthwest 4
Exhibit 3 shows the proposed preliminary WSMU zone subdistricts. As an alternative to
naming subdistricts based on intended land uses (e.g., Mixed-Use Commercial, Mixed-Use
Employment, Mixed-Use Residential), planning staff recommends using short, place-based
names. This is intended to provide consistency with other subdistricts, such as those within the
Downtown Plan District. In addition, land use oriented subdistrict names could create
confusion with zone names, which are evolving.
Exhibit 3: Proposed Preliminary WSMU Zone Subdistricts
ECONorthwest 5
Preliminary Code Amendment Recommendations
This section provides preliminary recommendations for drafting code amendments for the area
within the proposed WSRC Plan District and WSMU Zone. Areas shown outside the Plan
District and with other zones in Exhibit 1 and Exhibit 2 would have no special or additional
standards beyond those in the applicable base zone.
Allowed Land Uses and Housing Types
Cascade
▪ Many commercial and light industrial uses allowed where all activities are inside a
building or screened by a building
▪ Many civic and institutional uses allowed or conditionally allowed
▪ Sales-oriented retail and personal service uses limited in size (e.g., a maximum between
about 30,000 sf and 60,000 sf per site) unless occupying existing buildings
▪ Vehicle sales allowed within Vehicle Sales subdistrict only
▪ Residential uses only allowed in buildings with non-residential ground-floor uses.
Greenburg
▪ Many commercial uses allowed where all activities are inside a building
▪ Stand-alone commercial uses (except for office) limited in size (e.g., a maximum
between about 20,000 sf and 40,000 sf per site) unless occupying existing buildings or
as part of a Planned Development that includes a mix of uses
▪ Limited light industrial uses allowed or conditionally allowed where all activities are
inside a building
▪ All civic and institutional uses allowed or conditionally allowed
▪ Residential uses allowed as a stand-alone use or in buildings with non-residential
ground-floor uses
▪ Rowhouses allowed as part of a Planned Development only
▪ Vehicle sales allowed within Vehicle Sales subdistrict only
▪ Vehicle Fuel Sales prohibited
Oak and Locust
▪ Residential (all housing types) allowed as a stand-alone use or in buildings with non-
residential ground-floor uses
▪ Limited commercial light industrial uses that are generally compatible with
residential uses (e.g., eating and drinking establishments, personal services, and
retail) allowed on the ground floor of a vertically mixed-use development only
ECONorthwest 6
Hall
▪ Many commercial uses allowed where all activities are inside a building
▪ Limited light industrial uses allowed or conditionally allowed where all activities are
inside a building
▪ All civic and institutional uses allowed or conditionally allowed
▪ Residential (apartments or rowhouses) only allowed in buildings with non-residential
ground-floor uses
▪ Vehicle sales prohibited
▪ Vehicle Fuel Sales prohibited
Density, Intensity, and Height Standards
▪ Maximum height is the primary control on development intensity recommended for the
Plan District. This allows flexibility for building form and use, while limiting where
taller buildings can be built to areas where they are appropriate and desirable.
▪ Maximum residential density is not recommended for the WSRC Plan District. Rather, it
is recommended to allow other standards (height, parking, etc.) to control the maximum
intensity of residential development. This also supports development with smaller
housing units by not limiting the number of units allowed on a site.
▪ Minimum heights and floor area ratios are no longer recommended, as these have posed
obstacles to incremental improvement and reuse of existing buildings.
Note: Tigard MADE project may include requirements for single-story developments in
commercial and employment zones to include public benefits. If implemented, this idea
could be applicable in the Cascade subdistrict and potentially in the Greenburg
subdistrict as an alternative to requiring Planned Development for larger commercial
developments.
▪ Minimum densities for residential development are recommended to ensure that land is
used efficiently for housing and that areas intended for higher densities are reserved for
development at those densities.
ECONorthwest
Exhibit 4: Preliminary Recommended Height Limits and Minimum Density by Subdistrict
Standard Cascade Greenburg Oak Locust Hall
Maximum
Height
7 stories 12 stories 7 stories 3 stories* 2 stories**
Minimum
Residential
Density
None (because
only allowed in
mixed-use
buildings)
30 units/acre
for stand-alone
residential
development;
none for mixed-
use buildings
30 units/acre
for stand-alone
residential
development;
none for mixed-
use buildings
10-15
units/acre for
stand-alone
residential
development;
none for mixed-
use buildings
None
(because
only allowed
in mixed-use
buildings)
* Allow up to 4 stories if affordable housing (e.g., at least 10% of units are affordable), ground floor commercial space, or
publicly accessible outdoor common open space are provided.
** Allow up to 4 stories if upper-story housing is provided.
Building and Site Design Standards
Preliminary recommendations and considerations for development standards for each
subdistrict are summarized below.
Cascade
▪ Standards should generally align with or be closely related to those for the Mixed-Use
Employment zone as modified by the Tigard MADE project.
▪ For new construction, buildings located close to the street with pedestrian-friendly
design are important in this area—standards for minimum and maximum front
setbacks, parking location, building and site design should reflect this.
▪ Standards should allow for incremental site and building improvements without
complex processes on sites with nonconforming development or uses where bringing
closer to conformance or not going further out of conformance.
▪ However, incremental and proportional site improvements that offer public benefits
(e.g., landscaping, stormwater management, pedestrian connections) should be required
for major expansions or major remodels that involve a substantial investment in the
building or site.
Greenburg
▪ Building and site design standards should be similar to those in the Tigard Triangle Plan
District.
▪ Standards should prioritize and emphasize pedestrian- and transit-oriented design, with
buildings close to the street, substantial window coverage on the ground floor for most
types of development, entrances oriented to the street / sidewalk, and parking located
behind or to the side of buildings.
7
ECONorthwest
▪ Planned Development or similar process recommended for development on large sites
(e.g., over 3 acres) to address internal circulation, planned mix and intensity of uses,
open space, etc.
▪ Private open space not recommended for apartments. Standards should allow more
urban options (e.g., roofdeck) to meet the common open space standard, and create
incentives to make common open space publicly-accessible (e.g., less area and fewer
required items).
▪ Landscaping standards should allow for more urban solutions that provide publicly-
accessible open space that includes some vegetation (e.g., plaza with trees in tree wells)
▪ All new development should conform with building and site design standards, with
limited exceptions
Oak
▪ Building and site design standards should be similar to those in the Tigard Triangle Plan
District for residential and mixed-use development.
▪ Standards should prioritize and emphasize pedestrian- and transit-oriented design, with
buildings close to the street, window requirements, entrances oriented to the street /
sidewalk, and parking located behind or to the side of buildings.
▪ Private open space not recommended for apartments. Allow more urban options (e.g.,
roofdeck) to meet the common open space standard, and create incentives to make
common open space publicly-accessible (e.g., less area and fewer required items).
▪ Landscaping standards should allow for more urban solutions that provide publicly -
accessible open space that includes some vegetation (e.g., plaza with trees in tree wells)
Locust
▪ Standards should generally align with those for comparable residential development in
other parts of the City, except that private open space is not recommended for
apartments.
Hall
▪ Standards should generally align with those for the neighborhood commercial (C-N)
zone.
▪ Incremental site and building improvements should be allowed for sites with
nonconforming development or uses where bringing closer to conformance or not going
further out of conformance.
8
ECONorthwest
Parking
Given the area’s focus on transit- and pedestrian-oriented development and the presence of
many bus routes as well as commuter rail, the WSRC Plan District is an appropriate area to
reduce the emphasis on required off-street parking. However, the area is still in transition from
being auto-oriented and does not have easy access to light rail. Tying more aggressive parking
reductions to larger developments with extra measures to encourage use of alternative modes
by the eventual users of the development (referred to as Transportation Demand Management)
would allow the City to incentivize these supportive measures while still reducing parking
requirements. The recommended approach to parking requirements is summarized below by
development type.
▪ Apartments:
▪ Apply similar standards as downtown as a baseline:
- 1 space per unit
- Visitor parking not required
▪ Apply a lower parking ratio (e.g., 0.5-0.75 spaces per unit) or eliminate minimum
parking requirement for units under 500 sf, affordable housing units, and if
Transportation Demand Management measures are applied (e.g., free transit passes
provided to residents, discounts on car-share / ride-share, and parking charged
separately from apartment rent).
▪ Allow shared parking with non-residential uses to count, including on an adjacent
site, if agreed to by both property owners.
▪ Other Housing Types (Rowhouses, Quadplexes, Single Detached Houses, etc.)
▪ Align with parking standards that come out of HB 2001 implementation, but
generally 1 space or less per unit, as a baseline.
▪ Apply a lower parking ratio (e.g., 0.5-0.75 spaces per unit) or eliminate minimum
parking requirement for units under 500 sf and affordable housing units.
▪ Non-Residential Uses:
▪ Apply similar standards as downtown as a baseline:
- No parking required for the first 20,000 sf of commercial
- Other parking reduced to 75% of the usual standard
▪ Exempt any ground-floor commercial space in a mixed-use building with
apartments above from parking requirements regardless of total commercial space
included in the development.
▪ Exempt new uses in an existing building.
9
ECONorthwest
▪ Allow on-street parking abutting the development (including any existing or new
public or private streets within the development) to count towards parking
requirements.
▪ Allow shared parking with residential uses to count, including on an adjacent site, if
agreed to by both property owners.
▪ Apply a lower parking ratio (e.g., 50% of the usual standard) or eliminate parking
minimum for most commercial, industrial, and civic/institutional uses (excluding
auto-oriented uses such as vehicle sales and service and vehicle fuel sales) if
Transportation Demand Management measures are applied (e.g., free transit passes
provided to employees, discounts on car-share / ride-share for employees, and
shuttle service to transit center if located >0.5 miles away)
10
November 15, 2021 Page 1 of 5
CITY OF TIGARD
PLANNING COMMISSION
Minutes, November 15, 2021
Location: Members Remote via Microsoft Teams
Link to virtual hearing online:
www.tigard-or.gov/virtualPC
CALL TO ORDER
President Hu called the meeting to order at 7:00 p.m.
ROLL CALL
Present: President Hu
Vice President Jackson
Alt. Commissioner Dick
Alt. Commissioner Miranda
Commissioner Quinones
Commissioner Roberts
Commissioner Schuck
Commissioner (K7) Tiruvallur
Commissioner Watson
Absent: Commissioner Brook; Commissioner Whitehurst
Staff Present: Tom McGuire, Assistant Community Development Director; Susan
Shanks, Senior Planner; Doreen Laughlin, Confidential Executive Assistant
COMMUNICATIONS ² None
CONSIDER MINUTES
President Hu asked if there were any additions, deletions, or corrections to the November 1,
2021 minutes; there being none, President Hu declared the minutes approved as submitted.
WASHINGTON SQUARE LEGISLATIVE HEARING
PROPOSAL: The proposal is the result of a long-range planning project to update the land use
and transportation framework for the portion of Washington Square Regional Center within
7LJDUG·VSODQQLQJDUHD7KHSURSRVDOFUHDWHVDQHZVHFWLRQZLWKLQ&KDSWHURIWKH7LJDUG
Comprehensive Plan that includes new goals, policies, and recommended action measures that
are specific to the Washington Square Regional Center. It also makes minor changes to Chapter
18.670 of the Tigard Community Development Code that regulates development in the
Washington Square Regional Center consistent with past policy decisions.
November 15, 2021 Page 2 of 5
STAFF REPORT
Sr. Planner Susan Shanks introduced herself and took the commissioners through a PowerPoint
(Exhibit A) detailing the project. She explained that this evening they w ould touch on the
Development Code Amendment s but emphasized that they would mostly be focusing on the
Comprehensive Plan Amendments. She gave a quick overview of what had led to this Comp
Plan Amendment. She went over the Washington Square Regional Center (WSRC) Project
Overview (Slide 2). 6KHQRWHGWKDWORRNLQJDWWKHWLPHOLQH 6OLGH LW·VHYLGHQWWKDWWKLVSURMHFW
started at the same time COVID came on the scene (March 2020) and is scheduled to be going
to City Council in the fall of 2021. She explained what had be en done during that timeframe.
TKH\·GEHHQJRLQJWKURXJKWKHWDVNVRIWKHSURMHFWVFKHGXOH7KHSXUSRVHRIWKHKHDULQJLVWR
review proposed amendments, consider public testimony , and ask the commission to make a
recommendation to Council. There are four attachments attached to the staff report ² LW·VWhe
first two that are up for consideration of adoption. The final report is also attached and is in
draft state. Comments will still come in and be considered up until the City Council hearing
takes place in December. The final report is the more public facing document of the project and
RIWKHSURMHFW·VUHFRPPHQGDWLRQ7KH&RPSUHKHQVLYH3ODQ$PHQGPHQWVHFWLRQWKDWLVEHLQJ
FRQVLGHUHGDWWKLVWLPHUHIOHFWVHYHU\WKLQJWKDW·VLQWKH planning report. She said this is just a
more policy oriented, less public facing document than the final report is. However, what will be
considered this evening reflects everything in that document. The last thing attached to the staff
report are preliminary recommendations. She said this is not the end of the project, there will be
next steps in terms of implementation of the policy framework. In six to eight months a package
of code amendments (as opposed to a package of Comprehensive Plan amendments) will come
before the Planning Commission.
Susan went through the rest of the presentation explaining the various aspects of Goals 15.1
through 15.7. She said VKH·GQRWLILHGWKHSXEOLFE\VHQGLQJRXWDVHULHVRIHPDLOVWR7LJDUG·V
´Interested Parties LLVWµRIRYHUSHRSOHShe noted that housing land advocates had reached
out to her and were very pleased with the recommendations ² especially the housing
recommendations. She said ´Bike Portlandµhad one of their correspondents write a story
recently about the Washington Square area. It was favorable and indicated they were very
pleased about the active transportation, specifically the bike recommendations, that were made.
Washington Square Mall also reached out; WKH\·UH looking forward to moving ahead with their
Sears Redevelopment. They·UH hoping they can get that back on track next year and are glad to
know that the direction of the project recommendations continues to embrace the vision that
they have ² and WKH\·UHYHU\SOHDVHGDERXWWKDW6KH·GDOVRKHDUGIURPsome community
members ZKR·GUHDFKHGRXWZKRDUH pleased with the direction this project is heading. She said
she had received no formal written testimony either by email or postal mail. She went over the
´1H[W6WHSVµWLPHOLQH 6OLGH
STAFF RECOMMENDATION
Recommend approval of the proposed Comprehensive Plan Amendment (CPA2021 -00005) and
Development Code Amendment (DCA2021-00003) to the Tigard City Council.
November 15, 2021 Page 3 of 5
QUESTIONS
Regarding Jurisdictional Transfer roads ² the Comp Plan Amendment as proposed
PHQWLRQV*UHHQEHUJEXWLWGRHVQ·WPHQWLRQ+DOO%OYG:K\LVWKDW" Hall is complicated.
We should probably have a policy in there about that. W e·UHin discussions with ODOT now
about jurisdictional transfer to Hall, but not this segment RILW,W·VXQFOHDUKRZZH·UHJRLQJWR
DFFRPSOLVKMXULVGLFWLRQDOWUDQVIHURIWKHSRUWLRQWKDW·VVRXWKRIWKLVDUHDDQGJRHVWKURXJK
Downtown. Hall Boulevard is a very long street, and DOORILWLV2'27·VQRZ. Regarding the
City - in terms of how the timing occurred ² DORWRILWKDGWRGRZLWKZKDW·VJRLQJRQ
Downtown, and with the SW Corridor Light Rail project. The focus for jurisdictional transfer
on Hall was really centered much more to the south. It was going to be a much longer -range
goal to do any kind of jurisdictional transfer to the north. Also, even though Hall Blvd is in the
&LW\·VERXQGDU\DVLWFURVVHVRYHU+Z\ 217, it leaves WKH&LW\·VERXQGDU\DQGHQters Washington
County as it turns at that elbow and then heads over to cross Scholls Ferry and then the 217
DJDLQ7KHUH·VDFRPSOLFDWLRQRIWKHIDFWWKDWHYHQWKRXJKWKDW·VLQRXUXUEDQSODQQLQJDUHDLW·V
not actually in our jurisdiction. All that to say, LWIHOWWRR´IDURXWµWRPDNHWKDWDSROLF\, but
considering you·UHmentioning it now, I wonder if we should add something that clarifies that
this is long- range and that the City should consider that there might be an opportunity in the
future WKDWZH·UHQRWLPDJLQLQJQRZ« something may change in the future that might make it
PRUHIHDVLEOH,·OOSXWWKDWRXWWRWKH3ODQQLQJ&RPPLVVLRQHUVQRZlet us know if you feel
strongly about having a longer-term policy about jurisdictional transfer of Hall Blvd.
,V:DVKLQJWRQ6TXDUH5HJLRQDO&HQWHUH[HPSWIURPDQ\RIWKHQXLVDQFHFRGHWKDW·VLQ
Title Six of the Tigard Community Development Code? For instance, will the dealership
service center have to obey all the noise limits, etc.? Yes, absolutely. TherH·VQRSDUWRIWKH
cLW\WKDW·VH[HPSW.
Are there things we can do to leverage some of th e federal funding that will become
available soon ² particularly the huge infrastructure bill that got signed today?
7KHIDFWWKDWZH·YHgot so many things on paper«that sets us up on so many levels to get
funding from the state, county, etc . 7KLVNLQGRISODQQLQJZRUNLVFULWLFDOVRZHFDQVD\ZH·YH
done the right steps ² things we can point to. Also, the Sr. Transportation Planner is working on
the Transportation System Plan (TSP) WKDW\RX·OOEHUHYLHZLQJVKRUWO\ ² to have the priorities
right there available for people to see helps people to make these types of decisions. It always
ERGHVZHOOZKHQZH·YHDOUHDG\GRQHWKHIRRWZRUN² but it will take a while for that money to
trickle down.
Would Chapter 18.670 of the Tigard Community Development Code as amended
exempt car dealerships and their service departments in the
Washington Square Regional Center from the City's public nuisance ordinances? No.
TESTIMONY IN FAVOR OF THE APPLICATION
Alastair Crawford 8921 SW Elena Lane, Tigard ² ,·PLQIDYRURIWKHVHFKDQJHV,EHOLHYH
Oregon is generally not offering enough housing. This is leading to skyrocketing housing costs
and that represents people being priced out of the housing market and therefore, sadly, people
November 15, 2021 Page 4 of 5
being forced onto the streets. These changes will allow us to build more housing to make it legal
to build high density housing and medium density housing around the Mall and yet make a nice
ZDONDEOHDUHDDURXQGLWDVZHOO,W·VJUHDW ,·Pall for it. Thank you!
TESTIMONY IN OPPOSITION TO THE APPLICATION
None.
DELIBERATION
3UHVLGHQW+XDVNHGWKHFRPPLVVLRQHUVWRGHOLEHUDWHDQGPDNHDQ\FRPPHQWVWKH\·GOLNHWR
make before the vote.
Commissioner Quinones ² Let·s do it!
Commissioner Roberts ² I agreeOHW·VGRLt!
Alternate Commissioner Dick ² looks like a great plan.
Vice President Jackson ² I would support it if we added some mention of Hall Boulevard
Jurisdictional Transfer ² SHUKDSVVD\VRPHWKLQJOLNH´LQYHVWLJDWHMXULVGLFWLRQDOWUDQVIHURI+DOOµ
« RUSHUKDSV´pursue next steps of jurisdictional transferµ I would be happy to see that, but I
ZRXOGVXSSRUWDPRWLRQZLWKRXWWKDWDVZHOO2YHUDOO,·PLQDJUHHPHQWZLWKWKHRWKHU
FRPPLVVLRQHUVZKR·YHVSRNHQDOUHDG\. ,·PYHU\PXFKLQVXSSRUWRIWKH&RPS3ODQand Code
Amendments.
Commissioner Schuck ² When COVID first started we were going into lockdowns and Susan
put together a timeline with so many things VKH·GKRSHGWRGR,UHPHPEHUWKLQNLQJ, ´+RZLV
that going to happen? How are you going to get all these people together and do all these things
publicly?µ Honestly, I was a bit cynical about it ² going into what we were going into at that
point in time and to see all the things that have happened and all the numerous briefings ZH·YH
had during this time ² and the way that the project has changed along the way ² I just think LW·V
remarkable ZKDW\RX·YHGRQH, Susan. This is a good example of a well-run government project.
,·PYHU\LQWHUHVWHGLQGHYHORSPHQWLQ7LJDUG in housing, in walkability«DQGI think this is very
well thought out. IW·VQRW´SHUIHFWµDV,·PVXUHLW·VJRLQJWREHDUJXHGRXWZLWKWKHGLIIHUHQW
projects that will come before you and the commission ; however, I think this was very well
done. And« Kudos!
President Hu ² ,HFKRWKHRWKHUFRPPLVVLRQHU·VVHQWLPHQW s and I think these are wonderful
goals. Many of them are lofty, EXWLW·VDOZD\VJRRGWRDLPKLJK HYHQWKRXJKZH·UHJRLQJWRIDFH
lots of challenges. So, I will vote to approve the recommendation to the City Council.
MOTION
Commissioner Roberts made the motion: - I move the Planning Commission forward a
recommendation of APPROVAL to the City Council of application Comprehensive Plan
Amendment CPA2021-00005 and Development Code Amendment DCA2021-00003 and
adoption of the findings contained in the staff report and based on testimony received - with the
modification of directing staff to prepare language to add recommendation action measures
under goal 15.3 and 15.7 for the purpose of advancing long term jurisdictional transfer of the
Section of Hall Blvd within the Washington Square Regional Center.
November 15, 2021 Page 5 of 5
The motion was seconded by Commissioner Keshavan Tiruvaller.
VOTE
The motion to APPROVE passed unanimously (7 ² 0)
HEARING DATE FOR CITY COUNCIL
December 14, 2021
OTHER BUSINESS
Assistant Community Development Director Tom McGuire went over the Planning
Commission calendar and noted that there were some busy months coming up. He gave a brief
overview of some of the upcoming cases.
ADJOURNMENT
President Hu adjourned the meeting at 8:35 p.m.
_______________________________________
Doreen Laughlin, Planning Commission Secretary
__________________________________
ATTEST: President Yi-Kang Hu
Comprehensive Plan and Development Code Amendments CPA2021-00005 | DCA2021-00003Planning Commission Hearing | November 15, 2021EXHIBIT A
WSRC Project OverviewEmerging market trendsBusiness opportunitiesCommunity needs & prioritiesHousing optionsTransportation optionsWalkable, healthy, and inclusive
WSRC Project ScheduleMarch 2020Fall 2021Community Engagement
Purpose of HearingReview proposedamendmentsConsider public testimonyMakerecommendationto Council
Proposed AmendmentsComprehensive PlanNew section in Chapter 15Development CodeMinor updates to Chapter 18.670
Proposed AmendmentsComprehensive PlanKey FindingsGoalsPoliciesActionMeasuresTigard Strategic VisionTechnical AnalysisCommunity EngagementProject RecommendationsComp PlanWSRC Vision
Land UseGoal15.1DevelopacoordinatedlanduseandtransportationframeworkthatsupportsdevelopmentoftheTigardWSRCintoadense,walkable,andvibrantplaceandthatalsoreflectsmarketrealities,communityneedsandaspirations,andCitygoalsrelatedtosustainablegrowth.
Equity and InclusivityGoal15.2ImplementandadvocateforanequitableandinclusiveapproachtopublicinvestmentintheTigardWSRCinwhichthebenefitsofdevelopmentarebroadlysharedbyall.TransportationHousingRecreation & Open SpaceBusiness
TransportationGoal15.3PrioritizeimprovementstotheactivetransportationnetworkintheTigardWSRCtoimprovesafety,access,andcomfortforpeopleofallagesandabilitiesandtoadvancethe&LW\·Vclimateresiliencyandequitygoals.GreenburgRdRecommendation
RecreationandOpenSpaceGoal15.4Providerecreationalopportunitiesandaccesstonatureforall,especiallyforhouseholdsintheTigardWSRCwithlittleornoprivateopenspace.
Recreation and Open SpaceGoal15.4
HousingGoal15.5FacilitatethedevelopmentofavarietyofhousingtypesanddensitiesintheTigardWSRCtomeettheneedsofhouseholdsofallincomesandsizes.
Business and Economic DevelopmentGoal15.6Supportregional-servingbusinessesintheTigardWSRCwhileworkingtogrowtraded-sectorandlocal-servingbusinessesinordertoadvanceeconomicmobilityforall.
Collaboration and CoordinationGoal 15.7 Collaborate and coordinate with applicable agencies, service providers, and community partners to implement the Tigard WSRC land use and transportation framework.
Proposed AmendmentsComprehensive PlanKey FindingsGoalsPoliciesAction MeasuresTigard Strategic VisionTechnical AnalysisCommunity EngagementProject RecommendationsComp PlanWSRC Vision
Proposed AmendmentsA Refined Vision«7KHWashington Square Regional Center of the future is a multicultural hub of activity that is accessible by multiple modes of transportation from across the region. It is easy and comfortable for people to travel by bus, commuter rail, foot, or bike to reach jobs, services, parks, schools, and local amenities. Large parking lots are redeveloped with new buildings at a variety of heights that connect to wide sidewalks and inviting public spaces. New development creates a greener urban environment that benefits people, habitat, and streams. Large and small businesses have opportunities to locate here and grow and evolve in place. These changes make the area more attractive, but existing communities of color are not priced out as the area redevelops. All are welcome and have the opportunity tocall this area home.
Proposed AmendmentsDevelopment Code(Minor updates to Chapter 18.670)VehicleSalesSubdistrictOak StreetCrossSection w/ Path
Community Engagement/InputFinal Report SummaryEmailNotifications(200+)HousingLandAdvocatesBikePortlandWashingtonSquare MallCommunity Members
Staff RecommendationStaff RecommendationRecommend approval of the proposed Comprehensive Plan Amendment (CPA2021-00005) and Development Code Amendment (DCA2021-00003) to the Tigard City Council.
Decision AlternativesDecision AlternativesRecommend approval to Council with no changes.Recommend approval to Council with minor changes.Continue hearing to a date certain to consider public comments or major changes.
Next Steps2021Policy Development & Adoption2022Policy Implementation2023+Project Construction & Program DevelopmentPUBLIC HEARINGS Nov | DecPC reviews and CC considers adopting new policies to govern WSRC:ͥComp Plan AmendmentPUBLIC HEARINGSTBDPC reviews and CC considers implementing new policies by adopting updates to:ͥLand Use ZonesͥDevelopment Standards (major)PUBLICIMPROVEMENTS,such as streets and parks, built by the City as funds become available.NEW HOUSING AND COMMERCIAL BUILDINGS (and related public improvements) built by private developers as the market allows.PROGRAMS, such as business assistance or anti-displacement programs, developed by the City.
Thank you. Questions?