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Ordinance No. 83-24 I CITY OF TIGARD, OREGON 1 ORDINANCE NO. P AN ORDINANCE RATIFYING THE TEXT AND MAPS OF THE 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 ast adopt d the s reviewed eVie ed the City-wide Comprehensive Plan text and maps an k; Planning Commission has reviewed the city—wide WHEREAS, the Tigard text and maps and has recommended adoption of the Plan Comprehensive Plan to the same; and after holding numerous public hearings regarding ted has been reviewed by the WHEREAS, _ the Comprehensive Flan as adop olvement (CCI) of the City of Tigard; and Committees for Citizen Inv AS the Comprehensive Plan as adopted has been subject to comments WHERE ing Organizations anizations (NPO's) and individual from the City's Neighborhood Plann t citizens; and . the Comprehensive Plan elements (Citizen WHEREAS, after adopting Involvement; Natural Features and Open Space; Air, Water and Land Resources Quality; Economy; Housing; and Services; Transportation; Public Facilities the Findings, Policies, and Implementation Energy and Urbanization); rehensive Maps (Land Use, Interim Zoning Strategies document, the Comp g Development Standard Areas, and Transportation) the Comprehensive Planb this be ratified in the form set forth in Exhibit "A" attached hereto and, y reference, made a part hereof NOW, THEREFORE, THE CITY OF TIGARD ORDAINS AS FOLLOWS: I _ in Pln as set fortwExhibit "A" consisting Section 1: The tadopted of three documents' 1) The Resource Documen , Air Water and i elements (Citizen Involvement; Natural Features and Open Space, , 4 Land Resources Quality; Economy; Housing; Public Facilities and Services; Transportation; Energy and Urbanization; 2) The Findings, Policies and ve Plan Implementation Strategies documents aStanda d eAreas, and 1Transportati t Transportation); is Use, Interim Zoning and Developmen hereby ratified as the city�.iide Comprehensive Plan of the City Tigard. Section 2• In revising and compiling the Tigard Comprehensive Plan, the G Planning Direcsary to tor is authorized and directed ho however, the Directort the ashall n as nnot sedit to provide a grammatically correct text, alter the content of any policy, implementation strategy or map as adopted in it.3 ��•i° unci shall present all portions of the edited Comprehensive Plan to � the City Council for its approval. _ ORDINANCE NO. k'• a._j F Section 2(a): Wherever the designation C-L (Commercial-Linear) appears On ` the plan map for Ordinance No. 83-16, ratified by this Oruinance, that ll designation shall read C-G (Commercial-General). Section 3: In order to provide a uniform date for the effectiveness of the adopted Comprehensive Plan to be ratified by the City council in 1983, an emergency is declared and the Comprehensive Plan as ratified shall become effective on go t / 9,43 PASSED: By the City Council, by vote of all City Council members _present, after being read by number and title only, this day of _ Al !4 1983. Recorder - City of Tig APPROVED: By the Mayor this it day of , 1987 Mayor City of Tigard (0458A) ORDINANCE NO. 83- Y_ �z l 4 ry in 4T TIM—Am MPREHENSIVE PLAN Resource Document Volume 1 r� _ " CITYOF TIFAM WAMNNGM COUWY,OREGON s . i h. s y t CITIZEN INVOLVEMENT f TIGARD PLANNING AND DEVELOPMENT DEPARTMENT JUNE, 1982 Revised October 1982 CITY COUNCIL MEMBERS PLANNING COMMISSION MEMBERS Wilbur Bishop - Mayor Frank Tepedino - President John Cook Donald Moen Tom Brian Richard Helmer Nancie Stimler Mark Christen Kenneth Scheckla Roy Bonn Phil Eden Bonnie Owens Cliff Speaker Deane Leverets COMMITTEE FOR CITIZEN INVOLVEMENT Wilbur Bishop - Mayor Frank Tepedino - Planning Commission President Ronald Jordan - Park Board Chairman 4 John A. Butler NPO #1 Bruce Clark - NPO #2 Lou Ane Mortensen NPO #3 Gordon S. Martin - NPO #& Chris Vanderwood - NPO #5 Phillip A. Pasteris - NPO #6 Nancy Robbins NPO #7 5 F g CITY STAFF Bob Jean, City Admi-.istrator Bill Monahan, Planning and Development Director F Jeremy Coursolle, Associate Planner Liz Newton, Associate Planner Frank Currie, Public Works Director A FilPatt Martin, Word Processor TABLE OF CONTENTS CHAPTER I: OVERVIEW OF THE CITY CHAPTER II: CITIZEN INVOLVEMENT i Section Page 1. Introduction 2. Background 3. Citizen Participation in .: Comprehensive Manning 4. Communication and technical Information 5. Adoption of Comprehensive Plan 6. Appendix A. Committee for Citizen Involvement (Members) B. Neighborhood Planning Organization NPO #1 NPO C2 NPO !3 NPO t4 NPO s5 F1P0 #6 NPO #7 CHAPTER ill: NATURAL FEATURES AND OPEN SPACE Section Page 1. Introduction 2. Physical Limitation and Natural Hazards A. Floodplains and Wetlands B. Runoff Erosion and Ground Instability C. Ground Instability 3. Natural Resources 4. Natural Areas A. Vegetation LL B. Wildlife C. Special Areas D. Historical-Cultural Resources E. Scenery 5. Agricultural Resources 6. Parks, Recreation and Open Space A. Park System Classifleatiaa E B. Park Standards s i is E 7. Appendix A. Hydrology B. Floodplains and Wetlands C. Geology D. Groundwater B. soils F. Existing Vegetation G. Wildlife H. Existing Parks, Greenways and Recreation I. Park System Development Charge CHAPTER IV: -AIA;WATER--AND--NOISE QUALITY Section Page 1. Introduction 2. Air Quality 3. Noise 4. Water CHAPTER V: ECONOMY OF THE CITY Section Page 1. Introduction f 2. Economic Conditions A. Labor Force B. Population C. Residential Location of Workers D. Income 1. Recent Development Trends A. Buildable Lands B. City Commercial Development C. City .Industrial Development D. Transportation E. Public Facilities 4. Action Plan CHAPTER VI: HOUSING Section Page 1. introduction 2. Housing Supply 3. Housing Demand 4. Cost of Housing 5. Population Trends- i' 6. Buildable Residential Land Inventory as CHAPTER VII: PUBLIC FACILITIES AND SERVICES Section page 1. Introduction 2. General Public Facilities & Services 3. Storm Drainage 4. Water Service 5. Sewer Service 6. Police Protection 7. Fire Protection 8. Private Utilities 9. Schools 10. Health Services 11. Local Government Facilities 12. Library 13. Solid Waste Disposal & Recycling CHAPTER VIII: TRANSPORTATION Section page 1. Introduction 2. Functional Street Classification 3. Street Improvements tr 4. Traffic Analysis S. Bass Transit (Tri-Met) 6. Transit Dependent 7. Pedestrian and Bicycle Ways 8. Railroads 9. Appendix A. Existing Street Improvements B. Pedestrian-Bicycle Pathway Plan CHAPTER III: ENERGY Section page 1. Introduction 2. Energy Conservation and Local Governments• Role 3. Alternative Energy Source CHAPTER X: URBANIZATION Section. Page 1. Introduction 2. Metropolitan Service District 3. Survey of Vacant Buildable Lands 1� t_ in the Tigard Pian Asea 4. Growth Management System 5. Urban Growth Boundary Factors CITY OF TIGARD, OREGON ORDINANCE NO. 82- -7 '7 _ r AN ORDINANCE ADOPTING THE CITIZEN INVOLVEMENT ELEMENT OF THE TIGARD COMPREHENSIVE PLAN; AND DECLARING AN EFFECTIVE DATE. i. F 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 P adoption of a citywide comprehensive plan element on citizen s involvement, after holding a public hearing regarding the same; and r WHEREAS, the proposed Citizen Involvement Element has been reviewed by the Committee fer Citizen Involvement and the City of Tigard; and WHEREAS, the proposed Element has been the subject of comments from the city' s neighiDorhood planning organizations (NPO's) and individual citizens; and WHEREAS, after considering the comments of the Planning Commission, { the Committee for Citizen Involvement, neighborhood planning organi- zations and individual citizens, the Council believes that the Citizen Involvement Element of the Tigard Comprehensive Plan should I be adopted in the form set forth in Exhibit "A" attached hereto and, by this reference, made a part hereof; C NOW, THEREFORE, THE CITY OF TIGARD ORDAINS AS FOLLOWS: Section 1: The Citizen Involvement Element of the Tigard Comprehensive Plan, as set forth in Exhibit "A", consisting of a title page and seven nacres of text be, and the r-�-' same hereby is, adopted as a part of the citywide Comprehensive Plan of the City of Tigard. section 2: n revising and compiling the Tigard Comprehensive Plan, the Planning Director is authorized and vi directed to edit the Pian. a5 necessary to provide a readable text; however, the Director shall not edit or change any policy or :v i:i� "w". and shall present implementation strategy adapted in �- � t H:�_- - r� all portions of the edited Comprehensive Plan to the City Council ' for its approvalz Section 3: In order to provide a uniform date for the effective- 4 Hess of this series of >omprehensive Plan revisions t to be adopted by the City Council in 1982, this portion of the r ORDINANCE No. 82- 77 Pagel Comprehensive Plan shall become effective on 3anuary 1, 1983. PASSED: By /l haI)., , a" I vote of all Council members nrese,nt, after being read two times by number and title only, this_,g j day of �1,,,�p,, � �.- i982. E Recorder - City ogard APPROVED: By the Mayor, this 2,a day of IVO, �,c 4 1982• Mayo= - City of Tigard I i i I a f ORDINANCE No. 82- Page' 2 ` A . i i CITY OF TIGARD, OREGON t ORDINANCE NO. 83- 03 AN ORDINANCE ADOPTING THE NATURAL FEATURES AND OPEN SPACE 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; I and If WHEREAS, the Tigard Planning Commission has recommended the adoption of a citywide Comprehensive Plan Element on Natural Features and Open Space, after holding a public hearing regarding the same; and I WHEREAS, the proposed Natural Features and Open Space Element has been i reviewed by the Committee for Citizen Involvement of the City of Tigard; and i WHEREAS, the proposed Element has been the subject of comments from the City's ! j 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 Natural Features and Open Space 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 TIGARD ORDAINS AS FOLLOWS: 1 Section 1: The Natural Features and Open Space Element of the Tigard ^omprehensivePlan, as set forth in Exhibit "A", consisting of a title page i and one hundred and three 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 Plan to the City Council for its approval. Section 3: In order to provide a uniform date for the effectiveness of this serines of Comprehensive Plan revisions to be adopted by the City Council in 1983, an emergency is declared a-d this portion of th- Comprehensive Plait � shall become effective on February 1, 1983 PASSED: by unanimous vo%e Of all %00unc. -c.mbers -resent, after being read y number and title only, this 24 day of January 1 '82. Recbrder - City Of Tigard APPROVED: By the Mayor, this 24 day of Januar , 1982. Mayor - City of Tigard ORDINANCE NO. 83- 03 r CITY OF TIGARD, OREGON c� e U I ORDINANCE NO. 82-J AN ORDINANCE ADOPTING THE AIR, WATER AND LAND RESOURCE QUALITY 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 iTij.rOVC the operation and implementation of that Plan; and WHEREAS, the Tigard Planning Commission has recommended the adoption of a citywide Comprehensive Plan Element on Air, Water and Land Resource Quality, after holding a public hearing regarding the same; and WHEREAS, the Proposed Air, Water and Land Resource Quality 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 Punning Commission, the Committee for Citizen Involvement, Neighborhood Planning Organizations and individual citizens, the Council believes that the Air, Water and Land Resources Quality 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 TIGARD ORDAINS AS FOLLOWS: Section 1: The Air, Water and Land Resources Quality Element of the Tigard Comprehensive Plan, as set forth in Exhibit "A",consisting of a title page and thirty pages of text be, and the same hereby is, adopted as a part of the citywide 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 Plan 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 1982, an emergency is declared and this portion of the Comprehensive Plan shall become effective on January 1, 1983. PASSED: Ey vote of all Council members present, after being read by number and title only, this43day ofsQ .., 1982. Recorder -'City Q Tigard �. APPROVED By the Ma_vor, this day of ,��,,, /�Qv , 1982. Mayor - City of Tigard ORDINANCE NO. 82- (File 0333A) � - CITY OF TIGARD, OREGON j ORDINANCE NO. 82- T6 _ AN ORDINANCE ADOPTING THE ECONOMY ELEMENT OF THE TIGARD COMPREHENSIVE PLAN; AND DECLARING AN EMERGENCY. { WHEREAS, the City of Tigard finds it necessary to revis= I ts Comprehensive [t Plan periodically to improve the operation and implementation of that Plan; and on has nded the adoption of a WHEREAS, the Tigarr hensive Plan Elemeng nt1on1Economy,re afterhholding a public hearing citywide Comp regarding the same; and WHEREAS, the proposed Economy 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 Organizeitions (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 Economy 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 TIGARD ORDAINS AS FOLLOWS: Section 1: The Economy Element of the Tigard Comprehensive Plan, as set forth in Exhibit "A", consisting of a title page and twenty-three pages of text be, and the same hereby is, adopted as a part of the citywide 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 the Director shall not edit or change any provide a readable text; however, Exhibit "A" and shall present all policy or implementation strategy adopted in portions of the edited Comprehensive Plan to the City Council for its approval. f-rm date for the effectiveness of this Section "s: In order to provide a �:=- t series of Comprehensive Plan revisions to be adopted by the City Council in 1982, an emergency is declared and this portion of the Comprehensive Plan shall become effective on January 1, 1983. PASSED: Byfl v,rluvi�� us vote of all Council members present, after being read by number and title only, thisday ofbP1w 1982• � E Recorder - CiCy o igard - r APPROVED: By the Mayor, this day of 1982. Mayor_- City of Tigard ORDINANCE NO. 82- (File 0333A) t CITY OF TIGARD, OREGON ORDINANCE NO. 83-_� AN ORDINANCE ADOPTING THE HOUSING 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 Housing, after holding a public hearing regarding the same; and WHEREAS, the proposed Housing 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 Orgk�uizations and individual citizens, the Council believes that the Housing Element of the Tigard ComprehensIve P1a...• 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 TIGARD ORDAINS AS FOLLOWS: Section l: The Housing Element of the Tigard Comprehensive Plan, as set forth in Exhibit "A", consisting of a title page and forty-nine pages of text be, b and the same hereby is, adopted as a part of the citywide 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 Plan to the City Council for its approval. Section 3: In order to provide a uniform date for the effectiveness of this seri—es 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 February 1, 1983 nAeecn. a., �� , vote of all Council members present, after being readby number and title only this . day of i;83. apa 'Recorder - City of Tigard APPROVED: 8y the Mayor, this day of ,,,��Zgy& 1983= Mayor City of Tigard .. r •y y" I CITY OF TIGARD, OREGON ORDINANCE NO. 83- � 1 AN ORDINANCE ADOPTING THE PUBLIC FACILITIES AND SERVICES ELEMENT OF THE TIGARD COMPREHENSIVE PLAN: AND DECLARII:C A.0 EMERGENCY. WHEREAS, the City of Tigard finds it necessary to revise its Comprehensive Plan periodically 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 Public Facilities and Services, after holding a public hearing regarding the same; and WHEREAS, the proposed Public Facilities and Services 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 :'HEREAS, after considering the comments of the Planning Commission, the Committee for Citizen Involvement, Neighborhood Planning Organizations and individual citizens, the Council believes that the Public Facilities and Services 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 TIGARD ORDAINS AS FOLLOWS: Section 1: The PublicFacilities and Services Element of the Tigard Comprehensive Plan, as set forth in Exhibit "A", consisting of a title page and forty-one pages of text be, and the same hereby is, adopted as a part of ;s the citywide 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 1mpleren,-atIon strategy adopted in Exhibit "'A" and shall present all portions of the edited Comprehensive Plan 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 deciaeed and this portion of the Comprehensive Plan shall become effective on January 1. 1983 PASSED: By unanimous vote of all Council members present, after being 4 read by number and title only, this 15 day of December 1982. } Deju `'Recorder - City of Tigard APP20VED: By the-Mayor, this /5%k daio ar„�!a- , 1982. 3 Mayor- City of Tigard ORDINANCE NO. ,83- M$ r CITY OF TIGARD, OREGON ORDINANCE NO. 83-C)q_ AN ORDINANCE ADOPTING THE 1RANSPORTATION 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 Transportation, after holding a public hearing regarding the same; and WHEREAS, the proposed Transportation 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 Transportation Element of the Tigard Comprehensive Plan should be adopted in the form set forth in l Exhibit "A" attached hereto and, by this reference, made a part hereof: NOW, THEREFORE, THE CITY OF TIGARD ORDAINS AS FOLLOWS: Section 1: The Transportation Elementof the Tigard Comprehensive Plan, as set forth in Exhibit "A", consisting of a title page and Fifty-eight pages of text be, and the same hereby is, adopted as a part of the citywide 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 Plan to the City Council for its approval. Section 3: In order to provide a uniform date for the effectiveness of this seriTf-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 February 1, 1983 PASSED: By unanimous vote of all Council members present, after being read by number and title only, this 25 day of`��anua�ry 1983. Recor er - City of Tigar APPROVED: By the Mayor, this 46' day of /4-*L1l.1,.If, 1983. f Mayor City o Tigar ORDINANCE N0. 83-04_ CITY OF TIGARD, OREGON �- ORDINANCE NO. 82- AN ORDINANCE ADOPTING THE ENERGY ELEMENT OF THE TIGARD COMPREHENSIVE PLAN; AND DECLARING AN EMERGENCY. WHEREAS, ti-le City of Tigard finds it necessary to revise its Comprehensive i Plan periodically to improve the operation and implementation of that Plan; and r WHEREAS, the Tigard Planning Commission has recommended the adoption of a citywide Comprehensive Plan Element on Energy, after holding a public hearing t s regarding the same; and has been reviewed by the Committee for WHEREAS, the proposed Energy Element Citizen Involvement of the City of Tigard; and t WHEREAS, the proposed Element has been the subject of co;aments 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, Neighboriicod Planning Organizations and believes that the Energy Element of the individual citizens, the Council adopted in the form set forth in Exhibit Tigard Comprehensive Plan should be "A" attached hereto and, by this reference, made a part hereof: NOW, THEREFORE, THE CITY OF TIGARD ORDAINS AS FOLLOWS: Section 1• The Energy Element of the Tigard Comprehensive Plan, as set forth in Exhibit "A", consisting of a title page and nine pages of text be, and the same hereby is, adopted as a part oft:?c citywide 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 Plan 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 1982, an emergency is declared and this portion of the Comprehensive Plan shall become effective on January 1, 1983. PASSED: By Q,` vote of all Council members present, after being read by num r and title only, thisfc,_day of , 1982. Recorder - City�ofTi�gard APPROVED: By the Mayor, this (S day of 1lnr� 1982. Mayor City of Tigard ORDINANCE NO. 82- � (File 0333A) E It { CITY OF TIGARD, OREGON ORDINANCE NO. 83-_Q_l ¢ 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; j 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 proposod 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: 4: NOW, THEREFORE, THE CITY OF TIGARD ORDAINS AS FOLLOWS: i Section 1: 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 €hall 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 �,�, ;/ / PASSED: By ;; n 4n,ns rc, s- vote of all Council members present, after being read by number and title only, this 7 day of rH , 1983. Recorder - City of Tigqr�d APPROVED: By the Mayor, this d� r � , 1983. Mayor - City of Tigard ORDINANCE NO. 83- s I E E f CITIZEN INVOLVE A- AENT Comprehensive Flan Report c; CITYQF TWARD WASHINGTON COUNTY.OREGON ADOPTED BY CITY COUNCIL / NOVEMBER 22, 1982 ORDINANCE 82-77 INTRODUCTION This report provides background iaformal.ion on a citizen involvement program for Tigard in relation to LCDC Goal 1 - Citizen Involvement. In addition, it recommends findings and policies to meet Coal 1 requirements. The Goal #1 statement reads; "to develop a citizen involvement program that insures the opportunity for citizens to be involved in all phases of the. planning process". "The governing body charged with preparing and adopting a comprehensive plan shall adopt and publicize a program for citizen involvement that clearly defines the procedures by which the general public will be involved in the ongoing land use planning process. The citizen involvement program shall be appropriate to the scale of the planning effort. The program shall provide for continuity of citizen participation and of information that enables citizens to identify and comprehend the issues". This report begins with a brief history of Tigard's citizen participation with the initial resolutions of the Neighborhood Planning Organizations (NPO) City Ordinance 75-60, and the Committee for Citizen Involvement (CCI), City Ordinance 75-61. it is followed by a discussion of citizen involvement, and suggests methods for continuing citizen participation throughout implementation and updating of the City's comprehensive plan. 5 BACKGROUND FORMULATION OF NEIGHBORHOOD PLANNING Citizen interest in the planning process and the formulation of community goals began with adoption of Tigard's Community Plan in July of 1971 (City Ordinance 71-15). In 1973, the City Administrator and the City Council recognized the need for the formation of Neighborhood Planning Organizations (NPO): to develop communication channels between the citizens of Tigard and the city officials increasing the livability of the community. The City of Tigard was divided into seven neighborhood areas, the boundaries +, of which were defined by the Planning Commission. These boundaries may be E altered if agreed upon by the affected neighborhood planning organizations. In 1975, the City Council passed a resolution formally recognizing and the Committee for Citizen Involvement Neighborhood Planning Organization as the official citizen involvement structures within the City of Tigard. The purpose of these organizations is to act as advisory groups to the Planning s Commission and City Council on all matters affecting their neighborhood and t city. Y The first Neighborhood Planning Organization, NPO #1, had their neighborhood plan adopted by the City Council in May of 1974. Briefly, this plan included the goals of the community which were adopted by the city in the Tigard Community Plan in 1971, s description of the physical characteristics of the . neighborhood area, a land use map and use descriptions, area problems and policies to alleviate those problems, traffic generation, and street standards. s' Since 1974, the remaining Neighborhood Planning Organizations had their neighborhood plans adopted by the City Council; the last of which was NPO #7 in February of 1979. " After adoption of the NPO plans, some interest diminished and a few of the NPO most of the seven-plus member Neighborhood groups became inactive. Presently, Organizations meet on a monthly basis to discuss such topics as development proposals within their area, procedural matters within the NPO Organization and future planning needs within their planning area inside and outside the existing city limits, yet inside the Tigard urban planning area. The City is currently in the process of re-estali5hing interest of the ing Organizations that have been inactive membership those Neighborhood Plann in the past few years. In order to ensure that communication channels stay open between the general populace, the Neighborhood Planning Organizations, the Planning Commission, the City Council and the City officials, the Council also initiated a Committee for Citizen's Involvement. The Committee's goals and definitions were further revised and updated in 1979. Briefly, this committee includes the chairperson of each Neighborhood Planning Organization, the Planning Commission Chairperson, a member of Council, a Park Board member and members i - e.. _ff of the oly �z��. _ -2- u:j FIGURE I NEIGHBORHOOD PLANNING ORGANIZATION BOUNDARIES T/GARD 8 VICINITY r•`� ON "P. SMP \ `,�� _ .427* C � JLjL�-•J- pL-11 DO 11 ,Y :,y+1, • _ ! . q� * it �•� Q, ..• ,`/ ' i CITIZEN PARTICIPATION IN COMPREHENSIVE PLANNING Throughout the existence of the Neighborhood Planning Organizations, the original goals and policies of the Tigard Community Plan and each of the neighborhood plans have been reviewed and implemented in all aspects of the land use decisions. As the City of Tigard grew, the overall Community Plan remained a static document and subsequently the individual neighborhood plans as adopted became "mini" Comprehensive Plans. While these neighborhood plans met the immediate neighborhood needs, they did not address or implement the overall growth needs of the community. In late 1981, the City Council, staff and the Neighborhood Planning Organizations saw the need to revise and update the community's Comprehensive Plat►. For most of the elements of the Comprehensive plan, staff or consultants will be collecting data and writing the draft report containing analysis, and e recommended findings and policies, which will be reviewed by the Neighborhood Planning Organizations, the Committee for Citizen Involvement, the Planning ! Commission and the City Council. It is anticipated that these groups will examine and modify each element draft at the committee and public hearing levels. f f OTHER CITIZEN COMMITTEES In addition to the Neighborhood Planning Organization, there are several other active citizen committees in Tigard. Citizens can serve on the Budget Committee which reviews the annual operating budget for the City, the Park Board which advises the City on all matters pertaining to parks and recreation, the Tigard Downtown Committee and the Tigard Urban Renewal Agency Advisory Committee which are in the process of reviewing the Downtown €. Revitalization Plan. Other committees include: the Library Board and the !' Civic Center Committee. LAND USE EDUCATION Those citizens who have participated in the formulation of the existing Neighborhood Plans have received an informal land use planning education. It is anticipated that all of those people who became involved with the revisions of the Comprehensive Plan will receive informal land use planning education. ' Although the City does not conduct formal classes on land use planning, the City officials do conduct work sessions with the City Council, Planning Commission and Neighborhood Planning Organizations to update and increase their knowledge on land use matters that may affect the Tigard community. t :. p - i i. —3— F.n Y FIGURE II PARTICIPATION IN THE PLANNING PROCESS Participants Public Planning process steps Citizens Planners officials 1. assessing community values X O 2. Determining goals and objectives X 0 X 3. Data collection X 4. Design of criteria and standards X 5. Developing alternative plans X 6.. Choosing an alternative X 0 X 7. Detailed design of operational plan X 8,. Modification/approval of operational plan X 0 X 9. Implementation X X 10. Feedback X X X X = Major role 0 — Facilitating or supporting role Source: The Practice of Local Government Planning, International City management Association, 1979. Citizen participation is continually encouarged at all levels of decision making in the planning process: in-house discusssions, administrative(Planning Director) decisions, Hearings Officer proceedings, Planning Commission public hearings and City Council de novo public hearings. I COMMUNICATION AND TECHNICAL INFORMATION All public meetings are announced in the Community Calendar section of the Tigard Times, and Portland Oregonian. Public hearings and other citizen sponsored meetings and workshops displayed in these circulations are often accompanied by a newspaper article explaining the meeting's issues. Meeting announcements are mailed to all affected property owners and applicants for all of the public meetings. Through the revision process of the Comprehensive Plan and Zoning Ordinance, staff proposes to send the various citizen groups newsletters which describe the Planning Commission's or City Council's progress. To encourage attendance at neighborhood meetings during the revision process, staff is prepared to assist any citizen organization to advertise these meetings in the affected neighborhoods. All i public documents concerning land use planning are available for distribution, or on a loan basis from the Planning Department and will also be placed in the City Library. Minutes of meetings are sent ' > committees and hearing authority members, and are available at the Pin ing Department for public review. The technical information available to local citizens includes assistance by City staff and the published material and files which form the background of the Comprehensive Plan. Reference material will be available at the City ff Planning Department. t t, d` { i S 4 —4— w k i . ADOPTION OF COMPREHENSIVE PLAN The review of the Comprehensive Plan is initiated at the NPO level. Staff is encouraged that; many of the major issues that affect the City regarding comprehensive planning can be resolved at the NPO level. At the Planning Commission and City Council levels, the various Comprehensive Plan elements will be presented individually at public hearings where additional citizen comments will be sought. The Planning Commission will be taking all of the citizen and Neighborhood Planning Organization comments into full consideration, and after further reviewing each element, will recommend elements of the Comprehensive Plan to the City Council. The Council will then review each particular element, modify it, if necessary, and will then adopt each element and incorporate them into the Comprehensive Plan. IMPLEMENTION, EVALUATION AND KEVISION Citizens will have the opportunity to comment as ordinances is developed and adopted that implements the Comprehensive Plan. One of the major implementing tools of the Comprehensive Plan will be the Zoning Ordinance and Subdivision codes, which will be revised simultaneously with the Comprehensive Plan development and made consistent with that plan. Additional public hearings will also be held for those ordinance revisions. As the Comprehensive Plan is periodically evaluated and revised, citizens will have the opportunity to comment prior to the adoption of any amendments of the Comprehensive Plan. OPPORTUNITY FOR INTERACTION WITH DECISION MAKERS At the beginning of each City Council meeting, a "Call to Audience" time is opened for citizens who wish to speak on any matter at a designated time during the meeting. The Planning Commission allows for general audience input on agenda items. Dates, times and locations of all public meetings are publicized in the Tigard Times and the Portland Oregonian Community Calendar sections, along with a brief description of the subject of the meeting. Minutes of the Planning j Commission and City Council meetings provide a written record of official's response to matters heard during the public hearing. FUNDING t The allocation of specific funding for a citizen involvement program has not been available in the budget for the City of Tigard. Since the initiation of the Neighborhood Planning Organization, .the City has provided a staff liaison i person for each neighborhood meeting, a place to meet and the cost of printing 1 informational materials for the neighborhood organizations. It is anticipated ; that future trends will include a continuation of the City's support for each citizen group. �s -5- APPENDIX N AT R L FEATURES inopvim.o �..�.,. SPACE Comprehensive Plan Report r i 4 i CITYOFTIGARD WASHWK�10N COUNTY,OR°^w.N ADOPTED BY CITY COUNCIL January 24, 1913 ORDINANCE NO. 83-03 I. INTRODUCTION This report addresses the concerns expressed by LCDC Statewide Planning Goals #3 - Agricultural Lands; #4 - Forest land; #5 - Open Spaces, Scenic and Historic Areas and Natural Resources; #7 - Areas Subject to Natural Disasters and Hazards; and #8 - Recreational Needs. Goal 7k3 states: To preserve and maintain agricultural lands. Agriculture lands shall be preserved and maintained for farm use, consistent with existing and future needs for agricultural products, forest and open space. These lands shall be inventoried and preserved by adopting exclusive farm use zones pursuant to ORS Chapter 215. Such minimum zones shall be appropriate for the continuation of the existing commercial agricultural enterprise with the area. Conversion of rural agricultural land to urbanizable land shall be based upon consideration of the following factors: (1) environmental, energy, social and economic consequences; (2) demonstrated need consistent with LCDC goals; (3) unavailability of an alternative suitable location for the requested use; (4) compatibility of the proposed use with related agricultural land; and (5) the retention of Class I, II, III and IV soils in farm use. A governing body proposing to convert rural agricultural land to urbanizable land shall follow the procedures and requirements set forth in the Land Use Planning goal (Goal 2) for goal exceptions. Goal #4: To conserve forest lands for forest uses. t Forest land shall be retained for the production of wood fiber and other forest uses. Lands suitable for forest uses shall be inventoried and designated as forest lands. Existing forest land uses shall be protected unless proposed changes are in conformance with the comprehensive plan. In the process of designating forest lands, comprehensive plans shall include the determination and mapping of forest site classes according to the United States Forest Service manual "Field Instructions for Integrated Forest Survey and Timber Management inventories - Oregon, Washington and California, 1974." I Goal #5: To conserve open space and protect natural and scenic resources. i Programs shall be provided that will: (1) insure open space, (2) protect scenic and historic areas and natural resource for future generations, and (3) promote healthy acid visually attractive environments in harmony with the natural landscape character. The location, quality and quantity of the following resources shall be inventoried: a. Land needed or desirable for open space; b. Mineral and aggregate resources; C. Energy sources; d. Fish and wildlife areas and habitats; e. Ecologically and sciontiinally fi aioni �anhnt na1�`s�1 areas, inrl��'iina _Oni fi- , i- desert areas; f. Outstanding scenic views and sites; g. Water areas, wetlands, watersheds and groundwater resources; ® h. Wilderness areas; -1- i. Historic areas, sites, structures and objects; j. Cultural areas; k. Potential and approved Oregon recreation trails; 1. Potential and approved federal wild and scenic waterways and state scenic waterways. Where no conflicting uses for such resources have been identified, such resources shall be managed so as to preserve their original character. Where conflicting uses have been identified the economic, social, environmental and energy consequences of the conflicting uses shall be determined and programs developed to achieve the goal. Goal #7: To protect life and property from natural disasters and hazards. Developments subject to damage or that could result in loss of life shall not be planned nor located in known areas of natural disasters and hazards without appropriate safeguards. Plans shall be based on an inventory of known areas of natural disaster and hazard. Goal #8: To satisfy the recreational needs of the citizens of the state and visitors. The requirements for meeting such needs, now and in the future shall be planned for by governmental agencies having responsibility for recreation areas, facilities and opportunities: (1) in coordination with private enterprise, (2) in appropriate proportions and (3) in such quantity, quality t and location as is consistent with the availability of the resources to meet such requirements. State and federal agency recreation plans shall be coordinated with local and regional recreational needs and plans. The roots of this document are planted in issues much broader than the title might suggest. In essence, it is a plan intended to preserve the natural characteristics and amenities of the greater overall community design. As a bonus for this method of planning, a usable network of open spaces for recreation and relaxation is identified and permanently set aside. Growth in any community means a reduction of open space. Across the nation, houses are covering agricultural land, & flood plains and wetlands are being filled and built on, and a multitude of unique natural features are being exploited and lost forever. At the same time, growing populations place an increasing premium on the preservation of these same resources. The loss of forest lands, scenic views, & wildlife habitats, and the increasing pollution adds to the need for preservation of our valuable resources. These conflicts between growth and the environment are the result of the several components of urban development competing for the use of our land resources to suit their specific needs and desires. The basic conflict is between the individual land use rights and the broader interest of the entire ^1-= a malJor philosophical question for which there is rising community. a�.�s is _,-- philosophical to resolve. Tigard and other local governments throughout the land are confronted with this issue on a daily basis. The solution undoubtedly lies in the recognition of the necessity for maintaining an equitable balance between the government's desire to protect the public interest and individuals' , businesses', and corporations' wishes to use their land as they please -2- This Plan recognizes the value of the natural environment, and strikes a balance between the broad public interest and the individual rights. This is accomplished through a process of using nature as the major guide to land development. In the following plan, nature's processes are used to determine policy direction to insure that continued development will be in harmony with ® the natural features of the community and in the best interest of all concerned. The maps that are included in this report are for illustrative purposes. Any one having questions concerning these maps should review the larger originals located in the Department of Planning and Development in the Tigard City Hall. II. PHYSICAL LIMITATIONS AND NATURAL HAZARDS Human activity on the surface of the earth, including Tigard, takes place in a physical environment that is indifferent to our needs and desires. If our efforts in using the land are consistently successful (or unsuccessful,) we may imagine that the earth is benign (or hostile). However, the specific location and characteristics of human activity, interacting with natural conditions and processes, jointly determine the outcome. Problems for people--in the form of property damages, injury, and even loss of life--occur when activities are improperly located. "Natural Hazards should more a appropriately be entitled "Human Hazards". FIND S t o The cal features which form the make-up of any pie land have a direct ionship to the type and density of deve t which can be accommoda that property (carrying capacity). binations such as steep slopas unstable soils create severe lopment constraints. Excessive develo in such physically limi reas greatly increases the potential sever landslide, earthqu amage, flooding, etc. o Many portions of the ain are tain natural aspects such as significant vegetation, wi.l s areas and are valuable for open space and recreation. o Vegetation serves an essen el in the process of runoff and erosion control, as well r the p on, and natural habitation of wildlife. Nonetheless, s too often r and replaced by buildings and impervious surfac o Due- to the gene nature of soils and geologic site specific analysis is of` necessary to determine se presence logic hazards and the Bev y of soil problems which are constraints development. Such geolo hazards exist when certain combinations of slope, soil, and bedrock c inativns,-and moisture conditions render land unstable. -3- i I 3. The City sha operate with other ncies to help identify these areas. 4. The City of Tigard pro a in the Community Development Code that the City may req ..te specific soil, surveys and geologic ytudics :There potential s are identified based upon available geologic and soils ev' ce. natural hazards are identified, the City will require special . n considerations and construction measures be take offset the s nd geologic constraints present in order to p ct life and proper d to protect environmentally sensitive a 5. The Co ity Development Code shalt not de !,,.,menu to he pla or located in known areas of natura ters and hazards wiut appropriate safeguards. The term "natural hazards," traditionally used in reference to such problems as floods, earthquakes, erosion, etc., is also inappropriate for another reason. The danger of a natural event or conditions depends upon ignorance: it's a "hazard" when we don't know about it. On the other hand, if there is foreknowledge, the potential problem posed by the physical environment can be carefully considered as a "constraint" or "limitation." For these reasons, the phrase "physical limitations" (or physical constraints or environmental limitations) is more accurate than "natural hazards" as a way of referring to the human problems posed by the physical environment of the Tigard area. The { The traditional and more recent methods of coping with these problems mirror this contrast in terminology between "natural hazards" and "physical constraints." The earlier approach tended to involve a crisis reaction to a severe event, with a focus on what was "wrong" with nature and efforts to change the environment to suit human preferences. An integral part of this approach has been government disaster relief and rehabilitation. While this mode of response is not without benefit, it has generally been shown to be often inadequate and cost ineffective. Moreover, it contributes to increased damages and injuries, in the final analysis, by indirectly encouraging more improper use of land. The newer method, embodied in the legislative trends at the federal, state, and local levels the past twenty _years, relies increasingly on land use planning to anticipate potential environmental threats and thereby control inappropriate uses. This planning approach to physical constraints tends to give primary attention to the continuation of natural processes and minimizes human disruption, thereby lowering total costs to the community. f There are three major types of physical constraints which need to be addressed by land use planning in the Tigard area. They are: j 1. Floodplains and Wetlands - including areas having a high water table. 2. Ground Instability including areas subject to earthquakes, landslides, soil creep, settlement, subsidence, etc. 3. Runoff and Erosion - including areas subject to gullying and siltation. -5- These three kinds of limitations to the use of land are distinguished by characteristic differences in areas effected as well as natural processes involved, and therefore in terms of the types of community controls necessary to reduce potential problems. However, the natural physical processed responsible for each of these constraints are fundamentally interconnected. The convenience of focussing upon each separately should not obscure their common origins, especially the basic roles of: 1. Underlying geological deposits and processes, 2. Water in its many forms through the hydrologic cycle, 3. ` ce „cil prnnprties, 4. Slope of the land surface, and S 5. Vegetation Because of these complex natural relationships, some land use controls designed to deal with one group of physical constraints (eg. , runoff and erosion) may help reduce problems of another (eg., flooding). A. Floodplains and Wetlands Flooding and poor drainage together are the most obvious physical limitations in the Tigard area, and it is therefore both Tigard and Washington County have z floodplain ordinances. The regulation of land use in floodplains is relatively recent, however, and illustrates how a fundamental shift in treating physical limitations (natural hazards) is taking place. $, FINDINGS o The obi a of the City is to use the detailed info on gathered on floodplain m the U.S. Army Corps of Engineers, an elop policies to: 1. Control de ment, as to not adversely a the floodplain and floodway area 2. Minimize the run rosion impact of opment on the surrounding area and downstream erties, and 3. Emphasize the retentio a v ation bufe along streams and drainageways, to reduce flood damage and provide erosion and siltation control. o In addition, there is the iss f cumulative effect of development upstream of Tigard. Floo evels igard will be substantially determined by the control ercised ov velopment outside the plan area, as well as inside d's Planning Ar o The Fanno Creek dra' a system includes numer all water courses. The integrity of t natural drainageways is intr Ily connected to the system's cap y to absorb excessive runoff and subsequent flood `x' E -6- f levels. en, however, water courses are altered to provide more usable 5. land. T11 resultant adverse impacts are detrimental to th entire drainage s M. i.e. , the storage capacity at the water se is lessened and ding occurs. o Besides the basi ed to control development in flood pro eas, it was found that public owledge of floodplain hazards was -ing. Many of the obstructions p ously placed in the floodplain the result of either ignorance or ly optimistic attitudes abo otential flooding problems. These obstr ons (e.g. Main Street Br' hinder the flow of high water and tend to i ase flood levels. o Proper administration of t floodplain ar relies heavily upon the ttvailabillLy VL ttU Cy Uti LC L->rl!�31.Ll:is 1 WL C11 LU asbebs IIIC environmental impacts of a pr t. Th velopment, which creases the need, should be responsible for idi a City with the necessary data for making sound decisions. the s on the applicant to prove that a project will not adversely affect environment or create undue future liabilities for the City. o The City of Tigard, with assis a fro a U.S. Army Corps of Engineers, has established an area desi ed within 100-year floodplain. o The City of Tigard has b accepted as an 'ble area for the National Flcod Insurance Progra. nd as a result floo urance will be available i. to property owners i , lood prone areas. Theveeral program, however, requires the City adopt an ordinance whic eets certain federal standards. k o The City of rd currently has ordinances, policies standards within k t the Tigard unity Development Code which provide ad to controls for developm ithin floodplain areas. o Acca g to the 1981 Drainage Master Plan Study conducte CHP Hill } f e City, flood levels of two to four feet higher than existing f year flood plain may be expected if no corrective measures taken. Floods The Traditional Response The traditional, solution to flooding has been emergency actions to avoid injuries and reduce property losses, and disaster relief. This approach has emphasized structural solutions (e.g. dams, levees, channels) to prevent damage from future flooding. Unfortunately, this structural approach has often failed, because: 1. Floods often don't conform to the purpose of the structures or they circumvent them over time. 2. The structures reduce the local flood hazard at the expense of increasing the flood hazard either or both upstream and down stream. 3. A_false sense of security stimulates even more development in risky areas. -7- The consequence is that floods continue to occur and losses are even more catastrophic. Historically, flood losses in the U.S. have skyrocketed (a cumulative total of $9 billion since 1936) despite massive expenditure on flood control works. The basic difficulty is that local governments allow people continue to locate developnment in areas with high flood risk. There is a large and growing body of technical research which documents that: 1. People are seriously uninformed about the flood risk. 2. People tend to be "grossly optimistic" about the flood problem. Floods - More Effective Methods of Reducing Costs Growing out of investigations into the causes of rising flood damages is an approach that emphasizes land use planning. It is the foundation of the federal laws enacted in the 1960's, which provide for local restrictions on floodplain uses in return for federally subsidized flood insurance, disaster relief, and access to other federal programs. The land use planning approach to flooding has three foci: 1. Floodplain management: restrictions on the use of land subject to flooding. C 2. Watershed management: restriction on activities within the drainage basin that contribute to flooding (e.g. impervious surface controls, wetlands protection, control of erosion during construction, etc.). 3. Reliance on natural processes (minimal disruption of physical processes): e.g. watercourses retained in their natural state. In the Tigard area, only one of these elements is currently being fully utilized. It is in the form of floodplain ordinance covering the 100-year floodplain (see Floodplain Map). There are difficulties, however, with the accuracy of the official maps delimiting the floodplain; especially along , Summer Creek and Red Rock Creek, as well as contradictions Jetween calculated flood elevations and their demarcation, but these problems can be resolved. in addition; the UoS. Army Corps of Engineers has conducted a detailed survey ' of the floodplain for the insurance rate maps of the Flood Insurance � - Administration. This study includes a demarcation of the floodway - that portion of the floodplain with significant velocity of flood waters. Additionally, the improved floodplain ordinance includes more stringent j controls in the floodway. Currently, the City of Tigard has adopted a zero-foot Floodplain ordinance. Obstructioi.s in the floodway (e.g. Main Street bridge over Fanao Creek) cause greater damage by raising flood levels. Much of the Fanno Creek basin (e.g. east side of Cooper Mountain) has not be urbanized, and as it is developed flood elevations will rise (see Diagram II). Increased runoff and erosion will mean that areas not now subject to a 100-year flood will be a risk in the future. Careful watershed management could minimize the increase in flood heights. In the absence of good hydrologic data, future flood levels will be difficult to predict. A joint U,.S. Geological Survey - Army Corps of Engineers rainfall-runoff study for the Portland Metropolitan area has been developed to address this issue. Lower Farno Creek and the Tualatin River will also be affected by proposed flood control works to control damages in Tualatin. Flood levels in Tigard will be substantially determined by the controls exercised over development outside the plan area. Urbanization of two areas in particular, the west slope of Mt. Sylvania and the east slope of Cooper Mountain, will have major impact on Summer Creek and Ball Creek, respectively. 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J. r r l o =;�•r,,. � _nulll�/'I:�l'��? rr%i. tit - y .■ 1��. iC( ri 1 hili. •a••a_rr •' iii. _7 � •:r l H�.: d 11urTACq i��'i• yli.2%1';w�� /1 u �N� \•ivNf "Ill, %/✓/�7��^'ll;��\��\r/ I �■11:: .�. �.�r•�' (�r 1�1 r` �//r..1 ��// �'� � y♦Ir�J, . 1 or a r�i.n..�"1 •� •�/�.�.•ii71��1,0_.Ji Y 1� h I /'1✓ I • f 1.■.T7 r •7u1/l all �'i \`//�il,�.l►1 �j�'�•"Iai�� _. �L�%= l�l•' /'11 �.a� / l �i •. I !l/�\••yr�)•�� 7 � ✓ ° y ar, ��..--�:�r-�a_�.�.. -•r ��.\ �11..,.�L, ,,,�, , , Ill .....i'.., �• i v ,��"11Il31:�w�_irk , 11.,..1�1�,..•;.��, r Nu fill, �r .. a �=��e•,.• Now � ,,•r •7 roti� `\!Q•— I/Iw [`�a !jiii i rllll.�lll��■13 1111 �!!�ji ✓r ' r �r �.11'L�)1~ Y� ��0��+ .' ��✓'1: � . rr 1 s/ •i �qi.ry "'r ICS�:'H •.fie T '��• ) .•. ri._. �Ilrr.�n— ��, M.IU �1i.{6' �:��iw \;ZI■_I • ♦• .•• •.+C1 \:�ir�rsi�♦A! T IJ= R.Y fit♦ 1.•/�.��'i a � �♦ i I y• r L\11��;r � 1. '�1�1�.% � % :-.•,��I�°-:�» �► .� i 00(" l � / t,lrnfy Ij'� `\��.►al �:t I'� �r•�:.i �••' oil (�C■„�/ ?: I / n�1>, c� �, 1 111 °••�•,.i1�if ✓-�1�� `�� '��'u ��`Fr�I/'�.�-�..�I.i�,��yl�� f -►�!S.1I4P✓.i L Q• �►��. 1J.: q ► �/•w moi■. / ..u:.'u71r1 r0;- � �U/� ' //I g'."T'r i..jffr lli /,15 •• a�` ! rYl� ' I: .1■ 1f A►.'IJMom- ,�I �AIA-rel N ��- .I li*u� ! �J•�■ ��.�� i 1I��L%L •5 •� j02y, - SIS \ �?elyyY�/e;'';��I�' �' .•.i�� ■c Imo:■ ai/�►� 704 r+ MIR �o I �.--ter /i!•�. ' i i—_ �L--1 ■ r �L� �R�� aVe a', . ,:I r. �� rl/�l� h/�. ::.��I• -� II t FLOOD PLAIN AND ��+�.,�V 1\,/.►.lila. i.•.1 .G..a ..,._tom •` ?-!'Y.1.w,N i�L �' � / li � ��i�ll` i AiV4U, r, UN WETLANDS mal 4') pm :�_, w�� .. .�„�. %.,ice ,1;r� , .. e, __5.ter- ...�,, �r.�:, �J► Tr/��L ,I nr ra YEAR FLOOD PLAIN M feet ofthe surface) r (L �, %�. Effective Approaches Future flood losses in the Tigard area will be reduced by a combination of actions, including: 1. Maintaining a strict City floodplain ordinance which also includes the amortization of structures in the f1_oedwaye 2. Watershed management (see Runoff and Erosion section). 3. Intergovernmental cooperation in floodplain and watershed management ®' in the Fanno Creek basin. 4. Public education (e.g. information about flood insurance, prominent posting of flood heights, etc.). ■ Wetlands Wetlands, watercourses, and other poorly drained areas outside the designated 100-year floodplain are inextricably connected with it. These areas serve several natural hydrologic functions, including: 1. Temporary flood water storage. 2. Moderating flow of water over time (e.g. higher minimum flows). 3. Water filtration (e.g. sedimentation control) for higher water quality. 4. Ground water recharge. The ground water recharge function is especially relevant in view of the fact that the southwestern half of the plan area is part of the critical ground water area defined by the state engineer in 1973. Within this area, ground water levels have been declining for almost thirty years. Prior to the state restrictions on groundwater withdrawals, almost one-half (48%) of the total annual pumpage was derived from recharge. Much of the Tigard Plan Area is poorly drained, however the Wetlands Map includes only the most severely wet-limited areas. Following U.S. Soil and Water Conservation Service practice, soils with a seasonal water table of 18 inches or closer to the surface were defined as wetlands. Therefore, marginally wet soils which cover large areas (e.g. Aloha silt loam with seasonal water table between 18" and 24")were excluded. Watercourses and natural drainage swales, a large number of which no have permanent streams, were located with the aid of more detailed topography maps and aerial photos. Many of these small streams have small tloodplains of their own, posing associated risks I.o development. Effective Approaches S�S I Effective use of these wetlands for storm drainage, flood protection, and avoidance of other nuisances requires land use controls closely related to the t natural conditions of sites. For example, the characteristics of the flat, -l1- 5. -F poorly-drained areas between Hall Boulevard, Durham and Sattler Roads are very different from the watercourses draining the northeast slopes of Bull Mountain. In this context, some general guidelines for the latter areas should include: 1. Retention of natural watercourses (e.g. restrict fills, ehannelization, etc.). 2. Vegetation retention along adjacent slopes of drainageways. 3. Runoff-erosion controls on adjoining lands (a critical deficiency in many wetlands ordinances, see section on Runoff and Erosion). B. Runoff Erosion and Ground instability Runoff and erosion are intimately associated processes which can cause or contribute to a wide variety of problems, especially in urban areas, including siltation, flooding, ground water decline, and water pollution. Runoff is water flowing over the land surface and erosion is the downhill removal of surface material. Factors Affecting Runoff There are three factors that effect the amount of water runoff and soil tt erosion. These factors are the type of soil, the degree of slope to the land, t, and the amount of vegetation on the site. Therefore, a site which is heavily vegetated, which has nonerosive absorbant type soils and which has no slope or moderate slope, will not create excessive runoff; in turn there will be no erosion. This, however, is not the situation in Tigard. Soils which do not easily absorb water allow more water to flow over the surface. Soils with high water tables or those not easily penetrated by water (e.g. clay) have greater runoff. A large proportion of Tigard has high water E' table and/or has relatively impermeable soil. With greater amounts of flowing water, the velocity increases and erosion results.The degree to which a soil is consolidated affects its erosion potential: unconsolidated material is i more easily broken down and removed by flowing water. Much of the Tigard area is underlain by unconsolidated soils and geological deposits (see Ground Instability, p. 15 and Geology Map). Slope, or the incline of the ground surface, has a direct effect on runoff and i erosion because it increases the speed of the downslope movement. Water has less opportunity to be absorbed into the soil. The water velocity and quantity are both increased. The consequence is greater runoff and erosion on steeper slopes. r Vegetative cover has a direct effect on runoff and erosion and is the Tc fundamental reason why undisturbed sites iigard have less runoff aCiu virtually no erosion. Runoff is minimized by vegetation (generally, the more vegetation the lower the runoff - i.e. grass has less effect than heavy brush, ' which in turn has less effect than forest) because: m -12- , I. Precipitation reaches the surface much more slowly, as it gradually penetrates successive layers of foliage. 2. Dead plant material on the surface is highly absorptive. 3. Snow and ice melt more slowly under vegetation (though leafiesa)_ 4. Once in the soil, some of the water is absorbed by the plants. 5. Runoff is slowed by surface debris and plant structures (e.g. stems, t.- .,l.e t.., .�... _�.....�.,, �..L�,.^., .........i. Reduced storm water runoff volume and its slower movement mean lower erosion potential. Vegetation also reduces erosion potential by stabilizing the soil with its myriad roots. This is especially important on steeper slopes. Effects of Urbanization Urbanization and development tend to cause radical increases in runoff volume and velocity and in associated erosion. These increases are due to: 1. The reduction and removal of vegetation. 2. The increased proportion of area covered by an impervious surfaces (e.g. roofs, parking lots, streets, bare compacted ground such as fills). 3. Building on slopes. In an urban environment with little or no vegetation large volumes of water are concentrated very quickly during a storm, and flow swiftly to the nearest drainageway. Runoff under these conditions carries off as much as 85% to 90% of the precipitation, in contrast to the 15% to 50% when the area was undeveloped. The resulting sheet, rill, and gully erosion strips the land of enormous volumes of sediment, which can be as much as 1,000 times the natural amount. Table I shows the amount of erosion found in a study conducted in Maryland. TABLE i SEDIMENT VOLUME (tons/sq. mile/ ear) Woodland 100 Mixed Rural 300 Farmland 500 k Light Development 10,000 Heavy Development 100,000 Erosion is particularly acute during the construction process; when the vegetation is removed the soil is exposed. Site development also contributes f.f to increased erosion where natural drainage patterns are altered and runoff is channeled offsite without regard to existing drainageways. -13- As discussed -in the section on floodplains and wetlands, the increased runoff caused by urbanization contributes to higher flood levels downstream. Moreover, water which previously was released gradually to streams or entered the groundwater reservoir, is no longer available during the dry months, so that streamflow is lower then (which has an impact on water quality and aquatic life) and groundwater levels are lower. Meanwhile, during the stormy wet season, watercourses now carry runoff volumes for which they are no longer suited, and their channels and banks are severely eroded. The large amounts of sediments now carried by the streams also alter stream rmirgac and, thrntioh gradual filling, help raise the height of future floods. Effective Approaches Although large increases in runoff and erosion are an inevitable consequence of urbanization in the Tigard area, the destructive effects, and their costs, can be minimized through the adoption of land use controls shown to be effective elsewhere. These controls rely upon the demonstrated utility of natural processes to achieve their ends. Major elements of the program include: 1. Protection of vegetation, especially near watercourses. 2. Slope protection (e.g. slope - density restrictions, building prohibition on steepest slopes, etc.). 3. Impervious surface controls (e.g. density restrictions). 4. Retention basins in same instances have been required on developed sites to hold increases in runoff. 5. Control of construction practices which increase erosion. f C. Ground Instability Recent Geologic History Within geologically recent times, the Tigard area was subjected to two major catastrophic events. Some ten to one million years ago small volcanoes sprouted over what is now the southeast and southwest Portland metropolitan. area. Rocky Butte, Mt. Tabor, and Mt. Scott east of the Willamette River aad Mt. Sylvania east of Tigard are all volcanoes of that period. Our legacy is an underlying field of Boring Lava in the northeast part of the Tigard Plan Area (see Geology Map). There may be lava tubes in this lava such as the ones discovered at the new St. Vincent Hospital site in 1970. The potential existence of lava tubes is a possible impediment to major structural development. In view of the huge costs (e.g. million dollar problems at the 4 ` hospital) that could be incurred, such developments should be preceded by geologic investigation, including foundation borings and tests. � A truly devastating catastrophe engulfed almost the entire Tigard area during ,' the Pliestocene glaciation of only several thousand years ago. The Missoula Flood was one of the most awesome, cataclysmic events in the geologic history . of North America. When water from a mammoth glacial lake in Montana broke through its ice dnm; it scoured mtich of eastern Wash in gton and the Columbia -14- River Gorge before inundating the whole of the Willamette Valley to a depth of approximately 400 feet. The principle entry-way of the water into the upper Willamette Valley was the Lake Oswego gap, and the gravel deposits now mined in the Durham area are the remains of the heaviest debris moved through the constriction (see Geology Map). The sand deposits farther west along the north side of the i'uaiatin Diver are the finer Sediments deposited by the Missoula Flood. , The problem which this program must address is unstable soil conditions. The major problem is earthquakes and the inability to predict them. This is important because earthquake induced ground movements constitute one of the greatest potential physical limitations on land uses in the Tigard area, because the following problems are associated with earthquakes: landslides, subsidence, settlement, liquefaction, soil creep and mudflows. e -15_ • .. JIM 1111I I1"`�iiSN o�M small MIA � � •�•, ...wy.�. .•� a � VIII I�e��.� N a1 :0 � ■ t3 !� ILI • i '�,*�.,••s,,,, •,u..o - a�� _ - � 'i141 7T 11.' 1► �� '__� 1N �! -'E. �}��t��j��. -c �` i 5'Tis'l�:.C'�=_�■'. I3�� '`r /_■ '=MII�!!� u� � ..-is 11 _ 1 11 •i • 1 . 1 .uq. •1r� �. �)..•.g-�.. .y,:i"te r . =-f �i�f�- .f:�.P1 34.,'1� !�1 —7 '1- I�1.CNi111 \A •1 N 1 r .1 ,��y�- Tom' 13�� !►y .— r-I. S .■ I �i-__s�r'3 9 1. '� _•.4 ��:C u :1lpoll MWA' - = _� rt f +'A ■ v`��: ■..o Vin _ _ ....moi-_ ==� =l 17 vim a �' �= I' A- nu OJI i• =+=.mom. ...�.i:—�_-=r_y:= E I ♦ -a.- aVq- IIfl;�`t 1. •c ■p■ �- ,.• m��l >s:.,�f_ �� / �y a�t`si:�:ter,•' r'' `� Fb'. .l•u )�� , •�' `n :3a ��/I JI np� III Hill hyo ! ,� _ q)•PI��:;: •= •r■ pal i►\ ,y_S/•�`'p� '�� :i��.��■i/1,�� 4*y_•'�, r�� .�� Anon a l�.r •i■ All I jam SURFACE GEOLOGY POSS113LE FAULT n CLAY UNDEFINED BOUNDARY III AREA to i— • r wJIM C ALE4 The specific causes of ground instability in Tigard are: 1. Underlying geological deposits; ?. Soil; 3. Slope; 4. iegetative cover; and 5. Water as a lubricant and erosive force (e.g. uadcr_iltting) Geological Deposits Most of the geological denosi.ts covering the Tigard area possess characteristics which make them inherently unstable (see Geology Map). The main problem is that the deposits are the unconsolidated sediments (Upland Silt, Helvetia Formation, and Willamette Silt). The other two bedrock formations found in the area (Columbia River Basalt and Boring Lava) also have minor shortcomings. Columbia River Basalt underlies the entire plan area but is exposed only on the slopes of Bull Mountain & Little Bull Mountain. It is usually deeply weathered t(� a depth of perhaps as much as 200 feet with the upper layer decomposed into a clayey soil with generally moderate limitations for structures. Where the basalt has closely spaced jointing and open cavities �. and is weathered, it is unstable on slopes steeper than 15%. A massive landslide a half mile long occurred in Columbia River Basalt at West Linn when I-205 was under construction a few years ago. Technically, it was a bedding plane failure in the Vantage Horizon (a sedimentary deposit between layers of basalt) and the dip (inclination of the bed) was only 3% - 5%. It is not known whether the Vantage Horizon or similar weak planes exist in the Tigard area, With the exception of the potential problems emphasized here, Columbia River Basalt is generally stable and has few limitations as to use. v Boring lava is also relatively stable and has few limitations. An exception is the previously mentioned possibility of lava tubes. Large scale landsliding has occurred outside the Tigard area where this lava overlies the Troutdale Formation, a circumstance which probably occurs here. Where the surface of the unit is weathered deeply and the upper portion has decomposed to clay, it is unstable when wet. Most damaging landslides in the Portland area involve the wind-deposited, unconsolidated losses (Upland Silt and Helvetia Formation) which in Tigard occur on Bull Mountain &Little Bull Mountain. These soils are generally poor for foundations, with moderately good strength when dry but unstable when moist. They have poor compaction characteristics, for instance, and tend to settle under moderately heavy leads. Slopes in these formations are inherently unstable, with natural mudflows and landslides observed mostly on slopes greater than 15%. Willamette Silt, which mantles most of the Tigard area, is a water-deposited, unconsolidated formation •with characteristics similar to the losses: it is -17- r E intrinsically unstable, especially when moist, and tends to lose its strength when saturated. It is riot so notorious as the losses, however, because of its location at lower elevations where there are fewer steep slopes. Large scale subsidence is a possibility (also for Young Alluvium) following severe decline of the groundwater table due to massive withdrawals, but the actual potential ' for this problem is not known at this time. Young Alluvium, found along the geologically recent floodplain of the Tualatin River, Fanno Creek, Summer Creek, and their major tributaries, has very severe limitations. Aside from the fact that most of these areas have very high water tables or are seasonally flooded, streamside locations face the problem of -L erosion from undercutting. This unconsolidated formation is also "" �n _ main,- earthauake liquefaction characterized by poor bearing strengft.. q Of this f1 gruln�d, ^.t.^ �^.tu te'� unit' could 'Wean total failure of strength and severe settling of structures and other loads. Soils The soils of the Tigard area (see Soils Appendix E) cover the geological deposits with materials of diverse susceptibility to movement. Several characteristics combine to determine their potential instability: 1. Slope 2. Perched Groundwater 3. Wetness 4. Erosion Potential L- 5. Poor Drainage 6. Thickness 7. Shrink-Swell Potential 8. Slow Permeability 9. Low Strength A landslide rating system based on these characteristics was developed for the Lake Oswego area, by an engineering geologist. Applying this system to the E soils in Tigard shows that several areas have severe landslide potential and f several others have moderate potential (see Appendix). The characteristics € and conditions in Lake Oswego are similar to the conditions in Tigard. f Slope The soil landslide potential ratings reveal that slope is generally the critical factor in all cases.- Moderate landslide potential is common for soils with slope between 7% and 12%, and is generally severe for soils with slopes exceeding 12%. Field investigations in Tigard have demonstrated the existence of soil creep (very gradual downslope movement) on undisturbed sites ' where the slope exceeds 25%. It should be kept in mind, however, that flat areas immediately adjacent to a steep slope, both above and below, are subject to the effects of a slope failure. The Slope Map of the Tigard Area shows the concentration of steeper slopes in the following general locations: i 1. Terrace escarpments above the Fanno Creek and Tualatin River floodplains. L- _t st_ ti r 2. Banks and slopes along watercourses and drainage swa s t g le . i 3. Slopes of Bull Mountain and Little Bull Mountain. The slope of the surface alone can be a highly significant factor in determining construction costs, as greater effort, design, and materials must be used to ensure stability. C The following estimates of the effect of slope on house construction costs were prepared by the Salem Home Builders Association: % of Slope Added Cost of. Nome 0-5% No added cost k 6-8% 10 to 12% I 8-12% 50% ! 12-15% 50-75% 18% plus 100% and more , Vegetation, especially trees, help stabilize the soil through its web of roots. On slopes this is particularly important. Even heavily wooded sites, however, show that downhill earth movement is inexorable on steeper sloped, ; with soil creep causing trees to develop bowed trunks near the ground. Water is fundamental to ground instability, because it acts as 'a lubricant in unconsolidated geological formations and in soils. The seasonal saturation of otherwise susceptible areas is noteworthy. Flowing water in streams is also responsible, under natural conditions, for bank erosion and consequent channel modifications, particularly during infrequent heavy flood. Earthquakes The most severe earth movement which can reasonably be expected in the Tigard area would entail a major earthquake occurring when water has saturated the ground (a lengthy freeze after the rainfall would wreak even greater havoc should a seismic event take place). With the exception of the liquefaction potential mentioned earlier, earthquakes highlight already existing instability problems. There may be another exception in the Tigard area due to the possibility of faults. The Geology Map shows two probable major faults, one along the northwestern border of the place area near Scholls Ferry Road, the other transecting the area from the Tualatin River on the southwest to the Pacific Highway to the northeast. The data on which these lines are based consists of discrepancies in the surface of the Columbia River Basalt underlyirb the valley. In the absence of significant surface evidence, these "faults" may be considered inactive or, in the words of the technical report, they are "questionable and may not exist." If they are active faults, an earthquake along them could displace the ground surface (horizontally or vertically) by a few feet or ,less. -ins+ probability atf major damaging earthquakesis high in. the Portland area, and in this regard a recent general statement of earthquake authorities is r- appropriate. -19 r 1 2 HIM, I'm i il =cursMU — �yr, - y rr� � �►_�S�yi n ..w p` � 1�i �i��Z•11:`tl�,S-■�i� �jr.�.\;� lwy'� 1` •:o 1 :o'! `.--�5. �iw1� ...me .1?S:'SY_.'-°.uli L�•� Ilt<i•�`�"^'� I' w'r �~ ..:••.Sa ll�� I(��'�1 may,\\ -Ir�i ll 201 MIN , IN �lal_-� _ ., iii'"c't�' ■lig '\�:d'"I� u.�i�iy�,�i'��r�ilill'�J�r/� cia!1:—��..t.Ut it IU 1 �- ✓ � �..- � * 1// woom.rel, 9. Jul p�A� �-n'c�::'� i 1L`!!i��/��9�11J� i��e.Ul��al�b)J!!lel=1��;�► ��,•!r%��%��•■�tati1131 j+�i -'- `�con;� ri:�j a�*:'i�i , .'ii. J•' w-v,-.f.-1''ri��`\.✓'�,��•Ti+17i Llhlll I7 t �r._ :.a;'1' J�"_1_G's �� ...r� „• a �� Slrrl' .� , an° f/1t- �1 /tip'I�K !'� '�eaWp•r i 1 � a.l n � �`�1��'1,��!�7. �1�..=_ ll' ��iy•��j I_. � ) ��..=..`T-�..�1�� i_� r-��+/.ii / i• \\ /I��p` '�� q/a ago e ..w• Ifs/IIP '.Y I��jyi Q�� E-� 1 v 81.111\�111= �/ �.,''-: �. ✓ 7. r/.�arx.. `/�►�`r ,..,,/,+ "'�-"� ��r•'.��, . , 1 ,. l t.L 7�//� i9J�r / ■"--L /=�/!NI 1,-1 N��XI`�`� ' �a�.'7i �- j��/'►_ 1�I�!.�1 i �.V.'"�-�' Ilrt� �a`� Vvi• �-.� , �'r W-411 �� r•' �, 1 / ►.,. �':a�. m\r �►. wi �.E, � 'f^3v 1 r�rs■ /� Xmw rim �� 1lL�, 1� . �t •.J,. '�in M V' •� ,�j. /((j�.Zi�^��,.I� 1 `r 1 /q,�l� f'f • /Y� �` ,'y-.:..:• �.J /�l1 c__-w.�.:��. ,��/I ��11/`ice'. 'w /�''�'f�,■r'`.i�'/•t ii i � i��!?i!i ui■ -1,/. J'�l/.a�.I��p� i�.-.��I i� a- As �I-�_/Ir ��X. 1��►~'�Ih ...� A.�1/fes.�� ,,,,i�,.,1•y'I�� v —='r' , r..T-I�hjtt ....-� r ::L .7Lii�l. -, [/1 � `�\�. r w. to r ry+1. wul�r/' firv ��j•`'7 Jp,IIA rjr�.�il�.n 'x�r., i r r � •�' � a NMI ,�//7.r..��cl�fall�'ffl�. ��\ , i i 1✓ .��'►Na >>_I �J �•!1�.�1irr�i�i• r�il�l o.lM Ll r'�/l .� t I�.-� �,.J _� //-�//."i•/� Aw.�sC�yl1 w. T,� �� M�J , lV S .�1. nl4a l- X711 -•'.. k,ws ,� r; 31,111 �� ' Vi''.i�/'' � 11 ��/ii/N�:✓i• Lr � A�l\\�rlpMi' �rCnr''..Si ,� � •� � :�.,. AIS ►�� 3s1;, r►� 1.\`,�v.► ��=1; a`iE� `■�I :/�� '.��< :;•�•*!- � _ ;;; �� 1 1111) /'iI�ry).r 4� t raj`vA.-' �__ '� ,• �—�- � •J; u ■a "... the short-term local seismic history is not in itself an adequate base for estimating earthquake risk. Until we gain a better understanding of earthquake processes and probabilities, due regard for public safety demands that seismic hazard be considered high throughout wide areas, and seismic zoning maps must reflect this.'' National Academy of Sciences, The San Fernando Earthquake of Februar 9, 1971, Lessons from a Moderate Earthquake on the Fringe of a Densely Populated Rection. In 1941, an earthquake with an intensity of IV on the Modified Mercalli Scale (see TABLE 1X in Appendix) had its epicenter in Tigard. The November, 1962 earthquake felt over wide areas of Oregon and Washington had an intensity of MMVII in the Portland area. This area is also subject to earthquakes having their epicenters in Puget Sound, with a local intensity of MMVI. Duration of shaking from distant earthquakes tends to be longer. According to recent estimates for Portland the area earthquakes, the "100-year earthquake" (1X annual probability) will have an intensity of between „r,Vii and MMX, depending on the method of calculation. In general, knowledge of earthquakes and how to minimize their destructive impacts is still very limited. Despite warnings about the severity of the risk, many businesses and individuals in other areas have moved into areas devastated by earthquakes, Human t •• Activities The natural potential for earth movements is often aggravated by human activities, Which result in: 1. Oversteepening and removal of support of slopes by excavating. 2. Excessive loading (e.g. fills or structures). 3. Development on actively unstable slopes. 4. Vegetation removal on slopes. 5. Oversaturation of soils by sprinkling, runoff increases and concentration, and changes in natural drainage. Effective Approaches Land use controls are needed to protect the public from the hazard of landslides. Such controls would: 1. Restrict development and certain activities (e.g. excavation) in inherently unstable areas, especially steep slopes. It is no -coincidence, for instance, that house construction costs in Western Oregon generally begin to increase at about 7% slope, increase 50% at 12%, and double the cost when the slope is 18%. 2. Protect vegetation on slopes. 3. Minimize increased runoff and erosion as the area is urbanized (see section on Runoff and Erosion). 4 -21- re. i Table OL T-A F { SCALE OF EARTHQUAKE INTENSITIES WITH APPROXIMATELY CORRESPONDING MAGNITUDES Maximum Magnitude corre- Intensity Description of effects accerleration sponding to highest characteristic effects of the ground intensity reached I Instrumental: detected only be seismograph 10 3.5 II Feeble: noticed only by sensitive people 25 to III Sight: like the vibration due to a passing lorry; felt by people at rest, especially on upper 4.5 floors 50 fill IV Moderate: felt by people while walking; rocking of loose objects, including standing vehicles 100 4.3 V Rather Strong: felt generally; most sleepers are to wakened and bells ring 250 4.8 l VI Strong: trees sway and all suspended objects swing; t damage by overturning and falling of loose 4.9-5.4 objects 500 n VII Very Strong: general alarm; walls crack; plaster 5.5-6.1 falls 1,000 F VIII Destructive: car drivers seriously disturbed; i masonry fissured; chimneys fall; poorly con- 6.2 structed buildings damaged 2,500 to IX Ruinous: some houses collapse where ground begins to crack, and pipes break open 5,000 6.9 X Disastrous: ground cracks badly; many buildings des- t' troyed and railway lines bent; landslides on 7-7.3 steep slopes 7,5000 XI Very Disastrous: few buildings remain standing; bridges destroyed; all services (railways, 7.4-8.1 pipes and cable) out of action; great land- slides and slides and floods 9,800 s XXI Catastrophic: total destruction; objects thrown 8.1 into air; ground rises and falls in waves (maximum known, 8.9) i t V i III. NATURAL RESOURCES With the exception of aggregate resources, there are no known mineral resources or energy resources in the Tigard Detailed Plan Area. Quarry Rock (Columbia River Basalt and Boring Lava) is found here, but is so widely available elsewhere and poorly located for mining in Tigard, that it cannot reasonably be considered a source of supply (see Geology Map). G o C , there are extensive rock and gravel extraction areas ed to the nd west of Tigard's planning area but within rton and WashinQt ty. o There are no •.mineral or aggregate res ywithin the Tigard ' ,.._ r lOR7 1 Planning Area. (S�l►ington County KOSuur Cuut=at' Olumic �, POLICY r 3.3.1 THE CITY OF 1IGARD SHAL PPO EFFORTS Or WASHINGTON COUNTY, I BEAVERTON AND THE OPOLITAN SE ISTRICT TO ENSURING THE AVAILABILITY OF T#i'` CK MINERAL RESOURCE . IMPLEMENTATION GEGY 1. The C' shall encourage those jurisdictions regulating rock extr to c y monitor the relationship between the demand for the resour tamount of land planned for rock and gravel extraction and processing. The gravel deposit in the southeast portion of the plan area near Durham has been quarried by Washington County. The gravel was relatively poor quality and was, therefore, being used only for such purposes as gravel roads and shoulders, oil rock, sand, and rip-rap. Most of the site has been excavated, and at the present extraction rate, the remaining supply will last until 2005-2010. However, the northern boundary of the deposit is uncertain, so its f'- F full potential is unknown. F A belt of potential fill sand is found in the terraces above the Tualatin River, south of Durham Road in the broadening belt extending from 92nd on the east past Pacific Highway on the west. The Portland Metropolitan Area faces future difficulties in obtaining adequate i supplies of sand and gravel, since the bulky material is expensive to transport any distance and urbanization has foreclosed mining deposits close s to the City. Whether gravel extraction should be extended further in the Durham area, and quarries developed in he sand 'deposits, are questions which require more detailed information before they can be answered. The Oregon Department of Geology and Mineral Industries and the former Columbia Region Association of Governments conducted studies of the physical and economic aspects of sand and gravel deposits in the Portland area. -22- ; Energy Resoui"ces and Sites Available information indicates that the Tigard Planning Area does not contain any potential energy resources or sites. Oval - No deposits have been found and the geology of the area is very unfavorable to its occurrence. Oil and Gas - Deep drilling in Northwestern Oregon has failed to locate even significant shows of petroleum or natural gas. The Texaco Cooper Mountain 1 well was the closest to the plan area and found gassy salt water. The Western border of the Tualatin Basin has some structural and tratigraphic features that warrant further investigation, but there is apparently slight prospect elsewhere in the Tigard area. Geothermal - The closest known Geothermal Kesource Areas are situated near the crest of the Cascades. Solar - The design and economics of large-scale solar power plants are still at the rudimentary stage. Only general, large areas of the state have been suggested as potential sites for solar electric power generation, and these are in parts of Oregon with greater sunshine than the Tualatin Valley. Wind - Commercial scale wind power generators have also not yet been developed. Potential sites include wind-prone areas such as the coast, rather than the relatively calm Tualatin Valley. Thermal Power Plants - No conventional or nuclear power plants are currently planned in the Tigard area, nor will any conceivably be suggested in the future, according to officials of Portland General Electric and Pacific Power and Light. 1V NATURAL AREAS Within the past several years the value of the wildlife and natural vegetation has been recognized by an increasing proportion of the public, especially with regard to their place in the urban environment. Large numbers of people enjoy the overall presence of birds, the color of wildflowers, or the sounds of { animals, while other more actively engage in nature photography, berry picking, or bird watching. Urban natural areas are also a part of the outdoor classrooms for teaching children about the living world around us. The ready accessibility of natural areas to city dwellers reduces the necessity for individuals or families to travel many miles by car in order to appreciate the wonders of wild life. Natural areas, especially vegetation, also provide visual amenities to a community by softening the impact of the man-made environment. All of these contributions of natural areas function together to help blur the distinction between the City and the country, to bring into the City some of the most attractive features of the country. -23- I IMPLEMENT ATAMQN STRATEGIES 1. The shall consider the inclusion of an adequate unt of land adjacen a floodplain or drainageway for dedic to the City's natural way system, which allows the area tinue to support existing ha ts. 2. The City shall, ncourage through t nned Development Process, the retention of e, varied ha areas on private and public lands including inve ied plant animal communities. .3 The City shall review a opment proposals adjacent to wildlife habitat areas to ensur dverse impacts on any wildlife habitat areas are minimized d i d be, request that other federal, state, and local ies revie development proposals. la-�� r �in1m�P st trees or major vegetation 4. Wnere them 6t rgc -- - , areas wi the planning area on unde land, the City shall ensur .at development proposals do not ntially alter the cha er of the vegetation areas through th ed Development P ess and the "'Tree Cutting" section. of the Co Development de. Vegetation and Wildlife Wildlife is dependent upon natural vegetation for food and shelter, and in some cases for protection. Since each animal species has special requirements, the greater the variety of habitats (and natural vegetation,) the more different kinds of animal life can be found in an area. There are four general kinds of habitat which are particularly important for a diversity of wildlife: 1. Woods (which provide cover for deer, for example). 2. Brush (an often mistakenly-undervalued wildlife resource of great importance as cover for many animals). 3. Riverside areas (known as Riparian) 4. Wetlands (lands seasonally wet or with water close to the surface). The riverside areas and wetlands are the most critical for a wide diversity of animal life because they are places where extremely different kinds of environments (aquatic and terrestrial) interface. Non-living components of the habitat can also be of great significance for some animals. Dead standing trees, or snags, are particularly valuable. In the Tigard area there are at least two mammals and nine birds (e.g. wood duck, screech owl), which are totally or heavily dependent on snags. Without special protection, urbanization can destroy virtually all natural vegetation and associated wildlife. As an area develops, most of the original vegetation is cut or radically altered. This most obvious when heavily wooded .. ` areas are replaced by structures and streets. Even where many trees are retained, however, the undergrowth is usually removed and replaced by closely clipped lawns, weeded gardens, and exotic shrubs - all of which fail to -25- ( provide the 'kind of habitat required by most animals. If some natural environment is reLained, the increased population of adults, children, pets and autos may still spell doom for the natural. environment. Wildflowers and berries, for instance, may not be able to withstand trampling and heavy picking, and dogs and cats will harass squirrels and birds. 'Fater-related recreation demands may degrade the natural characteristics of riparian habitat. Wetlands and aquatic habitats suffer from increased water pollution (septic tanks, street oil, etc.) runoff and erosion, siltation, and lower flows during the dry season. A. Vegetation At present the Tigard area possesses only remnants of its original vegetation. When pioneers settled in the area about 125 years ago (1852) , much of Bull Mountain & Little Bull Mountain had recently been burned, and the vegetation consisted of a mixture of woodlands and grasslands. Characteristic plants were (and still are) found in certain locations depending upon the soil types, water availability, and exposure to the sun (e.g. north or south facing slopes). Dominant tree species include: A. Conifers (needleleaf evergreen) 1. Douglas Fir - Very widespread, moist, well-drained sites and moderately dry sites 2. Ponderosa Pine - drier sites, largely in the north central area 3. Western Red Cedar - moist sites, near watercourses, northern exposure. B. Deciduous (broadleaf) 1: Oregon White Oak - generally drier sites 2. Oregon Ash - moist sites, especially along watercourses 3. Red Alder - very moist sites, especially along watercourses 4. Cottonwood - along watercourses 5. Willow - along watercourses 6. Big Leaf Maple moist sites Less common plants, and those less conspicuous or part of the understory include, for example: (1) Madrone (broadleaf evergreen) uncommon in Tigard (2) Dogwood - small deciduous understory tree with showy flowers in season (Spring). (3) Wild Rose ( (4) Poison Oak (5) Blue Elderberry (6) Sword Fern (7) Red Huckleberry (8) Salal r (9) Oregon Grape (10) Vine; Maple -26- � •�� ■�; wn� MII a �*��•: arc uuad•�r ��:, . into"11Dula'r.�•��1■�x,:�, ��`. Him w:'iia•f= -....� , 1 4► .Ii�ILS A�•��!17 � 1 u u ry•.at.. : '•�`• rum.unwl`• l II .I:I JW mill i11� 1.:'Ig1Y u,. �� '�-■ �::� ��.� �� r'Y.E/111■IL..1�'11� 1//1 y-`ti �,... �%h,!� -- ► ` � '1� _t u:■ni i��;a��a.:1�cry i�� - �"" r uuu ' •�HIIIH�1 li!!��'le �• �,rl,F j�Irr�i1 rl�. �1 --.= __3� ', • ' , -'- ■ � ��ii�::::i�a: �''•''1=i�� '� Ji�1r 1:val't'.7i��i,.•al m'~~;, s �,.,:, .... .`x ...1_.1 ." :-•O 7 • 1:!I �. �•i�••7 � all■ ' :fir n. • �/)i .�.�4.,r , M� r..y/sl. far.-- -. R. fA ��•i ••.1� lu'illll•-,_'.o �•'• ��,•/'�,l�j,r�',�� 1111.��; 'U��ji� ��-'.',_��i� �..G'•.'� � �/. ,�i/,� /giN.Nr��-'...�J��[ =- �x11 IJ�■1 ■�. -Wit AP . nrK� t:I� A �g■� tU� ��, O ■ �' -�a • IL 11 111111 C®e 1:��41.• '� e ■ m .. >mawl• v IZ�� X111 1 :A�• � � � f- -� sJ•,• �Ir�i�\tel;'1 "�'�!�� `` � \\ 2 t!11�••1�'y�.,'1��. �.3 I�pp1�M�t iI � �'�I.i P�A♦: ■■i lr , ( _ • r.lU,l��i��•�l�,'.r Y��.��lif�I ,� . ��•rNS�� i i* - \ ►� �I.utl• ;rA��.ue � . r 1 � i :�;� �.:•.•..3€•,ur14 r'1�►:it •, ��'�.-,�I��1_1S�I� •e�� ■�_�■Itr - ■H—�� ®��1..�� /C)7:' •:70:11 ■ i:�` ��-_ �In��ii1 e. NOW � �N� � . �� :a ,�tEx :�alp•„: _�,�� _ .� i It -- i� S 11.E�: _-:--••-•- e �� 111 ,,i..«+1:'.�WwwCu �N'4 rl ,•,� � � � pp ' ._ • r a: SAI There is a possibility that the Tigard area has plant species which have been judged rare or endangered by botanist specialists, as was found to be the case in Lake Oswego. Two have been mentioned in this connection - the marsh trillium (Oregon list) and fawn lily (National list) - but without careful inspection by field botanists their occurrence here cannot be known with certainty. Remaining areas of relatively natural terrestrial vegetation have been mapped for Tigard, using the following broad categories. (1) Coniferous Forest (2) Deciduous Forest (3) Mixed Coniferous - Deciduous Forest (4) Brush (5) Meadow (may overlap_ Marsh) (6) Marsh B. Wildlife There is still a surprising diversity of likely to be found in Tigard. Among the terrestrial or partly terrestrial species (including birds and amphibians) are: (1) Deer - woods (e.g. Little Bull Mountain), riparian (2) Fox - field, brush (3) Mink riparian (4) Weasel - riparian (5) Beaver - riparian (e.g. Fanno Creek) (6) Raccoon - riparian (e.g. Summer Creek) ' (7) Great Blue Heron - riparian i (8) Belted Kingfisher - riparian Aquatic habitat (e.g. streams, lakes, ponds) in Tigard has been seriously degraded over the past thirty years as the western suburbs of Portland have rapidly developed. The very severe sewage pollution of Fanno Creek has been , substantially reduced by the completion of the interceptor line to the new f Durham Treatment Plant. Water quality in the Tualatin River is also improving I as a result of low flow augmentation of water stored behind Soggins Dam, and f has been considerably better when the Rock Creek Treatment Plant in 1977. Even with these improvements, however, problems with seasonal high water temperatures and low flows, turbidity, siltation, and pollution will continue ` to some extent. It was once possible to catch 12" - 18" trout in Fanno Creek, as difficult as that is to believe today; and both Fanno Creek ancl. the Tualatin River were famous for their -rodigious number of crayfish which helped stock Portland restaurants. It is questionable whether these days will i ever be back, but a local abundance of tasty aquatic species seems possible. At the present time, the Tualatin River is known to harbor a number of warm-water game fish including: bass, crappie, catfish and bullhead. There also are some ehinook and coho salmon and cutthroat and steelhead trout (which (� MAY be miooratnry nnly), Ng detailed inventory has been conducted on Fanno `r Creek since the sewage was diverted. In addition to carp, sucker, and crayfish (also found in the Tualatin River), there are probably crappie, bullhead, and perch in Fanno Creek, and even trout. i -28- TIGARD URBAN PLANNING AREA Areas with important values for wildlife.. �s �( �� .•-, Source: Department of Fieh ani Al • •�F "'+ 'a �} fl rl t �lildlife, 1976. , AC Pill IL Aw � ��,rl� 7'� V t�� = ��.r.-�� 4 �ll� �� e��"1 �.•t i�il�:; i �,f' �'✓ M. 1J ?� rT.�� •�-- +�J Y' •�+��,L \� .d=.l 1P 'sf�i •'i' U 7 .SY'+..,f 1, T.. j7 -+JILk,4 I L7-- 1 ;&2,011TV n IM / ,��''_ ✓r�i 'L,,NrR _ .---! ;::,;.i, it ) r .,..• bt '�, 1 P�.ri.•(Kt,/��f � �'.L•-l�.•y=�'''••.a�I,� •I.. � �� r1 '� 4 gffve PPrOaches completely natural area in Tigard could cumplt is most, of the remaining However, Much, if not community approaches full development. disappear as the ortions of the natural life found here reserve significant p unity will need to: possible to P To do so the comm despite this general trend- and grasses) natural vegetation (trees, shrubs' in parks) especially along watercourses* l- protect existing wherever possible (e.g. F Use native plants in landscaping- (e.g- 2. areas in their natural state and riparian a etc-)* ! 3• Leave wetlands drainage, E discourage filling, channelization, .ntect aquatic habitat and wetlands. 4. Control runoff and �:rosion Lu ^r-- the Crpenway { Provide corridors for wildlife movement 5• (e•g• as through System). 6- heave non-hazardous snags along streams and in wetlands. areas and values also provide future natural see Sections r . of these measures to P as outlined elsewhere (e.g- Many ions on Run etc.)- accomplish another use SceneryetGround Instability, etc.)• on Runoff and Erosion, C. Special Areas vegetation and protect natural the general policies to help s ecialists for preservation, In addition to suggested by P wildlife, specific areas have been ,mese areas were:• fee purchase if necessar 1) their particular vegetation throughOther factors such singled out for priority attention uniqueness. and wildlife values, and/or 2) also have s be considered. The as the cost of preservation will, of course, six areas which were identified are the: y goad Creek ested for preservation. Summer marsh (east of 130th and south of Scholls Ferry 1. and complex was -ugg artment of Fish This unique 12 acre marsh gist for the state Dep t field biologist Cor►servancy. by both the distric_ ist with the Nature and Wildlife and a field bio log The heavily-wooded steep Douglas Fir which are up to 100 feet tall 2. Forested Northeast slope e oDougla Mountain• with other similar slopes contain some large The site connects reservation by and three feet in diameter. 9�0�. It was recommeded for p sites outside the pin.. - the Nature conservation Biologist. This area has a heavily-wooded with {i Li Bull Mountain• �aripry of a 3. nimals including deer, Summit of L- u.dergrowth providing cover for a raccoon, & pheasant. u -29- 4. Willow Brook, lying south of Durham between 108th and 113th. A wooded and brushy minor creek in the fluodplain, providing access to the Tualatin River. It's protection was recommeded by the Nature Conservancy Biologist. 5. Tualatin River bank between 108th and Cook Park. This is an important riparian habitat which was recommended for protection by the State Field Biologist. 6. Fanno Creek marsh at Tigard Street, which was recommeded for proservation by the (State Field Biologist). D. Historical/Cultural Resources The overall character of the community, is a product of its past. As a community develops it should not discard its past for the sake of the future. The John Tigard Home is the only remaining structure of local and national historical significance. It is listed in the National Registry. The Tigard Area Historical and Preservation Association (TAMPA), a nonprofit organization committed to he Areservatinn andinaintenancv_ of vslucd historical objects and landmarks, is currently in the process of relocating the John Tigard Home to a usable and available site. After restoration and renovation the Tigard Home will host the proposed Tigard Museum which will be open to the public and display many valued artifacts which highlight Tigard's historical past. Another structure identified as historically significant, and documented in the "Statewide Inventory of Historic Sites and Buildings", is the so called w' Water Tower (also referred to as the Windmill) situated along 121st Avenue and S.W. Lynn Street. It was recently donated to the City and has been earmarked for restoration and/or renovation. E. Scenery An inventory conducted by the City of Tigard (and after consulti-ag the "Oregon State Parks System Plan") revealed that there are various scenic views and sites and/or waterways, as defined in Coal #5, that exist in the Tigard Planning Area.lhese include: 1. The summit of Little Bull Mountain; 2. The summit and eastern slopes of Bull Mountain; 3. The view of the Tigard area from Little Bull Mountain and Bull Mountain, which include views of Mt. Hood; 4. The view of Mt. Hood from the Hillview area; and 5. The view of the Tigard area from the Tigard Triangle, looking to the west. t -30- 7 30 i V. AGRICULTURAL RESOURCES �. Agricultural Resources T_igard's heritage a., linked to its agrarian past and maintaining some record and vestiges of this disappearing history should be a community concern. In addition, farm land ties into the pattern of open space set forth in the community's design objectives. Until the early 1950's, Tigard primarily remained an agricultural community. However, since the conversion to urban uses began, increasing amounts of farm land have been converted to other uses. Tigard lies within the Urban Growth Boundaries established by Metropolitan Service District. Population projections and land use needs studies show that all of the land inside the Tigard Urban Planning Area will be needed for urban development within the year 2000 planning period. Under these circumstances, preserving large tracts of farm land would place an unnecessary burden on the community to increase densities elsewhere to compensate for the loss of needed residential space. An additional consideration is that most of these remaining parcels are not large enough to be economically viable. TABLE I YEAR POPULATION NO. OF DEVELOPED ACRES NO. OF NEEDED ACRES 1980 14,286 4,871.35 Residential - 906.23 2000 33,400 Commercial - 195.30 Industrial - 277.57 TOTAL - 1379.10 TOTAL AMOUNT OF LAND WITHIN TIGARD URBAN PLANNING AREA - 6393.60 ACRES Forest Lands There are no lands within the Tigard Urban Planning Area designated for commerical forest land. Therefore, LCDC Statewide Planning Goal #4: Forest Lands does not apply to Tigard's Comprehensive Plan. VI. PARKS, RECREATION AND OPEN SPACE ( Rapid growth in,a community like Tigard tends to diminish the availability of land for recreational purposes. Increasing land values are a compounding factor and tend to inhibit acquisition of quality recreationalland. Jlf -31- Simultaneously, regional growth containment boundaries have been drawn, increasing the pressure for development inside the boundaries. Tigard is located within the growth containment area. Therefore, increased demands for development can be expected, resulting in even greater pressures to consume available open space. �_ for recreational spat While the supply of land decreases, tits itEcu .v. YECYc^^o��v..•+i increases. An urgent need, therefore, exists to provide these facilities by devising a method for financing a land acquisition and development program that can compete with the pressures of development. Since new development will generate the increased demand, such a financing method must look toward this new development bearing its share of the financial responsibility. "iiNGS ITigard, public and private organizations can play an important in iding leis_�re and recreational opportunities and cultural acti s. Man the Tigard School District sites provide recreation ` eeds not t, found'Whin many of Tigard's parks. 0 Small pa cf unbui.ldable land resulting from urbaniy/�� ncan provide mini-parks andscaped areas. o A properly pla and managed system of open sp5ee,� and recreation lands can reduce the i of urbanization and serves,,9`1 leisure and aesthetic needs of all resi The system needs to acognize the relationship between urban uses an a natural character land and drainageways. o The community has indica desire fora" en space linkages which follow scenic routes and connect s, schplaygrounds, shopping areas, other public sites, and resid 1 a 0 The City needs to develop an ads a system of open space, recreation lands, and facilities to retain i ve livability of the community. o In the process of plannin _.'mor a par—'and recreation system, it is necessary to classify the � ividual compo such as neighborhood parks ll or could co a the park system. In and the greenway whicWt, addition, the establ' ` ent of a reasonable 1 sition and development program requires a ing of priorities and minNthe vels of service to be provided. The . tual development of such arequires relating the provision acilities and services to icularneeds and recreation des' of .he residents to be served. POLICIES 3-5.1 CITY SHALL ENCOURAGE PRIVATE ENTERPRISE AND INTERCO N'TAL REEMENTS WHICH WILL PROVIDE FOR OPEN SPACE, RECREATION S, FACILITIES, AND PRESERVE NATURAL, SCENIC, AND HISTORIC AREAS MANNER CONSISTENT WITH THE AVAILABILITY OF RESOURCES. -32- i 7. Streets and dr geways shall be combi�led with ay or greenway concept to permAN►,linkages between open spa. reeir'entipl Areas; recreation lands, centers of economic acr' 8. The City shall cont' to seek ass' a of volunteer groups to assist in developing an ntaining, S. -e- 9. Master plans for each park be developed. These plans shall identify park facilities fo park and ensure that parks are developed so as to p Le a and aesthetically pleasing environments while min' ng th rmful effects of noise, air pollution, vehicular t " ' tic, and othe ative aspects of urban life. 10. The City shall ., tinue to implement dopted bike plan by requiring dev ent adjacent to the Green ,to construct their portion of t ikepath system. 11. To au the scenic benefit of the greenway, City shall esta the major vehicular transportation routes a Pni.c or V. corridors. The Park Board should plan and initiate ogra , ough public and private cooperation) for coiriuOr 1` oe VreservaLion and/or improvement.. ~�` PARK SYSTEM CLASSIFICATION In the process of planning for a park and recreation system, it is necessary to classify the individual components such as neighborhood parks and the greenway which will or could comprise the park system. In addition, the establishment of a reasonable acquisition and development program requires a listing of priorities and minimum levels of service to be provided. The actual development of such a system requires relating the provision of facilities and services to the particular needs and recreation desires of the residents to be served. The following standards and policies are intended as guides for the development of a park system which relates to development as it occurs and to the varied recreational needs of the City's residents. However, specific needs and desires differ from neighborhood to neighborhood. In addition, the needs of future residents cannot be accurately projected. For these reasons, the park development districts (see Open Space Map) were established. The districts were selected based on present development patterns, the selected park standards, and by using major streets as access barriers. The boundaries are not permanent and may be adjusted in the future if circumstances change. The purpose of the districts is to provide service areas where the amount and types of recreational facilities can be planned and eventually provided based upon the specific needs of the people residing there. Classifications 1. Mini Parks E 2, Neighborhood Parks 3. Comm,_..ity Parks 4. Large Urban Parks 7 -34- s 5. Regional Parks 6. General Open Space (Preservation Oriented - may be combined) A. Scenic pathways B. Landscaped Areas C. Natural Preserves 7. Water Oriented Sites A. Fishing B. Boating C. Swimming 8. Special Use Areas A. Play and Ball Fields B. Courts (tennis, basketball) C. Ranges (rifle, bow and arrow) D. Swimming Pools E. Trails F. Sports Complex (two or more of the above) G. Golf Courses 9. Cultural Facilities 10. Historic Sites 11. Activity Centers UARK STANDARDS The size and acres per 1000 population figures are set at an average desirable level for each component. The overall desirable level set by these standards is 10 acres per 1000 people which is approximately the present level provided within the City. In combination, these standards constitute an ideal park k system. .k Basic Assumptions: 1. The ideal park system is intended to serve as a guide and will be used to evaluate decisic is on the ongoing process of parks development. It will also serve as the basis for establishing a systems development program. 2. Due to economic constraints or populationcharacteristics the ideal may never be reached. However, policy decisions should be based on priorities that are economically feasible, but also directed toward the established ideal system. 3. The assumptions, data, criteria and policies should be periodically reviewed to account for changes in circumstance. The park acreage standards are set for lands available to the general public, and owned or otherwise controlled by the City or a cooperating public agency. They do not include: 1. Public School property (not available for active recreation). 2. Special areas (pathways, cemeteries and golf courses). 3. Private or voluntary agency lands and facilities. (. 4. Vacant undeveloped land not underownership or control of the City. 35 _gym Standards 1. MINI PARKS Purpose: To supply a minimum of park land to serve as a "Back Yard" for isolated areas o,: where density, lot size; and/or income conditions deny availability of such facilities; or where access to neighborhood parks is restricted; or to provide landscaped sitting areas in the commercial core of the city. Size: 2500 sq. ft. to 1 acre Acres/People: 1 acre/1000 people Service Area: 1/4 mile radius Location: Determined by need k Facilities/Activities: Play equipment, hard surface for wheeled toys, sand area, benches and tables and trash receptacles shall be provided. Benches, vegetation, and trash receptacles shall be provided in commercial area parks. i , 2. NEIGHBORHOOD PARKS Purpose: To serve as the neighborhood center for active and passive recreation. Size: 2 to 5 acres ti Acres/People: 2 acres/1000 people Service Area: 1/2 mile radius Location: Should be centrally located and away from major thoroughfares. Easy visibility and access from surrounding residents and public right-of-way should be considered. Facilities/Activities: Should be individually designed by shall provide open play areas, picnic area, drinking fountains, and trash receptacles. Consideration should be given to provision of playground facilities, natural areas, fencing, lighting, irrigation and ease of maintenance. Additional facilities should be based on the recommendations of neighborhood residents and the City Park Board. 3. COMMUNITY ?ARKS Purpose: To provide facilities which generally cannot be provided at the neighborhood level. To supplement facilities provided by junior and senior high schools and provide close at hand recreational space. Sizer 10 to 20 acres Acres/People: 2.5 acres/1000 people -36- ' Service Area: 2 to B neighborhoods, 1 to 1.5 mile radius Location: Should be central to the neighborhoods to be served and have direct access to major transportation thoroughfares and bike paths. Facilities/Activities: Should be individually designed and shall provide ball fields, cennis courts, sulti ase paved areas (basketball, volleyball), picnic areas and cooking facilities, open play areas, trails, restrooms, irrigation, trash receptacles, fencing, lighting, off-street parking, and an internal road system to allow for police surveillance. Should provide shelters, natural areas, and activity I centers. Facilities available through adjacent schools will be included as part of the site requirements. i t 4. LARGE URBAN PARK Purpose: To provide the residents of a greater community with an opportunity to get away from the noise and congestion of the city with,-ut traveling a great distance. To provide large areas for diverse activities encompassing passive and intensive uses. Size: 50 to 150 acres Acres/People: 5 acres/1000 people Service Area: 5 mile radius Location: Should be easily accessible by auto or transit. Ideally located with access for water activities. Local pedestrian/bike access shall be provided. Facilities/Activities: A large urban park shall provide regulation ball fields, picnic areas and cooking facilities, large open play areas, drinking fountains, restrooms, trails, trash receptacles, internal road system off-street parking, landscaped areas, and irrigation. It should provide tennis courts, shelters, and natural areas. 5. REGIONAL PARKS Purpose: To provide urban residents with an opportunity to get away from the noise and congestion of the city without having to travel great distance. To provide a large natural state area. Size: 500 to several thousand acres Acres/People: 15 acres/1000 minimum people Service Area: An area which may cross county boundaries Location: Dependent on available resources. Ideally adjacent to 1, Take or river. -37- ima- Facilities/Activities: Campgrounds, picnic .and day use areas, natural areas, trails, restrooms, and parking shall be provided. Water-oriented activities should be provided. Extensive development may also be included (sports complex or coliseum). 6. GENERAL OPEN SPACE (Preservation Oriented - Subcategories may be combined) Purpose: To encourage access and use of areas of natural and scenic beauty at a level that affords protection of the various amenities of the area and provides a base for community identity. Size: Community-wide overall; individual components variable as appropriate. Population Served: Variable, generally intended to benefit the entire community. A. Scenic Pathways: Purpose: To provide linear areas of natural and man-made beauty which will interconnect other elements of the park system, schools, and other public places. To provide for conservation of scenic and natural areas, especially water courses and areas subject to flocdiro To provide h"ffer areas along thoroughfares or between conflicting land uses. To give a feeling of general openness to the community. Facilities/Activities: Scenic ways shall provide trails or walkways and trash receptacles. The land shall be retained primarily in its natural condition along waterways and ether areas of natural value. In areas where development has occurred, landscaping and design controls shall be applied. Additional landscaping should be provided along these corridors. Rest areas should be provided. Location: Bordering waterways and areas subject to flooding, along transportation and utility corridors. B. Landscaped Areas: Purpose: To beautify areas not serving an_ actual park function but that would add to an atmosphere of open space. Facilities/Activities: Facilities should be limited to walkways and sitting areas; trash receptacles should be provided. Location: Aleng major transportation corridors and interchanges, cc:: ercial frontages, plazas, malls, and parking lots. C. Natural Preserves: }, Purpose: To preserve unique resources and to make natural values available for public education and enjoyment through visual contact or an on-site experience. -38 Facilities/Activities: Natural preserve facilities shall include those to protect and enhance the site, such a protective fencing or guardrails, elevated walks, trash receptacles, and landscaping. Compatible activities would include walking, viewing, and nature study. Location: Dependent on available resources. 7. WATER-ORIENTED SITES Purpose: To encourage access to and use of waterways. Sites may exist as individuals or as part of a multi-use park. Facilities/Activities: Appropriate uses would be swimming, boating, ! and fishing. Fishing access shall include trails and trash receptacles, if appropriate. Improvements shall include docks, rafts, parking, and trash receptacles. t Location: Dependent on available resources. 8. SPECIAL USE AREAS r Purpose: To provide areas and facilities for activities usually requiring special facilities (e.g. courts and playfields). These special facilities generally restrict other uses on the same site. They can be supplied individually or in complexes incorporating two or more of the uses in this category and should be constructed at a park site. . Facilities/Activities: Depends on opportunity being provided. For complexes, restrooms, and trash receptacles shall be provided. For t '` playfieldo: ballfields, and golf courses, irrigation and trash receptacles shall be provided. Facilities such as rifle ranges are not likely to be provided within the community; however, programs should be provided to use facilities elsewhere. Parking shall be . provided. Bleachers and lighting should be provided when appropriate. Size: Depends on facility being provided and whether it is a complex or single facility. Courts and fields shall be regulation size for intended use. Service Area: Depends on activity and type of facility (e.g. complex i or single) and the type of park it is located in. 9. CULTURAL FACILITIES Purpose: To provide a place in the community for formal or informal public gathering that will allow for increased cultural enrichment. Facilities/Activities: Cultural facilities may include plazas, malls, small parks, fountains, open-air/indoor theaters, and a library and meeting hall complex. Trash receptacles and benches shall be provided. -For landscaped areas irrigation shall be provided. _ Larger facilities shall provide off-street parking. -39- ( Location: Depends on facility being provided. Malls and plazas \ should be placed in the commercial core or well developed areas. lareer facilities should be located away from congestion; a plaza can be incorporated into a larger facility or complex. Should serve Lhe entire community. -- 10. HISTORIC SITES Purpose: To identify and preserve local historic sites and structures for enjoyment and education of present and future generations. Facilities/Activities: Historic sites shall be developed or incorporated in a development in a way that preserves the integrity of the site or structure. Interpretive signs and trash receptacles shall be provided. Parking, trails, picnic facilities, and protective fencing should be provided when feasible. Location: Dependent on available resources. 11. ACTIVITY CENTERS Purpose: To provide indoor areas for gatherings of local residents or special age groups of the city's population. Facilities/Activities: Could be for a specific age group (e.g. senior f- citizens or youths) or the entire community. Centers shall provide meeting rooms, kicchen or concesciens, lounge; work rooms, restrooms, trash receptacles, off—street parking, and landscaped areas. Could be supplied in conjunction with a cultural center. Location: Should be easily accessible to all groups intended to be served by the facility_ Shall be located with a direct assess by auto, transit or pathway. t= Greenway/Path System In addition to park land, this plan incorporates the greenway concept as a means of providing open space and protecting the natural drainage system. It establishes the greenway as the hub of the open space system. The greenway was originally proposed in the 1971 Community Plan, which established Fanno Creek and its major *or tri as a Source of linear open space. It also proposed that the greenway system serve as a route for pedestrian/bicycle travel. In 1974 the City adopted the pedestrian Bicycle Path Plan. The plan specified which portions of the greenway should function as actual pathways. The 1974 plan calls for paths along: 1. The entire length of Fanno Creek within the plan area, 2. Summer Creek from Tiedeman to S.W. 135th, 3. The watercourse that flows from Bull Mountain through Jack Park to Summer Creek, and -40- .y __,._ ..... i j 4. The watercourse that follows thr^ugh the Genesis; Pathfinder area to S.W. Walnut Street. The areas listed above, as pathways, also provide excellent opportunity for passive recreation and pedestrian/bike travel. Because this system will benefit all local residential properties, financing of its acquisition and development should come from all residential properties in the Tigard Urban Planning Area. The master park plan which the City will develop during 1983 will address the financing -aspects of the pedestrian/bicycle pathway system. Greenway Acquisition and Development Development with portions of property in the floodplain/greenway area shall be required to dedicate, to the City, the land area within the ' floodplain/greenway: If a portion of the pedestrian/bicycle pathway system, as adopted, is incorporated on the property, the property owner shall be required, at the choice of the City, to either construct that portion of the pedestrian/bicycle pathway to City standards that will traverse the property, or place the construction costs into the City's pedestrian/bicycle pathway system development account. Park Land Acquisition and Development Program The acquisition and development of parks and recreational facilities are funded by a System Development Charge which is assessed on each new F residential unit. The charge is assessed at the time of issuance of the building permit. Dedication of land may be accepted in lieu of the fee provided that it meets the standards set in Lhe plan for park sites and is approved by the Park Board. (See SDC Ordinance in Appendix I) F&DINGS o ntly, there are 128.80 acres of City park land in Tiga nd 37.90 ac f dedicated greenway. o There a pted plans for eight of the nine City par , o Although Sche Park has not been accepted by Park Board, the land was dedicated to City for park purposes. o Due to recent cut in revenue- I o the City, the City has substantially limited its mainte program. o The City's Park System Dev nt Charge is acquired through new development and is used sole o c acquisition, development or major capital acquisition. Pa intenan paid for through the City's general fund. POLICIES , 3.6.1 INDIV ' PARK SITES, AS DEFINED BY THE PARKS EN SPACE S DS AND CLASSIFICATION SYSTEM SHALL BE DEVELOPED DING TO FOLLOWING PRIORITIES: -41- i . 4 � ' LTURA RESOURC In considering the overall character of the community, to the past. As a community develops it should not It is important to look P discard sake of the future. its c past tor Clic indin s o istoric features provide a link with the past and add ch er ety to the community debign. Unfortunately, much of Tig heritage h lready been lost to unmanaged development str es remaining. with only ecr diotiagt o The des l f developments within the community can regarded from two view point a design of structures as they rel o site and function (architectur esign), and their relationship the surrounding area (community des Both aspects are of equal rtance. o Good architectural n is necessary to for individual identide visual variety and allow i t the same ti good communitydesign a sense of unity with r develo g provides appearances. while eliminating conflicting J. POLICIES 3.7.1 THE CITY SHALL IDENTIFY PROMOT RESERVATION AND PROTECTION OF HISTORICALLY AND CUL LY SIGNIFIC UCTURE, SITE, OBJECTS AND DISTRICTS WIMN TI IMPLEMENTATION STRATEG 1• To presery a community's history, an index of histo, be devel and made available to the general public. tesrosg=am shall eveloped to acquire and/or restore a number o otic struc s identified as significant. The City should consi ren nn of a historic `structure as an historic museum or cull c and and hall such as Durham School, Ye Old Windmill and Tigard Home. .a w. 43— 1 f�f t` Al.Rw W- ATER LAND_ T8 URCES ►�, ,� L1TY Comprehensive Plan Report y CRYOFUFARD ADOPTED BY CITY COUNCIL DECEMBER 13, 1982 ORDINANCE 82-79 RK }_,i�$i .� _ .. Page 1 INTRODUCTION This report provides a technical background inventory and problem _ identification for the Tigard comprehensive Plan in relation to LCDs; Statewide Planning Goal #6 - Air, Water and Land Resouces Quality. The purpose of Goal #6 is: "To maintain and improve the quality of the air, water and land resources quality of the state. All waste and process discharges from future development, ' -- when a.vwbli►ed W.-h a,.a -such di moscha�-oe.. from existing developments shall not r'krPaten to violate, or violate applicable state or federal environmental quaiiLy statutes: rules and standards. With respect to air, water and land resources of the applicable air sheds and river basins described or included in state environmental quality statutes, rules, standards and implementation plan, such discharges shall not (1) exceed the carrying capacity of such resources, considering long range needs; (2) degrade such resources; or (3) threaten the availability of such resources." In this goal the words "waste and process discharges" refer to "solid waste, � . thermal, noise, atmosphere or water pollutants, contaminants, or products therefrom. Also included in this definition are indirect sources of air pollution which results in emissions of air contaminants for which the state has established standards." (Source: Statewide Planning Goal M. All point ®L and noapoint pollution sources and areas are caeajogued $nd Yjonitored by the State Department of Environmental Quality (DEQ) which has responsibility to that the carrying capacity of the area resource is not exceeded. Jurisdiction Coordination ORS 147.180 and DEQ's Coordination Program approved by LCDC require that DEQ-issued permits, facility plans, and construction grants for new or expanded facilities will not be approved or become effective until DEQ received evidences from the responsible local planning authorities that the praipvoai is compatible with local 'Land use provisions. Applicants for DEQ permits, grants, etc. must obtain a local "Statement of Compatibility." This statement issued by the local planning agency (City of Tigard Department of Planning and Development) must certify that the proposal is compatible with LCDC the Statewide Planning Goals. If DEQ receives a negative local statement of compatibility they will not take action; the permit or approval will not be issued or if the permit was issued conditionally already, it will not become effective. If the local statement of compatibility is positive, DEQ will test the proposed action for compatibility with state and federal environmental quality requirements and relevant provisions of Goal #6 and Goal #11 (Public Facilities and Services). r Page 2 4 This coordinating system essentially places the responsibility for evaluating land use decisions for any proposed DEQ action under local control and placbs the responsibility for evaluating the more technical environmental issues under DEQ control. AIR QUALITY* Tigard is within Portland's airshed described as the Portland Air Quality Maintenance Area (AQMA) which is a designated non-attainment area. Within the Portland AQMA, the Metropolitan Service District (MDS) is the lead agency responsible for pollution reduction programs aimed at carbon monoxide (CO) and photochemical oxidants (Ox), of which the primary element of concern is ozone (03). The responsibility of pollution reduction programs with total suspended particles (TSP) is the Department of Environmental Quality (DEQ). MSD and DEQ inventory pollutants and make recommendations for controls and strategies to the Air Quality Advisory Committee, composed of representatives from the jurisdictions, interests groups and the public at large within the AQMA. Ambient Air Standards Federal and state standards for air quality have been developed for various pollutants consistent with health and welfare concerns. (See Figure I) Federal standards are established by the Environmental Protection Agency (EPA) and are divided into two (2) classes, primary and secondary. ®. Primary standards are designed to protect the public health with a builtin margin of safety. Secondary standards are somewhat stricter and are designed to protect the public welfare from adverse effects such as visibility reduction, soiling, material damage and nuisances. When the secondary standard is identical to the primary standard, it has been determined that the primary standard will also be protective of welfare. (See Table I) Air Pollution Major air pollutants include total suspended particulates, sulfur dioxide, carbon monoxide, photochemical oxidants, nitrogen dioxide, and hydrocarbons. Total suspended particulates consist of solid and liquid particles of soot, dust, aerosols, and fumes ranging from 0.1 to 100 microns and averaging about 2 microns in size (1 micron- 1/2,540"). Suspended particulates originate in combustion sources, motor vehicles, industry process losses, dust, field and slash burning, and natural sources such as ocean spray and wind-raised dust. Suspended particulates aggravate chronic lung disease, heart and lung disease symptoms; and causes damage to various types of materials as well as visibility reduction. Sulfur dioxide is a colorless, pungent, irritating gas from oil and coal combustion and industry process losses. It aggravates asthma, heart and lung disease, particularly for the elderly; irritates lungs; is corros'-,e to metals and marble; and causes plant damage. *Source: 14R1 Oregon Air Quality Annual Report, Department of Environmental Quality. n 1 EF r 1 Page 3 TABLE I Ambient Air Quality Standards for Oregon Federal Standards Yrlmary Svvi3ndary Pollutant AveraQina Time (health) (X2lf=) Atandard 3* "s 3 Total Annual Geometric T5 ug/m 60 ug/m 60 ug/m Suspended Mean Particulate 24 hours(1) 260 ug/m3 150 ug/m� 150 ug/m3 Monthly (2) - - 100 ug/m3 Ozone(4) 1 hour ?35 ug/m3(3) 235 ug/m3(3) 235 ug/m3(3) [Carbon Monoxide 8 hours(1) 10 mg/m3tr 10 mg/m3 10 mg/m3 1 uvua- (1) 40 mg/m3 40 mg/m3 40 mg/0 Sulfur Dioxide Annual Arithmetic 80 ug/m3 - 60 ug/m3 Average - 260 ug/m3 24 hours(1) 365 ug/m31300 ug/m3 1300 ug/m3 3 hours - Nitrogen Annual Arithmetic 100 ug/m3 100 ug/m3 100 ug/m3 Dioxide Average Hydrocarbons 3 hours(1) 160 ug/m3 160 ug/m3 160 ug/m3 '%Vo=cthanc) (6-9 a.m.) Lead Monthly - 3 ug/m3 Calendar Quarter 1.5 ug/m3 1.5 ug/m3 ' NOTES: Micrograms of pollutant per cubic meter of air. •• Milligrw3 of pollutant per cubic meter of air. (1) Not to be exceeded on more than one day per year. (2) 24-hour average not to be exceeded for more than 15 percent of the samples in a calendar month. (3) A statistical standard, but ,basically not to be exceeded more than an average one day per year rased cn the most resent three year, of data, (4) The state standard was revised on January 22, 198-2. ff Source: Air Quality Annual Report - 1981, DEQ. I Page 4 Carbon mon_ oxide is a colorless, ordorlesa as which is toxicIt comes from incomplete combustion sources, most frequ frequently h fromy motor. vehicles. Carbon monoxide interferes with the blood's ability to carry oxygen, causing heart difficulties; it also reduces lung capacity and impairs mental abilities. ® Ozone is a colorless, odorless, toxic processes in the atmosphere o gas. L Ozone arises from photochemical r by reaction between oxides of nitrogen and hydrocarbons in the presence of sunlight, and is generally a consequence of industrial and combustion sources and motorvehicles. It can cause eye rritation, damage to lung tissue and lung f n tions. material damage and plant damage. Nitrogen dioxide is a reddish-brown gas toxic in high concentrations. It is formed by conversion of nitric oxide from motor vehicles, combustion sources and industrial sources. It increases chronic bronchitis and irritates lungs. ydrocarbons are a large family ""' of compounds consisting of hydrogen and 'L"eY are generated by motor vehicles, evaporated fuel losses, industry and combustion process. Hydrocarbons actively participate in oxidant formation and cause plant damage. Methane, a particular hydrocarbon, is produced naturally by the decay of organic matter and is not significant in oxidant formation. While Oregon has a reputation for having a relatively clean environment, there are four areas of the state designated as not being in attainment with federal air quality standards for one or more pollutant. The Portland-Vancouver area ie one of these designated areas. The Portland-Vancouver Air Quality Maintenance Area (l+QMA) is not .n attainment with the 8-hour carbon monoxide standard and the ozone standard and contains rsubareas that are not in attainment with the secondary total suspended parti.ulate standard. However, for most of western Oregon, air quality in 1981 was the best it has been in six years. Total sus ended P particulate, levels declined, carbon monoxide and lead although one severe and abnormal heat wave during the year caused severcl violations of the ozone standard. TABLE II* Status of Attainment Plans forAreasExceeding Federal Air Ouslity Standards Area Pollutant Total Suspended Carbon Particulate :ianoxide Ozone Portland-Vancouver AQMA Plan Adoption Date 12-80 Expected 7-82 Expected 7-82 Projected Attainment Date 1987 1985 1987 ` Source: Airalit Annual Re ort Environmental 1la., Oregon State Department of- Quality.. h A t* Pp(!p Portland Non—Attainment and Air Quality Maintenance Area LF[LF[ �a Iy �• 5 a ,—�•_ � ::.t� 1::•:_:":.:;' . . : :. .:.:•: 111 j+. sF?�'•; `y'd' : r: :' 'i,; t� "1T+ ''('.; ~;ty::: "ems •n,. :. :!� para%• . . . •r e..•:►r., o /• ;T•• %:�•. lit, �,?:'ti•�'i -•};;7�;.;;• '� .r. _`3 {;t�:'t?'r fir �d%• a :at•�•-�•,"��'.r�1�:+;r;ly:::rl,7.;•:;,:;i:;� •;jar:; r+> ;"';' /." ju02 ' :. ti '• - O 2 C6 b• •a ��.r :.. I� r r E i( i Page 5 In the Portland AQMA, the decrease in total suspended particulate levels was not accompanied by a decrease in fine particulate levels. From an analysis of meteorological conditions, it appears that 1981 was an average ventilation year. The major decrease in total suspended particulate was in coarse particulate, and the major source of coarse particulate in Portland is soil and road dust. It is highly suspected that reduced amounts of wintertime road sanding and much better pickup of the material occurred. Some residual effect from the previous year of intense volcanic ashfall cleanup may also have been significant. Carbon monoxide levels at most sites in the State showed a distinct improvement over 1980 levels, both in average levels and in the number of days violations were recorded. The single most important factor in the improved carbon monoxide levels is the reduction in tailpipe emissions from new automobiles as a result of the Federal Motor Vehicle Emission Control Program. Meteorology and Air Pollution Episodes During normal conditions air quality is maintained as a balance between emissions of pollutants into the atmosphere and the atmosphere's ability to disperse or remove these pollutants. Occassionally, atmospheric conditions stagnate, causing an imbalance which may lead to elevated levels of pollutants depending on the strength and length of the stagnation period. The National Weather Service attempts to predict and track periods of poor atmospheric conditions by issuing Air Stagnation Advisories (ASA's) when such conditions are expected to persist for a significant period of time. In the even: air pollution levels exceed prescribed limits, and other criteria are met, the Department declares an air pollution episode. Various stages of episodes may be declared depending on the levels measured. These stages range from Forecast, which is based solely on the issuance of an ASA, through Alert, Warning, and Emergency, which are based on specific concentrations of air pollutants. At each stage, certain activities are carried out as described in the Department's Emergency Action Plan. These activities range from an internal watch through public advisories to the ability to curtail industrial and public activities if pollutant levels continue to rise to Emergency levels. Air Quality Trends An often asked question about air quality is, Is it getting better or worse?" On the surface, this would appear an easy question to answer but a closer look reveals many problems and pitfalls. Air quality data rarely shows an absolute trend, each value greater or Less than the preceding one, but rather shows variations with distinct time intervals. Some periods of time are expected to show higher values of certain pollutants than others. For example, carbon monoxide values are typically higher during weekdays than on weekends, and particulate values vary seasonally due to, among other things, space heating requirements. In the midst of this periodic variation a trend analysis must be able to distinguish a true or significant trend over a sufficient period of time to make a viable statement regarding the long term trend of the data. TABLE III Pag0 6 Air Quality Trends* and Number of Days "Exceeding Standards for Selected Oregon Cities TSP co City TSP Trends Ca Trends 03 Trends -WWW"mmmmm"mm Albany 0 Baker Bend Coos Bay 0 __ Eugene- 1 0 3 Springfield +—► f Grants Pasa 0 25 u Klamath Fall. / �� » La Grande 5 Lake Oswego 0 Medford b � 53 j Q Milwaukie a .—+ O •� t Oregon City :u ....................... Pend2eton 4 F-Irtland 24 E Roseburg 0 » Sales 0 as i ?:>.,:.=:>.<<:•:> The Dalles 0 U.WhAta City �: �._► » '''"'�'`�' .:::. Legend: TSP Total Suspended Particulate CO Carbon nonozide 03 Ozone -- Not monitored. E e Trends based on most recent 5 years of data. Pre-1919 ozone values were adjusted down by 22.5f to reflect a change in the } calibration method. Trends are reported only if significant at the 90% confidence level. as Not enough g years of data Co compute trends. t Measured levels increasing. 4 Measured levels decreasing. No significant trends, i >; y , Designated Nonattainment Area for the pollutant noted. s Source Air Quality Annual Report — 1981, DEQ. a. . a TABLE IV Page 7 Number of Days Air Stagnation Advisories Were-issued 11 y the National Weather Service I' i Willamette Southwest Valley Interior except Eastern ASA-Daysee Y Valley EuaenftS pQlBflfi Oregon Total 1972 2 6 6 6 6 6 0 7 1974 11 16 16 16 0 26 1975 26 1 1 1 0 1976 44 20 26 t7 1 44 19T7 23 5 6 5 15 29 1978 150 13 17 13 0 20 6 1979 11 17 17 13 0 21 1980 43 21 21 80 44 1981 3fL-- 17_ l$_ 12— .. Q-- 36 10 Year Average 21.5 11.9 13.0 9.4 2.2 25.0 a lacludes one ASA that extended only to Roseburg. !e One ASA-DAY is defined as an ASA in at least one of the identified areas. TABLE V Maximum Pollutant Concentrations During Air Pollution Epinodes.Declared by the DEQ Total Suspended Carbon _earticulate Ldp Ozone Maximum / Maximum / Maximum / Concentration Concentration Concentration Area Year Dates llg/0 Dales M&Lm3 Dates ur/m3 Portland 19T5 None fe None 07/23-171/25 254* 1976 None 11/30-12/06 17.1 None 1977 None None 08/08-08/18 450* 1978 None Hoge 08/03-08/04 ;co* 08/08-08/09 294 1979 None: 11/10-11/11 19.9 07/16-07/18 333 1980 05/30-06/03*0 509 12/06-12/21 24.i none 06/15-06/23"* 3334 None 06/27-07101** 654 10/17-10/19"* 328 12/16-12/18 267 1 L mmm #; t Values in this table were reported as unverifie6 during the ' episode and war not correspond W values listed elsewhere in this summary. €r iI None means standards vera not violated during an episode during the year. Pre-1979 ozone levels were measured with a different calibration method. The pre-1979 levels should be reduced by 20-25% for comparison with'1979 and later values. *" Nigh levels are due to volcanic ash. Sources Air Quality Annual Report - 1981, Oregon State Department of . Environmental Quality. t r Page 8 To further complicate matters, many non-periodic occurrences can affect a trend analysis. Changes in traffic patterns near a carbon monoxide monitor could lead to erroneous trend predictions unless the change was noted. Meteorology and industrial activity due to economic conditions can severely affect air quality data. Since these effects are quite difficult to quantitatively account for, most trend analyses point out their existence as a caution to the reader. The air quality trends presented in Table III represent statistically significant trends in measured air quality without regard to mitigating circumstances such as meteorology or economy. They are based on annual average data collected over the period 1977-81 and are reported only if significant at the 90% confidence level. Wood i.eating and Air Quality The most rapidly growing source of particulate air pollution in Oregon is residential wood space heating. Airshed studies have identified wood heating as a significant source of uncontrolled pollutants and a major cause of violations of the state and federal ambient air quality standards in Portland. Currently, more than 50% of Oregon's households use wood for some space heating. Heating with wood is expected to continue as more and more individuals try to offset accelerating home heating costs of conventional sources of heat. Unfortunately, a wood stove can emit 224 times more particulate than an oil furnace and up to 457 times more than natural gas for the same heat value. iF YvU ME BURN'4u rnOEERLY'I'M CAN SEE Tim DI MIZENCE. �w CL mom= i I 'e r.. _ RIGHT, WRONG. A hot, clean burning fire. A smouldering, damped-down fire. r This accelerating trend in using wood for home heating results in large quantities of fine particulate and carbon monoxide being emitted from woodstoves and fireplaces six months of the year at essentially ground level in many residential neighborhoods. Wood smoke contains vers small particles, the majority of which are within a size range that car., evade the body's natural filtering machanisms And cause health effects whe,,., pollutant levels accumulate during periods of poor ventilation. Relatively high concentrations of these respirable particles have been measured in densely populated urban areas. For example, respirable wood heating impacts in a Portland residential C neighborhood have exceeded 60 ug/m3 on a 24-hour basis during the winter of t t 1981-82. [: t For those households that heat with wood, the DEQ has been recommending the following: i 1, F.My weatherjEe and insulate all dwellings. These measures will help reduce the amount of wood used for space heating or eliminate the need to burn wood. For households that plan to heat with wood, we highly recommend that you insulate before installing a wood burnin- appliance. 2. Select a wood stove that is properly sized for the area to be heated. i Oversized wood heating appliances will put out too much heat, causing the operator to choke down the combustion air supply to decrease heat output; this increases creosote buildup and causes more particulates I to be released. 3. Avoid burning_ wood_ on poor air quality days or during moderate temperatures; if possible, use conventional heat sources during these periods. 4. Follow good stove operating practices: How you-burn-makes a big difference in terms of efficiency, safety and e:aiso--ons released. combustion air into the fir . of the 5. Allow adequatefirebox. Restriction - air supply substantially increases the quantity of pollutants emitted from woodstoves. 6. Burn with a hot fire when starting the stove. A great deal of pollutants are given off in the first 30 to 45 minutes ,of a burn cycle and when reloading the firebox. High firebox temperatures are required for complete combustion. Smoldering fires cause heat loss in the toren or usable chemical energy going up the chimney. 7. Burn well-seasoned dry wood. Wet wood is less energy efficient and may causa more creosote buildup. 8. Don't overload the firebox. A small charge of wood arranged to maximize air_circulation helps to obtain more complete combustion and reduced emissions: ` r; 9. Use pieces of wood that are between 3-1/2 and 5 inches in diameter for the most efficient, least polluting burn. F t Page 10 10. Do not* burn plastics, garbage or coal. These give off additional hazardous or toxic gases and pollutants. Indoor air quality may also be affected. 11. For safety, maintain your appliance in _good operating condition= Check for smoke leaks and clean the flue and chimney regularly. 12. Compare the cost of wood heating. When all the costs of wood heating are accounted for, in many cases it will be found that it is still cheaper to use conventional sources of fuel. At present, the DEQ is prohibited from regulating home heating devices, including wood stoves and fireplaces. However, the Department is considering several options to resolve the problem of browing emissions from household wood "heating. These are: 1. Conduct a statewide voluntary wood stove emission rating and labeling program. This would provide the consumer with a means of comparing appliances based on their actual test performance. 2. Provide a consumer pollution control tax credit for installing new or replacement clean-burning stoves. 3. Conduct an Emission Performance Certification Program. This would allow only clean-burning appliances to be sold. These options are preliminary only and subject to revisions. They are being evaluated as to their feasibility, public acceptability, cost, and energy and environmental effectiveness, and would require legislative authority to implement. Goals and Objectives for the Department of Environmental Quality 1. Administer an effective air quality program. 2. Attain and maintain air quality standards statewide and prevent significant deterioration of air quality in clean air areas. 3. Attain and maintain adequate data bases statewide. 4. Maintain control of point source emissions. 5. Develop, implement, and promote implementation of control strategies for significant- area source emissions. 6. Minimize impacts of field burning and slash burning smoke on air quality. 7. Reduce automotive caused air pollution through operation of a periodic inspection/maintenance program. C 8. Promote better understanding of air quality issues through r communication with the public and other aovencies. i e •r ® Page 11 State Implementation Plan Activities Although these strategies are directed towards the City of Portland, the impacts affect Tigard as well as the entire Portland Metropolitan Area. Portland-Vancouver AQMA (Oregon Portion) Carbon Monoxide Control Strategy The City of Portland agreed with the Metropolitan Service District and DEQ to take the lead in developing a carbon monoxide control strategy plan for the region, since the carbon monoxide problem is largely confined to downtown Portland. A draft plan was put together in 1981 with feedback from the Portland Air Quality Advisory Committee. The control plan is experted to enable the Portland area to meet the 8-hour carbon monoxide standard by 1985. Portland-Vancouver AQMA (Oregon Portion) Ozone Control Strategy In the fall of 1981, the DEQ and the Metropolitan Service District completed work on a revised ozone analysis, based on 1980 data. Results of the analysis indicate that controls on existing industrial sources adopted in 1980 plus a continuation of present control programs on transporation sources, will be more than sufficient to project attainment with the ozone standard by 1987. Chief elements of the proposed control strategy are listed below. 1. Portland area biennial Auto Inspection and Maintenance program; 2. Committed transporation projects, with special emphasis on the Banfield Light Rail Transit project; and 3. Existing Volatile Organic Compound Rules applied to existing industrial sources. To manage new industrial growth, the DEQ plans to utilize a surplus in required emissions reductions as a growth cushion. Oregon and Washington would share the growth cushion on an 85%-15% basis, respectively, because of the interstate nature of the AQMA. An ozone control strategy based on the above components was drafted in 1981. A finalized control plan must be submitted to EPA for incorporation into the Oregon State Implementation Plan by July, 1982. NOISE* Noise is more than just a nuisance. It constitutes a real and present danger to people's health. Though we seem to adjust to noise after long periods of exposure, the body still responds; and sometimes with extreme tension. Feelings of annoyance and frustration may develop either from direct exposure to noise or from an inability to communicate or relax when noise is present. The body reacts to this stress with increased release of adrenalin, 'constriction of blood vessels, andincreasedheart rate. Noise does not have to be loud to bring on these 'responses. Noise well below the levels usually associated with hearing damage can cause regular and predictable adverse changes in the body. *Source: Comprehensive Plan Noise Element Guidelineso Department of Environmental Quality. Pageso commonplace in our lve12 we Perhaps because annoyance and frustration walizing the effectiits may re tend to take noise pollution for granted, without re have on must include measures toscientious limit our exposure for an improved to quality of life to noise pollution- must n. The purpose of this document is to assist those involved with the deYelophent and review of the noise element of local comprehensive land use plans. guidelines explain the DEQ's role in statewide control of noise and provide information on how a city, county or regional can ensure that the Statewide Planning Goals are met with regard to noise pollution. i Noise is a waste or process discharge, and falls within the scope of Statewide 11 Planning Goal #6, adopted by the Oregon Land Conservation and Development Commission. Other goals are directly or indirectly related to the environment and noise pollution, e.g. transportation, Goal #12. Transportation corridors have a significant noise impact on surrounding noise sensitive living and use areas, for instance, and most decisions concerning the amount and type of housing needed for a community will indirectly have noise impact consequences upon future residents. The Oregon Legislature, when adopting the Noise Control Act of 1971, found ` is as much a threat to the environmental that noise at "unreasonable levels this quality of life . . . and the health, safety and•welfareORS fChapter ter people f 467.) This state as is pollution of the air and waters ( p legislation authorized the DEQ, through the Environmental Quality Commission, to ,idopt and enforce statewide standards of noise control. r�..aes of Noiae Sources The following is a breakdown of source areas perceived by DEQ as having noise problems. This list is not all-inclusive, butmerelypoints potential typical problem sources. It should be noted that the proximity of the out t y a«a r.. ert.y is very important in evaluating airy noise source to noise sensitive Pro -1 specific noise source. Noise-ser Ative property includes residences, motels, churches, hospitals, libraries and places where people normally sleep. Potential noise sources in Tigard are: 1. Itighways and freeways; 2. Local industrial and commercial facilities; 3. Construction equipment and activities; ` i 4. Collector and local streets; 5. Railroad operations; and 6. Residential sources (furnaces, "Ar conditioners, barking dog6, +ud voices, and off-road vehicles). Page 13 �- Highway-and Traffic ldoi se .Effective control of the undesirable effects of highway and traffic generated noise requires a three-part approach: 1) source emission reduction; 2) improved highway design; and 3) land use control. The first two components are currently being addressed by private industry and by federal and state agencies. The third area is traditionally an area of local governmental responsibility. { f Source emission reduction requires the development of quieter cars and trucks. There is some probability that legislation will provide quieter cars and trucks in the future; however, while significant progress is being made in research to reduce vehicle engine and exhaust noise, tire design - the major source of high speed traffic noise, may place limits on further improvements. Thus, land use control will continue to be a crucial component of the three-part approach to noise control. :zeal governments will continue to have the responsibility for discouraging the development of noise-sensitive land uses (such a homes and schools) in highway noise impacted areas and for { ensuring that any such development which does occur is planned to minimize the 1 adverse effects of noise. i i The administrative techniques available to local governments fall into five categories: zoning; other legal restrictions such as subdivision laws, ! � . building, and health codes; municipal ownership or control of the land; financial incentives for compatible use; and educational and advisory municipal services. Zoning can be a strong local control on new development, but has little control over existing land uses. Zoning as a noise--compatibility control includes: 1. Exclusion of such typically incompatible uses as residences from a noise-impacted area by allowing only industrial uses. This is a simple and effective technique. However, such zoning needs to be carefully studied since it may conflict with other plans for community growth, And it may render the land worthless if no demand exists for industrial land. 2. Regulation of development design or construction, such as limiting ; building height or requiring buffer strips, noise barriers, and sound . insulating construction. This is usually effective, but often the applicability of the requirements extends to buildings that do not need the special construction techniques to be noise compatible. ( ' 4 3. Special development concepts such as cluster and planned development. These farms of innovative zoning make possible developments with significant noise control advantages over the conventional subdivision. is _ . -- ^?,- — — , . �. Page 14 Municipal ordinances other than zoning can act as noise compatible land use controls: 1. Subdivision or development standards can require acoustical site planning of the development by berms and barriers. 2. Environmental impact statements can be required for new development projects. Of course, if the City owns t.e noise-impacted land, it can keep the land i vacant or ensure that it is developed with noise compatible uses. Relaxation of enforcement of provisions of municipal regulation can, where legal, be uaed { as an incentive to obtain voluntary acoustical site design and construction — measures from developers and builders. Additionally, city information services can be made available to builders and developers through such things as an architectural review board, a city design service, an acoustical information library, or a public information effort to make the public aware of acoustical incompatibilities and their prevention. Industrial and Commercial Noise A basic problem in dealing with industrial and commercial uses is their relationship to residential uses. Besides providing appropriate standards for industrial uses, the utilization of techniques such as clustering and planned developments for industrial areas should mitigate adverse environmental impacts and land-use conflicts. In areas where incompatible land uses already exist, strict adherence to DEQ noise emission standard and utilization of the best available abatement strategies and technologies is required. New light industrial- activities can generally minimize their effects on surrounding land uses by means such as site planning, architectural design, construction methods, and barrier construction. Techniques available for shielding abutting development from noise impacts include: 1. Increasing the distance between the noise source and the noise receiver; 2. Planning land uses such as parking lots, maintenance facilities, and utility areas between the source and the receives ; 3. Locating barrier type buildings parallel to the noise source; 4. Orienting abutting development away from the noise source. Heavy industrial activities are, by their nature, not extremely compatible with less intensive land uses, particularly residences. Siting of heavy industrial uses near residences, as seen in the case south of Hunziker Street and west of Cherry Street, is an invitation to land use conflicts. To as great an e2.tent as possible, these industries should be segregated and buffered from less intensive uses. VW t Page 15 Design criteria recommends that the outside daytime noise levels in a residential areas should not exceed 50 dBa (45 dBa inside dwellings: a maximum reduction of 20 dBa is possible by closing windows). Noise Control and Standards 1 The Oregon Legislature has authorized the Department of Environmental Quality (DEQ) and the Environmental Quality Commission (EQC) to adopt and enforce statewide standards for noise control. Standards presently adopted by Oregon ! Administrative Rule (OAR) are contained in OAR 340-35-005 through 340-35-100 . and are summarized as follows as they are related to the Tigard areas f 1. All new motor vehicles sold within Oregon must meet maximum allowable decibel limits. Vehicle categories include automobiles and light tucks. motorcycles, buses, snowmobiles and medium and heavy trucks. rtacing vehciles are exempt from this rule (0A: 340-35-025). 2. In-use motor vehicle emission standards are established and referenced to moving and stationary monitoring procedures. Road vehicles and off-road recreational vehicles are included in this rule. Ambient standards for off-road recreational vehicles impacting adjacent noise sensitive property are also included in this rule (OAR 340-35-030). 3. Industrial and , commercial noise sources must meet ambient noise standards measured at the nearest "noise sensitive property". "Noise (_ sensitive property" includes residences, hospitals, schools, churches, libraries and places where people normally sleep. The definition for industry is very broad, but some activities are exempted for reasons of lack of control technology, lack of an adequate standard or preemption by federal regulations (OAR 340-35-035). Industrial and commercial noise standards are based upon protection of s�rsi speech communication duringthe daytime (% a.m. to 10 p.m.) and protection of sleep at night (10 p.m. to 7 a.us.). T ie standards are written in statistical terms over a one hour sampling period. This allows some variations in the noise level over time, but limits the total acoustical energy during the one-hour sampling period. City of Tigard's Noise Ordinance At this time, the City does have a noise control ordinance in the Tigard Municipal Code and is cited below. , Section 7.40.070 Noise. (a) No person shall operate a motor vehicle in ! such a manner or at such a location as to cause the noise created by the vehicle to cause the ambient noise level specified in subsection (c) of this section, as measured at a point located twenty-five feet from the noise-sensitive structure toward the noise source. (b) Except as may be expressly allowed pursuant to the provisions of Section 7.40.080, no person shall cause or permit noise to emanate from property under his or her control so as to cause the ambient noise level I: Page 16 at the nearest noise-sensitive property to exceed the levels set forth in subsection (c) of this section, as measured at a point located twenty-five feet from the noise-sensitive structure toward the noise source. (c) Allowable noise limits are as follows: Time Maximum noise level, dBa 7 a.m.--LO p.m. 60 10 p.m.-- 7 a.m. 55 (d) The restrictions imposed by subsections (a), (b) and (c) of this section shall not apply to the following: (1) Emergency equipment not operating on a regular or scheduled basis; (2) Noise emanating from the Pacific Highway, highway i-2210 and Highway I-5; (3) Sounds originating on construction sites and reasonably necessary to the accomplishment of work in progress; provided, however, that no construction work may be carried on between the hours of nine p.m. and seven a.m., except for bona fide emergencies where the pulic health or safety is threatened or when a special permit, granted by the City E Council, has been first obtained. Any such special permit may be granted by City Council only after first having held a hearing and j having otherwise followed the procedures contained in Chapter 18.84 of the Zoning Ordinance; (4) Emergency repair equipment not operated on a regular or scheduled basis; ■ (5) Lawn, garden or household equipment associated with the normal repair, upkeep or maintenance of property. (e) No persons shall operate within the City limits of the City of Tigard a motor vehicle exhaust-braking system, commonly known as a "jake brake." For the purposes of this subsection, the exceptions set forth in subsection (d) of this section shall not apply, and this section shall be read as an absolute prohibition of the operation of such motor vehicle braking systems within the City of Tigard. (f) For the purposes of this section, the term "ambient noise" means the all-encompassing noise associated with a given environment, being usually a composite of , sounds from many sources, near and far. The term "noise-sensitive property" weans real property on which people normally sleep, and also includes schools, churches and public libraries. - (g) No person shall cause or permit noise to emanate from sound amplifying equipment under his or her control so as to cause the ambient noise level to exceed sixty dBa at any distance one hundred feet or more from the source between the hours of seven a.m. and ten p.m. and fifty-five dBa one hundred feet from the source between the hours of ten p.m. and seven a.m.. p ' z Page 17 WATER Tigard is within the Tualatin River and the Fanno Creek drainage basins. The major tributaries of the watercourses are Summer Creek, Ash Creek and Red Rock Creek. All of these watercourses have varied flow levels based on the seasonal imputs of moisture. The annual imput of moisture is strongly concentrated in the winter months and summers are normally dry. The Tualatin River has the greatest seasonal flow variations than any other river in the Willamette Valley. About 90% of the annual flow occurs between the months of November and April. Most of the watercourses in Tigard are used by water fowl and wildlife. The Tualatin River is used for recreational purposes as well. Water Quality* As surely as water runs downhill, a certain amount of topsoil is washed into nearby streams every time it rains -- and in western Oregon it rains often. Annual rainfall averages as high as 130 inches a year on the upper west slopes of the Coast Range. From fields and forests and cities, whatever is on the ground washes continuously down even the gentlest slopes as the waters seek their level. Runoff from these "nonpoint sources," has impact on our water. Urbanization brings new problems. Oil, rubber and lead from automobiles, mud ( from construction sites and soot from heavy manufacturing areas, all settle on - highways and crosswalks and are washed from pavements into rivers and streams. The water quality of the lower Tualatin River is rather poor by comparison with most rivers in Oregon, but apparently this has always been the case. The lowland Tualatin River and its lowland tributaries were never clear, cold mountain streams. The combination of clay—silt beds, low summer flows, slow meandering course, and warm summer temperatures naturally create a lower water quality. One meaning of the Indian word Tualatin was "lazy and sluggish". The Indians also referred to the Tualatin as the "green river" from its abundant summer algea growth. The population boom in eastern Washington County after World War II brought many small inadequate sewerage treatment plants on the lower tributaries of the Tualatin River, namely Fanno Creek, Rock Creek and Beaverton Creek. By the early 1970's the treated wastes from these plants contributed most of the water in the streams. Fanno Creek, which had good trout fishing as late as the 1940's and had once supplied crayfish to Portland's finest restaurants became virtually an open sewer (90% treated effluent). ®e Several changes during the 1970's have improved water quality especially along the ,urbanizing creeks (Fanno Creek in Ti.gard's case), but continued population growth with its attendent increased sewage Waste and urbanization is gradually erasing these gains. t *Sources: Washington County Planning Department, Comprehensive Resource Document, DEQ CFP Water Quality in Oregon,1980,. Page 18 i During the 1970's, nineteen small sewer treatement plants, located along Fanno Creek, were removed from service and their flows diverted to the new U.S.A. plant at Durham (north of Fanno Creek). It was designed to remove significantly more of the pollution components. It removes phosphorus, for example, and the previous plants had not. Six parameters are the major measures of pollution: dissolved oxygen, fecal coliform bacteria, pH, total solids, biological oxygen demand, and inorganic nitrogen. These are combined in the Oregon Water Quality Index (OWQI) for more generalized summaries of water quality. Fanno Creek - The upper section of Fanno Creek (above Denny Road) while somewhat polluted from urban runoff that resulted in nutrient enrichment and therefore fairly high Biological Oxygen Demand (BOD) levels, has relatively good quality water. The lower portion was grossly polluted from a number of sewerage treatment plants until 1976, when their flows were diverted to the nes: Durham. plant. The Oregon Water Quality Index (OWQI) value in 1975 was 22.5, but this had jumped to 55.4 by 1979. A comparison of individual parameter values, before and after diversion, is made in Table VI. In 1977 fish were noticed in the lower creek for the first time in many years. Fanno Creek has the most completely urbanized watershed in Washington County, and the result is a water quality that remains the worst in Washington County. TABLE VI OREGON WATER QUALITY INDEX VALUES F&Nx o CREEK AT DURHAM ROAD 1970-1979 Date OWQI Date OWQI 1970 39 1975 22.5 1971 33.8 1976 37.6 ,., 34 1977 42.4 A 14 1973 20.7 1978 49.6 1974 39.5 1979 55.4 TABLE VII WATER QUALITY PARAMETER VALUES FANNO CREEK AT HALL BOULEVARD _hone, 1975 and October, 1979 Date DO BOD COND NH3 EO-3 PO4 6-11-75 4.4 19.0 390 12.0 2.74 17.05 10-23-79 8.4 3.3 90 0.13 0.'39 0.14 DO - Dissolved Oxygen NH3 - Ammonia BOD = Biological Oxygen Demand NO3 - Nitrogen Oxides COND Conductivity PO4 _ Phosphates With an increasing population and urbanized area, the future trend in clear: "Given the present conditions, there is no place for water quality to go but down." The Corps of Engineers has estimated expected increases in water pollution to the year 2000 (Table VIII). Page 19 TABLE VIII PROJECTED PERCENTAGE INCREASE IN POLLUTANTS (from 1975) Fecal Basin Year Susp Setl BOD N P Coleform Fanno Creek 1985 5.6 6.3 4.2 5.0 5.2 8.9 2000 13.6 15.0 11.0 11.4 13.4 20.2 Despite a concerted effort to collect, treat, and properly dispose of wastewater, water quality can become degraded from seasonal overflows of sewage mixed with urban storm runoff. Such untreated discharges are caused by inadequate capacity of sewage collection and treatment facilities. The combined sewers that cause such overflows present complex abatement problems that are economically difficult to define or solve. In Tigard, overflows generally occur at times of high river flows, not during the low flow season. Water quality impacts from urban stormwater runoff are difficult to define and assess because urban runoff is a nonpoint source. The City of Portland and the U.S. Army Corps of Engineers are currently trying to assess the effects of urban stormwater runoff with the aid of computer modeling. Urban stormwaL., pollutants may include Biological Oxygen Demand (BOD), settleable and suspended solids, organics, nutrients, and heavy metals. The pollutants can come from automobiles, urban litter, construction activity, and from many urban activities. In rural areas, stormwater pollutants may in large part come from agricultural Activities such as livestock wastes and fertilizers. Urban stormwater pollutant loadings can be a significant contribution to the pollution content of streams (as much as four times that from municipal wastewater treatment plants). In the urban environment, stormwater runoff flows are increased over those in natural areas because of impervious surfaces that_prevent rainfall from soaking into the ground or being stored in natural depressions. A large volume of runoff with a high velocity flush pollutants from their sources into storm sewers and receiving streams. Although the impact of the pollutants on stream water quality is not yet known, BOD loadings tend to decrease dissolved oxygen levels, and heavy metals and organics may be toxic to aquatic life on a localized basis. However, during periods of stormwater runoff, receiving streams generally provide high dilution of such pollutants. The following table, taken from the CRAG 208 Study, is a comparison of projected point and nonpoint pollutapt loads in the Tualatin River Basin, year 2000. r, R 1 Page 20 TABLE IX COMPARISON OF POINT AND NONPOINT POLLUTANT LOADS, TUALATIN RIVER BASIN, YEAR 2000 Municipal Sewage Treatment Plants Nonpoint Urban Runoff Plant BOD & SS (1B/yr) Basin BOD (lb/yr) SS (1B/yr) 5 5 Durham 840,000 Fanno Creek 202,300 25,542,600 DEQ is beginning to explore the other "nonpoint source" impacts on water quality. These include forest management activities, agricultural activities and stream corridor managment activities. LAND RESOURCES Land resources quality is a broad term encompassing the suitability of the land for particular uses. The land within Tigard has been shown to be suitable for a variety of uses, depending upon the characteristics of particular sites. Land resources quality may also be more narrowly defined as the quality of the land in regard to waste and process discharges (These refer to solid waste, thermal, noise, atmosphere or water pollutants, contaminants, or products therefrom). Pollution from sludge and solid waste has accompanied urbanization and industrialization and is a feature of nearly all densely populated urban areas. Solid waste collection and disposal is a vital element in establishing and maintaining livable environments. Historically, the organized removal of solid waste has dramatically effected the health or all urban residents. Land quality in Tigard is not threatened by waste and process discharges. In addition, there are no solid waste dump sites inside the City limits. There is one private landfill, Grabhorn, located west of Beef Bend Road. This landfill accepts only waste resulting from construction demolition (bricks, concrete, dirt, etc.). According to the Metropolitan Service District (MSD), this landfill will probably close in the next couple of years. Solid Waste Disposal The Metropoltan Service District (MSD) has been designated with the primary responsibility of finding a solution to the disposal of solid wastes, which is a -regional problem. MSD maintains a regional solid waste, management plan which is used to guide activities such as the search for new regional landfills and planning of solid waste transfer stations, resource recovery plants, and recycling programs. Collection of solid wastes in the City is handled by private firmsoperating under mutually exclusive franchises granted by the City Council. 1 r Page 21 City policies and strategies regarding the solid waste management must include recognition of MSD's primary role in planning and coordinating solid waste disposal for the region and provisions which will help achieve the regional objectives of reducing the amount of wastes that need to be disposed of in sanitary landfills. Three private firms hold exclusive franchises with the City and County to collect solid waste in the Tigard area. They generally provide routine garbage collection, drop box special loads, compact waste and recycle newspapers. Service areas have been convoluted and indistinct in some areas in the past. However, the City has redrafted its franchise ordinance to create clear service boundaries. These boundaries provide for the following division of the Tigard Plan Area. Miller's Sanitary Service - Northern Tigard (north half of NPO #7, NPO ,#2 north of N. Dakota and west of Greenburg and NPO #4 east of Hall and north of Pfaffle and Pacific). Schmidt's Sanitary Service - Southern Tigard (southern 3/4 of NPO #6 south of Murdock and Sattler and southwest corner of NPO #5 generally south of Bonita and west of 76th). Frank's Disposal Service - Central Tigard (including south Tigard industrial area and remaining areas not served by either Schmidt's or Miller's). The three local garbage collectors currently haul collected wastes 15 to 20 miles away, or 30 to 40 miles for a roundtrip by truck. Miller's and Schmidt's now transport refuse to Rossman's Landfill in Oregon City, while Frank's waste material is hauled to the City of Newberg Landfill. St. Johns Landfill in north Portland is also being used, which can meet the need for a few years. However, the metropolitan area lacks a long-term landfill disposal capacity. The Rossman's Landfill is scheduled for closure this summer, for instance. In 1977, MSD adopted a plan for a processing facility where wastes would be separated and the combustible portion burned to generate electricity and also reduce the volume of waste to about one-tenth of its original volume. Toward this goal, a site for a Resource Recover Facility was selected in Oregon City. Because of public opposition to this facility, MSD is now in the process of reviewing feasible alternatives to this facility. With the St. Johns Landfill closing in a few years, MSD has been seeking permits for a new landfill in northwest Multnomah County. With resource recovery operating, the new landfill would last for 25 years. Without the garbage burner, the landfill would be good for about 16 years. Tying the system together will be transfer stations. Metro plan to construct transfer stations at various locations in the region to increase the ( efficiency and economy of the solid waste management system. Transfer \ stations are enclosed facilities where commercial collectors and private citizens can dispose of their garbage, which is then transferred in large Page 22 trucks to either a landfill or resource recovery facility. Transfer stations save energy by reducing trips for garbage collectors. They also provide a convenient place to recycle, each transfer station will have a full-line recycling center as part of the facility. Therefore, they allow for improved landfill management by providing an interim point for directing garbage to the proper disposal site. Initially proposals called for MSD to construct one transfer station on the east side of the region, one on the west side (probably in Washington County); and a limited transfer station on the resource recovery site in Oregon City. This limited station will accept garbage from haulers as well as the general public. When the resource recovery plant opens, the haulers will go directly to that facility and the transfer station will serve only the public. MSD is now in the process of reviewing feasible alternatives to the solid waste disposal issue. 4.1#AWQUALITY FINDING o Within Tigard Planning Area there are no major int source air polluters. o The major sour f air pollution in Tigard is aut ile emissions. o The City of Tig lies within the Fortla ancouver Interstate Air Quality Maintenance (AQMA). This are ''' a described in the draft '{ State Implementation (SIP) for air qu y, published jointly by the Department of Environmen Quality and Metropolitan Service District M' in April, 1979. The draft a Imple ation Plan (SIP) shows that the entire AQMA is in nonattainm for ing the recently revised federal ambient air quality standards ne and is predicted to remain in nonattal.nment to at least 1907 as additlOnal control measures are undertaken. HSD and DEQ are d g a regional control strategy to bring the metropolitan area int, tai by 1987. o In the Portland - Vancouv AQMA, air tion is monitored by and planning efforts coordina. through the olitan Service District (MSD)and the Department nvironment Quality o The draft SIP also p cts nonattainment in 1982 CO (near Highway 99W). The City of and is aware of these potentia pblem areas and will work with MSDbetter quantify the extent of these leets. POLICY NV 4.1.1 THE CI HALL: a. NTAIN AND IMPROVE THE QUALITY OF TIGARD'S AIR QUALITY AND COORDINATE WITH OTHER JURISDICTIONS AND AGENCIES TO REDUCE AIR POLLUTIONS WITHIN THE PORTLAND-VANCOUVER AIR QUALITY MAINTENANCE AREA. (AQMA). -22 y , 1. Page 28 SOURCES Handbook for Environmental Quality Elements of Land Uses Plans, Oregon Department of Environmental Quality, July, 1978. Air Quality Annual Report - 1982, Oregon Department of Environmental Quality, June, 1982. 5 State Air Quality Implementation Plan (SIP), Metropolitan Service District, April, 1979. "Comprehensive Plan Noise Element Guidelines," Oregon Department of Environmental Quality. Water Quality in Oregon - 1980, Oregon Department of Environmental Quality, October 1981. "Comprehensive Resource Document," Washington County Planning Department, 1981. a 1 �J t E F i r MY E c s Comprehensive Plan Report c CITYOFTIFARD WASHINGTON COUt-m.OREWN ADOPTED BY CITY COUNCIL DECEMBER 13,1982 ORDINANCE 82-80 F`m} 1, !INTRODUCTION This report addresses LCDC Statewide Planning Goal #9 requirements titled "Economy of the State." The recommended findings and policies have been developed to blend Tigard's individual economic programs into those of the region and state to meet Goal #9 requirements. The Goal #9 statement reads: "To diversify and improve the economy of the state." "Both state and federal economic plans and policies shall be coordinated by the state with local and regional needs. Plans and policies shall contribute to a stable and healthy economy in all regions of the state. Plans shall be based on inventories of areas suitable for increased economic growth and activity after taking into consideration the health of the current economic base; materials and energy availability; labor market factors; availability of renewable and nonrenewable resources; availability of land, and pollution control requirements. Economic growth and activity in accordance with such plans shall be encouraged in areas that have underutilized human and natural resource capabilities and want increased growth and activity. Alternative sites suitable for economic growth and expansion shall be designated in such plans." The Tigard economy is greatly influenced by economic forces which affect the Portland SMSA, the State of Oregon, and the nation. Although the economy has suffered during the past several years, Tigard has experienced much new ;i •: economic development. Although the residents of the City are dependent upon Portland for job opportunities, Tigard also has exhibited the . ability to survive as a separate economic entity of the SMSA. The steady economic growth " within the City growth boundaries has reinforced the opinion of City officials that Tigard has an opportunity during the next few years to take advantage of its location, highway access, municipal services, and other positive factors µi to attract further economic development. Tigard is prepared to coordinate its economic development efforts with those of -other cities of Washington County, the County, Metropolitan communities, and the State. In addition, the City will take appropriate steps to provide technical assistance to property developers while streamlining the economic development approvalprocess. -x W Economic Development Goal; The goal of the City of Tigard is to improve the economic base of the community by creating a wide range of job opportunities. Further, it is the intent of the City to create stability in the City's economy through diversification. To implement the economic policies of the City stated on pages 12-15; Tigard will work to develop a public/private partnership aimed at maintaining an ongoing economic development program. For success to occur, resources must be identified, compiled, and regularly updated concerning economic activities f underway or planned, available and planned municipal resources, available land, and available financial resources. The City will take a lead to initiate the cooperative effort, n,)wever, for the program to be successful, the business community must be willing to commit resources and time to formulate strategies which reflect the needs of the private enterprises and firms located in Tigard. II. ECONOMIC CONDITIONS The majority of job opportunities in Tigard, Washington County, and the entire Portland SMSA, are available from the private sectors. Therefore, in order to create new, more diversified, and higher paid skilled jobs, the City must focus on stimulating private business development. To accomplish this, the City must identify those firms which either exist presently in Tigard and are suitable for expansion, or could be attracted to Tigard. Given the recent _influx of, so called high technology industries to Washington County, Tigard should concentrate energy toward a continued program to attract some of the associated firms into the City. Success has already occurred in this area and should continue, however, for a truly stable economy Tigard must attract a diversified Wix of ,commercial and industrial uses. The Tigard economic goal is directrd toward creating conditions conducive to promoting business expansion both physical and related to job opportunities, attracting new industries, and assisting private firms to prosper in Tigard. A diversified economy, with a continuing reliance on the high technology industry, within a pro growth_environment properly guarded by municipal officials is the economic goal of Tigard. A. Labor Force Tigard as a part of the Portland SMSA has fared better than the state as a whole or the nation in terms of unemployment and the economy generally. In July 1982, unemployment in the Portland SMSA was 9.5%, the highest rate since 1975, however, the rate is lower than the state rate of 10.7 or the national rate of 9.8. y -2- .. .-,�-' e ,. x,.__x.. xz. .. ,_<'�' ,�s1r'Tr".'°4"'"^ ..8..'-" .___ a5 rwa mW ar.. ^r ;'^^' .err_ .. .,.. ♦. - - TABLE I CITY OF TIGARD PORTLAND SMSA AVERAGE ANNUAL UNEMPLOYMENT AS A PERCENT OF LABOR FORCE Portland Year SMSA 1 Oregon U.S. 1970 6.3% 7.1% 4. 9% 1971 7.1 7.6 5.9 1972 6.4 6.8 5.6 1973 5.4 6.2 4.9 1974 6.2 7.5 5.6 1975 9.5 10.6 8.5 1976 8=7 9.6 7.7 1977 6.8 7.3 7.0 1978 5.2 6.0 6.0 1979 5.4 6.8 5.8 1980 6.2 8.2 7.1 1981 7.9 9.7 7.6 July 1982 9.52 10.7 9.8 1 Includes Clackamas, Multnomah and Washington Counties. 2 Not seasonally adjusted. ..i' From 1971 to 1982 the SMSA experienced a 3.96% annual increase in labor force, from 442,900 to 653,000. During this same time period the percent of workers employed in manufacturing dropped from 21.3% to 19.5% while the percentage of workers employed in nonmanufacturing jobs went down. Meanwhile, 23,000 new manufacturing opportunities came into the area comprising a significant percentage of the new jobs in the SMSA. r, , -3- TABLE II CITY OF TIGARD PORTLAND SMSA EMPLOYMENT - ANNUAL AVERAGES AND PERCENT BY INDUSTRY GROUP 1971-81 Annual Percent Percent Rate of 1971 of Total 1981 of Totall Change CIVILIAN LABOR FORCE 442,900 653,000 +3,96% Labor Force Unemployed 3110 300, 48,100 +4.39 .300 . Percent of Labor Force 0 Unemployed 600,500 +3.85 Total Employgert2 411,600 545,500 +3.52 Non-Agricultural Wage and 385,800 Salary Employees Agricultural Total 8,500 2_2% 7,800 1_4% -0.86% Manufacturing Total 84,000 21.3% 107,700 19.5% +2.525 Durable Goods 53,700 13.6 76,800 13.9 +3.64 Non-Durable Goods 30,300 7.7 30,900 5.6 +0.20 Nun-Manufacturing Total 301,800 76.51. 437,800 79.1% +3.79% Trade 94,100 23.9 141,800 25.6 +4.19 Government 64,200 16.3 81,000 14.6 +2.35 Service and Miscellaneous 70,500 17.8 111,600 20.2 +4,70 Finance. Insurance. 25,100 6.4 45.400 8.2 +6.11 Real Estate Transportation, Communi- 29.900 7.6 36,500 6.6 +2.01 cations and Utilities Construction 18.000 4.6 21,500 3.9 +1.79 labor-Management Disputes 1.0 0.3 TOTAL AGRICULTURAL', weNUFACTURiNiG 394,300 100.0% 553.500 100.0% +3.455 ` AND NON-MANUFACTURING EMPLOYEES 1Percent of Total is based on,total agricultural. manufacturing and non-manufacturing employees. 21ncludes non-agricultural wage and salary. self-employed. unpaid family workers, domestics, agricultural workers and labor disputants. Source: State of Oregon Department of Huaan Resources. Employment Division. i t E -4- B. Population Tigard as a sub-element of the SMSA has undergone a significant increase in population (173.7% since 1970) exceeding that of the State and even Washington County. Population growth would not have occurred without an increase in job opportunities and private development coupled with the annexation of several areas. Some of the most recent trends indicate that Tigard's advantageous highway accessibility, proximity to Portland, the high technology concentration in Washington County, and the quality of life in general will Yy continue to make the City an attractive place for economic growth. The City will continue to grow as a result of annexations which are in process as well as proposed. TABLE Til CERTIFIED POPULATION CITY OF TIGA_RD -1970 TO 1982 YEAR POPULATION % INCREASE OVER PREVIOUS YEAR 1970 6,300 1971 7,065 i2% 1972 7,067 0 1973 7,379 4 1974 9,500 28 1975 10,085 6 1976 10,226 1 1977 11,114 8 1 1978 11.899 7 M, 1979 13,697 15 1980 14,855 8 w 1981 14,690 -1 1982 17,244 17 Source: Center for Population Research and Census, Portland State University. TABLE IV STATE AND COUNTY POPULATION TRENDS % of % of Area 1960 SMSA 1970 SMSA 1980 Oregon 1,768,700 2,091,400 2,633,105 Portland 821,800 1,009,200 1,242,594 Wash. County 92,200 11.2 157,900 15.6 245,808 Clackamas 113,000 13.7 166,100 16.4 241,919 Multnomah 522,800 63.7 556,700 55.2 562,640 Clark 93,800 11.4 127,500 12.8 172,227 Tigard 1,084* .82 6,300 1.4 14,855 * 1961. Source: U.S. Department of Commerce, Bureau of Census. q FA I , C. Residential Location of Workers While an attempt can be made to achieve a balance between job opportunities and job requirements at a local level, there is no strong evidence that residential location choices are determined in relationship to distance from the place of employment. In fact, throughout the SMSA, work locations became more dispersed between 1960 and 1970, with a greater percentage of each county's residents finding work outside their resident county. The majority of Washington County residents working outside of the county in 1978 were empioyed in Multnomah County (16A) with 18% of the employed residents of Multnomah County working in Washington County. The 1981 Community ;reds ,Assessment prepared by Washington County indicates that somewhere between 48 and 60% of Tigard workers commute to work outside of Washington County. Most of these workers commute north to Portland. The evidence is clear that employment structures within the entire metropolitan area are interrela[ed. Therefore, the placement of new L industry/commerce within any jurisdiction can affect residents of other jurisdictions in the area. Because of the regional nature of employment the adequacy of job opportunities within the region is the critical issue and not employment within any single jurisdiction. The relationship of employment to housing is a slightly different issue. Wages earned determine the affordable price range of housing (generally considered by HUD to be 25% of monthly income). Therefore, the availability of housing at various price ranges within any given area will determine/or limit the locational choices available to workers in each wage earning category. D. Income t Income, analyzed in terms of dollar amounts and source, provides evidence of economic well-being and diversification. F The median family income for Tigard in 1980 was $22,293, less than that of Washington County, but more than the state average. Almost sixty percent of the families in Tigard had a 1980 annual income above $20,000. f TABLE V CITY OF TIGARD WASHINGTON COUNTY INCOME ESTIMATES Family Income Characteristics Income No. of Families % of Families Less than $ 5,000 165 4.1 $ 5,000 - $10,000 352 8.8 $10,000 - $15.000 450 11.3 $15,000 - $20,000 659 16.5 $20,000 - $25,000 732 18.3 $25,000 - $35,000 877 22.0 boc _ ban $ 0 00 nn �v 512 13.6 $50'000 - over 216 5.4 3,993 100.0 Median Familv Income - $22,293 Mean Family Income - $25,034 Source: University of Oregon Bureau of Government Research. r �v (Most Recent Figures Available) t4 I' Washington State of Year County Oregon U.S. TOTAL PERSONAL INCOME (in millions) 1979 $ 2,280 $22,460 $1,927,005 � PER CAPITA INCOMEI 1979 $10,108 $ 8,887 $ 8,757 MEDIAN FAMILY INCOME 1980 $26,486 $20,952 N/A f MEDIAN HOUSEHOLD EFFECTIVE BUYING INCOME E 1980 $23,284 $17,162 N/A l According to he U.S. Department of Commerce, Bureau of the Census, 1977 per capita money estimates for counties and incorporated laces in Oregon, rhe ( City of Tigard had an estimated 1977 per capita income of $6,995. Source: U.S. Department of Commerce, Bureau of Economic Analysis, Survey of Current Business. State of Oregon Department of Commerce, Housing Division. ' Sales .and Marketing Management, Survey of Current Business. -8- . k s_ i III. RECENT DEVELOPMENT TRENDS From 1970 to 1980 Tigard underwent a change from a rural community to a suburban community with a strong economic base. The major factors are location and the accessibility to transportation. It is anticipated that recent trends will continue as the available buildable land becomes utilized in response to increasing economic pressures. Tigard intends to channel growth, through its land use and public facility construction policies, in a manner which makes the best use of the remaining acreage while promoting the expansion of job opportunities to meet the needs of a growth population. l A. Buildable Lands f A vacant buildable land inventory was completed for Tigard in September of 1981. It was found that 176.72 acres of commercial land was available as follows: C-3 32.55 C-4 42.32 C-5 12.90 C-P 88.95 i F An additional 277.57 acres of industrial land was identified: M-2 5 70 : M-3 131.40 ■ M-4 140.47 In total, vacant-buildable commercial and industrial land comprised 32.07% of the 1,416.97 vacant-buildable acres inventoried. The bulk of the commercial and industrial land is located within those areas of the City with best access to I-5 and Hwy. 21.7 making these parcels more attractive to potential developers. These parcels are attractive because of their proximity to similar land uses, transportation systems, and the availability of public facilities. The corridor between Hwy. 217 and the Oregon Electric Railroad tracks as well as the Tigard Triangle, that area contained by Pacific Highway, I-5 and Hwy. 217, are zoned for business uses and have undergone significant economic developments in recent years. With provision of public facilities in the next several years, the major industrial and commercial office development will : F take place here. t' Commercial shopping development will occur along Pacific Highway on land zoned j commercial which is closer =n proximity to residential development than the 1h4ghway oriented sites. Tigard's location in relation to the region will I dictate that the locations along either side of Hwy. 217 will be developed for industry and offices providing employment opportunities for the region as a whole. Ultimately, individual development decisions will be made on the basis of site availability, adequacy of a site for a particular purpose in terms of size and 9 i LARGE VACANT BUILDABLE LAND AREAS :+ PROPOSED DEVELOPMENT DISTRICT DESIGNATIONS O�.......... a +0 ry IA + r 7 .1 ��••� t � .JPO 'Oo � T `r{� ' _. •�i � 4� ,, � /,Jam•' v,°!" •�"" •`J• • l]C I® r0 E ti zr e ! � vl —10— E i 1 shape, municipal development standards governing the land, topographic `i features, availability and capacity of utilities, as well as access to highway and proximity to uses of a similar nature. These geographical considerations will be evaluated along with the psychological factors and economic features which are evaluated by individual business concerns. B. City Commercial Development Rapid population growth between 1970 and 1980 changed the complexion of the City from a rural community to a growing suburban community and created a rapidly expanding demand for goods and services. Trade patterns followed the major highways through the City, developing commercial zones along the highways and other major arterial streets. City residents rely not only on commercial concerns within Tigard to meet their needs. Regional and local facilities located in Beaverton, Lake Oswego, and unincorporated county areas, as well as Portland; meet specific buying needs of Tigard residents. Of particular note are Washington Square and Kruse Way which provide shopping opportunities which attract consumers from Tigard and other communities. These facilities will continue to meet special shopping needs of Tigard residents. According to the 1980 Update of Washington County's Overall Economic Development Plan (OEDP), the supply of vacant commercial land in Tigard is adequate for the time being. If the current economic recession ends and development begins, the City may have a shortage of commercial land in a short ' time. The supply of developed commercial space is low but it is expected that s the supply will catch up with needs before long. Commercial activity has developed in a strip along State Highway 99W (Pacific Highway), with increasing development along Highway 217 and Hall Boulevard. This includes eating and drinking establishments, general retail and numerous individual businesses. Commercial and professional office development is i increasing along Pacific Highway and in the triangle formed by Pacific Highway, Highway 217 and interstate 5. s Washington Square, one of the metropolitan area's three major regional shopping centers, is located on the northern boundary of the City just outside the City limits. Plans are currently under way for a major expansion; and a medium-rise office building is planned, with another of equal size to be built in the future. When these expansions are completed, they will provide approximately 425 to 500 new jobs in the area, in addition to the 4 approximately 2,000 jobs already located at the center. Facilities such as Washington Square and the Kruse Way corridor represent the type of development which assists the City to develop a stronger image of economic vitality which is so vital to attracting new economic development. Shopping opportunities represent one of the factors which make up the quality of life attributed to an area. i C. City Industrial Development As industrial land in Portland has ,become increasingly scarce and costly, the greater supply of industrially zoned land in the Tigard area has attracted a variety of manufacturing firms. Major manufacturing employers in the City include both heavy and light industry. New developments include mostly light industry. { t i Industrial development in the City is concentrated west of Interstate 5, along the Burlington Northern and Southern Pacific railroad tracks, and along Southwest 72nd Avenue south of Highway 217. Tigard has attracted some major development during the last few years which, like Washington Square on the commercial development side, acts as a magnet to other similar or associated industries which follow the trends of major firms. Business parks such as those developed at 72nd Avenue and Upper Boones Ferry Road and at Scholls Ferry Road and Highway 217 are sources of encouragement for TigarV s economy. With an estimated 277 acres of buildable industrial land located close to I-5, similar parks which are great assets to the community should be developed in the next few years. - D. Transportation Tigard is located adjacent to the major highways on the western boundary of metropolitan Portland including Interstate 5, Highway 217 and Highway 99W (Pacific Highwry). The bulk of the buildable land remains along I-5 which should be attractive to economic development. Figure 4-1, adopted from the Regional Transportation Plan prepared by Metro illustrates the existing and proposed principal routes and major arterials. Street patterns have developed on a rural base, resulting in some inconvenience and congestion. Highway 99W passes through downtown Tigard and serves as a major thoroughfare. Heavy conges '. n through the City has been relieved with new signals and site design. In the urban parts of Washington County, about 84 percent of all daily trips are made in private autos, according to the Washington County Draft Comprehensive Plan. Only 2.5 percent are made by public transit. Tri-Met, the regional public transit agency, has improved service in the area and plans to continue to do so, with the addition of a transit center in Tigard, a ' beltline route for intra-county travel (that is, suburb-to-suburb), and a light rail system (now in the conceptual stage). The agency is looking for new sources of funding, with an emphasis on local sources. increased use of public transit is expected to relieve some of the traffic congestion. Rail service is provided to Tigard by Burlington Northern Railroad and �oelthern Pacific Railroad while air service is provided by the Port of Portland, which operates the Portland International Airport, 17 miles northeast of Tigard in Portland. This airport is served by eight scheduled - airlines. The Port also operates a general aviation airport approximately 15 miles south of Tigard at Aurora and 14 miles northwest of Tigard at Hillsboro. The Port of Portland maintains shipping facilities on the Willamette River which is 12 miles from the City of Tigard. E. Public Facilities Water is provided to the City from the Tigard Water District and the Metzger Water District. Tigard Water District draws its supply from the Clackamas River and the Bull Run Reservoir. The system and supply are adequate to the year 2000, according to the district's manager. The water source for Metzger Water District is also Buil Run Reservoir. Vm LL co ` �i % �! , e � \ � :s`C'"; "�Com. �;; /• � - )' ■ ul cc C4 04 cm lu i N N 1 ,.. I CL § co 0 E^, J � 20 a =V-0 w a qq�� •Z.0 C 0�0 ot� �,� ✓ a a i a f � A policy of the City contained in the Pubi.ic Facilities and Services element requires that as a precondition to development a site must be served by a water system having adequate water pressure for fire protection purposes and the development shall not reduce the water pressure in the area below a level adequate for fire protection purposes. Sewer service is provided by the Unified Sewerage Agency (USA) which treats sewage at the Durham Treatment plant. The City of Tigard owns and maintains the collection system. The treatment facility as constituted, according to USA, has adequate facilities for an additional 19,000 residential hookups, or the equivalent. USA also projects that it will be necessary to create additional capacity within five to ten years. Presently, the City does require that all new development be connected to a sanitary sewer service. In order that growth may occur in a rational manner, the City has taken steps to anticipate growth and provide necessary services to areas which are prime for development. The City also encourages the use of local improvement districts to fund the public improvements needed by a business choosing to locate on a vacant parcel of land. Coordination is necessary in order that delay is minimized when a potential development project surfaces. Other public and private facilities such as fire protection, police protection, health care, educational facilities such as Portland Community College, and utilities are available to the citizens of Tigard. Energy is still plentiful and relatively inexpensive, as it is throughout the Pacific Northwest. Eventually, however, demand is projected to exceed supply as population and industry continue to grow. Recent projections indicate that energy deficits will not occur until the late 1990's To prepare for the future, a regional power planning council was created to develop a regional load forecast to determine the amount of power needed to meet the requirements of the Oregon, Washington, Idaho, and Montana region. Overall, adequate Public facilities, mostly with a long economic life, are available to industries choosing to move to Tigard. Coupled with the availability of sewer, the City will encourage growth through its land use policies by streamlining the development process to prevent unnecessary delays in the process to obtain permits for construction. The City is aware, however, that,new and expanded public facilities will be required to open new areas up for commercial and industrial uses. By the creation and implementation of a capital improvements program, the City will work to anticipate and plan for the optimumeconomic use of the remaining land in Tigard. FINDINGS Through a +sr he ec_onomic conditions which , the existing make up of the commun tial fo the City's interest in assisting existing and new busin d in and relocate to Tigard, the following findings were identr o The Ci and is a sub-element of the Portland metrop -14- "- 15. The City sha '.work with Portland Community College to deve;, raining programs as aircentive to new industries locating in Ti needing a trained labor fog 1 , 16. The City shall coo' ,inate its planning efforts the Metropolitan Service District andI .. Oregon Department of sportation to ensure adequate access from m ` arterial routes esignated commercial and Lnuuo�t issi a%cno. .- ' � designate types of permitted 17. The Tigard Community Develop m , Cod 1"a1 = residential development in C-N, CBD commercial districts. 18. The City shall encourage f r vate ndowners to consider utilizing available bonding methods�a' addition private financing methods, to provide public facilit''" to vancant bui a lands with the potential for industrial or co cial development. 19. The City shcq not preclude any finance mechanism for the implementatio of its economic development objectives 20. The Ci Council, upon the recommendation of its Eco for Comm' ee, shall develop objectives, criteria, and ards for d ining its its of bonding methods and use of b roc, private, commercial and industrial development. r i IV. ACTION PLAN To carry out the various implementation strategies formulated to address the City policies, Tigard will undertake an economic development program. The ; program will operate at two levels: 1) at the local level Fihere City staff and business representatives will sit as a steering committee to formulate and , carry out activities and 2) at the cvu:¢i:ywide level through participation in a Regional Task Force on Economic Growth. While interacting with community and countywide representatives to create a plan, the City will assemble and maintain an uvc.. .. ory l . of and available for commercial or industrial use. The I. ..,�, - ll be available to those firms and individuals seeking to inventory then wi expand or locate in Tigard. Action Steps City Economic Development Plan - The Planning and Development Department will coordinate the City's effort to create an overall economic development strategy for Tigard. Recent consolidation of the planning functions with building and code administration gives the City the opportunity to prepare strategies for economic development while also administering the various processes which developers must deal with in Tigard. As a result, the department is in a unique position where it is responsible for promoting economic development while also requiring that all development comply with the comprehensive plan and zoning as well as applicable building and code standards. The situation should allow for prompt recognition by the department personnel of existing procedures which may deter economic development. The interplay of personnel from the Planning Division and the Building and Code Division should result in a continually evolving modified development process with a shorter approval period without the sacrifice of community standards. -18- , j Staff from the Planning and Development Department will provide technical I assistance to an economic development steering committee in Tigard. The t committee will be made up of city staff, local business people, and representatives of the various facets of the economic community. Following is a tentative list of possible representatives: 1. City Administrator I 2, City Public Works Director f 3. City Planning and Development Director 4. City Council Representative 5. Planning Commission Representative 6. Tigard Urban Renewal Advisory Committee Chairman 7' T.''.b._.rd Chamber o f Commer_c Pr r •� - Chamber iii Vii:wi:c L�:�:. r: .:.idc:2t �. S. Tigard Chamber of Commerce Manager 9. Representative of a Primary Industry 10. Representative of a Secondary Industry 11. Representative of a Service Industry, perhaps High Tech 12. Real Estate Representative 13. Banking Representative 14. Business Park Manager 15. Education Representative 16. Job Training Representative 17. Retail Merchant 18. Commercial/Private Property Owner k From this group, an executive committee of perhaps seven individuals will be chosen to direct the effort to develop a strategy. The two groups will then develop strategies and begin to assist staff in identifying the type, source, and extent of data which will be maintained in a central place describing land and buildings available. At a minimum, all parcels of land zoned for commercial or industrial use will be inventoried with the following information provided: (` a) Identification of the property; b) The size, shape, and limitations of the site; c) The use of the land; d) identification of buildings on the site- e) The name of the owner; f) The current zoning designation; g) The assessed value; h) The public services available to the site; i) Any known interest on the part of the owner to sell or lease the property; and j) Proximity to other similarly usable land. Once the inventory is in place, the City will aggressively make information concerning the attractiveness of Tigard for a business location available to interested groups and individuals. A marketing plan complete with a marketing brochure and fact sheets about Tigard will be prepared and circulated. A city sponsored committee made up of public and private sector representatives will be responsible for coordinating an outreach effort which coincides with {� attempts to encourage existing businesses in Tigard to expand. 19 22, deVelopment program is to create a program f The overall goal of lite economic which is compatible with the potential and constraints of the City. With this in mind the committee will work to arrive at decisions which will affect the business community by: a) Aiding in the creation and maintenance of new and continuous employment opportunities to afford City residents the choice of working within the City; 4 b) Striving to improve, diversify and stabilize the economic base of the commun-iity, thus reduci.:p the tax burden of the residential property owner; c) Aiding in the effective utilization of the land, energy and human 4 r resources; and ent of all public facilities and services d) Ensuring the timely developmf and their delivery systems. The committee will also identify particular needs for trained personnel and work to develop programs to provide such employees. Job training s such as Portland Coo organizations as well as educational institution � I setting process. College will be contacted and involved in the goa Particular attention will be paid to developing programs to meet the occupational needs of unemployed and underemployed individuals particularly those who are disadvantaged. - The City of Tigard will participate in the Regional Task Force ue Economic Growth crea Regional Plan { Re ted by the City of Beaverton. This committee, of representatives of twelve Washington County communities, BnQ objectivesn ongoing basis to coordinate local economic development p ro ram A common inventory/data base will be developed and a common attraction p such a instituted. Tigard recognizes the advantage of participating in regional strategy both from a standpoint of greater exposure to potential businesses. but also because Tigard realizes that successful economic + ll have a positive effect on I development in other Washington County cities ai Tigard. For instance, a new industry which locates in Beaverton can create jobs thatpeoplefrom Tigard obtain, or, the industry may create the need for other related industries or those that serve the prime industry. Such has been the case over the years as Tektronix has not only expanded its operation t its presence has attracted many similar in the Washington County area, bu facilities. . The central goal of the regional program is to provide for an exchange of ideas and resources so that the participating cities may work together to attract businesses which will be mutually advantageous in terms of jobs, taxes, and stimulation of the economy. The cities will work together rather than compete against one another for new industries. Tigard will also work closely with METRO, Port of Portland, and other regional groups which may provide information and resources which are useful to Tigardes economic development efforts. } -20- r r T.U.R.A. - Tigard in 1980 appointed a Downtown Tigard Committee to begin a study of the need for revitalization of the central business district. Out of this group grew a concern that a study be undertaken concerning potential funding for renewal activity, the boundaries of the study area, types of land uses which should be encouraged, and the public facilities needed. Eventually, on October 12, 1981, the Tigard City Council created the Tigard Urban Renewal Agency charging the body with the responsibility of coordinating the renewal effort to make the commercial business area viable again. This agency is composed of the members of the City Council. To advise the agency, called T.U.R.A., the Council then designated the Downtown Tigard Committee as an-g the problem of the the T.U.R.A. Advisory wuuaiLiea to caro'G �.• . .: o T.U.R.A. area and to help formulate solutions. In 1981 the City Council approved the Downtown Tigard Revitalization Plan and Report with the goal that economic growth and revitalization take place in the areP defined as the downtown commercial district. To fund the cost of public improvement in the designated area, it is proposed that tax increment financing be used. Funds for such a purpose would be raised from increases in the value of private property in the area from the base year of 1981. 17he Tigard City Council has asked that an advisory vote be taken to determine if, in part, the voters of Tigard favor such a proposal and method of financing. The advisory vote, or an advisory survey, will be completed by December, 1982. It is vital to the City of Tigard that the downtown business area become a major commercial center again. As Tigard has grown dramatically over the past decade, the downtown has been neglected. A need now exists for the area to become a focal point of economic activity with a better use of land a paramount goal. The T.U.R.A. Advisory Committee has recommended that a special Central Business District (CBD) zoning district be established which will limit the uses allowed in the zoning district to commercial and residential. Although this will result in several businesses becoming nonconforming uses, the overall purpose of the zoning district will be served. Over a period of years the character of the downtown area will change E sufficiently to again make the area a commercial center which also houses the fC v c�=cnta go ..i Y.iY6....aL off.cEs of t.�c c vu""au iiitity: The City will also encourage high density residential development in the CBD. The CBD zoning district will allow high density development as well as mixed uses, that is, residential development above first floor commercial uses. The mix of residential and commercial use will provide the proper character for a suburban commercial downtown. Tigard intends to create a downtown with the proper mix of retail, professional offices, civic, and residential uses to make the downtown an economically viable core area without sacrificing community standards. Some community standards will be revised for the revitalization area only to encourage more innovative land use. Flexible standards will be administered within a program of proposal review by T.U.R.A. to insure compliance of T.U.R.A. area development proposals with the revitalization plan. In order that the downtown revitalization plan is successful, tree City will channel public resources, as available, to make improvements to the core. A proposed civic center was rejected by voters in 1982. It is expected that a modified proposal either for acquisition or lease of expanded office, library, and shop space will be pursued during the coming years. As Tigard continues I -21- to grow' the rbsponsibility for providing. urban services results in a need for additional cunicipal personnel. Tigard's efforts to respond to this need with satisfactory municipal facilities will be directed into the downtown area. This commitment should provide some impetus to private commercial development. Already a major shopping center is planned for the CBD which itself should spark further revitalization in the form of rehabilitation of existing structures and construction of new commercial facilities. The City through its economic development program will focus on promoting the downtown area. of prime importance is the City's commitment to provide iia�:cutivco to cab.+:6 busineeeee in the area to uverade and expand. A solid base now exists which given assistance through public investments, namely resolution of traffic problems, creation of new parking facilities, and better maintenance of public facilities should be receptive to improvement: Municipal Codes - Within the Tigard Community Development Code modifications have been made to existing processes to streamline development application periods, to provide flexibility in some land use areas, and to allow for maximum economic use of land. These changes have been proposed, however, only after protections have been built in for the environment as well as existing uses and residential neighborhoods. Since Tigard has experienced steady economic growth during a period of nationwide economic stagnation, the City is not forced into a compromising position where it must accept economic development at all cost. Rather, the City is in a position where it recognizes the need for encouraging economic development, but. only ,while maintaining the high standards which have made Tigard an attractive place for ,A new economic growth. As Tigard_continues to grow economically filling up the vacant spaces which x remain, the City will continue to preserve the integrity of residential neighborhoods. Steps will be taken to continue City policy of buffering commercial and industrial areas from residential. Existing restrictions and standards have proven to be adequate. The City will maintain the development ;< codes which describe standards for landscaping and 'buffering between residential and other uses. Encroachment of commercial and industrial uses into residential areas will be prohibited as the City will protect existing neighborhoods. -22- ' c r r lu s•®wommoftow wam I Comprehensive Flan Report C1'!1f T1fARd r V4kSH aim,OREGON ADOPTED BY CITY COUNCIL JANUARY 26, `1983 ORDINANCE NO. 83-05 I(( I r 1- 1. INTRODUCTION The initial framework planning for Tigard's housing needs was established in 1977 with Tigard's Housing Plan. Since that initial report, there has been a need to update that data in order to provide a comprehensive overview of Tigard's housing supply and need. The housing study you are about to read had its general direction and intent formed on a statewide level by the Land Conservation and Development Commission (LCDC) Goal #10: Housing. More importantly, however, this housing study represents the community of Tigard and its housing heeds as the community grows towards the year 2000. This housing study is only part of the comprehensive planning process for the City of Tigard. It describes and analyses all of the housing characteristics in Tigard concerning actual and projected housing conditions. Following the introduction, this study reviews the supply demand, housing costs and projected need for housing in the Tigard planning area and its relationship to the overall regional housing need of Portland metropolitan area. In addition, this report suggests necessary policies and implementation strategies that will be used to implement the City's housing plan. Before proceeding to the data analysis of this study, it is useful to clarify the basic housing issue that confronts Tigard. In the 1960's Tigard was considered a "rural" or "small town" community. However, between 1970 and 1980 Tigard grew 2 1/2 times to become the fourteenth largest city in Oregon. During the 1970's the livability and economic stability of Tigard was - maintained, and it is the intent of this Housing Element and the entire Comprehensive Plan to continue to maintain this livability throughout the Tigard community. Given its proximity to Portland it is assumed that Tigard will continue to grow during the planning period (1980 —2000)• It is also assumed that the actual growth rata during «,e planning period may fluctuate given market conditions, housing supply and demand, and availability of financing. All levels of government with some authority in the Tigard area identify housing as a necessary element which must be addressed in effective ways. At the state level, the housing goal nearly formalizes goals and objectives already recognized in the 1971 Tigard Community Plan and NPO (Neighborhood Planning organization) plans. The various residential densities "intend to provide a variety of living environments while providing for the housing needs of different family size and incomes." Regardless of any state or regional planning goals, Tigard needs to establish -a local planning effort which adequately meets the diverse needs of all households wishing to reside in Tigard. Upper income and upper-middle income households generally have little difficulty finding the kind of dwelling they can afford, but middle income and lower income households face a serious 'problem in locating the type of dwelling which they need and can afford. E, i 4' -1- �: The question' of how to provide a sufficient supply of diverse housing at reasonable prices, while protecting the basic character of the community, is also relevant to residents who may have no housing problem of their own at the moment. In the absence of appropriate plans for housing, for example, middle-aged couples today may find it difficult to continue to live in the community when they become senior citizens, because their housing needs and financial capabilities are very different. Families with teenagers should also realize that, without proper planning, their children may not be able to live in the community when they are out making their own way in the world. i E NGS, POLICIES, AND IMPLEMENTATION STRATEGIES This tion reviews the problems related to housing an/hesh policie hick suggest to the community ways to allevi { problems. . 6.1 HOUSING S f FINDINGS o The residential ing in Tigard has been developedfamily detached d 'ngs, 42.7% attached units, andp homes. c The Y MetropolitanP Housin ' le adopted b thq, Land Conservation and Development Commission sta that Tigerd mu, rovide for 50 percent single family and at least 5 cent singl amily attached or multiple ' family units with a minimum o units,, o the net acre. The Metro ; Housing Rule applies to only vasa ui le land within Tigard's Urban Planning Area, and does not affect ished and developed residential areas. ` o The rapid increase in housing an and co ver the last several years has excluded many households fro btaining s ble housing to meet their needs. o Many of the households t�i`f do not desire or ` unable to afford conventional single family etached dwellings rely on rental market or attached dwellings to me their housing needs. o The rapidly changing. using market will require the City , eriodically to reevaluate its h 'sing and land use objectives to provide variety of housing types densities to meet the needs of future resid o Approximately percent of the households in Tigard are inhabit by senior citiz s. o Undue co entrations of public assisted or subsidized housing serves t isolat the recipients of such housing from the mainstream of the comm ty, its full range of basic services and the diversity of its ne.' ` orhoods. For this reason, the City should take steps to disperse housing within individual neighborhoods and throughout the City self. -2- z- \,. 6•� AREAS POLICY 6.6.1 THE\BUFPG REQUIRE: a. BETWEEN DIFFERENT TYPES OF LAND USES (FOR EGLE FAMILY RESIDENTIAL AND MULTIPLE FAMILY RESI AL ..,,. nwcD11TA ngFS AND RESIDENTIAL AND I RIAL AND RES 1 'TIAL AN—w CORm— USES) AND FOLLOWING FACTORS SHALL BE CONSIDERED IN WING THE TYPE A TENT OF THE REQUIRED BUFFER: 1. THE PURPO F THE BUFFER, FOR EXAMPLE ECREASE NOISE LEVELS, ABS AIR POLLUTION, FILTER DU R TO PROVIDE A �. VISUAL BARRIE 2. THE SIZE OF THE B NEEDED IN T OF WIDTH AND HEIGHT TO ACHIEVE THE PURPOSE. 3. THE DIRECTION(S) FROM W RING IS NEEDED. (, 4. THE REQUIRED DENSITY OF ERING. .r* 5. WHETHER THE VIEWER ATIONAR MOBILE. b. ON SITE SCREENING UCH THINGS AS S , E AREAS AND FACILITIES, STORAGEAREAS ING LOTS, AND THE WING FACTORS SHALL BE CONSIDERED IN INING THE TYPE AND EX Ki T'ciE SCREENING: 1. WHAT TO BE SCREENED. 2. RECTION FROM WHICH IT IS NEEDED. 1 3 OW DENSE THE SCREEN NEEDS TO BE. WHETHER THE VIEWER IS STATIONARY OR MOBILE. 5. WHETHER THE SCREENING NEEDS TO BE YEAR ROUND. CHAPTER I HOUSING SUPPLY x INTRODUCTION This chapter describes the existing conditions of the Tigard housing stock. It also notes the trends and forces affecting Tigard's local housing market. —9— s • 1. The focus of 'the analysis is on the . important variables that affect housing supply: the housing 'type, quantity, age, condition, and tenure. This information will be used later in this report to forecast future housing demands and needs. 1. There are 6112 existing dwelling units in Tigard: 55.6% are single j family units; 42.7% are multil.le family units; and 1.7% are mobile t homes. During the period between 1975 and 1979, there was a consistent trend L. L4ia«� p__�..� L'��..__.._ 9 { towards higher percentages of multiple family units. Due to the lack of financing for non-owner occupied multiple family units, this trend has been significantly reversed since 1979. 3. In Tigard 50.5% of the dwelling units are owner occupied, 43.0% are ` renter occupied, and the remaining units are considered vacant. 4. Approximate vacancy rates for the Tigard area are similar to other metropolitan communities: 4.0% for single family, 6.0% for multiple family, and 1.0% for mobile home parks within Tigard. 5. The City's housing stock is relatively new: 79% of the dwelling units in Tigard have been constructed since 1960, and only 2% of the dwelling units were constructed prior to 1940. Generally, the City's housing stock is in good condition. qP NUMBER AND TYPE OF HOUSING UNITS Table I shows the number of housing units within the City of Tigard. The source of this data is the 1980 Census conducted by the Federal Government. TABLE I-1 QUANTITY AND MIX OF DWELLING UNITS - 1980 Number Percent of Total Total Dwelling Unite 6112 100.OX Single Family 3398 55.6% Multiple Family 2608 42.7% Mobile Home 106 1.7% Source: 1980 Census Of the 6112 total dwelling units within the City limits, approximately 55 percent are single family unite, 43 percent are multiple-family units and 2 percent are mobile homes. x E -10- h Table 2 indicates the quantity and type of housing units for 1970 and 1980. TABLE I-2 QUANTITY AND TYPE OF DWELLING UNITS 1970 Percentage 1980 Percentage Total Dwelling Units 2092 100.0X 6112 100.0X Single Family 1001 47.9% 3398 55.6% Multiple Family 1040 50.0% 2608 41.7% Mobile ibme 51 2.1% 106 1.7% Source: 1970 & 1980 Census Table 3 shows building permits issued from 1975 to 1980. It also indicates that multiple family units are more likely to be constructed during periods of greater overall housing ccnstruction, and their relative proportion of housing units tends to be lower during periods of lower housing production. TABLE I-3 BUILDING PERMITS 1975-1980 YEAR SINGLE FAMILY PERCENTAGE MULTIPLE FAMILY PERCENTAGE TOTAL } 1975 179 54% 148 46% 327 1976 485 79% 126 21% 611 1977 347 64% 142 36% 539 1978 322 55% 261 45% 583 1979 241 45% 292 55% 533 1980 229 76% 71 24% 300 Source: Monthly Building Permits Reports, City of Tigard ,y Wii 4, -11- OWNER-RENTER SPLIT Table 4 shows the recent trend in the owner-renter split (tenure) for the City of Tigard. The percent of homeowners in Tigard has consistently increased since 1975. Despite increasing costs of housing in recent years and the changing character of families and households, there is still a strong preference for the single-family detached home. TABLE I-4 TENURE CHARACTERISTICS 1970 Percentage 1980 Percentage wwiaer vc cal pied OLV 4$./b .AVO/ 50.lie Renter Occupied 1000 55.3% 2629 43.0% Vacant 282 13.4% 394 6.5% i Total 2092 5716 Source: 1970 & 1980 Census I t s Owner-occupied multiple-family housing has also increased since 1978. Typical owner-occupied multiple-family dwelling types are referred to as condominiums or townhouses_ It should be noted that condominiums are a type of ownership arrangement; that being the air space inside the structure while the remainder of the site and structure are owned in common by all of the residents. A condominium member may own a single-family type house, like a ' townhouse or duplex, or may own a multiple-family type unit. The major problem associated with condominiums arises from the fact that often existing multiple-family complexes generally used by renters ( some low and moderate income) are converted to owner-occupied condominiums. This may involve the displacement of renters that would otherwise not be able to afford to purchase a condominium or higher priced rental units. Currently, about 11 percent (296 units)* of the multiple-family units in Tigard is converted to owner-occupied condominiums. (*Source: Oregon Dept. of Commerce-Real Estate Division) Compared with other municipalities, Tigard's conversion situation is minor. If the situation became rampant, it would be clear that the multiple-family units may be eliminated, which may further eliminate housing choice for many Tigard residents. In 1976 the Summerfield development introduced the first single-family attached townhouses into the Tigard housing market. Although townhouses represent a small proportion of -Tigard's owner-occupied units, it is anticipated that this type of home ownership will increase in demand; especially as land costs continue to increase. # C -12- VACANCY RATES The actual proportion of housing units which are unoccupied is very difficult to estimate accurately. The census count is most accurate but is available only at ten-year increments. Other methods of assessing vacancy rates are less exact and have characteristic shortcomings. For multiple-family (mainly apartment) vacancy rates, surveys of manager are useful in that they can be conducted relatively easily and may therefore be most up-to-date. • ,�:2ver, there may be a bias in such surveys toward underestimation of vacancies by apartment managers desiring to report that i d business is better than it really is. } The two vacancy surveys that the City of Tigard has relied on in conducting f the City's housing needs are the Postal Survey and PGE (Portland General Electric) Survey. i The Postal vacancy surveys sponsored by HUD and conducted by the US Postal Survey report consistently lower vacancy rates than other periodic surveys. Depending upon how well the postman knows the route, this survey can count as vacant those units where residents are actually on vacation. On the other hand, soexe dwellings which are vacant may not be counted if they are rental units at which the owner receives mail. The PGE vacancy surveys, based on units using more than 10 KWH of electricity per month produce rates consistently higher than the actual figure. For one thing, they include units under construction as vacant. When electricity is ` cut off by the company for nonpayment of bills, the dwelling is still listed as vacant. Also, residents on vacation have their dwellings counted as vacant. Actual vacancy rates probably lie between the figures estimated by PGE and the Postal Service. Table I-5 indicates both PGE and Postal Service vacancy rates. TABLE I-5 HOUSING VACANCY RATES, 1980 Postal Survey PGE Survey Single-Family 0.8% 4.3X 1 Multiple-Family 4.8% 6.1% Mobile Home 1.1% 4.0% The US Department of Housing and Urban Development (HUD), in its publication ' The Urban Housing Market Analysis Etar.ual, indicates that in growing areas a healthy vacancy rate, one that will provide flexibility and choice to consumers, ought to be 3 percent for single-family units and 6 percent for multiple-family units. i -13- Table I-6 offbrs a recent historical comparison of vacancy rates in Tigard. TABLE I-6 TIGARD VACANCY RATES Date Source Single-Family Multiple-Family Mobile Homes April 1970 US Census .3 12.2* N/A October 1975 P-Ontal Survey 1.1 2.0 , iv/tt ' April 1980 US Census 3.7 9.1* N/A January 1962 Postal Service 0.8 4.8 1.1 January 1982 PGE 4.3 6.1 4.0 Sources: 1970 & 1980 Census, Portland General Electric and US Postal Service. *These figures are based on tenure and not the housing type. ( AGE OF HOUSING Table I-7 indicates the age of Tigard's housing stock through 1980. During the 1970's approximately 54 percent of Tigard's housing stock was constructed, and 79 percent of the total housing stock wasbuiltbetween 1960 & 1980. These would tend to indicate that Tigard's housing stock is relativalo -new and in relatively good condition. , TABLE I-7 AGE OF HOUSING STOCK Year Structure Built Number of Units Percent of Units 1979-1980 489 1975-19788% 1895 31% 1970-1974 917 15X 1960--1969 1528 25% 1950-1959 550 % 1940-1949 9 244 4% 1939 or earlier 122 2% Unknown - 6% Source: Citizen Needs Assessment Survey of Washington County, 1980. i i ' fr a3 14 ry HOUSING CONDITIONS AND QUALITY Another measure of reviewing the quali`9 of Tigard's housing stock is by looking at various deficiencies within each dwelling unit; for instance: plumbing, electrical, heating and roofing. Table I-8 uses the Citizens Needs Assessment Survey (1980) to evaluate structural and mechanical repairs. Table I-9 indicates the type of number of repairs that were completed in Tigard during 1979-80. TABLE h8 REPAIRS NEEDED FOR DWELLINGS IN TIGARD, 1980 Need Wait Need This Until Don't Don't Item Now Year Next Year Need Know Flood Repairs 2% 3% 4% 90% 2% Roof Repairs 2% 5% 5% 83% 5% Exterior Painting 3% 12% 19% 65% 1% Foundation/Basement Repairs 1% 2% 2% 90% 6% Electrical Repairs 1% 2% 2% 90% 4% Plumbing Repairs 2% 6% 4% 85% 4% Repairs To Walls 2% 1% 2% 93% 2% Repairs To Heating System 1% 2% 2% 92% 3% Interior Painting 2% 12% 16% 68% 1% Chimney Repairs 1% 1% 1% 91% 6% ,.4 x Source: Citizen Needs Assessment Survey of Washington County, 1580. s , 73, v, -15- 1. we a40 00 00 at 00 n 00 40 n d• t O Y c S J SJ J r J J N co ~ In f44 N K 03 k 1 O O v0► Vt rt M rl e-1 Ot O v �D at b ri GM 1 OI G a o o K M x st K c m c� 93 93 v a v+ .+ r+ K r� m 1-4 w p o * wOi �t �t �t �t �t et,� K x 444 ail rl rt K � rt P1 m N 01� .e � N 44.1Ai ri cA d � C� Od � M Om6l • C O ot m it cone cq !t K b 4, m eL. 4v e q to ... t+ ad d m) at wo 0. 019 '.4A a t A. � V m o i w c 60 o so V .4 t, o O u :5W m r d Jami ++ AOd Id W m Rei x Fes+ V i� -16- r 1. By the previGus two tables, it is evident that over 80 percent of Tigard's surveyed residences are in good structural and mechanical condition. Most of the mechanical repairs cost less than $500 for any given repair (e.g. plumbing or electrical repairs). The vast majority of upkeep that was required of residences in Tigard involved exterior and interior painting, and a majority of those costs were estimated at less than $500 for each residence. CHAPTER II HOUSING DEMAND INTRODUCTION This chapter discusses those factors that affect the demand for housing. Housing demand is determined by the number of people in the market area, their incomes, and their household characteristics. These characteristics of the population are important elements which influence the type of housing services that are supplied to consumers by both public and private sectors. 1. In 1980, Tigard had a population of 14,286. Between 1970 and 1980 the City grew at an approximate annual rate of 5.0 percent. Between 1980 and 1982 the City's population increased by 2958 (this increase is partially due to recent annexationsi. 2. Tigard has a diverse and healthy economic base. 3. The average household size in Tigard is 2.49 persons per household. 4. The 1980 median family income in Tigard was $23,426 which is higher than many other cities within the Portland metropolitan area. 5. The median age of the City's population is 29.46 years old. 6. Federal guidelines indicate that monthly rent payments not exceeding 25 percent of gross income are considered to be affordable housing costs. Twenty-seven percent of Tigard's households spend in excess of 25.6 percent of their income for housing. 7. Federal guidelines indicate that households earning 80 percent of the City's median income are considered to be moderate income, and households earning 50 percent or less of the City's median income are considered low income. In Tigard 33 percent of the households have been determined to be low and moderate income. About 5 percent of these households have received or are receiving some form.of housing assistance. i —17— POPULATION, INCOME AND HOUSEHOLD CHARACTERISTICS . To completely understand the chazacteristics of Tigard's housing supply, the changes in demand and the present level of demand must first be analyzed. Between 1970 and 1980 Tigard's population grew by approximately 900 people per year (5.0 percent annually). In 1970 Tigard's population was 5,302. During the period between 1970 and 1980, Tigard's population increased over 2 1/2 times to 14,286. Since 1980 Tigard's population growth rate has increased to 6.0 percent annually. The increase since 1980 has also been caused by Annexations. The City does not anticipate that the annual growth \.4WD►v-s �.. will increase beyond 5 percent annual to the year 2000• In the discussion of a housing market, the age distribution of the population and household size give useful indications in analyzing the nature of housing demand than overall population growth. Table II-1 indicates the distribution by age of the total population and percent change between 1970 and 1980. Tigard's rapid population growth has affected all age groups. The rapid increase of people over 55 years of age is partially due to the Summerfield development in southwest Tigard, which developed strictly for residents beyond the age of 40 years. TABLE II-1 f AGE DISTRIBUTION OF TOTAL TIGARD POPULATION (1970 to 1980) Age Group 1970 Percent Charge 1980 Under 5 607 77% 1078 5-9 503 92% 968 10-14 418 145% 1023 15-19 396 176% 1094 20-24 676 124% 1518 25-29 696 130% 1600 30-34 338 304% 1365 35-44 504 240% 1717 45-54 478 150% 1198 55-59 176 288% 684 139 324% 589 60--.64 424% 944 65-74 180 75 over 191 166% 508 Total 5302 169% 14286 Median Age 25.35 29.46 Source: 1970 & 1980 Census. C7 C POPULATION SUBGROUPS Tigard's existing percentage of nonwhite population falls somewhere in the middle of the range when compared with other communities over 10,000 population and within the metropolitan area. Tigard's nonwhite population percentage is also somewhat less than Washington County as a whole. TABLE II-2 NONWHITE PERCENTAGE OF POPULATION COMMUNITIES OVER 10,000 POPULATION k CITY PERCENTAGE IN 1980 Tigard 3.5% Beaverton 7.2% Forest Grove 6.1% Gresham 4.0% Hillsboro 5.3% Lake Oswego 2.7% Milwaukie 3.1% Oak Grove 3.0% ® Oregon City 3.2% West Linn 2.7/0E Average of all communities 4.0 Washington County 5.0% Source: 1980 Census Table I1-3 indicates the percentage of change in percent for nonwhite groups from 1970 to 1980. TABLE II-3 NONWHITE PERCENTAGE OF POPULATION - CITY OF TIGARD 1970 Percentage 1980 Percentage Percent of Population - Nonwhite 26 .49% 503 3.5% Black 7 .13% 52 .36% Indian 7 .13% 71 .49% Asian and Pacific Island 9 .17% 216 1.51% Other 3 .06% 164 1.15% Source: 1970 6 1980 Census. -19- r HOUSEHOLD SIZE Household size is one of the most important factors in projecting future housing needs. During the past twenty years, the average household in the United States decreased from 3.33 people in 1960 to 3.14 people in 1970, and 2.30 people in 1980. Nationwide, the rise of one and two person households has been dramatic in recent years and Tigard's household size since 1970 has reflected the national trend. Table II-4 indicates the increase of households and the size of households between 1970 and 1980. During the study period there were increases in all household sizes, and substantial increases in one through four person households; with six plus person household increasing substantially slower than other household sizes. TABLE II-4 nneL'nnT T GROWTH BY SIZE OF HOUSEHOLL 'nyuacnva.,' GROWTH (1970 to 1980) Size of Household 1970 Percent Change 1980 1 person 307 333% 1329 2 persons 590 275% 2214 3 persons 366 152% 921 ® 4 persons 298 172% 812 4 5 persons 150 105% 307 6 persons 99 34% 133 Total 1810 216% 5716 F Source: 1970 1980 Census. a 4_ HOUSEHOLD INCOME The basic determinant of housing demand is household incomes. In 1-)80 the median household income in Tigard was $23,426 which was slightly less than the overall Washington County median household income of $24,069. Table II-5 indicates Vrgard's ratio of income to housing values and rents. r As used by the US Census, family refers to persons related by blood living in the same housing unit. Household refers to all persons related to unrelated who occupy a group of rooms or a single room which constitutes a housing unit. -20- b TABLE II-5 RATIO OF INCOME TO HOUSING VALUES AND RENTS - 1980 Tigard Washin ton County Median Value of Owner-occupied Home $76,623 $3474 * Median Gross Rent $320.74 50 Median Income of Families $27,000* $27,000* Median Income of Household $23,426 $24,069 Median income of ic«ters $16,875 $16,899 Median Income of Homeowners $26,800 $26,881 Ratio of median home value to 2.85 2.84 median income of homeowners Ratio for median monthly rent to .228 .246 median income of renters Sources: Citizen Needs Assessment Survey of Washington County - Tigard, 1980 *Portland SMSA - HUD, 1981 Washington County Community Development Plan, 1981. Tigard, as well as Washington County, has one of the highest median household incomes in the state. TABLE II-6 4, TIGARD'S DISTRIBUTION OF HOUSEHOLD INCOME - 1980 Percent of Income 14,268 Total Population Households $0 12,500 2,857 20% $12,501 - 25,000 5,143 36X 4,143 29% $25,001 37,500 2,143 15% $37,501 - 50,000+ Medianhousehold income $23,426 Source: Citizens Needs Assessment Survey of Washington County, 1980. Since Tigard is within the Portland metropolitan area, not all of its residents are likely to both live and work in Tigard. Therefore, it seems likely that the distribution of ' Tigard's household incomes will remain reasonable close to the overall household income of Washington County and the Portland metropolitan area provided that the economy of the area remains diversified. , politan area allows the residents of all The diversified economy of the metro of the communities throughout the area to live in the community of their choice, e.g. Tigard, while working in Portland or vice versa. �f E -21- ..,*, 1 ASSISTED HOUSING According to Federal policies and criteria, households earning 80 percent or less of the areas median income are considered to be moderate income households, and households earning 50 percent or less of the areas median income are considered low income households. It is likely that these groups may need some housing assistance. The Citizen Needs Assessment Survey of Washington County, Tigard 1980, revealed that approximately 28 percent of the households in the Tigard area have incomes at or below the moderate income level of Tigard. Low income 13% 103450 Low-Moderate income 28% $16,700 Additionally, 27 percent, or approximately 1,543 households, of the total households in Tigard are spending more than 25 percent of their income on housing. r Table II-7 distinguishes from low and low-moderate incomes that are presently homeowners and renters. t TABLE II-7 E E IOW AND IOW-MODERATE HOMEOWNERS AND RENTERS i ® Owners # of Households Percentage of Households Low Income 247 8% Moderate Income 340 11% E Subtotal 587 19% Renters* Low Income 683 26% Moderate Income 630 24% Subtotal 1313 50 Total Household Eligible For Alfsistance. 1900 33.2X Source: Citizens Needs Assessment Survey Tigard, 1980. t * Due to sample size, the estimates may not portray a' totally accurate representation. The Department of Housing and Urban Development (HUD) estimates that 15% of € the total eligible households (1,900) should be targeted as a three (3) year goal for housing assistance program: 1900 x .15 285 Households in need of Housing Assistance in the next three (3) years. s -22- ; L I The Housing 'Authority of Washington County operates a variety of programs which provide affordable housing for low and moderate income residents. Many of these available programs could be used for this targeted group. Currently, there are 95 public housing units owned and/or subsidized by the Housing Authority of Washington County. Of these 95 units, 85 are funded under various Section 8 programs, 10 are funded through permanent conventional public housing, and an additional 21 units are also targeted for funding through permanent conventional public housing. The existing 95 units only have capability of settling approximately one-third of those households that need housing assistance. r f HOUSING NEEDS OF DIFFERENT POPULATION SUB-GROUPS Senior Citizens Housin Needs: According to the Citizens Needs Assessment Survey of Washington County, 19 percent of the total households in Tigard are composed of senior citizens, out of which 22 percent are considered to have low incomes and 47 percent are consideredin low n, categories. Table II-8 shows the total number of senior citizens andte theirincome levels. TABLE II-8 PERCENT AND NUMBER OF SENIOR CITIZENS WITHIN LOW AND MODERATE INCOME LEVELS Approximate Percent of Total Number of Households Households Totg. Senior Citizen Households 19% ! Low Income 1086 Moderate Income 22% 23925% € 271 Total in need of housing assistance 510 Female Headed Household Housin Needs: currentlestimated E heaor 1 ded households account f5 percent of thelttotalh households eID in sampled Tigard area*, of which 31% have low incomes and 63% have moderate incomes. low and I Minorities Housin Needs: Minority households account for 4.1 percent of the total households in Tigard. Twenty-eight percent households while 62 percent rent their dwelling u its. live in owner-occupied F HOUSING ASSISTANCE FOR HOME REPAIRS Most of the housing stock within Tigard is in good condition. However, there is a percentage of the homes in Tigard that qualify for housing assistance due to deterioration. According to Washington County Community Development Plan, 1981, the following percentage of homes need major repairs in Tigard: Plumbing repairs 8 percent, roofing repairs - 7 percent, and flooring repairs - 5 percent. (Within these percentages it is assumed that overlapping occurs. ) -23- r E z Currently, the Washington County Community Development Office operates two programs to assist low and moderate income and senior households with housing rehabilitation and repair: 1) a no-interest housing rehabilitation deferred payment loan program available to low and moderate income owner-occupied i households, and 2) a $1,500 emergency repair grant set aside for low and moderate income senior households. Weatherization: A majority of the housing units in Tigard have some sort of insulation; mostly storm or double pane windows, attic insulation and sidewall insulation. Currently, 46 percent of the homes in Tigard need storm or double-pane windows and 9 percent of the homes need attic insulation. (Again it is assumed that there is overlap between these percentages). Source: Washington County Community Development Plan, 1981. E t * Citizens Needs Assessment Survey of Washington County, 1980 (sample size 153 households). WCCAO, the Washington County Community Action Organization, administers a r weatherization program funded by the Federal Department of Energy for low income households. i Substandard Housing: Estimates of substandard owner occupied units are based on those dwellings that are valued at less than $10,000. According to the 1980 Census there are only 2 units (.064 percent) in Tigard which are substandard. d Estimates of substandard renter occupied units are based on those units for which gross rents are less than $80 per month. The 1980 Census recognized 17 rental units (.64X) which are substandard. PREFERRED HOUSING STYLES* Despite the increasing cost of housing and the changing character of families and households, a strong preference for the single family home stills exists. Probably the best available source of information about housing preferences nationwide is The HUD Survey on the Quality of Community Life. This survey asked detailed quests ns to discover how more than 7,000 people felt about their communities. This study found among other things that three-fourths of all Americans preFer to own a single family detached home. People in the west tend to prefer single family homes slightly more than the national average. Ten percent of the population prefer to live in a low or high rise apartment. Apartments are preferred by the elderly more than other age groups, but also by single persons and those who are widowed, divorced or separated more than by married persons. Those with no children living at home also favor apartment living more often than families with children in the household. Single family attached structures and mobile homes are also favored by a significant portion of the population (4.1% and 3.7X). As second choices, such units are even more popular; single family attached units come second Qwith 28% and mobile homes with 6.3% of survey respondents. i f- -24- . .... .._ . . i Affordable housing was a 'very important" or "important" consideration for 71% of Americans in selecting a home. The type of housing available was a significant factor for 67% of Americans. The least significant factor was good mass transportation. Factors rated somewhere in between were: proximity to friends and relatives; amount of open space; convenience of shopping, availability of recreation, culture and entertainment; school quality; tax rates; neighborhood appearance; neighborhood ethnic/racial composition; and change of job. Also very important was neighborhood safety. An earlier f (1976) HUD study found that neighborhood safety and quality were much more important than dwelling unit characteristics. E None of the available data indicates why people prefer one type of housing style to another. It could be surmised that people prefer single family homes primarily because they have more space, offer more privacy, and generally fit the lifestyle many people are used to. Or people may prefer apartments, condominiums or townhouses not only as less expensive to buy, but also as less time-consuming and costly to maintain, allowing residents to spend more time and money on the things they enjoy. Lifestyle then, may be a mojor �; determinant of housing preference. As lifestyles change, so may the kind of preferred housing. Market trends in home-buying, as mentioned above, are less precise indications of housing preferences. Nevertheless, such trends show an increase in the purchase and rental of alternative housing styles, such as condominiums, townhouses and mobile homes. This may result from considerations of lifestyle or from affordability; which factors dominate choices cannot be confirmed at this time. *Source: Washington County Draft Resource Document, August, 1981. CHAPTER III COST OF HOUSING INTRODUCTION t This chapter analyzes, from a regional and local perspective, the increasing Y.: cost of housing and the ability of Tigard residents to acquire their housing r needs. F 1. The average sales price of the new single family increased from $22,700 in 1970 to $45,000 in 1976, to over $76,000 in 1980. 2. Land, financing (interest rates) and permit costs have caused the largest increases in the price of anew single family home. 3. With current interest rates at 12-16 percent (March 1982), only 15-20 percent of Tigard's households can afford the median priced home. f -25- l h i f 4 With' current rental price structures and affordability guidelines established by the federal government, at least 25 percent of Ti.gard's households are unable to rent affordable housing. Owner-Occupied Housing Costs The cost of housing has increased dramatically over the last few years, and subsequently, the issue of housing affordability is creating a major strain on the housing market, loaning institutions, local municipalities and the consumers. t In 1976, the sales price of a conventional single-family home in Tigard averaged about $45,000. An annual gross income of $18,816 was required to t purchase an average cost conventional new home in Tigard, or an average of $392 per month, excluding insurance. maintenance and utilities. This figure is based on the fact that loan institutions did not grant mortgages when more than 25 percent of the gross income would be required for housing costs. City { of Tigard families had an estimated medium income of $16,147 in 1976, which t means the average household could not afford the average new single-family home. { i The 1975 Preliminary Washington County Housing Plan portrayed an even grimmer assumption using slightly different, but plausible factors. For instance, they assumed a 10% down payment and a 30-year loan period and included �. insurance and maintenance cost in its calculations. With these changes, a ( $45,000 house became unaffordable to any household with less than an annual income of $27,744. Since 1976, the average sales price of a single family home in Tigard has increased from $45,000 to over $76,600, or a 70.2 percent increase in four years while the median income has only increased 44 percent, $1G,147 to $23,426, during the same four-year time period. Current Federal Home Administration (FHA) purchasing qualification standards have allowed up to 30 percent of a household's monthly gross h1come to be spent towards housing. At 14 percent interest on mortgages, only 15-20 percent of Tigard's households could afford the average priced home in Tigard. With a median household monthly income of $1952 in Tigard, only $585 of that monthly gross income could be allocated towards housing. Another enmmon procedure that has been used to determine housing affordability has been to multiply the gross income by 2.5. Households with an annual gross income of $23,426 could possibly afford a $58,600 home. The actual affordability of a $D8,600 would depend on the interest rate of the mortgage. For instance, at 10 percent interest monthly payments would be $604, at 12 percent interest monthly payments would be $683 and at 14 percent interest monthly payments would increase to $765 per month. (All of the above figures include principle, interest, taxes and insurance.) Table III-1 indicates the median incomes required to purchase the median price home in Tigard at various interest rates. Not all of the homes constructed ff and sold in Tigard are costing $76,600, therefore another scenario for a $55,000 house is shown in Table I1I-2. Regardless of the actual price of a home, interest rates are the most predominating determinants of -26- affordabilityL The same $55,000 house may. cost as much as $200 more a month given the range of current available interest 'cztes. Beyond the affordability of any given', home on a monthly basis, the increased amount of cash required for a down payment has also made home purchase extremely difficult for many first time buyers- TABLE III-1 INCOME REQUIRED TO PUR^,ME A $76,600 HOME ATyARIOUS INTEREST RATES* Down Payment (20X) $15,320 $15,320 $15,320 Monthly Payment: Interest Rate @ 10% @ 12% @ 16% - Principle & Interest $ 557 $ 645 $ 832 - Property Tax 123 123 123 - Insurance 19 19 19 TOTAL MONTHLY PAYMENT $ 699 $ 787 $ 974 Monthly IncomeRequired $ 2,330 $ 2,623 $ 3,247 to to to (25% to 30% of Goss Income) $ 2;796 $ 3,148 $ 3,896 Yearly income Required $ 27,960 $ 31,476 $ 38,964 to to to $ 33,552 $ 37,776 $ 46,752 *Assume conventional mortgage, 25 year term, 20% down payment and average property taxes at $23.75 per $1,000 value. Source: Tigard Planning Department 1982. -27- y` _ i t TABLE II1-2 INCOME REQUIRED TO PURCHASE A $55,000 HOME AT VARIOUS INTEREST RATES* Down Payment $11,000 $11,000 $11,000 Monthly Payment: - Interest Rate $ 10% @ 12% @ 16% - Principle & InteresL w 400 $ 463 $ 598 - Property Tax 13 13 13 - Insurance 89 89 89 TOTAL MONTHLY PAYMENT $ 502 $ 565 $700 rionthly Income Required a 1,6'r-3 w 1,..8,.q t 7 %%1 0 ----- to to to (25% to 30% of Gross Income) $ 2,008 $ 2,260 $ 2,800 Yearly Income Required $20,076 $22,596 $27,996 to to to $24,096 $27,120 $33,600 * Assume conventional mortgage, 25-year term, 20% down payment and property tax at $23.75 per $1000 value. it E (For comparison: A 10% mortgage @ 30years will have principle and interest payments of $488 a reduction of only $14.00. This stilltranslates to a yearly income of $19,524 to $23,424.) Table III-3 A & B shows the breakdown of income ranges, based on $12,500 increments and $5,000 increments to $20,000, they indicate that the median annual income level in Tigard is just less than $23,500. r TABLE III-3 A. DISTRIBUTION OF HOUSEHOLD INCOME - TIGARD Income Range Percentage $ 0 12,500 20% 12,500 25,000 36% 25,001' - 37,500 29% 37,501 - 50,000 + 15% 100% Median income: $23,426.72 B. DISTRIBUTION OF HOUSEHOLD INCOME - TIGARD $ 0 10,000 3.8% 10,001 - 15,000 8.8% 15,001 - 20,000 11.7% 20,000 + 75.7% 100 % -28- Based on figures in Tables III-1 through III-3, only 15 percent of Tigard's residence can afford ari average priced home of $76,600 The percentage of households which could afford a $55,000 home is greater than 15 percent, however, over 55 percent of Tigard's residence could not afford a $55,000 single family hone. As the interest rate increases, the percent of households which could afford a $55,000 home decreases. Land, financing and permit costs have been the most rapidly increasing components in home prices. Current mortgage interest rates, alone, have increased approximately 30-55 percent since 1977. Table III-7 indicates the percent of each cost components for a typical single family house in Western Washington County. w t -29- TABLE III - 4 �. ABILITY TO PURCHASE A HOME 1979 PORTLAND, OREGON - VANCOUVER, WASHINGTON SMSA Family Income Distribution DecilesDotfars 10 9.5 43,054 9 38,065 ' $ 28,005 19%eam over$29,440 29% eam Over$24 300 7 23,811 E 6 121.043 C48%earn over$19,000 5 18,200 ---------- Median ca M 54%earn _ C over$17,187 4 15.716 0 :. O O - - $14;550 0 - o_ 0 80% Median --_-_ - 5 _3 13,226 v O O OE 2 10.226 $C'I 3: 3 O� �S� m -3 Z C 41 N 1 6.306 o d Z Q 0 y 0 25 50 75 100 Home Va;ue ($ in_Thousands) THE AVERAGE COST MOBILE HOME EXCLUS *; HOMES SOLO iHROUGH ft OF LAND OR SPACE RENTAL WAS S22.000 IN 1079 Mt1LTIPLE LISTING SYSTEM SOURCES: REAL ESTATE TRENDS; MOIIILE NOME DEALERS ASSOCIATION. HUD PORTLAND AREA OFFICE t " - .._ i i TABLE III-5 1 ABILITY TO RENT A HOME 1979 PORTLAND, OREGON - VANCOUVER, WASHINGTON SMSA Renter Income Distribution* Deciles Dollars 10 9 2,020 8 1,101 . 24%earn over 11.883(income to Buy 4Frffe—Ho—me)7 1,388 2I•%own o09%earn oveO6 1,186 4871eamover U C 894 Median >, r3 ------ — -- ----^--.r.. ..._ 82%Hm$068 +" aam ® over$872 802 4 63% earn •� 80%Median .-..- 3 601 ; -� a rm 2 405 / E E o e o G ` F 1 211 e r w 0 250 660 760 1,000 Monthly Rent ($) A, *VXA.UDES ONE PERSON Hous&"Ds SOURCES. APARTMENT DATA CENTER RENT SURVEY; NUD PORTLAND AREA OFFICE Ca r TABLE III-6 FOUR YEAR TRENDS IN OREGON HOUSING Characteristic Metro Portland 5 Counties 1977 1978 1979 1980 Size of Lot 8201' 8735' 8660' 8475' Value of Lot $12,026 $15,999 $17,921 $21,592 Land Cost Per Sq. Ft. $1.40 $1.70 $2,09 $2.51 Avg. Final Sales Price $50,308 $61,250 $74,081 $76,843 Bldg. Cost Per Sq. Ft. - Includes Land - $30.43 $36.52 $43.72 $47.43 Avg. Size of Home 1642' 1659' 1669' 1623' � ® 2 Bedroom 10% 11% 6% 6% 3 Bedroom 76% 71% 70% 79% 4 Bedroom 14% 19X 18% 14% Source: Home Builders Association of Metropolitan Portland TABLE III-7 COST BREAKDOWNS FOR AVERAGE HOME Permits 2 % Labor 9 % Subcontractors 32 X Material 13.0% Overhead 2.5% Interest 3.8% Profit 4.2% Land 26.5% Real Estate commission 6 % Miscellaneous 1 % TOTAL 100 % Source: Washington County Resource Document, 1981. The increase in the various development cost have not contributed equally to the rise in housing costs. Table III-7 shows the same construction cost, in land, permits and financing costs, which are increasing faster than the current rate of inflation. E -32- f t f 1 •L. k E TABLE III-8 INCREASES IN COST CATEGORIES SINCE 1977 Material 2 % Labor 20 % Land 75.5% Financing 46 % Profit/Overhead 32 % Permits 64 % Commissions 32 % Source: Portland Metropolitan iiomebuilders Association, 1981. F t Labor and materials, while still the single most costly components of a new home, have increased substantially less as a percentagecompared to the total cost, conversely, land costs have increased most dramatically- Land costs care composed of the direct raw land, the costs of holding the land, plus ost to improve the land to government specifications. In most jurisdictions there are standards requiring certain street widths and the provision open fsidewalks, underground utilities, curbs, gutters and, in some cases, p The increased costs of homes has not been due to an Increase ;-n the size of a = ' single family home. Though costs have increased and family sizes have decreased, the size of a new home remained fairly constant throughout the 1970's and decreased in the 1980's ADDITIONAL HOUSING COSTS Besides the actual costs of constructing a dwelling unit within the City of the Tigard, there are additional permitand urchase connection nn ctior rent of each dwelling ed to developer which are absorbed P unit. The following table describes the permit fees and connection charges for an average sized home in Tigard and for multiple-family_ dwellings in general: E t, -33- y r 1 �. TABLE III-9 PERMIT AND CONNECTION FEE CHARGES* Single Family Residence: $76,000 Permit $ 361 4% state tax 14 Plan review (65% of permit charge) 235 Sewer connection fee 775 Connection inspection 35 System development charge: street 400 System development charge: park 100 TOTAL Multiple Family Residential: 10 units Permit $ 968 4% state tax 39 Plan Check (65% of permit charge) 629 Fire marshal plan check (40% of permit charge) 387 Sewer connection charge at $775 per unit 7,750 Connection in n cti n 45 System develo -- y pment charge: street 2,400 System development charge: park at $60 per unit 600 TOTAL $12,818 All of these fees and charges are due upon the City's issuance of a building permit. Single Family Dwelling Size Table III-1.0 shows the average floor space of new homes in the Metro Portland Area since 1977 &nd T.Igard's average in 1980. g f - t ifs 1 r 1. TABLE III-10 AVERAGE FLOOR SPACE (SQUARE FEET) OF NEW HQUES COMPLETED, METRO PORTLAND Year Average Square Feet 1977 1,642 1978 1,659 1979 1,669 1980 1,623 Tigard 1980 1,707 Source: Bureau of Census, Construction Reports: Characteristics of New One-Family Homes, 1981. RENTAL HOUSING COSTS Presumably, the rental market is the main form of housing for as much as 50 percent of Tigard's residents for new housing. According to the State Housing Division's Hous Market Anal sis Situation Report for Washington County, October 19809 there has beer, a decline in multiple family units compared to previous years. The rental market in Washington County is moderate to tight (February 1982), and it is out of equilibrium due to the high interest rates which prevent people from purchasing single family homes thus putting increased demand on the rental market. Rents including utilities range approximately from $205 to over $400. The average rent for a three bedroom apartment including utilities is approximately $380, a two bedroom with utilities is approximately $300** and a one bedroom including utilities is approximately $270**. The overall average rent is approximately $300. Table III-11 indicates the affordable monthly rents based on income. TABLE III-11 AFFORDABLE MONTHLY RENTS, BASED ON INCOME Household Type Household Income Affordable Rents at X Income 25% 28% 30% Renters, Median $16,897 $352 $394 $422 Low Income* $10,450 $218 $244 $261 Moderate Income* $16,700 $348 $390 $418 Senior Citizens $17,500 $365 $408 $438 Female Head Household $13,705 $286 $320 $343 C_ Widows $12,812 '$267 099 $320 ` * HUD Standard for low and moderate income levels. f Source: Citizens Needs Assessment Survey, Washington Co, 1980 Washington County Community Development Plan, 1981 -35- r L. Comparing these rent levels with Table III-3 (Distribution of Household Incomes � Tigatd), it appears that approximately 25 percent of the households in Tigard will not be adequately serviced by the local rental market. The following table from the HUD displays the projected demand by price level for new single-family and multiple-family units and further illustrates the difficulties regarding home ownership and affordable rentals. s_ a, I -36- e ti t TABLE III-12 D FOR NEW NONSUBSIDIZED HO� U�G ESTIMATED ANNUAL DEMAND OCTOBER 1.9.80 W�GTON COUNTY OREGON A._ Sales Units (Land Included) NUMBER OF O OF H____ USES F_ T_OTAL PRICE 28.5 780 27.6 Under $55,000 755 1.6 $55,000 - $59,999 45 20.5 $,.0,000 - $64,999 560 2.0 $b5,000 _ $69,999 55 2.6 $70,000 - $74,999 70 4.2 $75,000 - $79,999 115 1_ 3.2 $80,000 - $84,999 357 57 $85,000 and Over 100.0 2,737 D Mul tifam-1 Units TWO THREE OR MORE ONE BEDROOMS ,ToeCT BEDS ROOM BED—DRAS Cvaa. EFFICIENCIES MONTHLY RENT 0 0 �- 30 0 0 0 Under - $220 15 0 0 0 $220 $229 15 0 0 0 $230 $239 5 0 0 0 $240 - $249 5 0 0 0 $250 $259 0 165 0 0 $260 - $269 0 110 0 0 $270 - $279 0 80 0 0 $280 $289 0 45 130 0 $290 $299 0 30 90 0 $300 - $309 20 0 $310 70 - $319 U 15 0 0 $320 $329' 0 10 5 50 0 $330 - $339 0 5 30 20 $340 - $349 0 5 20 10 $350 - $359 0 0 15 10 $360 $369 0 0 10 5 c $370 - $379 0 i0 5 $380 - $389 0 0 20 --25'— $390 $399 0 _0 _ _ _ $400 and Over 485 75 55 475 Source: HUD Situation Report, 1980• -37- E MANUFACTURED 'HOUSING f Another major possibility for enlarging the opportunity for single family home ownership among middle-income households is through manufactured housing. Currently, 30-34X of all new homes are manufactured homes and over 90% of all new homes under $40,000 are manufactured homes. (Source: Oregon Manufactured Housing Dealers Association, 1982.) i Manufactured housing is defined as a manufactured building or major portion of a building designed for long term residential use. It is designed and constructed for transportation to a site for installation and occupancy when connected to required utilities. Stereotype views of yesterday's manufactured homes as dangerous, rapid i depreciating and ugly "trailers" stacked in lower class areas, da not fit modern models or the ways in which manufactured housing are sited: he new Manufactured home.; are not all alike. At w th an of the spectrum 1 s t square dwelling built to federal code standards, P feet set on a submerged foundationeliminatingeliminating the necessity of skirting; and at the other end is a visually for indistinguishable hu an occupancy. built to no llet een the acceptable standard and highly q two extremes are varying ranges of mobile and manufactured homes. All constructed homes manufactured since�June ave been built to the Standa gds A t of 1974 established National Mobile Home Construction and y c` ®' and enforced by the Department of Housing and Urban Development (HUD). These instal standards along with state standards for ling mobile homes are enforced by by the Oregon Department Of commerce. State byte a local stndardsjurisdictare i ons. Prior additional installation standards to 1976, 46 states required compliance to the mobile home standards as d the established by the National Fire Protection , sociation (m8nMobile American National Standards Institute (ANSI). (Source: Regulating Homes, Planning Advisory Service.) Traditionally, manufactured homes been homesoparcels located n oofmobile land underone parks,which provide rental space for these mobile still exist and the rental rates in the ownership. These mobile home parks Portland Metropolitan area currently range from fend $i22 tfor ldouble-wide t homesh median rates of $110 for single-wide August 122 (Washington County Draft Resource Document, Aug popular. These in recent years is mobile home sub o981) falon lot has ewell as the Bind individual mobile subdivisions allow for ownership home. Currently, there are three mobile home parks in Tigard and one within the Tigard Urban Planning Boundary: -38 r TABLE 111-13 EXISTING MOBILE HOME PARKS - TIGARD URBAN PLANNING AREA Mobile Home Park Spaces Vacant Spaces Cascade Mobile Villa 37 0 Terrace Heights Mobile Court 55 0 Pacific Mobile Park 18 0 Subtotal 110 0 Royal Mobile Villa* 248 0 358 0 *Outside City limits but within Tigard Urban Planning Area, The average price for a typical single-wide is averaging between $18-22 per square foot, with a high construction cost of approximately $28 per square foot. The average price of a new single-wide home (14' x 70') is �. approxiWately $17,600 to $21,500, and a double wide (24' x 60') approximately $25,900 - $31,600. Table III-14 indicates the average monthly housing costs and required income for mobile homes. TABLE III-14 AVERAGE MONTHLY HOUSING COSTS AND REQUIRED INCOME FOR MOBILE HOMES* Monthly Cost Required Required Excluding Utilities Gross Monthly Gross Annual Unit Insurance Income Income Average Single-wide 240-320 $ 960-1,280 $11,520-15,300 Average Double-wide 400-480 $1,600-1,920 $19,200-23,040 Source: Tigard Planning Department, 1982. Comparing these figures with Table III-11 we see that more households could afford the average single-wide mobile home. Since the average household size for mobile homes is 2.2 persons/unit, it is clear that mobile homes will provide afgordeble housing for small households, but may. not provide adequate relief for large households. CHAPTER IV POPULATION TRENDS The following section identifies specific population trends which are characteristic of Tigard during particular time periods. i -39- i Population Trends 1961-1970 The population of Tigard more than quadrupled between the time Tigard was incorporated in 1961 and 1970. (1961: 1,084 and 1970: 5,302) Since specific population census data was not gathered for the City of Tigard in 1960, it cannot be exactly determined what age groups significantly increased during this time period. Most of the Portland metropolitan area experienced increases in the 0-14 age group due to the "postwar baby boom," and it can be assumed that similar trends occurred in the Tigard area. Population Trends 1970-1980 During this time period, Tigard experienced its greatest growth. Almost two-thirds of the grouth occurred during this decade. Approximately half (48.3-60.1%) of Tigard's residents work outside the community and in most cases outside Washington County. During this period, Tigard established itself as a residential community of the Portland metropolitan area. The attractiveness of the environmental amenities of the community are frequently cited as factors influencing the decision to locate in this area. In addition, Tigard has also established itself as an employment center. In 1980, there -were approximately 85750* jobs within the Tigard area. By the year 2000 it is estimated that there will be approximately 19,350 employment opportunities or an increase of 10,600 jobs. (See Transportation Comprehensive Plan Report) Future Growth Trends In 1980, Tigard's population was 14,286 (1980 Census. Actual population at December 31, 1980 was 14,855). The Metropolitan Service District's (MSD) project for 1980 was 18,642. This figure is based on the traffic zones within the Tigard Urban Planning Area and does not factor out those areas that were outside the City limits. The current 1982 population of Tigard is 17,300 which mostly reflects the incorporation of numerous islands. If the entire Tigard Triangle and the area south of Walnut Street were incorporated, MSD's projection would be realized. *This figure was calculated from Metropolitan Service District :MSD) Traffic Zone Circekation Study and includes those traffic zones that are within the Tigard Urban Planning Area. The underlying assumptions made for the purpose of population projections are threefold. First, no significant rezoning of currently nonresidential land to residential uses; second, a fixed land supply; and third, no significant redevelopment activity prior to reaching the saturation point. In reality none of these assumptions would hold strictly. The City will probably find that some redevelopment of the core downtown area will likely occur. Also to be considered as a factor of effecting population growth is the rate of extending services to undeveloped areas, and the infill process. :p -40 w i FIGURE IV-1 l I AVERAGE HOUSEHOLD SIZE 3. 2.89 71 299 SELECTED `S t'IOUSEHVLD 2.50 SIZE Oko oo 2.30 2.00 CONTINUATION OF HISTORIC TREND '` 1.80 1950 1960 1970 1980 1990 2000 ■ r FIGURE 1V-2 S N -19 O •,�M1 -r!0'.',•__tl):1:r/, rye. 34 } }. .. /,� � •tee• SHO \ i. 1 a4-, s AMa� � vo o t• E 4� w l0 U Qtl ONIOtlYN o 4)� W N L S n C DS Okicez 1 _ E a sp t� 2 � ONlPI O G � r•,4 P t: d z w um'. Newt a w •� f • ,1u `w a ONLI K m p °t U 06 Cl V 2Q Oy N3S3tl ? all_ C� NAOP s2 + O ��ta yC ! r r ♦V, C V O NitV AVE P� R = 3Ar NOINII O'tT C Y MAOI Old O .... ..c 00 g MYY� Pr , .. o s 3 m 'a p3 1YA t[.ntlt $ r = d It d r\I HALL y S f o ou yo o T •t• c ro r �- ... � 1- 1 a S1 O r Od tJ7i� a �{jfit �6 1144)1 f, • � p, y • u • coOif E ♦ C W � • � etr x v :01 � T O G ttoo, P C P /fes cc ftt AMM oU •♦ C Za •' N31D CD- s • �: 3m" Dtl DC ca Y� it •.op a. dvAMM ..tee FIGURE IV-3 - o 10 Z r y. t s--- 1 t � r t t � t , 1 0 a ©_40 � 8 40 ,s:z�+� o � a�IC1t�1 Future Growth Projections Several sources of information are being utilized to construct a population projection for the City of Tigard. Using the Portland State Population Center and MSD's estimates for the year 2000 household size (see Figure IV-2) and the overall housing units potential figures, based on the buildable lands inventory, a holding capacity situation was found to have a potential potential of approximately 42,000 during the planning period. (Based on land uses in accordance with the Metropolitan Housing Rule) Actual growth figures were then plotted as shown in Figure IV-3, showing the 1980 population figure of 14,286. The Metropolitan Service District (MSD) anticipated growth trends for the traffic zones most closely related to the Tigard Urban Planning Areas were then ,jlotted on the graph. MSD's projections are founded on population trends which occurred during 1960 to 1980; based on an increase in units rather than an average percent increased in population. The ultimate graphical portrayal of Tigard's population will show an "S" curve. During the planning period (1980-2000), however, Tigard's growth will remain within the upward trend of the "S" curve. This is based on the fact that the 2.3 average household size has not been reached (existing household size is approximately 2.59). In addition, the City used an alternative constant to project Tigard's population to the year 2000. Rather than using an average annual increase of units, the City used an average annual population increase (5.07 percent, with a 2.3 average household size.— The difference between MSD's projection and x Tigard's is as follows: Metropolitan Service District (MSD): 31,550 ,- Tigard Planning Department: 33,400 Difference: 1,850 Both of these projections are within MSD's projection of 46,020 for all of fi District 12, which also includes the Bull Mountain area. (See Figure IV-3) CHAPTER V BUILDABLE LAND INVENTORY In mid-1981, the City conducted a vacant land survey for land within the Urban Planning Area and within the Tigard City limits. Since that time the City has updated that data as development occurs. The City is currently in the process of establishing a mechanism by which to annually record the status of vacant ft land that is available for development.within the Tigard Urban Planning Area. According to the data that was available in January 1982, the available vacant undeveloped residential land comprises 20.7 percent of the total area within the City's Urban Planning Area. -4�_ f 1- Table V-1 indicates the vacant buildable land within the existing Tigard Urban Planning Area. The acreage figures are based on the proposed zoning district designations within each Neighborhood Planning Organization (NPO). Population Needs and Land Supply To determine whether or not the plan provides for enough land for long-range umptions concerning land requirements for growth, it is necessary to make ass uses such as streets and parks; persons redevelopment; toe development evelore tp�nt quality of the vacant land; the potential 1 and uses, and units per acre. Assumptions isPublic and Semipublic Land s. A 20% allowance was made for streets in single family areas and 15% for multiple family areas which will consume some of the vacant residential land inventory and thereby will not be available for housing. The allowance was calculated by reducing total vacant residential land by 20% or 15% accordingly. 2. Persons per Household and Undoubling In 1980, appro::imately 6112 households existed in Tigard. In 1980, the region's average household size was 2.59 persons. MSD in the Regional UGB Findings assumes the average household size to stabilize by the year 2000 at 2.30 persons per unit. This analysis assumes the same decrease will occur in Tigard or a reduction in average household size of 2.59 in 1980 to 2.3 in the year 2000. This expected drop in the overall household size has the effect of reducing the capacity of the existing housing stock, thereby creating a demand for more units without a population increase. This "undoubting" means that 770 additional housing units, beyond what would be needed if household size remained the same which would total approximately 7380 units, will likely need to be constructed to meet the demand for housing caused by the drop in average household size. (6112 households in 1980 x .30 person/household = 1772.48 persons needing additional new units divided by 2.3 persons/unit= 770 units.) 3. Development Quality Clearly not all vacant land is equally suitable for urban development. In accordance with the Goal #10 Metropolitan Housing Rule, land constrained by natural hazards are omitted from the vacant buildable land survey. This includes land over 25% in slope and land in the floodplains area. The Comprehensive Plan clearly identifies those areas that are subject to natural hazard on various Comprehensive Plan. maps. These areas are restricted from development and are totally excluded from the buildable land inventory. Note however that there is some capacity (up to 25%) that could be counted as a result of the density transfer provisions in the Plana This feature is further explained in the Housing Implementation Strategy #3 under Policy 6.4.1. -42- r 4. Redevelopment Potential Some of the area designated as Commercial-Professional or Central Business District is currently being used for lower intensity uses. It is fair to assume that a significant amount of this land will convert to the use designated on the plan between 1982 and 2000. Within these areas, it has been determined by MSD employment projections that approximately 6000 plus additional jobs will be created by the year 2000. The following assumptions were made to introduce more intensive residential uses into these commercial areas. a. Residential uses within the commercial area would increase crime prevention by keeping people in the area 24 hours a day; tb. Residential uses would strengthen the commercial areas by placing people close to shopping and employment areas; and c. Residential uses with these commercial areas would decrease airshed problems by eliminating the need for a portion of the vehicle trips within the area. To develop a realistic estimate of the potential multifamily uses which will redevelop in these areas by the year 2000, the following tt procedure was followed: a. Identify all land within the Commercial-Professional and Central Business District plan designations that are currently developed at a lesser use, e.g. single family; b. Assume that land values will eliminate the existing single family uses within the areas and determine the amount of vacant land within the areas. c. Subtract out residential uses from the first two floors in Coumercial-Professional redeveloping areas and the first floor in the Central Business District redeveloping areas; d. The amount of land assumed to have redevelopment potential is approximately 59.2: 7.2 acres - Central Business District 52.0 acres - Commercial-Professional For these areas, it was further assumed, that the pressure for an economic capability to redevelop was influenced by the density allowed within these areas, e.g. the more density allowed, the more likely redevelopment would occur. The plan designation for these areas are as follows: Central Business District - 12 units/acre Commercial-Professional - 20 units/acre The chart on the following page illustrates the amount of acres for E residential uses by zone. i I f , BLI.1LITIES � SERVI E Comprehensive flan Report k CITv. OFMFAPD WASH44 TON C kMrY.CKM4 ADOPTED BY CITY COUNCIL DEGEMBER:15, 1982 f ORDINANCE 82-81 I �i �.n i 3 f 1 1_ I. INTRODUCTION This report is an analysis of Public Facilities and Services Systems in the City of Tigard, in an attempt to relate City's Comprehensive Plan to the LCDC Statewide Planning Goal #11. It further develops an inventory of Public Facilities and Services. a Goal #11 states: "To plan and develop a timely, orderly, and efficient arrangement of public facilities and services to serve as a framework for urban and rural development. "Urban and rural development shall be guided and supported by types and levels of urban and rurall public facilities and services appropriaCs for, but limited to, the needs and requirements of the urban, urbanizable, and rural areas to be served. A provision for key facilities shall be included in each plan. To meet current and long-range needs, a provision for solid waste disposal sites, including sites for inert waste, shall be included in each plan." The "timely, orderly, and efficient arrangement" clause refers to a system or plan that coordinates the type, location and delivery of public facilities and services in a manner that best supports the existing and proposed land uses. Public facilities are constructed and improved when resources are available _. ' and budgeted to construct them. These improvement projects can be facilitated by way of a Capital Improvement Program (CIP). CIP also coordinates the proposed public improvements between City departments with respect to timing, functioningand location of public improvements, The "urban facilites and services" phrase refers to key facilities ,and to appropriate types and levels of services for the following: water, school, libraries, sewer, solid waste, police, fire, health, energy and communication, storm drainage, and government facilities. This report analyzes each of the above named facilities and services in detail, and provides a range of relevant findings and policies for each. The purpose of the public facilities goals and policies is to provide a policy framework'within which the CIP and budget processes will operate. And these policies are defined as city-wide, long-range policies that guide the provision of City services to future development. V 1 j -1-; JY II. GENERAL'PUBLIC FACILITIES AND SERVICES Accommodation of future population growth within Tigard's planning area will require a corresponding expansion of public facilities and services, The planned expansion of the services will support the land development patterns in terms of location and intensity of future housing, commercial and industrial development. A coordinated policy for providing transportation, utilities and facilities can be accomplished through the use of a capital improvements program. The purposes of such a program are as follows: 1. Focus on the community goals, capabilities, and the community's broadest needs. 2. Achieve maximum use of the community's tax dollars; 3. Improve intergovernmental coordination; 4. Improve efficient administration of public business; and 5. Consider what role private utilities will have in the preparing of a capital improvements program for Tigard. Capital improvements programming is the process of budgeting for public expenditures on major capital items under a priority system. It should be a continuous process for the selection and sequencing of public projects in support of development over a period of years. NDINGS o mmunity goals emphasize the desire to maintain the h' quality of 'lities and services within the City. o The nity's facilities and services are an impo . management tool in the ervation and development of land within yr,` rban planning area. o Plans and ams need to be developed ' he expansion of urban services in a cal and orderly mannershould include a funded_ and effective ca improvement progra ap, .fix o Phasing adequate pub acilitiesra servicer; to support residential development is necessary eet cp» nity needs. p The City of Tigard and rely ervice districts have the duty, within their means, to provide ad_' a ervices to meet the demand for all development within the p ng are ing the planning period. o Phasing the facilitie" xpansion is nece for orderly growth. o Formation of pr , a utility districts (wate wer) could create land management pre ms within the Urban Planning Are o A capital ',.mprovements program would facilitate t ordination and expansi for providing transportation utilities a ther public faciU es. f -2- z. 2) Cost-benefit factors; and 3) Social and economic needs; As a part of the Community Developme de, standards will be cluded in: a. Land Division Ordinance the construction of services; b. The unity Deve ent Code which requires future subdivi plans ' eas where allowed densities due to a lack of s -ces ess than the plan densities. 3. Where sewer is available to site, the developer shall be regi31a2d t0 eX 3c'iViC$$ to the Slt2 at the d2Vciv'per'& cost. The C' sT. pt an ordinance providing for partial cost as i ening p "'V is are developed by the intervening landowner 4. The d Community Developme de shall establish an ordinance whi ndicates: That services shall be extended property line to property line, including services located djacent rights-of-ways; except b. That the ordinance shall allow for hasing of such services if a development proposal indicates phasing. The intent of these policies is to develop a mechanism for a derly and logical development and expansion of services to promote an effic use of land and thus an efficient growth pattern. This mechanism will bas be concerned with: Planning for public facilities in advance of need in a er which will implement land use policy. This shall help direct the u expansion and growth. III. STORM DRAINAGE AND WASTEWATER MANAGEMENT Tigard's Comprehensive Plan recognizes the importance of drainage management and notes the impact of improper management of drainageways and watercourses (flooding, pollution, and loss of recreational- areas and natural habitats). Thus, the following, objectives and policies are contained in the "Environmental Design and Open Space Plan", adopted in 1977. The Federal Environmental Protection Agency has established requirements, which must be met prior to qualifying for funds to construct waste water management facilities. One of the requirements in the preparation of an Areawide Plan which addresses wastewater point sources and non-point sources. The Metropolitan Service District has prepared an Areawide Plan called No. "208" Plan which addresses facilities and storm water, sanitary sewage and measures to reduce "storm water run off." a -4- r z IMPLEMENTATION STRATEGIES inc u e measures in tis PL The major drainage problem in Tigard is the storm-water runoff throughout the area. This problem results from the increase in impervious land surfaces that can alter the quantity and quality of runoff from the land. Much of the deficiencies that currently exist within the Tigard area are due to the lack of adequate storm drainage facilities in many areas and stream bank overflow along the Fanno Creek basin. r The primary water quantity problem is overbank flooding that occurs when storm-water quantity exceeds channel capacity. Further, pollutants { transported by storm-water runoff from non-point sources are significant contributors to the degradation of water quality in the Tigard area. An upper Fanno Creek study found that during several runoff events the pollutant r concentrations measured in the stream exceeds those found in effluent from secondary sewage treatment plants. Urban non-point pollution results primarily from the accumulation and transport of contaminated material on paved surfaces such as streets and parking lots. The automobile is a major contributor of many pollutants to these source areas. t In 1981, CH2M Hill, Inc., developed a "Master Drainage Plan" for the City. This plan incorporates existing procedures & standards regarding subdivision and storm-water detention with the recommended changes to the existing floodplain management program. The study also lists numerous recommendations and solutions that would increase the flow efficiency of the Fanno Creek floodway. For example; it is stated that numerous bridges, i.e. the Tigard Street and North Dakota Street bridges, are currently below flood elevation and these bridges substantially decrease the flow of water along Fanno Creek. It is suggested in the study that raising the bridge deck would alleviate much of the restricted water flow along Fanno Creek. It further outlines the requirements and costs for development of an effective drainage management system. Although many of these improvements are beyond the City's financial means at this time, the City is in the process of incorporating these items into the capital improvements program. ORDINANCES: Several City ordinances are relevant to drainage management and the protection of environmentally sensitive lands. Ordinance No. 70-18 (as amended). The Sensitive Lands chapter (18.57) of the City zoning ordinance is the most important legislation regarding drainage management. The intent of the chapter is as follows: 18.57.010 Statement of Intent. Sensitive lands are lands potentially unsuitable for development because of location within the one-hundred-year floodplain, within a natural drainageway, or on steep slopes'. Sensitive land areas are designated as such in order to give recognition to the need to protect the public health, safety and welfare of the community through the regulation and control of lands within floodplains, drainageways, and E -6- steeply-eloping land areas, and , to thereby mitigate potential financial burdens arising from flood damage loss and to preserve natural drainageways from encroaching uses which threaten to affect adversely the property rights of the citizenry of the community, public safety, and the public health by natural conditions arising from upstream or downstream flood levels. City actions under this chapter will recognize the rights of riparian property owners. The floodplain district has for its purpose the preservation of natural water storage areas within the floodplain district by discouraging or prohibiting incompatible uses. Ordinance No. 78-17. The Storm-water Detention Chapter (18.58) of Tigard's zoning ordinance is to keep legislation related to drainage management. The purpose of this chapter is stated as follows: 18.58.010 Purpose. The purpose of this chapter is to reduce the harmful effects of storm-water runoff or. streambeds, banks, parklands, private properties and other areas in the City of Tigard by requiring the installation of on-site storm-water detention facilities as properties are developed within the city. Ordinance No. 79-96. The purpose of this ordinance is: "To further the orderly use of land and layout of streets, to carry out ( the comprehensive plan of the city, and to promote the public health, `-- safety and general welfare, lessen congestion in the streets, secure safely from fire, flood, pollution and other dangers, provide adequate light and air, prevent overcrowding of land, and facilitate adequate provision for transportation, water supply, sewage, drainage, preservation of open space, and to provide standards of design and procedures for .' subdividing and partitioning land." The existing plans and regulations of the City and Washington County express a need for common understanding of drainage problems and a uniform approach to their solution, both inside and outside the city limits. Although, the existing policies and regulations provide an excellent basis for drainage planning, the City needs to supplement them with additional regulatory procedures and standards, particularly in the areas of subdivision regulations and storm-water detension. IV. WATER SERVICE The Tigard Plan Area is presently served by two (2) water service districts: Tigard Water District (80X) and Metzger Water District (20X). Tigard Water District serves the area, generally, southwest of State Highway #217, while i Metzger serves the area northeast of this highway. �a -7 i While oto major problems exist with this division of public services, in the past, difficulties have arisen with coordination and jurisdictional disputes. For this reason, the City will take a more active role in coordinating and communicating with both water districts and will continue studying the feasibility of assuming part or full ownership of the water system. The development of adequate water supply sources and distribution systems is a vital necessity in a fast-growing urbanizing area such as the City of Tigard. Because installation of waterlines and construction of wells and reservoirs j are major capital improvements, it is very important that those facilities be designed to meet both the consumption and fireflow requirements of the current E as well as anticipated population. A water service provider must be aware of population growth trends and of changing land use patterns and planned denzities in its respective service area. FINDINGS o th Tigard and Metzger Water Districts have made substantial�pital ovements in recent years to provide the highest quality wat at the mo easonable rates. ' o Reliab ad adequate water supply, storage, and delive systems are Yr�a� t'• -;lsble or planned to provide sufficient qu ities of high nva, �------- quality wat o meet existing and future needs of the cnity. t o The Metzger Wa District has signed a 25-year war purchase contract for 100% of it's With the Tigard Water Dis -ct entering into long term contracts wit a City of Portland and City of Lake Oswego citizens of Tigard ca assured of a long- supply of high quality, water. . POLICIES , 7.3.1 THE CITY OF TIGARD SHALL COORD WITH THE TIGARD WATER DISTRICT AND THE METZGER WATER DISTRICT TO O A HIGH STANDARD OF WATER SERVICE TO MEET FUTURE DEMANDS AT A IMES. ` MOTE: For pre-conditions to d opment, see y 7.6.1. IMPLEMENTATION STRATEGIES 1. The City of T' rd shall take an active role in p ipating with the Tigard and tzger Water Districts in making it ews known on matters p, �aining to water rates, tax rates, anne ns, capital improvem s, budgets, etc. 2. When egotiating long-term water supply contracts, the Ci all coo inate with the water districts in seeking rates and sch s t are equitable to all water users within the City. � F r -8- f 3. If it' appears the best interests '" the citizens to consolidate the watex district City operat' , it shall be accomplished in an orderly manner ull an, etailed consultation with the water districts involved. 4. The City of Tigard sh irate with the water districts, through a capital improvem prog o assure adequate water service for future urban deve "" ent. S. The Tigard pity Development Co 11 require of developers the burden o of for providing adequa ter service prior to the approv d issuance of any development p General Water systems consist of three (3) parts; namely: storage, di tribution, and source of supply. Of these, storage and distribution can be handled within local jurisdictions without difficulty. User fees, meter installation charges and, occasionally, tax subsidies, provide sufficient funds to maintain and upgrade the system. ;:e prime roster system problem is source of supply. Washington County is not blessed with sufficient fresh water sources within its boundaries to provide water to its citizens for either the short or long term. Therefore, water must be imported to meet the ever-increasing population. Because water must be transported vast distances via large transmission mains, including expensive wholesale water rates and pumping charges, the unit cost of water will, generally, be higher than in other parts of the Portland metropolitan area. During the late 1960's and early 1970'x, extensive water plans were prepared to resolve the problem of chronic water shortages in the summer time. By the late 1970's and early 1980's, more of 'these plans had been implemented or were in the process of being implemented. Sources of Water Supply Following is a list of viable sources of water which are available to the Tigard area: a. Bull Run River (City of Portland) b. Clackamas River (City of Lake Oswego) c. Groundwater (Wells) d. Willamette River (Ranney wells) Bull Run River Water Portland water, which is obtained from the protected area of Bull Run watershed near Mount Hood, is of high quality, requiring only chlorination prior to distribution. The City of Portland owns and operates a dam and reservoirs on the Bull Run River from which a majority (70x) of Portland ' PlAlNB Marta ;- , —4.1 D; V.f ;fit ,..J.i>:•:KJ;.}:: ::%:+FS':'.r`:Qv..:Q•:.,1J j`::•}}:ii: i:;(:•iij.}5: kkt':it•Sx ;M �Y J :2t?i?' L?%': •:..S:w:.ti i}})Cn t kt�{::^.i" :{ ,:}}:{`.ijiikrrS:t:::t:k:}i5:+}.'J;-}} :S<: _ :kvv.•'. •i:.`\+':•Q i.t{.n.}, ...{ vnvi! '� - :.J:��' .k,,y:v:. vf:{t'S \•}:;Kti x'•:•:;::71.1 :C 'r�'��r�-::• wl : j� ... -- .v..... :a......a. Nom:.: ._—•�. 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J� SfLs 'y. 2 .t •?Li:Y:.'y{:�>:<: � Jy'�{ }i:{?.�?:L.• .jy.Yl. :.R;}'.: .. .._. -.. i .!b .quo..... .'__ :•} .;•x > �rr ;yJ,:�r�d•��• }''+�\ , ..w::::<.}F::::v;:rr:..;'.;.:.. ;.:. :::::::::{.JS+i�:.:{; :.F'{'+rr•;<;}{ v.2jv5 \' {. I�}i'..'•:v�4.'•:� r\Jv rot {•• .r�'.'Fd' ;!•:,`'f,�i' i ..; -• t ) ._fit J,. 'v:...., •.. '.(a' '1� `)>4: f rA' }��' .rc:Q:>;d}2Y:•.,•f;r;'..?�; tt�: •• +} d.w• fi' y y'?N ::+4,tir,:Yti:{.y y\1}Q�::{,'•:;:Sk: ` 1 \v:•}::•}rL:};•:k}.:225y{ qxl 1:xJ•(:}r i}Fik{rf:y +%:}(••-' } 5 \Q 'j� � 90PE111 MTN W.0000".4FINE., MW ..'QK.�7•+': rf�*: a� k`�} 4':, } x' :.'L<it;.t.,:.ya�•"y.yl.;,�a..}}}:.'�ntZ<: ,•7++[:;:;4%�:�`.}KT 1L i WATER ;�EMM..0 PROVIDERS 5MVERGR0% r ; t Source: Wasr: ngton County `L TFi�ttla+� J , Planning Department. 1981 :, I OOD 1 I �n f Irk. ' • •I NORTH 1 tiwtS�� 1 •. .. �( metropolitan' area residents receive water. The City is also developing a 100-MGD (million gallons per day) source of supply from groundwater aquifers near Blue Lake. This will be a back-up or emergency supply to the Bull Run system. The capability of the Bull Run system is almost unlimited to serve the projected demands of the Portland metropolitan area. Limitations include the need to improve the capability to transmit more water from the Bull Run reservoirs, now rated at 225-MGD, via three (3) conduits, the last of which was completed in 1953. Major improvements during the last few years include construction of a 50-MG reservoir located at Powell Butte in east Portland. Of major importance to Washington County was the agreement between Portland and several water districts and cities in east Washington County to construct a 60-inch gravity main from Powell Butte to Raleigh Hills. Entities participating in this project are Wolf Creek Highway, Metzger, and Raleigh Water Districts and the City of Tualatin. When this transmission main is completed in 1983, ample water will be available well into the next century. Clackamas River Water Water from the Clackamas River, via the City of Lake Oswego, presently supplies Tigard Water District with about eighty percent (80X) of itsannual requirements. Tigard Water District presently supplies the City of Tualatin t` with all of its water needs which amounts to about thirty percent (30X) of the total water consumed by Tigard Water District. When Tualatin completes its direct connection to the City of Portland in mid-1983, Lake Oswego will be capable of supplying Tigard Water District with all of its needs until about 1990. The availability of the Clackamas River for water supply is restricted by competing uses of the watershed, specifically: fisheries, recreation, electrical power, and water supply. The Clackamas River is considered valuable as a habitat for spawning anadromous fish. The Water Resources Division of the State of Oregon, therefore, has established minimum flow requirements to protect this resource. These minimum flow requirements are presently violated with a recurrence interval of about once in seven (7 years, based on a three-day average low flow. Further complicating the matter is the fact that existing water rights for water supply and several rights far exceed the projected needs of the holders. These conflicting demands on the Clackamas River flow limit the use of this source of water for the long-range time period Lake Oswego recently completed expansion of its treatment plant facilities from 10 to 16 MGD, thereby making surplus water available to Tigard Water District, at least for the immediate future. Transmission of that water after 1993 will require the constructionof a 24" diameter pipeline. Groundwater . Prior to 1973, Tigard Water District relied solely upon four (4) deep wells as its primary source of water supply. Unfortunately, large withdrawals from the Columbia River basalt aquifer led to rapidly declining water levels in Cooper Mountain Bull Mountain area. -10- :y In 1974 the "state engineer declared this area a critical groundwater area and placed severe' limitations on future pumping. This declaration affected Tigard's reliance upon this source of water. When direct connections (16-inch pipelines) were made to both Lake Oswego and Portland, all deep wells were placed in a "stand-by" status and are used only during peak demand periods. 1-MGD can be pumped from these wells. Willamette River (Ranney wells) An interesting concept is a proposal to utilize Ranney wells to extract water near the Willamette River, south of Newberg. Ranney wells are used by the Cities of Gladstone and St. Helens with excellent results. Detailed hydrogeological tests conducted by Ranney Method Western Corporation of Kennewick, Washington in 1980 revealed that the water in this area, being naturally filtered, would be of excellent quality. This proposal will be given a thorough review in the years ahead. Although expensive, it would provide an independent source of water, a goal long-sought by the Tigard Water District. Tigard Water District Serving an urbanizing area of about 22,500 persons in southeast Washington County, the ligard Water District provides water to the Cities of Tigard (80%) and King City as well as some incorporated areas inside the Urban Growth Boundary on Bull Mountain. Since May 1980, the district has also served the �... ' City of Tualatin with wholesale water. This will continue until Tualatin establishes its direct connection to the Portland system in 1983. Sources of Water, Tigard Water District Sources of water include the Clackamas River (City of Lake Oswego), Bull Run, (City of Portland), and district-owned deep wells. Tigard Water District is the only water purveyor in the county with a multi-source supply system from three (3) independent sources. This district is also capable of receiving water from the City of Beaverton in cases of emergency. Beaverton recently became a part-owner in the Hillsboro - Forest Grove Utility Commission which obtains its water from the Upper Tualatin - Trask River complex. Percentages of amounts of each type of water consumed over the past six (6) years are shown as follows: Fiscal Year Well Lake Oswego Portland 1976-77 33% 65% 2% 1977-78 20% 71% 9% 1978-79 22% 62% 16% 1979-80 24% 47% 29% 1980-81 14% 60% 26% 1981-82 7% 81% 12% -11- x Total water Consumption for the past six (6) years is shown below: Fiscal Cubic % increase Year Feet MGD or decrease 1976-77 101,302,200 2.08 + 5.3% 1977-78 105,429,500 2.17 + 4.1% 1978-79 111,946,000 2.30 + 6.2% +7.1% ay. 1979-80 123,843,900 2.54 +10.6% 1980-81 124,846,700 2.57 + 0.8% 1981-82 144,064,700 2.96 +15.4% Projections for water consumption in the future are as follows: MGD 1985 1990 1995 2000 Average Daily Demand 3.2 3.6 3.9 4.2 Peak Day Demand 8.0 9.0 9.8 10.5 Regarding an assured future water supply, the district has five (5) years remaining on a 10-y►ear contract with the City of Portland. It appears that a new 25-year agreement will be executed by both parties within a very short time. Lake Oswego has been providing water to the district since 1973. Along-term contact is presently being negotiated and Lake Oswego has given assurances that it will supply the district to the best of its ability for as long as possible. it is envisioned that there will always be sufficient waterit tis this source for at least nine (9) months of the year. After 1990, projected that Clackamas River water will continue to be the district's primary source of supply, but the total quantity provided will decrease is successive years thereafter. At that time, more Bull Run water will be required to meet peak demand periods, Distribution System, Tigard Water District During the 1970's the district completed upgrading of the distribution system by installation of new cast and ductile iron pipelines, all appropriately sized, and completed circulation loops. As a result, excellent pressures and flows exist throughout the system and water losses have been reduced significantly from 30% in 1970 to less than 5% the past four (4) years. Such capital improvements have increased fire flows which were instrumental in obtaining a Class 3 fire insurance rating for Tualatin Rural Fire Protection District. The water system accounts for 39% of this rating. Storage Capacity, Tigard Water District., In accordance with State Health Division requirements, a water purveyor Should have on hand three (3) days average consumption. In the year. 2000 the average -MGD. Therefore, 12.6-MG (3 x 4.2) of daily demand is projected to be 4.2 storage should be available. -12- ■ With the recent completion of a 2.5-MG reservoir, located at S.W. 135th and Fern Street, the district has 20-MG's of storage on hand, well above the requirements of the health division. It is noted that this additional storage capacity provides a backup supply of water during peak demand periods. i It is envisioned that no additional storage will be required prior to year 2000. Metzger Water District i; Currently, Metzger Water District, which provides water service to about twenty percent (20X) of the City of Tigard, serves a total area with an estimated population of 18,500 in a still-developing portion of east Washington County. By the year 2000, the district expects to be serving a population of 25,000 with an estimated annual average demand of 3.0-MGD. The district's 1979 _Water System Stud (CH2M Hill) reports that to meet year 2000 needs, Metzger will have to add 4-MGs to its existing 4.7-MG's of storage capacity. The study also includes a recommended capital improvements program which is being used as a guide in scheduling its activities. Metzger's existing distribution system is termed "reliable" in the 1979 study. There is an ongoing program, however, to replace all substandard asbestos cement and steel pipelines with ductile iron pipe. The largest lines will; be installed in the southern part of the district in order to provide better service to customers in the vicinity of the City of Tigard. Metzger's primary, and only, source of water supply continues to be the city of Portland (Bull Run), with which the district signed a 25-year contract in 1980. To meet the long-range goals established in the water study, Metzger approved the issuance of General Obligation bonds totaling $4.75 million in 1980. These funds will accomplish all necessary capital improvements to meet the water demands until year 2000 and perhaps beyond. Under construction at the present time are two (2) steel tanks with a total capacity of 4-MG's. A vigorous pipe replacement program is in progress which will upgrade the distribution system. Probably the highest expenditure of funds will go toward funding a pro-rata share of construction of a 60-inch ' gravity main across the City of Portland. This will assure Metzger of a long-range source of water and, at thesametime, be afforded the opportunity _ to purchase Bull Run water at a substantially reduced unit cost from Powell " Butte. t t rr ; -13- V. SEWER SERVICE The importance of wastewater collection and treatment facilities in influencing urban growth patterns would be difficult to over-estimate. In the Tigard area, the potential health problems created by untreated sewage flowing into Fanno Creek caused a moratorium on development in the late 1960's and early 1970'x. The need for sewer service was the catalytic factor leading to incorporation of the City of Tigard in 1961. The sewer service crisis in the Fanno Creek basin was a fundamental cause of the formation of the Unified Sewerage Agency (USA) in 1970. By 1976 this regional service district has completed the critical elements in the Fanno Creek sewer system. j E The earlier treatment of human bodily wastes was to dispose of them in cesspools or septic tanks. the latter of which gradually converted this material to harmless organic compounds while isolating it from surface and ground water. Many homes in the Tigard Urban Planning Area rely upon septic systems, and some new homes still in the County are being installed with these systems. Unfortunately, historical experience and the best available evidence on the suitability of local soils, indicate that all future urban development should be served by sewer systems. Existing areas with a record of septic ! system problems should also be required to hook-up with local sewer lines. FIS GS o availability of sewer lines is now the single most important pu s controlling the direction and pace of urban growth. o In orde ore efficiently use existing vacant land within already developed -.the network of trunk sewer lines shoulc ' scompleted before there a significant extensions to non-urbani ,areas. o There are residents in Tigard Urban Planning g that have or have had failing septic sys The extent of the s system failures and concomitant health hazar be greater t his indicated by county } records. As the area de the prob _ '"m'is bound to become more conspicuous. Local authoritie a Cit igard, the Unified 'Sewerage Agency, and the Washington Coun Department) may not have the legal discretion to avoid this so to the issue of failing septic systems On the other hand t ^1 hardship of enforcing. these f' regulations on some property o canno ''j,gnored. o The existing system by septic tanks ar Mored appears to have serious defects tha ed to be remedied. ing to some soil ; scientists, for nce, the dye method of g septic tank contamination is equate. o Washington y's existing and proposed large-lot zoning de ons in the Tig an Area (and to the west on Bull Mountain) may perm tic k syste at may fail. Developments in these areas should eit e re to have public sewer service or have larger lot sizes than ed or envisioned. -14- iP 'i. ce area boundaries and to plan major waste water ti fa ' ies. The City recognizes and assumes its responsibilor opera planning and regulating waste water systems as d ated in MSB' -te Water Treatment Management Component. 4. Where the s capacity is limited, the City w' reserve its remaining rani sewer system capacity to those as within the City. 5. Where the system is n imited, the City t gh its own lines and in cooperation with U. may provide ction and/or treatment services to unincorporat :. Washington my if line or system capacity exists in accordanc th the is annexation policies. 6. The City will coordinate close �h Washington County to prevent the installation of septic tank s in areas where sanitary sewer services should be and are b p d for as part of either the City's proposed Comprehen Sewe lan or U.S.A. 's Capital Improvement Programs. 7. The City will monito a inflow of storm er into the sanitary sewer system to en that unacceptable leve y, f infiltration are reduced. If nec ry, a program will be init d, to reduce the levels of infil ion. r S. The purpos f Policy 7.4.4 and related policies i to permit pre-exist_' development utilizing septic tanks or of landfill sewage ; posal methods to continue to use such method til a chary f use occurs, a new main structure is erected, or un uch met are declared unlawful or hazardous by the agency g j adiction. For all development activity not utilizing sani er, the City may require a waiver of remonstrance to the Tutu uncal improvement district for sewer facilities= Unified Sewerage Agency (USA) The Unified Sewerage Agency (USA) was formed in 1970 with the authority to collect and treat sewage in the rapidly urbanizing portions of Washington County (including all of the Tigard Urban Planning Area). By the fall of 1976, it had completed the Durham treatment plant and the Fanno Creek Interceptor which brought wastes to it from throughout the Fanno Creek basin. The opening of the treatment plant permitted closure of the old plant along North Dakota Street, formerly operated by the Metzger Sanitary District before it was superseded by USA. Additionally, USA constructed additional elements of the planned collection system. The Upper Tualatin Interceptor, linking Sherwood with the Durham Plant, was constructed in 1979. This interceptor permits gravity flow in the area south of Little Bull Mountain to the Summerfield Trunk. City of Tigard Collection System " I Tigard operates and maintains its own collection system and formerly had its own treatment plant. With few exceptions, its lines are limited to the -16- l incorporated territory. The City has sufficient capacity in its gravity lines to handle expected future development in each basin. Septic Systems Prior to the 1960's, when new and tightened controls on water pollution were I enacted and the Tigard area began growing very rapidly, development was largely on septic tanks. Although there are now relatively very few new septic tanks being installed, some of the older systems are starting to fail. The primary causes of these failures are the inherent physical limitations of the soils and the hydrologic impact of urbanization. State rules prohibit installation of septic system drainfields where the depth to the seasonal perched water table is less than 2 feet or where a restrictive layer lies less than 2 1/2 feet below the surface. On steeper land (12%-25%) the required depth to the impermeable layer increases with slope to 4 feet. Drainfields are prohibited on slopes in excess of 25%. However, as urban development increases runoff, the seasonal water table rises, drainfields which initially met the state standards can be flooded and effluent released onto the surface, causing odor and posing a health problem. According to the Soil Conservation Service, virtually all of the soils in the Tigard Urban Planning Area posses characteristics which "severely" limit their suitability for septic tank systems that will function successfully. Only very minor portions are "moderately" or "slightly" limiting. The City, therefore, requires connection to a public sewer by all new developments. The County requires puL ',z sewer service for all new developments except residential subdivisions on 30,000 square foot lots in areas zoned R-30 (R-1) anti on 40,0`1 square foot lots in areas zoned RS-1 in Washington County. Records of the Washington County Health Department document the fact that failures of existing septic systems are relatively frequent in Tigard, especially in the unincorporated areas. The two perennial problem areas are in county areas of NPO #3 (lower northeast slope of Bull Mountain) and NPO #6 (lower northeast slope of Little Bull Mountain). The County Health authorities have verified numerous septic system violations along the entire length of McDonald Street, several on O'Mara Street, and others at residences on Murdock and View Terrace and in many other areas in Tigard. County and state enforcement p,.ocedures have eventually forced the owners of failing systems to make corrections or repairs, but the intervening period when the effluent is escaping can last for many weeks or even months, and the repairs may make the system only temporarily effective. The failure to septic systems will continue, and probably increase in severity and frequency, as they age and as the area urbanizes. Legal means by which the problem can be reduced or eliminated are available. Unincorporated areas where septic systems routinely fail can be compelled to annex to the City in order to be connected with City sewers. State Health hazard annexation procedures are availably:. Under USA rules and regulations (Section 5 of Resolution #70-12), buildings within 300 feet of a sewer line must be connected to it no later than 3 years after it becomes available, or earlier if ar-?» red. I -17- • s i VI• POLICE PROTECTION The City of Tigard Comprehensive Plan contains the following policies concerning police protection. INDINGS i As in other cities around the country, Tigard crime rates are increasin . o the City of Tigard continues to grow there will be a continued to i ase police protection service. POLICIES ! 7.5.1 THE SHALL COORDINATE EXPANSION OF POLICE PROTEC , SERVICE AND FACIL WITH THE OVERALL GROWTH OF THE COMMUNITY j 7.5.2 AS A PAR THE ONGOING DEVELOPMENT REVIEW, T TY SHALL: a. REQUIRE LE IDENTIFICATION SIGNS TO *IST EMERGENCY VEHICLES IN LOCATIN E AREA OF THE PROBLEM; ; b• UTILIZE DEFEN SPACE CONCEPTS; i .E IRE THE TI-AR -LICE DEP TO REVIEW DEVELOPMENT PERMIT APPLICATIONS M IMPLEMENTING STRATEGIES 1. As part of the Tigard unity lopment Code, crime prevention ' provisions will be inc d in: a. The Land Divi section of Code; and the and Community Development b. The Site sign Review, Planned Deve nt and Conditional Develop sections of the Tigard Communi includ velopment Code to 1) quirements for "visible identification to assist mergency vehicles in locating the area of th blem; Defensible space concepts; and 3) Provisions requiring the Tigard Police Department to iew development permit applications. 2. rior to approving or supporting an annexation proposal, theC' R will make certain that the proposed area can be adequatelserve with police protection. y } t, r �gg 1 a a served, City will coordinate with the If the area canno applicable police de _went `City, poecify any corrective measures that e lice department, or persons would have to be takP proposing the annexation re the annexation takes place. 3, The nature and o olice services will be subject to ' ity police department for evaluation coordinated mong by th and long-rang nning. 4. The City strive to reduce ci n methods in fear of, and susceptibility to crime ugh increasing awarenes crime prevention dev ent, and involving the enti ommunity in crime prevention p ams. to its citiz through a force of 29 The City provides police protection of whom are sworn officers. The Was ington County Sheriff's persons, 22 tion for the unincorporated areas within the City's Department provides protec Urban Planning Area. ime rates for both the City and County, Following data shows the aggregate cr reported as number of offenses per 100,000 population. 1981 { 4,826.8 f Washington County 7,304.0 City of Tigard ,. "Analysis of Grime in Oregon, 1981", Oregon Law Source: Analy Enforcement Council, Law Enforcement Data Systema Tigard crime rates are increasing. The As in other cities around the country, g following table shows the breakdown among the various types of crime over the past seven years. TABLE V Murder Robber Assault Bur lar Theft Aute ft TOTAL Year Mu Rape_ ------� k 1975 0 0 8 59 119 518 43 837 61 1976 0 4 13 E 178 548 60 862 50 V 1977 1 2 10 239 559 72 933 62 1978 0 10 17 t 153 578 40 860 79 1979 0 6 20 250 648 61 1,064 69 1980 i 6 20 270 534 49 947 83 1981 1 6 20 323 624 46 1,103 Source: City of Tigard Police Department, 1982. —19- i fi i The table indicates that both burglary and theft and assault rates have been increasing steadily over the years since 1975. However, murder, rape and robbery rates have stabilized for the last three years. Auto theft fluctuates over the years. The increasing crime rates can be attributed to the rapid growth and development of the City including increased City's territorial size, population and business activities. This fact has lead the Tigard Police Department to develop a Growth Impact Strategy to deal with personnel need based on growth and work load. The special distribution of reported anti-social behavior generally reflects the local concentrations of: (1) property, (2) people, and (3) crime-prone population age groups. The Tigard Police Department's maps of burglaries, thefts (including automobiles), and criminal mischief show that private businesses (especially shopping areas), dense residential areas, and junior and senior high schools all have fairly large numbers of police calls. I Further, activities of the Washington County Department of Public Safety and 1 the Tigard Police Department are coordinated on a daily basis. The Washington County Law Enforcement Col:.ncil also meets monthly to establish and maintain joint programs of cooperation and coordination among the jurisdictions. s VII FIRE PROTECTION Fire protection in the Tigard Urban Planning Area is the responsibility of two agencies: the Tualatin Rural Fire Protection District(TRFPD)- and Washington County Fire District # l(WCFPD #1). The jurisdiction of TRFPD encompasses most of the area, with the latter (WCFPD #1) covering part of the northwest (west of 125th and north of North Dakota) and north (north of North Dakota and Spruce). Through cooperative agreements, they receive assistance from the City of Beaverton, City of Portland and City of Lake Oswego.. The nuality of fire protection services is independently assessed by the Insurance Services Office of Oregon,- which measures such factors as water supply, equipment, personnel, and communications. The standard grading schedule assigns deficiency points to each factor and then relates the composite numerical score to one of ten insurance classes. A Class 10 rating is equivalent to no fire protection at all and a Class 1 rating is the highest potentially available. Fire insurance premiums are based on these ratings, so the better (lower) the rating, the lower the costs of insurance. Most of the City of Portland has a Class 2 rating - the best rating found in the state. The portions of Washington County Fire District #1 which have fire hydrants (within 1000 feet) have a Class 3 rating. The Tigard Urban Planning Area within, the TRFPD has a Class 3 fire insurance rating in hydrant areas. It should be noted, that first aid calls constitute more than half of the runs made by the ,fire districts in the Tigard area. -20 w 3. The'nature S 's or evaluation and Tualatin Rural Fire Protection District The TRFPD, which was organized in 1948, includes a much larger area than Tigard (see map), which is only the most urbanized, northern part of a district that includes Tualatin, King City, Sherwood, Wilsonville, the southeastern corner of Washington County, and most of Clackamas County north and west of the Willamette River. There are three stations of the TRFPD serving the Tigard Plan Area: in the centers of Tigard, King City and Tualatin. Tigard: 1 station, 1 engine, 1 ladder, 1 volunteer engine King City: 1 station, 1 engine, 1 rescue (with paramedics) Tualatin: 1 station, 1 engine Under the insurance grading schedule, fire engines are permitted a running distance (radius) of 1 1/2 miles for commercial areas and 4 miles for residznt,al areas. Almost all of the district, within the Tigard Urban Planning Area, is within a 2 mile running distance of at least one of the three stations. The District also has Mutual Response Agreements with Lake Oswego, Washington County Fire District #1, Beaverton, and Portland to ensure that sufficient apparatus and personnel are dispatched to any call. The Lake Oswego station (Lake Grove) is located one mile east of the Washington County-Clackamas County line at the Interstate 5/Upper Boones Ferry interchange. The closest Washington County District #1 station is at Scholls Ferry Road and Hall Boulevard (Progress), less than one mile from the Plan Area. The south Beaverton substation is one mile north of Scholls Ferry Road and 135th. Portland's Engine #18 is 2 1/2 miles northeast on Capitol Hill. Additional back-up support is available from other TRFPD stations and, through Mutual Aid ' Agreements, from all Washington County and Clackamas County Departments, Portland and Newberg. These mutual aid responses constitute a significant amount of activity, especially in connection with Lake Oswego and Washington ; County District #1. In 1981, for example, the TRFPD gave or received a mutual aid response with Washington County District #1 an average of once every 5 R days. At this time, the TRFPD has initiated plans to build or relocate stations or add equipment or personnel in the Tigard Urban Planning Area. In addition, the TRFPD and Washington County Fire Protection District #1 are considering plans for the functional consolidation of some of their services. WashingtonCounty Fire Protection District #1 The WCFPD #1 serves the small part of the Tigard Urban Planning Area north of the TRFPD. The Progress station on Scholls Ferry Road, north of Hall f -22- r 2 ..� + ♦ 1 i I .1 r :1 `I to ,dial _ {: N+ •1•� 11 [. i F(E 1 t 1r •N la +h Naf NGTO C — • p � 's M+^+ I = ro.r FIRE DISTRICT f -° 1 •r BOUNDARIES aW., �. FIRE DISTRICT BOUNDARIES c NNu++ • C«w« , CITY FIRE DEPARTMENTS EXISTING FIRE FIRE STATIONS — _ 1 �i i �I, . PLANNED FIRE STATIONS EMI is Aj r eti' e MAN � �.,�Vagar EM •% ' nor Mm " I , • . STATION RELOCATION I • �NuoN• Nmuu••nne•wN•". ,. " r 1 URBAN GROWTH BOUNDARY Rod Source: Washington County 1 Planning � TYe�a�lfl o a IIMW ILO RF.P�•i 1 - 1 Department, 1981 punw•n a - - f VAM LL CO , l ••O+• W Z• [1loosestWNI NORTH wis tom•--� .w•wuuwuugwuu.a. i r (� Boulevard, rdsponds to calls in this area. The District has Mutual Response Agreements with the TRFPD, Portland and Beaverton. Running times are the lengthiest (4 1/2 minutes) to the vicinity of Jack Park off Walnut Street. The Beaverton Engine #6 from the corner of Brockman and Davies Road usually is first-in to 135th and Scholls Ferry as well as the area mentioned above. However, the WCFPD #1 does not regard this service pattern as a significant problem and is satisfied with current district boundaries. The Tigard station of the Tualatin district also responds relatively quickly to calls in this area. Hydrant areas have a Class 3 fire insurance rating, with the rest having Class 4. All buildings relating to fire protection are required to meet Fire Life Safety requirements of the Uniform Building Code. Although the fire districts have a 100 foot ladder truck, the use of the ladder may be restricted due to building location or design. If such is the case the fire districts require those buildings to be of fire construction and sprinkled to assure fire safety. VIII. PRIVATE UTILITIES The Tigard Urban Planning Area is served by four private utilities providing communications and energy: General Telephone, Pacific Northwest Bell, Portland General Electric, and Northwest Natural Gas. To continue to meet area needs, some additional facilities and modifications to existing facilities may, on occasion, be required. Such necessary changes should be acknowledged by the City when the utilities seek to maintain or improve their operations. The timing of some utility construction activities, the laying of natural gas pipelines, for instance, should be integrated as closely as possible with public construction projects in order to avoid wasted duplication of efforts (e.g. atreet paving). F NDINGS o ilities such as natural gas, electric and t e are provided by to utility agencies. o Thereneed for deve: art capital improvement plan to coordinat rams developed by pu nd private utilities. POLICY 7.7.1 COMMUNITY LAND^RJET SHALL BE COORDINATED WITH PRIVATE UTILITY AGENCIES TO TY OF SERVICES WHEN NEEDED. i f IMPLEMENTATIOlffRATEGIES 1 e City will work with all private utilities, utilities, and other public agencies which work in public rights (e.g. City -23- Y and 'Caunty pu e artments) to hat each utility is provided with plan s, edules outlining any anticipated construc f public streets. 2. The Community Deve ode shall pr r the review of such facilities tations, receiving and ng towers, and othe ed under Major Impact Uttiilities an ) through the c onal development process. Energy Utilities Portland General Electric (PGE) PGE is the only provider of electricity in Tigard. It has no generating facilities in the area and only one bulk power substation (west Portland) in the northeast corner of the Tigard Triangle (NPO #4) south of Pacific Highway. Electricity is brought into, and through, the area via 115 kilo-volt transmission lines. These are located along the length of Pacific Highway; paralleling the length of the Southern Pacific Railroad; 66th Avenue - Hampton Hunziker; and Pine Street to 80th Avenue, and then north. There are four distribution substations in the Plan Area. Progress - northern NPG #2 (west of Cascade Blvd.) Tigard - southern NPO #2 (Johnson off Pacific) Western Foundry - northern NPO #5 (east of Hall north of Fanno Creek) Unified Sewerage Agency (customer-owned) - southern NPO #5 (USA treatment .:' plant) There is another distribution substation just beyond the Tigard Urban Planning k ' Area near King City (north of the Tualatin River). A major regional transmission corridor lies west of the Tigard Urban Planning Area (along .4 150th). ' Northwest Natural Gas There are three feeder gas pipelines in the Tigard Urban Planning Area. Along Scholls Ferry Road. Along 82nd from Oak to Pine, Pine to Hall Blvd., Hall to Hunziker, to 72nd and east along Bradbury Court. Walnut from 135th to 132nd, 132nd and then southeasterly to Gaarde, Gaarde, McDonald to 103rd, Murdock to 100th, Sattler to 98th, Durham to Upper Boons Ferry Road, Findlay Road to Bradbury Court. Distribution lines are located along most streets in the area. Communications General Telephone Almost all of the Tigard Urban Planning Area has telephone service provided by General Telephone (GTE). A portion of northeast Tigard is serviced by Pacific Northwest Bell: northeast part of the Tigard Triangle and a slice of territory across the northern part of NPO #4 and including a small area in NPO #2. -24- Major routes 'for communication lines -generally follow the principal streets in the area (e.g. Pacific Highway, Greenburg Rc?.d, Hall Boulevard, etc.). Increasing population and economic activity in Tigard keep GTE occupied in expanding its facilities, such as adding additional cables. About half of the existing communication lines are buried cables or underground conduits and the firm is in the process of converting to more conduits. IX. SCHOOLS The City of Tigard and a large area beyond Tigard's Urban Planning Area are served by the Tigard School District 23J and the Beaverton School District 48 (see Map). The Tigard school system is composed of nine eleman;;ary schools, two intermediate schools and one high school. The capacity of each school and present enrollment figures are listed in Tables VI-IX. Also included is the acreage of each facility. . The Tigard school district educ-ates nearly all Tigard children who attend public school. The children who live in the extreme northern portion of Tigard reside within Beaverton School District. Although this number is small (258 out of the 6,790 total) the new residential development in the northwest portion of the City car. be expected to increase Tigard children's �. participation in Beaverton School District. FI NGS o cation and development of school facilities has a sign' t impact on r ntial development, transportation system location development `. of pub cilities and services. o Although the ndaries of the Tigard 23J Schoo rict extend beyond the Tigard Ur b anning Area, the location unction of district's land uses has a ma mpact upon the Tigard Planning Area. o Students in the north. orner of d attend the Beaverton School District #48. :hese it ar s district boundaries raise the following problems: 1 Families living in Tigad i ldren attending Beaverton schools must pay out-of-dist fees reational services to either Tigard or Beaverton 2. Many_of "these families often subscrib. the Valley Times in order to rec Beaverton School District ne The Valley Times does not, ever, cover Tigard news especially ted to public hearings other related land use matters. o Schools h aimajor impact on future land use decisions. -25- r ! '/' � 'e'•. � w•u1s � utr. •. i /l 4�\Y,r N�[O.w N.. .•.: _.�..-.•1 -rte 1\• ♦ '�D t N __- _ r-r _ West �-_ Union y"-� j a cN •atl s f ! t Mill lkn AN �I� t� f �ty� '! ' ...a• Wt V 1 � 4I f �! ♦ eye ' r—_ a V M \ p.�i•' i � ■ b !tt 4• — a it I-AL B !r t3r �-*48 EL wp TON D � m ® _J +; `p �� ■ 1� ' `prof. `mrs61`�\�' f AV _ a .d ..wr ~CaV(NpN n t.+' {t:'•: r* � aqn Be verl fIM — ■ 4 w r =.'ie.I :+1t'-' it . •ejTi ' e O :� • '� I��p 4.ewJfN .MChrf Np ,P N•C(w1 GASSN•w AD a I. ,MT i ww• � �� 1.40 z :lJi `••`N(ii Coo pe � erfM f:,11 �: �• . 8 MVC'Naa wd)=C t: �1�• '1 1. N '� �" �, \t 1/F.Fi ' ■ 't I 1 f yawl / --1 ti it I t %:'t nj -� • • I 5 of tr'' N PJN:;a + JP SCHOOL DISTRICT I �DjS'T�JCT4:93jBOUNDARIES "�K�n9i,�� ■■■■■ 't. �[ rn SCHOOL DISTRICT BOUNDARIES s"P.•1' 1 1 (" / 1O' . ELEMENTARY SCHOOL !' l--1, - 4 b �groe..� l Tualatin I n JR. HIGH OR HIGH SCHOOL A.0 I!Q ' COLLEGE OR UNIVER.1ITY P�.•rw. er * ,. \ I� N m-PUBLIC SCHOOL AD:ACENT SCHOOL DISTRICTS URBAN GROWTH BOUNDARY w� �.....,��' Source Washington County Planning Dept.-198 h1T::� r TABLE VI TIGARD SCHOOL DISTRICT 23-J School Capacity, Enrollment 6 Acreage In 1981-82 Facilities Capacia Enrollment Excess Capacity Acreage Elementary Bridgeport 350 * 332* 18 14.08 Charles F. Tigard 588 508 80 10.00 Durham 147 127 20 5.00 Edward Byron 564 640 -76 19.81 James Templeton 588 558 30 12.00 Mary Woodward 172 153 19 10.35 Metzger 490 475 15 6.00 Phil Lewis 441 405 36 12.00 Tualatin 466 568 -102 12.00 i SUBTOTAL 3806 3766 40 101.24 Secondary Fowler Jr. Hi. 800** 753 47 37.00 Tuality Jr. Hi. 950 795 115 10.00 Tigard High 1500 1218 282 40.00 SUBTOTAL 3250 2766 444 87.00 TOTAL SYSTEM 7056 6532 484 188.24 Source: Tigard School District #23-J, 1982. * Next year projection ** Next fall projection i All of the children who live in the northwest portion of Tigard attend Beaverton schools. E Although this number is small (258 our of the 6,790 total), new residential development in the northwest portion of the City can be expected to increase ' Tigard children's participation in Beaverton School District. The following tables indicate the number of Tigard children attending Beaverton schools. The existing school district boundary between Tigard and Beaverton school districts was established around 1910. Since that time the Cities of Tigard and Beaverton established Scholls Ferry Road as the boundary between the cities. The irregular school district boundaries has raised numerous problems related to out-of-district recreational fees. For example, all of the Beaverton school district, except the area within Tigard, is within the .,/ Tualatin Hills marks and Recreational District. l None of the Tigard city limits or planning area is within this district, and therefore more of the residents of Tigard who have children attending -27- >> facilities without paying an Beaverton schools can use the Tualatin t residents also de of the out-of-district fee. In addition, e touse that e district's slfacilities Tigard school district and the ability without the out-of-district fee. 4 public problem caused by the irregular district boundary relates or Another portion of notification. Many of the families who live in the northwest p Tigard subscribe to the Valley Times rlther than District t informat n. since a all the i Valley Times carries Bea Tigard's public notice in imattersn tResidents in ether northwesterly are often not as informed on City but to area have made atteo changave e these school district boundaries, date none of these attempts TABLE VII BEAVERTON SCHOOL DISTRICT 48 School Capacity, Enrollment & Acreage In 1981-1982 Projected 1985 Excess Facilities Capacity Enrollment I acit Acrea a Enrollment Elementary 254 154 6.4 332 - 366 McKay 408 �._ Seco�tdar Whitford 963 37 29.0 831 - 877 Intermediate 1,000 1,768 132 20.44 2,026 -2,088 Beaverton High 1,900 t Source: . Beaverton school District_s_rict #48, 1982 3 -28in,- m+.aM'�r'�" y 4 r t t TABLE VIII STUDENT COUNT ;,Y GRADE OF CHILDREN_WITHIN TIGARD CITY LIMITS September 30, 1981 1 22 `{ Grade 1 21 k Grade 2 {$ 24 Grade 3 18 Grade 4 l 26 Grade 5 20 Grade 6 24 Grade 7 30 Grade 8 20 Grade 9 r 21 Grade 10 17 Grade 11 , 15 Grade 12 258 Total Ibetween Fanno ® Area south of Scholls Ferry to Tigard School District Boundary, Creek and 135th Avenue. there is an excess capacity of about 7 percent. Within the school system, Secondary schools are operating at 85 percent of their listed capacity, while elementary schools are operating --*- About 99 percent capacity. at the elementary school leve:, capacity problems I As . the data indicates, while exist. Two schools (Edward Byron and Tualatin) have exceeded capacity, ,fw le an the rest of the schools have near capacity in recent years. additional elementary school finally led to the establishment of year. School which will commeBridgeport nce operation during the 1982-1983 academic Locational Criteria for Beaverton School Sites the Beaverton School District completed a demographic In the summer of 19$2, homes, multiple family survey of single family, attached single familyin dwellings and condominiums. As uC t aent'his s populations lationstudy, the facinrsnew housing IX will be used to project Table developments. JA �d 29- ; TABLE IX STUDENT POPULATION PROJECTION Beaverton School District SINGLE FAMILY .44 elementary students per dwelling .20 intermediate students per dwelling .13 high school students per dwelling .76 total school-age students per dwelling j ATTACHED SINGLE FAMILY .18 elementary students per dwelling .05 intermediate students per dwelling .04 high school students per dwelling .26 total school-age students per dwelling MULTIPLE FAMILY .09 elementary students per dwelling .04 intermediate students per dwelling .04 high school students per dwelling .17 total school-age students per dwelling CONDOMINIUM .03 elementary students per dwelling .02 intermediate students per dwelling F .03 high school students per dwelling i .09 total school-age students per dwelling I total Some .numbers may riot to�o� due to rounding. + s t X. HEALTH SERVICES i Hearth services planning in the Tigard area is primarily the responsibility of Northwest Oregon Health Systems. However, existing services are very generally summarized here. There are 35 physicians and surgeons and 26 dentists currently practicing F _medicine within the Tigard Plan Area as well as a Washington County Health Department Clinic. There are no hospitals in the Plan Area; the nearest are Meridian Parkin Tualatin, St. Vincent north of Beaverton, and the University y of Oregon, Veterans Administration and other hospitals in Portland. -30- . The Tigard-King City area contains three nursing homes: Tigard Care Center 112 beds Canterbury Crest Sanatorium 27 beds King City Convalescent Center 148 beds TOTAL 287 beds The local fire departments also provide important service. More than half of their runs are for medical emergencies. Fin in s 0 ough there are care facilities with the Tigard Urban Planning Area, T dos primary health service needs are served by those facilities thr out the Portland Metropolitan area. o There two major hospitals in close proximity to the City t. Vincent' ch is less than 15 minutes driving time and Merid" ark which is 1 han 10 minutes driving time. POLICY 7.9.1 THE CITY SHALL: a. ENCOURAGE COOP ON BETWEEN LOCAL, ST FEDERAL AND PRIVATE AGENCIES IN PLAN AND PROVIDING FOR TH AND RELATED SOCIAL SERVICES; AND b. PROVIDE THE OPPORTUNIT THE SSARY HEALTH SER7ICES TO BE PROVIDED WITHIN THE CITY HE PROVISION OF THE COMMUNITY DEVELOPMENT CODE. ®,.. TMPLEMENTATION STRA2EGIES 1. As part of the Communi mwvelopment Code: a. Hospitals will permitted as conditional elopment in all 4/ esidential a ommercial development districts. b. Group c facilities will be permitted outrig 4n medium, mF*4 * edium and high density residential districts a emitted as c tional development in low density residential dis s. c. cal offices and clinics will be allowed at least in comm istricts. XI. LOCAL GOVERNMENT FACILITIES q Major municipal facilities include: � -31- f I L o City' Hall, which accommodates all administrative functions such as administration; finance, planning, public works and building. o Police Department. o City Shop, which is adjacent to the City Hall. This facility also performs park maintenance functions. o Library, which is located on Main Street. The analysis of '"igard's existing administrative facilities and centralized services indicates that there is a need for more space. Thus, in the past several years the need for a civic center has been identified by the City as a priority problem. Previous efforts to secure funding of such a facility have been unsuccessful, but the difficulties associated with existing facilities have become more and more pressing with the community's rapid growth. Civic center concept has been approved by City Council in May, 1982, however, the funding for the project has not been approved by the voters. FINDIN o The cu space owned by the City for administrative ces does not meet the s eeds of the City. Therefore, the Cit rently rents the needed space ministrative purposes. o The City has rente a in a building whic geographically centered in the community. POLICY 7.10.1 LOCAL GOVERNMENT ADMINIS N F ' ES SHOULD REMAIN CENTRALIZED IN THE CENTRAL BUSINES RI T. IMPLEMENTATION STRATEGY 1. The City continue to locate its facilities, when feasible, in a ` locatio tral to all residents of the City. f c y XII. LIBRARY O o Increa -32- POL 1.11.1 THE- �WHE�REECO�N �FB�E, PROVIDE FOR LIBRARY SERVICES W IDOF SIDENTS. IMPLEMENTATION STRA , y .l 1• shall continue to work with the to provide adequate li ary services. r The Tigard Public Library is in a relatively central location at the west end of Main Street. As of June, 1982 card registration totaled 8,900. f The library system contains about 23,500 volumes which shows an increase of about 19% since 1977. While the gross number of volumes is not an adequate measure of a library's level of service, it is one important indicator. The existing book stock is essentially limited now by the capacity of the building housing the library. f i Following table shows the drastic increase in library services since 1977. i TABLE X i GENERAL LIBRARY INFORMATION 1977 1982 Card registration 4,540 8,900 Users of library 11,350 13,350 Library volume 19,700 23,500 £, Circulation 77,384 109,000 s � The registration has also increased by 48% since 1977. The library system is open to the public 48 hours a week and is operated by a staff of 4 full—time, 3 part—time, and 14 volunteer personnel. The library operates an outreach program which includes delivery of books to individual homes by 3 volunteers, and deposit collections which are set up once a month in King City Library and King City Convalescent Center (nursing home). i The Tigard Library's service area includes (in addition to all residents of the Tigard Plan Area): King City, Bull Mountain, Metzger and Durham. Other libraries in surrounding communities include those in Beaverton, Tualatin, Sherwood, Lake Oswego, and Capitol Hill (a Multnomah County branch library on } Capitol Highway south of Interstate-5). The Capitol Hill library is the closest, but is not available for free use by Washington County residents. Library service has increased as a result of the Washington County Cooperative Library Service (WCCLS) serial levy. This greater funding permitted an expansion of staff, purchase of 5,000 volumes, and other improvements. A WCCLS serial levy to run from 1979 to 198.4 was approved by the County electorate in May of 1978. F. 1 XIII. SOLID WASTE DISPOSAL AND RECYCLING F INGS o r capita generation of solid waste has been increasing. A considerable ction of the level of solid waste disposed of in landfills ca atn e ed by recycling, particularly through the use of source separio e o The ling of solid waste conserves limited natural resour and energy. t t o The stora and disposal of hazardous substances are lems of increasing p concern. t o The Metropolita rvice District (MSD) has been des' ated with the primary responsib y of finding a solution to the posal of solid wastes, which isa Tonal problem. Metro mainta' a regional solid waste management plan ch is used to guide activit' such as the search for new regional land and planning of solid a transfer stations, resource recovery plants, d recycling programs. ` o Collection of solid waste n the City is andled by private firms operating under mutually excl a franchise ted by the City Council. ;n o City policies and strategies rs� ding solid waste management must include recognition of Metro's p ry in planning and coordinating j solid waste disposal for the region ovisions which will help achieve the regional objectives of reducing amount of wastes that need to be disposed of in sanitary landfills. POLICIES ( �. . + .n oc nnnv uqT vaDOL T �'RVICE nTQTRTL ' (MSD) 7.12.1 THE CITY SHALL RE.,w. ETR I T S gg RESPONSIBILITY AND AU °KITY TO PREPARE ,A r ac^LEr 17n A SOLID WASTE €. MANAGEMENT PLAN, WILL PARTICIPATE THESE PROCEDURES AS APPROPRIATE. 7.12.2 THE CITY SHALL IDE THE OPPORTUNITY TO ES SH A PERMANENT, FULL-LINE RECYC G CENTER THROUGH THE PROVISION THE COMMUNITY DEVELOPMENT C THE LOCATION SHOULD BE NEAR T ENTER OF THE COMMUNITY AND ULD BE OPEN EVERY DAY. IMPLEMENTATION ST GIES 1. /City ill promote the recycling of solid waste. Such res giving financial incentive to solid waste collecto 0 d the establishment of an internal paper recycling pro l and City Maintenance facilities. r 2. will work with MSD and the State DEQ in adequately the future needs for solid waste disposal in Tigard and County. -34- M • 1 Solid Waste Most of the solid waste now collected in Tigard is hauled to distant landfills where its components are unavailable for reuse or recycling. Local recycling efforts are rather meager. Regional solid waste management efforts will soon result in the construction of a Resource recovery Facility and generate electricity and reduce the volume of material deposited in landfills. Existing landfills are being rapidly filled to capacity, and there are very few suitable sites for new landfills. Waste Generation Existing data does not permit a reliable calculation of the total amount of solid waste generated in Tigard. Recent regional data can give an indication of the magnitudes involved, however. The Tigard Plan Area was divided by MSD into four waste generation zones which included other areas, so the zone estimates are of little use. For the region as a whole, residential waste comprised about half of the total (53X) in terms of weight. The average residential waste generation is 2.28 pounds every day per person. That corresponds to almost seven (7) pounds (6.84) every day for a three person household. For the Tigard Plan Area, that means about 45,600 pounds of solid waste every day, or almost 23 tons (22.8). No increase in the per capita generation rate is expected in the future. (This is based on 1978 data.) t Refuse Collection Threeprivate firms hold exclusive franchises with the City and County to collect solid waste in the Tigard area. They generally provide routine garbage collection, drop box special loads, compact waste and recycle newspapers. Service areas have been convoluted and indistinct in some areas in the past. However, the City has redrafted its franchise ordinance to create clear service boundaries. These boundaries provide for the following division of the Tigard Plan Area. Killer's aa►ta.taiy uca.vlCc _ a.va,u.un Tigard (north half of IJD(1 P' UD(1 #2 north of N. Dakota and west of Greenburg and NPO #4 east of Hall and north of Pfaffle and Pacific). Schmidt's Sanitary Service - Southern Tigard (southern 3/4 of NPO #6 south r of Murdock and Sattler and southwest corner of NPO #5 generally south of Bonita and west of 76th). Frank's Disposal Service - Central Tigard (including south Tigard ' industrial area and remaining areas not served by either Schmidt's or Miller's). Local Recycling There are just three public recycling centers in Tigard (see Table) and they generally handle newspaper only (with corrugated cardboard and phone books also collected, but each at one site). There are no recycling centers in thecommunity which accept all forms of recyclable wastes. "Full line" recycling centers accept glass, cans, newspapers, cardboard, and motor _oil. According S` s -35- . z to the Portlgnd recycling information switchboard, operated by the Oregon Department of Environmental Quality, the Tigard area is in most need of a recycling center that will handle glass not covered by the state mandatory deposit law. That office receives frequent requests for information about such a facility in Tigard. The closest full-line every-day recycling centers are located to the east and north of Tigard: at Lake Oswego High School and at Oregon Episcopal School (see Table). Regional Disposal and Recycling t The three local garbage collectors currently haul collected wastes 15 to 20 miles away, or 30 - 40 miles for a roundtrip by truck. Miller's and Schmidt's now transport refuse to Rossman's Landfill in Oregon City, while Frank's waste material is hauled to the City of Newberg Landfill. St. Johns Landfill in north Portland is also being used, which can meet the need for a few years. However, the metropolitan area lacks a long-term landfill disposal capacity. The Rpssman's Landfill is scheduled for closure this summer, for instance. The Metropolitan Service District (MSD) was created in 1970 to solve regional solid waste disposal problems. In 1977, it adopted a plan for a processing facility where wastes would be separated and the combustible portion burned to generate electricity and also reduce the volume of waste to about one-tenth of its original volume. Toward this goal, a site for a Resource Recovery Facility has been selected in Oregon City and the garbage-to-energy plan is expected to begin to operate in 1985, and it is estimated that about 2/3 of the total wastes can be disposed of by this technique. k s With the St. Johns Landfill closing in a few years, Metro is seeking permits ' for a new landfill in northwest Multnomah County. With resource recovery operating, the new landfill would last for 25 years. Without the ! burner, the landfill would be good for about 16 years. garbage , i Tying the system together will be transfer stations. Metro plan to construct transfer stations at various locations in the region to increase the efficiency and economy of tihe ..� solid waste management system. Transfer stations are enclosed faciliies where commercial collectors and private citizens can dispose of their garbage, which is then transferred in large trucks to either a landfill or resource recovery facility. Transfer stations save energy by reducing trips for garbage collectors. They also provide a k cOnieraientplace to recycle, each transfer station will have a full-line recycling center as part of the facility. Therefore, they allow for improved landfill management by providing an interim point for directing garbage to the proper disposal site. Current proposals call for Metro to construct one transfer station on the east side of the region, one on the west side (probably in Washington County), and a limited transfer station on the resource recovery site in Oregon City. This f limited station will accept garbage from haulers as well as the general public. When the resource recovery plant opens, the haulers will go directly_ to that facility and the transfer station will serve only the public. w TABLE XI RECYCLING CENTERS IN TIGARD AND ADJACENT AREAS* Tigard 72nd at Pacific Highway (Fred Meyer) open every day Western Fiber 9285 SW Greenburg Rd. -weekdays i 12830 SW Pacific Highway (Davidson's Frost-Top Drive-In) Operated by Tigard Lions Newspapers - open every day Adjacent Areas Lake Oswego High School - 2501 SW Country Club Road Full-line (glass, cans, newspaper, cardboard, motor oil) - open every day West Coast Fibre Supply, Inc. 8440 SW Hall, Beaverton Weyerhaeuser Company Resource Recovery Plat 10950 SW 11th, Beaverton k * Revised 8-20-82 7.8.4 Efforts shall be increased in developing a coordinated recreation program. Existing Facilities - In Tigard As discussed above, there are a multitude of recreational opportunities available to Tigard residents throughout the Metropolitan area. However, for public convenience and also for energy conservation purposes it is desirable - to have parks and recreational facilities located in or near local neighborhoods. i Within the incorporated boundaries of Tigard, the City currently owns 66.34 acres of park land. In addition to the recreation space provided by the City parks, there are several acres of recreational space provided by the local schools (See Table ). There are also 201 acres of floodplain and wetlands classified by the City's Comprehensive Plan as "Greenway" or non-buildable for urban development. They are, however, suitable for pathways and non-intensive recreational uses. The City has acquired, through dedication and purchase, 55.53 acres of greenway property. Within the City, the combination of City park land, school recreational space and greenway provides a ratio of recreation and open space in excess of the National Recreation and Parks Association standard of 10 acres of park land per 1000 people. Even when the entire plan area population (approximately 18,000) is considered as probable users oflocalfacilities, the ratio is 12.15 acres of potential parks and open space available per,1000 people. -37- € TRANBP R i ' N Comprehensive Plan Report C17YOF T11FARD WAS COUWY,OREGON ADOPTED BY CITY COUNCIL JANUARY 25, 1983 ORDINANCE NO. 83-04 I. INTRODOCTION This report is an analysis of the existing Transportation System, and of the future needs in the City of Tigard. This analysis will be applied to LCDC Goal #12 Transportation Goal requirements and the Metro RTP will form the basis for the City's transportation plan. Goal #12 states: 1 To provide and encourage a safe, convenient and economic transportation system. A transportation plan shall (1) consider all modes of transportation including mass transit, air, water, pipeline, rail, highway, bicycle and pedestrian; (2) be based upon an inventory of local, regional and state transportation needs; (3) consider the differences in social consequences that would result from utilizing differing combinations of transportation modes; (4) avoid principal reliance upon any one mode of transportation; (5) minimize adverse social, economic and environmental impacts and costs; (6) conserve energy; (7) meet the needs of the transportation disadvantaged by improving transportation services; (8) facilitate the flow of goods and services so as to strengthen the local and regional economy; and (9) conform with local and regional comprehensive land use plans. Each plan shall include a provision for transportation as a key facility. a Transportation: refers to the movement of people and goods. Transportation Facility: refers to one or more transportation facilities r that are planned, developed, operated and maintained in a coordinated manner to supply continuity of movement between modes, and within and e between geographic and jurisdictional areas. Mass Transit: refers to any form of passenger transportation which carries members of the public on a regular and continuing basis. Transportation Disadvantaged: refers to those individuals who have difficulty in obtaining transportation because of their age, income, physical or mental disability. The overall consideration in transportation planning is to provide a safe, convenient and economic transportation system which has easy access to all areas within the City and to the major transportation systems connecting with the City. it is based upon coordination with other elements of the Comprehensive Plan and the Metropolitan Service District's Regional Transportation Plan (RTP), which in turn relate to the LCDC Statewide Planning Goals. Other portions of the Comprehensive Plan considered in the formulation of this plan include: Economy (Goal #9), Energy (Goal #13), and Air quality (Goal #6). Although, the automobile will most likely remain Tigard's dominant means of travel during the planning period (1980-2000), this report willconsider all modes of transportation which are economically feasible within the Tigard a" _l_ area, and those systems within Portland Metropolitan Area that effect the Tigard area. The other transportation modes besides the automobile, include public transportation, railroad systems, and bike and pedestrian, systems. This report will not consider water, air or pipeline transportation because none of these transportation modes traverse or bound the Tigard urban planning area. Transportation Assumptions In any planning effort, there are underlying assumptions that assist in the formulation of policies and implementing strategies. In regards to transportation, these assumptions include; 1. Because of the diverse number of vehicle trips per day that are taken by Tigard residents, the automobile will remain the most dominant source of transportation. 2. MaMj .,f the primary (collector streets) transportation corridors within the City of Tigard are currently developed below city standards, and thus inadequately service both current and future traffic demands. 3. Within the City of Tigard there are numerous employers with over fifty(50) employees and not all of the employees of these firms reside within the Tigard City Limits. 4. People will become increasingly more energy-conscious because of continuing high fuel prices. This factor may increase public transit ridership. It is assumed that most of this transit travel will be from Tigard to Portland's inter-Tigard trips. core area and not an increase in ,4 5. Bicycle and pedestrian pathway systems will result in some reduction of automobile trips within the community. These modes of travel could replace short vehicle trips for shopping purposes. 6. Transportation planning for the City of Tigard must be conducted in cooperation with other local and regional jurisdictions e.g., Washington County and the Metropolitan Service District (MSD). 7. Social and environmental concerns will continue to influence transportation routing and development. 8. Most of the population and employment growth during the planning period (1980-2000) will occur in the suburban areas rather than the Portland urban core; thus putting more pressures on the suburban transportation systems. It may also have the effect of creating longer trips, i.e., a person lives in Tigard and commutes to work in Portland. l -2- _v . i Within the remaining sections of this report, each of these assumptions will be addressed, either through the available data or the policies and implementation strategies. it is important to note that transportation i planning problems cannot be solved within just the Tigard area. In the Tigard i® area a safe, convenient and economic transportation plan will only be achieved through a coordinated effort of other state, regional and local agencies. At a minimum these other agencies include: Washington County, the Metropolitan Service District, the Oregon Department of Transportation, and adjacent cities in the southwest area of the Portland metropolitan area. , -3- III. FUNCTIONAL STREET CLASSIFICATION The transportation system within the City of Tigard is facilitated by a heirarchy system of streets which are defined below. In discussing a street classification system there are several factors that need to be considered. These include: The capacity of the system needed based on volumes of traffic; existing streets and proposed street standards that would accommodate projected traffic volumes through traffic versus intercity traffic; and land use. In addition to the above factors that need to be considered, Tigard's transportation system must be coordinated with the Metropolitan Service District's adopted Regional Transportation Plan (RTP). "The objective of the RTP is to identify a transportation system that will adequately serve the travel needs of the fast growing Portland Metropolitan area." The specifics of the RTP as it affects Tigard, and Tigard's role in transportation planning as stated in the RTP are discussed in Section IV - Street improvements in this report. MSD further states that "The RTP includes criteria for a highway classification system and adopts a map delineating the principal and w:::jar arterial components of the system. In accordance with this, local jurisdictions are required to adopt a map delineating the various highways in their jurisdiction and in so doing, are recommended to adopt MSD's classification categories and definitions. In adopting a highway system, local jurisdictions must provide for Metro's adopted principal routes and major arterials and designate an adequate minor arterial and collector system to meet the following criteria: a. The minor arterial/collector system must adequately serve the local travel demands expected from development of the land use plan to the year 2000 to ensure that the Principal and Major Arterial System is not overburdened; and b. The system should prov;de- continuity between adiacent and affected ,Jurisdictions (i.e. consistency between neighboring Jurisdictions, consistency between city and county plans for county facilities within city boundaries and consistency between city and ODOT plans). MSD's Minor Arterial and Collector system will be adopted from the locally adopted systems." In addition, local jurisdictions must ensure that their designed minor arterial/collector system provides the desired level of traffic service. Toward this purpose, local jurisdictions must identify in their Comprehensive Plan sufficient investments in transportation capacity to ensure its arterial system can adequately serve ac least the travel demand associated with MSD's year 2000 popular-:,Dn and employment forecasts, and provide at least the + highway level of service defined as minimum desired in the RTP (See Table I). -11- G {� The components of the Tigard street classification system take into account the definitions of RTP. However, Tigard's classifications differ from the RTP in the following ways: 0 Tigard's "Arterial Route" defiaition dues ixv% distinguish Principal, Major and Minor Arterials, although the varying arterials in the Tigard area are listed according to RTP definitions; and 2) The City's 'Major Collectors" cross over into the RTP's definition of "Minor Arterials." Although there are word=ng changes within Tigard's street classification definitions, the intent of these classifications is to complement the definitions in the RTP. 1. Arterial: The primary functions of an arterial route are to serve through trips entering the urban area (metropolitan area), and are intended to provide a high level of mobility for travel within the entire metropolitan region. All trips from one community or subarea through an adjacent community traveling to other points in the region should occur on a major arterial or principal route. it is desirable that it be a multiple-lane street with access/egress traffic controls at carefully selected intersection points. Standards: Right-of-Way Width 60-90 feet Pavement Width 12 feet per lane } Moving Lanes 2 4 Volume 6,000 20,000 vehicles per day Driving Speed 40-55 miles per hour ' * These figures were obtained from a travel survey conducted by the Columbia Regional Association of C-overnments in 1977. a { v 'f 2. Major Collector: The primary function of a major collector is to collect and transport traffic from a number of local neighborhoods to one or more arterials. In addition, these facilities are primarily oriented toward travel within and between adjacent subareas, and provide connections to major activity centers within the area. It should have a sainimal number of controlled access points and may have two or more travel lanes; have fairly direct arterial to arterial connectors; and provide for relatively rapid movement of traffic. In doing this, the likelihood of local streets being utilized for through traffic and cross-town travel is lessened. Traffic controls should be utilized at intersections with arterials, major and minor collectors. A secondary function of this classification should be that of providing a means for pedestrian and bike travel. Parking may or may not be provided. Standards: Right-of-Way 60-80 feet Pavement Width 44 feet Moving Lanes 2 - 4 Volumes 1,500 - 10,000 vehicles per day Driving Speed 35-40 miles per hours 3. Minor Collector: The primary function of a minor collector is to collect and transport traffic from local neighborhoods and abutting property out of the neighborhoods to major collectors and arterials. The minor collector should provide an efficient circulation pattern within the neighborhood for distribution of traffic to local streets as well as the major collectors and arterials. A secondary function, is to provide a means for pedestrian and bike travel. Parking may or may not be provided. Standards: Right-of-Way Width 60 feet Pavement Width 40 feet Moving Lanes Volumes 500 3,000 vehi:ai.s per day Dr'.V ing.Speed, 25-30 wiicu per u.,uL 4. Local: This street classification's primary function is to provide direct access to abutting property and to allow traffic movement within a neighborhood. Local streets should also emphasize and provide for pedestrian and bike travel. Standards: Right-of-Way 50 feet Pavement Width 34 feet Moving Lanes 2 Volumes 0 - 1,500 vehicles per day Driving Speed 10-25 miles per hour �. Cul-de-sacs 40 foot radius turn-around and 400 feet maximum length. The City shall provide, as part of its Development Code, for an exceptions process to the adopted street -standards, upon consideration 'o'f the Transportation Policy of this plan. -13- TABLE I HIGHWAY OBJECTIVES AND PERFORMANCE CRITERIA 1. Objective: To maintain a system of principal routes for long distance, high speed, statewide travel. Performance Criterion: The off-peak travel time for statewide trips within the region, from each entry point into the region to each exit point should be equal to or faster than today of the off-peak travel time for statewide trips within the region from each entry point to the I-405 loop should be equal to or faster than today. 2. Objective: To maintain a reasonable level of speed on the region's freeways during the peak hours. Performance Criterion: A peak-hour speed no slower than 35-40 mph during the morning and evening 90-minute peak periods (equivalent to the maximum service volume at level-of-service "D"). 3. Objective: To maintain a reasonable level of speed on the region's freeways during the off-peak periods. Performance Criterion: A peak-hour speed of no slower than 45-50 pmh during the highest volume typical mid-day hour (equivalent to level-of-service "C"). 4. Objective: To maintain a reasonable level of speed on principal and arterial al routes during the peak-hour. Performance Criteria: Peak-hour average signal delay should be not longer than 40 seconds during the peak 20 minutes (equivalent to level-of-service "E") and no longer than an average of 35 seconds (level-of-service "D") during the balance of the morning and evening 90-minute peak. 5. ( tive: To maintain a reasonable level of speed on principal and &r%eiiaa routes during the otl-peakperiods. Performance Criterion: Average signal delay during the off-peak periods should be no longer than 25 seconds during the highest volume typical mid-day hour (equivalent to level-of-service f , F' -14- 2 { Existing StrS9ts According To Each C assificatlon With these definitions and set standards, the City of Tigard has a realistic functional street classification system with which to provide a concise, straight forward answers for both the City staff and the citizens of Tigard. Adherence to these standards should only be set aside when a particular situation fully meets the requirements of the variance procedure, and that variance should be for the entire street. The following is a list of streets classified under the proposed standards: 1. Arterial: Pacific Highway (RTP - Major Arterial) Interstate 5 (RTP - Principal Arterial Route) Highway 217 (RTP - Principal Arterial Route) Hall Boulevard (RTP - Minor Arterial) Durham Road (from Hall Blvd. to Upper Boones Ferry Road)(RTP Minor Arterial) Upper Boones Ferry Road (from south of Durham Road)(RTP - Minor Arterial) Scholls Ferry Road (RTP - Major Arterial) 2. Major Collectors: Beef Bend Road Bonita Road Bull Mountain Road Burnham Street k Cascade Avenue i Durham Road (Pacific Highway to Hall Blvd.) Gaarde Street Greenburg Road Hampton Street Hunziker Street Main Street McDonald Street MurdockStreet )from 97th Avenue to 98th Avenue) Tiedeman Avenue - Upper Boones Ferry Road (from 1-5 to Durham Road) Walnut Street 68th Park Way (68th Avenue) 72nd Avenue 97th Avenue (from Murdock Street to McDonald Street) 98th Avenue (from Murdock Street to Durham Road) 121st Avenue (from Scholls Ferry to Gaarde) 135th Avenue (from Scholls Ferry Road to Walnut Street) -15- A: r4 ,. p i xF ({ 4 F ky r 3. Minor Collectors: j Alderbrook Drive Ash Avenue (from Burnham Street to 100th Avenue) Canterbury Lane Commercial Street (from 95th Avenue to Hall Blvd.) Fonner Street Grant Avenue (from Tigard Street to Walnut Street) Johnson Street (from Grant Avenue to Main Street) Naeve Street (from Pacific Highway to 109th Avenue) .*Garth Dakota Street (from 121st Avenue to Greenburg Road) O'Mara Street (from McDonald Street to Hall Blvd.) Park Street (from Pacific Highway to Watkins Avenue) Pfaffle Street Pinebrook Street Ross Street Sattler Street Shady Lane Springwood Drive Summerfield Drive Tigard Street (from Tiedeman Avenue to Main Street) Watkins Avenue (from Pacific Highway to Walnut Street) 79th Avenue (from Bonita Road to Durham Road) 92nd Avenue (from Durham Road to Cook Park) 95th Avenue (from Shady Land to Commercial Street) 100th Avenue (from Ash Avenue to McDonald Street) 110th Avenue (from Gaarde Street to Fairhaven Street) 115th Avenue (from Gaarde Street to Fonner Street) 128th 'Avenue 4. Local Streets• All other streets, unless duly noted, are considered Local Street and classifie.J as a�the F t GG -16- r IV. STREET IMPROVEMENTS The term street improvements may involve any of the following: 1. The dedication and construction of new streets. 2. The upgrading of existing substandard streets. 3. Providing traffic safety measures such as turning lanes and signals. There are two levels of street improvements. Those made in accordance with the Regional Transportation Plan and those made in accordance with the City's plan. The Metropolitan Service District's Regional Transportation Plan (RTP) includes a number of highway projects targeted at enabling the Principal and Major arterial streets to meet the year 2000 travel demands. These projects will be implemented by local jurisdictions and the Oregon Department of Transportation (ODOT) based on available funds. The RTP sets forth guidelines for programming of these facilities. Further, the RTP requires the city to assure that the designated minor arterial and collector streets will be improved to a level which will meet the year 2000 travel demands. The second level of street improvements are those required to maintain the collector and local street system. Generally, new streets are dedicated and constructed by a developer. The problem arises where there are existing substandard streets. Improvements may be made in a number of ways. They can be funded from the city budget, a local improvement district can be formed, or if it is a generally undeveloped area or an area in transition, street dedications and improvements can be required as part of the development approval process. Traffic safety measures can also be required as a condition Y of approval provided it can be shown that the development created the need for the measures. Therefore, the street improvement process requires the city to adopt street design standards which relate to the various street classifications and to adopt policies related to other improvement. 4!� Proposed Collector Street Improvements As the City of Tigard continues to grow towards the year 2000 and 'beyond, additional collector status streets will be needed to adequately move the traffic flow. T;e Metropo l4tan Service District's Regional Transportation r---- Plan (RTP) states that nearly 72% of all vehicle trips within the Metro area Are expected to be internal trips within subareas. Tigard is within the Southwestern Subarea which also includes King City, Durham. Tualatin, Sherwood and Lake Oswego as well ,as portions of unincorporated Washington and Clackamas Counties. In the Tigard area, however, over 65% of the travelassociatedwith this area is oriented to the north and northeast, and approximately 30% of all trips remain entirely within the district. The RTP also states that there will be a "strong trend toward the suburbanization of employment and residential development." This thought is further reinforced by other transportation planners across the nation who state that "both jobs and households will increasingly be located in the suburbs, where the dominant transportation problem in the next two decades will be."* *Source: "The Implications of DemographicChangeson Transportation Policy," �0 Journal of the American Planning Association, Frank Spielberg and Stephen Andile, Summer 1982._17- ,y Most of the radial or arterial routes within the Tigard vicinity, which are under State jurisdiction, will accommodate traffic expectations during the planning period. According to Metro's transportation modeling stated in the Regional Transportation Plan (RTP), Pacific Highway, 99W, is the only major corridor in the Tigard vicinity that will not adequately accommodate expected traffic volumes for the year 2000 if left in its current condition. The Metropolitan Service District and the Oregon Department of Transportation has indicated that a corridor study will be forthcoming. The major transportation links that are now inadequate within the Tigard area are the collector systems, which connect the local neighborhood streets to the arterial systems. This deficiency means principal arterials - I-5, Pacific Highway and Highway 217 - are forced to carry an unbalanced mixture of regional and local trips. This reduces the principal arterial function and capability of each facility. The deficiencies become more evident when reviewing the potential densities planned for the westerly portions of the Tigard vicinity (Bull Mountain and 135th) and the potential employment (job accessibility) within the area, especiclly the easterly portion of the City (the Tigard Triangle area and the Hunziker and 72nd area). For example, the area west of Tigard's existing City limits, north of Bull Mountain Road and south of Scholls Ferry Road, is planned at densities to accommodate approximately 2550 additional units (approximately 5900 people) by the year 2000. In addition, the projected employment growth projections for the entire Tigard area, indicate that there will be about 11,500 potential (6,000 of these jobs will be in the Tigard Triangle industrial area) jobs by the year 2000. y Auto travel is expected to increase from a 1980 estimate of approximately 98,000 vehicle trips per day to in excess of 170,000*. As of present, the majority of these trips will have a northward destination. Shifts from the 1980 pattern will primarily consist of a larger number of trip productions " < remaining entirely within the district. LackinR road improvements, major congestion will continue to develop along Highway 217, Highway 99W, and I-5. This will cause traffic diversion to internal streets such as Hall Boulevard, Durham Road, and Beef Bend Road. Isolated problems will also occur in the vicinity of new development, the impacts of which should be assessed as each of these come on the line. Diagrams I and II indicate the daily and peak-hour trips expected for the year 2000 from the Tigard area. A five-fold increase in the use of transit from today's 2600 daily trips to in excess of 13,000 will be necessary if the road system is not to completely collapse. Major shifts in the directional distribution of transit can be anticipated. While express service to the downtown Portland area would appear to be a viable option, other needed improvements would include service eastward into Clackamas County and improved internal circulation. *Source; MSD Regional Transportation Plan. -18- k TABLE II r 1980-2000 20-DISTRICT POPULATION AND EMPLOYMENT GROWTH Population Employment . 1980 2000 Change 1980 2000 Change District 1 10,690 14,890 +4,200 82,140 128,450 +46010 District 2 314,500 329,710 +15,210 175,560 210,400 ' +34,840 District 3 79,400 102,170 +22,770 70,160 80,430 +10,270 District 4 76,950 93,670 +16,720 24,750 38,350 +13,600 District 5 77,970 134,27- +56,30n 1.9,500 39,180 +19,680 District 20 5,840 6,330 +490 800 930 +130 Total Mult. Co. 565,350 681,040 +115,690 372,910 497,740 +124,830 District 6 64,300 67,930 +3,630 26,990 36,890 +9,900 District 7 17,650 41,050 +23,400 13,410 36,980 +23,570 District 8 43,390 70,060 +26,670 10,290 22,330 +12,040 District 9 24,560 40,730 +16,170 - 10,120 15,730 +5,610 District 10 19,450 40,290 +20,840 74,00 21,280 +13,880 District 19 72,590 104,810 +•32,220 11,100 18;340 +7,240 Total f Clack. Co. 241,940 364,870 +122,930 79,310 151,550 +72,240 ® 680 7 .450 15.980 +8,530 District it 13,270 .29,950 +16lo/ UV District 12 29.470 46,020 +16,550 21,350 32L860 +11,510A r---e "10 �9 A Z R A District 13 72,910 84,330 +11,420 48,"3'3^0 72, ,�� Ty=,380 District 14 57,720 104,740 +47,020 10,040 33,760 +23,720 District 15 30,970 59,320 +28,550 11,790 27,570 +15,780 District 16 19,440 30,750 +111310 5.530 10,100 +4,570 District 18 21,650 28,500 +6,850 2,970 4,890 +1,920 Total Wash. Co. 245,420` 383,610 +138,180 107,460 197,870 +90,410 Total Clark Co. 192,300 310,410 +118,110 59,140 122,830 +63,690 SMSA Total 1,245,020 1,739,930 +494,910 618,820 969,990 +351,170 District 12 - Tigard/Bull Mountain 1 {i • ;J �j i •.' t ! � 1 �+�is pC.«• ••.r ~« • •^"'if :.'. » _- ",• •„ !'i•� 1F�'_' �: 'cs.in. �t £ ❑�fw1.. ..« "3 3•<`,r "•�'(..� � "ti+..:ti» .c ��~ s r. Un r. 1 --41 w» ► r`r f ..��}~t • :• w ;iw, -r. t 5.,� 2 a ♦ Z..'. l.'♦- W Ln • j —� .. s r� r , 2 j it i ,�♦ Q�� Qom,,, „ y v, - .r,.., .,.. .� _ � t _ _ Bi I Op is ee n t ♦ ....,., w ..«. w" �LAJ � ��-- i`'`. tr•lr•�.•1'j1 -l• " P zW r- i Ln po -50 Uj r1 t y 1 �E •wry d. i i t`i.. � .r-yr�p,�•w ( i t� .� t —1 =Ott W t ` 5i r M t e �' I S de 4- < , VA ON Ui r O r n Q T r M 'y iia,: (I ,,.,R. , •� 31 I i t j ♦ I �' source: Washington County Planning Department. '"'"F �+ ''"'•we .mow, it/F: 1:.F r Z,n.. •�;- �- IX 00 - / l V�•`''.,ww• * •` ;- _.✓''= is •. f.....n.. - / 61 V. '/ i ti•J- -� w.w y,f f+. a f+r••'••,• N,` . •�• ••.•yr'�.�• iE F i �•�� •�J ++ s w^ Z ,.,• 1 f !\ S y` i` 1(}' i d le 1'rt, o '1O ,�� k at N r- 1 ••+.._fel 1 Z ¢. 00 + I•' •«�-_-- !is O a 4- ww F _rV .`.-`,, ` ' __[{).'(Jrl�-w..r jf } ♦ .. �Y ,r--r �-f � � rr^� +«rJ� w«+ww•'� (�" � 4. t } -�d•�~�� •�o j.(•�1" � r•.4 ` �r •� �., .rye .t wr+ / �T`.a� /p_Cy lf1,ZrMi_1`� ?= 1 fr• W 5 1 +..:CJ •a 1J • t • �Y f v -��' � J 1 ` F t`�y2�•1' q F 1 ,• i Y 01 < .•. . C N gr JI s ! W a = ; C ... O In CO 0 r vr+a 0. i i`�_ ,,.ate•r.r-.-+• 00 a s. i • rn.rw i� + + J i \ s.y� `�,. �-•... � W is r a + w"•""'_w� - - � �1t � W a (� o12 .w Ar 1 Source: Wahington County Plannin¢ Department% A i To meet the regional and local needs stated in the RTP, the City of Tigard has indicated which collector connections should be constructed. These connections are indicated according to the various Neighborhood Planning Organization (NPO) areas. The specific intent of these collector connections are listed below and are shown on the Comprehensive Plan. Transportation Map. NPO #1• t The minor collector connection needed in this area is the Ash Street connection from the dead-end point south of Fanno Creek to Burnham Street. The actual phasing of this connection is hinged on the development of Hili and Lake Streets to O'Mara. Hill and Lake Streets are designated as local r streets, while O'Mara is designated as a minor collector. The specific policy is addressed in the Comprehensive Plan Policy Document under "Special Areas of Concern." NPO #2: The only minor collector connection needed in the NPO #2 area is the continuation of Commercial Street to 98th Street linking the Greenburg area to the Main Street area. NPO #3: This area interfaces the County's CPO #4 -- Bull Mountain Area which is also within the Portland Metropolitan Urban Growth Boundary. By the year 2000, the overall development of the Bull Mountain area will include approximately 1540 additional dwelling units. These are in addition to the approximately 970 units expected to develop in the NPO #3 area. Based on the land use designations on the CPO #4 Bull Mountain plan map and the land use designations on the NPO #3 plan map, there is a need to establish a series of collector connections to move the estimated 18,000 trips per day from these units to the Peri rine Col lectors and arterial�----o �.. a� ai Strcet CvnncCtlOub.'6' The major resident concern within these areas was that this additional traffic would, be accommodated by constructing a "direct" link from Murray Boulevard north of Scholls Ferry Road south to Gaarde Street. The need for a "direct" c nncc -I seems to be unwarranted because this direct connection Could ce awpotential rapid increase of traffic onto 99W which is already congested oto an unacceptable level as it passes through the Tigard area. Ratifier than a "direct" connection, the City of Tigard has suggested a series of collector connections between Murray Boulevard and Gaarde Street. These collector connections will link Walnut to Eull Mountain Raod and Gaarde to the Walnut/Bull Mountain Connections (See Comprehensive Plan Transportation Map). . To continue the "indirect" route to Murray Boulevard, an additional connection from 135th to Murray Boulevard is also shown. The specific projected daily peak_hour Map. travel trips are also shown on the Comprehensive Plan Transpora.tion t IC *Source: Washington County Computer Estimates based on the MSD Regional Transportation Plan population and employment projections. F -22- ( IVYO #4: The needed collector connection within NPO #4 are located within the Triangle Area. The adopted NPO #4 plan indicates the connections for this area that are needed to provide job access to the commercial and industrial development areas. These inner Triangle Collector links include: 1. A connection between Pacific Highway at 78th south to Dartmouth. Although the exact alignment of this collector connection has not been determined, it is anticipated the alignment will continue in a southerly direction from Pacific Highway and then east to the existing Dartmouth right-of-way. This connection will be continued to I-5 via the proposed I-5/Haines Road interchange. (This interchange is on the construction priority list with the Oregon Department of Transportation; however, the exact timing of this interchange is uncertain at this time); 2. A connection in the form of a loop road from 69th westerly to 72nd, to the Dartmouth connection, (#1 above) then south in an easterly direction to Hampton; and 3. A connection from #2 above to Atlanta to be aligned with 68th. To complete the collector system in the Triangle area, the following streets must be upgraded to minor collector standards: 68th, 69th, 70th and Franklin. NPO #5: The collector system in this area is centered around the industrial areas south of Hunziker and north of Bonita. The connections include: 1. A collector bctw_«�----_ Hunciker and Hall aligning with O'Mara at Hall: �r and 2• A collector from #1 above south to Bonita, east of Fanno Creek. NPO #6: The continuation of Riverwood Lane from 92nd to 108th .represents the only Minor Collector connection needed in the NPO #6 area. 1. The City shall encourage the assumption of jurisdiction from Washington County of DD.erham Road between Hall Blvd. and Pacific Highway. 2. - Durham Road shall not be considered a major arterial route between I-5 acid Pacific Highway. 3. Consideration of use of Eide Road as a connector between I--5 and Pacific Highway shall be encouraged. 3 -23- k 'z 4. Durham Road shall be improved to 2 moving lanes of traffic with the provision for left turn movements. 5. Truck traffic on Durham Road in excess of 30,000 pounds gross vehicle weight shall be discouraged. -- NPO #7: Due to the lack of developed areas west of 121st Street, there are a number of collector street connections needed in the NPO #7 area. All of the collector connections would be minor collectors. These would include: 1. The extension of Springwood Drive west of 121st Street to 130th; 2. The extension of North Dakota Street west of 121st to Scholls Ferry Road; 3. The extension of 130th from Scholls Ferry Road to 128th, and to Falcon Rise Drive; and a �`y { V. TRAFFIC ANALYSIS 1. Traffic Volumes The City of Tigard has a well-established traffic count program which includes traffic count stations to compare traffic counts at given time intervals. In 1979, Straam Engineering conducted a safety study which included traffic counts (Diagram III), and in 1980 City staff conducted an additional traffic volume survey. These tabulations are shown on Diagram IV. f Neither I-5 or Hwy 217 were counted in the most recent traffic volume tabulations. Other State highways includes Scholls Ferry Road (approximately 12,800 Average Daily Traffic (ADT)); Pacific Highway, ranged from 19,400 to 39,500 ADT; Hwy. 217 (approximately 81,100 ADT); Hall Boulevard ranged from 5,200 to 10,700 ADT and Upper Boones Ferry Road averaged about 6,000 ADT. In addition, the following streets have over 5,000 and 2,500 Average Daily t Traffic: 5,000 ADT: 1. Greenburg Road (7,000 - 11,700 ADT) In 2. Main Street (6,700 - 9,600 ADT) Im 3. Hunziker Street (5,600 - 7,50 ADT) Im 4. Durham Road (5,200 - 5,800 ADT) Un All of these streets are classified .as Major Collectors. 2,500 ADT: 1. Walnut Street (121st to Pacific Hwy) - (3,100 - 4,560 ADT) In 2. Bonita Road - (2,650 - 44,650 ADT) Un 3. 72nd Avenue - (2,500 5,000 ADT) In 4. 121st (3;860 - 4;200 ADT) In 5. Gaarde Street - (Pacific Hwy. to 116th) - (2,500 - 3,140 ADT) In 6. Tiedeman Street - (2,335 - 4,180 ADT) In 7. McDonald Street - (3,050 - 3,600 ADT) In 8. Bull Mountain Road - (1,900 - 3,810 ADT) Un All of these streets are classified as Major Collectors. Road Condition Unimproved NO - Rural standards: 10 foot travel lanes with no shoulders; Major Collector Capacity: 3,000 Average Daily Trips (ADT); Minor Collector Capacity: 2,000 ADT. Interim (In) - Interim maintenance standard, overlay program; 12-foot travel ,area with minimum shoulders;. possible bikepath; Major Collector Capacity; f 5,000 ADT; Minor Collector Capacity: 3,000 ADT. 4 Improved (Im) - City standards; 12-foot travel lanes, curbs and sidewalks, lighting and traffic control; Major Collector Capacity 10,000 ADT; Minor Collector Capacity: 3,000 ADT. -24- ' I DIAGRAM III f 1979 TRAFFIC VOLUMES AVERAGE DAILY TRAFFIC rIGARD 8 VICINITY r� Jl/%I • 44 54 y{ _/ it♦ '`l ` '! ....- t •. l �}�%y .�r' rte`!�.�. • A .1 " . __� .. •� 1'irr «n ,yL�� .. _ '�,r..�.[«b ij� ri) .•i,r+ •.•� t• •n« 1 8{ r...l�y,�1'lri+., j{ ;117 11s1�w 1 >� •a« 't 1� �.`1• ^ {•meq .moi we Ork fs, t tU� �� •irar ' t ..�• , � 4.��s��' ..sl; IS"�.sisyerr��.a�,w.r' ..fir A. s� s • «a ( a «r Source: Straam Engineering Traffic Safety Study, 1979. 1 41 DIAGRAM IV � ♦� � � .. 1980 TRAFFIC VOLUMES AVERAGE DAILY TRAFFIC 1695 14.152 1635 ` _„ ))) 3401 49"F 114 5 2080 9381 r� .�e ! r *. �+;� I @5151 2495 •� a . w! R a� 14232 e « . •• ~!Ltd: 1936 P. 6105 © :!.,N' f 3735 9 57 &' 3175 \ � 3650 . 4526r 5646 a 7250 "a �. 582, 3995 - 3277 398 � 2629 2850 © J ) 9I 970 ; 1435 , j 1126 90 6 947 1� •�� 5319 `II 7967 T r dr '25 R' f _67 ii --_fes. :i:- �' � ( � � ��• I _ I All of these traffic volumes were taken between May and July of 1980 by the r City of Tigard Public Works Department. I' e � 2. Levels of Service The level of service provided by a street involves several major factors, including: i 1. Speed and Travel Time 2. Traffic Interruptions and restrictions 3. Freedom to Maneuver 4. Safety 5. Driving Comfort and Convenience 6. Economy • Two basic measures are used to measure levels of service: Travel speed and Six Levels of Service (A-F) are the ratio of traffic volume to capacity. defined accordingly in Table III. TABLE III ROADWAY LEVEL nF SERVICE, DEFINED Level of Service Operating Conditions A Free flow, low volume, high-operating speed, high maneuverability. B Stable flow, moderate volume; speed somewhat restricted by traffic conditions, high maneuverability. Stable flow, high volume; speed and Ctraffic maneuverability determined by conditions. D Unstable flow, high volumee-s; tolerable but and fluctuating operating speed ® maneuverability. -ow, volumes approaching E (@30 mph), Unstable .,.�, o- high roadway capacity, limited speed intermittent vehicle queuing. F Forced flow, volumes lower than capacity due to very low speeds. Heavy queuing of vehicles, frequent. In the determination of these levels of service, it is assumed that the intersection is the most restrictive point on a roadway And, therefore, capacity for a street section is a function of the capacity of the intersection. The computations of intersection capacity are based on such parameters as intersection width, signal phasing, -txuck and bus movements, etc. Once the capacity of a roadway is computed, it is compared with the actual vehicular volumes to determine if the volumes (V) exceed the roadway z i.e. V/C is greater than one.) capacity (C)( -27- 3. Street Problem Identification Three criteria were used to identify problem areas on the Tigard street system: congestion, accidents, and roadside hazards. t A. Congestion Congestion, as defined for the purposes of this study, is considered to be: t 1. A signalized intersection which operates at a level of service "D" or worse 2. An unsignalized intersection which meets signal warrants as specified by the Manual on Uniform Traffic Control Devices (MUTCD). 3. A section of roadway which exceeds 1,200 vehicles per hour during the peak hour. The initial intersection volume is computed in terms of intersection lane vehicles per hour (ILV/hr.). Table IV relates critical lane volumes with the different levels of service. TABLE IV ROADWAY LEVEL OF SERVICE, TRAFFIC VOLUMES Traffic Volume (ILV/hr.) Level of Service 0-900 A 901-1050 B 1051-1200 C ,N1 i-ACO D LLVL-Loa 1351-1500 E 1500- F e An example of this technique is shown in the intersection of ^ree And 99A. Five signalized intersections, all on 99W, were analyzed. The and are shown in Table V. As can be seen from this table, three of the intersections, 99W/Ball, 99W/Johnson and 99W/Greenberg, operate at a level of service D and, therefore, experience some congestion. r TABLE V CAPACITY ANALYSIS 1979 Traffic Volume Intersection (ILV/Hr.) Level of Service 99W/Johnson 1215 D t 99W/Hall 1335 D t 99W/Greenburg 1140 C 99W/217 south- B bound off ramp 1030 99W/Bull Mtn. 1050 B/C The second criterion used in the identification of congestion problems was the determination of those intersections which meet signal warrants as established by the MUTCD. The MUTCD has established a set of eight criteria or warrants, one or more of which must be meet before a signal may be installed at an j intersection. In 1979 study 14 intersection were investigated and out of those 14, 9 were found to meet one or more signal warrants. Those intersection were as follows: 99W/59th 99W/Pfaffle 99W/217 northbound off ramp 99W/Walnut 99W/Park 99W/Beef Road Hall/Hanziker Greenburg/Tiedeman Scholls Ferry/121st Six of these intersections were scheduled for signalization during the fall of 1979, as a part of the 99/W TSM improvements and were completed by ODOT. A seventh signal was placed at 121st and Scholls Ferry. The final criterion was the determination of sections of unsignalized two-lane roadways, other than 99W, which exceed 1,200 vehicles per hour (vph) during the peak hour. There was no two-lane roadway found to exceed this critical peak/hour volume. Scholls Ferry Road, near 135th, was found to have 1,188 vph and was the highest peak/hour volume count found on any two-lane local road in r the Tigard area in 1979. -29- B. Accidents i The major emphasis in the analysis of traffic accidents is the determination ¢ of cause, whether it be natural or man-made. During the analysis, therefore, it is of utmost importance to eliminate those accidents which are most likely to have occurred by chance. Accident rates (as opposed to raw frequency) are considered a more significant means of identifying and comparing degree of accident hazard, because they take into consideration exposure which absolute frequency does not (i.e. , one I would naturally assume that a location having more traffic would experience more accidents). At the time of this report was written the amount of "daily" entering vehicles was not available. However, the actual number of accidents that occurred within numerous Tigard intersections are listed in Table VI. The accidents rates of 1978 are shown in Appendix II. To the year 2000 only the 99W corridor through Tigard will be considered an unacceptable trafficway with continued congestion problems between Walnut Street and Highway 217. In addition, 99W is still the only major corridor in the Portland Metro Area that a complete corridor study has not been done. As shown in TABLE VI entitled ACCIDENTS ANALYSIS BY INTERSECTION, the highest occurrence of accidents occur along 99W, and those intersections between Walnut Street and Highway 217. To avoid these congested intersections, motorists are using Durham, Hall, and Greenburg Rd. which places more pressure on these peripheral routes, many of which are adjacent to residential areas. C. Roadway Hazards Roadway hazards were noted which were considered to impair the safety of those using the roadway. Problems which were considered hazardous included: 1. Fixed objects within zlose proximiYV of the roadway; this includes bridge abutments, trees, signs, utility poles, etc. 2. Pavement defects, lack of proper shoulder, or unprotected ditches. 3. Inadequate sight distance caused by poor roadway alignment, vegetation, or other objects. 4. Improper or inadequate traffic signing or pavement marking. According to the Manual on Uniform Traffic Control Devices (ISUTCD), signs (or other fixed objects) should be no closer than 6 feet from the edge of roadway shoulder or 12 feet from the roadway if no shoulder exists. In urban areas with curbing, a minimum of one foot from the curb face is allowable. Sight distance standards are considered to be a function of stopping distance, which 'varies with speed. For the purposes of this report, the minimum stopping site distances were considered to be 200 feet at 30 mph, 275 feet at 40 mph, and 350 feet at 50 mph. i -30- i Current difficulties with transportation systems in the area can be basically categorized in germs of those related to safety and/or efficiency. Since 1971, according to the 1979 Traffic Safety Study, less than 40% of the identified hazards along Tigard streets have been eliminated, leaving many of these hazards to threaten human life and limb. The efficiency of the transportation systems-the ease with which objects and people are moved-is the other basic criterion of its success. In Tigard many of the major streets are inefficient because most of them have not been improved to their designated standard, or because the designated standards are inadequate to the demands for their use. Excessive demand on limited facilities is responsible for peak hour traffic congestion on several streets. TABLE VI ACCIDENT ANALYSIS BY INTERSECTION CITY OF TIGARD 1981 Intersection Accidents 99W/Hall 23 99W/71st/'Villa Ridge 20 99W/Greenberg 15 99W/69th 14 99W/Bull Mountain/Frontage 14 99W/Hwy 217 13 99W/Fred Meyers Entrance 13 99W/Warner 8 99W/Garden Place 8 99W/McKenzie 7 99W/Pfaffle 7 99W/Walnut 5 99W/Gaarde 5 99W/Park 5 ® 121st/Summercrest 5 99W/Johnson 4 99W/87th 3 Im 1 99W/74th 3 99W/Canterbury Lane 3 Hall/Burnham 3 121st/Scholls Ferry 3 Durham/Summerfield Durham/Serena 3 72nd/Bonita 3 , Source: 1981 Accidents Records, Tigard Police Department. ., r� -31- All signals, with '-he exception of one at Main and Seoffins, are located on 991. All signals are owned, operated, and maintained by the Oregon State Department of transportation. All signals are either pre-timed or traffic-actuated. The placement of signals is strictly governed by criteria or warrants as outlined in the MUTCD. These warrants include: 1) Minimum vehicular volumes; 2) Interruption of continuous traffic; 3) Minimum pedestrian volume; 4) School crossing; 5) Progressive movement; 6) Accident experience; 7) System; and 8) A combination of warrants. A number of non-signalized intersections were compared with the established warrants to see if any met the minimum requirements for signalization. B. Signs Traffic control signs can be used to either regulate traffic, warn traffic, or guide traffic. The MUTD standardizes traffic signs as to their design, shape, color dimension, symbols, work message, lettering, illumination and reflectorization, location, height, lateral clearance, and mounting. There are basically three types of signs: those that regulate, those that warn, and those that guide. The City of Tigard conducted an inventory of traffic signs in 1978. This inventory was supplemented in 1979, and all signs in the city were evaluated according to the MUTCD standards. Those traffic signs that did not conform were either replaced or repaired. Table VII provides a summary of the number and type of traffic signs within the study area. t ; I . 'f -33- ._y�"r TABLE VII i TRAFFIC SIGN INVENTORY-(1978-79) Number of Type of Sign Signs Regulatory Stop 374 Yield 1 Speed 162 Turning 28 Alignment 1 Exclusion 23 One Way 1 Parking 261 Traffic Signal 9 Subtotal 860 Warning Curves 18 Road Crossing 7 Control Ahead 16 Bridge 5 Divided Highway 2 RR Advance 21 Other 14 Dead End 14 Subtotal 97 School School Advisory 14 School Speed 12 Subtotal 26 Miscellaneous 27 TOTAL 1,010 Source: Tigard Transportation Safety Study, Straam Engineering, October 1979. ti -34 DIAGRAM V 1979 - TRAFFIC CONTROL DEVICES i P t �t ► i _. Alam_ �_ i �I,3 _ I o j ... �. - =•r�:,_J.�� lei 3•Y �. �r .q In i ae '� � Irl.. _��_I! -y"� (�_ ••L.�7C��" li�L'i1�U.�� •-�y i-.. �• c '1—Vii_._.e_• .�,, i.. LEGEND ... . Stop Sign t . Traffic Signal S a Pnfp°'sd Signal i= Source: Straam Engineering Traffic Safety Study.1979. r C. Pavement Parking Like signs, pavement markings can be used to regulate, warn, and guide the vehicle operator. They are used both in combination with other control devices, such as signals, and signs, or alone. They are used both in combination with other control devices, such as signals and signs, or alone. Like other traffic control devices, the MUTCD has standardized markings for application, materials, and color. The various types of pavement markings include: center line, lane line, curb markings, stop lines, crosswalks, and railroad crossings. A major disadvantage of pavement markings is their short-lived lifetime and constant maintenance, particularly in the moist weather found in the Pacific Northwest. A number of major streets lacked adequate markings due to a recent pavement overlay and had not been restriped. Inadequate pavement markings at four locations on 99W: 1. No pedestrian crosswalk markings on Bull Mountain Road 2. No stop line southbound on Pacific Highway at Johnson Street 3. No stop line northbound on Pacific Highways at Greenburg 4. No stop lines on 99W at Hall Boulevard Most city streets were found to lack stop lines at the intersections. 6. Street Lighting Nationally, _60% of all fatal auto accidents occur at night, which is not the time and a third of vehicle miles surprising considering that 40% of traveled are during this daily period of poor visibility. Fall and winter ifficult driving even during the day. fogs contribute to dangerously d Street lights can help reduce accidents, as well as crime. Many Tigard streets are not yet improved e:ith sidewalks, so pedestrians walking the shoulders of narrowhave unlighted streets are in danger. Many of these sgme unimproved Streets -lave deep open ditches immediately adjacent to narrow shoulders. Improved visibility with street lights reduces the potential for accidents there also. Among major problem areas where lighting is desirable are: railroad crossings (at grade), sharp curves, rarrnw bridges, intersections, and pedestrian street crossings. The City does not have a program for routine installation of lights where none now exist, except for the requirement that they be provided when new developments are approved. -36- VI. MASS TRANSIT (TRI-MET) Public transportation in the Tigard area is the responsibility of the Tri-County Metropolitan Transportation District (Tri-Met). There are currently four (4) bus lines serving Tigard (lines 43, 44, 45, and 77) which link Tigard to downtown Portland, Sherwood and other surrounding communities. (See Diagramm III) Although the overall ridership has increased since the fuel costs have been steadily on the increase, the percentage of ridership is still relatively low cost/revenue comparisons for the four (4) Tigard bus lines are an important indicator of relative demand. Tri-Met has adopted a standard goal that total farebox revenue for every line be no lower than 40% of operating costs. Unfortunately, all of the Tigard lines fail to achieve this standard. In the spring of 1982, the percent of costs were as follows: Tualatin Acres #43 - 20.5% Sherwood #44 - 28.0% Greenburg #45 - 20.0% Beltline #77 - 18.0% Source: Tri-Met, Bill Coffel, November 1982. Over the long-term, transportation in the Tigard area may become less dependent on the private automobile because of world-wide shortages of petroleum, higher prices for the gasoline which will be available, increased traffic congestion, and more intense urban development. The extent to which Tigard residents will use any transit system will depend in large part on decisions made today and in the near future. Appropriate far-sighted decisions made at this time may substantially ease Tigard's transition from a totally automobile dependent community. The most important single action which the City of Tigard could take to improvetransit service, especially in terms of the period beginning in the late 19801, would be to allow increased residential densities along existing and -otential transit routes. Without this elementary effort, the community cannot expect major transit improvements,,unless the metropolitan mass transit agency obtains new means of financing to support a higher level of individual rte® line subsidies. esu Ia its analysis of possible short-term transit service improvements, Tri-Met estimated that the Tigard area does not have the concentrations of population or economic activity to justify radically improved service. Transit studies have demonstrated that patronage is very low primarily due to the lower densities. The Comprehensive Plan locates residential densities along, or in close proximity of, existing and potential transit corridors. Several other major community objectives could also be benefited from increased transit service. For instance, business activity in Tigard could be expected to benefit, f retailing and other commercial activities in particular. If areas mediately l4 adjacent to downtown Tigard were to have a large increase in population, this center of the community could better compete against the nearby Washington Square, Higher ,density near downtown Tigard would also be in keeping with Y Tigard's downtown urban revitalization efforts and the economic policies of the Comprehensive Plan. 37 'A 4' yll WARD & VICINITY VL {x ` f , 17 Y � �IL SA/Y7� fit-w i 1i I ' RIS w LEGEND DIAGRAM VI c TRI-METBUS ROUTES AND - PARK AND RIDE LOCATIONS M I O Pok WW Rids x r i F DIAGRAM VII PERCENTAGE OF RESIDENTS UbIaG Tt(AtvSIT FuK wuK& TRIPS frrrrrr / /////fff/!/ ''•� /////////r//////// // // /////////////f,• //++ /////// ,t. /:'/r/ NORTH /++t+-4•+ 4-4-4-4-+•+•+9-+•-++ +•.++//////r///: +++++++ 4-.4-4-4-+ ++ � r•r//:///// E ////++////////+ �•+++++•+ + +++�-+r+ ••+�•r +++-1-+ +++-++-r++•+• ► r+ + ++ + . 4-////0000 c +++//////+ 4-4-4-4-+++-•a+•++ +00000000 -�� ++ ►•+ *+ ////•4-.4-4-4-++//!// +•r 4--4— -r++•++N + + +' 4.00000000 �4•++++•4-+//++ +-4++t++-4-++•+• a-•r+++++r OOC'Go�o !/ .f-+-r+4 +-+4-4- 4• +++�•B4soIine + ++4 +-++ �'+•++++ a ++ ++++ + +++++OU ++-++++-4 r ++•4-+++4-+4-4-4-4--++t4.-4- + -1-4- 0"0000 -++ r-+4 + ++++++++++++++4-++t • ++ � a � ++ +'++++ 00 +t+ +++•4-+ + �•+•r++/+4•+-e-4-+4-+-1.4-4 +4-+++++4 U OU 0140000 +•r++4-44.4-++r//++•4-++++++++�•. Ty +++ r OOQOOOQOk O O ODU 4-4-//++4•+ /// 00000 0#"" TT 000000 •TToodc +4-////r////////✓///;r4 +,•+•// //////odoo0o pdd0000 ///// - 000" ,.////0000(-0000t" ///, Ot7044t4 CIOCOOCJOOO t + .-+CSO 000000 rOC'�oo /////. ++ +Oct 000000 ////r/////////////////////// /////�`o //�/// + r•+00 OOOUOO +00 OOOOQ 0 a00000 +4•+00000 00000 0000 + +t+ 000 . , i +�1/!/f//J///// gip' ✓r `� //✓ / '// / ' Pss� ' i f/////!/+ + / Scholls•ft" +r++77 ++ a + r+++• ++�• +� Sod •+4••e•4..4..4-// , ////� ++++ +4--1 ,111Z111++4-44-4-++4-+4-++ 4-+4-+/r/ ++++++++++ •4-4-4-4-++•/ ++++++4•+�•+++ 4-4-4-4-++J/ �4- S 4- i- 4-4- + + d RANGES AND SYHOL +++4- t t 0 TO _c — / +++4-+iv 4-4•.4-+ .4-4--#- 4-t 6_ 8 TO 10. 1 = O +++4.. ] +++-4-+•+••• -•- t.f. 10.2 TO L ��S = T ++ +++++-4.4-+ r•4-+ 1.3_6 TO 17 = + 4-+ / / / •4 ++ 4•+++++v.-•. .+ + 4-♦ 4-t+d.4 ! ! 1 Source: Washington County Planning "Department. DIAGRAM VIII PERCENTAGE OF RESIDENTS T _ a BLOCKS • IV NG WIL{{L{� r OF A BUS ROUTE // '///r//////!//r/I , ,,• J NORTH iTTTT ///x ////////J////J• T1"C4'4'TT1'-4'T4.1`T T1'1'TTT////// ////TT//////// as •t"t'T•t'1'////TT4•T e sa#a#TTT//////! TTTT'r•t•rrT•rrT ///� 't'1•TT'PTTrTST-� aa�fa 'rTTTTrTTTT'r ##w0ttttOgwwaa TtTTTtTTTT TtrttTTTTTT-N TTTTTT'P oa`\a ///= aaaa't•'P'P C Y'P////! �� t t t t Z �. q##f�a## TTT G `° a#wa t t TTTT t'T//JT rf#wwa#a#a as T T T T T T T T T?'T T aaaaa.,T P P P1 4 PJ/T . ?•TT . as##antis TT4T/T TT?'T .8ateline ##w##a###aa / afsaa#a a#aa#s TTT h� ' = TTTT ti ##a### +f#af tt#wa#aaaaT T T h t T P t TTT t . TTT^? as#wa#wa ## fi`t #a ittfffaftitwwfiTTT/ t t P1 't t? Ty TtT t Mftptafi### as s#aa f aaawaa#a#I-tt /TTTTTT rT T tw#a##aa##a# +++ #a#aaa ## ##f /slaw###/#TtTJJ t t'�///i/'r^TrTT +-' � + � ++ aaa##f TTTT " 44aaa##s rT t ;�/J �.+. . • TT1 T 000) a##a 0 °° 000 TTaa n Taw#a► {. . ++ tttaa T aaaa#s 000000 sssswssaf 00000000 -t'4-14 taaa 14 ////////////////✓////! /////"r , �•+++ •+0000.0000 4Taa a#awf a r+ +0000000C` TT•ra#a a""tit ' J// �//////////!//// //t%/ + r • + ' -4•+ 4-00000000— ��nTTTT 114 a" 4•. ++t1u0v'0��0000 P?T f ! f- 4 'ScnoUs ++++C�Q000pao000 ""o#"- Raid r.r. n•-►nC1 as##N1 71-11 00000JC1/000000000 waw tif4fs tT' +-+-/ /00000000 a tTa // TT1 ' 't` --Ott T T T t`T T' l// '/ UOOUT t"t TT t TT' III Q TO 19. 7 //�''� ODUOTT'r•t'•s•rT•r•r' i 19_ 8 TO =9-S = 0(-j Tt rTt• tts ' x:9.6 To 5�3. _ /// .r 000UU P? t tTTTT11" 59.4 TO 79. 1 = t OODUUUGTtTTTT t 1T' / '////r//////t 79_2 TO 99 = a J . nnnr,nnr,nr�T �- �� " " " * Source: Washington yountY Planning Department. Energy consumption would be positively affected by higher densities along transit corridors and in the downtown core area. Correspondingly, there would be less amount of automobile emissions. In addition, there would be less eiergy use per dwelling unit, for instance. Access to improved transit, plus a tendency of residents of higher density areas to use private autos less frequently, will cut demand for gasoline. Walking to adjacent commercial outlets (e.g., for groceries) will replace exclusive reliance on cars. In these, and other ways, higher densities will contribute to energy savings and less air pollution. 1. Future Bus Routing and Improvement Strategies In the near future, it is expected that there will not be any major changes to the number of bus lines serving the Tigard area. Increased bus lines will occur within the planning period as development, population and demand for the service increases. The Tri-Met Transit Development Program adopted by the Tri-Met Board of Directors in September 1980 identified central Tigard as the location of the key transit center in the southwest area of Tri-Met's service region. The proposed project will create a major new transit center on a site of approximately 0.83 acres between Commercial Street and the Southern Pacific Railroad. The site is approximately 200 feet from Main street, and within the central commercial district in Tigard's downtown area. This transit center is needed to serve two primary transit functions: first, to provide a convenient, efficient, and safe place for riders to make transfers between local-feeder and trunk line bus routes; and second, to provide a focus for an improved level of transit service to central Tigard. A variety of relatively new commercial and retail establishments have developed in this area. A transit center at the proposed locations would provide improved transit access to these activities and encourage additional growth of the area. The proposed transit center facility will consist of two long covered loading islands accommodating ten (10) buses; eight (8) standard and two (2) �i additional spaces could be devoted t:, a Greyhound our and layover area. These loading islands will be clearly separated from the auto and pedestrian traffic on Commercial Street to reduce bus conflicts with autos and pedestrians and to - improve rider safety. Additional site improvements will include amenities ® such as shelters, benches, lighting, bicycle racks, telephones, and route information signs. Curb space will be set aside for a taxi stand and a drop-off/pick-up area. No new buildings will be constructed on the site. The location ways and preliminary design of the proposed transfer center are shown on the following diagrams (Diagrams IV and V). A major restructing of existing service is desired to develop a feeder-truck network of routes in this area. Also as future ridership grow, service expansion through the addition of new routes or more frequent service may occur. Immediate expansion of bus service is not currently under consideration. ;. 2. Transit System Designation F The delineation of the transit system must be coordinated between the Metropolitan Service District (MSD), Tri-Met and the local jurisdictions. MSD'$ adopted regional transit trunk route system provides direction to Tri-Met on where to;target high speed, high capacity service for long distance -39- 717 ., I * travel, and it provides direction to local jurisdictions on where to target high density land uses. In addition to these routes, Tri-Met is expected to adopt a system of sub-regional trunk routes and local routes. Local jurisdictions are expected to include MSD's regional trunk routes, transit stations and park and ride lots in their comprehensive plan and identify other streets suitable for sub-regional trunk routes and local transit service as a guide to Tri-Met. In addition to these bus route designations, MSD and Tigard must agree on specific alignments for the potential transity'lays, and protect them from encroachment from future development. 3. Transit Service Implementation The Portland metropolitan area will be required to expand significantly the i transit system to accommodate the expected growth in travel demand. Expansion in service, however, is very costly and beyond the current financial ability of Tri-Met. As such, Tri-Met must incrementally implement new transit service as growth in ridership demands and financial resources are available. Additional increments of transit service must be phased and be consistent with the following criteria: A. New routes must be cost-effective in terms of ridership return on the operating subsidy; B. Service expansion must be consistent with growth in travel demand in the regional corridors where highway, transit and rideshare improvement programs are interdependent; C. Service improvements should be implemented consistent with new ,, development, particularly in cases where high density developments are dependent on transit capacity; and f D. Service improvements should be consistent with the local jurisdiction's designation of transit streets. ' r MSD in conjunction with TRI-MST 'rave referenced several capital improvement I projects for transit service within the Tigard area. The firae iwpio'veLuent is i the proposed transit transfer center on Commercial Street within Tigard's downtown area. Second, improve access to the transit system by providing a ® park and ride facility in the vicinity of 99W and McDonald. Third, increase { t_ through f 7n- Avenue aCCe88 t0 the induscrial develapnienia- tniuugu the improvements of lead nvcu.I2 (in process), completing the :2nd/217 interchange (in process) and reconstructing the I-5/Haines Road interchange. In addition, the MSD Regional Transportation Plan ('RTP) references Hall Boulevard, north of _ 99W, as a regional trunk route, which will improve service in the north Tigard areas. - 4. Transitway Implementation Transitways have been identified as the long-range method to provide regional trunk route service in the radial travel corridors. Lfowever, due to the high construction cost, incremental implementation is necessary, as growth in transit ridership warrants implementation as funding is available. The first priority for transitway construction is the Banfield LRT (light rail system), which is now under construction. The second priority is the Westside Corridor where studies have been concluded and selection of the preferred, mcde and corridor (i.e. LRT vs. busway vs, bus) is expected in 1982. -40- Transitway Right-of-Way Reservation Until such time as a definite decisior to construct a transitway is made as a result of the Transit environmental impact statement (EIS) decision process described above, local jurisdictions are encouraged to work with developers to protect logical right-of-way opportunities from development encroachment. Parcels that cannot be protected in this manner should be identified to Tri-Met for acquisition on a case by case basis. a u -41- VII. TRANSIT DEPENDENT The transit dependent population are those individuals that require access to public transportation for their total means of mobility. This includes the transportation of the disadvantaged which are "those who experience varying degrees of immobility due to lack of physical, economic or mental ability". This often includes the disabled, many senior citizens and the poor. The transportation handicapped portion of the population has been estimated at 6.0% in Washington County. This figure includes the moderately or severely functionally handicapped (not including the mentally handicapped) at 3.6% and the able-bodied elderly without drivers licenses (2.4%). If these estimated proportions are also descriptive of Tigard residents, the total number of transportation handicapped in this area could approximate 950-1200 people, or one in every 16 persons. Approximately 40% of these dependent people are senior citizens without drivers licenses and 60% are physically handicapped. Current Service Transportation services for the transportation handicapped are now provided by a few social service agencies and private non-profit organizations. Special Mobility Services, Inc., for example, provides services through the Loaves and Fishes program and the Tigard Christian Church. The Tigard Loaves and Fishes, Inc. has the use of a van with a wheelchair lift through this arrangement and generally serves only senior citizens. Washington County Community Action and Washington County Public Welfare Children's Servicda Division also provides special transportation services. Most trips provided by these services are for health care and meal program support. If these special transportation services were provided uniformly to the population of transportation handicapped in Washington County, approximately 204 passengers in Tigard would benefit, ,or only 17% of the handicapped population. This would involve more than 17,000 one-way rides provided each year. l :Y? -42- VIII. PEDESTRIAN AND BICYCLE WAYS Although auto and transit are the major modes of transportation, walking is one mode used considerably for short trips. Bicycle transportation is primarily used for recreational trips. Presently, there are approximately 40 miles of sidewalk and/or bike paths in Tigard. Most of these paths or sidewalks are in new subdivisions and in the vicinity of schools. Diagram VI shows the location of all bike paths and sidewalks within the study area. Given the suburban nature of Tigard, recreational aspects of the pedestrian and bikeway will be a predominant concern of Tigard residents. Pedestrian pathways are combined with the discussion of bikeways because of similar needs for legislation, funding and purposes of these recreational oriented pathways. The recreational benefits of a carefully planned system of bicycle and pedestrian pathways in Tigard are numerous. Areas along Fanno Creek which have been identified as having natural significance have been made more accessible to Tigard residents by the pathway system. Park and recreational areas accessibility have also been improved by providing pathways along streets linking parks, schools and shopping areas. In 1974, the City Council adopted a Comprehensive Pedestrian/Bicycle Pathway Plan which describes the major generator of bike/pedestrian usage and the phasing priorities for completion of the plan. The open space/greenway concept has provided excellent opportunities for providing access to many areas of the City. (See Appendix III) Several benefits of bicycle and pedestrian pathway usage have long been acknowledged as benefiting the community through: 1. Reduction of air pollution sources; 2. Reduction of non—renewable energy consumption; 3. Reduction of auto related congestion; 4, Reduction of noise; and 5. Physical and social benefits to the individual. -In addition, however, there are numerous identified problems related to ® pedestrian and bicycle usage. � These problems include: 1. Personal safety, competition with auto traffic; t 2. Bicycle security; 3 Time efficiency; E 4. Inclimate weather, and/pedestrian pathway 5. Lack of connecting bike/pedestrian pathway facilities between jurisdictions. 5. Potential crime and policing bikeways. Planning Related Efforts The Portland area is not lacking for trail and bikeway paths and the connection of pathways between adjacent communities remains a high potential. -43— Washington County adopted a Bicycle Pedestrian Pathway Master Plan in 1975. The Plan, however, has never been fully implemented. Recognizing the limitation of the present road system to offer safe bicycle use and the extensive growth that has occurred in recent years, the Public Works Department has begun updating the plan to reflect where the best opportunities for bicycle use are currently found. A major obstacle towards developing an extensive bicycle/pedestrian network is lack of public funds for such an effort. Opportunities, however, do exist in the developing areas of the County Where unused right-of-way is available or where right-of-way could be acquired in conjunction with new developments or road improvements. To implement it's adopted plan, the City of Tigard has relied on it's street overlay and widening program and adjacent development. These processes have allowed for the completion of an additional 3.7 miles of bike/pedestrian pathways in 1982. It is anticipated that as more of the streets in Tigard come under the City's jurisdiction (see Appendix II), additional bike/pedestrian pathway links will be completed. S -44 4; t E i IX. RAILROADS Railroad tracks traverse the Tigard Planning Area from its northern boundary to the southeast. The two private railroad companies - Burlington Northern and Southern Pacific - use joint trackage north of North Dakota Street, with adjacent but separate tracks south from North Dakota Street to Bonita Road. South of Bonita Road one set of tracks crosses the Tualatin River to Tualatin and the other set of tracks turns east to Lake Oswego. Burlington Northern normally operates one or two trains in each direction through Tigard between 7:00 P.M. and 5:00 A.M. The number and exact times of the routes depend upon customer demands. Southern Pacific does not have a specific schedule for trains through the Tigard area. Their usage is based on an as-needed-basis. f;> i P i r C i —45 APPENDIX I EXISTING STREET IMPROVEMENTS The following inventory update indicates Existing Street Improvements completed as of September 1, 1982. The following list indicates the street improvements (overlay program) that have been made since 1970. 1970-1971: Johnson street (from Brookside to Pacific Highway) McKenzie Street (from Grant to Pacific Highway) Grant Avenue (from Johnson to the end of heading westerly) 1971-1972: Grant Avenue (from Johnson to Tigard) Brookside Street (approximately half the length) Tigard Street ( from Pacific Highway to Main) Ash Avenue (from Commercial half the distance to Scoffins) Frewing Street (from Pacific Highway to the creek) McDonald Street (from Pacific Highway to just east of 105th Avenue) Q4rh Aupnpe (from Greenburg to end) 1972-1973: Main Street (from Pacific Highway on the west end to Scoffins) Commercial Street (from Main Street to 95th) i i 95th Avenue (from Commercial to Greenburg) I Johnson Court (all) 1 Johnson Place (all) I Brookside Court (all) f rr 4.; -46- 1 i 1973-1974: Lincoln Street (from Commercial to just south of Greenburg) Ash Avenue (from Frewing to the creek) Pinebrook (from 92nd to Hall) i 88th Court (all) E 1,974-1975: 4 98th Avenue (all) Watkins Avenue (from just north of Watkins Place to Pacific Highway) Park Street (from 107th to Pacific Highway) Since 1970 the City of Tigard has had an overlay street maintenance program which has continued to upgrade existing streets plus, in some instances, the additions of pedestrian/bikepath adjacent to certain streets. The following ...,o.�Pnts lists indicate the streets that have i►8u iarr...____ since 1970. Fairhaven Street (from Watkins to 110th) 110th Avenue (from Fairhaven Way to Fairhaven Street) 1976-1977: Lewis Lane (all) gist (from Greenburg to Lincoln) Lincoln (from overlay work done in 1973-74 to Greenburg) Center Street (from Lincoln to 87th ) e 87th F:venue (from Pacific Highway to Center Street) 6 Warren Avenue (all) s 79th Avenue (all) { Knoll Drive (all) s Walnut Avenue (all) { i' Derry Dell Court (all) t t< Inez Street (all) Terrace Street (from Inez St. half way to 93rd Ave.) i -47- 92nd Avenue (from Inez to Piiaebrook) 91st Place (all) 89th Court (all) i 1977-1978: j 112th Avenue (from Gaarde to Pacific Highway) Scoffins Street (from just west of Ash to Hall) Ash avenue (from overlay in 1971-72 to Scoffins and from Burnham south roads end) Commercial Street (from Main to Hall) i t Burnham Street (from Main to Hall) 1978-1979: Tiedeman Avenue (from Meadow St. to Walnut St.) Greenburg (from 95th to Pacific Highway) // Bonita Road (from 75th to just short of I-5) t� 72nd Avenue (from Bonita south to Bridgeport Road) 1979-1980: 121st Avenue (from Trinity Church to Walnut) Summer Street (all) Summercrest Drive (from Summer to Burlcrest) Buricrest Drive (all) Burlheights Drive (all) ea Walnut Street (from 122nd to just east of 128th) Frewing (from Ash to O'Hara) 103rd Avenue (from McDonald to Driftwood) 92nd Avenue (a portion into Cook Park) 1980-1981: _ Walnut Street (from overlay in 1979-1980 to 128th and bikepath from 122nd to 123rd) -48- C t Frewing Street (from the creek to Ash) w Creamer Drive (from Garrett to Stevens Court) I Ash Avenue (half way between Frewing, Garrett to Garrett and McDonald to r just north of Hillview St.) t Hillview Street (all) E E } 102nd Avenue (all) 103L-* Avenue (from Driftwood to View Terrace) Bonita Road (from just east of Hall to 76th) 76th Avenue (a portion south of Bonita) Tigard Street (from east of Tiedeman to Pacific Highway) 1981-1982: Greenburg Road (from 95th to Shady Lane) F; Cascade Blvd. (from Greenburg halfway to Scholls Ferry) ff North Dakota St. (from Greenburg to tracks) 1, Tiedeman Avenue (from Greenburg to Meadow and bikepath from Meadows to Walnut) 121st Avenue (bikepath, from Trinity Church to Ministone Court) 119th Avenue (all) 1 118th Avenue (all) Lynn Street (from 121st to 116th) d 116th Avenue (from Lyng. to Ann) p a ; Walnut Street ( from just west of Pacific Highway to Brookside) [ Gaarde Street (from 112nd to Pacific Highway) McDonald Street (from approximately Ash to Hall) 97th Avenue (from McDonald to Murdock) Murdock Street (from 97th to 98th) -49- t ° f ' APPENDIX II TIGARD AREA COMPREHENSIVE PEDESTRL4N-BICYCLE PATHWAY PLAN ,a = " Prepared by °mss Tigard Area Pedestrian-Bicycle it ` Pathway Committee ® 5{ 5. T # >. Adopted March 25 1974 TIGARD AREA COMPREHENSIVE PEDESTRIAN-BICYCLE PATHWAY PIAN I i The following is a short report regarding the subject plan, written so that j the public might better understand the thinking and rationale that is embodied within.the plan. i I Committee History i Briefly, the Washington County Commissioners chose to spend their 1% gasoline tax bicycle--pedestrian pathway money on areas close to schools. In order to determine the location of these proposed rates, the County requested the Tigard School District to make a priority listing of desired pathways on county roads within the district. The school district assigned its Safety and Transportation Coordinator, Bill Bieker, to the project and a list was compiled. As a result of this work the school district and the management of the City of Tigard felt a comprehensive pedestrian-bicycle plan for the Tigard area was needed. Bill Bieker from the school district and Steve Telfer, city manager, agreed to establish a committee for the purpose of developing a comprehensive pathway plan and members were selected from , each elementary school attendance area. Others who have assisted the i committee include Nick Hiebert, Tigard Dept, of Public Works; Wink Brooks, i Tigard Planning Director, and Steve Oppenheim, Director of Bikeway Planning, C.R.A.G, Norm Hartman, a Tigard Planning Commissioner, is a member of our committee. E I i Criteria for Path Selection i G I I In determining where routes were to be located, the committee chose the 1 following criteria: 4 1. to reduce hazards that exist on present roads a 2. to provide safe access to schools, recreation areas and major shopping areas 3, to develop the possibility of walking to school rather than riding, thereby eliminating some school bus transportation 4, to serve the greatest number of potential users 5. to provide safety for walkers and bike riders to summer activities which require transportation by auto AM E 2 �{ 6. to establish pedestrian access to mass transportation Routes considered were only within the Tigard School District boundaries. The City Planning Staff has recommended additional routes to complete our Plan and create a total bicycle-pedestrian pathway system within the Tigard planning area. We have reviewed and approved the location and E phasing of routes proposed by the staff. The City Staff's criteria for route selection were as follows: I 1. to reflect proposed regional pedestrian-bicycle,routing through I 'the Tigard area 2. to reflect the Greenway System proposed in the Tigard Community Plan 3. to provide better pedestrian-bicycle access around and through # certain neighborhoods I 4. to reflect recommendations embodied in the Ash Avenue-Downtown Neighborhood Plan S. to create better access to downtown Tigard from the Greenburg neighborhood v I The described route selection criteria were measured against a relationship to major pedestrian and bicycle traffic generators. i hese can be grouped into four general categories - schools, recreation points, shopping and public buildings These are described as follows: Schools: (Elementary) (Junior High) (High School) Durham ThomasR. Fowler Tigard Senior High Metzger Twality Phil Lewis ® St. .n nthony's Templeton Charles' F. Tigard Tualatin Recreation Points Cook Park Shopping: Canterbury Square School tennis courts Downtown Tigard Jack Park Downtown Tualatin Metzger Park Fred Meyer Tigard Swim Center K-Mart T%vality tennis courts King CSty Tualtin Park Tigard Plaza Woodard Park Washington Suare q �yyy ,, yY.'•.. .. a ..:rj. 3 1 Public Buildings: Tl§i 6 Old,Fowler Jr. High (tentative community center) Tigard Yost Office Tualatin Post Office k School District 23J school population distribution maps were also utilized ' in routing the pathways. Recommended Development Phases , The Committee has prioritized both the Committee's own route selections and the Planning staff's selections on.the basis of public safety. It should be noted that the Committee does not feel that the proposed routing will be Implemented in the exact order recommended, but rather some routes will be constructed out of phase and in conjunction with street and park projects. 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P � .CA\ :fr• ! r .a s 4rKN •p �1 'T U; L Al N ..t *ti,. .....r ..�1 2 NI.:Y. . •h�.aa�H.-aa.'� •...+rlw' ....'�+...,_�.,t.reee.« ... .'J ••t P)W( O N EIt ...•�� r ----, . 40( TH REE 64$0.& .a•. .. o : ..••.., : E 4 Proposed City Route Priorities Phase I 92nd from Cook Park to Durham Durham Road from 92nd to Hall Blvd. (existing) Hall Blvd. from Durham-Road to Metzger Park . Phase II • Locust-Street from Greenburg to 80th 80th from Taylors Ferry to Pine St. Walnut from 106th to 130th Tigard St. from 116th to Main St. Greenburg Rd. from Tiedeman to Pacific Hwy 95th and Commercial from Greenburg Rd. to Main St. Ash Ave. from Frewing St. to Burnham Burnham from Main St. to Hall Blvd. Hunziker from Hall to 72nd Ave. 72nd Ave. from Cherry St. to Pacific Hwy. Pacific Highway from 65th to Durham Rd. McDonald St. from Pacific Highway to Hall Blvd. i 97th from McDonald to Murdock St. -- Murdock to 98th -- 98th to Durham Durham Road from Hall to Boones Ferry -- Boones Ferry to Tualatin (Main St.) Phase III Hall Blvd. from Greenburg to Scholls Ferry Rd. Scholls Ferry Rd. from Hall Blvd. to 121 st Ave. Taylors Ferry from 65th to 80th Hall from Metzger Park to Greenburg Road Greenburg from Hall to North Dakota to Tiedeman to Walnut i Tigard Drive from Tigard St. to Summercrest Dr. to 121st E Pine St. from 80th to 72nd -- 72nd to Pacific Highway 121st from Scholls Ferry to Gaarde -- Gaarde to Pacific Highway Hampton St. from 72nd Ave. to Interstate 5 t Bonita Road from Hall Blvd. to Interstate 5 } Bull Mtn. P.d. from 161st Ave. to Pacific Highway Pacific Highway from Durham Rd to Tualatin Rd. -- Tualatin Rd. to Tualatin Beef Bend Rd. from Pacific Highway to 137th r dZ J 4 •see :i..• .....�. r. -..:-•en.;». ": .• nom`; .._ wM--�. .. ... .__.- -- 5 Phase IV 4 Washington Dr, from Hall to Taylors Ferry Scholls Ferry Rd. from 21st Ave, to 135th Ave. 135th from Scholls Ferry Rd. to Walnut St. Walnut St. from 130th Ave. to 135th Ave. I Summer Creek from 135th Ave, to Tiedeman Chicken Creek from Bull Mt. Rd. to Summer Creek k Derry Dell Creek from 115th to Walnut (and tributary to Park) I Frewing from Pacific Highway to O'Mara - O'Mara to McDonald St. Durham Rd. from 98th to Pacific Highway Fanno Creek Drainage G-3rea way Systcii+ fru m SCn�i1S Ferry t0 Durham Road 85th Ave. Burlington Northern from Durham Rd. over Tualatin River to Tualatin Road i f /�. f k s ENERGY Comprehensive Plan Report p � - E® CITYOFTIGARD WASHINGTON COUNTY,OREGON f: ADOPTED BY CITY COUNCIL ` c DECEMBER 13, 1982- ORDINANCE 82-78 i' �- Page 1 INTRODUCTION This report provides background information for Tigard in relatio,: to LCDC Statewide Planning Goal #13: Energy Conservation. In addition, it recommends findings, policies and implementation strategies to meet the Goal #13 requirements. The Statewide Planning Goal #13 reads: "To conserve energy. Land and uses developed on the land shall be managed and controlled so as to maximize the conservation of all forms of energy, based upon sound economic principles." Since the oil embargoes of the 1970's, traditionally cheap and unlimited petroleum energy sources have become a thing of the past. This has caused all levels of government, the private sector as well as individual households to closely scrutinize energy usage and cost. The rapidly changing energy situation is one of the foremost problem of our time. Energy prices and supplies have been directly related to inflation, interest rates, and economic growth. Due to the past development of our cities as high and inefficient energy users, local governments and communities are becoming more involved in energy management. For example, the City of Portland instituted a mandatory weatherization program requiring residents to meet insulation standards at the time of resale or within five years. ENERGY CONSERVATION AND LOCAL GOVERNMENTS' ROLE The energy crisis and the adoption of the LCDC Goal and Guidelines #13: i Energy Conservation, have provided the impetus for local governments in Oregon to seriously consider their role and the opportunities available to them to influence a reduction in local energy usage. Local government can influence energy conservation by two basic strategies: 1. Adoption of an energy efficient land use pattern which reduces the consumption of nonrenewable energy; =or example by: a. Stemming urban sprawl; b. Ensuring that developments occur in a fashion which supports public transit, bicycle and other alternative modes of transportation; C. Allowing higher densities and mixed uses in appropriate areas of the community. 2. Through the adoption of ordinances which provide for energy ! conservation or for the use of alternative energy sources; for example by a. Requiring mandatory weatherization of all structures, particularly residential; and Page 2 b. Adopting development standards which require the consideration of solar design in any new development; C. Adopting solar access ordinances; and d. Providing information to the general public concerning the methods and monetary benefits of alternative energy sources. The role of local government can differ according to the type of strategy side, or the development of alternative being considered. On the supply le is primarily permissive, allowing for resources, the local government's roE the experimentation and application of alternative energy sources. State and federal government agencies have a more active role in increasing energy supplies through tax incentives and basic research. However, it should be the responsibility of the local jurisdiction to keep abreast of state and federal programs and possible avenues for their assistance in local energy matters. In addition, the local government is often given the opportunity to play a seduction of consumption of energy, e.g. , more affirmative role regarding the Portland's Weatherization Program. f In the Portland Metropolitan Area, transportation and residential uses together account for 50% of the energy consumption. Automobile use accounts for 75% of all transportation energy, while mass transit uses only U. Approximately 70% of all residential energy is used for heating (Source: Portland Bureau of Planning, 1977). Energy usage is illustrated in Figure I and II. The events of the 1970's have underlined the reality of a fluctuating energy supply and continually rising energy costs. As an attractive place to live and work, the Portland Metropolitan Area will be adversely affected. This effect can be reduced through the application of conservation measures. f According to the "PortlandEnergy Conservation Project study, the Metropolitan Area could save as much as 346 of its projected energy usage in the mid-1990s with conservation programs. This possible savings is illustrated in Figure III. ALTERNATIVE ENERGY SOURCES not developed energy ^"=ourcyr= All of the Currently, the City of Tigard has City's energy supplies come from sources outside the City and from traditional sources, including gas, oil and electricity. However, there are numerous energy alternatives that can come from within the City. The problem with suggesting a listf alternatives is that it is often difficult to distinguish •' research b between those alternatives which have been proven cost effective � and practical application, and those ideas which are conceptual in nature and requireextensive engineering and economic feasibility studies to determine The following is an identification of those their applicability to Tigard. alternatives which may be readily applicable to all structures in the City (� with a brief explanation of their merits. 4 "5 Wood An energy source that is already widely used in the Tigard area is wood. The proper use of wood in conjunction with an efficient woodburning stove can be a viable substitute to space heating rather than traditional energy sources. FIGURE I f Transportation 26% Industry 40% Energy N o w Residential � 24% ,s Used commerciar Source: Energy and Land Use Comprehensive Plan Working Paper, City of Portland. FIGURE II Transportation Use t t Transit 1% Air, Rail, Other 13% Tr�'` 11% _ A ' Auto 75% Source: Transportation and Land Use Conservation Choices, Portland Energy Conservation;Project, City of Portland. r� � bn k r FIGURE III 350 325,907 325 Pro tams CortseNattor 30oE�ergV Use`nth No c,,N1SA 34% 275 SAVINGS 260,209 250 SMSA Enerav lie BiilLon Wren Conservation Pr O' ho ! ams Btu's 225 216,102 Used in the SMSA s per Year 200 ti175 :.::..:h,.,.: f.:::.:... ...........::..:::.:. .. 150 :..:..:....} .... ......... ... ........ .:..............................:.....,...... :.w:•}••>w::.::}:tr.:;+.w%yY�:J;::}};;:f;;J;}:r•:r':xr fi:;<::...,.....: .. ...,..-.., .. ..................n%.r..... ......-..........................:.:. ). ..-:.. .......y.,v ...n:v:{::._{4Y.t�:;•i},r.:i.:}T;}::�i}i}T:�:f•:Y: :i:-:<+. 12 , . ........... ........... .r.v::::.:•t.>:.>•t:{t--:::::vY}}:{::,}:{;;:4}:;vvT:;:;.:::w;J:zv:?;>s: :;: ...::.:.............. .......... ..... .......::-.v:.�•::.:-,:w:::vd,4T v:•:.Jh•:.:K•:vv:::n....,................ v...:::::............v g .......:........ ...........v.............,....r.....n.................-.....u..:...r.rf..........n.....{.:w:..................i.::•:.Y4i}"::::::.�:n. ...... ........r...:. 5 ....... .........nvv::x:::::v...rnv::n}iv:::-w:r:.v::n•.�:::::::::::::::::::vnv.:::::::t•: . i-::; .... .:•.:.:........ .........v:.:v:::;v:v.;r............::{.:::r:::::::::.:,:.:::}:.r/.t..},.:N}:::::::::::............-.........v..r::::}.:.:::::w:::::x:.v:.TJi?::::.::moi}i}}:}:•::,:i::_:::;::: :.WT:::.::.:v;::::•...:�'�'...:.::.v....::v.:...h.....:..:..tt-:v:.}•:{hiJ:t{::.::..:.. A:•-;:•}..v..:::•:::rn•.:. � ,,....-. ,:rr:.:..{n.....::•;nr:::,::�{::::-;•i,{...::%^:v:r•{•..., .n:::•.........h........:::.::::v:}i::•.ta::t:?:.}':{.}i::.:..... ..::. :{::-Ji..a-;}a':i:'t�::^:J::o>::{.......:>t�Ji:},.`r;rx<�: Y:i{W{:•t}J}:t;:e^a:+a..!:..�:',i.•...., 100 :}::. ::.,�::::::.. f.... r.t:;?f: r� h .f,Y.•;;;{;t;;�:::i} y.. .:h1:}Jif?.JTl}::y'h:n:l.•: .}f:�• A ^.4 } 1# J 4 .... :::::r::-:::::::.v':.T::•}:}j"-ii�'':�JJJT:- Y:'{r.%t.:•L;}.,+.,}.,}.:Fri;:.::tf.4 1. ......:.......n:.;..•.:-::.:::::.:..x::.v::.......::....tx{;.}:..... ....... :......rvx::.A+ .T}}}i:{.:{+}}iv'n'F,.:+-;:.::} ...:v:: , ......."..:.....�.. � ':Jv.:::.:'....v...-...... r.::JJ::•}i.n.......r..h..... :.h::v v:v4if:i'i};:{Cv .. _... ................. ...........................-...:..:.,.:,.... .a }..4'c»:•}isr}F.t•}J::;a:{:k:;{::.r:::oc:.:}:'•%:.}::;%:J'<;':<. Jvi?::::;.}`:.::,.. :::: .::::.-:::::v::::::.:::..<:.h:::,..... ,I.:......:ri..v::;}•.;:.i.{., .. .vn vv.Cv;:•:•.v:.�. ® 7CJ .., t � } -{ rt.� -�y✓i s#C a.:?`-::{••�:8" ...4 _.-. F ,,� ...:: n.:n.y.v;:. � $ nv.i:•:.. {{f v.:.v:n}'•}ti{C: -Y� ii 50 S-� {:.......... f.r...v:..::.::.:...rrr:.v•.:,::.......:•:.v.::v:....v:�...�::..:.:vv. 25 �vv:: ..:: ...Y ::,. :- ....+.:.:':•i:+J:' ... .::ti:/::l`vi{r:::;.. v.i:::........r :... .. :.�..... .+:...::::_..:..:::::..::•..,.::.}}:::.,.::::.:T.r.:}:r:,..:.._..:::J:-.Y::-;...:-:;•r::::zz*:�`;.S:J::oJJ;i';>fa::at.i... 'v:7 a•:i:;:: i 1975 1980 1985 1990 1995 SUMMARY OF POTENTIAL PORTLAND SMSA ENERGY SAVINGS Source: Transportation and Land Use Conservation Choices, Portland Energy Conservation Choices, City of Portland. L Page 3 The major problem with the use of wood is air pollution. The Oregon State Department of Environmental Quality (DEQ) airshed studies have identified wood heating as a significant source of uncontrolled pollutants and a major cause of violations of the state and federal ambient air quality standards in the Portland Metropolitan Area. Major metropolitan areas as well as a growing number of smaller cities are experiencing pronounced degradation of wintertime air quality; including visibility impairment, soiling, and odor problems. Certain airsheds are more susceptible to wood smoke impacts than others, depending on local topography and meteorological conditions. Currently, more than 506 of Oregon's households use wood for some space heating. Heating with wood is expected to continue as more and more individuals try to offset accelerating home heating costs of conventional sources of heat. Unfortunately, a wood stove can emit 224 times more particulate than an oil furnace and up to 457 times more than natural gas for the same heat value. (Source: DEQ, 1981 Air Quality Annual Report) The growing concern over air quality with the increasing use of wood can be somewhat mitigated by the public becoming more educated on the proper and least polluting means. Solan The potential use of solar as an energy source will be directly dependent upon: the community's willingness to protect solar access for the Life of a structure. Passive and active sola` systems to augment space and water heating have had substantial merit, especially in new constructions. Except for themost obvious constraint, lack of access to the sun, many existing buildings also readily lend themselves to retrofitting and remodeling activities which would allow them to take advantage of solar radiation. Since solar is becoming much more cost effective, is environmentally benign, is 4 . reliable and is one of the few significant energy resources that can be implemented by individuals and businesses, it's expected that solar energy usage will grow in popularity. The use of solar energy falls into two very broad categories, active tnd ® In very simple terms, active solar can be defined as any sy a passive. which uses mechanical equipment to take advantage of the energy from the sun. Recent advancements in the design and manufacturing of active solar systems have resulted in systems being available which, when installed properly, can have an operating life of 20 to 30 years. Passive solar systems rely totally upon the siting and design of a building to extract benefit from the sun's energy without the assistance of any mechanical equipment. Passive solar techniques were used by the oldest civilizations, and the principles of solar design have remained virtually unchanged. It has only been recently that -these same principles have been accepted and made marketable in the construction of contemporary buildings. Most reliablesources state that a combination of active and passive solar systems have the potential to "economically provide 50-80 percent of the heating, cooling and hot water needs of'many homes in Tigard." s Page 4 t There are many areas within the community where both passive and active systems could be used; but the availability of solar access cannot occur by happenstance. If the community desires to rake solar a viable energy source, then regulatory mclasures which ensure rooftop, south wail, and south lot line solar access must be adopted. Wind* A growing body of research indicates that the State of Oregon has considerable wind power potential. Development of this resource over the next two decades could provide a significant portion of needed electric energy, about 10% of peak demand according to the latest forecast. Private and public utilities are developing commercial-scale wind power "farms" (or arrays of wind power generators); the technology is available and the costs are favorable. Authorities in the field expect wind power, given present trends, will begin by the mid-1980s to be extensiv--ly developed as a cost-effective, conventional source of electricity. Figure IV AVERAGE WIND POWER DENSITY AND SPEED CLASS' 33 ft. (IN) Aloft 164 ft. (50m) Aloft Wind Wind Power Wind Power ' Power Sneed2 Density Speed2 Density Class watts/m2 mph (m/s) watts/m2 mph (m/s) 1. --------------- 100 ------- 9.8 (4.4) ------- 200 ------- 12.5 (5.6) 2. --------------- 150 ------ 11.5 (5.1) ------- 300 ------- 14.3 (6.4) 3. --------------- 200 ------ 12.5 (5.6) ------- 400 ------- 15.7 (7.0) 4. --------------- 250 -�----- 13.4 (6.0) ------- 500 ------- 16.8 (7.5) 5. --------------- 300 ------ 14.3 (6.4) ------- 600 ------- 17.0 (8.0) 6. --------------- 400 ------ Z5.7 (7.0) ------- 800 ------- 19.7 (8.8) 7. -------------- 1000 ------ 21.1 (9.4) ------ 2000 --- --- 26.6 (11.9) ti ti- of equivalent 1 Mean wind speed is based on Rayleigh speed diatr1.... - -- mean wind power density. 2 Wind speed is for standard sea-level conditions. To maintain the same power density, speed increases 5%/5000 feet (36/100m) of elevation (m/s = meters per second). An average wind speed of 12.0 miles per hour or greater is required to make a good potential wind power site. This corresponds to a wind power class of 3 or more. Washington County possesses areas having that wind power class. ' * Source: Washington County Comprehensive Resource Document, 1981. ,- Page 5 The full potential for wind generation in the City cannot be generally determined. Each geographic location would have to be individually reviewed. Small-scale wind power development - for residences, farms and small commercial applications - is not expected to provide a significant amount of electricity by comparison with utility and heavy industry use. By the year 2000 it will reduce only 76 of the capacity expected in 1985 for the larger-scale wind power developments in Oregon. The wind power potential of Oregon, and presumably the Washington County area also, will be developed for the most part through large wind turbine "farms." Large-scale wind power farms will not have major environmental impacts except those related to timber production. One researcher with the U.S. Bureau of Reclamation concluded: "Environmental impacts of large windfarms are mild and easily mitigated in comparison with those of conventional energy alternatives." Such utility-scale farms are expected to require between 0.41 acre and 3.66 acres of land. Wind turbine generators can interfere with television signals, but this is not a major problem. Interference can arise with the receiving antenna within three miles (UHF) or one-fourth mile (VHF) of the rotating blades. The effect is reduced by directional antenna, local television repeaters, circularly polarized transmissions, or cable reception. In _em-ote areas where wind power farms are llkely to locate, the population is sparse and residentstypically use directional antennas or have cable television; therefore the problems of interference in UHF televisions reception are minimal. The task force on wind of the Oregon Alternate Energy Development Commission found little reason to be concerned about low frequency noise from wind power generators. Calculations and field observations show insignificant noise levels from most large wind turbines. The aesthetic impact of wind power farms on the landscape should also be insignificant in Washington County areas. Wide spacing of each individual generator lessens the appearance of domination in an area. One nation-wide attitude opinion survey, in which respondents assumed much closer spacing, showed a definite aesthetic preference for wind turbines Over power transmission towers and lines. At present there is no absolute right to wind access in Oregon. As with solar energy access, the lack of such legal rights reflects an absence of interest in the past. Treatment of this question of wind access may be required at both the local and state level. For example, it is possible to create a local wind access permit system to define the legal wind access of a property owner and thereby prohibit owners of adjacent land from conflicting uses. Given the general location of the wind power resource in Washington County areas, it seems unlikely that the absence of wind access legal definitions would impede the location of wind power farms although the larger "farms" may not be appropriate uses in Tigard. For residential or small-scale uses elsewhere, such legal definitions would be more important. Page 6 The Accessory Development section of the Tigard Community Development Code should address the usage and location of Wind Generation Energy Devices ; (WGED), which v i be permitted as conditional development in any district. FINDINGS o ransportation and residential uses account for approximately half the al energy consumption in the Portlanu Metropolitan Area. In rial commercial uses comprise the other half of energy consumption l o The y of Tigard has no developed energy sources. o Conser on of energy at the local level is best eved through program imed at energy efficient transportation m and land use patterns, ducing travel distances between resident' - and work areas, infilling ant land, increasing densities of land es as a whole and encouraging ernative energy uses. o All forms of enewable energy sources used day are finite and the cost of these s es have increased as the su has decreased. o A reduction in the mmunity-wide use of renewable energy sources and the development of,. newable eueegy -yrbu:ces would have beneficial impacts on both local national econ o Mass transit systems can e a pos' influence upon energy consumption Y but require higher density ido i� nd activity areas to be effective. o The availability of cheap g in the past has resulted in the construction of residential commercial buildings that are energy inefficient. Weatherization d ulation of existing and new structures would substantially reduc 'energ nsumption for heating and cooling these structures. o Although it is a widused substitu for traditional energy sources, woodburning stoves c ave adverse eff on air quality if improperly used. ' o Alterna/n �ma, cture and site design curio --tions car. affect energy consumpas structure orientation the sun, landscaping, topograent structures. o Small enerating devices may be a via alternative energy source esidences. o The pobile consumes about 75% of all p leum used in tran tation in the Portland Area. POLIOg VTHJPCITY SHALL ENCOURAGE A REDUCTION IN ENERGY CONSUMPTION BY EASE RTUNITIES FOR ENERGY CONSERVATION AND THE PRODUCTION OF GY ALTERNATIVE SOURCES. f (, t z Page 8 SOURCES Oregon Department of Energy, Sixth Annual Report, January 1982. "Energy and Land Use," Portland Bureau of Planning, Fall 1976. "Transportation and Land Use Conservation Choices," Portland Energy Conservation Project. City of Portland, June 1977. 6 Air Quality Annual Report - 1981, Department of Environmental Quality. Washington County Comprehensive Resource Document, Washington County Planning Department, August 1981. i I RBANIZA T1 ®N Comprehensive Plan Report =t aWOFTIFARD Y ADOPTED BY CITY COUNCIL FEBRUARY 7, 1983 �N ORDINANCE NO. 83-07 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 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 for 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 bourdaries 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. 4. Maximum efficiency of land -upas within and on the fringe of the i existins urban area. 5. Environmental, economic, energy and social consequences. 6. Retention of agricultural land as defined, with Class I being the highest priority for retention and Class VI the lowest priority. L 7. Compatibility of the proposed urban uses with nearby agricultural E activities. The Urbanization Goal is important, because it develops a framework within E ' which all development activities have to be coordinated. It also integrates Iand balances all of the other a»ailable land resources in terms of the needs expressed by other goals: mainly Goal #10: Housing, Goal #9: Economy, Goal #1 Public Facilities and ,Services, ams #5• open Space, Goal #12: Transportation, Goal #7s Natural Hazards and Goal #1.3: Energ,. I, 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 urban land uses. To achieve this goal, the City has 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. j _l w 1 10.3-i THAHALL AAML RAGE E NOF { I AITEn ._rH OULD UL IN _ _ G „R ARD U&PLANNING AURA FFIC VISI OF LIC IL Mir S NGdMMA E S. 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 planning and development options which remain available within the comprehensive plan. On December 21, 1978 the Columbia Region Association of Governments (CR#G) Board of Directors approved a regional Urban Growth Boundary (UGB) with supportive findings. CRAG's board recommended that the newly created Metropolitan Service Distri • (METRO) forward those approved boundaries and findings to the Land �t *Source: Washington County Comprehensive Resource Document - 1981. Conservation and Development Commission (LCDC) €.:- acknowledgment. defined the .,�,-r; wledgment. . The UGB i 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 f T.U.P.A. 4,893.49 1.379-69 120.421 l Constrained vacant land is defined by slopes of 25% or greater, or land r located:within the 100 year floodplain.. i Adoption of the UGB assumed the following: i 4 r 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 impacts in terms of costs and benefits. f 4 i i _7_ y The objectives underlying the UGB are to -improve the efficiency of land use 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 strategies to supplement LCDC Goal #14 (Urbanization) for the management of the land surplus in August 1979. The five policy guidelines of those strategies are summarized below. Policy Guideline No. 1 - Establishes rules for the extension of new urban development within the Urban Growth Boundary by requiring that it be contiguous to areas of existing development. This is to encourage 'filling in' of buildable lands, and to Deduce 'leapfrog' or 'sprawl' development. Contiguous, in this case, means surrounded by development on 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. Policy Guideline No. 2 - Defines undeveloped land and specifies that local ordinances and controls will preserve undeveloped land for efficient ® future urbanization. (4 Policy Guideline No. 3 - Specifies when undeveloped land may be converted to urban uses. In particular, establishes the requirement that "sewer and water facilities and services are assured concurrent with final approval 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 immediate urban area and the Urban Growth Boundary. These are known as "specially regulated areas" (SRAs). This particular policy guideline does not affect the Tigard area since the area is entirely within the metro Urban Cro::th 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 development and the mix of attached and detached dwellings in the housing stock. Subsequently, specific guidelines for Goal #10 acknowledgment were development which applied to all of the jurisdictions in the METRO region. Jurisdictions were classified as either "small", "medium" or "large depending on future residential development capacity, and specific development targets were assigned to each class. These development targets are predicated on the rationale of a need to provide additional opportunities in the region to moderate the cost of housing. The City of Tigard is classified as a "large" sized_ jurisdiction, which mans that in order to achieve Goal #10 � -8- h w i compliance the city's urban planning, area, plan must provide the opportunity E for new residential construction to take place at an average 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: 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 need 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 pollution emissions to meet air quality standards. 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 f government before federal funds can be spent on local transportation projects. -9- r ' IV. SURVEY OF VACANT BUILDABLE LANPS• 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 i, 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 zon:^.g. Buil. on land having residences was generally assumed equivalent to the minimumlot 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 developed due to the character of the neighborhood, size of the house compared with the lot, scattered outbuildings, closeness of the lot to the minimum size required by current zoning, etc. These exclusions required 4 subjective judgment in many cases. ' -10- 5 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. 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. The 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 it 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 regard;na the coordination F 7 Vet -a-----o ^Co. ...o va. va paanuing aCtiviti.ea' uCcWZen jurisdictions. 2. The Annexation Ordinance (No. 82-29):(See Appendix D. The Annexation Ordinance establishes a process for cres*ting a straight, compact and 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. 3. The Systems Development Charge (SDC). SDC is a financing mechanism whereby part 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. r,- -11- r i 4. The "Comprehensive Plan.. The Comprehensive Plan contains several C+ policies related to he extension and financing of services and utilities, and alternative methods of meeting housing needs. 5. The 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 i siting of buildings and the provision of various housing types as well as assurances to the community that new development will be compatible with the site and surrounding land uses. 7. 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 Dc-velopment 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 Imp-ovement 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 -dicument 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. 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- i z ` 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 contaire� in the Urbanization Goal #14. FACTOR 1: Demonstrated need to accommodate long-range urban population growth requirements consistent with LCDC goals. Population 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) is 1981 which is 46,020. The actual holding capacity is dictated by th.! LCDC Metropolitan Housing Rule. According to buildable land inventory, in the Housing Comprehensive Plan report element, there is sufficient land to accommodate the 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. r 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 family, including existing and new c:':.s. 4. The buildable land inventory indicates that the Tigard Urban Planning Area contains sufficient land to meet the projected housing need through the year 2000. Employment Opportunities � E 1. In 1980, the Tigard area had approximately 21,350 jobs. The three j general employment categories included: office, industrial and retail. 1 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): I E f I -13- �; r Office Industrial 1980 2000 change 1980 2000 change 7630 14020 6390 7160 10520 3360 Retail 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 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 r" City. t *Source: Metro, 1981. Plan policies related to open space and recreation are undecided in the Nature Features and Open Space element report, and are intended to provide a framework for the retention of open space and recreational facilities. The following 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 economic provision of services and avoids sprawling development patterns. These mechanisms include: The annexation ordinance, all ordinances concerning 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 df Urban Planning Area provides for a mechanism to develop pians 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 f 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 [ (UPAA) 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. j 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, mater and Land Resource Quality. Pian policies developed in the "Air, Water, and hand Resources Quality" section of the t Comprehensive Plan report requires that all deve opment 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. b. Hazard Lands. The majority of lane 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. EneKSX. Energy efficiency is considered through: i 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; d. The recognition of neighborhood convenience shopping areas; and e. The requirement for the siting and design of new development to take into account energy considerations. 15 :� 3. Economic. (see Factors 1 and 2) Lands suitable for industrial act v ty but PQrhaps 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 with 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. IThus, all of the land within Tigard has been deemed to be urban land. E : f j -16- BUILDABLE LAND INVENTORY i District R-1 R-2 R-3.5 R-4.5 R-7 R-12 R-20 1-40 NPO 1 3.03 7.17 5.75 29.07 (CBD) (CBD) 2 4.09 18.79 3 27.2 64.2 54.86 10.0 40.73 4 5 45.52 30.75 54.07 49.01 6 182.39 93.51 33.09 50.15 9.11 7 124.86 4.0 80.50 66.25 Gross Acres 0 27.2 109.72 395.89 172.84 227.87 145.47 38.18 MINU I 25x SLOPES 6.34 8.93 6.50 3.69 FLOODPLAIN 2.84 16.01 5.80 4.25 20% SF STREETS 4.17 21.94 76.82 15%NF STRRSTS 23.52 32.34 16.27 5.73 NET ACRES 0 16.69 87.78 307.30 133.31 183.23 92.19 32.45 UNITS 0 29.04 305.47 1425.87 1599.72 2198.76 1843.8 1298.0 TOTALS ACRES 852.95 UNITS 8,700.66 UNITS/ACRE 10.20 i C-ScCI& AND INDUSTRIAL DISTRICT C-N C-G C-H CBD C-P I-P I-L I-H NPO 1 8.0 25.33 2 17.30 I, 3 10.84 9.47 4 12.90 57.90 65.00 5 3.53 13.28 58.17 131.4 5.7 6 1.50 5.67 11.98 7 6.60 TOTALS 5.03 24.51 12.90 25.33 127.33 140.47 131.40 5.70 FLOODPLAIN ( 75 io.50 26.13 251: ELOPE I 28 t 5.03 24.51 12.62 24.58 127.33 129.97 105.27 5.70 x< THIS CHART REFLECTS THE CHANGES THE PLANNING COMMISSION APPROVED FROM THE LAND USE AND 1NTRIM MAPS BUT DOES NOT REFLECT FINAL APPROVAL OF z; THE CITY COUNCIL. 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F",',g�_.�'�"`N��",�-�'s.� ��v'�4 � L� a,Fs " a.x-.� fib^5 �+EF,. r 4 ?r_ VEMKIWlaw .M�1�','�, , !iTl` & 'sem vz r "T ;��. 5 far } yINA "�6 '' +pay.�..r It, i gv ?IMM -111 � �� s �e WAl rH A Sgt _ .x 2 .. i TIGARD COMPREHENSIVE PLAN 1 F j' FINDINGS, POLICIES AND IMPLEMENTATION STRATEGIES { i October 1982 Revised February 1983 CITY COUNCIL PLANNING COMMISSION Y Wilbur Bishop - Mayor Frank Tepedino - President John Cook Cliff Speaker Tom Brian Donald Moen Nancie Stimier - Former Member Richard Helmer .- Former Member Ken Scheckia rank Christen Ima Scott Roy Bonn -/ Bonnie Owens Deane Leverett Phil Edin Ron Jordan Committee for Citizen Involvement Wilbur Bishop Mayor Frank Tepedino - Planning Commission President Park Board Chairman John Butler NPO #1 Bruce Clark - NPO #2 lou Ane Mortensen - NPO #3 Rich McMahon - NPO #4 Chris Vandenwood NPO #5 Phillip Pasteris - NPO #o Nancy Robbins - NF0 #7 Project Staff William A. Monahan Director of Planning Development Jeremy Coursolle Associate Planner f ,M Liz Newton Associate Planner Fd Sullivan City Attorney Adrianne Brockman City Attorney Office Loreen Wilson - Office Manager Patt Martin - Word Processing Diane Jelderks - Planning Secretary TABLE OF CONTENTS ( INTRODUCTION 1 1. General Policies 5 2. Citizen Involvement 8 3. Natural Features and Open Space 11 3.1 Physical Limitations and Natural Hazards 11 3.2 Floodplains and Wetlands 13 3.3 Natural Resources 14 f 3.4 Natural Areas 15 3.5 Parks, Recreation and Open Space 16 3.6 Park Standards 18 3.7 Historical-Cultural Resources 20 4. Air, Water and Land Resources Quality 21 4.1 Air Quality 21 4.2 Water Quality 23 4.3 Noise Pollution 24 4.4 Land Resources 25 5. Economy 26 6. Housing 30 6.1 Housing Needs 31 6.2 Housing Costs 33 (- 6.3 Established Residential Areas 34 6.4 Developing Residential Areas 35 6.5 Housing Conditions 36 6.6 All Areas 37 7. _;lic Fac;l;t;es and Services 38 7.1 General 39 7.2 Storm Drainage and Wastewater Management 41 7.3 Water Service 42 7.4 Sewer Service 43 7.5 Police Protection 45 7.6 Fire Protection 46 7.7 Private Utilities 47 7.8 Schools 48 7.9 Health Services 49 7.10 Local Government Facilities 50 7.11 Library Services 50 7.12 Solid Waste Disposal and Recycling 51 8. Transportation 52 8.1 Traffic Ways 53 8.2 Public Transportation 56 8.3 Transportation for the Disadvantaged 57 8.4 Pedestrian and Bicycle Pathways 58 8.5 Railroad 58 9. Energy 59 10. Urbanization 62 11. Special Areas of Concern 67 12. Locational Criteria 73 ■ INTRODUCTION PURPOSE The Comprehensive Plan is the document through which the citizens of Tigard have made the basic choices on how land development and redevelopment should occur, and how it will be managed. After many years of segmented planning, the seven separate Neighborhood Planning Organization plans comprised the communities planning efforts, this Comprehensive Plan is intended to aggregate the community's planning efforts into one "Community Wide Comprehensive Plan" for the Tigard Urban Planning Area. The purpose of the plan is to maintain and :improve the existing quality of life for the residents by: 1. Prohibiting development which would cause a diminution in the existing quality of life for the residents of Tigard; 2. Protecting individuals from the. negative impact of developing land which have natural hazards and are subject to natural disasters; 3. Identifying and protecting resource lands from urban development encroachment; 4. Providing for the retention of natural and cultural resources which contribute to the livability of the community; =� 5. Providing adequate land to meet anticipated future demands for urban development in a logical and orderly manner; a ti, Encouraging flexibility and innovation in development techniques to permit diversity within the community and to slow the increase in development costs; 7. Reducing the uncertainty of the development process; 8. Contributing to a healthy, stable and diversified economy within Tigard; 9. Providing for an orderly and timely arrangement and provision of public facilities and services to function is the framework for urban development; and 10. Facilitating citizen participation in all phases of the planning process. The Tigard Comprehensive Plan is the plan on which land use decisions will be made for the area within the Tigard Urban Planning Area during the planning period (1980-2000). In areas outside the Tigard city limits, Washington County retains legal jurisdiction over development proposals and public ` improvemtnt projects. The City, however, reviews and makes recommendations on proposals and projects inside the Urban Planning Area, and often coordinates with the County on related projects. _1 An Urban Planning Area Agreement between Tigard and Washington County regarding planning in the Tigard Urban Planning Area has been adopted. This agreement includes recognition of a Urban Planning Area boundary and related policies which are intended to: 1. Identify planning efforts for the City of Tigard and Washington County; 2. Provide for an orderly and efficient transition from urbanizable to urban land; and 3. Provide a process by which the City may expand the Urban Planning Area boundary when the City, County and affected property owners find that such an extension is necessary. PLAN FORMAT Each of the first eleven Plan Sections are organized in the following manner: 1. An introductory statement including a discussion of the intent and purpose, precedes each policy; 2. Brief statements of the findings which were developed for the factual material in the comprehensive plan resource reports; 3. The policy statements and directives to the City for making decisions and preparing plans; and 4. Implementation strategies which are recommendations and set forth the means for implementing the plan; i.e., the preparation of specific plans, adopting of regulations, and special study commissions. The twelfth chapter of the document contains location criteria policies which establish standards for the designation of land use areas an the plan map and in making decisions on development proposals. These policies apply to the ®� location of housing, commercial, industrial and public utilities and facilities. The policies establish the limits within which land development will occur in Tigard over the ,planning period (from 1980-2000). They also provide the generalized framework upon which more detailed plans and implementation mechanisms will be based. These may include: 1. The application of the plan policies when reviewing development requests subdivisions, planned developments, district changes, etc. 2. The formation of land development regulations into a unified Community Development Code; 3. The establishment of a growth management system which coordinates and evaluates a wide variety of existing mechanisms for the purpose of .,. ' guiding the timing, type, and location of growth; -2- t 4. The updating and yearly evaluation of the capital improvement program for the acquisition and development of public facilities and services; 5. The coordination agreements between jurisdictions and other agencies; Tigard downtown urban revitalization project; 6. The continued work on the 7. The application of functional plans such as transportation, parks and j recreation, sanitary sewers, water, etc., to urban planning and 1 reviewing developments; and 8. The requirements of the City Charter, City ordinances, and City Council policies. Due to the nature of the planning process, the contents of many of the chapters are interrelated with each other. No chapteril complete unto itself. Each chapter represents an aspect, from a particular of reference, of a total system of policy direction. Thus the plan needs to be viewed and used as a whole. The legal effects of the policies and implementation strategies are twofold: 1. They set direction for the City during the planning period; and 2. They establish the basis for an ongoing work program for the City. Another integral aspect of the comprenensive plan is the Comprehensive Plan Map, which is intended to be the visual representative of the policies and adopted land uses. Where there may be apparent inconsistencies between the policies and the map, the policies shall control. GOVERNMENTAL COORDINATION _ .o.,.i rme an- The City's planning efforts include not only the City'a co.� _-_ Cs to land use planning, but also those planning and development commitments made by other governmental jurisdictions and agencies. 1. Land Conservation and Development Commission (LCDC) State law mandates that cities and counties prepare comprehensive plans in accordance wing th applicable statewide land use Process goals. LCDC's land use planning goals establish a planning p and actions related to and a policy framework to guide all decisions he use of land. The City's plan is intended to be consistent with applicable LCDC goals. 2. Metropolitan Service District (MSD) MSD, the regional planning agency, has adopted regional policy growth within the regional urban growth guidelines for managing boundary (UGB). Although these policy guidelines are not absolute ' �.. requirements, they do establish objectives and targets for the region. Major identified urban growth policies are: —3— . a. Urban Growth Boundary Findings; b. Housing Goals and Objectives; and c. The Regional Transportation Plan (RTP). j t 3. Washington County The Urban Planning Area Agreements (UPAA), drawn between the cities and the county, identify areas of planning interest together with appropriate policy commitments (i.e. , growth management strategies, annexation policies). The UPAA's provide an opportunity for the cities and the county to comment on a variety of land use actions in unincorporated Washington County. I HOW TO USE THE PLAN FOR LAND USE ACTIONS € w 1. Functions of the Plan The plan services an administrative as well as legislative function. With respect to administrative or quasi-judicial matters, the plan i establishes a policy framework for decision making on such matters as: a. Revisions to the Comprehensive Plan; b. Zoning district changes; c. Conditional developments; and d. Subdivisions. 2. Land Use Actions - How to Use the Plan In order to determine the effect of the plan on ual pe land, or on proposals fcr, development, the g steps parcels eals follows: a. Determine the land use classification that applies to the parcel of land and read the related plan text and policies; b. Call the City Planning and Development Department, and askfor w ith zoning district designs the tion on the property by providing them the legal description, i.e.: the Section, Township, Range and Lot Number or Subdivision Name, Block and Lot Number; c. If the plan and zoning accord with what you want to do check with the Planning and Development Department to determine if there are arty other applicable regulations; or d. If the plan or zoning district prohibits the proposed use, request of a preapplication conference with the Planning and Development Department staff for assistance in determining all of the alternative courses of action. -4- ' 7 t 1. GENERAL `t The purpose of this section is to establish the relationship between the City of Tigard's Comprehensive Plan and 1 1. The Oregon Revised Statutes, Chapter 197 and the Statewide Planning Goals and Guidelines of the land Conservation and Development Commission; 2. The Regional Plan set forth by the Metropolitan Service District; 3. The Comprehensive Framework Plan and policies of Washington County; to 4. The requirement that plans updated. e plan will olicy for Tigard reflectsdthe ensure that the plan as thelanduseP changing needs and circumstances of the community. e E F Y FINDINGS E i o Each plan adopted under the Land Conservation and Development Commission's i Statewide Planning Goals and Guidelines must: 1. Goal #1: Develop a citizen involvement program that ensures the opportunity for citizens to get involved in all aspects of k the planning process. 2. Goal #2: Establish a land use planning process and policy framework as the basic of all land use decisions and actions, and ensure an adequate factual data base to substantiate those decisions and actions; 3. Goal #3: Preserve and maintain agricultural lands beyond the Urban Growth Boundary of the commmunity. 4. Goal #4: Conserve forest lands not committed for urban uses, for strictly forest uses. 5. Goal #5: Conserve open space and protect natural and service resources; 6. Goal #6: Maintain and improve the quality of air, water and land resources; 7. Goal #7: Protect the community's life and property from natural disaster and hazard areas; 8. Goal #8: Meet the recreational needs of the community, State, and visitors; ..` 9. Goal #9: Diversify and improve the economy of the community and the State; 10. Goal #10: Provide adequate housingfor the needs of the community, region and state; -5- 11. Goal t11: Plan and develop a timely, orderly and efficient arrangement of public facilities and services to serve as the framework for urban development. 12. Goal #12: Provide and encourage a safe, convenient and economic transportation system; r s 13. Goal #13: Conserve energy; and 14. Goal #14: Provide for an orderly and efficient transition from urbanizable to urban land uses. o The Metropolitan Service District established a Regional Urban Growth Boundary which includes enough land necessary to accommodate urban land needs to the year 2000. This boundary includes all of Tigard. o The City of Tigard's Comprehensive Plan includes basically parts: three � The first part includes the individual comprehensive plan reports (Citizens Involvement; Natural Features rind Open Space; Air, Water and Land Resources; Economy; Housing; Public Facilities and Services; f Transportation; Energy and Urbanization.), which constitute the findings; the second part of the plan includes the summary and policy document for the findings, polices and implementation strategies; and the third part of the plan includes the Tigard Community Development Code, which set forth the development standards and outlining the procedures for obtaining the necessary development approvals. u I o The ongoing planning program will include the preparation of a capital { improvements plan outlining the major capital investments needed to realize full development of the planning area, finding sources and a tt budget. POLICIES 1.1.1 THE CITY SHALL ENSURE THAT: a. THIS COMPREHENSIVE PLAN AND ALL FUTURE LEGISLATIVE CHANGES SHALL BE CONSISTENT WITH THE STATEWIDE PLANNING GOALS ADOPTED BY THE LAND CONSERVATION AND DEVELOPMENT COMMISSION, THE REGIONAL PLAN ADOPTED BY THE METROPOLITAN SERVICE DISTRICT; b. ANY NEIGHBORHOOD PLANNING ORGANIZATION PLANS AND IMPLEMENTATION MEASURES ADOPTED BY THE CITY OF TIGARD AFTER THE EFFECTIVE DATE OF THIS COMPREHENSIVE PLAN SHALL BE DESIGNED TO BE CONSISTENT WITH THIS PLAN; AND c. THE TIGARD COMPREHENSIVE PLAN AND COMMUNITY DEVELOPMENT CODE SHALL BE KEPT CURRENT WITH THE NEEDS OF THE COMMUNITY. IN ORDER TO DO THIS: 1. THIS PLAN SHALL BE REVIEWED AND UPDATED AT LEAST EVERY FIVE YEARS. -6- i 1.1.2 THE COMPREHENSIVE PLAN AND EACH OF ITS ELEMENTS SHALL BE OPENED FOR AMENDMENTS THAT CONSIDER COMPLIANCE WITH THE PLANS OF THE METROPOLITAN SERVICE DISTRICT (MSD) OR ITS SUCCESSOR ON AN ANNUAL BASIS, AND MAY BE SO AMENDED OR REVISED IF DEEMED NECESSARY BY THE CITY COUNCIL. ANNUAL AMENDMENT AND REVISION FOR COMPLIANCE WITH THE ABOVE REGIONAL GOALS, OBJECTIVES AND PLANS SHALL BE CONSISTENT WITH ANY SCHEDULE FOR RE-OPENING OF LOCAL PLANS APPROVED BY THE LAND CONSERVATION AND DEVELOPMENT COMMISSION (LCDC)• THIS PROVISION IS NOT TO BE CONSTRUED AS WAIVING ANY LEGAL RIGHTS WHICH THE CITY MAY HAVE TO CHALLENGE THE LEGALITY OF A REGIONAL GOAL, OBJECTIVE, OR PLAN PROVISION. IMPLEMENTATION STRATEGIES 1. The Comprehensive Plan Future Land Use Map and the Official Development District map (Zoning) will reflect the plan policies and apply land use categories in the following manners: a. Low Density Residential - 1 to 5 units to the net acre. The applicable development districts are all single family residential (R-1, R-2, R-3.5 and R-4.5) b. Medium Density Residential - 5 to 12 units to the net acre. The applicable development districts are single and multiple family (R-7 and R-12). c. Medium High Density Residential - 12 to 20 units to the net acre. The applicable development district is R-20. d. High Density Residential - 20 to 40f units to the net acre. The applicable development districts are R-20, and R-40. e. Neighborhood Commercial - Areas of concentrations of small commercial and personal service activities and related uses necessary to satisfy the daily shopping and related needs of nearby residents. The applicable development district is Neighborhood Commercial (C-N). f. Linear Commercial Refers to areas for auto-oriented and related commercial uses located along major trafficways. The applicable development districts are General Commercial (C-G) and Highway Commercial (C-H). g. Professional Office Commercial - Areas deemed appropriate for business and professional offices and related uses. The applicable development district is Professional and Administrative Office (C-P). (" h. Central Business District The area deemed appropriate for high ` intensity mixed use development allowing commercial, office, as well as higher density residential uses of a minimum of 20 units per acre or higher. The applicable development districts are, the Central Business District (CBD) and the T.U.R.A. Special District whichlimits, residential uses to 12 units per acre. -7- i. Light Industrial - Refers to areas deemed appropriate for industrial activities which include manufacturing, processing, assembling, packaging or treatment of products from previously prepared materials and which are devoid of nuisance factors that would adversely affect other properties. The appropriate development districts are Light Industrial (I-L) and Industrial Park (I-P) which also permitted offices and related uses. j. Heavy Industrial - Those areas deemed appropriate for intensive manufacturing, process, or assemble semi-finished or finished products, including fabrication, and whose operating characteristics are potentially incompatible with most other land uses. k. Public/Institutional - Refers to areas deemed for municipal uses, school uses or other public uses, e.g. , Durham Treatment Plant. 1. Open Space - Areas designated for retention in a natural state and for development for recreational uses, e.g., floodplain, parks, etc. 2. The Community Development Code (C.D.C.) shall provide quasi-judicial changes to the Comprehensive Plan Map which may be initiated by affected parties on a semi-annual basis ar..d approved if the City Council finds: a. The change is consistent with applicable plan policies; or b. A change of physical circumstances has occurred since the original a designation; or c. A mistake was made in the original land use designation. z 3. Functional master plans shall be prepared and implemented in .. conformance to the Comprehensive Plan and the Tigard Community Development Code. 2. CITIZEN INVOLVEMENT This chapter addresses Statewide Planning Goal #1: "To develop a citizen involvement program that ensures the opportunity for citizens to be involved in all phases of the planning process." Tigard is now well known for its active citizen participation program; primarily with the Neighborhood Planning Organizations. Through the drafting `.: and adoption of the Comprehensive Plan, these organizations contributed their time and energy developing Tigard's plan. .F -8- x2�3 A e� r � X e t Plan policies have been prepared to preserve the continuity of Tigard's active citizen involvement program and to ensure that citizens will continue to have access to information that enables them to identify, understand, and have ' input in the planning issues related to implementation of the Comprehensive Plan. Additional information on this topic is available in the "Comprehensive Plan Report: Citizens Involvement." C t FINDINGS t o Throughout the development of the Tigard Comprehensive Plan, the City has actively sought the participation of Neighborhood Planning Organization and other citizens groups. o The Neighborhood Planning Organizations and the Committee for Citizen Involvement have met on a monthly basis throughout the Comprehensive Plan revision process. o o Continued citizen participation in all aspects of land use planning helps to ensure that City government meets the needs of Tigard's citizens. o In order to participate in land use planning decisions, citizens need to have access to information which enables them to become aware of and informed about planning issues and City policies. It is essential that C this information be made available to all citizens in an understandable form. o Land use planning education is an important method to promote and stimulate interest in the citizen participation process during all phases of planning. POLICY 2.1.1 THE CITY SHALL MAINTAIN AN ONGOING CITIZEN INVOLVEMENT PROGRAM AND SHALL ASSURE THAT CITIZENS WILL BE PROVIDED AN OPPORTUNITY TO BE INVOLVED IN ALL PHASES OF THE PLANNING PROCESS. IMPLEMENTATION STRATEGIES 1. The City shall periodically review notification requirements and methods to determine if they adequately provide notice to affected citizens and revise these requirements and methods as necessary. 2. The City shall continue to inform, in a timely manner, all of the Neighborhood Planning Organizations (NPO) and other citizens groups on all land uoe planning matters. 3. The City shall continue to assist, and support any City Council recognized citizen group in providing 'adequate meeting places, distribution of materials, policy direction and staff involvement. -9- Vii. Additional citizen task forces shall be appointed by the City Council, as the need arises, to advise the City with regard to Comprehensive Plan issues. i POLICY 2.1.2 THE OPPORTUNIITES FOR CITIZEN INVOLVEMENT PROVIDED BY THE CITY SHALL BE APPROPRIATE TO THE SCALE OF THE PLANNING EFFORT AND SHALL INVOLVE A BROAD CROSS-SECTION OF THE COMMUNITY: a. THE NEIGHBORHOOD PLANNING ORGANIZATIONS SHALL BE THE PRIMARY MEANS FOR CARRYING OUT THE PROGRAM; b. WHERE APPROPRIATE OTHER INVOLVEMENT TECHNIQUES WILL BE USED; AND c. THE COMMITTEE FOR CITIZEN INVOLVEMENT SHALL BE RESPONSIBLE FOR ; EVALUATING THE PROGRAM AND FOR WORKING WITH THE NEIGHBORHOOD PLANNING ORGANIZATIONS IN RECOMMENDING CHANGES IN THE PROGRAM. p, IMPLEMENTATION STRATEGIES I 1. The Committee for Citizen Involvement and the Neighborhood Planning : Organizations shall conduct their citizen involvement programs in accordance with the needs of the Tigard community and LCDC Goal 1 I requirements. A review and evaluation of each group's programs and I processes shall be reported to the Planning Commission and City Council on a yearly basis. 2. The City Council, the Planning Commission the Committee for Citizen Involvement and the Neighborhood Planning Organization shall recommend, as needee., additional methods for involving citizens in the planning process. POLICY 2.1.3 THE CITY SHALL ENSURE THAT INFORMATION ON LAND USE PLANNING ISSUES IS AVAILABLE IN AN UNDERSTANDABLE FORM FOR ALL INTERESTED CITIZENS. ' IMPLEMENTATION STRATEGIES 1. The City shall continue to publish information on land use planning issues in a form accessible to all citizens and shall use the Committee for Citizen Involvement and Neighborhood Planning Organizations as the resources for performing such reviews. C � r ' -10 f^ a IF a E 3. NATURAL FEATURES AND OPEN SPACE t 6 This chapter addresses a broad range of topics all having to do with the natural resources within the Tigard Urban Planning Area. This chapter . reflects the concerns expressed in several of the Statewide Planning Goals including: Goal #3 - Agricultural Lands; goal #4 - Forest Land; Goal #5 - Open Spaces; Scenic and Historic Areas and Natural Resources; Goal #7 - Areas subject to Natural Disasters and Hazards; and Goal #8 - Recreational Needs. The natural environments within the planning area offer many opportunities for unique and healthy urban development. Those environments, when viewed as a series of systems rather than isolated features, will provide Tigard with those elements necessary for a healthy place in which to live, work, and w play. Floodplain greenways, for example, can provide the community with an excellent system of open space links between neighborhoods and services, in addition to providing a relatively inex�. nsive system for storm water runoff. It is to the community's benefit that consideration be given to both the opportunities and the limitations of the various environments within the planning area. The natural environments included within the planning area all have their own respective limitations with regard to urbanization. Development pressure upon lands with such limitations can have profound effects on the environment. Erosion of steep slopes caused by inappropriate development, for instance, does not occur as an isolated incident. Soil type, permeability, vegetation, and drainage all play major roles in and are effected by development. Likewise, the effects of inappropriate development located within the floodplain areas could have adverse effects on properties both up and down stream from the development site. The social, cultural, and economic values of such resource lands could be reduced by the effects of urban development nearby. The limitations of the various environments should be considered in reviewing new development within the planning area. The -recognition of the natural environment in the planning area and the development of findings and policies which address the characteristics of the environment are extremely important elements in the Comprehensive Plan. The purpose of this chapter is to define the parameters of the various natural environments in the planning area and to identify the limitations and opportunities inherent in those environments. Additional information on this topic is available in the "Comprehensive Plan Report: Natural Features and Open Spaces." 3.1 PHYSICAL LIMITATIONS AND NATURAL HAZARDS FINDINGS kr o The physical features which form the make-up of any piece of land have a direct relationship to the type and density of development which can be ` accommodated on that property (carrying capacity). Combinations such as steep slopes and unstable soils create severe development constraints. Excessive development in such physically limited areas greatly increases the potential severity of landslide, earthquake damage, flooding, etc. -11- t i - l o Many portions of the floodplair area contain natural aspects such as i significant vegetation, wildlife, scenic areas and are valuable for open space and recreation. o Vegetation serves an essential element in the process of runoff and erosion control, as well as for the protection and natural habitation of wildlife. Nonetheless, it is too often removed and replaced by buildings and impervious surfaces. o Due to the general nature of soils and geologic mapping, site specific analysis is often necessary to determine the presence of geologic hazards and the severity of soil problems which are constraints to development. Such geologic hazards exist when certain combinations of slope, soil, and bedrock combinations, and moisture conditions render land unstable. o Earthflow and slump topography exist in hilly sections of the planning area and are associated with poor drainage, shallow subsurface flow on ground water and springs, and high susceptibility to erosion. Earthflow and slump occurrences can destroy roads and buildings, and adversely affect water quality. Mass movement has not resulted in any major loss of life or property thus far, because little in the way of urban development exists on land with serious problems. o Increased runoff and sedimentation from poorly developed hillsides can require increased public expenditures for flood and erasion control and storm water management. o The City of Tigard had adopted a "Hillside Development Provision" within the Sensitive Lands ordinance which requires additional review of those developments. o The City of Tigard requires new developments to have a storm water runoff plan to ensure against adverse effects such as erosion and sediment. POLICY 3.1.1 THE CITY SHALL NOT ALLOW DEVELOPMENT IN AREAS HAVING THE FOLLOWING DEVELOPMENT LIMITATIONS EXCEPT WHERE IT CAN BE SHOWN THAT ESTABLISHED AND PROVEN ENGINEERING TECHNIQUES RELATED TO A SPECIFIC SITE PLAN WILL MAKE THE AREA SUITABLE FOR THE PROPOSED DEVELOPMENT: a. AREAS HAVING A HIGH SEASONAL WATER TABLE WITHIN 0-24 INCHES OF THE SURFACE FOR THREE OR MORE WEEKS OF THE YEAR: b. AREAS HAVING A SEVERE SOIL EROSION POTENTIAL; c. AREAS SUBJECT TO SLUMPING, EARTH SLIDES OR MOVEMENT; �P d. AREAS HAVING SLOPES IN EXCESS OF 25%; OR C, e. AREAS HAVING SEVERE WEAK FOUNDATION SOILS. 4 - IMPLEMENTATION STRATEGIES I I. The City shall designate on a map areas having physical limitation (poorly drained, seasonally flooded, ground instability) and shall incorporate these designations in the Tigard Community Development Cade and map, and shall develop graduated development restrictions according to the distinct characteristics of the constraints and anticipated limitations. 2. The City shall revise the sensitive lands section of the Tigard Community Development Code to identify those areas that have distinct constraints and limitations. 3. The City shall cooperate with other agencies to help identify these areas. 4. The City of Tigard shall provide in the Community Development Code that the City may require site specific soil surveys and geologic studies where potential hazards are identified based upon available geologic and soils evidence. When natural hazards are identified, the City will require that tl.-ecial design considerations and construction measures be taken to offset the soil and geologic constraints present in order to protect life and property, and to protect environmentally sensitive areas. 5. The Community Development Code shall not permit developments to be planned or located in known areas of natural disasters and hazards without appropriate safeguards. 3.2 FLOODPLAINS AND WET LANDS FINDINGS o The objective of the City is to use the detailed information gathered on floodplains from the U.S. Army Corps of Engineers, and develop policies to: 1. Control development, as to not adversely affect the floodplain and floodway areas, !! 2. ?Minimize the runoff-erosion impact of development on the surrounding area and downstream properties, and 3.. Emphasize the retention of a vegetation buffer along streams and drainageways, to reduce runoff and flood damage and provide erosion and siltation control. o In addition, there is the issue of the cumulative effect of development x upstream of Tigard. Flood levels in Tigard will be substantially determined by the controls exercised over development outside the plan area, as well as inside Tigard's Planning Area. o The Fanno Creek drainage system includes numerous_ small water courses. The integrity of these natural drainageways is intrinsically connected to the system's capacity to absorb excessive runoff and on subsequent flood 7: -13- tFt !ff FCF f f t i levels. Often, however, water courses are altered to provide more usable f land. The resultant adverse impacts are detrimental to the entire drainage system. i.e., the storage capacity at the water course is lessened and flooding occurs. a Besides the basic need to control development in flood prone areas, it was found that public knowledge of floodplain hazards was lacking. Many of the obstructions previously placed in the floodplain were the result of either ignorance or overly optimistic attitudes about potential flou..ing j problems. These obstructions (e.g. Main Street Bridge) hinder the flow of r high water and tend to increase flood levels. o Proper administration of the floodplain areas relies heavily upon the availability of adequate information upon which to assess the environmental impacts of a project. The development, which creates the need, should be responsible for providing the City with the necessary data for making sound decisions. The burden is on the applicant to prove that a project will not adversely affect the environment or create undue future € liabilities for the City. o The City of Tigard, with assistance from The U.S. Army Corps of Engineers, has established an area d€sigi,ated within the 100-year floodplain. P E o The City of Tigard has been accepted as an eligible area for the National Flood Insurance Program, and as a result flood insurance will be available to property owners in flood prone areas. The federal program, however, i, requires the City to adopt an ordinance which meets certain federal standards. o The City of Tigard currently has ordinances, policies and standards within the Tigard Community Development Code which provide adequate controls for development within floodplain areas. o According to the 1981 Drainage Master Plan Study conducted by CH2M Hill for the City, flood levels of two to four feet higher than the existing 100-year flood plain may be expected if no corrective measures are taken. 3.2.1 THE CITY SHALL PROHIBIT ANY LAND FORM ALTERATIONS OR DEVELOPMENTS IN THE 100-YEAR FLOODPLAIN WHICH WOULD RESULT IN ANY RISE IN ELEVATION OF THE 100-YEAR FLOODPLAIN. 3.2.2 THE CITY SHALL: a. PROHIBIT LAND FORM ALTERATIONS AND DEVELOPMENT IN THE FLOODWAY*, EXCEPT ALTERATIONS MAY BE ALLOWED WHICH PRESERVE OR ENHANCE THE FUNCTION AND MAINTENANCE OF THE ZERO-FOOT RISE FLOODWAY*; AND b. PROHIBIT LAND FORM ALTERATIONS OR DEVELOPMENT IN THE FLOODPLAIN* OUTSIDE THE ZERO-FOOT RISE FLOODWAY* EXCEPT AS FOLLOWS: 1. LAND FORM ALTERATIONS SHALL BE ALLOWED WHICH PRESERVE OR ENHANCE THE FUNCTION OF THE ZERO-FOOT RISE FLOODWAY*. -14- i 2. LAND FORM ALTERATIONS AND DEVELOPMENT SHALL BE ALLOWED WHERE BOTH SIDES OF THE FLOODPLAIN* ARE DESIGNATED AS EITHER INDUSTRIAL OR COMMERCIAL ON THE COMPREHENSIVE PLAN MAP, AND THE FACTORS SET FORTH IN POLICY 3.2.3 CAN BE SATISFIED. 3. LAND FORM ALTERATIONS AND DEVELOPMENT SHALL BE ALLOWED WHERE ONE SIDE OF THE FLOODPLAIN* IS PLANNED FOR COMMERCIAL AND INDUSTRIAL USE SUBJECT TO THE FOLLOWING LIMITATIONS: ; (a) THE LAND FORM ALTERATION OR DEVELOPMENT IS ON LAND DESIGNATED ON THE COMPREHENSIVE PLAN MAP FOR COMMERCIAL OR INDUSTRIAL USE; (b) THE APPLICANT CAN SHOW THAT ALTERATIONS OR DEVELOPMENT INTO THE FLOODPLAIN* IS REASONABLE AND NECESSARY TO BETTER ECONOMIC USE OF THE SITE; r (c) THE FACTORS SET FORTH IN POLICY 3.2.3 CAN BE SATISFIED. I 3.2.3 WHERE LAND FORM ALTERATIONS AND DEVELOPMENT ARE ALLOWED WITHIN THE 100-YEAR FLOODPLAIN* OUTSIDE THE ZERO-FOOT RISE FLOODWAY*, THE CITY SHALL REQUIRE: a. THE STREAMFLOW CAPACITY OF THE ZERO-FOOT RISE FLOODWAY* BE MAINTAINED; j ; b. ENGINEERED DRAWINGS AND DOCUMENTATION SHOWING THAT THERE WILL BE NO DETRIMENTAL UPSTREAM OR DOWNSTREAM CHANGES IN THE FLOODPLAIN* AREA, AND THAT THE CRITERIA SET FORTH IN THE SENSITIVE LANDS SECTION OF THE CODE HAVE BEEN MET (See FIS September 1971); . c. THE PLANTING OF AN EVERGREEN BUFFER ON THE COMMERCIAL OR INDUSTRIAL LAND ABUTTING RESIDENTIAL LAND WHICH SCREENS THE DEVELOPMENT FROM VIEW BY THE ADJOINING RESIDENTIAL LAND, AND WHICH IS OF SUFFICIENT WIDTH TO BE NOISE ATTENUATING; AND d. THE DEDICATION OF SUFFICIENT OPEN LAND AREA FOR GREENWAY ADJOINING THE FLOODPLAIN* INCLUDING PORTIONS AT A SUITABLE I ELEVATION FOR THE CONSTRUCTION OF A PEDESTRIAN/BICYCLE PATHWAY WITHIN THE FLOODPLAIN* IN ACCORDANCE WITH THE ADOPTED PEDESTRIAN BICYCLE PATHWAY PLAN. *The Floodplain and Floodway as defined by the Flood Insurance Study for the City of Tigard dated September 1, 1981. (IMPLEMENTATION STRATEGIES TO BE INSERTED) -14a- ' 3.3 NATURAL RESOURCES FINDING o Currently, there are extensive rock and gravel extraction areas located to the north and west of Tigard's planning area within Beaverton and Washington County. o There is one active mineral or aggregate resource within the Tigard Planning Area, known as the Durham Pits, which is operated by Washington County. POLICY 3.3.1 THE CITY OF TIGARD SHALL SUPPORT THE EFFORTS OF WASHINGTON COUNTY, BEAVERTON AND THE METROPOLITAN SERVICE DISTRICT TO ENSURING THE AVAILABILITY OF THE ROCK MINERAL RESOURCES. �cx u a -i5- E F r IMPLEMENTATION STRATEGY 1. The City ahall encourage those jurisdictions regulating rock extraction to closely monitor the relationship between the demand for the resource and the amount of land planned for rock and gravel extraction and processing. -- 3.4 NATURAL AREAS FINDINGS o There are a variety of plants, animals and water fowl with the Tigard planning area which greatly add to the quality of life within the community. o Each species requires a complex and often, a narrowly specific set of conditions with respect to food, water, and vegetative cover or other natural features necessary for escape and reproduction. o The significant plant communities and animal habitat areas are the riparian vegetation adjacent to the water resources in the community, and various stands of timber and brush. o Development adjacent to existing wildlife areas can adversely effect these E areas and in some instances can virtually eliminate these needed wildlife habitat areas. o Vegetation contributes to the aesthetic quality of the community. Vegetation controls erosion, absorbs sound, and moderates temperatures. It also affects the flow and moisture content of the air, reduction of air pollution and glare, and softens the impact of the urban environment. POLICIES 3.4.1 THE CITY SHALL DESIGNATE THE FOLLOWING AS AREAS OF SIGNIFICANT ENVIRONMENTAL CONCERN. a. SIGNIFICANT WETLANDS; b. AREAS HAVING EDUCATIONAL. RESEARCH VALUE, SUCH AS GEOLOGICALLY AND SCIENTIFICALLY SIGNIFICANT. LANDS; AND c. AREAS VALUED FOR THEIR FRAGILE CHARACTER AS HABITATS FOR PLANTS, ANIMAL OR AQUATIC LIFE, OR HAVING ENDANGERED PLANT OR ANIMAL SPECIES, OR SPECIFIC NATURAL FEATURES, VALUED FOR THE NEED TO PROTECT NATURAL AREAS. 3.4.2 THE CITY SHALL: a. PROTECT FISH AND WILDLIFE HABITAT ALONG STREAM CORRIDORS BY . MANAGING THE RIPARIAN HABITAT AND CONTROLLING EROSION, AND BY REQUIRING THAT AREAS OF STANDING TREES AND NATURAL VEGETATION ALONG NATURAL DRAINAGE COURSES ANr WATERWAYS BE MAINTAINED TO THE MAXIMUM EXTENT POSSIBLE; t —,. 77 7 b. REQUIRE THAT DEVELOPMENT PROPOSALS IN DESIGNATED TIMBERED OR TREE AREAS BE REQUIRED TO BE REVIEWED THROUGH THE PLANNED DEVELOPMENT PROCESS TO MINIMIZE THE NUMBER OF TREES REMOVED; AND C. REQUIRE CLUSTER TYPE DEVELOPMENT IN AREAS HAVING IMPORTANT WILDLIFE HABITAT VALUE AS DELINEATED ON THE "FISH AND WILDLIFE HABITAT MAP" ON FILE AT THE CITY. IMPLEMENTATION STRATEGIES 1. The City shall consider the inclusion of an adequate amount of land adjacent to a floodplain or drainageway for dedication to the City's natural greenway system, which allows the area to continue to support existing habitats. 2. The City shall, encourage through the Planned Development Process, the retention of large, varied habitat areas on private and public lands including inventoried plant and animal communities. E 3. The City shall review all development proposals adjacent to wildlife habitat areas to ensure that adverse impacts on any wildlife habitat areas are minimized, and if need be, request that other federal, s state, and local agencies review the development proposals. 4. Where there exist large or unique stands of trees or major vegetation areas within the planning area on undeveloped land, the City shall ensure that development proposals do not substantially alter the character of the vegetation areas through the Planned Development Process and the "Tree Cutting" section of the Community Development Code. 3.5 PARKS, RECREATION AND OPEN SPACE FINDINGS o In Tigard, public and private organizations can play an important role in providing leisure and recreational opportunities and cultural activities. o Many of the Tigard School District sites .provide recreational needs not _sound within many of Tigard's parks. o _ Small parcels of unbuildable land resulting from urbanization can provide mini-parks or landscaped areas. o A properly planned and managed system of open space and recreation lands can reduce the impact of urbanization and serves the leisure and aesthetic r needs of all residents. The system needs to recognize the relationship between urban uses and the natural character of the land and drainageways. o The community has indicated a desire for open ,space linkages which follow scenic routes and connect parks, schools, playgrounds, shopping areas, other public sites, and residential areas. -16- 1 i o The City needs to develop an adequate system of open space, recreation { lands, and facilities to retain and improve livability of the community. r o In the process of planning for a park and recreation system, it is necessary to classify the individual components such as neighborhood parks and the greenway which will or could comprise the park system. In addition, the establishment of a reasonable acquisition and development program requires a listing of priorities and minimum levels of service to be provided. The actual development of such a system requires relating the provision of facilities and services to the particular needs and recreation desires of the residents to be served. POLICIES ' 3.5.1 THE CITY SHALL ENCOURAGE PRIVATE ENTERPRISE AND INTERGOVERNMENTAL AGREEMENTS WHICH WILL PROVIDE FOR OPEN SPACE, RECREATION LANDS, FACILITIES, AND PRESERVE NATURAL, SCENIC, AND HISTORIC AREAS IN A MANNER CONSISTENT WITH THE AVAILABILITY OF RESOURCES. 3.5.2 THE CITY SHALL COORDINATE WITH THE SCHOOL DISTRICTS TO DEVELOP E RECREATIONAL FACILITIES. 3.5.3 THE CITY SHALL DESIGNATE THE 100-YEAR FLOODPLAIN OF FANNO CREEK, IT'S TRIBUTARIES, AND THE TUALATIN RIVER AS GREENWAY, WHICH WILL BE THE ( BACKBONE OF THE OPEN-SPACE SYSTEM. 3.5.4 THE CITY SHALL PROVIDE AN INTERCONNECTED PEDESTRIAN/BIKEPATH THROUGHOUT THE CITY. f' IMPLEMENTATION STRATEGIES 1. The Tigard Community Development Code shall require land divisions and major developments to set aside, dedicate land, or pay a fee in lieu of land aside based on standards, and the standards shall provide for: a. An area composed of developable lands which may provide active recreation space; and b. Adequate passive open space to protect natural resources at the site &nd protect development form hazard areas. 2. The City shall permit land which is set aside within developments to remain in private ownership provided: a. Portions are sufficiently improved and maintained to offer active recreation opportunities; b. They do not interfere with the continuity of or access to adjacent greenway lands; and c. Eaoements transferring development rights are dedicated to the public. -17- m . 3. The Tigard Community Development Code shall indicate flexible design options which mitigate the impacts of required open space and recreation land dedication or reservation. 4. The City shall designate natural park areas within a Tigard Master Parks Plan. The areas will have unique physical or aesthetic features and do not have to be developed to be of recreational use to the community. Areas which have special physical features such as natural watercourse, significant vegetation, scenic vistas, and that provide habitat for wildlife will be considered. 5. Open space and greenways shall be used to enhance the accessibility to schools and parks by establishing a safe and well-marked trail system which will also connect with significant regional ,trail systems. 6. Park classifications and standards shall be adopted and a program developed for acquisition and development of a park and open space system to ensure an adequate supply of usable open space and recreational facilities, directly related to the specific needs of the local residents. 7. Streets and drainageways shall be combined with a parkway or greenway concept to permit linkages between open spaces, residential areas, recreation lands, and centers of economic activity. 8. The City shall continue to seek assistance of volunteer groups to assist in developing and maintaining parks. 9. Master plans for each park shall be developed. These plans shall identify park facilities for each park and ensure that parks are developed so as to promote safe and aesthetically pleasing environments while minimizing the harmful effects of noise, air pollution, vehicular traffic, and other negative aspects of urban life. 10. The City shall continue to implement the adopted bike plan by requiring development adjacent to the Greenway to construct their portion of the bikepath system. 11. To augment the scenic benefit of the greenway, the City shall establish the major vehicular transportation routes as scenic or visual corridors. The Park Board should plan and initiate a program (through public and private cooperation) for corridor landscape preservation and/or improvement. f 3.6 PARK STANDARDS FINDINGS o Currently, there are 128.80 acres of City park land in Tigard and 37.90 acres of dedicated greenway. o There are adopted plans for eight of the nine City parks. is ;gar . 4e` �' " r f o Although Scheckla Park has not been accepted by the Park Board, the land was dedicated to the City for park purposes. f o Due to recent cut-backs in revenues to the City, the City has substantially limited its park maintenance program. o Tt,e City's Park System Development Charge is acquired through new I development and is used solely for park acquisition, development or major capital acquisition. Park maintenance is paid for through the City's general fund. POLICIES 3.6.1 INDIVIDUAL PARK SITES, AS DEFINED BY THE PARKS AND OPEN SPACE STANDARDS AND CLASSIFICATION SYSTEM SHALL BE DEVELOPED ACCORDING TO THE FOLLOWING PRIORITIES: l a. FACILITIES WITHIN A PARK WILL BE ADJUSTED TO MEET THE NEEDS AND DESIRES OF THE PARK SYSTEM DEVELOPMENT CHARGE (SDC) DISTRICT j RESIDENTS AND THE CHARACTERISTICS OF THE SITE. PARK AND/OR RECREATIONAL FACILITIES IN GREATEST DEMAND AND LEAST SUPPLY SHOULD RECEIVE THE HIGHEST DEVELOPMENT PRIORITIES. t t b. PARKS SHOULD BE PLANNED TO INSURE MAXIMUM BENEFIT TO THE GREATEST NUMBER OF LOCAL RESIDENTS. FOR THIS REASON, ACQUISITION AND DEVELOPMENT OF COMMUNITY LEVEL PARKS SHOULD BE GIVEN THE HIGHEST PRIORITY. t c. DEVELOPMENT OF ADDITIONAL NEIGHBORHOOD PARKS WILL HAVE A LOWER PRIORITY FOR PUBLIC FUNDING AND ARE ENCOURAGED TO BE PROVIDED BY THE PRIVATE SECTOR WITHIN PLANNED UNIT DEVELOPMENTS AND MAINTAINED 1; BY HOMEOWNERS ASSOCIATIONS. k d. NEW MINI PARKS HAVE THE LOWEST DEVELOPMENT PRIORITY AND SHOULD BE SUPPLIED AT THE DEVELOPER'S OR NEIGHBORHOOD'S EXPENSE AND MAINTAINED BY A NEIGHBORHOOD ASSOCIATION CREATED AS PART OF THE DEVELOPMENT PROCESS. e. PROVISION OF REGIONAL PARK FACILITIES WILL ONLY BE CONSIDERED AS AN INTERJURISDICTIONAL PROJECT; AND SHOULD HAVE A LOW PRIORITY UNLESS UNUSUAL CIRCUMSTANCES ARISE. f. ACCEPTANCE OF ANY LAND DEDICATED FOR PARK PURPOSES SHALL BE BASED UPON ITS USEFULNESS AND ADAPTABILITY TO THE ADOPTED PARK AND OPEN SPACE SYSTEM. 3.6.2 THE CITY SHALL COORDINATE WITH OTHER PUBLIC, PRIVATE ORGANIZATIONS AND AFFECTED PRIVATE ,PROPERTY OWNERS IN ORDER TO FACILITATE THE IMPLEMENTATION OF THE CITY'S ADOPTED PARK PLANS. IMPLEMENTATION STRATEGIES 1. The City shall continue to seek revenue sources to facilitate in the implementation of the adopted park plans. The adopted park plans are: -19- i Fanno Creek Park, Cook Park, Woodard Park, Jack Park, Summerlake Park, Englewood Park, Liberty Park, and Ye Old Windmill Park. 2. The City shall develop a "future park needs assessment" to determine the number of acres needed for future park uses. The current park standards shall be used as a basis for this assessment. The future park need assessment will specifically address community park needs. S 3. As a precondition to development, the City's Community Development Code shall require the dedication of the greenway and park land, if not already dedicated. t 4. The City shall continue to implement the adopted pedestrian/bikepath pathway plans. 3.7 HISTORICAL—CULTURAL RESOURCES E Findings o Historic features provide a link with the past and add character and s variety to the community design. Unfortunately, much of Tigard's heritage 4 has already been lost to unmanaged development with only a few distinct structures remaining. 4 1 o The design of developments within the community can be regarded from two view points; the design of structures as they relate to site and function (architectural design), and their relationship to the surrounding area a (community design). Both aspects are of equal importance. o Good architectural design is necessary to provide visual variety and allow for individual identity. At the same time, good community design provides a sense of unity with other development while eliminating conflicting appearances. POLICIES 3.7.1 THE CITY SHALL IDENTIFY AND PROMOTE THE PRESERVATION AND PROTECTION OF HISTORICALLY AND CULTURALLY SIGNIFICANT STRUCTURE, SITE, OBJECTS AND DISTRICTS WITHIN TIGARD. € IMPLEMENTATION STRATEGIES 1. To preserve the community's history, an index of historic sites shall be developed and made available to the general public.. A program shall be developed to acquire and/or restore a number of historic structures identified as significant. The City should consider the renovation of a historic structure as an historic museum or cultural cent-2r and meeting hall such as Durham School, Ye Old Windmill and John Tigard Home. 20 ��44 ■ 4 AIR, WATER AND LAND RESOURCES QUALITY This chapter addresses the concerns expressed by Statewide Planning Goal #6 which is "to maintain and improve the quality of the air, land and water resources of the state." Environmental issues, throughout our nation and region, have produced an impressive list of agencies dealing with some aspect of our environment. Nationally, there is a confusing array of agencies, groups and departments, some working specifically in the realm of environment and many others who deal with environmental aspects only inasmuch as their main concern impinges on environmental areas of concern. The National Environmental Protection Agency (EPA) and the State Environmental Quality Commission (EQC) are two agencies devoted to measurement, control_ and understanding of our environments. In addition, there are others that devote only a portion of their efforts to environmental qualities, provide technical assistance, grants and guidelines to local or regional agencies. State and regional authority bring to bear more specific concerns and regulations regarding their jurisdictions, again with an impressive array of agencies and regulatory statements. Specifically impacting Tigard is the Metropolitan Service District (MSD), which has responsibility for: air quality, water and solid waste treatment, regional land use coordination, transportation strategies and other areas of concern appropriate to an urban region. 4.1 AIR QUALITY FINDINGS o- Within the Tigard Planning Area there are no major point source air polluters. o The major source of air pollution in Tigard is automobile emissions. o The City of Tigard lies within the Portland-Vancouver Interstate Air Quality Maintenance Area (AQMA). This area is described in the draft State Implementation Plan (SIP) for air quality, published jointly by the Department of Environmental Quality and the Metropolitan Service District in April, 1979. The draft State Implementation Plan (SIP) shows that the entire AQMA is in nonattainment for meeting the recently revised federal ambient air quality standards for ozone and is predicted to remain in nonattainment to at least 1987 unless additional control measures are undertaken. MSD and DEQ are developing a regional control strategy to bring the metropolitan area into attainment by 1987. o In the Portland - Vancouver AQMA, air pollution is monitored by and planning efforts coordinated through the Hetropolitan Service District (MSD)and the Department of Environment Quality (DEQ). -21- to The draft SIP also projects nonattainment in 1982 for CO (near Highway 99W). The City of Tigard is aware of these potential problem areas and will work with MSD to better quantify the extent of these problems. POLICY 4.1.1 THE CITY SHALL: a. MAINTAIN AND IMPROVE THE QUALITY OF TIGARD'S AIR QUALITY AND { COORDINATE WITH OTHER JURISDICTIONS AND AGENCIES TO REDUCE AIR POLLUTIONS WITHIN THE PORTLAND-VANCOUVER AIR QUALITY MAINTENANCE AREA. (AQMA). b. WHERE APPLICABLE, REQUIRE A STATEMENT FROM THE APPROPRIATE AGENCY, THAT ALL APPLICABLE STANDARDS CAN BE MET, PRIOR TO THE APPROVAL OF i i A LAND USE PROPOSAL. s t c. APPLY THE MEASURES DESCRIBED IN THE DEQ HANDBOOK FOR "ENVIRONMENTAL QUALITY ELEMENTS OF OREGON LOCAL COMPREHENSIVE LAND USE PLANS" TO LAND USE DECISIONS HAVING THE POTENTIAL TO AFFECT AIR QUALITY. t IMPLEMENTATION STRATEGIES z 1. The City shall coordinate with MSD and DEQ to attain and maintain the air quality goal described in the State Implementation Plan (SIP). 2. The City shall continue to utilize expertise available at the Department of Environmental Quality, the Metropolitan Service District, and other relevant agencies, to coordinate efforts aimed at reducing air pollution emission levels in the Tigard and entire Portland Metropolitan Area. 3. Until such time as control strategies are realized, the City of Tigard shall use measures described in the DEQ Handbook for "Environmental Quality Elements of Oregon Local Comprehensive Land Use Plans" when planning any development activities having the potential to directly (by direct emissions) or indirectly (by increasing vehicular travel) affect air quality. 4. The City shall make every effort to design municipal streets and roadways and to establish traffic flow patterns which minimize or reduce vehicular emissions. 5. The City shall consult and coordinate with the Oregon Department of Environmental. Quality to ensure that land uses and activities in Tigard comply with Federal and State air quality standards. b. The City shall aim to reduce the quantity of vehicle emissions by pursuing an energy-efficieat urban form which reduces the number of vehicle miles traveled, and by encouraging the use of alternate modes of transportation, especially mass transit and pedestrian. -22- J E: 4.2 WATER QUALITY FINDINGS o The quality of Tigard's surface waters are fair, inasmuch as the waters are not used for drinking purposes. o No major point source water polluters threaten local creeks. o Some infiltration problems exist in the sewage systems. o Reduction of open space, removal of vegetation cover, and development which increases the amount of impervious surface contribute significantly to increases in the peak flows of urban storm runoff entering storm sewers, creeks and drainageways. o Offsetting measures can reduce the negative effects of urban development on water quality and quantity problems. Examples include on site retention/ detention of storm water, inclusion of landscape buffer areas adjacent to new development and conservation and improvement of streamside vegetation along creeks and other water courses. POLICIES 4.2.1 ALL DEVELOPMENT WITHIN THE TIGARD URBAN PLANNING AREA SHALL COMPLY WITH APPLICABLE FEDERAL, STATE AND REGIONAL WATER (QUALITY STANDARDS. � 4.2.2 THE CITY SHALL RECOGNIZE a°►.0 ASSUME ITS RESPONSIBILITY FOR OPERATING, k PLANNING, AND REGULATING WASTEWATER SYSTEMS AS DESIGNATED IN MSD'SI WASTE TREATMENT MANAGEMENT COMPONENT AND 208 CRAG STUDY. IMPLEMENTATION STRATEGIES k 1. In order to improve the water quality and and quantity in the Tigard E Area, the City shall consider developing regulations in the Tigard Community Development Code or instituting programs to: a. Increase public awareness of techniques and practices private individuals can employ to help correct water quality problems; 4, b. Improve the management of industrial and commercial operations to reduce negative water quality impacts; i c. Regulate site planning for new development and construction through the Tigard Community Development Code to better control drainages and erosion and to manage storm runoff; d. Increase storage and retention of storm runoff to lower and delay peak storm flows; e. Reduce street related water quality and quantity problems; and i j -23- 4 f. Increase public awareness concerning the use and disposal of toxic substances. 2. The City shall not permit industrial or other uses which violate State of Oregon water quality discharge standards. 3. The City shall cooperate with the Metropolitan Service District and other appropriate agencies to establish practices which minimize the introduction of pollutants into ground and surface waters. 4. The City shall require that new developments be connected to the City's or the Unified Sewerage Agency sanitary sewerage systems. 4.3 NOISE POLLUTION FINDINGS o Noise is a recognized cause of physical and psychological stress which has been directly related to various health problems. o Motor vehicle traffic noise io the major contributor to the ambient noise level in Tigard. f o Noise levels for almost all residential districts in Tigard appear to be within acceptable levels. o The highest noise levels appear to be found along Pacific Highway (99W), (� r Main Street, I-S, Hwy 217 and Hall Boulevard. [ o Effective control of the undesirable effects of highway generated noise levels requires a three part approach: 1) source emission reduction; 2) improved highway design and street design; and 3) land use controls. The first two components are currently being addressed by private industry and by federal, state and regional agencies. The third area is essentially a local government responsibility. POLICY 4.3.1 THE CITY SHALL: a. REQUIRE DEVELOPMENT PROPOSALS !LCATED IN A NOISE CONGESTED AREA OR A USE WHICH CREATES NOISE IN EXCESS OF THE APPLICABLE STANDARDS TO INCORPORATE THE FOLLOWING INTO THE SITE PLAN: 1. BUILDING PLACEMENT ON THE SITE IN AN AREA WHERE THE NOISE LEVELS WILL HAVE A MINIMAL IMPACT; OR F . 2. LANDSCAPING AND OTHER TECHNIQUES TO LESSEN NOISE IMPACTS TO ( LEVELS COMPATIBLE WITH THE SURROUNDING LAND USES. b. COORDINATE WITH DEQ IN ITS NOISE REGULATION PROGRAM AND APPLY THE DEQ LAND USE COMPATIBILITY PROGRAM. -24- i,. c. WHERE APPLICABLE REQUIRE A STATEMENT FROM THE APPROPRIATE AGENCY (PRIOR TO THE APPROVAL OF A LAND USE PROPOSAL) THAT ALL APPLICABLE STANDARDS CAN BE MET. i IMPLEMENTATION STRATEGIES 1. The Tigard Community Development Code shall ensure that future "noise sensitive" developments are designed and located so as to minimize the intrusion of noise from motor vehicle traffic and/or neighboring noisy uses. 2. The Tigard Community Development Code shall ensure that new commercial, industrial and public developments are landscaped and designed such that Department of Environmental Quality (DEQ) noise standards are met and neighboring "noise sensitive" properties are rot negatively impacted by the new land use or associated activities. This shall be accomplished through building setbacks, buffering standards and use compatibility. 3. The City shall seek a response and/or assistance from the Department of Environmental Quality (DEQ) when reviewing commercial or industrial uses in or near residential areas to prevent degradation of previously quiet environments. 4.4 LAND RESOURCES FINDINGS o Solid waste disposal is a regional concern requiring regional solutions. o Land quality in Tigard is not currently threatened by a large - scale waste disposal site. o Normal human &ctivity and economic processes in Tigard contribute to the quantity of regional waste disposal. o The Metropolitan Service District (MSD) has the authority to provide solid and liquid waste disposal in the metropolitan area. o Although MSD has the authority over solid waste site location, local governments will be involved in the selection process. POLICY 4.4.1 THE CITY SHALL MAINTAIN AND IMPROVE, IF POSSIBLE, THE CURRENT QUALITY OF TIGARD'S LAND RESOURCES. 4.4.2 THE CITY SHALL RECOGNIZE MSD'S RESPONSIBILITY AND AU111ORITY TO PREPARE ' AND 1MPLEMENT A SOLID WASTE MANAGEMENT PLAN. -25- IMPLEMENTATION STRATEGIES 1. The City shall actively participate with the Metropolitan Service District (MSD) and the Department of Environmental Quality (DEQ), in the solid waste site selection process. i 2. The City shall discourage solid waste sites which would adversely affect neighboring land uses or which are unsuitable because of natural conditions at the site, including but not limited to: a) Depth to water table b) Soil conditions c) Impacts upon drainage d) Water quality degradation or similar problems 3. The City shall ensure that future land use activities with significant waste and process discharges conform to all State and Federal environmental quality standards. f 4. The City shall seek a response or assistance from the Department of Environmental Quality or any other interested State or Federal agency f when reviewing proposed land uses with potentia'_ for significant waste and process discharges. 5. The City shall continue to use local recycling services and shall encourage and cooperate with all recycling agencies which conform to all state and federal environmental quality standards. 6. The City shall recognize MSD's role in preparing and implementing a solid waste management plan. The City shall support MSD's "Procedures for Siting Sanitary Landfill," and will participate in these procedures as appropriate. 5. ECONOMY This report addresses LCDC Statewide Planning Goal #9 requirements titled "Economy of the State." The recommended findings and policies have been developed to blend Tigard's individual economic programs into those of the region and state to meet Goal #9 requirements. The Goal #9 statement reads: "to diversify and improve the economy of the state." "Both state and federal economic plans and policies snall be coordinated by the state with local and regionalneeds. Plans and policies shall contribute to a stable and healthy economy in all regions of the state. Plans shall be based on inventories of areas suitable for increased economic growth and activity after taking intoconsiderationthe health of the current economic l -26- l` base; materials and energy availability; labor market factors; availability of renewable and non-renewable resources; availability of land; and pollution control requirements. Economic growth and activity in accordance with such plans shall be encouraged in areas that have underutilized human and natural resource capabilities and want increased growth and activity. Alternative sites suitable for economic growth and expansion shall be designated in such plans." FINDINGS Through analysis of the economic conditions which affect Tigard, the existing make up of the community, the potential for growth, and the City's interest in assisting existing and new businesses to expand in and relocate to Tigard, the following findings were identified. o The City of Tigard is a sub-element of the Portland metropolitan economic region. o The economic climate of the City, in part, is subject to the influences of external economic forces beyond the control of the City. o The City continues to experience steady commercial and industrial growth despite the national and state economic situation. A significant amount of commercial and industrial buildable land is available in areas where all services are provided making it suitable for ; development. o Manufacturing, wholesale and retail activities provide the majority of the employment opportunities to area residents. o An increasing regional dependence on electrical, electronic, and instrument related manufacturing employment has occurred in recent years. o There is a need for new and expanded public facilities to open areas for industrial and commercial uses. o Economic data, particularly that relating to sites available for development purposes, is largely unavailable or not kept up to date. o A need exists to promote the benefits of operating a business in Tigard. o The Central Business District demands attention and community support in order that improvement programs may be set in motion to make it a more diversified and economically viable core area. o The existing railroad facilities in Tigard are an asset to industrial and commercial development on property adjacenttothe rails. o Ease of access to I-5 and Highway 217 serve as incentives to economic development in Tigard. -27- o Tigard's proximity to Portland Community College provides opportunity for the creation of specialized job training programs to serve existing, expanding, and new industries in the City. o Complementary residential development in commercial districts can support agglomerations, help to minimize crime within the commercial districts, provide housing for senior citizens which is in close proximity to shopping areas, and minimize vehicular travel which would reduce pollution and conserve energy. o A need exists for public facility development to make industrial and commercial lands available for economic development purposes. POLICIES 5.1.1 THE CITY SHALL PROMOTE ACTIVITIES AIMED AT THE DIVERSIFICATION OF THE ECONOMIC OPPORTUNITIES AVAILABLE TO TIGARD RESIDENTS WITH PARTICULAR EMPHASIS PLACED ON THE GROWTH OF THE LOCAL JOB MARKET. 5.1.2 THE CITY SHALL WORK WITH WASHINGTON COUNTY AND ADJACENT JURISDICTIONS TO DEVELOP AN ECONOMIC DEVELOPMENT PLAN INCORPORATING A LOCAL ECONOMIC DEVELOPMENT PLAN. 5.1.3 THE CITY SHALL IMPROVE AND ENHANCE THE PORTIONS OF THE CENTRAL BUSINESS DISTRICT AS THE FOCAL POINT FOR COMMERCIAL, HIGH DENSITY �.. RESIDENTIAL, BUSINESS, CIVIC, AND PROFESSIONAL ACTIVITY CREATING A DIVERSIFIED AND ECONOMICALLY VIABLE CORE AREA. 5.1.4 THE CITY SHALL ENSURE THAT NEW COMMERCIAL AND INDUSTRIAL DEVELOPMENT SHALL NOT ENCROACH INTO RESIDENTIAL AREAS THAT HAVE NOT BEEN k DESIGNATED FOR COMMERCIAL OR INDUSTRIAL USES. 5.1.5 THE CITY SHALL PROHIBIT RESIDENTIAL DEVELOPMENT IN COMMERCIAL AND INDUSTRIAL ZONING DISTRICTS EXCEPT: COMPLEMENTARY RESIDENTIAL DEVELOPMENT SHALL BE PERMITTED ABOVE THE FIRST FLOOR IN NEIGHBORHOOD COMMERCIAL AND THE CENTRAL BUSINESS DISTRICT, AND ABOVE THE SECOND FLOOR IN COMMERCIAL PROFESSIONAL DISTRICTS. (T,'E DENSITY OF RESIDENTIAL DEVELOPMENT SHALL BE DETERMINED IN ACCORDANCE WITH THE R-20 DISTRICTS.) 5.1.6 THE CITY SHALL CONSIDER PRIVATE FINANCING BY PRIVATE DEVELOPERS IN COORDINATION WITH AVAILABLE BONDING METHODS TO PROVIDE PUBLIC FACILITIES TO COMMERCIAL AND INDUSTRIAL LAND DESIGNATED ON THE COMPREHENSIVE PLAN MAP. IMPLEMENTATION STRATEGIES 1. The City's Community Development Code shall incorporate revisions needed to remove unnecessary obstacles which may deter new economic activities. -23^ 2. In the process of administering the City's Comprehensive Plan, careful consideration shall be given to the economic implications of all proposed policies, programs and regulations. 3. The City shall identify regional economic needs through interaction with officials of other Washington County jurisdictions and take appropriate f action to adjust local policies to respond to thein regiqual concerns and needs. 4. The City, along with the business community, shall develop an economic development program aimed at attracting new commercial and industrial development to Tigard while also encouraging the expansion of existing business concerns. f 5. The City shall participate in the formulation and implementation of a regional economic development program for the Washington County area. 6. The City shall work with the local business community to develop and maintain an up-to-date economic data resource file which will be made available to existing and potential Tigard business concerns. 7. The City shall work cooperatively with the business community seeking its involvement and advice when working toward arriving at decisions having economic implications for the business community. 8. The City shall concentrate resources for the improvement and enhancement of the T.U.R.A. program aimed at revitalizing the CBD utilizing public funds and a program to encourage private investment. 9. The City shall establish a downtown revitalization plan which encourages new development by allowing more flerible zoning standards than allowed citywide while requiring review of all development proposals in the T.U.R.A. area for compliance with a revitalization plan. 10. The City shall develop and implement an economic development program compatible with the potentials and constraints of the City and will: a) Aid in the creation and maintenance of new and continuous employment opportunities to afford City resident:; the choice of working within the City; b) Strive to improve, diversify and stabilize the economic base of the community thus reducing the tax burden of the residential property owner; c) Aid in the effective utilization of the land, energy and human resources; and d) Provide for the timely development of all public facilities and services and their delivery systems. ` 11. The City shall encourage the location and development of economic activities which meet the occupational and employment needs of all City residents, particularly the unemployed and underemployed. -29 12s The Community Development Code shall limit development on lands planned for commercial use to commercial uses. Residential uses will be allowed above the first floor. 13. The City shall compile a document which identifies all parcels of land zoned for commercial or industrial purposes and which identifies: a) The amount and type of development on the land, if any; b) The name of the owner; c) The public services which are available to the site; d) The current zoning designation; and e) The assessed value. 14. The City shall maintain development codes which describe standards for landscaping and buffering where commercial and industrial uses abut residential districts. 15. The City shall work with Portland Community College to develop training programs as an incentive to new industries locating in Tigard needing a trained labor force. 16. The City shall coordinate its planning efforts with the Metropolitan Service District and Oregon Department of Transportation to ensure adequate access from major arterial routes to designated commercial and industrial areas. y 17. The Tigard Community Development Coda shall designate types of permitted f° residential development in C-N, C-P and CBD commercial districts. 18. The City shall encourage private landowners to consider utilizing available bonding methods, in addition to private financing methods, to provide public facilities to vacant buildable lands with the potential for industrial or commercial development. 19. The City should not preclude any financing mechanism for the implementation of its economic development objectives. 20. The City Council, upon the recommendation of its Economic Development Committee, shall develop objectives, criteria, and standards for determining its availability of bonding methods and use of bond proceeds for private, commercial and industrial development. � 4 6. HOUSING This chapter considers the land and the dwelling units where Tigard residents live. Residential land uses occupy more land area than any other land use in the City. . -30- This chapter addresses the Statewide Planning Goal #10: "To provide for the housing needs of the citizens of the state." The plan policies focus on five basic areas: 1) Housing needs; 2) Housing costs; 3) Established residential areas; 4) Housing condition; and 5) Urban Expansion. Detailed information concerning housing in Tigard is available in the "Comprehensive Plan Report: Housing." 6.1 HOUSING NEEDS FINDINGS o The residential housing in Tigard has been developed as 55.6% single family detached dwellings, 42.7% attached units, and 1.7% manufactured homes. o The Metropolitan Housing Rule adopted by the Land Conservation and Development Commission states that Tigard must provide for 50 percent single family and at least 50 percent single family attached or multiple family units with a minimum of 10 units to the net acre. The Metro Housing Rule applies to only vacant buildable land within Tigard's Urban Planning Area, and does not affect established and developed residential areas. o The rapid increase in housing and land cost over the last several years has excluded many households from obtaining suitable housing to meet their needs. o Many of the households that do not desire or are unable to afford conventional single family detached dwellings rely on the rental market or attacheddwellings to meet their housing needs. 's o The rapidly changing housing market will require the City to periodically reevaluate its housing and land use objectives to provide for a variety of housing types and densities to meet the needs of future residents. o Approximately 19 percent of the households in Tigard are inhabitated by senior citizens. o Undue concentrations of public assisted or subsidized housing serves to isolate the recipients of such housing from the mainstream of the community, its full range of basic services and the diversity of its neighborhoods. For this reason, the City should take steps to disperse such housing within individual neighborhoods and throughout the City itself. POLICIES 6.1.1 THE CITY SHALL PROVIDE AN OPPORTUNITY FOR A DIVERSITY OF HOUSING DENSITIES AND RESIDENTIAL TYPES AT VARIOUS PRICE AND RENT LEVELS. L -31- 6.1.2 SUBSIDIZED HOUSING UNITS SHALL CONFORM TO ALL APPLICABLE DEVELOPMENT STANDARDS. TO PREVENT THE GEOGRAPHIC CONCENTRATION OF PUBLIC HOUSING AND INSURE A BALANCE IN THE DISTRIBUTION OF SUCH HOUSING, THE MINIMUM DISTANCE BETWEEN SUBSIDIZED HOUSING UNITS LOCATED WITHIN ANY SINGLE FAMILY ZONING, DISTRICT SHALL BE FIVE TIMES THE MINIMUM LOT WIDTH ON ANY STREET IN THE DEVELOPMENT. FOR PURPOSES OF THIS POLICY, THE TERM "SUBSIDIZED HOUSING" SHALL MEAN ANY HOUSING DEVELOPED OR CONSTRUCTED BY THE WASHINGTON COUNTY HOUSING AUTHORITY WITH FINANCIAL ASSISTANCE OF THE U.S. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT. IMPLEMENTATION STRATEGIES I. The City shall monitor the rate of development through an annual "land survey," which will function as an up-to-date inventory of land available for future residential needs. 2. The Tigard Community Development Code shall list a broad range of development districts which allows for a variety of housing types, and complies with the adopted Metropolitan Housing Rule (50-50 mixture of single family and attached or multiple family at 10 units to the net acre on buildable vacant land). 3. The Tigard Community Development Code, through the Planned Development process, shall establish a procedure to allow properties exhibiting physical constraint characteristics, e.g. , steep slopes or floodplains, to develop with density transfers allowable on the site. No more than 25% of the dwellings may be transferred. In addition, the City shall encourage developers to use the planned � « development process in all developing areas. 4. The Tigard Community Development Code shall allow for manufactured { homes in manufactured home parks and subdivisions, within specified t development districts, 5. The City shall encourage housing development to occur, to the greatest extent possible, on designated buildable lands in areas where public facilities and services can be readily extended to those lands. 6. The City 'shall provide for opportunities for proposals to develop specialized housing for the area's senior citizens and handicapped based on the needs of these groups by: a• Making information available on subsiding programs; b. Allowing special use housing for these groups in all development districts; C. Requiring the needs of the handicapped to be considered as a part Of the Site Design Review process. 7• The City shall coordinate- with the Washington County Housing Authority, H.U.D. and other Federal, State and regional agencies for the provision of,subsidized housing programs in Tigard. -32- 6.2 MOUSING COSTS i 1 FINDINGS 1 o The factors that have contributed to the increasing housing costs are materials, labor, land costs, financing and regulation costs. (The average sales price of a new single family home increased from $22,700 in 1970 to $45,000 in 1976, to over $76,000 in 1980.) o Land and regulation costs have dramatically increased the cost of development. o Construction costs may be reduced by building smaller units and using alternative construction techniques. o Excessive regulation costs can be reduced by simplifying the application process and reducing unnecessary development standards. o Financing costs of residential units cannot be controlled by the City of Tigard; however, the City can assist in public facilities and services development through financing mechanisms. POLICIES 6.2.1 THE CITY SHALL DEVELOP CLEAR AND CONCISE DEVELOPMENT REGULATIONS AND STANDARDS TO FACILITATE THE STREAMLINING OF DEVELOPMENT PROPOSALS, AND WILL ELIMINATE UNNECESSARY PROVISIONS WHICH COULD INCREASE HOUSING COSTS WITHOUT CORRESPONDING BENEFIT. IMPLEfff"ITATION STRATEGIES 1. The City shall review, revise and update the land division, zoning and sign codes. The corresponding document will be grouped in a single code and identified as the Tigard Community Development Code. 2. The Tigard Community Development Code shall include clear and concise processes for the review and approval of development proposals, to the degree that the quality of the review process it not adversely affected. This will be accomplished by, but not limited to: a. Administrative Procedures; b. Application forms; and c. Clear and concise standards for each development process. r. .3. The City shall seek ways to minimize the cost of housing by encouraging a variety of home ownership alternatives, such as, but not limited to, townhouses and condominiums. 4. The City shall continue to support the 'development of traditional housing types such as single family detached dwellings, duplexes, and apartments. -33- 5. The 'City shall encourage geographic flexibility in the choice of housing. 6.3 ESTABLISHED RESIDENTIAL AREAS FINDINGS o A major concern of the community is the viability of their established residential areas and the effect on these areas from change and growth. o Most of the City's residential areas are rated high quality and are expected to remain largely in their existing uses. o There are many existing residential areas that border large tracts of vacant, undeveloped land. o In some instances, due to development changing economies of supply and demand and subsequent changes in land use designations, some vacant areas might not be developed in the same manner as the established residential areas. o In order to retain the character of these areas and minimize adverse impacts of these areas, adequate standards need to be established for more intensive residential uses that border established residential areas. - ` o As urbanization takes place, former vacant fields and hillsides are developed. The result is a dense land use pattern and numbers of unrelated types of adjoining land uses. Where these unrelated activities come together, buffering, screening and transitional techniques can be utilized to achieve a compatible relationship among uses. o The intent of the plan is to use buffering, screening and transitional techniques to: 1. Assure that private spaces are protected. 2. Assure that possible off site effects such as noise, glare lights and dust do not adversely affect adjoining land uses. 3. Preserve the character of established areas. 4. Lend visual interest and variety to the landscape. 5. Enhance community identity. 6. Provide a transition between unrelated uses. POLICY 6.3.1 THE CITY SHALL DIRECT ITS LAND USE ACTIONS TOWARD THE MAINTENANCE AND IMPROVEMENT OF ESTABLISHED RESIDENTIAL AREAS BY: -34 { a. DESIGNATING ON THE COMPREHENSIVE PLAN FUTURE LAND USE MAP THE "ESTABLISHED AREAS" COMMITTED TO RESIDENTIAL DEVELOPMENT WITHIN THE PLANNING AREA. WITHIN THE "ESTABLISHED AREAS" NEW DEVELOPMENT WILL BE OF THE SAME TYPE AND DENSITY IN ORDER TO PROTECT THE CHARACTER OF EXISTING NEIGHBORHOODS. 6.3.2 IN THE TIGARD COMMUNITY DEVELOPMENT CODE THE CITY SHALL REQUIRE A DENSITY TRANSITION WHEREBY INCREASED RESIDENTIAL DENSITIES ARE ADJACENT TO ESTABLISHED AREAS IN THE FOLLOWING MANNER: a. THE DENSITY WITHIN 100 FEET OF EACH PROPERTY LINE SHALL NOT EXCEED 25% OVER THE DENSITY SHOWN ON THE COMPREHENSIVE PLAN FOR THE ADJACENT LAND UNLESS THERE IS AN INTERVENING ROAD (MAJOR COLLECTOR OR ARTERIAL) IN WHICH CASE THIS PROVISION SHALL NOT APPLY. b. WHERE THE PROPOSED DEVELOPMENT ABUTS AN EXISTING HOUSING DEVELOPMENT, THE HOUSING TYPES SHALL BE COMPATIBLE. FOR EXAMPLE: 1. TWO HOUSING UNITS WHICH ARE ATTACHED ARE CONSIDERED COMPATIBLE WITH A DETACHED SINGLE FAMILY UNIT; BUT a 2. MORE THAN TWO HOUSING UNITS WHICH ARE ATTACHED ARE NOT CONSIDERED COMPATIBLE WITH A SINGLE FAMILY DETACHED UNIT. 6.3.3 IN ALL PHASES OF THE DEVELOPMENT APPROVAL PROCESS IN A RESIDENTIAL "ESTABLISHED AREA," A PRIMARY CONSIDERATION OF THE CITY SHALL BE TO PRESERVE AND ENHANCE THE CHARACTER OF THE ADJACENT ESTABLISHED AREAS. i IMPLEMENTATION STRATEGIES 1. The Development District Map shall indicate those areas which are already "Established Areas". Established areas are areas which have been determined to be developed and are as set forth on the "Development Standards Map". 2. The Community Development Code shall include the above transitional, buffering and screening requirements. 3. The transitional, buffering and screening requirements shall be implemented through the design review process. 4. The City shall develop and adopt "locational criteria" for the placement of higher intensive uses. 5. Upon periodic plan review, the City shall maintain an updated map showing "established" and "developing" areas. 6.4. DEVELOPING RESIDENTIAL AREAS FINDINGS o There are numerous areas within the Tigard Urban Planning Area that are largely vacant ,and will eventually be developed for various uses. Most of these areas are along the outer edges of the City. 35- changed; and not all of these o Development techniques and types have o..ge.d•, changes can be adopted to the existing rigid zoning ordinance standards. POLICY 6.4.1 THE CITY SHALL DESIGNATE RESIDENTIAL "DEVELOPING AREAS," (WHICH ARE NOT DESIGNATED AS "ESTABLISHED AREAS") ON THE COMPREHENSIVE PLAN MAP, AND ENCOURAGE FLEXIBLE AND EFFICIENT DEVELOPMENT WITHIN THESE AREAS. IMPLEMENTATION STRATEGIES 1. The City shall establish locational criteria for higher intensity uses which at a minimum addresses their proximity to collectors streets, public transit, commercial areas and recreational facilities. 2. The Tigard Community Development Code shall include flexible development standards for "developing areas." 3. Within the Planned Development section of the Tigard Community Development Code: a. Development will be prohibited on lands not classified as developable as defined in OAR 660-07-140; b. Twenty-five percent of the number of units which could be able land may be transferred and accommodated on the undevelop placed on the developable land; however c. The transfer of the density shall be limited by 125% of the top of ;Y the range of the residential plan classification on the developable portions of the site. 4. The Tigard Community Development Code shall also provide for a Planned Development process which encourages innovative design, more efficient use of land, energy efficiency and more flexible development standards. 6.5 HOUSING CONDITION FINDINGS o A majority of the City's existing units have been built since 1960; and in general, these units are in good condition. o Most of the upkeep on these structures involves minor mechanical problems, weatherization and painting. o The City currently does not have any rehabilitation programs for those residential structures that need major repairs. The Washington County Community Action Organization- (WcCAO) does administer a weatherization program funded by the federal government to assist low income residents. SN SKI' -36- ( Other residents of Tigard may rely onfcd2rai and state tax 3^.Cenri'a S for weatherization, as those incentives are available. As many of the existing 20 year-old homes age, more repair and rehabilitation work may be needed in order to maintain the high quality of residential structures that now exist. POLICY 6.5.1 THE CITY SHALL REQUIRE THAT ALL HOUSING UNITS BE: a. CONSTRUCTED ACCORDING TO THE OREGON UNIFORM BUILDING CODE OR OTHER APPLICABLE STATE OR FEDERAL STRUCTURAL CODES; AND b. MAINTAINED IN A MANNER WHICH DOES NOT VIOLATE THE CITY'S NUISANCE ORDINANCE. IMPLEMENTATION STRATEGIES 1. The Tigard Community Development Code will establish a Site Design Review, Conditional Development and Planned Development process in which to review development proposals. 2. The City will continue to administer the Uniform Building Code on all applicable types of construction in Tigard. 3. The City will enforce, where financially feasible, all nuisance ordinances that relate to structure and site appearances. The City '. will encourage private property owners to comply with all nuisance ordinances which will alleviate the financial burden of the City, and F its tax payers to enforce these ordinances. F , 4. The City will set reasonable rules in the Tigard Community Development Code for accessory buildings which will protect the character of existing residential neighborhoods. 6.6 ALL AREAS POLICY 6.6.1 THE CITY SHALL REQUIRE: a. BUFFERING BETWEEN DIFFERENT TYPES OF LAND USES (FOR EXAMPLE BETWEEN SINGLE FAMILY RESIDENTIAL AND MULTIPLE FAMILY RESIDEHT'AL AND RESIDENTIAL AND COMMERCIAL USES AND RESIDENTIAL AND INDUSTRIAL USES) AND THE FOLLOWING FACTORS SHALL BE CONSIDERED IN DETERMINING f THE TYPE AND EXTENT OF THE REQUIRED BUFFER: �. 1. THE PURPOSE OF THE BUFFER, FOR EXAMPLE TO DECREASE, NOISE LEVELS, ABSORB AIR POLLUTION, FILTER DUST OR To PROVIDE A VISUAL BARRIER. ref y. 3 -37- 2. THE SIZE OF THE BUFFER NEEDED IN TERMS OF WIDTH AND HEIGHT TO ACHIEVE THE PURPOSE. 3. THE DIRECTIONS) FROM WHICH BUFFERING IS NEEDED. 4. THE REQUIRED DENSITY OF THE BUFFERING. k 5. WHETHER THE VIEWER IS STATIONARY OR MOBILE. b. ON SITE SCREENING OF SUCH THINGS AS SERVICE AREAS AND FACILITIES, STORAGE AREAS AND PARKING LOTS, AND THE FOLLOWING FACTORS SHALL BE I CONSIDERED IN DETERMINING THE TYPE AND EXTENT OF THE SCREENING: f 1. WHAT NEEDS TO BE SCREENED. 2. THE DIRECTION FROM WHICH IT IS NEEDED. 3. HOW DENSE THE SCREEN NEEDS TO BE. E 4. WHETHER THE VIEWER IS STATIONARY OR MOBILE. 5. WHETHER THE SCREENING NEEDS TO BE YEAR ROUND. fGf I i i 7. PUBLIC FACILITIES AND SERVICES The continued increased growth in population for the Tigard Planning area will require a corresponding expansion of public facilities and services. Policies concerning the manner in which public facilities are expanded can help direct the location and intensity of future housing, commercial and industrial development. Statewide Planning Goal #11 specifically speaks to this concern. It directs jurisdictions "to plan and develop a timely, orderly and efficient arrangements of public facilities and services to serve as a framework for urban development. The findings, policies and implementation strategies of this chapter address general issues related to public facilities and services as well as issues concerning water, sewage disposal, police and fire protection, schools, health services and local government facilities to name a few. Detailed information related to public facilities and services is available in the "Comprehensive Plan Report: Public Facilities and Services," and a variety of facilities master plans and background reports developed by or for the City. 1 t I -38- f t 7.1 GENERAL FINDINGS o Community goals emphasize the desire to maintain the high quality of k. facilities and services within the City. o The community's facilities and services are an important management tool in the conservation and development of land within the urban planning area. o Plans and programs need to be developed for the expansion of urban services in a logical and orderly manner. This should include a funded and effective capital improvement program. o Phasing adequate public facilities and services to support residential development is necessary to meet community needs. o The City of Tigard and related service districts have the duty, within their means, to provide adequate services to meet the demand for all development within the planning area during the planning period. o Phasing the facilities expansion is necessary for orderly growth. o Formation of private utility districts (water, sewer) could create land management problems within the Urban Planning Area. o A capital improvements program would facilitate the coordination and expansion for providing transportation utilities and other public facilities. POLICIES 7.1.1 THE CITY SHALL: a. PREPARE AND IMPLEMENT A CAPITAL IMPROVEMENTS PROGRAM IN CONJUNCTION WITH WASHINGTON COUNTY AND THE APPLICABLE SERVICE DISTRICTS; b. WORK WITH THE SERVICE DISTRICTS TO PROVIDE A COORDINATED SYSTEM FOR PROVIDING SERVICES; c. PROVIDE URBAN SERVICES IN ACCORDANCE WITH THE COMPREHENSIVE PLAN TO THE EXTENT OF THE CITY'S FINANCIAL RESOURCES; d. USE THE CAPITAL IMPROVEMENTS PROGRAM AS A MEANS FOR PROVIDING FOR ORDERLY GROWTH AND THE EFFICIENT USE OF LAND: e. DEVELOP A COMPREHENSIVE PLAN WITH CONSIDERATION BEING GIVEN TO THE LEVEL AND CAPACITY OF THE EXISTING SERVICES AND ~ ` f. ADOPT LOCATIONAL CRITERIA AS THE BASIS FOR MAKING DECISIONS ABOUT THE PROPER LOCATION FOR PUBLIC FACILITIES. 7.1.2 THE CITY SHALL REQUIRE AS A PRE-CONDITION TO DEVELOPMENT APPROVAL THAT: —39— a. DEVELOPMENT COINCIDE WITH THE AVAILABILITY OF ADEQUATE SERVICE CAPACITY INCLUDING: 1. PUBLIC WATER; 2. PUBLIC SEWER (NEW DEVELOPMENT ON SEPTIC TANKS SHALL NOT BE ALLOWED WITHIN THE CITY); AND 3. STORM DRAINAGE. b. THE FACILITIES ARE: 1. CAPABLE OF ADEQUATELY SERVING ALL INTERVENING PROPERTIES AND THE PROPOSED DEVELOPMENT; AND s 2. DESIGNED TO CITY STANDARDS. E c. ALL NEW DEVELOPMENT UTILITIES TO BE PLACED UNDERGROUND. i IMPLEMENTATION STRATEGIES 1. As a part of the ongoing planning program, the City will prepare a capital improvements program; and 4 a. The staging of facilities will be based on the availability of ® ' financial resources; b. Priorities will be based on considerations of: 1) Health and safety factors; 2) Cost-benefit factors; and 3) Social and economic needs. 2. As a part of the Community Development Code, standards will be included in: a. The Land Division Ordinance for the construction of services; and b. The Community Development Code which requires future subdivision plans in areas where allowed densities due to a lack of services are less than the plan densities. 3. Where sewer is not available to site, the developer shall be required to extend the services to the site at the developer's costa The City shall adopt an ordinance providing for partial cost as intervening parcels are developed by the intervening landowners. 4. The Tigard Community Development Code shall establish an ordinance which indicates: C -40- t I a. That services shall be extended from property line to property j line, including services located in adjacent rights-of-ways; I except b. That the ordinance shall allow for the phasing of such services if a development proposal indicates such phasing. The intent of these policies is to develop a mechanism for an orderly and logical development and expansion of services to promote an efficient use of land and thus an efficient growth pattern. This mechanism will basically be concerned with: Planning for public facilities in advance of need in a manner which will implement land use policy. This shall help direct the urban expansion and growth. 7.2 STORM DRAINAGE AND WASTEWATER MANAGEMENT FINDINGS 0 The major drainage problem in Tigard is the storm-water runoff throughout ' the area. o The primary water quantity problem is overbank flooding that occurs when storm-water quantity exceeds channel capacity. 0 CH2M Hill, Inc. developed a "Master Drainage Plan" for the City in 1981, which incorporates existing storm-water detention and subdivision procedures and standards with the recommended changes to the existing floodplain management programa o There is an emphasis on the retention of a vegetation buffer along streams and drainageways to reduce runoffs and flood damage, and provide for erosion control. o Most of the following policies have been transformed into City regulations. POLICIES 7.2.1 THE CITY SHALL REQUIRE AS A PRE-CONDITION TO DEVELOPMENT THAT: a A SITE DEVELOPMENT STUDY BE SUBMITTED FOR DEVELOPMENT IN AREAS SUBJECT TO POOR DRAINAGE, GROUND INSTABILITY OR FLOODING WHICH SHOWS THAT THE DEVELOPMENT IS SAFE AND WILL NOT CREATE ADVERSE OFFSITE IMPACTS: b. NATURAL DRAINAGE WAYS BE MAINTAINED UNLESS SUBMITTED STUDIES SHOW THAT ALTERNATIVE DRAINAGE SOLUTIONS CAN SOLVE ON-SITE DRAINAGE PROBLEMS AND WILL ASSURE NO ADVERSE OFFSITE IMPACTS; c. ALL DRAINAGE CAN BE HANDLED ON-SITE OR THERE IS AN ALTERNATIVE SOLUTION WHICH WILL NOT INCREASE THE OFFSITE IMPACT; d. THE 100-YEAR FLOODPLAIN ELEVATION AS ESTABLISHED BY THE 1981 FLOOD INSURANCE STUDY CONDUCTED BY THE U.S. ARMY CORPS OF ENGINEERS BE PROTECTED; AND -41- �v e. EROSION CONTROL 'TECHNIQUES BE INCLUDED AS A PART OF THE SITE , DEVELOPMENT PLAN. 7.2.2 THE CITY SHALL: a. INCLUDE IN ITS CAPITAL IMPROVEMENTS PROGRAM PLAN FOR SOLVING DRAINAGE PROBLEMS IN THE EXISTING DEVELOPED AREAS; b. RECOGNIZE AND ASSUME ITS RESPONSIBILITY FOR OPERATING, PLANNING AND REGULATING WASTEWATER SYSTEMS AS DESIGNATED IN THE MSD WASTEWATER TREATMENT MANAGEMENT "208" PLAN; AND c. APPLY ALL APPLICABLE FEDERAL AND STATE LAWS AND REGULATIONS WITH RESPECT TO WASTEWATER. IMPLEMENTATION STRATEGIES 1. The City will include measures in this plan and in its implementation ordinances to reduce soil erosion. e 7.3 WATER SERVICE FINDINGS o Both Tigard and Metzger Water Districts have made substantial .capital improvements in recent years to provide the highest quality water at the most reasonable rates. j o Reliable and adequate water supply, storage, and delivery systems are presently available or planned to provide sufficient quantities of high quality water to meet existing and future needs of the community. 0 The Metzger Water District has signed a 25-year water purchase contract for 100% of it's water. With the Tigard Water District entering into long term contracts with the City of Portland and the City of Lake Oswego citizens of Tigard can be assured of a long-term supply of high quality water. POLICIES 7.3.1 THE CITY OF TIGARD SHALL COORDINATE WITH THE TIGARD WATER DISTRICT AND THE METZGER WATER DISTRICT TO PROVIDE A HIGH STANDARD OF WATER SERVICE TO MEET FUTURE DEMANDS AT ALL TIMES. NOTE: For pre-conditions to development, see Policy 7.6.1. IMPLEMENTATION STRATEGIES 1. The City of Tigard shall take an active role in participating with the Tigard and Metzger Water Districts in making its views known on matters pertaining to water rates, tax rates, annexations, capital ! improvements, budgets, etc. -42- k E t S iE 2. When negotiating long-term water supply contracts, the City shall V coordinate with the water districts in seeking rates and schedules that are equitable to all water users within the City. 3. If it appears in the best interests of the citizens to consolidate the water district and City operations, it shall be accomplished in an orderly manner with full and detailed consultation with the water districts involved. 4. The City of Tigard shall coordinate with the water districts, through a capital improvements program, to assure adequate water service for future urban development. 5. The Tigard Community Development Code shall require of developers the burden of proof for providing adequate water service prior to the approval and issuance of any development permits. 7.4 SEWER SERVICE FINDINGS o The availability of sewer lines is now the single most important public service controlling the direction and pace of urban growth. ® o In order to more efficiently use existing vacant land within the already developed area, the network of trunk sewer lines should be completed before there are any significant extensions to non-urbanized areas. t o There are residents within Tigard Urban Planning Area that have or have had failing septic systems. The extent of the septic system failures and concomitant health hazard may be greater than is indicated by county records. As the area develops the problem is bound to become more conspicuous. Local authorities (the City of Tigard, the Unified Sewerage Agency,- and the Washington Ccunty Health Department) may not have the legal discretion to avoid this solution to the issue of failing septic systems. On the other hand, the potential hardship of enforcing these regulations on some property owners cannot be ignored. o The existing system by which septic tanks are monitored appears to have serious defects that need to be remedied. According to some soil scientists, for instance, the dye method of tracing septic tank contamination is inadequate. o Washington County's existing and proposed large-lot zoning designations in the Tigard Plan Area (and to the west on Bull Mountain) may permit septic systems that may fail. Developments in these areas should either be required to have public sewer service or have larger lot sizes than now allowed or envisioned. ® POLICIES 7.4.1 THE CITY SHALL: i i { -43- a x a. DEVELOP A COMPREHENSIVE SEWER PLAN THAT IDENTIFIES THE PRESENT f AND FUTURE CAPACITY NEEDS FOR A SEWAGE SYSTEM IN THE PLANNING AREA, AND PROBABLE ROUTES OF FUTURE TRUNKLINES. b. REQUIRE THAT FUTURE EXTENSIONS OF COLLECTOR SEWER LINES SHALL BE CONSISTENT WITH ALL CITY ORDINANCES AND AGREEMENTS BETWEEN THE CITY OF TIGARD, WASHINGTON COUNTY AND THE UNIFIED SEWERAGE AGENCY (USA). C. ADOPT A CLEAR AND CONCISE AGREEMENT WITH USA, IMPLEMENTING THE CITY'S POLICIES FOR EXTENDING THE AVAILABILITY OF SEWER SERVICES AND ENCOURAGING THE PHASING OUT OF SEPTIC TANKS. 7.4.2 THE CITY SHALL REQUIRE THAT AREAS DETERMINED BY THE WASHINGTON COUNTY ' HEALTH DEPARTMENT OR THE STATE DEPARTMENT OF ENVIROYZSENTQ�T QUALITY TO HAVE FAILING SEPTIC SYSTEMS SHALL BE CONNECTED TO THE PUBLIC SEWER SYSTFA. 7.4.3 IN THE DEVELOPMENT OF NEW SEWER SYSTEMS, PRIORITY SHALL: a. FIRST, BE GIVEN TO AREAS HAVING HEALTH HAZARD PROBLEMS WHICH WILL BE DETERMINED BY DEQ; AND b. SECOND, BE GIVEN TO AREAS WHERE THE COST-BENEFITS ARE THE GREATEST IN TERMS OF NUMBER OF POTENTIAL CONNECTIONS. c` 7.4.4 THE CITY SHALL REQUIRE THAT ALL NEW DEVELOPMENT BE CONNECTED TO A SANITARY SEWER SERVICE. IMPLEMENTATION STRATEGIES 1. The Tigard Community Development Code will require that development permit applications demonstrate that adequate sanitary sewer collection and/or treatment capacity is available at the time the application is being made. The City may have approved or given previous commitments to development which effect the capacity of the existing system. These previous commitments shall be reviewed prior to additional hookups Lv that system. 2. The City will coordinate with the Unified Sewerage Agency (U.S.A.) in the construction of new trunk and collector lines through both the City's and U.S.A. 's capital improvement programs. 3. The City will work with the Metropolitan Service District (MSD), and other affected agencies to formalize collections and treatment service area boundaries and to plan major waste water treatment' facilities. The City recognizes and assumes its responsibility for operation, planning and regulating waste water systems as designated in MSD's Waste Water Treatment Management Component. 4. Where the system capacity is limited, the City will reserve its remaining sanitary sewer 'system capacity to those areas within the City. _. -44- 5. Where the system is not limited, the City through its own lines and in cooperation with U.S.A. may provide collection and/or treatment services to unincorporated Washington County if line or system capacity exists in accordance with the City's annexation policies. 6. The City will coordinate closely with Washington County to prevent the installation of septic tank systems in areas where sanitary sewer services should be and are being planned for as part of either the City's proposed Comprehensive Sewer Plan or U.S.A. 's Capital Improvement Programs. 7. The City will monitor the inflow of storm water into the sanitary sewer system to ensure that unacceptable levels of infiltration are reduced. If necessary, a program will be initiated, to reduce the levels of infiltration. 8. The purpose of Policy 7.4.4 and related policies is to permit pre-existing development utilizing septic tanks or other landfill sewage disposal methods to continue to use such methods, until a charge of use occurs, a new main structure is erected, or until such _ methods are declared unlawful or hazardous by the agency having jurisdiction. For all development activity not utilizing sanitary sewer, the City may require a waiver of remonstrance to the future local improvement district for sewer facilities. ` 7.5 POLICE PROTECTION FINDINGS o As in other cities around the country, Tigard crime rates are increasing. o As the City of Tigard continues to grow there will be a continued need to 0 increase police protection service. POLICIES 7.5.1 THE CITY SHALL COORDINATE EXPANSION OF POLICE PROTECTION, SERVICE AND FACILITIES WITH THE OVERALL GROWTH OF THE COMMUNITY. 7.5.2 AS A PART OF THE ONGOING DEVELOPMENT REVIEW, THE CITY SHALL: a. REQUIRE VISIBLE IDENTIFICATION SIGNS TO ASSIST EMERGENCY VEHICLES IN LOCATING THE AREA OF THE PROBLEM; b. UTILIZE DEFENSIBLE SPACE CONCEPTS, AND c. REQUIRE THE TIGARD POLICE DEPARTMENT TO REVIEW DEVELOPMENT PERMIT APPLICATIONS. IMPLEMENTING STRATEGIES 1. As part of the Tigard Community Development Code, crime prevention provisions will be included in: -45- a. The Land Division section of the Tigard Community Development Code; and b. The Site Design Review, Planned Development and Conditional Development sections of the Tigard Community Development Code to include: 1) Requirements for visible identification signs to assist emergency vehicles in locating the area of the problem; 2) Defensible space concepts; and 3) Provisions requiring the Tigard Police Department to review development permit applications. 2. Prior to approving or supporting an annexation proposal, the City will make certain that the proposed area can be adequately served with police protection. If the area cannot be served, the City will coordinate with the ipplicable police department to specify any corrective measures that would have to be taken by the City, police department, or persons proposing the annexation before the annexation takes place. 3. The nature and level of police services will be subject to coordinated monitoring by the City police department for evaluation �. and long-range planning. 4. The City will strive to reduce citizen fear of, and susceptibility to crime through increasing awareness of crime prevention methods in development, and involving the entire community in crime prevention z= programs. 7.6 FIRE PROTECTION FINDINGS o Currently, the City of Tigard is serviced by the Tualatin Rural Fire District and Washington County Fire District R. o Continued growth and urbanization places additional need for fire related services. o Congestion on some area streets slows the response time to fires. Among locations where this has been noticed are: Vicinity of Greenburg & Tiedeman Pacific Highway Main Street Hall Boulevard between Commercial and Pacific Highway Walnut Street Tiedeman Railroad crossings at Hall Boulevard and Main Street -46- During flooding, some bridges may be closed (e.g. at Grant Street on Hall Boulevard) necessitating the use of time consuming circuitous routes. o Subdivision plats can create access problems when there are too few through streets and too many dead ends. There are numerous examples of dead end streets throughout the City. POLICY 7.6.1 THE CITY SHALL REQUIRE AS A PRE-CONDITION TO DEVELOPMENT THAT: a. THE DEVELOPMENT BE SERVED BY A WATER SYSTEM HAVING ADEQUATE WATER PRESSURE FOR FIRE PPROTECTION PURPOSES; b. THE DEVELOPMENT SHALL NOT REDUCE THE WATER PRESSURE IN THE AREA BELOW A LEVEL ADEQUATE FOR FIRE PROTECTION PURPOSES; AND C. THE APPLICABLE FIRE DISTRICT REVIEW ALL APPLICATIONS. IMPLEMENTATION STRATEGIES 1. The City and private developers will coordinate with the applicable fire districts on all development proposals within the City. 2. Prior to approving or supporting an annexation proposal, the City will make certain that the proposed area can be adequately served with fire protection. If the area cannot be served, the City will coordinate with the applicable fire district to specify any corrective measures that would have to be taken by the City, fire f� district, or persons proposing the annexation before the annexation takes place. 3. The nature and level of fire servic3s will be subject to coordinated monitoring by the City and fire districts for evaluation and long-range planning. 7.7 PRIVATE UTILITIES FINDINGS o Utilities such as natural gas, electric and telephone are provided by private utility agencies. o There is a need for development of a capital improvement plan to coordinate programs developed by public and private utilities. POLICY 7.7.1 COMMUNITY LAND USE PLANNING SHALL BE COORDINATED WITH PRIVATE UTILITY AGENCIES TO ASSURE THE AVAILABILITY OF SERVICES WHEN NEEDED. -47- I IMPLEMENTATION STRATEGIES 1. The City shall work with all private utilities, public utilities, and other public agencies which work in public rights-of-way (e.g. City and County public works departments) to ensure that each utility is provided with plans, programs, and schedules outlining any anticipated construction/reconstruction of public streets. 2. The Community Development Code shall provide for the review of such facilities (e.g. substations, receiving and transmitting towers, and other uses listed under Major Impact Utilities and Services) through the conditional development process. 7.8 SCHOOLS FINDINGS f . 0 The location and development of school facilities has a significant impact on residential development, transportation system location and development of public facilities and services. ,- o Although the boundaries of the Tigard 23J School District extend beyond ' the Tigard Urban Planning Area, the location and function of district's land uses has a major impact upon the Tigard Urban Planning Area. o Students in the northwest corner of Tigard attend the Beaverton School District #48. These irregular school district boundaries raise the following problems: 1. Families_living in Tigard with children attending Beaverton schools must pay out-of-district fees for recreational services to either Tigard or Beaverton; and 2. Many of these same families often subscriber to the Valley Times in order to receive Beaverton School District news. The Valley Times does not, however, cover Tigard news especially related to public hearings and other related land use matters. o Schools have a major impact on future land use decisions. o Both existing and future schools can help define residential areas and serve as activity centers. r o Historically, the school district and the City of Tigard have cooperated w in the use of facilities. f o State land use goals and guidelines require cooperation and coordination in land use decisions between the City and the school district. (� oBoth of the school districts that serve Tigard are separate taxing "►-" districts and are not the responsibility of the City of Tigard government. -48- f f POLICY 7.8.1 THE CITY SHALL WORK CLOSELY WITH THE SCHOOL DISTRICTS TO ASSURE THE MAXIMUM COMMUNITY USE OF THE SCHOOL FACILITIES FOR TIGARD RESIDENTS THROUGH LOCATION CRITERIA AND THE PROVISIONS OF URBAN SERVICES. IMPLEMENTATION STRATEGIES 1. The City shall monitor school capacity by requiring requests for development proposals and permits to be reviewed by applicable school district for effects on school capacity as a pre-condition to development. 2. The City shall coordinate with the school districts whereby each party is regularly informed of the others activities on short and long range planning; all issues of mutual interest, e.g., school/park facilities; and the financing and managing of those facilities. Z. The ci!•y shall develop "Locational Criteria" and pull cooperate with the school districts in their efforts to select new school sites in order to assure adequate facilities and minimize conflicts with the t Comprehensive Plan. (( 4. The City shall support education and occupational training programs and when appropriate make selective resources of the City available to public agencies and private programs. 5. The City shall encourage the use of schools as an integral part of the community by making joint agreements with the school district to allow community uses of school facilities for recreation, open space, and meeting rooms. 7.9 HEALTH SERVICES Findings o Although there are care_ facilities with the Tigard Urban Planning Area, Tigard's primary health service needs are served by those facilities throughout the Portland Metropolitan area. o There are two major hospitals in close proximity to the City, St. Vincent's which is less than 15 minutes driving time and Meridian Park which is less than 10 minutes driving time. POLICY 7.9.1 THE CITY SHALL: a. ENCOURAGE COOPERATION BETWEEN LOCAL, STATE, FEDERAL AND PRIVATE AGENCIES IN PLANNING AND PROVIDING FOR HEALTH AND RELATED SOCIAL SERVICES; AND -49- b. PROVIDE THE OPPORTUNITY FOR THE NECESSARY HEALTH SERVICES TO BE PROVIDED WITHIN THE CITY THROUGH THE PROVISION OF THE COMMUNITY DEVELOPMENT CODE. IMPLEMENTATION STRATEGIES 1. As part of the Community Development Code: a. Hospitals will be permitted as conditional development in all residential and commercial development districts. b. Group care facilities will be permitted outright in medium, medium-high and high density residential districts and permitted as conditional development in low density residential districts. c. Medical offices and clinics will be allowed at least in commercial districts. 7.10 LOCAL GOVERNMENT FACILITIES FINDINGS o The current space owned by the City for administrative offices does not meet the space needs of the City. Therefore, the City currently rents the needed space for administrative purposes. " o The City has rented space in a building which is geographically centered in the community. POLICY a 7.10.1 LOCAL GOVERNMENT ADMINISTRATION FACILITIES SHOULD REMAIN CENTRALIZED IN THE CENTRAL BUSINESS DISTRICT. IMPLEMENTATION STRATEGY 1. The City will continue to locate its facilities, when feasible, in a loc-tion central to all residents of the City. 7.11 LIBRARY SERVICES FINDINGS o Current library facilities are inadequate. ( o Increased demands will require an expansion of library facilities and l service. -50- POLICY i 7.11.1 THE CITY SHALL, WHERE ECONOMICALLY FEASIBLE, PROVIDE FOR LIBRARY SERVICES WHICH MEET THE USER DEMAND OF ITS RESIDENTS. i IMPLEMENTATION STRATEGIES , 1. The City shall continue to work with the Library to provide adequate library services. 7.12 SOLID WASTE DISPOSAL AND RECYCLING FINDINGS o Per capita generation of solid waste has been increasing.. A considerable reduction of the level of solid waste disposed of in landfills can be effected by recycling, particularly through the use of source separation. o The recycling of solid waste conserves limited natural resources and t energy. o The storage and disposal of hazardous substances are problems of increasing public concern. o The Metropolitan Service District (MSD) has been designated with the primary responsibility of finding a solution to the disposal of solid wastes, which is a regional problem. Metro maintains a regional solid waste management plan which is used to guide activities such as the search for new regional landfills and planning of solid waste transfer stations, resource recovery plants, and recycling programs. o Collection of solid wastes in the City is handled by private firms operating under mutually exclusive franchise granted by the City Council. o City policies and strategies regarding the solid waste management must include recognition of Metro's primary role in planning and coordinating solid waste disposal for the region and provisions which will help achieve the regional objectives of reducing the amount of wastes that need to be disposed of in sanitary landfills. POLICIES 7.12.1 THE CITY SHALL RECOGNIZE METROPOLITAN SERVICE DISTRICT'S (MSD) r' RESPONSIBILITY AND AUTHORITY TO PREPARE AND IMPLEMENT A SOLID WASTE { MANAGEMENT PLAN, AND WILL PARTICIPATE IN THESE PROCEDURES AS APPROPRIATE. -51- k E 7.12.2 THE CITY SHALL PROVIDE THE OPPORTUNITY TO ESTABLISH A PERMANENT, FULL-LINE RECYCLING CENTER THROUGH THE PROVISIONS OF THE COMMUNITY DEVELOPMENT CODE. THE LOCATION SHOULD BE NEAR THE CENTER OF THE COMMUNITY AND SHOULD BE OPEN EVERY DAY. IMPLEMENTATION STRATEGIES 1. The City will promote the recycling of solid waste. Such measures may include giving financial incentive to solid waste collectors who recycle, and the establishment of an internal paper recycling program in City Hall and City Maintenance facilities. 2. The City will work with MSD and the State DEQ in adequately identifying the future needs for solid waste disposal in Tigard and Washington County. S. TRANSPORTATION This chapter addresses Statewide Planning Goal #12: Transportation which requires local jurisdictions "to provide and encourage a safe, convenient and economic transportation system." 9 Transportation planning has been defined as the process by which transportation improvements or new facilities are systematically conceived, tested as to present and future adequacy, and programmed for future construction. Modern transportation planning emphasizes the total transportation system. It considers all modes of transport which are economically feasible to a state, region or urban area." (Goodman & Freund, Principals and Practices of Urban Planning, "Transportation Planning") The transportation plan for Tigard reaches beyond the Tigard Planning Area and 1 includes traffic and transportation impacts within other areas of the southwest subregion of the Portland Metropolitan Area., The Metropolitan Service District (MSD) acts as the regional coordinator for transportation planning, throughout the Portland Metropolitan Area. The other major service district impacting Tigard is Tri-Met which is charged with the responsibility for providing public transportation throughout the metropolitan area. k F The Comprehensive Plan proposes a land use plan that encourages and facilitates balanced transportation development for the City. The plan recognizes that land use and transportation investments are inter-connected and that relationship should be reinforced to produce an acceptable urban environment. Detailed information concerning transportation" in the Tigard Urban Planning ! Area is available in the "Comprehensive Plan Report: Transportation." # -52- . 8.1 TS�tlrriv +•S Findings: a A need exists to place all of the existing public local and collector streets in the Tigard City Limits under the City's jurisdiction. o According to a Washington County computer study 48-60% of Tigard residents work outside of the Washington County area. o Between 77-83% of Tigard residents commute to work by auto as single occupants. o Major congestion problems within the City have resulted from the rapid population growth since 1970, creating a need for major street improvements. o A corridor study for Pacific Highway (99W) has not been prepared by MSD. It is the only major trafficway within the region which has not been studied. Pacific Highway, the major trafficway through the City, has the highest traffic volumes, congestion and accidents rates within the City. There is a need to prepare a corridor study for Pacific Highway. The City, Metropolitan Service District and the State should coordinate such a study. o Many of the streets in Tigard are dead-ended which adds to the congestion on existing completed streets. Therefore, a n}smber of street connections need to be constructed. o A major concern of the community regarding transportation is the need to maintain and improve the Livability of residential areas in the face of ,k; increasing population and transportation: requirements. x� s` o The City needs to develop a strategy to coordinate public street improvements with private sector improvements to achieve the most effective use of the limited dollars available for road development and improvement. ® o The major residential growth during the planning period is expected to occur in the westerly and southerly areas of Tigard. Both of these areas lack adequate improved trafficways. o A need exists during the planning period to complete a collector street system between Scholls Ferry Road, Walnut Street, Gaarde Street, Bull Mountain Road and Pacific Highway. The location of these connections needs ;.o be coordinated between the City, County, State and the Metropolitan Service District. z o A need exists to complete the collector street system within the Tigard Triangle area to make more of this area accessible to developers, employers and employees. i -53 POLICIES 8.1.1 THE CITY SHALL PLAN FOR A SAFE AND EFFICIENT STREET AND ROADWAY SYSTEM E THAT MEETS CURRENT NEEDS AND ANTICIPATED FUTURE GROWTH AND DEVELOPMENT. r i f 8.1.2. THE CITY SHALL PROVIDE FOR EFFICIENT MANAGEMENT OF THE TRANSPORTATION PLANNING PROCESS WITHIN THE CITY AND THE METROPOLITAN AREA THROUGH COOPERATION WITH OTHER FEDERAL, STATE, REGIONAI. AND LOCAL JURISDICTIONS. 8.1.3 THE CITY SHALL REQUIRE AS A PRECONDITION TO DEVELOPMENT APPROVAL THAT: a. DEVELOPMENT ABUT A PUBLICLY DEDICATED STREET OR HAVE ADEQUATE ` ACCESS APPROVED BY THE APPROPRIATE APPROVAL AUTHORITY; 6 b. STREET RIGHT-OF-WAY BE DEDICATED WHERE THE STREET IS SUBSTANDARD IN WIDTH. E I c. THE DEVELOPER COMMIT TO THE CONSTRUCTION OF THE STREETS, CURBS AND SIDEWALKS TO CITY STANDARDS WITHIN THE DEVELOPMENT; d. INDIVIDUAL DEVELOPERS PARTICIPATE IN THE IMPROVEMENT OFF EXISTING STREETS, CURBS AND GIDEWALKS TO THE EXTENT OF THE DEVELOPMENT'S t IMPACTS; e. STREET IMPROVEMENTS BE MADE AND STREET SIGNS OR SIGNALS BE PROVIDED '"'NEN' T.IL DEVELOPMENT IS FOUND TO CREATE OR INTENSIFY A TRAFFIC HAZARD; f. TRANSIT STOPS, BUS TURNOUT LANES AND SHELTERS BE PROVIDED WHEN THE PROPOSED USE OF A TYPE WHICH GENERATES TRANSIT RIDERSHIP; g. PARKING SPACES BE SET ASIDE AND MARKED FOR CARS OPERATED BY DISABLED PERSONS AND THAT THE SPACES BE LOCATED AS CLOSL AS POSSIBLE TO THE ENTRANCE DESIGNED FOR DISABLED PERSONS; AND h. LAND BE DEDICATED TO IMPLEMENT THE BICYCLE/PEDESTRIAN wRnIDOD IN G ACCORDANCE WITH THE ADOPTED PLAN. IMPLEMENTATION STRATEGIES G 1 f ' 1. The City shall develop, adopt and implement a master street plan that anticipates all needed trafficway improvements so as to plan for the i necessary available resources to develop these streets when they are needed. 2. The City shall develop, maintain and implement a capital improvements program which: a. Is consistent with the land use policies of the Comprehensive Plan; b. Encourages a safe, convenient and economical transportation system; t 54 Ce Furthers the policies and implementation strategies of the City's Comprehensive Plan; d. Considers a variety of transit modes within the rights-of-way; e. Meets local needs for improved transportation services; f. Pursues and establishes other funding sources from the federal, state, regional and/or local agencies; and g. Designates the timing of such projects to ensure their installation when those facilities are needed. 3. The City shall specify street design standards within the Tigard Community Development Code. 4. The City shall maintain the carrying capacity of arterials and collectors by reducing curb cuts and other means of direct access, and requiring adequate right-of-way and setback lines as part of the development process. The Community Development Code shall state the access requirements on each street classification. 5. The City's Tigard Community Development Code shall require developers of land to dedicate necessary rights-of-ways and install necessary street improvements to the City's standards when such improvements have not been done prior to the developer's proposals. These necessary dedications may be required upon approval of any development proposal. 5,. The City shall control and limit the number of access pointy and will signalize trafficways in a manner that provides for a consistent flow of traffic and therefore minimizes or reduces vehicular emissions. } 7. The City shall include provisions in the Tigard Community Development Code which addresses the aesthetic quality of the transportation system to assure community livability and to minimize the effects on abutting properties. This can be accomplished through: ® a. Building setback requirements; b. Requirements for landscaping and screening and through other site design criteria for visual enhancement; C. Limiting residential land uses along major arterial trafficways; and d. Sign controls. 8. The City,shall coordinate their planning efforts with adjacent cities and other agencies e.g., Beaverton, Portland and Tualatin, Washington County, the Metropolitan Service District, Tri-Met and ODOT.- t 9. The City shall work out reciprocal agreements with other agencies for exchanging information pertinent to local transportation planning. -55- ■ 8.2. PUBLIC TRANSPORTATION FINDINGS d Since the oil embargos of the 1970's, the cost of motor fuels have increased four fold. o The Tri-County Metropolitan Transportation District of Oregon (Tri-Met) is responsible for providing public transportation to the residents of Multnomah, Washington and Clackamas Counties. o Presently, there are four(4) bus lines that service the Tigard area. o Public transit offers the community an opportunity to reduce traffic and pollution as well as increase energy efficiency. o Work trips and shopping trips are most conducive to mass transportationk o The proposed downtown Tri-Met Tigard transfer center will increase service and lessen travel time for riders. POLICIES 8.2.1 THE CITY SHALL COORDINATE WITH TRI-MET TO PROVIDE FOR A PUBLIC TRANSIT SYSTEM WITHIN THE PLANNING AREA WHICH: A, MEETS THE LEEDS of BOTH THE CURRENT AND PROJECTED, FOR THE TIGARD COMMUNITY: b. ADDRESS THE SPECIAL NEEDS OF 1RANSiT DEPENDENT POPULATION; s C. REDUCES POLLUTION AND TRAFFIC; AND ri "< d. REDUCES ENERGY CONSUMPTION. 8.2.2 THE CITY SHALL ENCOURAGE THE EXPANSION AND USE OF PUBLIC TRANSIT BY: a. LOCATING LAND INTENSIVE USES IN CLOSE PROXIMITY TO TRANSITWAYS; b. INCORPORATING PROVISIONS INTO THE COMMUNITY DEVELOPMENT CODE WHICH REQUIRE DEVELOPMENT PROPOSALS TO PROVIDE TRANSIT FACILITIES; AND C. SUPPORTING EFFORTS BY TRI-MET AND OTHER GROUPS TO PROVIDE FOR THE NEEDS OF THE TRANSPORTATION DISADVANTAGED. IMPLEMENTATION STRATEGIES 1. The City shall request Tri-Met to extend service to areas within the City that do not currently have service. 2. In the City's Community Development Code, the City shall require i large developments to provide transit facilities e.g•. ull-offs and p shelters, if such developments are located adjacent to trax,At routes. -56- r f .` h m..;-Met the development of the 3. The City shall coordinaee With .�� in-• proposed transfer center in downtown Tigard. f 4. The City shall propose land use densities, within the Comprehensive Plan, along transit oriented corridors that support public transportation service. 5. The City shall work with Tri-Met and other transit providers to encourage transit service for the transit dependant population e.g. the poor and handicapped. 6. The City shall encourage its citizens to use mass transit systems, where possible, to make greater effectiveness of the transit system while reducing automobile usage. 7. The City shall coordinate with the transit providers to encourage car-pooling and investigate if there is a local need for car-pooling in the Tigard area. 8.3. TRANSPORTATION FOR THE DISADVANTAGED FINDINGS o Tri-Met is responsible for providing handicapped transit accessibility (` including coordination of special transit services by social service agencies. o Tri-Met conducts the detailed special handicapped transit planning necessary to identify required service improvements and adopt a plan for meeting federal requirements for handicapped accessibility. POLICY 8.3.1 THE CITY SHALL COORDINATE WITH WASHINGTON COUNTY, TRI-MET AND OTHER REGIONAL AND STATE AGENCIES IN THE IDENTIFICATION AND ACCOMMODATION OF INDIVIDUALS WITH SPECIAL TRANSPORTATION NEEDS. IMPLEMENTATION STRATEGY 1. The City shall require, thro;jgh the implementation process, that parking spaces be set aside and marked for disabled persons parking, and that such spaces be located in convenient locations. 2. The City shall continue to coordinate with the appropriate agencies in the identification and accommodation of those individuals with special transportation needs. -57- 8.4. PEDESTRIAN AND BICYCLE WAYS FINDINGS o As the City of Tigard continues to grow, more people may rely on the bicycle and pedestrian pathways for utilitarian, as well as for recreational purposes. o In 1974, the City Council adopted a Comprehensive Pedestrian/Bicycle Pathway Plan. o The City has required adjacent development to install that portion of the bicycle/pedestrian pathways shown on the adopted plan which abuts the development. o The City has implemented portions of the adopted plan through the City's overlay program. o The adopted Bicycle/Pedestrian Plan provides for a dual function pathway system; bicycles and pedestrian use the same system. POLICY 8.4.1 THE CITY SHALL LOCATE BICYCLE/PEDESTRIAN CORRIDORS IN A MANNER WHICH PROVIDES FOR PEDESTRIAN AND BICYCLE USERS SAFE AND CONVENIENT MOVEMENT IN ALL PARTS OF THE CITY, BY DEVELOPING THE PATHWAY SYSTEM SHOWN ON THE ADOPTED PEDESTRIAN/BIKEWAY PLAN. IMPLEMENTATION STRATEGIES 1. The City shall review each development request adjacent to areas proposed for pedestrian/bike pathways to ensure that the adopted plan is properly implemented, and require the necessary easement or dedications for the pedestrian/bicycle pathways. 2. The City shall review and update the adopted Pedestrian/Bikeway Plan ---- all developing areas have accessibility on a regular uts+sa;;, t:, Ensure _ y to the Pedestrian/Bikeway system. 3. The City shall coordinate with Washington County to connect the City's Pedestrian/Bike Pathway system to the County':. system. 4. The City codes include provisions which prohibit motor driven vehicles on designated and maintained pedestrian/bicycle pathways. 8.5. RAILROAD FINDINGS o Tigard is serviced by Southern Pacific and Burlington Northern railro2d lines which carry strictly freight through the City Limits. 58 r o Within the downtown area each railroad company has its own trackage and the usage of those lines is based on railroads' needs. o In the adopted Tigard Urban Revitalization Area Plan it is stated that there should only be one set of railroad tracks traversing the downtown area. the City is in the process of discussing this issue with both railroads. o Many of the commercial and industrial businesses within Tigard rely on the railroads for the shipping and receiving of goods. o The City is currently coordinating the upgrading of all the railroad crossings within Tigard with the railroads. z POLICIES 8.5.1 THE CITY SHALL COOPERATE WITH THE RAILROADS IN FACILITATING RAIL FREIGHT SERVICE TO THOSE COMMERCIAL AND INDUSTRIAL BUSINESSES WITHIN THE CITY THAT DEPEND ON RAILROAD SERVICE. 8.5.2 THE CITY SHALL COORDINATE WITH BOTH SERVICING RAILROADS TO IMPLEMENT THE ADOPTED TIGARD URBAN RENEWAL AREA (T.U.R.A.) PLAN. i IMPLEMENTATING STRATEGIES 1. The City shall continue to coordinate with the Southern Pacific and Burlington Northern railroads to provide adequate railroad service. 2. The City shall designate adequate commercial and industrial land within close proximity to existing railroad service lines to ease railroad accessibility to those businesses that rely on the service. 3. The City shall coordinate with the railroads to combine the trackage within the downtown area and facilitate the implementation of the T.U.R.A. Plan. 9. ENERGY Statewide Planning Goal #13, Energy Conservation, requires localities to manage and control land uses and development "so . as to maximize the conservation of all forms of energy, based on sound economic principles." The following policies accomplish the objectives of the goal but they are not written at the level- of detail necessary to provide the community with a f comprehensive energy program. Hcwever, the potential need for such a program o ' is becoming increasingly evident as the cost of energy supplies increases and the availability of nonrenewal energy sources decreases. The increasing cost of energy compiled with the fact that most localities are importers of energy -59- could potentially have a negative impact on local economies. The impacts could range from work stoppages or slowdowns to reduced disposable incomes and a disruption of monies within the local economy. i the energy findings, policies and implementation strategies identify source that the community should explore. conservation as the initial energy They do so based on the fact that conservation is the cheapest energy source, t most readily available, least environmentally detrimental and most influenced by local policy. j Additional information on this topic is available in the "Comprehensive Plan f report: Energy." FINDING'S o Transportation and residential uses account for approximately half of the s total energy consumption in the Portland Metropolitan Area. Industrial p and commercial uses comprise the other half of energy consumption. o The City of Tigard has no developed energy sources. r o Conservation of energy at the local level is best achieved through t programs aimed at energy efficient transportation modes and land use patterns, reducing travel distances between residential and work areas, infilling vacant land, increasing densities of land uses as a whole and { encouraging alternative energy uses. o All forms of nonrenewable energy sources used today are finite and the r cost of these sources have increased as the supply has decreased. o A reduction in the community-wide use of nonrenewable energy sources and the development of renewable energy resources would have beneficial impacts on both local and national economy. o Mass transit systems can have a positive influence upon energy consumption but require higher density corridors and activity areas to be effective. o The availability of cheap energy in the past has resulted in the construction of residential and commercial buildings that are energy l ot.iof existing and new structures inefficient. Weatherization and insu �o.n.. would substantially reduce energy consumption for heating and cooling these structures. o Although it is a widely used substitute for traditional energy _sources, woodburning stoves can have adverse effects on air quality if improperly used. o Alternative architecture and site design considerations can affect energy consumption; such as structure orientation to the sun, landscaping, topography and adjacent structures. o Small scale wind generating devices may be a viable alternative energy source for Tigard residences. -60- 0 the private automobile consumes about 75% of all petroleum used in transportation in the Portland Area. POLICIES 9.1.1 THE CITY SHALL ENCOURAGE A REDUCTION IN ENERGY CONSUMPTION BY INCREASE OPPORTUNITIES FOR ENERGY CONSERVATION AND THE PRODUCTION OF ENERGY FROM ALTERNATIVE SOURCES. 9.1.2 THE CITY SHALL ESTABLISH A BALANCED AND EFFICIENT TRANSPORTATION SYSTEM WHICH COMPLEMENTS THE LAND USE PLAN AND IS DESIGNED TO MINIMIZE ENERGY IMPACTS. 9.1.3 THE CITY SHALL ENCOURAGE LAND USE DEVELOPMENT WHICH EMPHASIZES SOUND ENERGY CONSERVATION, DESIGN AND CONSTRUCTION. IMPLEMENTATION STRATEGIES 1. The City shall encourage public and private programs that offer weatherization and energy conservation programs, e.g. tax credits, low-interest weatherization loans, etc. 2. The Tigard Community Development Code shall allow for a variety of housing unit types in most residential development districts which have proven to be energy efficient, e.g. , common-wall or clustering of dwelling units. 3. The City shall locate higher densities and intensities of land use in T* - proximity to existing and potential transit routes specifically with convenient access to federal and state highways, arterials and major collector streets. 4. the City shall, in the Tigard Community Development Code, allow for more flexibility in structure siting to provide for maximum solar exposure. 5. The City shall review the feasibility of implementing a solar access ordinance and wind generation provisions 6. The City shall cooperate with both public and private agencies that make use of site development and architectural techniques using natural elements for heating and cooling in all developments. 7. The Tigard Community Development Code shall allow for mixed use developments which will support a reduction in traffic trip generation. 8. The City shall coordinate with and support public and private planning efforts that advocate alternative forms of transportation such as mass transit, carpooling, ride share, bicycling and walking for commuter purposes. 9. Locational criteria shall be established to minimize vehicular travel in order to conserve energy. -61 _ ,H 10. URBANIZATION This chapter addresses the concerns expressed by Statewide Planning Goal # 14: Urbanization, which is 1°to provide for an orderly and efficient transition from rural to urban land use." The Urbanization goal is important because it develops a framework within which all development activities have to be coordinated, and it integrates and balances all of the other available land resources in terms of the needs expressed by other goals; namely Housing, Economy, Public Facilities and Services, Natural Features and Open Space and Transportation. The urbanization goal also requires an allocation of land for accommodation of urban expansion during the planning period (1980 - 2000), and development of plans to arrange the orderly and efficient transition from urbanizable load, in Tigard use, to urban land. The findings, policies and implementation strategies address a variety of topics related to urbanization. Policies describe the process which satisfy the need for efficient, orderly and logical urbanization within the geographical limits of Tigard's Urban Planning Area. Additional information on this topic is available in the "Comprehensive Plan Report": Urbanization. FINDINGS o The City of Tigard has grown from 5,302 people in 1970 to 14,286 people in 1980 (Census 1970 6 1980) and the City predicts that Tigard will contin+le 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 approximately $ square mi__less 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 City 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 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.' -62- 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. o The timing, location, and expansion of the transportation systems are important factors affecting future urbanization. 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. o To assist in the financing of street facilities and improvements, Tigard has imposed a Systems Development Charge (SDC) on new housing development. 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 1970. o Water in the Tigard area is 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: 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 land 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 (Tiga.rd and Beaverton), but the districts do work with the City's Planning and 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. -63- o The City is currently in the process of including all of the "unincorporated islands" within the city limits. i 10.1 ANNEXATION OF LAND POLICIES 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 ALLOWED*, AND WILL ' NOT SIGNIFICANTLY REDUCE THE LEVEL OF SERVICES AVAILABLE TO " DEVELOPED AND UNDEVELOPED LAND WITHIN THE CITY OF TIGARD. THE SERVICES ARE: 1. WATER; 2. SEWER; 3. DRAINAGE; 4. STREETS; 5. POLICE; AND 6. FIRE PROTECTION * Most intense use allowed by the conditions of approval, the zone or the Comprehensive Plan. b. IF REQUIRED BY AN ADOPTED CAPITAL IMPROVEMENTS PROGRAM ORDINANCE, THE APPLICANT SHALL SIGN AND RECORD WITH WASHINGTON COUNTY A INONREMONSTRANCE AGREEMENT REGARDING THE FOLLOWING: 1. THE FORMATION OF A LOCAL IMPROVEMENT DISTRICT (L.I.D.) FOR,ANY I 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. r, c. THE CITY SHALL PROVIDE URBAN SERVICES TO AREAS WITHIN THE TIGARD URBAN PLANNING AREA OR WITH THE URBAN GROWTH BOUNDARY UPON ANNEXATION. i —64- 10.1.2 APPROVAL OF PROPOSED LAND ANNEXATIONS BY THE CITY SHALL BE BASED ON FINDINGS WI' H 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 DETERMINE WHETHER THE PARCEL IS WITHIN OR OUTSIDE THE CITY; c. THE POLICE DEPARTMENT HAS COMMENTED UPON THE ANNEXATION; d. THE LAND IS LOCATED WITHIN THE TIGARD URBAN FLANNING AREA AND IS CONTIGUOUS TO THE CITY EOUNDARY. e. THE ANNEXATION CAN BE ACCOMMODATED BY THE SERVICES LISTED IN 10.1.1(b)(2). 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 c. WHERE THE APPLICABLE STATE OR COUNTY HEALTH AGENCY HAS DECLARED THAT THERE IS A POTENTIAL OR IMMINENT HEALTH HAZARD. 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 LINITS, THE CITY SHALL HAVE THE RIGHT OF REVIEW FOR ALL DEVELOPMENT PROPOSALS OUTSIDE THE TIGARD CITY LIMITS BUT WITHIN THE TIGA..RD URBAN PLANNING AREA (REFERENCE TIGARD'S URBAN PLANNING AREA AGREEMENTS WITH WASHINGTON COUNTY). THE CITY SHALL REQUIRE THAT DEVELOPMENT WILL NOT: a. PRECLUDE THE FURTHER DEVELOPMENT OF THE PROPERTIES TO URBAN DENSITIES AND STANDARDS; OR b. PRECLUDE THE SUBSEQUENT DEVELOPMENT OF SURROUNDING PROPERTIES. -65- 4 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; k d. STREET ALIGNMENT; AND a e. DRAINAGE. f k IMPLEMENTATION STRATEGIES i r t 1. The City shall encourage all of the urbanizable land within Tigard's Urban Planning Area to be within the City Limits. t I 2. The City shall direct its annexation 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.) 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 ► 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 (UPA). 7. The City shall actively seek to include all "unincorporated island" areas into the city. 8. The City shall provide a capital improvement plan (CIP) that will // promote the development of services and facilities in those areas E which are most productive in the ability to provide needed housing, jobs and . commercial service opportunities in conformance with the -66- 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. 9. 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, runty or special district policy making body on a matter of mutual concern. 10. The City and 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 AMENDMENT OF THE AGREEMENT BETWEEN THE CITY AND THE COUNTY. 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. 11. SPECIAL AREAS OF CONCERN The purpose of this chapter is to address those areas within each Neighborhood Planning Organization that are of special concern to each particular area. This chapter is divided by Neighborhood Planning Organization. The subsequent policies address a broad range of issues and relate directly to the-main City-wide policies in Chapters 1-10. The larger, bold number adjacent to each policy refers to the City-wide policy of Chapters 1-10. 11.1 Neighborhood Planning Organization #1 A. CENTRAL BUSINESS DISTRICT FINDINGS o The downtown area contains a broad mix of land uses, meeting the needs of many people within the planning area. �` o A major concern of the Comprehensive Plan is to maintain existing business l ' in the downtown area, and expand the economic potential of the downtown area. s -67- o The Central Business District is the major commercial area in the planning area, and it provides professional, governmet-itni, financi»1, and cultural services. It also provides entertainment and open space. o The City of Tigard has an adopted Tigard Urban Revitalization Area (T.U.R.A.) plan for the downtown area. o To successfully operate as a unified area, a Central Business District needs to: a. Be compact; b. Have ease of access to all facilities; c. Have a broad cross section of appropriate commercial uses; d. Have adequate free parking in proximity to shopping; and o The Tigard downtown area is effectively served by mass transit facilities. POLICY 11.1.1 THE REDEVELOPMENT OF DOWNTOWN SHALL BE ACCOMPLISHED IN ORDER TO MAKE IT COMPLEMENTARY TO NEWER SHOPPING AREAS. CONVENIENCE, APPEARANCE AND HE NEEDS OF THE SHOPPING PUBLIC SHOULD BE PRIMARY CONSIDERATIONS. IMPLEMENTATION STRATEGIES 1. The City shall continue to implement the adopted Tigard Urban Revitalization Area (T.U.R.A.) Plan in accordance with the City's economical capabilities. 2. The City shall coordinate and cooperate with the private sector to promote their participation in the implementation of the T.U.R.A. plan. B. ASH AVENUE FINDINGS o The extension of Ash Avenue is expected to increase traffic from the downtown area to the adjacent neighborhood; thus potentially increasing the adverse impacts upon the adjacent neighborhood. o Improvements to adjacent street, e.g. Hill, O'Mara, etc. can alleviate traffic impacts on Ash Avenue. POLICY .- 11.2.1 ASH AVENUE SHALL BE EXTENDED ACROSS FANNO CREEK, ENABLING ACCESS TO THE NEIGHBORHOODS COMMERCIAL AREA WITHOUT USING PACIFIC HIGHWAY. DESIGN FEATURES SHALL BE USED TO SLOW TRAFFIC AND MAKE THE STREET AS -68— W'v!' ��`..;as ,�': �,�• J SAFE AS POSSIBLE. ASH AVENUE SHALL BE DESIGNATED A MINOR COLLECTOR IN CONFORMANCE WITH THE MASTER STREET PLAN. DESIGN FEATURES AND MITIGATION MEASURES SHALL HOLD TRAFFIC VOLUMES TO THE MIDDLE LIMITS OF A MINOR COLLECTOR. 11.2.2 IMPROVEMENTS TO S.W. ASH AVENUE FROM S.W. HILL TO FANNO CREEK SHALL BE CONSTRUCTED AS CONDITION OF DEVELOPMENT OF ADJACENT PROPERTIES. THE STREET IMPROVEMENTS ALONG WITH THE DEVELOPMENT OF A MAJOR COMMERCIAL SITE WILL INCREASE TRAFFIC ON ASH. A BARRICADE SHALL BE PLACED AT HILL STREET APPROXIMATELY AT THE END OF EXISTING PAVEMENT TO PROTECT THE NEIGHBORHOOD RESIDENTS FROM THE COMMERCIAL TRAFFIC. 11.2.3 METHODS OF MITIGATING THE TRAFFIC IMPACT ON THE NEIGHBORHOOD SHALL INCT,UDE IN THE FOLLOWING ORDER OF IMPROVEMENT CONSTRUCTION: a. IMPROVING S.W. MCDONALD STREET TO INTERIM MAINTENANCE STANDARDS TO ENCOURAGE TRAFFIC FROM SOUTH OF MCDONALD TO USE MCDONALD TO EXIT TO HALL AND/OR PACIFIC HIGHWAY. b. IMPROVEMENTS TO THE RESIDENTIAL PORTION OF ASH FROM HILL TO FREWING. THESE IMPROVEMENTS COULD INCLUDE LIMITED PARKING, DELINEATION OF TRAFFIC LANES AND SIDEWALKS ON ONE OR BOTH SIDES OF THE STREET. c. THE EXTENSION OF S.W. HILL TO S.W. O'MARA AND/OR THE IMPROVEMENT OF S.W. ASH FROM FREWING TO GARRETT. d. THE EXTENSION OF S.W. O'MARA TO S.W. HILL PARALLEL TO S.W. ASH. e. REMOVAL OF THE BARRICADE IN PLACE ON ASH AVENUE AT S.W. HILL. f. IMPROVEMENT OF S.W. O'MARA STREET TO INTERIM MAINTENANCE STANDARDS TO ENCOURAGE AN ALTERNATE ROUTE. g. INSTALLATION OF TRAFFIC INHIBITORS TO THE RESIDENTIAL PORTION OF ASH IF AND WHEN TRAFFIC VOLUMES EXCEED THE MIDDLE RANGE FOP A MINOR COLLECTOR. TRAFFIC INHIBITORS INCLUDE BUT ARE NOT LIMITED TO PLANTING ISLANDS, SPEED BUMPS, BUTTONS, TURNING RESTRICTIONS, LOAD LIMITS AND ENFORCEMENT. 11.3 NEIGHBORHOOD PLANNING ORGANIZATION #3 Many of the older residential neighborhoods in NPO #3 were developed along country roads that were lightly traveled, but which are now more heavily traveled. Some of this increased traffic results from local development, and some of it is through traffic which must use these roads sincenoarterial route has been built. Further increased in traffic, and consequent widening of these roads, may adversely impact the quality of the residences along these roads. This is particularly the case with 121st Avenue and Gaarde Street, which have right-of-ways of 40 to 50 feet that are offset in some places. -69- C The comprehensive plan for NPO #3, adopted by the City of Tigard in 1975, supported and implemented the conclusions of Carl Buttke, the consulting engineer who performed the traffic studies for the various NPOs. These conclusions were that 121st Avenue and Gaarde Street should be developed as two lane roads limited to a total of 30 feet "to avoid motorists from forming a third land, but providing sufficient roadway width for turning vehicles." The 1975 plan included provisions for these roads to have pedestrian-bicycle j paths, and to have restrictions on parking. Also, low densities were planned f for the neighborhoods serviced by these streets; one reason was to avoid further overloading of these streets with additional traffic resulting from higher densities. The City of Tigard, in the 1975 plan for NPO #3, opposed a proposed Murray Boulevard Extension through NPO #3. It has been the opinion of both the City and the local residents that the Murray Boulevard Extension to Pacific Highway should be located to the west of Bull Mountain. Completion of this arterial linkage could remove much of the through traffic from what should be neighborhood collector streets. FINDINGS o The development along most of the collector streets in NPO #3 is predominantly low density residences which are in good condition. o The present right-of-way along much of S.W. 121st Avenue and S.W._ Gaarde street is 40 to 45 feet wide, with offsets in some places. Widening these streets to major collector standards would impact some of the existing homes on these streets. o Some of the traffic now using S.W. 121st Avenue and Caarde Street is not local, but rather through traffic, which could be better provided for by a properly located arterial connection between Murray Boulevard and Pacific Highway. o Future development on the land along 121st and Gaarde will add to the traffic volumes on those streets. o S.W. Gaarde Street and S.W. 121st Avenue south of Walnut both have many uncontrolled access points; this condition will require special design attention when street imptDvements are made. o A direct connection between Murray Boulevard, or Scholls Ferry Road, and Gaarde Street and/or 121st Avenue has been proposed many times in the past. A direct arterial connection proposal was considered in detail in the 1975 NPO #3 Plan and was emphatically rejected by the City of Tigard. It has also been rejected by the current NPO #3. POLICY 11 3.1 THE CITY SHALL CONSIDER THE FOLLOWING WHEN PREPARING STREET IMPROVEMENT PLANS THAT AFFECT S.W. 121ST AVENUE OR GAARDE STREET. -70 a. THE IMPACT ON THE EXISTING RESIDENTIAL STRUCTURES AND THE ALTERNATIVES WHICH HAVE THE MINIMUM ADVERSE EFFECT IN TERMS OF; 1. REDUCING THE DISTANCE BETWEEN THE DWELLING AND THE STREET; AND 2. NOISE IMPACTS. k b. THE EFFECT 1HE IMPROVEMENT WILL HAVE ON THE TRAFFIC FLOW AND THE I POSSIBLE NEGATIVE EFFECTS ON OTHER STREET INTERSECTIONS. c. MINIMIZING THE USE OF THESE STREET AS PART OF THE ARTERIAL SYSTEM FOR THROUGH TRAFFIC. 11,3,2 THE CITY OF TIGARD SHALL WORK WITH OTHER GOVERNMENTAL BODIES FOR THE DEVELOPMENT OF AN ARTERIAL ROUTE CONNECTION FROM MURRAY BOULEVARD OR SCHOLLS FERRY ROAD TO PACIFIC HIGHWAY. THIS ARTERIAL ROUTE SHOULD BE LOCATED WEST OF BULL MOUNTAIN, AND SHOULD NOT UTILIZE ROADS WHICH PASS THROUGH EXISTING RESIDENTIAL AREAS WITHIN TIGARD. IMPLEMENTATION STRATEGIES 1, S.W. Gaarde Street and S.W. 121st Avenue (between Gaarde and Walnut) shall be developed as two-lane roads with pedestrian-bicycle paths, restricted =' parking and left turning lanes as needed at congested intersections. 2. The undeveloped land along S.W. 121st Avenue (south of Walnut) shall be planned for development in accordance with the locational criteria policies that apply to locating medium and higher densities close to arterials and in accordance with the policies for "Established" and "Developing" areas. 3. The Tigard Community Development Code shall require site design review for any development other than a single or two family structure. The site design review shall include review of street right-of-way and pavement location. 11.4 NEIGHBORHOOD PLANNING ORGANIZATION 14 POLICY 11.4.1 IN THE TIGARD TRIANGLE (I.E. THAT AREA BOUNDED BY PACIFIC HIGHWAY, HIGHWAY 217, AND THE INTERSTATE 5-FREEWAY), IN THOSE PARCELS DESIGNATED "CP", HIGH DENSITY RESIDENTIAL DEVELOPMENT (I.E. 20 TO 40 UNITS PER ACRE) SHALL BE A USE ALLOWED OUTRIGHT IN CONDUCTION WITH COMMERCIAL PROFESSIONAL USES L 11.4`.2 IN THE TIGARD TRIANGLE DESCRIBED IN POLICY 11.4.1, THOSE PARCELS DESIGNATED FOR ANY COMMERCIAL DEVELOPMENT SHALL NOT DEVELOP FOR SUCH USE, IF NOT ALREADY SO DEVELOPED, UNLESS A MAJOR COLLECTOR, CONNECTING THE AREA ON PACIFIC HIGHWAY AT APPROXIMATELY MA 78TH AVENUE AND THE -71- L WESTERLY PORTION OF RAINES ROAD INTERCHANGE AT INTERSTATE FREEWAY (AT APPROXIMATELY 69TH AT DARTMOUTH) BE CONSTRUCTED, BE GUARANTEED WITHIN ONE YEAR FOR CONSTRUCTION BY A PUBLIC AGENCY, OR BE APPROVED FOR CONSTRUCTION AS A PART OF A LOCAL IMPROVEMENT DISTRICT AFTER THE REMONSTRANCE AND REVIEW PERIOD HAVE EXPIRED. a. THIS CONDITION SHALL NOT APPLY TO PARCELS HAVING DIRECT ACCESS TO PACIFIC HIGHWAY, OR THE INTERSTATE 5 FREEWAY ACCESS RAMPS UNLESS THE PORTION PROPOSED FOR DEVELOPMENT IS GREATER THAN 1000' FROM THE RIGHT-OF-WAY LINE OF PACIFIC HIGHWAY OR INTERSTATE 5 INTERCHANGE RAMPS. b. UNTIL NEW COMMERCIAL DEVELOPMENT IS PERMITTED IN THE TRIANGLE UNDER THIS CONDITION, THE ONLY NEW DEVELOPMENT THAT MAY OCCUR ON ANY PARCEL IN THE TRIANGLE IS A SINGLE FAMILY RESIDENTIAL USE: 11.5 NEIGHBORHOOD PLANNING ORGANIZATION #5 FINDINGS o As Tigard has continued to develop the locational advantages associated with the the I-5 freeway, Highway 217 and the two railroad lines traversing the area have led to a considerable amount of office and industrial development along 72nd Avenue, south of Highway 217. o The established residential area abutting the industrial area in NPO #5 has been adversely affected by the individual use, due to increased smoke, noise, odor or visual pollution. o The polution of existing vegetation and trees, and the planting of trees, provide an excellent means to both separate and buffer residential areas from industrial areas. These vegetative buffers exist along the western slopes bordering the Rolling Hills Subdivision and along Fanno Creek. The Rolling Hills Subdivision abuts industrially planned land on two _sides and is within approximately 600 feet of land planned for hese.. industrial usc. POLI_C_Y e 11.5.1 THE CITY SHALL REQUIRE BUFFERING AND SCREENING BETWEEN RESIDENTIAL AREAS AND ADJOINING INDUSTRIAL AREAS AS A PRECONDITION TO DEVELOPMENT APPROVAL AS FOLLOWS a; a. ALL BUILDINGS ON INDUSTRIAL LAND SHALL BE SET BACK A DISTANCE OF kt` 50 FEET FROM ANY PROPERTY LINE WHICH ABUTS A RESIDENTIALLY PLANNED AREA; b. THE SITE PLAN SHALL PROVIDE FOR THE LEAST INTENSIVE PROPOSED USES ON THE SITE is°i THE AREAS WHICH ABUT AN ADJOINING RESIDENTIAL PLANNED AREA; AND 4' 71a 'F?spa-,�•.r ,... ' '?' .t,:; _r-.: ,..�-.,.. 4.,,. _ ,„,�; _ ..y., i C. BUFFERING AND SCREENING SHALL BE PROVIDED WITHIN THE 50-FOOT SETBACK AREA AS PROVIDED BY THE STANDARDS CONTAINED IN POLICY 6.3.3. IT IS NOT THE INTENT OF THIS SUBSECTION TO REQUIRE THE ENTIRE FIFTY FEET TO BE LANDSCAPED PROVIDED THE STANDARDS IN 6.3.3 ARE MET IN WHICH CASE A PORTION OF THE BUFFER AREA MAY BE USED FOR PARKING; EXCEPT 1. NO STRUCTURE, PAVEMENT OR DEVELOPMENT MAY BE LOCATED WITHIN TFE 50-FOOT SETBACK AREA SURROUNDING THE ROLLING HILLS SUBDIVISION; AND 2. ALL EXISTING VEGETATION SHALL BE RETAINED AND MAINTAINED WITHIN THE 50-FOOT SETBACK AREA SURROUNDING THE ROLLING HILLS SUBDIVISION. IMPLEMENTATION STRATEGIES 1. The City shall work with the Neighborhood Planning Organizations and the affected property owners (both residential and industrial) in developing a design plan for the buffer areas between industrial and residential areas. 2. The Tigard Community Development Code shall include a tree cutting section which will minimize the cutting of trees on undeveloped land, and prohibit the cutting of trees within the designated Fanno Creek Greenway area. 3. The Community Development Code shall include standards for industrial developments that abut residential districts. At a minimum these standards shall include height, noise, and lighting requirements. r.. a = —72— j;�r 12. LOCATIONAL CRITERIA INTRODUCTION This section contains locational criteria policies with respect to: o Housing o Commercial uses o Offices - o Industry o Public utilities and facilities The policies and locational criteria apply to both legislative and quasi—judicial land use actions. Conformance of quasi—judicial land use actions with this section of the Comprehensive Plan shall be determined by evaluation of the relationships between the proposed action (e.g. , zone change, conditional development) and the applicable locational criteria. The applicable criteria are determined by the scale of the proposal, measured according to the scale standards the charts which follow. found in It is intended that these locational criteria be construed in a flexible manner, in the interest of accommodating proposals which, though not strictly in conformance with the applicable criteria, are found to be in the public > interest and capable of harmonious integration into the community. The burden of proving conformance of the proposal to the Comprehensive Pian srnuld vary with the degree of change and impact on the community: the more drastic the change and the greater the impact, the more strictly the criteria should be construed. 12.1 RESIDENTIAL The allowed housing types will he d terima___., «�=�++iaea by the locational criterias, allowed densities aiid Community Development Code provisions related to each zoning district. POLICY 12.1.1 THE CITY SHALL PROVIDE FOR HOUSING DENSITIES IN ACCORDANCE WITH: a. T'AE APPLICABLE PLAN POLICIES. b. THE APPLICABLE LOCATIONAL CRITERIA. C. THE APPLICABLE COMMUNITY DEVELOPMENT CODE PROVISIONS. _ # -73- The following criteria will apply to the four residential densities. 1. Low Density Residential. A. The following areas designated low density residential on the plan map. (1) Areas which are committed to low density development and not shown on the 'buildable lands inventory" as vacant land. (2) Areas where street facilities are limited to collectors and local streets. (3) Areas having development limitations due to the topography, soil characteristics, drainage, high water table or flooding. (4) Areas with limited capacity for development in terms of facilities and services such as: (a) Facilities: i Sewer ii Water iii Drainage iv Schools (b) Services: i Police ii Fire iii Health B. The following factors will be determinants of the density ranges allowed through zoning in the low density residential. (1) Areas which have been historically developed with large lots and which are determined to be committed land "on the buildable lands inventory" will remain zoned consistent with the existing devclofinent pattern. (2) The capacity of facilities and services. { (3) :yeas within walking distance of transit should be zoned for smaller lots. (4) Areas within close proximity to jobs, commercial areas and public facilities and services should be zoned for smaller lots. !' 2. Medium Density Residential A. The following factors will be the determinants of the areas designated for medium density on the plan map: ; < (1) Areas which are not committed to low density development. 3 -74 t ' Fff t 6 I I a 4 t access from collector or (2) Areas which have direct arterial streets. 3 development ment limitations such as (3) Areas which are not soor drainage. topography, flcoding, p where the existing facilities have the capacity for ` (4) Areas ! additional development* Areas within one half of a mile of public transportation. , (5) Ar of established low density the a privacylow density residential areas in (b) Areas which can be bu order to maximize residential areas. allowed B. The following factors will be determinantsofdnsity ranges through zoning in the medium density planned1) The density of development in areas historically zoned for medium ( density development. hand natural the degree (2) The bgraomestablished low density areas. possiblebuffering fr (3) The capacity of the services. (4) The distance to the public transit. I orhood or general commercial centers and(5) The distance to neighb office business centers. (b) The distance from public open space. 3. Medium-Hi h and High Density Residential determinants of the areas A. The following factors Ni'l b the tan map: designated for high density on the p (1) Areas which are not committed to low density development. ... al areas in residenti rivacy of establishelow density order to maximize the p d l (2) Areas which can be buffered from low denary residential areas. ect access from a major collector or arterial 3) Areas which have dir street. (4) Areas which are not subject to development limitations. have the capacity for (5) Areas where the existing facilities additional development. 1. (b) Areas within one quarter mile of public transit. R s ' -75- (7) Areas within one quarter mile from neighborhood and general commercial shopping centers or business and office centers. (8) Areas adjacent to either private or public permanent open space. B. The following factors will be determinants of the density ranges allowed in the medium-high and high density planned areas should the city adopt more than one high density zone. (1) The topography and natural features of the area and the degree of possible buffering from established low density residential areas. (2) The capacity of the services. (3) The distance from public transit. (4) The relationship of the site to existing neighborhood and general commercial centers and office and business centers. IMPLEMENTATION STRATEGIES 1. The Community Development Code shall: a. Include a broad range of residential districts. b. Provide for schools, churches, parks and other quasi public and public uses as conditional development in the residential districts. c. Require medium density, medium-high density, and high density residential uses to be subject to the design review process, unless those developments have received detailed planned development or conditional development approvals. d. Require medium density and high density residential developments to provide a minimum of 206 of the gross area to be landscaped. The landscaping requirement may be reduced during the review process where it can be demonstrated that exceptional design will achieve: (1) An equally desirable development. (2) An uncluttered appearance and openness intended by the landscaping requirement. e. Require the dedication of land or monetary contribution to the public for parks or recreation facilities. 12.2 COMMERCIAL The Comprehensive Plan provides for four types of commercial development: neighborhood, linear (general) commercial areas, professional commercial and the central business district. It is the intent of plan that: 1 Commercial areas be planned at a scale Which relates its location, site and typeofstores to the trade area to be served. r -76- t. 2. Surrounding residential areas be protected from any possible adverse affects in terms of loss of privacy, noise, lights and glare. 3• Commercial centers and uses be aesthetically attractive and landscaped. 4• Ingress and egress points not create traffic congestion or hazards. 5. Vehicle trips be reduced both in terms of the length of vehicle trip and total number of trips. 6. The central business district is not included in the locational criteria because there is only one designated areas. POLICY 12.2.1 THE CITY SHALL: a. PROVIDE FOR COMMERCIAL DEVELOPMENT BASED ON THE TYPE OF USE, ITS SIZE AND REQUIRED TRADE AREA. b. APPLY ALL APPLICABLE PLAN POLICIES. C. APPLY THE APPROPRIATE LOCATIONAL CRITERIA APPLICABLE TO THE SCALE OF THE PROJECT. 1• Neighborhood Commercial Neighborhood commercial centers are intended to provide convenience goods and services within a cluster of stores. Convenience goods are goods which are brought frequently, at, least weekly, and for which people do not engage in comparison shopping. The uses permitted in the neighborhood center included convenience markets, beauty shops, barber shops and repair shops. The range of uses is limited to those uses which can be sustained by a limited trade area. A: Scale (1) Trade Area. Up to 5000 people. (2) Site Si.zg_ TWO :c.2 u�ai[LmuID. (3) Gross Leasable Area. Varies. B. Locational Criteria (1) Spacing and Location (a) The service area radius for a neighborhood commercial center shall be at least one half of a mile. (b) Commercial development shall be limited to one quadrant of a street intersection or where there is no street intersection,' to one aside of the street. —77- j 4 A t a emsmi� (2) Access (a) The proposed center or expansion of an existing center shall not create traffic congestion or a traffic safety problem. Such a determination shall be based on the street capacity, existing and projected traffic volumes, the speed limit, number of turning movements and the traffic generating characteristics of the most intensive use allowed in the zone. (b) The site shall have direct access from one of the following: (i) An arterial. A collector street which will not direct traffic through local neighborhood streets. (3) Site Characteristics. The site shall be of a size which can accommodate the present and future uses, but shall not exceed two acres. (4) Impact Assessment (a) The scale of the project shall be compatible with the surrounding uses. (b) The site configuration and characteristics and relationship to the street system shall be such that privacy of adjacent non-commercial uses can be maintained. (c) It shall be possible to incorporate the unique features into the site design and development plan. (d) The associated lights, noise and activities shall not interfere with adjoining non-residential uses. 2. Linear Commercial Linear Commercial areas are intended to provide for major retail goods and services. The uses classified as linear commercial may involve drive-in services, large space users, a combination of retail, service, wholesale and repair services or provide services to the traveling public. The uses range from automobile repair and services, supply and equipment stores, vehicle sales, drive-in restaurants to laundry establishments. It is intended that these uses be adjacent to an arterial or major collector street. A. Scale (1) Trade Area. Varies E -78 (2) Site Size. Depends on development. (3) Gross Leasable Area. Varies. i B. Locational Criteria (1) Spacing and Location r (a) The commercial area is not surrounded by residential districts on more than two sides. F (2) Access (a) The proposed area or expansion of an existing area shall not create traffic congestion or a traffic safety problem. Such a determination shall be based on the street capacity existing and projected traffic volumes, the speed limit, number of turning movements and the traffic generating characteristics of the various types of uses. i (b) The site shall have direct access from a major collector or I arterial street. (c) Public transportation shall be available to the site or general area. (3) Site Characteristics (a) The site shall be of a size which can accommodate present and projected uses. (b) The site shall have high visibility. (4) Impact Assessment project shall be compatible with the (a) The scale of the proj �. surrounding uses. (b) The site configuration and characteristics shall be such that the privacy of adjacent non-commercial uses can be maintained (c) It shall be possible to incorporate the unique site features into the site design and development plan. k (d) The associated lights, noise and activities shall not interfere with adjoining non-residential uses. 3. Professional office Commercial Professional office Commercial areas are intended for a diverse range of office uses and supportive uses; and to promote user convenience throughout `4 the City. 7 -79- 1 A. Scale (1) Trade area. Varies (2) Site size. Varies (3) Gross leasable area. Varies B. Locational Criteria (1) Spacing and Location (a) The Comprehensive Plan map fixes exact boundaries of the professional office commercial ,area. (b) The professional office commercial area is not surrounded by residential districts on more than two sides. (2) Access (a) The proposed use or expansion of an existing area shall not create traffic congestion or a traffic safety problem. Such a determination shall be based on the street capacity, existing and projected traffic volumes, the speed limit, number of turning movements and the traffic generating characteristics of the various types of uses. (3) Site Characteristics (a) The site shall be of a size which can accommodate present aal projected needs. (b) The site shall have high visibility. (4) Impact Assessment (a) The site configuration and characteristics shall be such that the privacy of adjacent non-commercial uses can be maintained. (b) It shall be possible to incorporate the unique site features into the site design and development plan. (c) The associated lights, noise and activities shall not interfere with adjoining non-residential uses. IMPLEMENTATION STRATEGIES i 1. The Community Development Ordinance shall: a. Include a neighborhood commercial district, a general commercial district, a highway commercial district, and a professional office j commercial district area, -s0 k b. Require that: (1) The areas be subject to site design review. (2) A minimum of 15% landscaping be provided. (3) Necessary street improvements be made prior to development. c. Prohibit single family residential uses in the neighborhood commercial and general commercial centers. d. Allow for residential uses above the first story of commercial uses except professional office commercial districts. Residential uses would be permitted above second story in professional office commercial districts. 2. As a part of the corridor study proposed for Pacific Highway (99W) by the Oregon Den—tment of Transporation and the Metropolitan Service District, the City shall: a. Review the commercial development patterns that have occurred along Pacific Highway and look at ways to reduce access points along Pacific Highway; and b. Develop ways to consolidate new commercial development into f commercial centers rather than strip commercial areas. 12.4 INDUSTRIAL The intent of the Industrial land use designation is to: 1. Provide for the designation of suitable lands for industrial use. 2. Provide for economic growth and development. 3. Protect existing and potential lands suitable for industrial development from encroachment by non-industrial or incompatible uses. 4. Provide land for industrial use by type to minimize the impact on surrounding development. 5. Take advantage of existing transportation facilities. Industrial lands are classified as: 1. - Heavy Industrial Lands which are areas intended to provide for manufacturing, processing and assembling activities. Uses within this classification are characterized by large buildings and large storage areas and as having associated external effects such as smoke, noise, odor, or visual pollution. 81 l 2. Light Industrial Lands are areas intended to provide for manufacturing, processing, assembling and related office activities. Uses within this classification are of a size and scale which makes them generally compatible with other non-industrial uses and which have no off-site effects. The land use map designates specific areas of the city for industrial development. Over time, however, there may be a demand for new sites. Therefore, the following policy will apply in making such decisions. POLICY 12.4.1 THE CITY SHALL REQUIRE THAT: a. SITES FOR HEAVY INDUSTRIAL DEVELOPMENT SHALL BE: (1) SEPARATED BY TOPOGRAPHY ESTABLISHED BUFFERS, TRANSPORTATION OR OTHER NON-RESIDENTIAL LAND USES FROM RESIDENTIALLY DEVELOPED AREAS. (2) LOCATED IN AREAS HAVING RAIL SERVICE, ARTERIAL OR MAJOR COLLECTOR ACCESS. b. SITES FOR LIGHT INDUSTRIAL DEVELOPMENT SHALL BE: (1) BUFFERED FROM RESIDENTIAL AREAS TO ASSURE THAT PRIVACY AND THE RESIDENTIAL CHARACTER OF THE AREA ARE PRESERVED. i (2) LOCATED ON AN ARTERIAL OR COLLECTOR STREET AND THAT INDUSTRIAL TRAFFIC SHALL NOT BE CHANNELED THROUGH RESIDENTIAL AREAS. c. THE SITE SHALL BE OF A SIZE AND SHAPE WHICH WILL PROVIDE FOR THE SHORT AND LONG RANGE NEEDS OF THE USE. d. THE LAND INTENDED FOR DEVELOPMENT SHALL HAVE AN AVERAGE SITE TOPOGRAPHY OF LESS THAN 6% GRADE, OR THAT IT CAN BE DEMONSTRATED THAT THROUGH ENGINEERING TECHNIQUES ALL LIMITATIONS TO DEVELOPMENT AND THE PROVISION OF SERVICES CAN BE MITIGATED. e. IT BE DEIiONSTRATED THAI ASSOCIATED LIGHTS, NOISE AN OTHER EXTERNAL EFFECTS WILL NOT INTERFERE WITH THE ACTIVITIES AND USES ON SURROUNDING PROPERTIES. f. ALL OTHER APPLICABLE PLAN POLICIES CAN BE MET. IMPLEMENTATION STRATEGIES 1. Industrial development adjacent to existing or planned residential areas shall be conditioned to ensure that: a a. The specific proposed use will be compatible with adjacent uses. -82 b. The design of the facility and its site will not place visual or physical burdens on the surrounding areas. c. The operational characteristics of the facility will be compatible with surrounding uses and includes consideration of: (1) hours of operation; (2) Delivery and shipping characteristics; (3) Noise; (4) Lighting; and (5) Other use characteristics. 2. The Community Development Code shall include the following provisions: a. A planned industrial park zoning district which will include development provisions which provide for: (1) A basic street and utility pattern which will permit flexibility in the size of industrial sites. (2) A circulation system that provides direct access to arterials or t collectors that will not channel traffic through residential areas. (3) An internal circulation system which connects to,adjoining sites. (4) A complete set of pre-imposed restrictions (e.g. deed restrictions, restriction covenants, etc.) that are enforceable upon all occupants of the industrial park including provisions for site improvement, building design, landscaping, Sign control, off-street parking and site maintenance. (5) Evidence of continuing management responsibility to enforce restrictions established under the original development plan. (6) Recognition of the differing transportation requirements of employees and service vehicles with adequate provision for public transit access. (7) A minimum of 25% of landscaping. b. Design review provisions which apply to industrial development. c. Use classifications which exclude residential uses from industrial areas as primary uses. -83 - 12.5 COMMUNITY UTILITIES AND FACILITIES Public utilities and facilities include public and private activities which are owned and operated for the benefit of the public. These include, for example, schools, libraries, hospitals, parks, golf courses, police and fire stations, water service, sewerage facilities and other operations performed as a public service. These facilities and uses have a direct effect on the public health, safety and welfare. They must be located in a manner which maximizes the net gains to the public and relates to the service area. The purposes of this plan section are to: 1. Provide services where and when appropriate; 2. Locate community utilities and facilities where appropriate access and required services can be achieved; 3. Support community identity and development of community centers; 4. Reduce auto trips by clustering public services with other related commercial, office and industrial uses; 5. Minimize adverse impacts on adjacent development through site location and design guidelines; and 6. Promote reduced crime potential through design and location based on the principles of defensible space. a POLICY 12.5.1 THE CITY SHALL PROVIDE FOR THE LOCATION OF COMMUNITY FACILITIES IN A MANNER WHICH ACCORDS WITH: a. THE APPLICABLE POLICIES IN THIS PLAN; b. THE LOCATIONAL CRITERIA APPLICABLE TO THE SCALE AND STANDARDS OF THE USE. -84- The following list of uses are examples for each category defined under this section. i i Minor Impact Utilities & Facilities Medium Impact Utilities & Facilities C o Minor Impact Utilities o Admin. Service Use o Tax Lots & Neighborhood Parks (Gov't Services) o Utility Poles & Lines, Fire o Community Parks Hydrants, Bus Shelters o Golf Courses o Cultural Exhibit o Grade Schools o Library Services o Water Storage o Lodges, Fraternal & Civic Assembly o Telephone Co. Switching Station o Middle Schools o Power Substation o High Schools " o Trade Schools o Religious Assembly High Impact Utilities & Facilities o Transit Station (within CBD) o Postal Services o Community Clinic Facilities o Fire Station o Cemetery o Ambulance Services o Recycle Center o Transit Station k. (outside CBD) Major Impact Utilities & Facilties o Community Recreation o Hospitals o Major Impact Services & Utilities o Land Fill I. Minor Impact Utilities and Facilities A. Locational Criteria (1) Access (a) Access to a (minor impact, utility or facility) may be from a local street provided: (i) Site access will not cause dangerous intersections or traffic congestion, considering the - roadway capacity, existing and projected traffic counts, speed limits and number of turning movements. (2) Impact of the Proposed Change on Adjacent Lands (a) The use shall be allowed provided: (i) Associated lights and noise will not interfere with the activities and uses on surrounding properties; j -65— a (ii) from Large scale construction and parking lots can be buffered from the adjacent uses; can be developments (iii) Privacy of adjacent residential maintained; h design and t identity can be maintained through into the (iv) community which blends the structure site layout I residential character of the area; and adjacent j. (v) Buffering can be used to screen the project from J uses. (3) Site Characteristics (a) The use shall be allowed provided: natural tural features, if any, can be incorporated (1) The unique n of the facilities or arrangement of land into the desig uses; a site development has an average than 25% grade, or it can be (ii) The land intended for all topography of less engineering techniques, demonstrated that through the provision of services limitations to development els does not apply to Parks.) can be mitigated. (NOTE: resent he (iii) The site is of a size which can which allowsaccommodate tforpa site and future usanner which maximizes user convenience and layout in a energy conservation. .-AFacilities 2. Medium Impact Ut111Llua ....— - Criteria g, locational .C�- (1) Access , r street and (a) There is diLect d through local neighborhood access from the site to a CO hborhood streets. traffic will not be routetrafficons or I capacity, existing and (b) Site access will e°r Rauthedaroadway ngerous intersectlber of turning congestion considering speed limas and num projected traffic counts, P .movements• t c) .jneLe is public transit within one mile of the site. (2) Impact of the Proposed Change on Adjacent Lands om atible with surrounding uses, considering scale, (a) It is c P character and use. -86- (b) It will reinforce orderly and timely development. (c) Associated lights and noise will not interfere with the activities and uses on surrounding properties. (d) Large scale construction and parking lots can be buffered from the adjacent uses. (e) Privacy of adjacent residential developments can be maintained. (f) The site layout can respond to existing community identity and street patterns. (g) Buffering can screen the project from adjacent uses. (h) There is adequate area landscaping to filter the dust from the site area. (3) Site Characteristics (a) The land intended for development has an average site topography of less than a 10% grade, or it can be demonstrated that through engineering techniques, all limitations to development and the provision of services can be mitigated. (Note: This does not apply to parks.) (b) The site is of a size which can accommodate the present and future uses and is of a shape which allows for a site layout in a manner which maximizes user convenience and energy ;t conservation. ,2 (c) The unique natural features, if any, can be incorporated into the design of the facilities or arrangement of land uses. 3. High Impact Utilities and Facilities ®1 A. Scale (i) Access (a) There is direct access from the site to a major collector street and traffic will not be routed through local neighborhood streets. (b) Site access will not cause dangerous intersections or traffic congestion, considering the roadway capacity, existing and projected traffic counts, speed limits and number of turning movements. (c) There is public transit to the site. (2) Impact of the Proposed Change on Adjacent Lands -87- (a) It is compatible with surrounding uses, coneiderin.g scale, character and use. (b) It will reinforce orderly and timely development. (c) Associated lights and noise will not interfere with the activities and uses on surrounding properties. F (d) Large scale construction and parking lots can be buffered from the adjacent uses. (e) Privacy of adjacent residential developments can be maintained. (f) Community identity can be maintained through design and site layout which blends the structure into the residential character of the area. (g) Buffering can screen the project from adjacent uses. (h) There is adequate landscaping to filter the dust from the site area. (3) Site Characteristics t: (a) The land intended for development has an average site topography of less than a 10% grade, or it can be demonstrated t that through ' engineering techniques, all limitations to development and the provision of services can be mitigated. (b) The site is of a size which can accommodate the present and future uses and is of a shape which allows for a site layout in a manner which maximizes user convenience and energy conservation. (c) The unique natural features, if any, can be incorporated into the design of the facilities or arrangement of land uses. 4. Major Impact Utilities and Facilities A. Locational Criteria (1) Access (a) There is direct access from the site to an arterial or freeway traffic will not be routed through local neighborhood streets. (b) Site access will not cause dangerous intersections or traffic congestion, considering Che roadway capacity, existing and projected traffic counts, speed limits and number of turning ,. movements. { (c) There is public transit to the site. =88-- (2) Impact of the Proposed Change on Adjacent Lands (a) It is compatible with surrounding uses, considering scale, character and use. (b) It will reinforce orderly and timely development. (c) Associated lights and noise will not interfere with the activities and uses on surrounding properties. (d) Large scale construction and parking lots can be buffered from the adjacent uses. (e) Privacy of adjacent residential developments can be maintained. (f) Community identity can be maintained through design and site layout which blends the structure into the residential character of the area. (g) Buffering can screen the project from adjacent uses. (h) There is adequate landscaping to filter the dust from the site area. (i) Development can support and/or be compatible with the surrounding developments. (3) Site Characteristics (a) The land intended for development has an average site topography of less than a 10% grade, or it can be demonstrated that through engineering techniques, all limitations to development and the provision of services can be mitigated. (b) The unique natural features, if any, can be incorporated into the design of the facilities or arrangement of land uses. (c) The site if of a size which can accommodate the present and future uses and is of a shape which allows for a site layout in a manner which maximizes user convenience and energy conservation. IMPLEMENTATION STRATEGIES - 1. As a part of the ongoing planning program, the City shall: a. Prepare and maintain a data base inventory of existing public utilities and facilities. b. Maintain community planning programs to determine community facility needs. } -89 2. The following strategies should be addressed as a part of the Community Development Code: a. Provide for public utilities and facilities as conditional developments. b. Require design review approval for all facilities and uses. c. Include standards related to access, circulation, parking, loading, storage, landscaping, and signs. 3. The City shall develop a capital improvements program which programs public utility and facility needs provided by the County. -90—