Ordinance No. 93-14 CITY OF TIMM, OMM
ORDINANCE No. 93- I'L I
CAN ORDINANCE ADOPTING FINDINGS AND OOKCLUSIONS TO APPROVE A SSM OLA
AMENDMENT REQUESTED BY THE WESTWOOD CORPORATION (CPA 93-0003/E0N 93-0002).
WHOM", the applicants have requested a Comprehensive Plan map amendment from
Commercial Professional to General Commercial and zoning may redesignation frac C-p to
C-0 for approximately 2.53 acres (WCTM 181 36M portions of tax lots 400, 500 and 600,
and 1000)1 and
WHEREAS, the Planning Commission held a public hearing on the request on April 19, 1993
and unanimously concurred with the Planning Diviaionss recommendation for approval of
the request; and
WHEREAS, the Tigard City Council held a public hearing on the request on May 11, 1993,
to review the applicants, statement and traffic study, the staff report, staff and
Commission recommendations, and to receive public testimony;
THE CITY OF TIGARD ORDAINS AS FOLLOWS:
SECTION 1: The proposal is consistent with all relevant criteria based upon the
facts, findings, and conclusions noted in the attached staff repo
omission's rt,
(Exhibit C), the minutes of the Planning ission's April 19, 1993
meeting (Exhibit D), and the applicants' narrative (Exhibit E), the
applicants, traffic study (Exhibit F);
SECTION 2: The City Council concurs with the Planning Commission and staff
recommendations, and approves the request to amend the Comprehensive
Plan Land Use Map (as shown on attached Exhibit A) with the subject
parcels designated with the General Commercial Plan designation, as
well as approving the requested change to the zoning map (attached
dExhibit B) with the subject parcels designated with the C-G zoning
SECTION 3: This ordinance shall be effective 30 days after its passage by the
Council, approval by the Mayor, and posting by the City Recorder.
PASSED: By -,)7r) -tLL".f vote of all Council .�...� p essAL after
b@ln read by nuMber and title only, this MTV- day of
1993.
—AtA?/1..!� LC
CitWerine Wheatley, City Recorder
APPROVED: This day of , 1993.
Geral arils, Mayor
Approved as to form:
City Attorney Date
]o/ordcpa9303
ORDINANCE No. 93-
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AGENDA ITB![ 5 1
62M REPORT TO THE PLANNING COM1169I9N
HEARING DATE: April 19, 1993, 7:30 PR
HEARING LOCATIONS Tigard City Hall - Town Hall
13125 SW Hall Blvd.
Tigard, OR 97223
A. FACTS
1. General Information
CASSs Comapscehensive Plan Map Amendment CPA 93-0003
Zoning Map Change SON 93-0002
RSQOSSTs 1) Plan Map amendment fr= Camercial
Professional to General Commercial
2) Sone Change fawn C-P (Commercial
Professional) zoning district to C-G
(General Comercial) zoning district _
APPLICANT: Westwood Corporation
Gerry Foy - contact person
3030 SW Moody Avenue
Portland, OR 97201
OWNSRSs Roger Paul Sorg
8a2i SM Taylors Ferry Road
Portland, Oregon 97223
Otto Sorg
8000 SW Pfaffle Street
Tigard, Oregon 97223
Alex & Lotti Finke
8060 SW Pfaffle Street
Tigard, Oregon 97223
Chevron OSA
575 Market Street 91834
San Francisco, California 94105
i
AGENTs Hittelson & Associates
Howard Stein - contact person
512 SW Broadway
Portland, Oregon 97205
C
�Xi1181'r'
SW
LOCATION: properties. West pacificHighway
he hPa Pacific Crossroads
` shopping center.
PROPERTY DESCRIPTION: portions 00,of W600& 1000D, Tax Lots
SITE AREAS Approximately 2.53 acres
STAFF RECOMMENDATION: Forward a recommendation to the
City Council for approval of the Plan Map
amendment and rezoning requests.
2. Proposal Description
The applicant requests a Comprehensive Plan Map amendment
from Commercial -professional to General Commercial and a
Zone Change from the C-P (Commercial Professional) zoning
district to the C-G (General commercial) zoning district
for the approximately 2.53 acre site. The applicant has
submitted a statement titled promsal for a Comprehensive
Paan Amendment and Sone Chance• In addition, the
applicant has submitted a Transportation Impa t Study for
the Westwood Corporation Pacific Crossroads ADBOX
prepared by Rittelson a Associates.
3. Background Information
The subject site was within the area of the original
i
incorporation of. the City of Tigard in 19610 she
earliest available Plan and zoning maps that the Planning
�: s.... t%--t the
subject site
Department has for thus area -es
has been planned for Commercial Professional use since at 's
least 1981. The earliest zoning map that the Planning
Department has found indicates that the site has been
zoned for C-P use since at least 1981. No development
applications for tax lot 1000 or the adjacent affected
parcels have been reviewed by the City•
4. Vicinity Information
Adjacent properties to the north and northwest along SW
Pfaffle Street, and to the west along SW Pacific Highway
are also zoned C-P. Properties along SW Pfaffle are
developed with non-conforming residential uses.
Neighboring properties to the east are zoned C-G. These
properties span between SW Pacific Highway and SW Pfaff le
Street. The Pacific Crossroads shopping center is
located to the east. A Chevron service station is
immediately to the west. The General Motors training
center is further to he west.
STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTWOOD PAGE 2
. 5. Site Information
The total site proposed for redesignation is 2.53 acres
in size and consists of most of one parcel, tax lot 1000,
and smaller portions of three abutting parcels. Exhibit
1 of the applicant's statement clearly illustrates the
area proposed for redesignation on a Washington County
Assessor's map. The applicant's statement recognizes
that lot line adjustment applications would need to be
processed to separate the retc approval f ierent Plan and
of the current
zoning designations subsequent
application, if approved.
The site is located on the north side of SW Pacific
Highway, approximately 550 feet west of SW 78th Avenue,
anwest and northwest of the Pacific Crossroads shopping
center. Tax lot 1000 is vacant. Tax lots 402, 500, and
600 all front on Pfaffle Street and contain single-family
residences.
6. Agency and NPO Comments
NPO #8, the City of Tigard Building Division and
Engineering Department, Tri-Met, the Tualatin Valley
Water District, and the Tualatin Valley Fire and Rescue
District have reviewed the proposal and have issued no
comments or objections to the proposed Plan Amendment and
® Zone Change. The Fire Districtsubsequent
Tri-Mat development
el ave�n�i
ded
comments that may apply
to the
site. These comments will be forwarded to the Westwood
Corporation.
i
Notice of the proposal was also provided to the Oregon {
Department of Transportation Highway Division, and the `
Oregon Department of Land Conservation and Development.
No comments have been received from those agencies. No
other comments have been received.
E
B. FINDINGS AND CONCLUSIONS
Staff has determined that the applicable approval criteria in
this case are Statewide Planning Goals 9 and 12; Comprehensive
Plan Policies 2.1.1, 5.1.1, 5..1.4, 7.1.2, 8.1.1, 8.1.3, 8.2.2
and 12.2.1 (locational criteria for the General Commercial Plan
designation); and the change or mistake quasi-judicial Plan Nap
Amendment criteria of both the Comprehensive Plan (Plan Policy
1.1.2) and Community Development Code Section18.22.040.A.
STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTWOOD PAGE 3
The Planning Division concludes that the proposal is consistent
with the applicable Statewide Planning Goals based upon the
followings
1. Goal #9 (Economy of the State) is satisfied because the
proposed redesignation would increase the City's
inventory of leasable/redevelopable general commercial
land although it would decrease the city's inventory of
leasable/redevelopable Commercial Professional land. No
net impact on .employMnIt in tha City is foreseeable due
to the proposed redesignation.
4. Goal #12 (Transportation) is satisfied because the
proposed redesignation would not be anticipated to have
detrimental effects upon the provision of a safe and
convenient transportation system in the area of the site.
The site is well served by direct access to SW Pacific
Highway, a state highway which is developed with six
travel lanes, as well as indirect access to several other
major streets. The site is located between Pacific
Highway's intersection with State Highway 217 and SW
Dartmouth Street/78th Avenue. The site therefore has
very good access to higher functional order streets with
substantial traffic capacity.
The applicant has submitted a transportation impact study
( which assesses the potential impacts of -the proposed
redesignation upon these nearby major streets as well as
proposed findings within the applicant's statement
relative to Goal 12 compliance. The applicant's
statement and the traffic study compare typical uses of
the site under existing Commercial Professional Plan and
zoning desiy—„ationn (office build-in
gsI and proposed
General Commercial Plan and zoning designations (retail
and restaurant uses). The studies indicate that the
number of vehicle trips that would be generated by
development of the site under either scenario would be
similar and would not. cause the level of service of
adjacent streets or.intersections to be affected beyond
accepted levels. Staff recommends that the Commission
adopt the M=s ion Impact Study for the Ngstwood
Corporation Pacific Crossroads— prepared by
Rittelson & Associates as further findings in support. of
Goal 12 compliance.
Staff has determined that the proposed Plan Nap Amendment/Zone
Change is consistent with applicable sections of the
Comprehensive Plan based upon the findings beiows
1. Plan Policy 2.1.1 is satisfied because Neighborhood
Planning Organization #8 and surrounding property owners
�- STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTWOOD PAGE 4
j were given notice of public hearings related to the
l request and of their opportunity to comment on the
proposal. Two public hearings on this request are being
conducted in accordance with the requirements of the
City's Community Development Code.
2. Plan Policy 5.1.1 is satisfied because the proposed
redesignation would not appear to significantly affect
the economic diversity of the Tigard area, positively or
negatively. It is not possible to quantify what future
effects on employment opportunities the requested
redesignation would have. The request is for a switch
between two commercial zones, only, and involves a
relatively small amount of land. Therefore, development
of the site would not be anticipated to have a
substantial impact on job creation under either the
current or proposed designations.
3. Plan Policy 5.1.4 states that commercial and industrial
development shall not encroach into residential areas
that have not been designated for commercial or
industrial use. Although portions of the subject
properties include residences oriented toward Pfaffle
Street, all of these properties are already designated
for commercial development. Therefore, the proposal
would not conflict with Policy 5.1.4 since redesignation
/ would not allow commercial encroachment into an area
designated for residential use. In addition, the
applicant's statement recognizes that a landscaped buffer
will be required upon redevelopment of this site between
► the future commercial use and the residences_ along
raaasiv, wactcaiY jJLVYiUi11y LUX. �7ii7L@CT.Y.DA o= those
residential uses from impacts related to commercial use.
4. Plan Policies 7.1.2 is satisfied because adequate public
sanitary sewerage, storm drainage, public water supply,
and fire protection service capacities are available to
serve future uses of this site, either under its current
Plan and zoning designations or if the site is
redesignated and redeveloped as is proposed. The City of
Tigard would notify public and private utility providers
of any subsequent development applications affecting this
site.
5. Plan Policy 8.1.1 is satisfied because the proposed
redesignation would not be anticipated to substantially
increase traffic beyond traffic levels expected with
development under the existing Commercial Professional
Plan and C-P zoning designations as detailed in the
Rittelson traffic study and the Goal 12 discussion. The
anticipated changes in traffic characteristics related to
retail usage of the site would not be anticipated to have
�. STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTwwD PAGE 5
a negative impact on traffic safety or efficiency on
nearby streets, especially SW Pacific Highway.
6. Plan Policy 8.1.3 would be required to be satisfied as a
condition of approval of any future development of this
site. Any additional necessary street improvements along
the site's Pacific Highway frontage would typically be
required to be installed by the developer at the time of
redevelopment. The existing access driveway to the
Pacific Crossroads shopping center is presumed to provide
adequate access for future commercial development of the
subject site. The City of Tigard Engineering Department
and the Oregon State Highway Division will be provided
with an opportunity to review any future development
proposals for the site with regard to necessary road
improvements along the site's Pacific Highway frontage as
well as any possible off-site improvements. The current
traffic impact study may need to be revised in the future
to reflect an actual development proposal.
7. The proposed redesignation is consistent with Policy
8.2.2 because the proposed General Commercial
redesignation essentially would exchange one type of
commercial opportunity with another type of congercial
opportunity, with both general use types being intensive
land uses which may be supportive of public transit use.
Tri-Met has been notified of the proposed redesignation.
Tri-Net's representative did not raise any objections
with the proposed General Commercial redesignation;
although it was noted that Tri-Met will be interested in
any subsequent redevelopment proposals for the site
(phone call between Rim Knox of Tri-Met and Jerry Offer 4
of Tigard Pianning Division: 4/6/93). As noted iw the ,
applicant's statement, public transit service is
available along Pacific Highway abutting the site.
8. The locational criteria for General Commercial uses
specified in Policy 12.2.1 of the Comprehensive Plan are
satisfied for the following reasons:
I
a. The subject area is not surrounded by residential
development on more than two sides. Therefore, the 1
site satisfies the first locational criterion,
criterion b (1) . Surrounding properties are zoned i
for either General Commercial use to the east or
Commercial Professional use in all other directions.
b. As discussed above under Statewide Planning Goal #12
and Plan Policy 8.1.1, staff does not find that the
proposed General Commercial redesignation would
result in substantial increases in traffic on
adjacent streets and intersections and would not
�. STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTWOOD PAGE 6
unduly exacerbate existing traffic congestion to
unsatisfactory levels or increase traffic safety
concerns. Therefore, staff concludes that
locational criterion 2 (a) is satisfied. This
criterion requires that the redesignation not create
additional traffic congestion or a safety problem.
C. The site is located on SW Pacific Highway which is
designated an arterial street by the City of
Tigard's Transportation Plan Nap. Therefore, the
proposal is consistent'with locational criterion
2(b) which requires General Commercial sites to have
direct access to a major collector street or
arterial. Access to the site for any future
development will be determined through the
development review process, although it is likely
that the only feasible opportunity is for shared
usage of the existing driveway from the Pacific
Crossroads shopping center to Pacific Highway.
d. Public transportation is available on SW Pacific
Highway in front of the site, thereby satisfying
locational criterion 2 (c) .
e. The 2.53 acre site is an adequate size to
accommodate many of the uses permitted in the C-G
zoning district, thereby satisfying criterion 3(a).
f. The subject site is highly visible from SW Pacific
Highway, thereby satisfying criterion 3(b) .
t g. Compatibility of this site with adjacent uses is
difficult to ascertain without an actual development
proposal or at least the specific intended use.
However, the City of Tigard's Site Development
Review and Conditional Use review processes are
intended to provide an opportunity for review of a
1 potential development's relationship with adjacent
existing uses. Because the site abuts only other
commercially designated property and major streets,
compatibility issues regarding future development
would be anticipated to be minimal except with
regard to traffic concerns. Therefore, staff finds
that it is reasonable to expect later development of
the site to satisfy criteria 4 (a) through (d).
In order to approve a quasi-judicial amendment to the Plan and
zoning maps, the City must also find that there is evidence of
a change in the neighborhood or community which affects the
parcel. Alternatively, the City must find that there has been
a mistake or inconsistency with regard to the original
STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTWOOD PAGE 7
designation of the parcel (Comprehensive Plan, Volume 2, Policy
1.1.1, Implementation Strategy 2; Community Development Code
Section 18.22.040.A) .
The applicant's statement asserts that there may have been a
mistake in the original Commercial Professional designation of
this site since parcels on either side of the site along
Pacific Highway are designated General Commercial, and
therefore this site might have been more logically been
designated General Commercial. Staff finds that this is not
a strong argument and that no evidence has been presented of
an actual mistake in designation.
In addition, the applicant's statement asserts that there has
been a substantial change in the market for land for suburban
office developments. The statement notes that there has been
no interest in this property over the past few years while it
has been marketed. The statement notes that, by contrast, the
market for developable retail land is strong. Other applicants
for Comprehensive Plan Amendments and zone changes have made
similar arguments with regard to changes in circumstances
relative to changes in market demand. The City has previously
accepted these arguments, in some cases, and rejected them in
others. In the case of the Aitken Comprehensive Plan Amendment
proposal (CPA 92-0006) last fall, the Commission rejected a
similar argument due to evidence of other properties on
Greenberg Road in the immediate area of the subject site having
recently been developed with office uses. With the Anderson
Plan Amendment (CPA 92-0002) on Bull Mountain Road, the Council
accepted a similar argument partially because of the absence
of newer office development in the area of that site. Staff
finds the current situation to be more similar to the Anderson
situation. Staff is unaware of any interest in developing
r Cc--= l aProfession-al
vfficvas vwa Other
Other '3eve1^�
near the subject site, or elsewhere along SW Pacific Highway.
There has been little interest in development in Q-A mercial
Professional designated areas in recent years, except for
F conversion of existing houses to small office uses. we
therefore concur with the applicant that a change in
circumstances with regard to market demand exists which may
affect the site. In the absence of strong reasons to maintain
the Commercial Professional/C-P designations, the Planning
Division finds that there is enough evidence of a change in
circumstances exists to support the requested Plan Amendment
and Zoning Map Change.
C. RECOMMENDATION
The Planning Division recommends that the Planning Commission
forward a recommendation to the City Council for APPROVAL of
Comprehensive Plan Amendment CPA 93-0003 and Zone Change ZON
93-0002 based upon the foregoing findings.
STAFF REPORT - CPA 93-0003/ZON 93-0002 - WESTwWD PAGE 8
l TIGARD PLANNING COMMISSION
Regular Meeting Minutes - April 19, 1993 VVV
1. CALL TO ORDER: President Fyre called the meeting to order at
7:30 PM. The meeting was held in the Tigard Civic Center -
Town Hall - 13125 SW Hall Boulevard.
2. ROLL CALL: Present: President lore, Commissioners Boone,
Castile, Holland, Moore, Saporta,
Schweitz.
Absent: Commissioner Saxton and Schwab.
Staff: Senior Planner Dick Bewersdorff,
Associate Planner Jerry Offer,
Acting Planning Commission Secretary
Diane Jelderks, Training Planning
Commission Secretary Lorraine
Campbell.
3. APPROVE MINUTES
Commissioner Holland moved and Commissioner Saporta sero d
to approve minutes of March 22, 1993, as submitted. otion
carried by majority of Commissioners present. C ssioners
Boone and Moore abstained.
Commissioner Boone moved and Commiss` er Holland seconded to
approve minutes of April 5, 1 , as submitted. Motion
carried by majority of Co loners present. Commissioner
Saporta abstained.
4. PLANNING COMMISSI COMMUNICATIONS
1. Updat o Community Development Code from the City of
T' rd
2. ECAP from Tigard City Council
Letter from Martha Bishop dated April 10th, 1993
4. Letter from Martha Bishop dated April 17th, 1993
5. PUBLIC HEARING
,r .l COMPREHENSIVE PLAN AMENDMENT CPA 93-0003 ZONING MAP
/,,`` AMENDMENT Z_ON 93-0002 WESTWOOD A request for a
Comprehensive Plan Amendment from Commercial Professional to
General Commercial and a Zoning Mal) Amendment from C-P
(Professional Commercial) to C-G (General Commercial District)
for 2.53 acres (portions of four parcels) located to the west
of the Pacific Crossroads shopping center. APPLICABLE
APPROVAL CRITERIA: Generally: Comprehensive Plan Policy
1.1.2 Implementation Strategy 2 and Community Development Code
Section 18.22.040.A; Specifically: Statewide Planning Goals
9 and 12; Comprehensive Plan Policies 5.1.1, 5.1.4, 7.1.2,
8.1.1, 8.1.3, 8.2.2, 12.2.1, and evidence of a change in the
neighborhood or community affecting the designation of the
property or evidence of a mistake in the current designations.
Page 1 - PLANNING COMMISSION MINUTES - April 19, 1993
' LOCATION: 11745 SW Pacific Highway and abutting properties
' (portions of WCTM isi 36CD, tax lots 402, 500, 600, 1000)
PRESENT ZONE: C-P (Professional Commercial) zoning district
allows public agency administrative services, business
equipment sales and services, business support services,
financial and real estate services, a variety of office uses,
and limited amounts of general retail sales, personal
services, and eating and drinking establishments. PROPOSED
ZONE: C-G (General Commercial) zoning district allows general
retail uses, a variety of other retail and service uses,
eating and drinking establishments, automobile sales and
repair, vehicle fuel sales, among other permitted and
conditional uses.
o Jerry Offer, Associate Planner, reviewed the staff report and
made staff's recommendation for approval. He "said' it is
notable that NPO No. 8 had no comments and the Oregon State
Highway had no comments. He said there is not much at issue
with any of the criteria as zoning is changing from one
commercial use to another and there is very little impact at
this time. Statewide planning goals have been met,
transportation impacts are not expected to be different, plan
policies are satisfied and there seems to be adequate capacity
for necessary public facilities. Jerry Offer said that the
applicant had met their burden of proof in that all criteria
have been met and that circumstances have changed enough to
warrant the zoning change.
o Commissioner Schweitz asked Jerry Offer to clarify General
�. Commercial zoning. Jerry Offer explained that General
Commercial allows a variety of retail uses not allowed in
Commercial Professional, as well as all of the use allowed in
the Commercial Professional district.
APPLICANT'S PRESENTATION
o Jerry Foy, Manager of Development, Westwood Corporation, 3030
SW Moody Avenue, Portland, Oregon 97201-4897, explained that
a retail center would be built on the site. He discussed how
changes have taken place in the area requiring the change in
zoning which is almost all zoned C-G. He said while there has
been a tremendous growth of retail activity in the area, there
has been hardly any demand for office space development.
o Naomi Gallucci, 11285 SW 78th Avenue, Tigard was concerned
about a through street connecting to Pfaffle and also if the
new development will bring about an increase in property
taxes.
o Helen Pfaffle, 8225 SW Pfaffle, Tigard, wanted to know what
will be built on the property. She expressed her concern
regarding the growth and traffic congestion in the area.
APPLICANT'S REBUTTAL
C o Howard S. Stein, Associate, Kittelson & Associates, Inc.
Transportation Planning/Traffic Engineering, 610 SW Alder,
Portland, Oregon 97.205, said that from their studies a change
Page 2 - PLANNING COMMISSION MINUTES - April 19, 1993
in the zoning will not necessarily affect traffic
• Commissioner Holland moved and Commissioner Boone seconded
approval of the application and to forward a recommendation to
the City Council for approval of the Plan Map amendment and
rezoning requests.
5.2 SUBDIVISION SUB 93-0008 PLANNED DEVELOPMENT PDR 93-0002
MATRIX/CASTLE HILL (NPO Y,7) A request for amendments to the
a roved preliminary Subdivision plat and Planned Development
Re 'ew conceptual plan for the eastern one half of what was
prey ously called the Bull Mountain North development proposal
(SUB 0-0004/PDR 90-0004) . The current proposal wou
slight reduce the total number of lots in this develop *n
from wha was previously proposed and provide for standard
City of gard local streets rather than the previously
approved st et network of narrower streets as well„as alleys.
No modificat'ons are proposed to streets or .;street stub
locations alon the perimeter of the development from what had
previously been oposed. The current proposal would provide
for 126 lots. PPLICABLE REVIEW CRITE�XA: Subdivision
approval criteria: Community Development Code Section
18.160.060; Planned. evelopment Review.'"approval standards:
Code Section 18.80.1 0; Related Standards: Community
Development Code Chapter 18.54, 18.,56, 18.88, 18.92, 18.100,
18.108, 18.150, and 18. 4 as well as Comprehensive Plan
Policies 7.1.2, 7.3.1, 7. 4, 81.1, and 8.1.3. LOCATION:
South of the Walnut Stret . 'extension . and the Cotswald
subdivisions, west of SW 135th. Avenue (WCTM 2S1 4B, tax lot
3200) ZONE: R-12(PD) ,,and,\, R-25(PD) (Residential, 12
units/acre and Residential, 25 `,units/acre; both with the
Planned Development overlay zone)
O Associate Planner Jerry Offer- reviewaid the staff report and
Sa;d that the �t.aff report ti3is
X90 . was rciYi$cd and h 2
recommended approval. The NPO had no comments and the service
providing agencies said that this was closer to the standard
and the type ofdevelopment they like to see. He said they
had heard same concerns abort the effects `9f the ongoing
I development but nothing directly related to the\design of the
subdivisi ow. Staff recommended modifying the conditions.
O General•' discussion ensued about Condition No. 11\and what
streets will be improved by the Applicant.
APPLI/CANT'S PRESENTATION
o %Larry York, Director of Planning, Matrix Developm t
Corporation, 7160 S.W. Hazelfern Road,. Suite 100, Tigard)
Oregon 97224-7771 has met with the NPO and there is no
opposition. He concurs with the staff report and the
revisions, with exceptions to Condition 20.
C
O Jerry Palmer, Alpha Engineering Inc. 9600 SW Oak, #230,Portland, Oregon 97223, explained how they would like Item 20
modified.
Page 3 - PLANNING COMMISSION MINUTES - April 19, 1993
f
I�
1 e. i,e,r e
L-
r
PROPOSAL FOR A
COMPREHENSIVE PLAN AMENDMENT
AND ZONE CHANGE
�A
1 -
l:
Applicant:
WESTWOOD CORPORATION
C DEVELOPERS& CONTRACTORS
3030 SW Moody Avenue
Portland, Oregon 97201-4897
February 1993
prepared by:
WESTWOOD CORPORATION
DEVELOPERS & CONTRACTORS
i 3030 SW Moody Avenue
Portland, Oregon 97201-4897
1
r
I
TAB OF CONTENTS
i
i
I. INTRODUCTION and BACKGROUND
11. APPROVAL CRITERIA
IA. Statewide Planning Goals
IB. Comprehensive Plan Policies
111. EVIDENCE OF CHANGE OR MISTAKE
IIIV. SUMMARY
V. ATTACHMENTS
I
A. Sample Site Plans/Vicinity Map
B. Zoning Map
C. Traffic Study (March 1, 1993)
l _
I
I
r
r. "—ODUCTIQN and
IThis is a proposal to change the Comprehensive Plan designation sad the
corresponding zoning from Professional Commercial to General Commercial.
The site is located on S.W. Pacific Highway between the existing Chevron
C' service station to the west and Pacific Crossroads Shopping Center to the east,
both of which are zoned C-G. The property consists of approximately 2.53
acres.This 2.53 acre parcel will be created(through a lot line adjustment)out
of several parcels that now contain about 4.43 acres and that are presently
classified as C-P. It is our intention to leave the remaining 1.90 acres zoned
C-P. The demmid for space zoned C-G in the immediate area has been and
r'`a Strong. Wa'-Wood CmWration developed the adjacent Pacific
Crossroads Shopping Center in 1984. The center has always had a very low
vacancy rate, and the area continues to generate a lot of interest from
potential retail tenants who require General Commercial zoning.By contrast,
the land now zoned C-P that is the subject of this proposal has been on the
market for more than two years and there have been no purchase offers made
or expressions of interest for a use allowed under that zoning. Furthermore, j
Applicant understands that most amendments to the Comprehensive Plan have
involved changing land designated Professional Commercial to other
designations,and that within the City there is an overabundance of land zoned
C-P that has not been developing.
1. .
I _
i
A
C
i_
1
I 11. APPROVAL CRITERIA
The Community Development Code provides criteria for approval of the Plan
Map/Zoning amendments. The items requested by staff are reviewed In the
following section:
A. Statewide Goal No. 9-Diversity and improvr the economy of the tommeereity and the
Planning Goals state.
We believe that the proposed zoning reclassification will create a more
diversified opportunity for small businesses that are not allowed in the
professional commercial zone. Typically, these types of businesses prefer a
free standing location on a well travelled street. The general commercial
�n Ing will allow those types of uses which will utilize the property to its
highest and best use as well as provide the greatest potential for business
success. We support diversification and believe that goal is most likely to be
achieved if certain areas contain consistent uses.Specifically,Pacific Highway
is primarily commercial and is likely to continue to attract other retail uses.
I The C-P zoning of this parcel, and an office development under that zoning
(which as noted below, is not likely to occur in the near future), actually
create potential conflicts,particularly with respect to traffic. Moreover, the
1 failure for many years to develop this parcel for any use permitted under the
C-P zone, shows that present zoning is not achieving this goal of improving
the economy.
Goal No. 12 - Provide and encourage a sgfe, convenient and economic
transportation system.
We believe that the transportation element is satisfied beGayse S,W: iiggific
Highway is a state highway with two lanes in each direction and an ample left
tum median in the middle.We will not be asking for any additional curb cuts
but will share the existing one that accesses the Pacific Crossroads Center.
F Sharing access is an important goal of the Transportation Planning
I Department; the single existing curb cut will help assure safe ingress and
egress to two individual pieces of property.
We also believe that the traffic generated by any additional uses (primarily
retail) that would be permitted under the C-G zone will be no greater than,
I and in fact may be less than, the traffic generated by uses now permitted
under the existing C-P zone. The maximum lot coverage (85%) and height
(45 feet)are the same in both zoning classifications.However,the maximum
( size of an office building,which is now permitted under the C-P zone,would
be much greater than the likely maximum size of a retail building, which
would be permitted under the C-G zone. This is because the office building
could be as high as three stories,thus permitting up to 51,000 square feet(as
shown in the analysis below); by contrast,the retail building would only be
one story, and the maximum size would thus be about 30,000 square feet.
Because the office building would be larger, the number of trips generated
would also be greater, as is also shown below. That is why we believe the
change from C-P zone to C-G zone would not have any negative traffic
impact.
Office Miect: C-P zone Sg1are Feet
Total land area-2.53 acres (110,207 square feet)
- 3 stories with 17,000 sq. ft.footprint 17,000
- Parking: 4:1 ratio=204 cars 0 350 each 71,400
- Landscaping: 15%of total area 16,531
- Sidewalks,receiving/shipping,garbage 5-276
110,207
7Ya„fic Generation
The following calculations are taken from the Washington County Traffic
Impact Sheet dated October 29, 1990,which calculates weekday average trips
for the different types of uses. The City of Tigard uses this same Traffic
oImpact Sheet in determining T.I.F. fees.
Examples of two different types of permitted uses in each zoning
classification:
1. C-P Zone-Office/Post Office (51,000 square feet)
a. Government office building:
68.93 trips/TGSF: 51 x 68.93 = 3,515 trips
b. Post office:
86.78 trips/TGSF: 51 x 86.78 = 4,426 trips
2. C-G Zone-Retail/Restaurant(30,000 square feeta)
a. Specialty retail center:
40.68 trips/TGSF: 30 x 40.68 = 1,220 trips
b. Shopping center under 50,000 square feet:
94.71 trips/TGSF: 30 x 94.71 = 2,841 trips
c. High turnover sit-down restaurant:
100 trips/TGSF: 9.2* x 100 = 920 trips
Note: We used 9,200 square feet for the TGSF calculation for the restaurant
because a typical free-standing sit-down restaurant(such as an Olive Garden
or Red Lobster)is between 8,000 and 9,200 square feet.
This analysis shows that uses already permitted under the C-P zone would
likely generate more traffic than retail or restaurant uses that would be
permitted under the C-G zone. Thus, the zone change should have no
negative transportation impact.
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10. Comprehensive Placa Policy 5.1.1
Plan Policies The plan amendment would allow a wider range of businesses to occupy the
site thus increasing the potential for local jobs and creating more diversity
than the C-P zone would allow.
l
Plan Policy S.1.4
f The plan amendment that we a*e seeking would leave a buffer zone of C-P
activity between the C-G zone and the residential zoning to the north.'Ibis
buffer,along with the existing street(Pfaftte), should provide a maximum of
i protection for nearby residences from any disturbances related to uses in the
C-G zone.
Plan Policy 7.1.2
The area is adequately served by all the utilities including sanitary,sewer,
storm sewer,water,electrical power, telephone and natural gas.
I Plan Policy 8.1.1
For this development we would not be asking for or requiring an additional
curb cut.This development will share an access point with the adjacent retail
development to the east (Pacific Crossroads Shopping Center). Ibis shared
access point provides a unique opportunity;an easement agreement executed
several years ago allows the subject property and the adjacent Pacific
Crossroads Shopping Center (which is owned by an entity related to the
applicant) to jointly use the access point. It seems likely, however, that an
office development under the C-P zoning would create adverse impacts on this
access point and could maximize traffic going into and out of the office
I . project at peak rush hours on Pacific Highway. Also, we have previously
shown that the retail development most likely will not have any greater overall
impact on the street system than uses allowed in the existing C-P zone. See
the traffic study prepared by Kittleson and Associates, which will be
submitted by March 1, 1993.
Plan Policy 8.1.3
a. This development will abut a public street.
b. There was a dedication that included this access point at the time we
developed the adjacent Pacific Crossroads Shopping Center to the east in
1984.
d. Westwood constructed new curb-sidewalks-approaches and storm systems
at the time we developed Pacific Crossroads in 1984.
e. This development wli incorporate all of the ADA and handicapped
requirements.
t h. The approach and improvements to Pacific Highway are in place and are
1 intended to be left as is. These improvements were design--' and
approved during the adjacent development and were intended to serve this
i property when it was developed.
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1 Plan Pbliry 8.2.2
We believe this policy is satisfied because the development is adjacent-to an
improved transit way and is presently served by Tri-M-0.
IPlan Polley 12.2.1
The criteria for General Commercial and Professional Commercial zoning are
very similar. For example, the criteria under the heading of scale are
identical.
i The criteria for location are very similar: both designations state that the
development is not to be bordered by residential districts on more than two
sides (the subject property would have no adjacent residential district). The
C-P criteria states that the comprehensive plan map fixes the boundaries of the
C-P area.
The criteria for access are identical with the exception that under a C-G
Idesignation, the site is to have direct access to a major collector or arterial
street, which is the case here. Also, required is public transportation to the
_ site, which exists here.
The criteria for site characteristics are identical for both C-G and C-P
designations,and we meet the criteria.
I - The criteria for impact assessment are identical with the exception that under
the C-G designation the scale of the project must be compatible with
surrounding uses.We certainly think that we meet this requirement due to the
fact we have C-G uses on both sides of the subject property.
The site is fully served with all the required utilities.
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111. EVIDENCE OF CHANGE OR MISTAKE
Mtataka '�
The original inclusion of the subject property within the Professional
Commercial designation in the Comprehensive Plan(and corresponding C-P
zoning) may have been a mistake. Parcels on either side are General
Commercial.as is most of the property along Pacific Highway.Although the
subject property was included in the Professional Commercial designation
together with the General Motors property to the west(and with the parcels
behind the subject property that are on PfWe Street and will remain zoned
C-P),the shape and size of the property and its frontage on Pacific Highway
' are factors that,in Applicant's view,would have made designation as General
Commercial more logical and consistent with adjacent properties and with
likely development.
Change of Circumwnces
Since the Comprehensive Plan was adopted and the subject property was
designated Professional Commercial,the market has changed substantially and
development of the type of office project most likely to be developed on land
zoned C-P has decreased substantially in this area. Continuing difficulties in I
financing new construction of suburban office buildings makes such a
development even less likely in the near future.The subject property has been
marketed for sale for more than two years,yet there has not to our knowledge
been a single purchase offer or any other expression of interest in use of the
property under the C-P zone. As the City is aware, most amendments to the
Comprehensive Plan have involved changes from C-P to some other
designation.Applicant understands that the City has an overabundance of land
zoned C-P that has not been developed.
By contrast, we believe the retail market in this area is strong. Consumers
have supported retail goods and services in both existing and new businesses.
Newer retail developments have had high occupancy rates,and retailers have
succeeded because of the residents' desire for their goods and services. We
believe there continues to be strong interest in retail development by mailers
and their customers. Thus, the continued strong demand for retail use,
reflecting a change in market conditions since the property was originally
® zoned C-P, makes a change to General Commercial appropriate at this time.
I
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IV. SUMMARY_
For the reasons stated above, Westwood believes the property classification
should be changed to General Commercial.Ibis classification will allow more
flexibility and diversity in achieving Goal No. 9 (diversity and improve the
economy of the community and the state). Westwood believes that Pacific
Highway is the arterial that should provide the access routes to viable and
thriving economic centers. This property falls within the existing and future
retail hub at the east end of the City.When the Tigard Triangle develops the
(A General Commercial district and all of the various types of business
enterprises that it allows,will certainly make this an economic magnet for a
multitude of retail businesses.
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Pacific Crossroads
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Transportation Planning/Traffic Engineering
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-Transportation
" C impact Study
C Westwood
Pacific Crossroads
L
Annex
Tigard, Oregon
�- Prepared for:
Westwood corporation
Prepared by:
Kittelson &Associates, Inc.
l 610 SW Alder, Suite 700
Portland, OR 97205
L (503) 228-5230
Project 886.00
LFebruary 1983
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February 1993
Westwood:P" c Crossroads
Ul Annex Table of Contents
Table of Contents
}
Section 1
Executive Summary . . . .
Section 2
Introduction 3
j Section 3
Existing Conditions . 6
j� Section 4
E4, 1994 Traffic Impact Analysis . . . 12
Section 5
Long Term Future Traffic Conditions 24
Section 6
Conclusions
_ And Recommendatioris 26
L Appendix A . . 28
Appendix B ,
[_ I
Kittelson&Associates Inc.
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February 1993
Westwood.Pack lc Crossroads Annex Litt Of Figures
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List Of Figures
Figure 1
_ Site Vicinity Map 5
Figure 2
Existing P.M. Peak Hour Traffic Volumes 9
Figure 3
Funded Improvements&Assumed Lane Configurations 11
Figure 4
1994 Background Traffic Volumes with Cub Foods 14
Figure S
Proposed Site Plan 16
Figure 6
r Trip Distribution and Assignment of General Retail Uses 20
Figure 7
Total Future 1994 P.M. Peak Hour Volumes 21
Figure B-1
L Traffic Flow Along Highway 99W 37
f
List of Tables
i Table 1 I .Existing P.M Peak Hour Level of Service 10
Table 2
Comparison of Trip Generation for Different Land Uses 17
I__ Table 3 I
Background 1994 P.M Peak Hour LOS with Cub Foods 23
Tabes 4
Total Future 1994 P.M Peak Hour LOS with Cub Foods 23
Table Al
Level of Service Definitions (Signalized Intersections) 29
Table A2
Level-of-Service Criteria for Signalized intersections 30
i
Table A3
General Level of Service Descriptions, Unsignalized intx 31
Table A4
r Level-of-Service Criteria for Unsignalized Intersections 32
It Table A5
Level of Service Definitions 33
Table Bi
Traffic Volumes and Potential Capacity Results 38
Table 132
Capacity of Left Tum Movement from Westwood Driveway 39
l` Table 133
Capacity of Left Tum Movement Into Westwood Driveway 39
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Section 1
1<17
Executive Summary
February 1993
Westwood:PacUic Crossroads Annu F.:recutive Summary
1
Executive Summery
Westwood Corporation is proposing to construct a retail outlet containing approximately 30,000
square feet of gross leasable floor area. The site is located along Highway-99W(Pacific Highway)
just east of Highway 217. (See Figure 1) The site is currently zoned for commercial/professional
(C-P)uses which would permit the office and office support facilities. The Westwood Corporation
is applying to rezone the site for general commercial(C-G)uses which would allow the same uses
as C-P zoning,but also allow other general retail uses. This study evaluated the traffic impacts
from this site developed under the highest trip use that would be allowed under the C-G zoning
and found the following:
�-' • All of the key intersections in the vicinity of the site currently operate at acceptable
levels of service during the critical weekday p.m,peak hour time period.
C • The number of vehicle trips that would be generated by uses permitted under the
site's existing zoning is similar to the trips that would be generated under the C-G
r zoning, even under its most intense use as a general retail center, that is being
L requested by the Westwood Corporation.
• With the addition of site-generated traffic from a possible general retail center
constructed on the site,all study area intersections will continue to operate within
acceptable level of service under projected 1994 conditions. Further, no off-site
improvements are required to maintain acceptable levels of service beyond the
already funded transportation improvements which are scheduled to be in place by
1994.
C • Based on a review of the current site plan, it is concluded that the proposed development plan adequately addresses access issues along Pacific Highway. A
shared access driveway with the Pacific Crossroads Center has already been de-
signed and constructed to accommodate vehicles using both retail sites. No addi-
tional access driveways are being proposed to serve this development.
• A planning level analysis of long term traffic conditions in the vicinity of the site
indicates that rezoning the site to C-G zoning will not substantially increase traffic
above what could be generated under its current C-P zoning. In addition, with
Icommercial uses, most of the trips to the site would likely come from vehicles
i T already on the roadway as part of another trip purpose such as going to/from work.
In contrast, if the site is developed under C-P zoning, typical uses such as general
or medical offices will generate single purpose trips. Consequently, the number of
* new vehicle miles of travel that would be generated by the development of this site
should be less under C-G zoning compared with C-P zoning. Thus, rezoning the
isite to C-G zoning is consistent with the objectives of Oregon's Transportation rule
regarding rezoning of sites.
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Section_ 2
Introduction
r' February 1993
Westwood.Pac#lc Crossroads Annex 1wraducdon
Introduction
SCOPE OF THE REPORT
I The purpose of this report is to provide an assessment of the expected on-site and off-site
transportation impacts associated with the construction of retail uses along Highway 99W(Pacific
Highway)in Tigard, Oregon.The site is located on a vacant parcel that is generally bounded by
the Pacific Crossroads Center to the east,Highway 99W to the south,a Chevron service station
to the west,and existing residences to the north.Figure 1 identifies the existing road system within
( the area surrounding the proposed site.
l-` Specific traffic related issues discussed in this report include:
• Existing land use and traffic conditions in the project study area.
C • Trip generation estimates for development of the site under its existing zoning,the
proposed zoning,and with the proposed site plan.
• Access design and location analysis for the site.
• The traffic impact of developing the site under the maximum trip generating use
allowed under the proposed zoning on 1994 p.m. peak hour operations at the key
C intersections within the site vicinity and site driveways.
(� • The impact of rezoning the site to C-G on the future 20 year Transportation Plan for
i_....` the area and the potential of revising the access scheme for the site.
PROJECT DESCRIPTION
Current site.plans call for the construction of a retail outlet containing approximately 30,000
square feet of gross leasable floor area. The proposed development site is currently vacant.
Access to the site will be provide through an existing driveway shared with the adjacent Pacific
Crossroads Shopping Center.
f, ' The site is currently zoned Commercial-Professional which permits uses such as general offices,
medical offices,and other business-related services. The developer desires to rezone the site to
C-G to maximize the long-term flexibility of the site. Initial construction activities are expected
to begin in 1993 with occupancy in 1994. The Westwood Corporation is applying to rezone this
site to General-Commercial which would permit the construction of general retail uses.
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I February 1993
Westwood:Pacific Crossroads Annex Existing Conditions
4
Existing Conditions
SITE CONDITIONS AND ADJACENT LAND USES
The project site is 2.5 acres of currently vacant land. Therefore,it generates negligible volumes
of traffic. The land area to the west of the site contains a service station.Additional vacant land
and several single family residence are located immediately to the north of the site that have access
Ito Pfaffle Avenue. Immediately east of the site is the Pacific Crossroads Shopping Center. To
the south is Highway 99W(Pacific Highway).
` STUDY AREA
The study area was defined as inclusive of the site access driveways,Pacific Highway from SW
[ 78th Avenue west to the northbound ramps to Highway 217, and SW 78th Avenue from Pacific
Highway to Pfaffle Street.
�- TRANSPORTATION FACILITIES
C The primary roadways providing access to the general area of the site include Highway 99W,and
Highway 217 as shown on Figure 1. SW 78th Avenue is a local street. In addition,a project has
been funded to connect SW 78th Avenue with SW Dartmouth Street as shown in Figure 1. This
extension will serve as a minor collector for the area south of Highway 99W.
PEDESTRIAN AND BICYCLE ACTIVITY
l- Field observations at the proposed site vicinity during the p.m peak hour showed very little
pedestrian or bicycle activity throughout the study area. It is expected that all of the proposed
ldevelopment options will have a minimal impact on these travel modes.
TRANSIT FACILITIES
Tri-Met provides fixed route transit service along Highway 99W. Route #12, Barbur Blvd. j
operates regularly scheduled, all-day service between King City and Downtown Portland via
�- Tigard Transit Center, Barbur Transit Center, and the Burlingame Transit Center. Peak-hour
extensions of this service serve the City of Sherwood on the southwest end of the route. During
the a.m.peak period(7:00-9:00),service is provided from the Tigard Transit Center at headway
which vary from a to 15 minutes. During the p.m.peak period (4:00-6:00),service is provided
both on a local basis and an express basis between Downtown Portland and the Barbur Transit
1
Center, which results in a combined headway which varies between 3 minutes and 15 minutes.
Transit service at this level is consider to be extremely good.
I
` TRAFFIC VOLUMES AND PEAK HOUR OPERATIONS
1_
Since the weekday p.m. peak hour is the time period when the greatest total traffic demands are
placed on the surrounding street system,this was the time period that was used in all subsequent
analyses. The p.m. peak would be the most critical time period for traffic associated with both
office-related and commercial uses in the study area. Experience has shown that while retail
Kittelson do Associates,Inc. 7
February 1993
Westwood:Pac{fic Crossroads Annex Existing Conditions
center traffic by itself may be as much as 50 percent heavier later in the evening or on weekends,
the combination of normal on-street traffic and retail center generated traffic is typically at its
maximum during the weekday evening peak hour period.
Existing weekday p.m.peak hour traffic volumes were counted at the following locations:
1. SW 78th Avenue (Future Dartmouth St.)/Highway 99W
2. Highway 217 Northbound Ramps/Highway 99W
3.Highway 99W/Pacific Crossroads Center west driveway
I4. Highway 99W/Pacific Crossroads Center east driveway
5. SW 78th Avenue/Pacific Crossroads Center
I6. SW 78th Avenue/Pfaffle Street
These manual traffic counts were conducted between the hours of 4:00 p.m. and 6:00 p.m.during
mid-week days in January 1993. These two-hour observations revealed that the weekday peak
hour occurs from 4:30-5:30 p.m. The existing traffic volumes are shown in Figure 2.
Current Levels of Service
L All Level of Service(LOS)analyses described in this report were performed in accordance with
the procedures described in the 1985 Highway Capacity Manual.l A description of the LOS
Concept and the criteria which determine LOS is provided in Appendix A. Copies of the analysis
forms are on file and will be made available upon request.In order to assure that this analysis is
based upon worst-case conditions,these procedures use the peak 15 minute period flow rate during
the evening peak hour in their evaluation of all intersection levels of service. Thus,the analysis
reflects conditions that are only likely to occur for 15 minutes out of each average weekday. For
the remainder of each weekday and throughout the weekends,traffic conditions within the study
Iimpact area are likely to be better than that described in this report. At signalized intersections,
LOS"D"or better is considered acceptable. At unsignalized intersections,LOS"E"is considered
acceptable. It should also be noted that the procedures to estimate LOS at unsignalized intersec-
tions are very conservative and do not account for special conditions such as gaps created for side
street vehicles when main street traffic flows in distinct platoons.
Table 1 identifies the results of the LOS calculations for existing conditions at the study area
I intersections. As shown in the table, both the signalized intersections in the study area are
operating at an acceptable level of service (LOS 'B"). The unsignalized intersection along SW
78th Street also operate at good levels of service. The unsignalized driveways to/from the Pacific
Crossroads Center along Highway 99W operate at LOS "D". The most critical movement out of
these driveways is the left turn maneuver to go eastbound on Highway 99W. These vehicles
typically have to wait for a gap in Highway 99W traffic which will occur when the traffic signal
at the northbound ramps to Highway 217 or SW 78th Avenue turns red for Highway 99W. Vehicles
in these driveways can make their maneuvers during the change intervals (when all traffic is
stopped along Highway 99W) and when there are only minor volumes flowing from side street
traffic(SW 78th Avenue). Given the long traffic signal cycle of these two signals during the p.m.
I1.Highway Capacity manual,Special Report 209,Transportation Research Board
IKittelson do Associates,Inc.
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EXISTING P.M. PEAK HOUR
TRAFFIC VOLUMES
WESi IC C FIGURE
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PACIFIC CROSSROADS ANNEX G
FEBRUARY 1993
February 1993
Westwood:Pacific Crossroads Annex Existing Conditions
Table 7
IExisting P.M Peak Hour Level of Service
Signalized Unsignalized
I Res.
Intersection Delay V/C LOS Cap. LOS
1.SW 78th Avenue/Highway 99W 13.1 0.81 B
2.Highway 217/Highway 99W 11.4 0.74 B
3.Pfaffle/SW 78th Avenue ' 2.8* A
4.SW 78th Avenue/Pacific Crossroads Access *h�- 400 A
5.East Access/Highway 99W
". � 115 D
t 6.West Access/Highway 99W 4 115 D
*Average vehicle delay at four-way stop intersection,v/c=0.30
peak hour(approximately 130 seconds),many vehicles heading eastbound on Highway 99W exit
the Pacific Crossroads Shopping Center onto SW 78th Street and then turn left at the traffic signal
rather than wait at the unsignalized driveways. Appendix B reviews the calculation of the number
of gaps and capacity at the Highway 99W driveways to the Pacific Crossroads Shopping Center.
LFinally,a special study was performed to determine if the stacking of vehicles traveling westbound
on Highway 99 currently extends past the west driveway to the Pacific Crossroads Center. This
driveway is located approximately 325 feet back along the westbound approach from this
t_ intersection. The maximum length of the queues extending back along this westbound approach
was observed and recorded during the p.m. peak hour. Most of the time vehicles traveling
westbound typically go through both these intersections and few vehicles are stopped at the signal
at Highway 217. The counts from this queue study found that,on average,the maximum queue
in either westbound approach lane was seven vehicles which would lyrically occupy only 175
feet. Only once during the peak hour was the driveway blocked by vehicles stopped along
Highway 99W, and then for less than 30 seconds.
FUNDED TRANSPORTATION IMPROVEMENTS
This section discusses funded transportation improvements within the study are which are
expected to influence future traffic patterns. Specifically, as discussed previously, Dartmouth
L j
Street will be extended to connect the I-5 southbound en-off ramps to Highway 99W. Dartmouth
Street will intersect Highway 99W opposite SW 78th Avenue. Initially,Dartmouth Street will be
constructed with a three-lane cross-section consisting of one travel lane in each direction and a
center left-tum lane.
These improvements and the assumed intersection lane configurations and controls are illustrated
in Figure 1 and 3.
Kittelson A Associates,Inc. 10
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WESTWOOD FIcuRE
PACIFIC CROSSROADS ANNEXLp
FEBRUARY 1993
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February 1993 Trac Impact Analysis
Westwood:Pacific Crossroads Annex 1
(, Traffic Impact Analysis
The impact of traffic generated by the proposed development and other uses permitted with the
I
proposed rezoning ezonin of the Westwood site was analyzed during evening weekday peak hour as
follows:
• Background traffic volumes on each key road segment within the study area were
estimated based on observed 1993 weekday evening peak hour conditions, traffic
diversions based on the planned transportation improvements previously cited,and
a recently submitted traffic study for the Cub Foods Commercial Center.
I • The placement and size of the proposed development were confirmed.
The total number of peak hour and daily trips, both in and out of the site were
estimated for the current development plan as well as other "maximum intensity"
land uses permitted under the site's current and proposed zoning.
• The travel pattern to/from adjacent retail uses onto nearby roadways was examined
�._ to obtain an estimate of the likely directional trip distribution pattern within the study
area.
• Site-generated traffic predicted for the weekday p.m.peak hour was assigned to the
roadway network and added to background traffic volumes developed for 1994
conditions.
l- • Traffic demands on each roadway facility were analyzed to identify any capacity or
level of service deficiencies under projected 1994 conditions.
lY • Future 2015 traffic conditions(and how the change in the site's zoning would affect
these volumes)were also evaluated.
IA detailed discussion of this methodology and the analysis results is contained in the remainder
of this report.
I BACKGROUND VOLUME DEVELOPMENT
The first step in the traffic impact analysis process is to estimate traffic volumes that would have
occurred regardless.of whether the site was constructed. A report was recently submitted to the
City of Tigard detailing the traffic impact of a Cub Foods Commercial Center that will be located
south of the study area along Dartmouth Street? This study included a detailed analysis of the
�.. impact of constructing the Dartmouth Street extension and other roadway improvements in the
Tigard Triangle area on traffic volumes along Highway 99W. The current traffic study for the
nd traffic estimates from the Cub Food Study,and includes
Westwood site uses the 1994 backgrouI
the additional traffic generated by the Cub Foods Commercial Center. These traffic volumes are
shown in Figure 4.
i
2.Transportation Impact Study for Cub Foods Commercial Center,Kittelson&.Associates,Inc.February 1993
13
Kittelson&Associates,Inc.
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� Study
Commercial Confer. Kittelson & Assoc.. Inc. January 1993
C
1994 BACKGROUND TRAFFIC VOLUMES
WITH CUB FOODS CENTER
WESTWOOD FIGURE
PACIFIC CROSSROADS ANNEX irl
FEBRUARY 1993 low
rFebruary 1993
Westwood:Pacific Crossroads Annex Trac Impact Analysis
l DEVELOPMENT PLANS
JCurrent site plans call for the construction of a retail outlet containing approximately 30,000
square feet of gross leasable floor area as shown in Figure 5. The site is currently zoned for
Com-nercial-Professional uses such as general and medical offices,and business-related services.
The Westwood Corporation is proposing to rezone this site to a General-Commercial designation
to permit more general retail uses. Under either zoning, the primary access to the site will be a
( direct access driveway to Highway 99W through an existing unsignalized driveway on the west
1 side of the Pacific Crossroad Shopping Center. When the Pacific Crossroads Shopping Center
was constructed,this driveway was designed to also accommodate traffic that would be coming
to/from this adjacent parcel. In addition to using this shared driveway, vehicles to/from the
t_ Westwood site would also be able to use the other driveway accesses to the Pacific Crossroads
Shopping Center. This will be particularly important for vehicles turning left out of the Westwood
site, which often use the driveway onto SW 78th Avenue rather than wait for a gap in Highway
99W traffic.
fSITE GENERATED TRAFFIC VOLUMES
This section will consider the traffic that could be generated under typical use that might occur
_ on the site under both C-P and C-G zoning. Most of the uses allowed under C-P zoning are also
allowed under C-G zoning. Also, up to 15 percent of the square footage constructed under C-P
zoning can be general retail uses. Thus, if a 30,000 square foot office building is constructed, +,
A 4,500 square feet of general retail uses could also be constructed. It should also be noted that
given the location and seback of the site from Highway 99W,some retail uses such as a fast food
restaurant would not be likely to locate on the site. Instead,the site is more amenable for a single
large retail use.
Estimates of total daily and peak hour driveway volumes for a number of possible uses under the
different zoning designations are presented in Table 2. These uses represent a range of develop-
ment that could be constructed on the site and are based on what could be practically constructed
on the site given the buildings size,and parking requirements. For example,under the C-P zoning
a 35,000 square foot office building could be constructed with surface parking. A larger office
development would require some of its parking to be accommodated by a deck parking lot. Most
of these estimates are based on trip rates from empirical observations at many similar-sized uses
located throughout the United States. These empirical observations are summarized in a standard
�- reference, Trip Generation Report, published by the Institute of Transportation Engineers.3 In
addition, a traffic count was conducted during a weekday p.m. peak period in February 1993 at
the Tigard Office Depot store.
Comparing the trip estimates shown in Table 2 indicates that the number of daily trips going to
the site would be higher with retail uses permitted under the C-G zoning, but it must be kept in j
mind(as detailed in the next section)that 50 percent or more of traffic to many retail uses come j
from traffic that is already on the roadway as part of another primary trip such as going to/from
work. In contrast, most the development that would occur under the C-P zoning tends to be
destination oriented and would generate single purpose trips. Given this,the uses permitted under
t �
13.Trip Generation Report,5th Edition,Institute of Transportation Engineers(ITE), 1991
Kittelson&Associates,Inc. 15
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PROPOSED SITE PLAN
WESTWOOD FIGURE
PACIFIC CROSSROADS ANNEX "
FEBRUARY 1993
nh.... —._ - _. x
February 1993
Westwood:Pacific Crossroads Annex Trac Impact Analysis
v
Table 2
Comparison of Trip Generation for Different Land Uses Permitted with
Commercial-Professional and Commercial-General Zoning
ILand Use (ITE code) Vehicle Trips
A.M. Peak Hour P.M. Peak Hour
Commercial-Professional Zoning Size Dally Total IN OUT Total IN OUT
Office(710) 35,000 635 85 75 10 85 10 75
( - Office with deck parking(710) 60,000 955 130 115 15 130 15 115
Medical office(720) 50,000 1,600 125 100 25 200 60 140
Post Office(732) 10,000 3,500 250 125 125 350 175 175
J Existing Office Depot Store 34,000 NOT CNT-ED € y" 150 75 75
Additional uses permitted with
Commercial-General Zoning
General Retail(820)' 30,000 3,350 80 50 30 305 150 155
High-Tumover Restaurant(832)* 9,000 1,845 100 50 50 150 75 75
*50%or more of the trips generated by these uses will likely come from vehicles already on the roadway
the C-G zoning would not significantly increase the number of daily vehicle trips on the roadway
compared to C-P zoning.
Comparing a.m. peak hour trips, the uses permitted under the C-P zoning would likely generate
more trips than those permitted under the C-G zoning. In fact,many different types of retail stores
I' are not even opened during the a.m.peak hours. Comparing the p.m.trip estimates indicates that
the uses permitted under the C-G zoning will generate more total trips,even though the number
of vehicles leaving the site would be similar. Given the high percentage of retail traffic that will
l come from vehicles already on the roadway, the impact that retail uses will have on off-site
intersections will be approximately the same as the office-related uses.
' Finally, using the counts performed and detailed under the Existing Conditions section of this
report,the trip generation of the Pacific Crossroads Shopping Center was evaluated. This center
' currently contains approximately 36,000 square feet of general retail uses and a 3,000 square foot
Arby's restaurant. Based on ITE trip rates,this Center was estimated to generate approximately
420 p.m.peak hour trips. However,the counts performed indicated that only 290 vehicles turned
I into and out of the site,approximately 70 percent of the ITE estimate. This lower trip generation
may be attributable to the uses in the Pacific Crossroads Shopping Center,the large traffic volumes
( on Highway 99W that make left turn movements out of the Center difficult, the abundance of
I retail along Highway 99W, or other factors. A daily traffic count was also performed at the
driveways to the Pacific Crossroads Shopping Center that yielded similar results. These daily
driveway counts were approximately 70 percent of what would have been predicted using the ITE
IKittelson&Associates,Inc. 17
1 February1993
Westwood;Pacific Crossroads Annex Trac Impact Analysis
r
trip rates. Based on these findings in this report,it is likely that the trip estimates used for retail
uses for the Westwood site might be somewhat higher than what will actually occur.
To conduct this traffic impact analysis,the traffic that will be generated by a general retail center
1 containing 30,000 square feet of gross leasable area will be used. This assumption will result in
the highest turn volumes at the site's driveways and have similar off-site traffic volumes (and
impact)as uses permitted with C-P zoning.
Analysis of Shopping Trip Types
As noted above,evaluating the traffic impacts of the proposed development on the surrounding
( street system,it is important to realize that for commercial developments,there are different types
( of vehicle trips, and that each type has a different effect on the street system. Generally, there
are four basic types of trips associated with any retail/commercial development:
1. Drop-in Trips — These retail trips already exist on the roadways that provide
primary access to the new retail center and are being made for some purpose other
than shopping at the proposed commercial center (for example,home-to-work).
Drop-in trips do not result in any increase in background traffic volumes within
the study area. In fact, the only impact of these drop-in trips occurs at the site
driveway(s),where they become turning movements into and out of the proposed
retail center instead of through movements. Therefore, drop-in trips have no
additional effect on the road system beyond the development's driveways.
2.Diverted Trips—These shopping trips are currently being drawn to other commer-
cial activities that compete with the proposed retail center,but are redirected to
the new store when it opens. This redirection usually occurs because of an
improvement in shopping convenience and proximity for the affected drivers.
Diverted trips will result in an increase in traffic volumes within the immediate
vicinity of the site, but will also result in a decrease in traffic volumes at other
` + locations within the area(i.e.,in areas where they used to shop). 'Therefore,this
component of the total generated demand causes no change in the total number
of vehicle trips within the area, even though it may add to the number of trips
within the immediate vicinity of the site. Another side benefit is that by diverting,
these trips often cause a net reduction in total vehicle miles traveled on the
area-wide transportation system. This is a common sense observation,since it is
'difficult to imagine that many drivers would divert to a new retail center in order
to travel a greater distance than they did previously.
I 3. Captured Trips—In the absence of the proposed retail center,these vehicle trips
would be made by the adjoining residences, neighborhoods, and businesses to
more distant retail centers requiring travel on major arterials and highways such
as Highway 99W and Highway 217. But because of the presence of the proposed
retail center,these vehicle trips are captured and thereby prevented from traveling
on the nearby arterial system. As an example,persons living in residences just to
the north of the site will be able to make at least some of their shopping trips by
walking mode rather than by vehicle. Similarly, residents living farther away
from the proposed site will be able to satisfy their needs for retail goods by
shopping at the proposed retail center and thereby not travelling further on
Highway 99W to reach other shopping areas. The net effect is a reduction in the
Kinelson&Associates,Inc. 18
1 February 1993
Westwood:Pacific Crossroads Annex Trq,*Impact Analysis
I
amount of traffic on the immediately adjoining arterial street system that offsets,
to some degree,the additional traffic brought into the immediate area through the
diverted trips described above.
( 4.New Trips—These retail trips would not have been made without the existence of
I the proposed retail center. Therefore, this is the only trip type that results in an
increase in the total number of vehicle trips made within the area. These are also
the only vehicle trips that represent additional vehicle miles of travel on the
C_ area-wide transportation system.
Although traffic engineers have long recognized the existence of these four different types of
[ retail trips,until recently very little research has been conducted to determine what proportion of
the total retail center-generated traffic demand can be attributed to each of these trip types. The
Institute of Transportation Engineers has published a summary of trip type investigations con-
ducted across the United States that is useful to this analysis.
According to ITE Trip Generation Report,the proportion of p.m.peak hour trips generated by a
retail center that are pass-by or drop-in can be related to either the center's size or the average
daily traffic volume on the roadways adjacent to the center. In the case of a general retail center
containing 30,000 square feet GLA, these data indicate that as much as 66 percent of the traffic
will come from pass-by traffic. Consequently,to make this traffic impact analysis conservative,
it was assumed that only 50 percent of the trip generated by the site were from vehicles passing
by the site. The pass-by trips were assumed to come from traffic along Highway 99W.
1^.
TRIP DISTRIBUTION/ASSIGNMENT
The distribution of site-generated trips onto the roadway system within the study impact area was
estimated from the counts taken at the Pacific Crossroads Shopping Center. These counts indicate
that approximately half of the vehicles come from the east on Highway 99 and half from the west
on Highway 99W(Some of these vehicles come from Pfaffle Street,but many of them are using
this street to avoid Highway 99W. Given the location of the Westwood site,and to force most of
the traffic through the most critical intersections, this 50-50 assumption was made.) As a result
I of these analyses, the estimated trip distribution pattern shown in Figure 6 was prepared. This
figure also shows the assignment of traffic onto the roadway network. All pass-by or drop-in
trips were assumed to come from Highway 99W. Approximately half the vehicles leaving the site
to head eastbound on Highway 99W were assigned to the site driveway directly on Highway 99W.
The other 50 percent were assigned to the Pacific Crossroads Shopping Center driveway on SW
78th Avenue and were assumed to turn left onto Highway 99W at the traffic signal.
INTERSECTION LEVELS OF SERVICE
The background traffic volumes in Figure 4 were added to the site generated traffic volumes in
Figure 6 to project the total p.m. peak hour traffic volumes shown in Figure 7.
Table 3 summarizes the results of the intersection LOS analyses under 1994 background condi-
tions. Table 4 presents the intersection LOS results for 1994 traffic conditions with the assumed
retail center. These results indicate that the signalized intersections along Highway 99W will still
operate at acceptable levels of service even with the development of the Westwood site with its
most intense use. The driveway onto Highway 99W will operate at LOS E, which is also
Kittelson&Associates,Inc. 19
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(� O
XX - NEW TRAFFIC
(XX) - PASSBY TRAFFIC
TRIP DISTRIBUTION AND ASSIGNMENT
OF GENERAL RETAIL
USES ON WESTW00D SITE
WESTWOOD FIGURE
PACIFIC CROSSROADS ANNEX c
FEBRUARY 1993 V
O � �_
♦N N (NOT TO SCALE)
20-0-4 %'.10 30--$ �2
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N � I
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l TOTAL FUTURE 1994 PM PEAK HOUR
VOLUMES WITH GENERAL RETAIL
ON WESTWOOD SITE
WESTWOOD �cuRE
PACIFIC CROSSROADS ANNEX
FEBRUARY 1993
February 1993
Westwood:Pack Crossroads Annex Mok Impact Anal *
f
< <' acceptable. The operation of this driveway as well as all the through traffic along Highway 99W
((�S could be improved.if the signals at Highway 99W were better coordinated.
( INTERNAL CIRCULATION
The key issues addressed in this report with respect to internal circulation for the proposed
development include the following:
t.Y The access driveway should provide clear and unobstructed access throats with
_ sufficient depth to ensure that parking/exiting maneuvers will not create significant
( conflicts with drivers entering or exiting the site.
l
• The interaction between customers of the commercial center and delivery or service
vehicles should be reduced as much as possible.
' The number of driveways provided to the site should be adequate to disperse the
• site-generated traffic such that congestion is not likely to occur at any 1pne driveway.
(' A review of the current site plan demonstrates that the proposed development adequately
L
addresses each of the issues. The primary access driveway will be a shared driveway with the
(' Pacific Crossroads Shopping Center and will contain three lanes including two outbound(separate
L right and left turns) and one inbound. Based on the number of vehicles turning out of this
driveway sufficient storage should be provided for at least two vehicles or 50 feet. As shown on
Figure 5,there is approximately 65 feet provided at the main driveway before the connection to
the Pacific Crossroads Shopping Center. The entire driveway to the parking lot is approximately
175 feet from Highway 99W. There is an existing left turn lane on Highway 99W that extends
back several hundred feet to accommodate vehicles turning into the site. The relatively low
volumes turning into this driveway would require storage for three vehicles or 75 feet. Further-
more, special studies along Highway 99W have found that vehicles queuing back from the
Highway 99W/217 intersection do not interfere with traffic operations at this main driveway. The
additional traffic from the development of the Westwood site will not significantly affect this
{ conclusion.
In addition to this primary driveway, patrons of the Westwood site will have access to another
driveway on Highway 99W and a driveway on SW 78th Avenue. Based on the results of the
s capacity analysis,the peak hour vehicles trips generated by the Westwood site do not overburden
any of these access points.
Deliveries will be made at the rear of the building, thus minimizing the interaction between
Icustomers of the commercial center and service/delivery vehicles.
f
�y-
f ,
I5
_� Kittelson do Associates,Inc. 22
iii
1'ebrtutry 1993
Westwood:Pacific Crossroads Annu Thiffie Impact Analysts
3 C Table 3
Background 1994 RM Peak Hour Level of Service
with Cub Foods Commercial Center
Signalized Unslgnalized
Ass.
Intersection Delay V/C LOS Cap. LOS
f 1.SW 78th Avenue/Highway 99W 25.7 0.94 D
2.Highway 217/1-11ghway 99W 12.7 0.74 B
3.PlafBe/SW 78th Avenue 3.2' A
C4.SW 78th Avenue/Pacific Crossroads Access 400 A
5.East Access/Highway 99W 80 E
6.West Access/Highway 99W 80 E
+Average vehicle delay at four-way stop intersection,v/c-0.35
C
Tabel 4
Total Future 1994 RM Peak Hour Level of Service
with Cub Foods and General Retail Uses on Westwood Site
LSignalized Unsignalized
Intersection Delay V/C LOS Cap. LOS
L
1.SW 78th Avenue/Highway 99W 28.1 0.95 D
2.Highway 217/Highway 99W 12.8 0.74 8 f
3.Pfaffle/SW 78th Avenue 3.2' A
4.SW 78th Avenue/Pacific Crossroads Access 328 B
S.East Access/Highway 99W 80 E
� ^
6.BlaMart/West Access/Highway 99W 45 E j
*Average vehicle delay at four-way stop intersection,v/c=0.35 1
P
Kirtelson do Associates,Inc. 23
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Section 5
Long Term Future Traffic 1<� Mm
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Conditionsmom
NONE1
February 1993
Westwood:Pac#ic Crossroads Annex Long Terra Future Tmfflc Conditions
F11
Long Term Future 7Yaffic Conditions
dations
Westwood Corporation is applying to rezone the site Commercial-General which would permit a
wider variety of retail uses and greater flexibility for the developer. Under the new Oregon
Transportation Rule, major rezoning projects need to consider the long range impact
traffic. The Rule requires that the 20 year Transportation Plan be examined. The Tigard Triangle
( Area Circulation Analysis Report conducted by ODOT developed the long range plan for this
t area. Its projections of 2015 traffic volumes for the surrounding area indicate that Highway
needs to be widened to provide 6 through lanes for traffic. It is estimated that the Highway
99W/Dartmouth/78th Avenue intersection will operate at LOS D-E in the future even with the
improvements recommended in this plan. The SW 78th Avenue le
g of ich is
the intersection approach most affected by traffic from the Westwood sitte,lis not critical ho this
intersection's capacity. At one of our meetings with ODOT it was also mentioned that at some
point in the future a median may be constructed along Highway 99W and the unsignalized
driveways will allow only right-in/right-out maneuvers.
t The Transportation Rule also requires that rezoning should be evaluated so that any additional
traffic impact be accommodated in one of three ways. First, if the increase in traffic due to the
rezoning is substantial, the Transportation Plan may have to be modified to accommodate the
-- site's additional traffic. A funding plan must also be developed to ensure that the roadway
improvement(s)will be accomplished. A second option is to limit the new land use to the level
of traffic that would have been generated by the site under its current zoning. A third option is
�- to downzone other land to offset the increase in traffic attributed to the rezoning.
( As detailed in several sections of this report, the number of trips that will be generated by even
l the most intense uses pe:miffed on this site with Commercial-General(C-G)zoning will result in
a similar number of trips as typical uses permitted under the site's existing zoning,Commercial-
Professional (C-P). Moreover,most retail and commercial uses that would result from rezoning
I the site to C-G will result in fewer new vehicle trips on the roadway network. Most trips to retail
' uses come from vehicles already on the roadway, the majority simply passing by the site as part
t ( of another primary trip such as going to/from work. In contrast, many of the developments that
I would result under C-P zoning would be office types of uses that generate primary single purpose
trips. Table 2 presented a detailed comparison of the trip generation of typical land uses permitted
under the two zoning designations. Based on this analysis, rezoning this site to C-G would not
result in a significantly greater number of trips. In fact,the usesermitted with
result in fewer trips. P th C-G zoning may
I ` In terms of the Transportation Rule, rezoning the site would not require that the Transportation
Plan for this area to be updated and it would also meet the general requirements of Option 2 above.
Thus,rezoning the Westwood site to C-G is not inconsistent with Oregon's Transportation Rule
' nor its main objective of reducing roadway system vehicle miles of travel
L
Kinelson&Associates,Inc.
25
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Section 6
Conclusions
And RecommendationsNOON
' February J993
Westwood:Pacific Crossroads Annex Conclusions And Recommendations
Conclusions And Recommendations
Based on the results of the traffic analysis described in this report it is concluded that the
Westwood site can be developed and rezoned from Commercial-Professional (C-P)to Commer-
cial-General (C-G) while still maintaining acceptable levels of traffic service and safety within
the surrounding transportation system. Specifically:
• All of the study area intersections currently operate at acceptable levels of service
during the critical weekday p.m. peak hour time period.
' • The number of vehicle trips that would be generated by uses permitted under the
site's proposed C-G zoning being requested by the Westwood Corporation is similar
to the trips that would be occur under the site's existing zoning.
• With the addition of site-generated traffic from a possible general retail center
constructed on the site(the use that would generate the most vehicle trips to the site
under C-G zoning), all study area intersections will continue to operate within
' acceptable levels of service under projected 1994 conditions. Further,no off-site
improvements are required to maintain acceptable levels of service beyond the
already funded transportation improvements which are scheduled to be in place by
1994.
• Based on a review of the current site plan, it is concluded that the proposed
development plan adequately addresses access issues along Highway 99W. A shared
access driveway with the Pacific Crossroads Center has already been ;designed and
constructed to accommodate vehicles using both retail sites.
• A planning level analysis of long term traffic conditions in the vicinity of the site
indicates that rezoning the site to C-G zoning will not substantially increase traffic
above what could be generated under its current C-P zoning.
• With the proposed commercial uses, most of the trips to the site will likely come
from vehicles already on the roadway as part of another,more primary trip such as
going to/from work. In contrast, if the site is developed under C-P zoning, typical
uses such as general or medical offices will generate single purpose trips. Conse-
quently, the number of vehicle miles of travel that would be generated by the
development of this site will be less under C-G zoning compared with C-P zoning.
Thus,rezoning the site to C-G zoning meets the objectives of Oregon's Transporta-
tion Rule regarding rezoning of sites.
Kittelson do Associates,Inc. 27
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Appendix A
February 1993
Westwood.Pac(fic Crossroads Annex AppandixA
f-
l Appendix A
Level of Service Concept
Level of Service(LOS)is a concept developed to quantify the degree of comfort(including such
f ' elements as travel time,number of stops,total amount of stopped delay,and impediments caused
by other vehicles)afforded to drivers as they travel through an intersection or roac:way segment.
Six grades are used to denote the various LOS from A to Ral
Table All
Level of Service Definitionsa (Signalized Intersections)
Level of Average Delay per Vehicle to Minor Street
Service
L
Very low average stopped delay,less than five seconds per vehicle.This occurs when progression
A is extremely favorable,and most vehicles arrive during the green phase.Most vehicles do not stop
at all.Short cycle lengths may also contribute to low delay.
L
Average stop delay is in the range of 5.1 to 15.0 seconds per vehicle.This generally occurs with
B good progression andlor short cycle lengths.More vehicles stop than for a LOS A,causing higher
levels of average delay.
Average stopped delay Is in the range of 15.1 to 25.0 seconds per vehicle.These higher delays
F C may result from fair progression and/or longer cycle lengths.Individual cycle failures may begin to
L appear at this level.The number of vehiclesstopping Is significant at this level,although many still
pass through the Intersection without stopping.
Average stopped delays are in the range of 25.1 to 40.9 seconds per vehtde.The influence of
D congestion becomes more noticeable.longer delays may result from some combination of
unfavoorable progression,long cycle length,or high volume%apacity ratios.Many vehicles stop,
and the proportion of vehicles not stopping declines.Individual cycle failures are noticable.
�- Average stopped delays are in the range of 40.1 to 60.0 seconds per vehicle.This is considered to
E be the limit of acceptable delay.These high delay values generally indicate poor progression,long
cycle lengths,and high volumetcapacity ratios.Individual cycle failures are frequent occurances.
Average stop delay is In excess of 60 seconds per vehicle.This is considered to be unacceptable
F to most drivers.This condition often occurs with over saturation.It may also occur at high
volume/capactty ratios below 1.00 with many individual cycle failures.Poor progression and long
cycle lengths may also be contributing causes to such high delay levels.
I .
I .
al Most of the material in this appendix is adapted from the Transportation Research Board,Highway Capacity
' Manual,Special Report 209(1985).
"
29
Kiuelson do Associates,Inc.
February 1993 AppendixA
Westwood:Pac(fic Crossroads Annex
Table A2
Level-of-Service Criteria for Sl"IW" lnftMO na
stopped DelaY Per Vehicle(S000ndts)
Level of Service
55.0
A
5.1 to 15.0
1 l3
15.1 to 25.0
C
25.1 to 40.0
D
40.0 to 80.0
E
>60.0
F
■
Signalized Uttersecdons
The six LOS grades are described qualitatively between
level
fdsintersections
rvi�anda�rage stopped delay
tionally,Table A2 identifies the relationship betty
per vehicle. Using this definition, lly considered to represent the minimum
on,a D LOS is genera
acceptable design standard.
L �
L
i
c
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Kittelson do Associates.lnc. _ --j
l» February 1993
Westwood.Pacific Crossroads Annex AppendhA
r-
Table A3
(( General Level.of Service Descriptions for Unsignaliaed Intersections
Level of Average Delay per Vehicle to Minor Street
[ Service
A 0 Nearly all drivers find freedom of operation.
• Very seldom is there more than one vehicle in the queue.
B 0 Some drivers begin to consider the delay an inconvenience.
• Occasionally there is more than one vehicle in the queue
rC 0 Many times there is more than one vehicle in the queue.
rMost drivers feel restricted,but not objectionably so.
1 A D 0 Often there Is more than one vehicle in the queue.
• Divers feel quite restricted.
i E 0 Represents a condition in which the demand is near or equal to the probable maximum
number of vehicles that can be accomodated by the movement.
• There is almost always more than one vehicle in the queue.
• Drivers find the delays approaching intolerable levels.
1 ..
F Forced flow.
• Represents an intersection failure condition that Is caused by geometric and/or operational
constraints external to the intersection.
Unsignel/zed IntenmwHons
The calculation of LOS at an unsignalized intersection requires a different approach. The 1985
Highway Capacity Manual includes a methodology for calculating the LOS at two-way stop-con-
trolled intersections. For these unsignalized intersections, LOS is defined differently than for !
signalized intersections in that it is based upon the concept of "Reserve Capacity" (i.e., that
portion of available hourly capacity that is not used). A qualitative description of the various
' service levels associated with an unsignalized intersection is presented in Table A3. A quantita-
tive definition of LOS for an unsignalized intersection is presented in Table A4.
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Kitteison do Associates,Inc. 31
February 1993
Westwood.,Pac4fteCrossroads Annex Appendix
I '
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\ Table A4
fLevel-of-Service Criteria for Unslgnalised Intereections.
Reservoh
Capacity Level of Service Sed Delay Mkmr
,# 400 A Little or no delay e
t
t_
300-399 B Short traffic delays
200-299 C Average traffic delays
100-199 D Long traffic delays
C0-99 E Very long traffic delays
F
• When demand volume exceeds the capacity of the lane,extreme delays will be encountered with queueing
which may cause severe congestion affecting other traffic movements in the intersection.This condition
usually warrants improvement to the intersection.
The reserve capacity concept applies only to an individual traffic movement or to shared lane
movements. Once the LOS, capacity, and expected delay of all the individual movements has
been calculated,an overall evaluation of the intersection can be made. Normally,the movement
having the worst LOS defines the overall evaluation,but this may be tempered by engineering
C judgement. An "E" LOS is generally considered to represent the minimum acceptable design
standard.
LPast experience with the unsignalized analysis procedure indicates this methodology is very
conservative in that it tends to over-estimate the magnitude of any potential problems that might
exist. This is especially true for minor street left-turn movements. For example, the Highway
i Capacity Manual methodology does not take into account the effects of vehicle flow platoons
that result from upstream signalization. Vehicles traveling in platoons tend to create greater gaps
in the traffic flow that sometimes provide additional capacity for the side closest to the signal.
Therefore, the results of any unsignalized intersection analysis should be reviewed with this
thought in mind. Generally, LOS E for the minor street left turn movement is considered to be
f acceptable for an unsignalized intersection,although it also indicates that the need for signaliza-
tion should be investigated.
Kittelson de
Assocrates,Inc. 32
1_ February 1993
Westwood:Pacfc Crossroads Annex Appendix A
I -
Table AS
fLevel of Service Definitions (All-way Stop Controlled Intersections)
Level of Service Average Delay per Vehicle to Minor Street
I ;
A <5 Seconds
f, B 5 to 10 Seconds
t_
f_ C 10 to 20 Seconds
'' t= D 20 to 30 Seconds
E 30 to 45 Seconds
F >45 Seconds
l
All-Way Step Controlled InWraecUons82
There is no accepted procedure for a level of service analysis of an all-way stop controlled
t_. intersection. The procedure used for determining LOS for a four-way or three-way stop controlled
intersection differs from that described for unsignalized intersections. This methodology,which
I is being reviewed by the Unsignalized Intersection Committee of the Transportation Research
Board,uses a capacity estimation method based on headways observed at all-way stop controlled
intersection in the western United States. The procedure incorporate several important variables,
t including volumes distribution, number of lanes on each approach, and the percentage of right
- and left turns at the intersection. Intersection performance is measured in parameters similar to
signalized intersections: delay, volume-to-capacity ratio, and Level of Service using a scale of
"A" through "F". Approach delay on any given leg of the intersection is calculated using the
following equation:
ID=exp(3.8 x SV l
C l
Where— D = vehicle delay on a given approach(sec/veh)
SV = subject approach volume (vph)
C = calculated approach capacity(vph)
Iexp = base of natural logarithms
In this equation,the quantity SV/C is simply the volume-to-capacity ratio on the approach under
Iconsideration. Table A5 presents the LOS criteria for all-way stop controlled intersections.
a2 Kyte,Michael,Estimating Capacity and Delay at an All-Way Stop-Controlled Intersection.University of Idaho,
- Department of Civil Engineering Research Report,September 1989.
Kittelson&Associates,Inc. 33
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' February 1993 APPENDIX B
Westwood:Pacific Crossroads Annex
APPENDIX B
'
Modified Unsig nalized Intersection Capacity Analysis for Evaluating the Left'um
Movements to/from Driveways Along Highway 99W
Several studies have found that the method for analyzing the capacity at unsignalized intersections
detailed in the Highway Capacity Manual (HCM) is very conservative and can significantly
underestimate an intersection's capacity. One of the key assumptions in this procedure is that
vehicles coming to the intersection are randomly arriving at this location. This assumption may
be appropriate for intersections along long stretches of roadways that have many other intersec-
tions and driveways. However,at intersections that are adjacent to traffic signals with few or no
other intervening intersections or driveways,traffic flow will be controlled by the timing of the
nearby traffic signal. If this is the case,Appendix I of Chapter 10,Unsignalized Intersections,in
the Highway Capacity Manual describes a modified capacity analysis procedure to apply. Briefly,
the capacity of each traffic now scenario that is defined by the different phases of the nearby
traffic signal(s)should be determined separately. The total intersection capacity is computed by
' factoring these separate traffic volumes for the actual percent of the hour they will occur. The
potential capacity derived under each scenario also has to be factored and then added together to
compute the final total available gaps. In addition, the intersection capacity should also be
increased for gaps that will be created by the traffic signal change intervals (yellow plus all-red
phases) when all the vehicles at the nearby signalized intersection are stopped.
This special situation exists at the unsignalized driveways to the Pacific Crossroads Center and
the Westwood site along Pacific Highway. If the traffic volumes for this intersection are directly
used in an HCM evaluation,the results would be that the minor street left turn movements will
operate at Level of Service (LOS) "F" which indicates that there are not available gaps for
additional vehicles. However, traffic counts and field observations indicate that there are gaps
for more vehicles to make this maneuver. The traffic signals at the Highway 99W/78th Avenue
and Highway 99W/Highway 217 NB Ramp intersections control the now of along Highway 99W
and create defined periods when there are available gaps. Most of the time they operate on a
( regular pattern and green time is given to the side streets (78th and Highway 217 ramps) at
1_ approximately the same time. It is during this period that most of the large gaps occur.
Based on the traffic volumes shown in this report and the assumptions detailed above from the
HCM, the capacity of the driveways along Highway 99W was calculated. This section contains
one example of this calculation. The example calculation will be the most critical movements,
the left turn out of and into the west driveway with full buildout of the Westwood site with general
L retail uses (30,000 square feet gross leasable area). The separate phases as shown in Figure B.1.
To conduct the capacity analyses,the volumes along Highway 99W were adjusted based on the
percent of the cycle that they actually flow. Thus, the volumes during Phase 1 were divided by
l 0.75 and the volumes during Phase 2 were divided by 0.25. (This is a simple representation of
the actual signal phasing. There is an additional Phase when the eastbound Highway 99W left
turn phase is operating. During this phase there would be no traffic flowing westbound on
lHighway 99W. Consequently,this simplified method would slightly underestimate gaps in traffic
along Highway 99W.)
35
Kittelson do Associates,Inc.
Febrawry 1993
Westwood,'Pae(fle Crossroads Annex
( APPENDIX B
A separate HCM unsignalized intersection
capacity run was perfo
med for each of these traffic
flow scenarios and their results are shown on Table B.I. Table B.2 shows how the total
I intersection capacity is computed based on the results in the Table B.1. This'special analysis
demonstrates that because of the additional gaps in traffic that will be caused by the nearby signals,
f the critical left turn movements from the Westwood/Pacific Crossroad Center west driveway a will
operate at LOS E. The left turn movement into this driveway will operate at LOS D. The capacity
of the existing traffic and future background traffic conditions were computed in a similar manner.
l'
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J`.
C:
k?:
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I
C \
ti
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Kittelson&Associates,Inc.
36
PHASE I: THROUGH GREEN ON
HIGHWAY 99W (75% OF CYCLE)
WESTWOOD 78TH
' SITE
c
in
t M
65
2020
HWY. 99W
9o..
1600-*.
HWY. 217
N8 RAMP
C
C
PHASE 11: SIDE STREET GREEN
r PHASE (20% OF CYCLE)
:
WESTWOOD 78TH
;x SITE
{
in
(~ 2 in
q
4 20
HWY. 99W
10-$ 310
L 145— o
t N
by
�- HWY. 217
f N8 RAMP
L
TRAFFIC FLOW ALONG HIGHWAY 99W
BASED ON VOLUMES IN FIGURE 7
WESTWOOD FIGURE
PACIFIC CROSSROADS ANNEX ]IB- 11
FEBRUARY 1993
Fil
February 1493
Westwood:Pacb?c Crossroads Annex APPENDIX B
i
C,
f TABLE B.l Traffic Volumes and Potential Capacity Results At Westwood Driveway
Phase 1:Through Traffic on Highway 99W (75 SS of Cycle)
CMovement Volume Adjustment* Hourly
Volume"
Highway 99W
Eastbound 1600 0.75 2135
Westbound 2020 0.75 2690
CWestwood/Facifrc Crossroads
Driveway
Left Turn 35 1.0 35
Right Tum 105 1.0 105
Capacity of Left Tura From Westwood Driveway 77
L Capacity of Left Tum into Westwood Driveway 177
r Phase 2:Side Street Traffic along Highway 99W(20 S of Cycle)
Movement Volume Adjustment* Hourly
Volume"
_ Highway 99W
Eastbound 145 0.20 725
Westbound 310 0.20 1550
Westwood/Pacific Crossroads '
Driveway
Left Tums 35 1.0 35
LRight Turns 105 1.0 105
r Capacity of Left Tum From Westwood Driveway 87
1 Capacity of Left Tum into Westwood Driveway 180
!! i
•Percent of hour or green time per cycle that this traffic volume will actually be tlowiny `
••Effective hourly volume is the actual volume dividod by the adjustmeru factor. II
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Kittetson dt Associates,Inc. 38
aax7-=--r�,ra,.-'
February 1993
Westwood.Pacific Crossroads Annex APPENDIX B
�r.
l
TABLE B,2
[ Capacity of Left Turn Movement from Westwood Driveway
1 T
Traffic Plisse Potential Percent of Actual
t Capacity• Cycle Capacity
CHighway 99W 30 75 23
Through
Sde streets 87 20 18
(' tring Signal Change Intervals(Yellow phos All-Red): 42
Lsed on 130 sec.cycle length,3600 sec/130-28 intervals
1.5 vehicles can make maneuver) TOTAL 93nclusion: i eak left tum volume is 35. Thus,reserve capacity is at least 83-
-38 or LOS E.
TABLE B.3
Capacity of Left Turn Movement into Westwood Driveway
L Traffic Phase Potential Percent Actual
Capacity of Capacity
* Cycle
Highway 99W 177 75 133
L Through
Side Streets 1 180 20 36
During Signal Change Intervals (Yellow plus 42
All-Red): Based on 130 sec. cycle length,
3600 sec/130= 28 intervals and 1.5 vehicles
can make maneuver)
TOTAL 211
Conclusion: Peak left turn volume is 100. Thus, reserve
t capacity is at least 211-100= 111 or LOS D.
L
Kittelson do Associates,Inc. 39