Ordinance No. 83-07 . 1
CITY OF TIGARD, OREGON
ORDINANCE NO. 83-^Z
AN ORDINANCE ADOPTING THE URBANIZATION ELEMENT_ OF THE TIGARD COMPREHENSIVE
PLAN; AND DECLARING AN EMERGENCY.
WHEREAS, the City of Tigard finds it necessary to revise its Comprehensive
Plan periodically to improve the operation and implementation of that Plan;
and
WHEREAS, the Tigard Planning Commission has recommended the adoption of a
citywide Comprehensive Plan Element on Urbanization, after holding a public
hearing regarding the same; and
WHEREAS, the proposed Urbanization Element has been reviewed by the Committee
for Citizen Involvement of the City of Tigard; and
WHEREAS, the proposed Element has been the subject of comments from the City's
Neighborhood Planning Organizations (NPO'S) and individual citizens; and
WHEREAS, after considering the comments of the Planning Commission, the
Committee for Citizen Involvement, Neighborhood Planning Organizations and
individual citizens, the Council believes that the Urbanization Element of the
Tigard Comprehensive Plan should be adopted in the form set forth in Exhibit
"A" attached hereto and, by this reference, made a part hereof:
NOW. THEREFORE;
THE CITY OF T.IGARD ORDAINS AS FOLLOWS:
Section l: The Urbanization Element of the Tigard Comprehensive Plan, as set
forth in Exhibit "A", consisting of a title page and fifteen pages of text be,
and the same hereby is, adopted as a part of the city-wide Comprehensive Plan
of the City of Tigard.
Section 2: In revising and compiling the Tigard Comprehensive Plan, the
Planning Director is authorized and directed to edit the Plan as necessary to
provide a readable text; however, the Director shall not edit or change any
policy or implementation strategy adopted in Exhibit "A" and shall present all
portions of the edited Comprehensive Pian to the City Council for its approval.
Section 3: In order to provide a uniform date for the effectiveness of this
series of Comprehensive Plan revisions to be adopted by the City Council. in
1983, an emergency is declared and this portion of the Comprehensive Plan
shall become effective on A7,2, ;/ / /9/J
PASSED: By 1;h all rmyu s vote cf all Council members present, after, being
® read by number and title only, this_.j _day of j P rk H,, 1983.
7Recorder - Cit, of Ti--N
b
APPROVED: By the Mayor, this 7 day of r _, 1983.
a'
Mayor - City of Tigard
ORDINANCE N0. 83---Q--
7
i
URK;3jw%NlZATl N
Comprehensive Plan Report
F
t
F
t
CI1Y.®F..IMAR®
WASHINGTON COUNTY,OREGON
ADOPTED BY CITY COUNCIL
FEBRUARY 7, 19833
ORDIN NcE No 83-07
to
t
URBANIZATION
COMPREHENSIVE PLAN REPORT
TIGARD PLANNING AND DEVELOPMENT DEPARTMENT
OCTOBER 1982
REVISED JANUARY 1983
t
r:
a
CITY COUNCIL PLANNING COMMISSION
m
Wilbur Bishop - Mayor Frank Tepedino - President ;
John Cook Cliff Speaker
Tom Brian Donald Moen
Nancie Stimler Richard Helmer
Ken Scheckla Mark Christen '
Roy Bonn
Bonnie Owens
Deane Leverett
Phil Eden
Ci
CITY STAFF
Bob Jean - City Administrator
William A. Monahan - Director of Planning and Development
Jeremy Coursolle - Associate Planner
Liz Newton - Associate Planner ,
Hamid Pishvaie - Planner
Frank Currie Public Works Director
Patt Martin - Word Processing
Loreen Wilson - Office Manager
ADOPTED BY TIGARD CITY COUNCIL
i
"ER'ttMRY .=, 1383
ORDINANCE NO. 83-07'
is
:its
w
Table of Contents
Page
introduction 1
Findings, Policies and Implementation Strategies 2
Metropolitan Service District Authority 7
Survey of Vacant Buildable Lands in the Tigard Plan Area 10
Growth Management System 11
Urban Growth Boundary Factors 12
f
_w
r
f
I. INTRODUCTION
The Statewide Goals and Guidelines mandated that "urbanization" be an integral
part of the Comprehensive Plan, and in anticipation of the magnitude of the
problem statewide, it required that an "urban growth boundary" be established
to identify and separate urbanizable land from rural land. Metropolitan
Service District (MSD), which represents the three counties in the
e metropolitan region, have established an Urban Growth Boundary (UGB) which has
been adopted as the urban limits for the metropolitan region. The City of
Tigard is totally within this boundary.
Goal #14 "Urbanization" states: To provide fot an orderly and efficient
transition from rural to urban land uses. Urban growth boundaries shall be
established to identify and separate urbanizable land from rural land.
Establish and change of boundaries shall be based upon consideration of the
following criteria:
1. Demonstrated need to accommodate long-range urban population growth
requirements consistent with LCDC goals.
2. Need for housing, employment opportunities and livability.
3. Orderly and economic provision of public facilities and services.
l 4. Maximum efficiency of land uses within and on the fringe of the
existing urban area. I
5. Environmental, economic, energy and social consequences.
t'
i
6. Retention of agricultural land as defined, with Class I being the I
highest priority for retention and Class VI the lowest priority. ;
7. Compatibility of the proposed urban uses with nearby agricultural
activities.
The Urbanization Goal is important, because it develops a framework within
which all development activities have to be coordinated. It also integrates
and balances all of the other available land resources in terms of the needs
expTessed by other goals: ma=nly Goal #10: Housing, Goal #9: Economy, Coal
#11: Public Facilities and Services, Goal #5: Open Space, Goal #12: -
Transportation, Goal #7: Natural Hazards and Goal #13: Energy.
The Urbanization Goal also requires allocations of land for accommodation of
urban expansion during the planning period, and development of plans to manage
the orderly and efficient transition from rural to uiban land uses. To
this achieve goal, the Cityhas to develop an integrated management system, �
and call for coordination and cooperation between the City, Washington County
and the Metropolitan Service District for having an effective plan and program.
{
-1-
II. FINDINGS, POLICIES AND IMPLEMENTATION STRATEGIES
FINDINGS
0 The City of Tigard has grown from 5,302 people in 1970 to 14,286 people in
1980 (Census 1970 & 1980) and the City predicts that Tigard will continue
to grow to more than double its current size by the year 2000. The
current 1982 population is 17,444. A portion of this increase is due to
annexations.
o The City limits have expanded by approximately 4.4 square miles since
1970, to its present size of apprpximately 8 square miles.
o All lands within the Tigard Urban Planning Area as well as the City Limits
have been designated for urban land uses, and are wholly within the
Portland Metropolitan Area Urban Growth Boundary. €.
o The Tigard Comprehensive Plan is an active plan, meaning the Gity plans
and designates land uses within the Tigard Urban Planning Area
(T.U.P.A.). Washington County retains legal jurisdiction over development
proposals, zoning and public improvement projects outside the City limits 4
but within the T.U.P.A. Tigard does have right of review and comment on
proposals and projects within the T.U.P.A.
o The area within the Tigard Urban Planning Area, but outside the current
City Limits, that is not already developed to urban intensities will be
made available for urban uses via an Urban Planning Area Agreement between
the City of Tigard and Washington. County, annexation to the City and `
subsequent development proposals by the property owners. .
o The City is committed to providing urban level services, or the
coordination of providing these services with the appropriate service
districts, to all areas within the city limits boundaries.
o The intent of the City is to provide for an orderly and efficient land use
pattern and urban services which must be available at the time of
development.
f
o The timing, location, and expansion of the transportation systems are
important factors affecting future urbanization. ¢
`r
o The desired development and growth pattern for the Tigard Urban Planning
Area is to be defined by a growth management system, e.g. extension of
services, streets and land use, which will guide the timing, type, and
location of growth. t
o To assist in the financing of street facilities and improvements, Tigard
has imposed a Systems Development Charge (SAC) on new housing development.
r o Major trunk line sewer service in the Tigard Urban Planning Area is
provided by the Unified Sewer Agency (USA) of Washington County which has
assumed this responsibility for the City's, as well as eastern Washington`
County, major sewage system since 1970s [
-2-
o Water in the Tigard area is
g provided by the Metzger and 'Tigard Water
Districts. These districts purchase their water from Portland, Lake
Oswego and other sources.
o An Urban Planning Area Agreement (UPAA) between Tigard and Washington
County regarding land use planning and annexation has been adopted since
1980. The City and the County are now in the process of renegotiating
this UPAA. The intent of this agreement is to:
i
a. Identify the urbanizable land within each jurisdiction surrounding
Tigard;
b. Provide for orderly and efficient transition from urbanizable land
to urban land;
c. Provide a process for reviewing the .and use designations between
the City and County;
d. Provide for a process to extend existing services; and
e. Provide a process for annexations to the City.
o The City does not have an UPAA with the school districts (Tigard and
Beaverton), but the districts do work with the City's Planning and
l Development Department to estimate the enrollment impact of new
residential development in the City.
&._ o The City has made a significant effort in the past to manage the location
and type of growth, and to coordinate this growth with the extension of
services and expansion of facilities.
o The City is currently in the process of including all of the
"unincorporated islands" within the city limits.
10.1 ANNEXATION OF LAND
POLICIES
1
10.1.1 PRIOR TO THE ANNEXATION OF LAND TO THE CITY OF TIGARD:
a. THE CITY SHALL REVIEW EACH OF THE FOLLOWING SERVICES AS TO
ADEQUATE CAPACITY, OR SUCH SERVICES TO BE MADE AVAILABLE, TO SERVE
THE PARCEL IF DEVELOPED TO THE MOST INTENSE USE ALIAWED*, AND WILL
NOT SIGNIFICANTLY REDUCE THE LEVEL OF SERVICES AVAILABLE TO i
DEVELOPED AND UNDEVELOPED LAND WITHIN THE CITY OF TIGARD. THE Ij
SERVICES ARE:
1. WATER;
}
f 2. SEWER;
* Most intense use allowed by the conditions of approval, the zone or the
Comprehensive Plan.
-3-
3. DRAINAGE;
4. STREETS; r
5. POLICE; AND
6. FIRE PROTECTION
b. IF REQUIRED BY AN ADOPTED CAPITAL IMPROVEMENTS PROGRAM ORDINANCE,
THE APPLICANT SHALL SIGN AND RECORD WITH WASHINGTON COUNTY A
NONREMONSTRANCE AGREEMENT REGARDING THE FOLLOWING:
1. THE FORMATION OF A LOCAL IMPROVEMENT DISTRICT (L.I.D.) FOR ANY
OF THE FOLLOWING SERVICES THAT COULD BE PROVIDED THROUGH SUCH
A DISTRICT. THE EXTENSION OR IMPROVEMENT OF THE FOLLOWING:
a) WATER;
b) SEWER;
c) DRAINAGE; AND
d) STREETS;
2. THE FORMATION OF A SPECIAL DISTRICT FOR ANY OF THE ABOVE
�. SERVICES OR THE INCLUSION OF THE PROPERTY INTO A SPECIAL
SERVICE DISTRICT FOR ANY OF THE ABOVE SERVICES.
c. THE CITY SHALL PROVIDE URBAN SERVICES TO AREAS WITHIN THE TIGARD
URBAN PLANNING AREA OR WITH THE URBAN GROWTH BOUNDARY UPON
ANNEXATION.
10.1.2 APPROVAL OF PROPOSED LAND ANNEXATIONS BY THE CITY SHALL BE BASED ON
FINDINGS WITH RESPECT TO THE FOLLOWING:
a. THE ANNEXATION ELIMINATES AN EXISTING "POCKET" OR "ISLAND" OF
UNINCORPORATED TERRITORY; OR
b. THE ANNEXATION WILL NOT CREATE AN IRREGULAR BOUNDARY THAT MAKES IT
DIFFICULT FOR THE POLICE IN AN EMERGENCY SITUATION TO DETEP.MINE
WHETHER THE PARCEL IS WITHIN OR OUTSIDE THE CITY;
c. THE POLICE DEPARTMENT HAS COMMENTED UPON THE ANNEXATION;
d. THE LAND IS LOCATED WI'T'HIN THE
TIGARD URBAN. DTAiiNiiw AREA AUTI TQ
CONTIGUOUS TO THE CITY BOUNDARY.
e.
IN
THE ANNEXATION CAN BE ACCOMMODATED BY THE SERVICES LISTED
10.1.1(b)(2)•
f
-4-
BUI ^AB4I LAN TORY
A INVEN
R_12 R-20 R-40
District
R-1 R-2 R-3.5 R-4.5 R-7
NPO 29.07
3.03 7.17 ) (Coo)
1
(CBD) - -
4.09 18.79 ,
2 27.2 64,2 54.66 10.0 40.73
3 t
4 45.52 30.75 54.07 49.01
5 182.39 93.51 33.09 50.15 9.11
6 124.86 4.0 80.50 66.25
7 r
Gross0 27,2 109.72 395.11 172.84 227.87 145.47 38.18
Acres i
MINUS
25% 6.34 8.93 6.50 3.69
SLOPES 4.25
2.84 16.01 5.80 IP
FLOODPLAIN
20% SF 4.17 21.94 76.82
STREETS
15% NF 23.52 32.34 16.27 5.73
STREETS �-
NETp 16.69 87.78 307.30 133.31 183.23 92.19 32.45
ACRES
0 _ 29.04 305.47 1425.87 1599.72 2198.76 1843.8 1298.0
UNITS
ACRES 852.95
UNITS 8,700.66
UNITS/ACRS 10.20
C�4+."'ERGIn� AND
CBD C-P I-P I-L I-N
TtintgtBiAL DISTRICT C-N C-O _
C_N _
NPO 8.0 25`31
1 JJ
17.30 I
2
10.84 8.47
3
12.90 I $7.90 65.00
4
13.233 5x.17 131.4 5.7
5 3.53 I
6 1.50 5.67
11.98
I 6.60
® 7t 5.03' 24.51 12.90 25.33 127.33 140.47 131.40 5.70
TOTAL75 10.50 26.13
ftwDPLAIN
.28
127.33 1 129.91 105.27 e-�®
S.03 t
THIS CHART REFLECTSTHECgp13GES THE PLANNING COMMISSION APPROVED FROM
THE LAND USE AND INTRIM MAPS BUT DOES NOT REFLECT FINAL APPROVAL OF
THE CITY COMM
10.2 EXTENSION OF SERVICES OUTSIDE THE CITY LIMITS
POLICIES
10.2.1 THE CITY SHALL NOT APPROVE THE EXTENSION OF CITY OR UNIFIED SEWERAGE
AGENCY (USA) LINES EXCEPT:
a. WHERE APPLICATIONS FOR ANNEXATION FOR THOSE PROPERTIES HAVE BEEN
SUBMITTED TO THE CITY; OR
b. WHERE A NONREMONSTRANCE AGREEMENT TO ANNEX THOSE PROPERTIES HAS
BEEN SIGNED AND RECORDED WITH WASHINGTON COUNTY AND SUBMITTED TO
THE CITY; OR j
i
i
c. WHERE THE APPLICABLE STATE OR COUNTY HEALTH AGENCY HAS DECLARED
THAT THERE IS A POTENTIAL OR IMMINENT HEALTH HAZARD.
t
10.2.2 IN ADDITION TO THE REQUIREMENTS OF POLICY 10.2.1, THE EXTENSION OF
SEWER LINES OUTSIDE OF THE CITY UNITS SHALL NOT REDUCE THE CAPACITY �.
BELOW THE REQUIRED LEVEL FOR AREAS WITHIN THE CITY.
10.2.3 AS A PRECONDITION TO THE APPROVAL OF THE EXTENSION OF SERVICES OUTSIDE
THE CITY LIMITS, THE CITY SHALL HAVE THE RIGHT OF REVIEW FOR ALL
DEVELOPMENT PROPOSALS OUTSIDE THE TIGARD CITY LIMITS BUT WITHIN THE
TIGARD URBAN PLANNING AREA (REFERENCE TIGARD'S URBAN PLANNING AREA
AGREEMENTS WITH WASHINGTON COUNTY). THE CITY SHALL REQUIRE THAT E
DEVELOPMENT WILL NOT:
a. PRECLUDE THE FURTHER DEVELOPMENT OF THE PROPERTIES TO URBAN
DENSITIES AND STANDARDS; OR
SUBSEQUENT DEVELOPMENT OF SURROUNDING PROPERTIES.
b. PRECLUDE THE. �L anQU
THIS REVIEW SHALL INCLUDE THE FOLLOWING FACTORS AS SET FORTH IN THE
TIGARD COMPREHENSIVE PLAN AND APPROPRIATE IMPLEMENTATING ORDINANCES:
a. LAND USE;
b. DENSITY;
C. PLACEMENT OF STRUCTURES ON THE SITE;
d. STREET ALIGNMENT; AND
e. DRAINAGE.
t
IMPLEMENTATION STRATEGIES
, ' 1. The City shall encourage all of the urbanizable land within Tigard's
Urban Planning Area to be within the City Limits.
i
s
t
3
-5-
7
2. The Cit shall direct its annexation
City policies to conform with and
support the City's Comprehensive Plan.
3. The City shall phase annexations to allow for the incorporation of
urbanizable land in a manner that is consistent with the Comprehensive
Plan, and the Urban Planning Area Agreement, and to provide for
orderly transition in urban services.
4. The City shall work toward establishing a workable, jointly approved
growth management agreement with the Washington County. The agreement
shall assure that:
a. Urban development inside Tigard Urban Planning Area (T.U.P.A.) f
will be encouraged to annex to the City of Tigard.
b. Significant differences between City/County Comprehensive Plan
policies are reconciled for the unincorporated areas within the I +
Urban Planning Area (T.U.P.A.).
5. Land use designations, if not already designated, shall be assigned to
purposed annexation areas only after a thorough study addressing
statewide Planning Goals, City and neighborhood needs have been
completed and adopted by the City.
6. The City shall accept, encourage, and assist in the preparation of
annexation proposals of all levels with its Urban Planning Area (LPA).
7. The City shall actively seek to include all "unincorporated island" i
areas inti the city. IIII`
8. The City shall provide a capital improvement plan (CIP) that will
promote the development of services and facilities in those areas
which are most productive in the ability to provide needed housing,
jobs and commercial service opportunities in conformance with the
policies of the Comprehensive Plan. The CIP shall emphasize the
provision of needed services in established districts and those areas
passed over by urban development.
■ J. The City shall cooperate with Washington County and all special
districts share in the exchange of information on planning actions
which have interjurisdictional impacts. Ample opportunity for review
and comment shall be given prior to final action by a city, county or
special district policy making body on a matter of mutual concern.
10. TheCityand County will negotiate the existing Urban Planning Area
agreement which responds to the needs of both the City and County.
POLICY
10.3.1 THE CITY SHALL CONSIDER ANNEXATION REQUESTS OUTSIDE THE TIGARD URBAN
PLANNING AREA AND WITHIN THE URBAN GROWTH BOUNDARY CONSISTENT WITH -
POLICIES 10.1 AND 10.2 AND AGREEMENT BETWEEN THE CITY IM THE
nOu
.y..0 a,a..• amu vasa AIM inn a, .iii�.
ti
i
—6 `
10.3.2 THE CITY SHALL DISCOURAGE EXPANSION OF THE TIGARD URBAN PLANNING AREA
IN A MANNER WHICH WOULD RESULT IN AN IRREGULAR PLANNING AREA AND
INEFFICIENT PROVISION OF PUBLIC FACILITIES AND SERVICES.
III. METROPOLITAN SERVICE DISTRICT AUTHORITY*
The Metropolitan Urban Growth Boundary Findings are the most important of the
regional agency plans and guidelines because they have the strongest effect on
defining the context of future regional development in the metropolitan area,
and thus the plannicg and development options which remain available within
the comprehensive plan. I
I
vn December 21, 1978 the Columbia D%gion -lasociation of Covernments (CRAW
I
Board of Directors approved a regional Urban Growth Boundary (UGB) with
supportive findings.
CRAG's board recommended that the newly created Metropolitan Service District
(METRO) forward those approved boundaries and findings to the Land
*Source: Washington County Comprehensive Resource Document - 1981.
Conservation and Development Commission (LCDC) for acknowledgment. The UGB
defined the portion of the Portland metropolitan area (comprising of
Washington, Multnomah and Clackamas counties) that was expected to be needed
for urban development up to the year 2000. The boundary encompassed 223,730
acres, of which approximately 141,000 acres are already committed to urban
development. The City of Tigard and its Urban Planning Area (T.U.P.A.) are
completely within Metro's adopted UGB.
The breakdown of land for the City of Tigard is as follows:
Vacant Vacant
Developed Unconstrained Constrainedl
Acres Acres Acres TOTAL
TeU.PeAe 4,593.49 1,379.69 120.42 6,393-50
1 Constrained vacant land is defined by slopes of 25% or greater, or land
located within the 100-year floodplain.
Adoption of the UGB assumed the following:
1. That UGB will be a long term instrument that will stabilize future
land use policies.
2. Policies to implement the boundary would be adopted by Metro and local
jurisdictions.
3. A land-market monitoring system would be developed to assess UGB
.v impacts in terms of costs and benefits. C
-7-
i
land use
The objectives underlying the UGB are to improve
the efficiency o f
arrangements, preserve prime agricultural lands for agricultural use, and
improve efficiency of public facilities and services.
METRO Growth Management Policies
Analysis of the METRO UGB by LCDC indicated that the boundary contained land
in excess of that required to accommodate the growth projected to the year
2000. Consequently, METRO adopted growth management strategiessupplement
surplus inAugust
LCDC Goal #14 (Urbanization) for the management of the land Burp g
1979• The five policy guidelines of those strategies are summarized below.
..F nP47 ,irban
Policy Guideline No. 1 - Establishes rules for the extension of new
it be
development within the Urban Growth Boundary •bY This isngto encourage
contiguous to areas of existing P or 'sprawl'
'filling in' of buildable lands, and to reduce 'leapfrog'development on
development. Contiguous, in this case, means surrounded by P
at least three sides or adjacent to developed parcels. However, new
development may be non-contiguous to existing development if the
development is compatible with the efficient provision of public
facilities and services.
es
cal
PolicyGuideline No. 2 - Definesundeveloped ndeve oped land ffor tefficient
ordinances and controls will preserve
future urbanization.
\ Policy Guideline No. 3 - Specifies when undeveloped land may be converted
to urban uses. In particular, establishes the requirement that "sewer and
ic"
es are assured concurrent with final approval
water facilities and sery
of the development proposal.
Policy Guideline No. 4 - Specifies and limits urban development on septic
tanks or cesspools.
Policy Guideline No. 5
- Establishes a ten year reserve the productive
agricultural lands located between the of immediate urban area and the Urban
Growth Boundary. These are known
does notspecially
affect the Tigard area 1sinceAthe
This particular policy guideline
area is entirely within the Metro Urban Growth Boundary.
METRO Housing Goals and Objectives
METRO's estimate of land needed to accommodate forecasted housing needs within
the UGB'was based on a set of assumptions about the density of new residential
of attached and df Coal
alOacknowledgment t
dwellings
development and the mix were
stock. Subsequently, specific guidelines or ll of the jurisdictions in the METRO region.
development which applied to a
Jurisdictions were classified as either "small", "medium" or "large",
depending on future residential development capaeitj�, and spec"`c
targets were assigned to each class. These development targets are predicated
ted
es in the
on the rationale of a need to provide d The r ty�of Tigardopport
classified region as a
to moderate the dost 5-
"large" sized jurisdiction, which means that in order to achieve Goal '10
was: -8-
compliance the city's urban planning arca plan must provide the opportunity
for new residential construction to take place at an <:verage of 10 units per
net buildable acre and for the new housing mix of 50% detached to 50% attached
units (METRO 1980).
The goals for regional housing land supply, affordable housing, new housing,
existing housing and, assisted housing; have been adopted by METRO (1980):
1. Designate adequate buildable land for residential use within the UGB.
2. Allow for a choice of housing types, densities, and location
distributed equitably among all metropolitan area cities and counties.
3. Coordinate regional and local residential land use planning.
4. Expect the housing policies of metropolitan area cities and counties
to provide adequate opportunities for low and moderate income groups.
5. Distribute public housing assistance among all metropolitan area
cities and counties equitably.
6. Make certain that cities and counties identify and designate historic
residential structures consistent with LCDC Goal 5 (Open Spaces,
Scenic and Historic Areas and Natural Resources).
METRO Regional Transportation Plan
The Regional Transportation Plan (RTP) adopted by METRO and required for
adoption by local jurisdictions, establishes the following policy framework•
s�
1. Reduce the use of the single-occupant automobile by making transit
service, ride sharing, bicycle and pedestrian travel more attractive.
2. Improve the existing system of streets and highways before considering
major capital investments.
3`. Improve mobility for the transportation disadvantaged.
4. Promote community land development plans which result in a greater
balance of employment, shopping and housing opportunities in various
communities to reduce the reed for longer trips.
5. Promote land development patterns, densities and site development
standards which make transit, bicycle, and pedestrian travel more
attractive.
6. Reduce total energy consumption to 1977 levels and air 1.pollution
emissions to meet air quality standards. i
I
7. Develop a transportation improvement program (TIP) which provides for
® the utilization of committed federal interstate transfer funds.
This plan is intended to set a unified regional direction for transportation
system investments and to satisfy planning, requirements imposed by the federal
government before federal funds can be spent on local transportation projects.
F
t
-9-
IV. SURVEY OF VACANT BUILDABLE LANDS IN THE TIGARD PLAN AREA
Methodology
The method used to estimate the amount of buildable land in Tigard is a
modified version of that suggested by the CRAG Housing Task Force in 1976.
The CRAG method was excessively ambitious in terms of its assumptions about
how much resources could be devoted to the inventory and was therefore altered
to a more usable form. The Tigard survey, for example, involved measurements
on individual parcels, as in the CRAG guidelines, but it did not involve
tabulation of lots which were already completely developed. Institutional and
public lands were omitted. Completion date of the original survey was late
September, 1981. The survey was updated in October, 1982.
®; The Vacant Buildable Land Survey tabulates individual parcels according to the
following characteristics:
Assessor Map #
Tax Account #
Zone Designation
Plan Designation
Neighborhood Planning Organization
Total Acreage
Vacant
Suitability
Slopes of 25% or more
100-year Floodplain
Other (see below)
Vacant buildable acreage was estimated in as consistent a manner as possible
using 1982 Washington County Assessor Map, 1974 quarter section maps (revised
1980 and 1982), and aerial photos (where necessary), existing site plans,
existing NPO Plan maps, and filed surveys as the information sources.
On parcels with industrial or commercial uses, parking lots, outside storage
areas, and other areas apparently necessary for the operation of the business
were all considered to be part of the built-on land. Otherwise, the built-on
land was assumed to be equivalent to the minimum lot size required by the
current zoning. Built-on land having residences was generally assumed
equivalent to the minimum lot size, (on a per gross acre basis) necessary to
support the existing structure under current zoning: for example, 0.25 acres
for land zoned R-7 (4 units/acre). However, where the placement of the house,
its size, number of outbuildings, etc. especially warranted, a large area was
considered as built-on and measured.
The 'other" category was actually a grab-bag catch-all intended to cover
landlocked lots, lots with unsuitable configuration (e.g., long lots 50'
wide), and especially, residential parcels unlikely to be subdivided or
further d.eveioped due to crie character of the neighborhood, size of the novae
compared with the lot, scattered outbuildings, closeness of the lot to the
minimum size required by current zoning, etc. These exclusions required
suh—jectivo judgment: in many cases.
a
v`
_. . _._
Additional Notes
1. The City of Tigard does not guarantee that these data are 100%
accurate for every parcel in the Tigard Plan Area. The figures are
estimates calculated to provide the best information for the Plan Area
as a whole (and NPO's) within the limited period of time available for
the survey. However, for all but a very small fraction of the lots
listed, the data can be regarded as reliable given the assumptions
involved.
2. The data were current as of October 1982. Change since then will have
correspondingly affected the amount of buildable land available today.
i
1
V. GROWTH MANAGEMENT SYSTEM
The concept of growth management emerged as a response to control rapid and
uncontrolled sprawling growth and its attendant externalities. The
externalities included environmental degradation, overconsumption of resource
lands, and inefficient land use patterns.
Growth results from population and employment increases which in turn create a
demand for residential, commercial and industrial land. This growth also
creates a demand. for the provisions of public services and facilities. T:.e
following objectives have been considered for a growth management system.
Existing Growth Management Systems
Tigard has been involved in managing the location and type of growth. The
City has managed its growth by coordinating i with the extension of services
and expansion of facilities.
The most important elements of this regulatory system are:
1. The Urban Planning Area Agreement (UPAA) with Washington County
® _ regarding the coordination of planning activities between
jurisdictions.
2. The Annexation Ordinance (No. 82-29):(See Appendix D. The Annexation
Ordinance establishes a process for creating a straight, compact azd =
logical boundaries for the City of Tigard. The ordinance also
provides a mechanism for measuring the environmental, physical,
economic and social impacts of proposed annexations on the community.
s 3. The Systems Development Charge (SDC). SDC is a financing mechanism
whereby par.. .,
` of the cost for the provision of new capital improvements
�.�„�
required by growth is borne by new development.
SDC is also used for the operation and maintenance of physical
facilities.
f
r
-11-`
4. The Comprehensive Plan. The Comprehensive p Plan contains several
policies related to he extension and financing of services and
utilities, and alternative methods of meeting housing needs.
5. 11:e Facilities Plan. This document is a long-range planning document
based on the Comprehensive Plan that designates the necessary level of
urban services for the lands within the urban planning area.
6. Zoning Ordinance (Planned Development). The Planned Development
overlay designation provides for efficient land use and proper site
planning. The Planned Development process provides flexibility in the
siting of buildings and the provision of various housing types as well
as assurances to the covaminity that new development will be compatible
with the site and surrounding land uses.
i. Subdivision Ordinance. The Subdivision Ordinance and other
improvement standards ensure that new development will be consistent
with the Comprehensive Plan and the Zoning Ordinance and adequately
served with necessary public facilities. The Zoning and Subdivision
Ordinances will be combined into the Tigard Community Development Code.
Recommendations on Growth Management System
o At a minimum, the City should initiate the following programs and
information gathering systems, which will assist the development industry
in making rational land development decisions.
-
Adoption of a Capital improvement Program (CIP). The CIP guides the
orderly growth and development of the City by making explicit
long-range decisions related to location, timing and phasing of
municipal capital expenditures. It also sets forth the means of
financing the improvements.
Land Resource Report: The Land Resources Report will supply
information related to available (vacant) buildable land for all types
of land use. This will include the location of the land, zoning, size
of parcel and adjacent utilities. This information will be updated on
an annual basis with current changes made when necessary and kept with
the Planning Director.
Land Development Information and Evaluation System. This system
gathers information related to all building activities. The
information can be integrated into a single document indicating the
residential, commercial and industrial land needs and possible
alternatives to meet the needs. This information can be made
available to the public in the form of monthly building activity
reports and a growth management analysis report.
N VI. URBAN GROWTH BOUNDARY FACTORS
The Land Conservation and Development Commission (LCDC) has set forth seven
factors that must be considered when establishing or changing the Urban Growth
-12-
r
m Boundary. These factors can be translated to Tigard's Urban Planning Area
(UPA) to support the City's rational for the UPA. These factors are contained
in the Urbanization Goal 914.
FACTOR 1: Demonstrated need to accommodate long-range urban population growth
requirements consistent with LCDC goals.
Popuiation projection for the Tigard UPA is based on the policies of the
Housing Element as well as historical trends in population growth for the
City. The City has projected that by the year 2000 the population within the
Tigard UPA may approximate 33,000. However, the holding capacity for the City
may be as high as 40,000 people. These projections are consistent with the ,
regional projection made by Metro Service District (MSD) in 1981 which is
46,020. The actual holding capacity is dictated by the LCDC Metropolitan
Housing Rule. According to buildable land inventory, in the Housing
Comprehensive Plan report element, there is sufficient land to accommodate the f
projected population, in fact, there is an excess of residential lands within
the Tigard Urban Planning Area, It is estimated that Tigard Urban Planning
Area contains land sufficient to accommodate the City's long-range population
growth through the year 2000 which is within MSD population projections.
FACTOR 2: Need for housing, employment opportunities and livability.
Need for Housing:
1. In 1980, Tigard had 5,716 housing units.
2. Based on the projected population, Tigard will need 15,198 dwelling
units to accommodate that population, assuming the household size does
continue to decrease to the expected size of 2.3 persons per household.
3. The expected housing mix will be 60% single family and 40% multiple
fami:;_, including existing and new units.
d a inventory indicates that the Tigard Urban Planning �I
4. :The buildable land en y g �
Area contains sufficient land to meet the projected housing need
through the year 2000.
® Employment Opportunities*
1. In 1980, the Tigard area had approximately 21,350 jobs. The three
general employment categories included: office, industrial and retail.
i
2. The projected increase in employment for the Tigard area will total
approximately 11,510 jobs during the planning period.
3. District 12 (see Figure I):
-13-
"~ 2
s
Office Industrial
1980 2000 change 1980 2000 change
7630 14020 6390 7160 10520 3360
f
Retail
i
1980 200 change
6560 8320 1760
4. The buildable vacant land inventory indicates that the Tigard Urban
Planning Area contains 195.30 acres of commercial land and 227.60 j
® acres of industrial land.
Livability
The livability of a community relates to its quality of life. As the
Comprehensive Plan was prepared, the maintenance of livability was a major
consideration. This is reiterated throughout the narrative and policies of
the Comprehensive Plan. The Tigard Urban Planning Area boundary was also
drawn with consideration given to the other factors, especially Factor 3
(efficiency of services) and Factor 5 (environmental factors). Part of the
consideration of these factors was a qualitative concept of livability of the
city.
I
*Source: Metro, 1981.
® Plan policies related to open space and recreation are undecided in the Nature E
Features and Open Space element report, and are intended to provide a
framework for the retention of open space and recreational facilities.
The following table shows allocation of land by zoning district, and the
difference between potential supply and expected demand.
FACTOR 3: Orderly and Economic Provision of Public Facilities and Services.
The City of Tigard is the logical provider and/or coordinating agency of urban
level public services and facilities for all lands within the Tigard Urban
Planning Area. The plan policies in Public Facilities and Services,
Transportation, Natural Features and Open Space element reports indicate that
Urban Planning Area can be serviced through the coordination of the City in a
logical and efficient manner.
In addition to the plan- policies, there are a variety of implementing
mechanisms that have been developed to ensure that development in the urban
fringe area will be orderly and phased in a manner which maximizes the
Pconomic evi-sion of seryices and a:'oids, sprawling development patterns.
These mechanisms include: The annexation ordinance, all ordinances concerning
b� the extension of services and the growth management system.
FACTOR 4: Maximum_ efficiency of land uses within and on the fringe of the
existing urban area.
�,: -14-
Delineation of Urban Planning Area provides for a mechanism to develop plans
which will assure an efficient land use.
The Comprehensive Plan contains policies, locational criteria, and
implementation strategies which call for an orderly and efficient development
of lands within and on the fringe of the existing Tigard Urban Area. These
provisions lead to an effective growth management system which focuses on the
orderly and efficient allocation of services and facilities. The purpose of
the growth management program is to coordinate all the existing and proposed
elements of growth management system. These elements include: The annexation
ordinance; the service extension ordinance; the Urban Planning Area Agreement
(UN,A) between the City and the County; the Capital Improvement Program; land
resource reports; the land development information and evaluation system; the
systems development charge; the Public Facilities and Services Element Report;
and the zoning and subdivision ordinances. These enable the City to manage
growth and make the most efficient use of its land resources.
FACTOR 5: Environment, Energy, Economic and Social Consequences.
1. Environmental Consequences. In delineating the Tigard urban growth
boundary or its Urban Planning Area, it was recognized that the change
from rural and urbanizable land to urban would have environmental
impacts.
a. Air, Water and Land Resource Quality. Plan policies developed in
the "Air, Water, and Land Resources Quality" section of the
Comprehensive Plan report requires that all development within the
Tigard Urban Planning Area comply with all applicable local, state
and federal environmental standards. The policies also direct the
City to continue to cooperate with regional, state and federal
agencies concerned with environmental quality.
i
-b. Hazard Lands. The majority of land designated as flood hazard
area has been designated as open space on the plan map. The
Sensitive Lands ordinance also established development standards
in all other potential hazard areas, such as hillsides.
2. Energy. Energy efficiency is considered through:
a. The use of gravity sewer lines where possible;
b. The provision of commercial and high density areas concentrated
along or in close proximity to major transportation routes within
the City;
c. The coordination with Tri-Met to facilitate the siting of a bus
transfer station in the Tigard downtown area:
®® of neighborhood convenience shopping areas; and
d. The recognition .. -o
e. The requirement for the siting and design of new development to }
take into account energy considerations.
-IS-
f
3. Economic. (see Factors 1 and 2) Lands suitable for industrial
act— ivity but perhaps in excess of those lands required during the
planning period have been included due to their unique location and
advantages. The orderly conversion of some of this land to commercial
and industrial uses will be affected by the extension of public
facilities and services and the City's annexation process. This is
especially the case for those lands within the Tigard Triangle area.
4. Social. The provision of housing types adequate to meet anticipated
demand, open space and recreational areas adequate to ensure
livability, and industrial and commercial lands adequate to provide
stable economic growth. The City's policies and implementation
strategies call for coordination and cooperation ::it:: other
jurisdictions and agencies that provide urban infrastructure an
services.
FACTOR 6 & 7. Retention of Agricultural Lands. Compatibility of the Proposed
Urban Uses with Nearby Agricultural Use.
Factors 6 & 7 do not apply to the Tigard area, since all of Tigard's Urban
Planning Area is within the Metropolitan Regional Urban Growth Boundary.
Thus, all of the land within Tigard has been deemed to be urban land.
Y
IZ
4
{
L,
X
-16- �'