Resolution No. 05-62 CITY OF TIGARD, OREGON
- RESOLUTION NO. 05-
A
A RESOLUTION ACCEPTING THE FINDINGS AND RECOMMENDATIONS OF THE TIGARD
DOWNTOWN IMPROVEMENT PLAN DETAILING TIS COMMUNITY'S VISION, GOALS, AND
IMPLEMENTATION FRAMEWORK TO REVITALIZE DOWNTOWN TIGARD.
WIIEREAS,the Direction Statement for Community Character and Quality of Life as stated in the Tigard
Beyond Tomorrow 2004 Progress Report identifies the Main Street Area as a focal point for the community
and calls for a clear direction for a"pedestrian-friendly Downtown"to be established and implemented;and
WHEREAS,the City Council identified creation of a common vision for the Central Business District as a
goal in 2003,redevelopment of the Central Business District as a goal in 2004,and the revitalization of
Downtown Tigard as a goal in 2005;and
` WHEREAS,the Council adopted Resolution 03-15,which supported the City's application for a
Transportation and Growth Management(TGM)grant application for state assistance in preparing a
Downtovm revitalization plan; and
WHEREAS,recognizing flit complex nature of redeveloping Downtown Tigard,the City Council
established the 24-member Downtown Task Force; and
WHEREAS,the TGM program awarded a grant to the City committing$127,610 for FY2004-05,to be
used towards consultant services for the creation of the Tigard Downtown Improvement Plan(TDIP); and
WHEREAS,a consultant was selected in June 2004 to work with the community,Downtown Task Force
and City staff on the development of the Plan; and
WI-IEREAS,in September 2005,the City, Oregon Department of Transportation and consultants expanded
the scope of work to accommodate additional public outreach activities. The expanded scope of wont
added significant consultant and stafftime,but procured valuable public input for the Plan. As part of the
contract extension,the TGM grant was increased to a total of$155,140; and
WHEREAS,the purpose of the Tigard Downtown Improvement Plan is to set tine vision for the Downtown
Tigard of the future,establish guiding principles to guide future efforts,mid identify development types and
catalyst projects needed to create a climate for investment;and
WHEREAS,the TDIP Implementation Action Plan provides recommendations for the implementation of
the Downtown Improvement Plan that will serve as a guide for futme actions in the area
NOW,THEREFORE,BE IT RESOLVED by the Tigard City Council that:
SECTION 1: The Tigard City Council accepts the findings and recommendations of the Tigard
Downtown Improvement Plan as shown in Exhibit A.
RESOLUTION NO.05-
Page 1
SECTION 2: The Council directs the City staff to use the Plan's goals, objectives and recommended
actions as a guide for future programming of Downtown improvements.
SECTION 3: Council accepts the TGM grant products, including the Downtown Improvement Plan and
associated documents(Exhibit A).
SECTION 4: This resolution is effective immediately upon passage.
PASSED: Tins ayof— T�2005.
Mayor- ty of Tigard
ATTEST:
City Recorder-City of Tigai
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RESOLUTTONN0.05- (Oa
Page 2
Downtown Improvement Plan
City of Tigard,Oregon
Proposed
Tigard Downtown Improvement Plan
September 30, 2005
Preparedfor
City of Tigard
13125 SW Hall Blvd.
Tigard, OR 97223
503-639-4171
Prepared by
Parametrix
700 NE Multnomah, Suite 1000
Portland, OR 97232-4110
503-233-2400
www.parametrix.com
Downtown Improvement Plan
City of Tigard,Oregon
ACKNOWLEDGEMENTS
Tigard City Council City of Tigard Staff
Craig Dirksen, Mayor Craig Prosser, Interim City Manager
Nick Wilson, Councilor James Hendryx,Community Development
Sydney Sherwood, Councilor Director
Tom Woodruff, Councilor Barbara Shields, Long Range Planning
Sally Harding, Councilor Manager/Project Manager
Beth St. Amand, Associate Planner/Assistant
Tigard Planning Commission Project Manager
Marty Anderson Thomas Imdieke,Interim Finance Director
Gretchen Buehner Gus Duenas, City Engineer
Rex Caffall Dick Brewersdorff, Current Planning Manager
Teddi Duling Julia Hadjuk,Associate Planner
Bill Haack Duane Roberts,Associate Planner
Jodie Inman Denver Igarta,Associate Planner
Katherine Meads
Judy Munro(Vice-Chair) Technical Advisory Committee
Mark Padgett(Chair) Paul Schaefer,Washington County
Bob Melbo/Ed Immel and C. David Lanning,
Alternate: ODOT Rail
David Walsh Marc Guichard,Metro
Steve Witter,TriMet
Tigard Downtown Task Force Raphael Haou,ODOT Region 1 traffic
Jim Andrews Jeff Boechler,ODFW
Janice Arave Stacy Hopkins,DLCD
Carolyn Barkley Sonya Kazen,ODOT Region 1 Planning/TGM
Martha Bishop Gus Duenas,City of Tigard
Marland Henderson Barbara Shields,City of Tigard
Chris Lewis Beth St.Amand,City of Tigard
Mike Marr(Chair)
Judy Munro Oregon Dept. of Transportation
Dan Murphy Sonya Kazen, TGM Grant Coordinator
Jan Richardson
Mike Stevenson Consultant Team
Sue Wirick Parametrix
Joshua Chaney David M. Siegel,AICP, Project Manager
Ken Dawson Jennifer Hughes,Deputy Project Manager
Craig Dirksen Jeff Mitchem,Urban Designer
Heather Guevara Lauren Golden,Project Planner
Paul Iford
Susan Morelli Johnson-Gardiner
Lisa Olson Jerry Johnson,Real Estate Economist
Nicole Palmateer
Yudhi Patel Kittelson &Associates
Cathy Renken Beth Wemple, Transportation Planner
John Wilson
StastnyBrun Architects
Don Stastny,FAIA,FAICP,Urban Designer
Jennifer Mannhard,Project Designer
Downtown Improvement Plan
City of Tigard,Oregon
TRANSPORTATION AND GROWTH MANAGEMENT PROGRAM
This project is partially funded by a grant from the Transportation and Growth Management
(TGM)Program, a joint program of the Oregon Department of Transportation and the
Oregon Department of Land Conservation and Development. This TGM grant is financed, in
part,by federal Transportation Equity Act for the 21st Century (TEA-21), local government,
and the State of Oregon funding.
The contents of this document do not necessarily reflect views or policies of the State of
Oregon.
Downtown Improvement Plan
City of Tigard,Oregon
PREFACE
The primary objectives of the Tigard Downtown Improvement Plan(TDIP)are fourfold.
First and foremost,the TDIP seeks to carry out the City Council's goal to revitalize
Downtown Tigard. Second,the TDIP is a downtown"improvement"plan, one that builds
upon the good"bones"of the current Downtown area,and that builds upon the sound
foundation of community-based planning to serve as the"master conceptual plan" for the
area. Third,an overarching objective of the Plan is to ensure that Downtown Tigard will
serve the community's stated future needs for an active,mixed use "urban village". Finally,
the TDIP must meet the objectives of the Metro Functional Plan for a Town Center,as that
plan designates Tigard's downtown area as a Town Center.
The TDIP aims to provide the blueprint for the evolution of Downtown Tigard into a vital,
vibrant,mixed-use and pedestrian-friendly environment over the next 20-30 years. The TDIP
summarizes the rationale for, and the evolution of,the conceptual design plan. It identifies
development types and"catalyst projects",projects that are needed to jumpstart other
development in the area and create a climate for investment. It promotes a multi-modal
transportation system and concurrent development that is conducive to the planned evolution
into a Town Center.
No other Town Centers within the region encompass the environmental resource,
transportation and market issues found in the downtown Tigard project area. The
opportunities presented by the community's plan for an improved Downtown include:
➢ evolving into a vital Town Center which is unique to the area;
➢ enhancing the value of the Fanno Creek resource;
➢ unifying vacant, developed,and redevelopable land; investing in transportation
improvements;
➢ making Downtown a desirable place to live,work and play; and
➢ creating a place with a cohesive community atmosphere,unique amenities,and
infrastructure that will enable Downtown Tigard to operate independently of
surrounding service and employment centers.
Among the challenges in the Downtown Tigard area is the need to balance transportation
improvements,protect natural resources and develop a Town Center. This will be
accomplished by conservation and appropriate shared use of the significant Fanno Creek
resource, creating and connecting green spaces throughout Downtown, extending the
reservation of future street and pathway routes, capitalizing upon the advent of commuter rail
service to the area, encouraging connections between developed and developing areas, and
establishing an innovative implementation strategy for funding and carrying out the plan.
The community developed a vision for the Downtown Tigard of the future, and established a
set of guiding principles to direct future efforts, guide investment decisions, and serve as
"measures of success". The TDIP recognizes that short-term redevelopment should not
preclude long-term investment opportunities. It suggests that all development and all partners
have a responsibility to demonstrate how they support a Town Center concept within the City
of Tigard.
Downtown Improvement Plan
City of Tigard,Oregon
TABLE OF CONTENTS
PREFACE
INTRODUCTION TO THE PLAN DOCUMENTS
1. PROJECT OBJECTIVES..................................................................................... 1
1.1 Introduction......................................................................................................... 1
1.2 Objectives ........................................................................................................... 1
2. EXISTING PHYSICAL CONTEXT.................................................................... 2
2.1 Introduction......................................................................................................... 2
2.2 Project Area ........................................................................................................ 2
2.3 Existing Environment......................................................................................... 2
2.4 Conclusions......................................................................................................... 6
3. DESIGN PROCESS OVERVIEW....................................................................... 7
3.1 Introduction......................................................................................................... 7
3.2 Forming the Foundation...................................................................................... 7
3.3 Outcomes-Based Vision...................................................................................... 9
3.4 Guiding Principles .............................................................................................. 9
3.5 Community Outreach.......................................................................................... 9
3.6 Decision Making Process.................................................................................. 11
4. THE PLAN ......................................................................................................... 21
4.1 Vision and Guiding Principles.......................................................................... 21
4.2 Great Ideas........................................................................................................ 22
4.3 Preferred Design Alternative ............................................................................ 23
4.4 Catalyst Projects................................................................................................ 23
4.5 Other Implementing Projects and Actions........................................................ 28
5. IMPLEMENTATION ACTION PLAN............................................................. 35
5.1 Introduction....................................................................................................... 35
5.2 How Will The Plan Be Carried Out?................................................................ 35
5.3 Implementation Action Plan............................................................................. 35
5.4 Programming Recommendations...................................................................... 36
5.5 Short-Term Incremental Implementation Strategy........................................... 36
5.6 Programming Concept and Conclusion............................................................ 37
Downtown Improvement Plan
City of Tigard,Oregon
INTRODUCTION TO THE PLAN DOCUMENTS
Tigard's Downtown Improvement Plan is comprised of two major components: The Plan;
and the Technical Appendices. A description of these two components is provided below.
The Plan: An Overview Document
The Tigard Downtown Improvement Plan(TDIP) document is a summary statement of the
community's vision, direction, and commitment to action for the future of Downtown Tigard.
As such, the Plan document itself will also be presented as a summary statement. This Plan
document is focused on providing the vision, guiding principles and concepts behind the
plan, the"preferred design concept"and"catalyst projects"recommended by the Downtown
Task Force, and a preliminary implementation strategy for carrying out the plan. The
background information providing the foundation for the community's policy decisions is
contained within a series of technical memoranda attached to this document as appendices,
and will be summarized or referred to in this overview document.
The Technical Appendices: The Foundation
The technical memoranda which comprise the technical foundation for the Plan have been
compiled into ten(10)appendices. Appendices A,B and C are technical memoranda
detailing the current conditions existing in Downtown Tigard with regard to the local
economy and climate for development, the transportation system, land use and the regulatory
context. Appendix D provides the story of how the community's vision for Downtown
evolved into three iterations: an Initial Concept; a Refined Design Alternative; and a
Preferred Design Alternative. This Preferred Design Alternative is the conceptual framework
upon which future implementation actions will be undertaken.
Appendices E and F contain the discussions and recommendations regarding the
improvements and changes to the transportation system, land uses and local regulations
needed to carry out the vision and the Preferred Design Alternative. Appendix G discusses
the"catalyst projects"needed to create a climate for investment and to"jumpstart"
development, identifies a range of potential funding sources, and recommends the City
consider and implement an urban renewal district to help pay for public investment projects
Downtown.
Appendix H provides a summary of the community involvement process that provided the
foundation, direction(and ongoing support)for the Downtown Improvement Plan. It contains
a number of attachments that summarize:
➢ the Community Dialog process used to involve a broad cross section of the
community in small-group meetings;
➢ the stakeholder group meetings held to address key issues such as transportation,the
role of Ash Avenue in the Improvement Plan,and the development and financial
feasibility (e.g.,a"reality check")of the draft concept plan; and
➢ other events and opportunities provided to solicit and capture public comment on the
draft Downtown Improvement Plan.
Appendix I summarizes and reconciles the results of the Economic Analysis Study from the
TDIP with feasibility work done earlier by Tashman Johnson LLC for the Commuter
Rail/217 Corridor Revitalization Feasibility Study. Appendix J presents the Implementation
Downtown Improvement Plan
City of Tigard,Oregon
Action Plan for carrying out the TDIP. This implementation program focuses on the
following:
➢ Recommended future transportation system improvements and any suggested
changes to the City's Transportation System Plan;
➢ Recommended changes to the City's Comprehensive Plan, zoning code and
implementing ordinances; and
➢ Recommended development and community projects important for creating a climate
of investment Downtown, and recommended sources of funding for these and other
improvements.
Taken together, these appendices provide not only the foundation for the plan,but the tools
and recommendations for the community to use to inform their decisions regarding carrying
out the plan.
Downtown Improvement Plan
City of Tigard,Oregon
1 . PROJECT OBJECTIVES
1.1 Introduction
Tigard has an historic downtown,with lots of character and a good foundation upon which to
build for the future. In addition, there are some exciting new"coming attractions"that will
have the potential to generate change, a good example of which is the soon-to-be-built
Commuter Rail project stretching from Wilsonville to Beaverton. This planning effort will
help the community and the City of Tigard balance anticipated future population with land
use and transportation goals in the Downtown area.
1.2 Objectives
The primary objectives of the Tigard Downtown Improvement Plan(TDIP)are fourfold.
First and foremost,the TDIP seeks to carry out the City Council's goal to revitalize
Downtown Tigard. Second,the TDIP is a downtown"improvement"plan,one that builds
upon the good"bones"of the current Downtown area,and that builds upon the sound
foundation of community-based planning to serve as the"master conceptual plan" for the
area. Third,an overarching objective of the Plan is to ensure that Downtown Tigard will
serve the community's stated future needs for an active,mixed use "urban village". Finally,
the TDIP must meet the objectives of the Metro Functional Plan for a Town Center,as that
plan designates Tigard's downtown area as a Town Center.
The TDIP aims to provide the blueprint for the evolution of Downtown Tigard into a vital,
vibrant,mixed-use and pedestrian-friendly environment over the next 20-30 years. The TDIP
summarizes the rationale for, and the evolution of, the conceptual design plan. It identifies
development types and"catalyst projects",projects that are needed to jumpstart other
development in the area and create a climate for investment. It promotes a multi-modal
transportation system and concurrent development that is conducive to the planned evolution
of Downtown into a Town Center. How the neighborhood might change through property
development or redevelopment actions or as a result of transportation projects is critical to the
current and future lifestyle choices of the Downtown area.
The overall goal of the TDIP is to design a Downtown neighborhood...an "urban
village"...that integrates anticipated and desired changes into a clear and coherent
strategy;preserves what is desirable in the area, and promotes a public "green"and open
space character which is consistent with the City of Tigard's standards and its vision for
the community and its Downtown.
The TDIP is intended to prevent development from occurring in an uncoordinated manner,
having the potential to result in precluding the development of the higher-density,mix of uses
necessary to ensure a healthy and vibrant Downtown neighborhood. This plan is intended to
respect the flexibility of existing residents and property owners with regard to the use of their
property,while laying the framework for urbanization that will result in a distinctive, vibrant
neighborhood. The TDIP establishes a framework to guide public and private investment and
development in the Downtown area,resulting in a cohesive, functional, attractive and
"uniquely Tigard"Downtown neighborhood.
1
Downtown Improvement Plan
City of Tigard,Oregon
2. EXISTING PHYSICAL CONTEXT
2.1 Introduction
Downtown Tigard is located within a unique setting, and possesses a transportation network
and combination of existing land uses and physical features that present both opportunities
and challenges for planning. This section provides an overview of the physical context for
the DTIP.
2.2 Project Area
Plan Area Description
Located approximately seven miles southwest of downtown Portland, Tigard's approximately
146-acre Downtown core ("Plan Area")is bound by two state highways. Oregon Highway 99
West(OR 99W)defines the northwest boundary and Hall Boulevard(Beaverton-Tualatin
Highway)defines the eastern boundary. The Southern Pacific and Burlington Northern rail
lines bisect the Plan Area. The existing Fanno Creek Trail forms the southern boundary and
also connects the Plan Area with the Regional Trails System and the residential areas to the
south of the Downtown core. From the intersection of Hall Boulevard and OR 99W, the
elevation slopes gradually down through the Downtown until reaching the Fanno Creek
floodplain. Continuing south past Fanno Creek, the elevation gradually rises again. Given
this topographical setting, the Downtown Tigard core rests in a small, shallow valley and is
considerably lower than OR 99W,which displays very little grade change from the north to
south ends of the Plan Area.
Figure 1 indicates the vicinity and boundaries of the TDIP study area.
2.3 Existing Environment
Land Use
The existing uses in the Plan Area include retail, office,residential, auto-dependent
businesses, and large-lot light industrial businesses as well as public park and civic service,
and transit uses. Industrial uses are prominent to the southeast of the Plan Area. Retail
commercial uses are concentrated to the northwest along OR 99W,and residential districts
surround the Downtown core to the southeast and northwest. Based on a September 2003
Downtown land use and building inventory survey conducted by the City of Tigard,
approximately 38 percent of land in the Plan Area is occupied by commercial uses,including
office and retail as shown in the figure below. Industrial uses comprise approximately 14
percent of the land area, and government uses, including City services, transit services, and
the US Post Office occupy approximately 18 percent of the land the Plan Area. The next
largest use by land area is public parks,which occupy 16 percent of the land. Multi-family
land use occupies approximately eight percent of the land area, and less than two percent
each is classified as vacant land, single family, single family attached, or institutional.
Lot sizes within the Plan Area vary widely. The average lot size is just less than one acre,
while the maximum lot size is approximately 15 acres. The more compact lots are found
along Main Street and on the south side of the Southern Pacific and Burlington Northern rail
lines. Larger lots are concentrated along Fanno Creek and the southern half of Hall
Boulevard. Existing area land use and zoning is depicted in Figure 2.
2
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Downtown Improvement Plan
City of Tigard,Oregon
Land Use by Acreage
01% ❑ 1% ❑Commercial
■2% o Government
❑ 16% ❑Industrial
❑38% ❑Institutional
08% E Multi-Family
❑2% ❑Park
❑Single-Family
❑ 14% ❑Single-Family Attached
FLI 18% ■Vacant
Transportation System
All of the roadways within the project study area are two lane roads with the exception of
Hall Boulevard and Oregon 99W. Hall Boulevard is a two-lane road north of Burnham Street
and a three-lane road south of Burnham Street. There are bike lanes on both sides of Hall
Boulevard. The roadway is ODOT jurisdiction and classified as a District Highway. The
posted speed limit is 30 miles per hour near 99W and 45 miles per hour near McDonald
Street. The Metro Regional Transportation Plan calls for widening Hall Boulevard to a five-
lane road through the project study area. A major consideration in the Hall Boulevard project
should be developing a street design that accommodates all modes of transportation and
provides the connectivity needed between the new Tigard library, City Hall and Downtown
Tigard. Oregon 99W through the project study area is a six-lane roadway under ODOT's
jurisdiction. It is classified by ODOT as a Statewide Highway on the National Highway
System.
The current use of the railroad tracks for switching operations has a negative impact on traffic
patterns on both Hall Boulevard and Main Street,with long lines of vehicles waiting as trains
block the roadway for extended periods of time. The Washington County Commuter Rail
Project,which forecasts start of commuter service between Wilsonville and Beaverton in fall
of 2008,will drastically alter the appearance and character of the railroad through Tigard.
Replacing the system of older tracks will be a modern two-track, fast-moving state-of-the-art
passenger and freight railroad built to heavy-duty standards. With 40-plus train movements
daily during the week(32 commuter and eight freight trains), the Beaverton-Tigard rail
corridor will become one of the busiest segments of railroad in Oregon.
5
Downtown Improvement Plan
City of Tigard,Oregon
Natural Environment
Downtown Tigard is bordered to the southwest by Fanno Creek and its associated riparian
features. Fanno Creek flows from the intersection of Southwest Capitol Highway and
Beaverton Hillsdale Highway(near Wilson High School)to the Tualatin River in the town of
Durham. Fanno Creek and its tributaries drain about 7,800 acres of residential land, open
space and undeveloped forested areas. The watershed supports diverse wildlife species
including amphibians, reptiles,birds, fish and mammals.Although half the land is open space
or undeveloped, the area's steep slopes and clay soils create relatively high stormwater
volumes. The lower portion of the watershed is heavily urbanized.
Fanno Creek flows for approximately nine tenths of a mile within the Plan Area along its
southwestern boundary. Several delineated wetlands are associated with Fanno Creek within
the Plan Area,and Fanno Creek's 100-year floodplain ranges from approximately 50 feet on
either side of the creek's centerline near Main Street to approximately 375 feet on either side
of the creek's centerline near Ash Avenue.
2.4 Conclusions
Land use,along with transportation, economic development,and urban design, is a central
component to creating the best conditions for a vibrant downtown. The current land uses are
lacking in medium to high-density residential dwellings and are dominated by commercial
development and light industrial/office buildings with little pedestrian-friendly orientation.
Outside of Main Street,the existing buildings do not create a sense of place and cohesive
function,but rather appear to be spread out and auto-dependent.
Developing improved vehicular circulation within the downtown area and between
Downtown and other activity centers within the community and improved bicycle and
pedestrian connections are needed to provide for easier access and choice in mobility.
The advent of Commuter Rail service will drastically alter the appearance and character of
the railroad through Tigard. This presents both an opportunity and a challenge with regard to
providing for transportation choice and influencing development Downtown. The railroad
tracks themselves present a challenge regarding delays to traffic and concerns with safety.
The presence of Fanno Creek, its floodplain and associated wetlands present a unique
opportunity for the future Downtown neighborhood. Such close proximity of a quality
environmental resource will allow for recreation and active or passive open space not
frequently seen in a downtown area.
6
Downtown Improvement Plan
City of Tigard,Oregon
3. DESIGN PROCESS OVERVIEW
3.1 Introduction
In developing the Plan,a phased, iterative process was used to get from current reality to
recommendations for the future. Initial research,followed by brainstorming and community
dialog led to formation of a vision for downtown. Visioning led to discussion and analysis of
alternatives,and consideration of alternatives led to identification of projects and
implementing actions. The following sections portray how the City's history of forward
thinking set the stage for the visioning and planning to come.
3.2 Forming the Foundation
Prior to engaging in"looking forward"and envisioning a future set of desired outcomes, it is
necessary to have a firm foundation of information,a sense of"where we've been"and
"where we're starting from". Federal, state,and local plans and regulations have an impact
upon the development of a town center and downtown improvement plan for Tigard. Talking
with citizens,Downtown Task Force members and City staff helps to provide a bit of history
with regard to previous efforts,the lay of the land and community perceptions. Finally,an
examination of existing conditions associated with land use and development,transportation
facilities and services,and the local and regional economic climate yields information on
opportunities to pursue,and constraints to avoid.
Previous Plans and Studies
The City of Tigard's long-standing partnership with its citizens and commitment to creating a
vibrant downtown is evident in the efforts begun in the early 1980s to empower citizen task
forces. Although the appearance and function of the Downtown core has not changed during
the past 20 years, it is not because of a lack of effort, study,and collaboration. The present
planning process leading to the development of a specific action plan for Downtown
improvement does not ignore the past work by the Tigard community; rather, it builds upon
it. A partial listing of the key plans and studies that helped form the foundation of the current
effort is summarized below.
Oregon Downtown Development Association Resource Team Report
The 2000 Resource Team Report, written by the Oregon Downtown Development
Association(ODDA)for the Tigard Central Business District Association,provided findings
and recommendations for Downtown revitalization generated by ODDA's three-day intensive
visit to Tigard. It contained opinions of local business owners, a market analysis,and
identified possible improvement concepts primarily focused on Main Street. The report
provided recommendations on:
➢ Strengthening Image and Sense of Place
➢ Enhancing and Creating Public Space
➢ Encouraging appropriate use and design of private space
Tigard Beyond Tomorrow
Beginning in 1996 residents, City staff,business owners and community leaders came
together to define a vision for the entire City of Tigard on issues of public safety, urban and
public services, schools and education, growth and growth management, transportation and
7
Downtown Improvement Plan
City of Tigard,Oregon
traffic, and community character and quality of life. Tigard Beyond Tomorrow contained six
specific visions or"Direction Statements", one for each of the major subject areas, and a set
of guiding statements that serve as the overall guide for this planning and visioning effort.
Goals defined within the Community Character& Quality of Life section of Tigard Beyond
Tomorrow that directly affect Downtown Tigard strive to achieve a future where "The Main
Street area is seen as a `focal point' for the community,"and where"a clear direction has
been established for a pedestrian-friendly downtown and is being implemented."
Downtown Tigard Survey
In an effort to better understand the reasons people use Downtown Tigard and to inform the
Downtown Improvement Planning process, Tigard's Downtown Task Force conducted a 10-
question community survey in Spring and early Summer 2004. The Task Force visited local
community groups, city committees, local events such as the Balloon Festival and the
Farmers' Market, and met with local business owners. At these events, the Task Force
provided an overview of the process and asked people to fill out the survey. The survey was
self-selected. The results as tabulated in September 2004 provide a snapshot of how the 588
survey respondents, 61 percent of whom live in Tigard,view the existing Downtown,why
they use it, and what they think about it.
State, Regional and Municipal Plans and Policies
In addition to the above-mentioned downtown-related studies,pertinent State,regional and
local plans, administrative rules and codes were reviewed for relevance and with regard to
potential guidance for the DTIP. These sources included:
➢ Oregon's Statewide Planning Goals
➢ Oregon Administrative Rule on Transportation Planning
➢ Oregon Transportation Plan
➢ Oregon Highway Plan
➢ Metro's 2040 Growth Concept and Framework Plan
➢ Metro Title 6: Requirements For Town Center Planning
➢ City of Tigard Comprehensive Plan
➢ City of Tigard Transportation System Plan
➢ City of Tigard Development Code and implementing ordinances
Baseline Research/Opportunities and Constraints
To further form the foundation for planning, a detailed analysis of the local economy,land
uses and transportation system was performed. An Existing Conditions/Opportunities and
Constraints Report(Appendices A,B and C)describes planning and transportation baseline
information for the Tigard Downtown Improvement Plan(TDIP). The purpose of gathering
and analyzing this information was to:
➢
Summarize and briefly analyze the existing land use, natural environment and
transportation system conditions and issues within the study area.
➢ Summarize the planning and regulatory context of this project and to highlight those
policy,planning and regulatory requirements that may have an impact upon the
TDIP.
➢ Briefly discuss which aspects of the information could be considered as opportunities
or as constraints toward achieving the objectives of the Plan.
8
Downtown Improvement Plan
City of Tigard,Oregon
3.3 Outcomes-Based Vision
A"vision"is a statement picturing a future, an end-state, of desired outcomes. Too often
future plans are prepared on the basis of trying to keep up with a projected trend or scenario.
By taking the time to look at current circumstances and resources, and entering into public
discussion of desired outcomes for the future, a community can take control of their future by
taking actions that are aimed at fulfilling clearly stated objectives. The City's history of
thinking about the future of its downtown provided a natural platform for developing a clear
statement about a desired future.
The Downtown Task Force examined the foundation of information, and painted a picture of
how they pictured their desired Downtown, 20 to 30 years in the future. The result of this
work is reflected in the upcoming section, "The Plan".
3.4 Guiding Principles
How do you know when you've been successful? What criteria do you use for evaluating
proposed ideas and alternatives? By taking the"visioning"conversation further,the Task
Force articulated the tests that would be used when different proposals for carrying out the
vision were raised. The guiding principles established by the Task Force for the planning
work they undertook to achieve the vision are contained in the discussion of guiding
principles in the section entitled"The Plan".
3.5 Community Outreach
For any plan to be successful,there must be broad-based citizen and stakeholder input. This
facilitates "buy in" and ownership of the Plan. The current effort to develop the Tigard
Downtown Improvement Plan has been citizen-based, and has been led by the City's
appointed Downtown Task Force.
Downtown Task Force
Meeting on a monthly basis,the Downtown Task Force's meetings were advertised and open
to the public, and the public in attendance was offered the opportunity to participate in
discussions and to offer comments and advice. The following discussion provides an
overview of the major Task Force and public participation components of the planning
process.
The Task Force,working as a committee of the whole or in smaller"working groups,"
actively participated in the development of all facets of the Plan. In keeping with this
direction,the monthly meetings of the Task Force were frequently supported by work
sessions with the consulting team. The Downtown Task Force conducted two rounds of
smaller-group public meetings ("Community Dialogs")to discuss the plan and obtain
comments and advice,reaching over 280 citizens in the process. Task Force members also
actively participated in the two major public events conducted in support of developing the
plan.
Community Dialogs
As noted above,the Task Force conducted smaller-group meetings with a variety of interest
groups and stakeholders to explore issues, concepts and priorities for a future downtown.
The purpose of the Dialogs was to engage the public in a structured,creative and well-
documented conversation about the TDIP: its overall purpose, key products, and specific
opportunities for public input. In October 2004, during the initial round of Dialogs, 26 public
meetings were held by the Task Force and City staff to discuss and obtain comments on the
9
Downtown Improvement Plan
City of Tigard,Oregon
project, opportunities and constraints,the vision and guiding principles, and the preliminary
design concept. Following a workshop and several other special-focus meetings, a second
round of 24 Dialogs was held in the spring of 2005 to again share information at the smaller-
group level and obtain comments and advice on a much-refined concept plan,potential key
projects, and initial ideas regarding plan implementation. All told,over 280 citizens
participated in the Design Dialog sessions.
Prior to each round of Dialogs, an outreach packet was prepared to assist the Task Force
members in conducting them. These packets contained general background information, a
vocabulary and descriptions of urban design concepts, supporting graphics, and suggested
questions and discussion points.
Public Workshops
Two major public events were held in conjunction with the plan development process. An
initial public workshop was held on December,4,2004, to present the vision, guiding
principles and plan concept, and to discuss and receive input on the"great ideas"that would
eventually be fleshed out into key "catalyst projects"that would create a climate for
investment and stimulate development. Following substantial further work on the plan,the
Task Force held a second major public event, a community open house,on April 23,2005.
This event focused upon sharing the Preferred Design Alternative with the public, discussing
how the plan could be financially implemented, and providing an overview of the next steps
in completing the plan. The open house featured a panel of elected and appointed state,
regional, county and local elected and appointed officials, discussing potential sources of
funding,the intergovernmental and public-private partnerships required to carry out the plan,
and how citizens could play a role.
Special-Purpose Outreach
As the project progressed, it became apparent that the project, stakeholders and the
community at large would benefit from additional,topic-specific outreach and
communication. Accordingly,the scope of the project was amended to accommodate three
special-purpose outreach forums to address:
➢ Coordination of multi-agency transportation issues;
➢ The role of Ash Avenue and its potential extension across Fanno Creek; and
➢ The development feasibility of the proposed plan concept, in which a group of local
and regional developers were invited to participate in a"reality check"on the draft
TDIP concepts.
Memoranda providing an overview of these three forums (and summary meeting notes) are
provided in Appendix H to this document.
Technical Advisory Committee
In addition to the Task Force's leadership,the City of Tigard convened Technical Advisory
Committee (TAC)to provide technical input and review of project issues and products. The
TAC met four times during 2004 and 2005,providing input on a wide range of issues. In
addition to City of Tigard staff,the TAC included representation from:
➢ Washington County,Dept.of Land use and Transportation
➢ Oregon Dept.of Transportation(Rail,Traffic,Transpt&Growth Management)
➢ Metro
➢ TriMet
)0- Oregon Dept.of Land Conservation and Development
10
Downtown Improvement Plan
City of Tigard,Oregon
Task Force Working Groups
The Downtown Task Force formed three Working Groups to address projects,tools and
techniques for carrying out the plan in three categories: Financing; Catalyst Projects; and
"Brand Tigard"projects. An overview of the charge of each of the three implementation
Working Groups is provided below.
➢ Catalyst Project Working Group
Charge: What are the major projects or developments that will serve as the"catalyst"
for generating momentum...for leveraging additional progress and additional
development? A"catalyst"project is a significant improvement,one that helps
create a climate for additional development and investment by substantively altering
the development environment and generating related or complementary development
efforts. In addition,what actions need to be taken to pave the way or create the
climate conducive to carrying them out?
➢ "Brand Tigard"Working Group
Charge: Discussing and identifying the many small projects that help create an
identity or"brand"help focus attention on Downtown, and generate and maintain
momentum. Successful downtown planning efforts are supported by many small
projects that help create an identity or"brand",help focus the public's attention and
generate and maintain momentum. Using the Guiding Principles as a framework,
what are those projects and activities, and how can they help achieve them?
➢ Finance Working Group
Charge: Identify the funding sources and financing tools available to pay for major
and minor improvements, and provide direction on what sources or tools might be
appropriate for Tigard in carrying out the Guiding Principles and funding the catalyst
projects. What are the funding sources and financing tools available to pay for these
improvements...initially and over time? What sources or tools are appropriate for
Tigard, and what is the City willing to "put on the table"to generate momentum and
attract investment?
The three Working Groups made their recommendations to the Task Force and the consulting
team. The recommendations of the Working Groups guided the preparation of the Preferred
Design Alternative (specifically with regard to the identification and location of catalyst
projects), and informed the identification of all other implementation projects, actions and
programming recommendations.
3.6 Decision Making Process
Introduction
The City of Tigard,through its Downtown Task Force, directed its staff and consultants in
applying their expertise to help the community develop its vision and plan for improving
Tigard's downtown. The planning process was to be open and transparent, and was to be the
community's plan, not that of the consultant, or any one interest group. This section speaks to
the key steps in the development and evolution of the conceptual plan for Downtown:
➢ Education and identification of key urban design concepts as they pertained to
Downtown;
11
Downtown Improvement Plan
City of Tigard,Oregon
➢ Engagement in a visioning exercise; and
➢ Evolution of the conceptual plan from an Initial Alternative to a Preferred Design
Alternative.
Key Urban Design Concepts
The Task Force launched the planning process by holding a walking tour through the study
area with the consulting team in order to share perceptions, ideas and desires for what
downtown Tigard might be like in the future. The Task Force members then took individual
walking tours to identify places and features that would help form an opportunities and
constraints map to serve as the foundation for an initial design concept. After an"Urban
Design 101"course, Task Force members were asked to identify:
➢ Where were the "pathways": channels along which people customarily,occasionally
or potentially move?
➢ Where were the "edges": linear barriers that restrict lateral movement?
➢ Where were the "districts": multiple-block"mini-neighborhoods"which people can
go mentally inside of, and which have some common identifying characteristics or
association?
➢ Where were the "nodes": block-size or smaller"points"of concentrated activity
through which people pass?
➢ Where were the "landmarks": singular features that contrast with their background,
occupy a prominent location or distinctly define a place?
This activity and the information it generated helped prepare the Task Force for their smaller-
group discussions with the public,described above under"Community Dialogs". The
compilation of the Task Force's identification of these urban design features Downtown
informed the development of the Initial Design Alternative,and is depicted in Figure 3.
Visioning and Design Concepts
The following generalized steps were completed to determine the community's vision for
their Downtown:
➢ Begin with the end in mind thinking in terms of consequences of potential scenarios,
and of the tools and actions that might be needed to carry them out.
➢ Think about how Downtown might change over time without having a plan.
➢ Identify what things the community and stakeholders are concerned about,and what
opportunities they see.
➢ If you were to go away for 10 to 20 years,and then return to Tigard and take a walk
through Downtown,what would you see? What did you see that you liked? What
didn't you like?
➢ Develop your vision of an improved Downtown of the future.
➢ Identify measures of success to be used as guiding principles in preparing the plan
and evaluating concepts discussed through the planning process.
➢ Develop an initial design concept for carrying out the vision,based upon what's
known collectively about the area.
➢ Brainstorm ideas, generate discussion and ascertain reactions to concepts in large and
small-group workshop and discussion settings. and reaction generate public
➢ Test concepts against the guiding principles
➢ Refine the concepts,and clarify the projects and implementing actions needed to
carry them out.
➢ Provide clear guidance to the community on how to achieve the vision, guiding
principles,projects and outcomes identified within the Plan.
12
Downtown Improvement Plan
City of Tigard,Oregon
As mentioned in the Technical Memorandum discussing the"Evolution of the Conceptual
Design Plan",the TDIP process was evolutionary in nature. In this process,three successive
iterations of a conceptual plan would be developed: an Initial Concept; a Refined
Alternative;and a Preferred Design Alternative". This iterative process was informed by
community participation throughout.
Evolution of the Plan
Three iterations of the conceptual plan for Downtown Tigard were prepared during the course
of this planning effort: an Initial Concept; a Refined Alternative; and a Preferred Design
Alternative. These iterations had a common foundation, depicted by the Figures 1 through 4,
and defined as follows:
1. The Bones (Figure 4). The existing transportation system of local roadways, state
highways and the railroad constitute the"bones"upon which the plan is based. The existing
freight railway will be sharing the same right-of-way as the planned future Commuter Rail,a
key component of the downtown environment. Key roadways upon which downtown
depends are Commercial and Tigard Streets, west of Main Street and parallel to the railroad;
State facility Hwy 99W, major arterial Hall Boulevard; and three important downtown
collectors—Main, Scoffins and Burnham Streets.
2. Key Opportunities For Enhancement(Figure S). The planning team next looked for
opportunities for enhancing access, service and movement within the study area. These
included a number of key intersections involving the"bones"mentioned above and the Fanno
Creek trail. In addition,the downtown collectors and Hall Boulevard were identified as
having the opportunity for significant streetscape enhancement, consistent with the desire
heard through the Design Dialog and Task Force discussions for"green streets".
3. Conceptual Frame (Figure 6). Adding to the infrastructure upon which the iterations of
the plan would be hung was the concept of a"green cross",with the intersection near the
future Commuter Rail station. The"green cross"concept arises out of the statement in the
vision recognizing that natural resources are to be viewed and used as an asset,and the
guiding principle that"Downtown should recognize the value natural resources provide as
both an amenity and as a distinct and special place."The Design Dialog and Task Force
discussions clearly indicated a desire to build upon the natural features of the community,
particularly Fanno Creek.
Discussions turned to two questions: how best to conceptually or physically link downtown
to Fanno creek, and what to do with the possibility of excess railroad right-of-way transecting
the study area? What key clues did this provide for an initial design concept? The initial
concept of providing"green fingers"...natural or open-space corridors that would bring the
environment into the city...spawned the discussion of a"green cross"; a green corridor/urban
creek running from Fanno Creek to the northern portion of Downtown,and the potential
opportunity provided by excess railroad right of way for a pedestrian pathway running
primarily east-west
4. Conceptual Organization (Figure7). Building upon the bones,the opportunities for
enhancement of existing infrastructure and the concept of the"green cross",the Task Force
set about conceptually organizing future land uses to build upon what they liked that
currently existed,and to take advantage of potential opportunities, such as:
➢ The commercial potential near the intersection of Hwy 99W and Hall Boulevard
13
Downtown Improvement Plan
City of Tigard,Oregon
➢ The opportunity for residential and mixed uses within walking distance of the
commuter rail station
➢ The active and passive open space opportunities afforded by Fanno Creek
➢ Building upon the historic retail location of Main Street
➢ Focusing office, employment and some residential uses east of Ash Avenue
These four primary steps set the stage for the work of the Task Force in developing the Initial
Concept plan,and in identifying"catalyst projects"...key projects that would help jump-start
the process of downtown's improvement and create the climate of investment attractive to
developers. The evolution of this design concept will be briefly discussed below and
illustrated in accompanying Figures 8 through 10.
Initial Design Alternative
The Initial Design Alternative was a"bubble diagram"illustrating initial land use and
circulation concepts(see Figure 8). Based upon identified opportunities and constraints and
the initial vision and guiding principles for the TDIP,this graphic roughly suggested:
➢ where key transportation(vehicular and pedestrian) linkages might be needed;
➢ where potential concentrations of retail,housing and employment uses might be
generally located; and
➢ where opportunities existed for improving the overall access to and potential use of
Fanno Creek.
Refined Design Alternative
Informed by the Design Dialog smaller-group meetings and Task Force work sessions,the
work associated with the Refined Design Alternative (Figure 9)took the initial concept quite
a bit further through three main concepts:
1. Great Ideas: The consulting team took the suggestions
and comments received from the public and the Task
Force and synthesized them into "Great Ideas"that would
later be fleshed out into key"catalyst projects",projects
that would create a climate for investment and stimulate Vision and Guiding
development(attached to this memorandum). PClnCiples
2. Districts: The Refined Design Alternative organized F
the downtown into "districts": multiple-block"mini- Z "Great Ideas"
neighborhoods"which have some common identifying W `Initial ae5ign Alternative
characteristics or association. This step helped the Task
Force and the community understand and further develop J
the relationship of various land uses to the others,and to
7 Workshop#1
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compatibility. v Alternative
3. Development Feasibility: The Refined Design m
Alternative illustrated how potential development types 7
could be situated within the various districts. These d Workshop#2
prototypical, fictional building footprints were meant only Preferred Design
to show possibilities, and did not take property
Alternative
ownerships and most existing buildings into account.
This spatial/graphic organization of development types Implementation
helped to convey a sense of or one scenario (of infinitely -Actions
14 -Updates
Downtown Improvement Plan
City of Tigard,Oregon
many) for how development could populate the districts downtown. Now that it was known
that"it could be done",attention could turn to the identification of catalyst projects and
further refinement of outstanding issues.
Preferred Design Alternative
The Preferred Design Alternative further reflected changes resulting from the Task
Force's consideration of the extensive public comment received. The most noticeable of
these concerns the treatment/extension of Ash Avenue,the location of a Performing Arts and
Community Recreation Center, how access points to Downtown would be addressed, and
additional refinement to the treatment of Fanno Creek and related resources. The Preferred
Design Alternative is further discussed and presented in the section discussing The Plan,
below.
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Downtown Improvement Plan
City of Tigard,Oregon
4. THE PLAN
The types and arrangements of land uses,transportation facilities,public and private sector
projects and activities greatly affect the character of a Downtown. The efforts of the
Downtown Task Force and the community at large described in preceding sections are
reflected in the Downtown Improvement Plan, summarized in this section.
4.1 Vision and Guiding Principles
The Vision
Following the initial"grounding"and perception-sharing process, the consulting team
worked with the Downtown Task Force in a workshop setting to develop a 20 to 30-year
vision for Downtown Tigard. The following vision was generated by the Task Force:
"Our vision of Downtown Tigard is a vibrant and active urban village at the heart
of our community that is pedestrian oriented, accessible by many modes of
transportation, recognizes and uses natural resources as an asset, and features a
combination of uses that enable people to live, work,play and shop in an
environment that is uniquely Tigard."
Guiding Principles
To ensure the planning effort was focused toward achieving the vision,the Task Force
developed a set of guiding principles reflecting desired outcomes. The guiding principles,
also served as criteria against which the Task Force evaluated the success of the various
iterations of the concept plan. These Guiding Principles are as follows:
➢ The vision for an improved Downtown Tigard must reflect the community's
values and cultures.
➢ Downtown Tigard should possess the qualities essential to successful
downtowns, including:
o Extended hours of operation...not"folding at 5:00"
o A mix of employment,retail,housing and cultural/entertainment
uses
o Providing a unique experience not available elsewhere in the
community
o Possessing a"sense of place"with a special identity
o Being seen as the"center"or the"heart"of the community
o A vibrant and compact core,accessible by all modes of
transportation
o A feeling of accessibility and safety
o Accessibility in varied climatic conditions (e.g., throughout the
various seasons of the year)
➢ Downtown should recognize the value natural resources provide as both an
amenity and as a distinct and special"place".
21
Downtown Improvement Plan
City of Tigard,Oregon
➢ Planning for Tigard's Downtown should capitalize on commuter rail and
Fanno Creek as catalysts for future investments and development.
➢ The Downtown's transportation system should be multi-modal, connecting
people,places and activities safely and conveniently.
➢ Downtown Tigard's streetscape and public spaces should be pedestrian-
friendly, and not visually dominated by the automobile.
➢ The Downtown Improvement Plan should be forward thinking,with
objectives and actions that will set the community up for future successes.
➢ Downtown improvement projects should make creative use of unused and
underutilized properties, while maintaining and building upon Tigard's
history.
➢ The Downtown Improvement Plan should be outcomes-based and action-
oriented,with an array of key signature projects capable of being carried out.
➢ City codes and regulations should enable the Downtown Improvement Plan's
vision to be carried out,recognizing the difference between Downtown and
other commercial centers.
4.2 Great Ideas
The suggestions and comments received from the public and the Task Force during public
outreach events were synthesized into "Great Ideas". These ideas involved things that could
make Downtown Tigard truly unique, things that would later be fleshed out into key"catalyst
projects"that would create a climate for investment and stimulate development. The Great
Ideas included the following:
Evolution of Main Street: A two-sided retail street with unique small-scale shops bordered
to the south by a pedestrian promenade with pocket parks, fountains and plazas.
The Heart of Downtown: A central gathering place adjacent to Fanno Creek supporting a
diverse range of activities including a farmers market, entertainment, restaurants, retail and
housing.
Mixed Use Urban Village: A walkable village with ample opportunity for all ages to live,
work and play
A New Transportation System: A safe and well-connected street system providing
walking,bicycle, auto and transit access throughout Downtown.
Green Connections: A pervasive blend of pedestrian oriented natural features throughout
Downtown including wide sidewalks, linear parks,water features, trees, native landscaping,
pocket parks and plazas, and etc.
Transit Options: Service and facilities enhancements designed to meet the needs of
Tigard's growing Downtown employment, residential and visitor populations.
22
Downtown Improvement Plan
City of Tigard,Oregon
4.3 Preferred Design Alternative
The Preferred Design Alternative(Figure 10)took the prototypical development"footprints"
off the map, indicating instead the general location of development types. In addition,the
Preferred Design Alternative reflected changes due to the Task Force's consideration of the
extensive public comment received. The most noticeable of these concerns Ash Avenue. A
proposed extension of Ash Avenue across Fanno Creek into Downtown was removed,as was
a proposed at-grade crossing of the railroad tracks. Should a need be identified in the future
for these,the configuration of the plan would not preclude it. A Fanno Creek overlook and a
pedestrian bridge linking the neighborhood east of the creek have taken their place. The
general location of a possible performing arts and/or community recreation center was
adjusted to provide some additional distance from emergency services facilities (primarily for
siren noise considerations). In addition,key intersections/access points to Downtown were
highlighted to reflect their special role and potential location for future gateway
improvements. Finally,the Fanno Creek"public area"was presented in a more generalized
manner,reflecting that no firm decisions were to be made at this time with regard to the
specific uses and design considerations for this space be it active,passive,or some
combination thereof.
As referred to above,the organizational concept of"Great Ideas"resulted in the generation of
eight,key"catalyst projects",those that would create a climate for investment and stimulate
development. The locations of these catalyst projects are described in the section that
follows,and identified on the Preferred Design Alternative graphic.
4.4 Catalyst Projects
The term"catalyst project" is used within this Plan to refer to complex projects having the
ability to substantively alter the development environment in the study area. These projects
represent key components of the overall plan,and their development would be expected to
serve as a catalyst for development in the study area consistent with that outlined in the plan.
In most instances, each catalyst project is an idea or a program requiring a refinement study
to pin down a concept,a location,a footprint or criteria for subsequent development
proposals.
Eight catalyst projects were identified by the Downtown Task Force and the Catalyst Project
Working Group. Each of these projects is noted on the Preferred Design Concept map
(Figure 10),and a brief description of each one,and its attendant benefits, is provided below.
In the short description of each catalyst project,the proposed preliminary"set-up"tasks or
refinement study is briefly described. As will be noted in the Implementation section of this
Plan, initial recommendations for programming and carrying out these components have been
provided in Appendix J to this document.
As indicated throughout the TDIP,the Plan is a dynamic framework for action,and as such,
is to be revisited on a regularly scheduled basis to recognize changes in resource availability,
external conditions, changes in public preference for action or for geographic concentration
and to take advantage of opportunity. Accordingly,the priority of catalyst projects,programs
and supporting actions is best left to the recommended,regularly scheduled TDIP
programming update to reflect the aforementioned influences.
23
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Downtown Improvement Plan
City of Tigard,Oregon
Streetscape Enhancement Program
Streetscape improvements enhance the"public space"environment,and would include an
overall streetscape design theme for the Downtown area,and design and street function
improvements to specific streets,gateways,public spaces,rail crossings and the commuter
rail station.
Increasing the attractiveness of public spaces has a positive impact on local properties,and
can encourage cross-shopping and more extended stays in the district. A positive public
space will help attract development. Improvements would include streetscape design and
street function improvements for Burnham, Main, Commercial, and Scoffms, and
gateway/portal improvements at Scoffins, Main, Garden Place, and Tigard Street.
Green Corridor/Urban Creek
The concept of developing an"urban creek" seeks to establish a unique feature that reinforces
the concept of a"green downtown",providing a thematic linkage to Fanno Creek, and
helping to establish a unique identity for Downtown Tigard. Connecting the two anchors of
Fanno Creek and the Regional Retail Area(another of the proposed catalyst projects)at Hall
Boulevard and 99W,the Urban Creek could be a natural appearing creek,portions of a creek
or a series of water features linked by plazas, or some other combination of water and public
space/amenity. The Urban Creek would be integrated with new and existing development,
providing an alternative"front door"to redeveloped properties along its length. In addition
to the creek or water features,this major public amenity would be accompanied by plazas or
open spaces,pedestrian walkways,a service road,and landscaping.
This project would have an organizing impact on the study area,defining a clear pedestrian
link and providing an amenity that future development can capitalize upon. Future projects
bordering the green corridor would be encouraged to orient activities to take advantage of the
"waterfront"or public space value of this amenity. In addition, depending upon final design,
the Urban Creek could serve as a means for stormwater conveyance and treatment, or could
potentially demonstrate the use of recycled water. Regardless, this project serves the dual
role of development stimulant while connecting Downtown areas.
Determining the design concept, form and"footprint"of the Urban Creek requires a detailed
feasibility study to ascertain public preference,preliminary design, constructability and cost.
It will be important to protect the potential footprint of this amenity pending completion of
the feasibility/preliminary design work. For this reason, a temporary overlay zone or other
method of ensuring review and coordination of potential development proposals that might
have the ability to limit or preclude options for its location is being proposed.
Hall Boulevard Downtown Gateway
Hall Boulevard provides a natural gateway into Downtown Tigard, given its intersection with
Highway 99W. This key gateway with its prominent visibility from Hwy 99W is proposed to
be developed with regional mid-sized retail with parking and a public plaza space. The
purpose will be to pull people into Downtown and start to draw them further to Main Street,
the Green Corridor/Urban Creek,Fanno Creek Public Area,and etc.,and to jumpstart
development in the area. Planned intersection improvements at Hall Boulevard and Highway
99W will require public acquisition of some key properties,and may provide an opportunity
to offset some of the costs of this project.
This project would offer a number of benefits for the study area. It would create a strong
entry statement for the district from Highway 99W and Hall. In addition,the project could be
designed with linkages to the remainder of the study area, generating activity and adding
25
Downtown Improvement Plan
City of Tigard,Oregon
amenities that would be valuable to future development activity in the study area. An
example of this would be linking the development with the upper portion or"genesis"of the
Urban Creek and Green Corridor. As with the aforementioned Urban Creek,determining the
design concept,form and"footprint"of the Hall Boulevard Downtown Gateway requires a
detailed feasibility study to ascertain public preference,preliminary design criteria to guide
future proposals to carry out the Gateway and associated development.
Downtown Housing Development
The Plan anticipates creating more housing of various types in several locations in
Downtown. The intent is to bring more people into Downtown as residents. This will
activate the Downtown throughout the day and into the evening. Housing development in the
downtown will provide a number of benefits, including increased support for local services
such as retail. In addition,residential development can provide a greater number of"eyes on
the street", increasing the perception of security in the district. Residential development in
the area is also supportive of transit,and can capitalize on the planned commuter rail line.
The Plan identifies generalized locations for housing,favoring the concept of moderate to
higher-density mixed use development,with housing availability for a wide range of income
levels. Carrying out this catalyst project concept requires undertaking an initial housing
policy study to identify housing needs,affordability and design guidelines,property
consolidation needs,availability and applicability of funding and/or incentives,and etc.
Ash Avenue Downtown Improvement
This project provides for street and public space improvements to Ash Avenue between the
planned Park and Ride and the Fanno Creek floodplain. Improvements will include a new
bike and pedestrian bridge,an overlook area for Fanno Creek,an at-grade pedestrian crossing
(with the desire for a vehicular at-grade crossing over the long term)and the extension of Ash
from Burnham to the Park and Ride. The City has committed funds for design,right of way
acquisition, and roadway improvements to Burnham.
Improved linkages between the Fanno Creek open space and downtown Tigard have
consistently been cited as desirable by the Downtown Task Force, and represent a key
component of the plan. These improvements have positive impacts similar to those outlined
in the streetscape enhancement program, with this project also directly targeting an important
linkage between the floodplain/open space and the commuter rail Park and Ride.
Fanno Creek Public Area
The Plan envisioned the"Heart of Downtown" as one of the Great Ideas explored
early in the process. This concept called for recognition and improvement of a central
open space resource and gathering place adjacent to Fanno Creek, supporting a range of
passive and active open space and public gathering uses. These could include such uses as:
➢ A home for the Tigard Farmer's Market
➢ A smaller, appropriately-scaled entertainment venue,perhaps a natural amphitheatre
for public concerts and other events
➢ Picnics, weddings, and other gatherings
The improvement of this area as a community amenity that acts as a gathering spot
while respecting the natural environmental character and needs of the Fanno Creek
area further advances the concept of a"green Downtown", respecting the valuable
Fanno Creek resource. The Fanno Creek area has consistently been identified as a key
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Downtown Improvement Plan
City of Tigard,Oregon
amenity in the district, with considerable emphasis in the Plan dedicated to increasing
linkages to Fanno Creek from the remainder of the study area. Creating an attractive public
area adjacent to the natural environment surrounding the creek will work towards further
capitalizing on this amenity, for both the district as well as the City of Tigard.
To further define the uses associated with this catalyst project, their location and scale, and
potential need for property acquisition, it is recommended that a feasibility study of the
improvement of the Fanno Creek Public Area be conducted in conjunction with the
examination and programming study to be conducted for the Performing Arts/Recreation
Center(see following section). Such a study should address the potential for an interim and
then"final"home for the Tigard Farmer's Market. As with the Urban Creek, a temporary
overlay zone or other method of ensuring review and coordination of potential development
proposals that might have the ability to limit or preclude options for future uses pending
completion of the study is being proposed.
Performing Arts and Community Recreation Center
Development of a Performing Arts and Community Recreation Center is seen as an
opportunity to create a community gathering place for the arts and activities in the"Heart"of
Downtown that links visually and physically with the Fanno Creek Public Area across
Burnham Street. The purpose would be to bring day-round activity to the Downtown"Heart"
through the recreation center,provide a space for the performing and visual arts, and provide
a community gathering space while stimulating patronage of complimentary uses (e.g.
restaurants, coffee shops, etc.).
It is recommended that the City conduct an examination of the feasibility of the suggested
Performing Arts and Community Recreation Center,and of the programming to be associated
with them. It is further recommended that this study be coordinated with the aforementioned
Fanno Creek Public Area use and feasibility study. The program development study will
enable the city to determine the amount of funding needing to be raised for these
improvements,and provide the basic information for a bond levy, should the city pursue one.
Post Office Relocation
The Plan calls for shifting the location of the Post Office from Main Street to the border
between the"Heart"and the Civic District. The primary motivation for relocating the Post
Office is that the current facility is not seen as being supportive of desired activity on Main
Street. While the post office draws regionally and can generate a substantial level of traffic,
this activity is not typically seen as linking with other desired commercial activities on Main
Street. Shifting the facility to a location with better access and that is less disruptive to Main
Street would encourage development patterns consistent with those outlined in the plan.
The purpose would be to soften the transition between the"Heart"and the Civic District
while freeing up valuable retail space along Main Street. The current Post Office location is
owned by the USPS, and the agency would need to approve any suggested change of
location. As such an undertaking is a lengthy process, it is recommended that discussions
with the USPS be initiated in the near term.
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Downtown Improvement Plan
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4.5 Other Implementing Projects and Actions
In addition to the projects that have been identified as"catalyst projects",those seen as
having the potential to help "jumpstart"development and redevelopment activities,there are
a number of other projects and actions being recommended to help realize the public policy
objectives of this Plan,and its vision. These recommendations fall under several categories:
1. Transportation System Improvements
2. Land Use Implementation
3. Funding Sources
4. Organizational/Follow-Up Actions
The background behind these recommendations is provided within the Technical Memoranda
contained within the Appendices to this document. A brief summary of these recommended
projects and actions are described in the sections that follow.
Transportation System Improvements
Overall, the City's currently adopted Transportation System Plan (TSP) will accommodate
the Preferred Design Alternative without any significant impacts to the regional or local
transportation system in the study area. There are no modifications to the TSP recommended
at this time as being needed to help carry out this Plan.
As the TDIP is implemented, in addition to the continuous planning that will occur to achieve
the community vision,the following specific projects should be considered.
Near Term Actions:
➢ Plans and Policies. Continue implementing the plans,projects and policies
identified within the adopted TSP.
➢ Achieve consensus on alternative Downtown Access Improvements. Extending Ash
Avenue from Walnut to Downtown Tigard is included in the adopted TSP; however
some stakeholders would prefer that the street not be constructed. The City will be
undertaking an Ash Avenue corridor study to address the improvements identified
in the Ash Avenue Improvements catalyst project discussed above. It is
recommended that the City conduct an examination of potential alternatives for
improving access to downtown. Detailed travel demand to, from and within
Downtown and sub-area travel demand models should be developed to support this
process. If the identified access improvements do not include an extension of Ash
Avenue across Fanno Creek,it is recommended that the TSP be updated
accordingly to remove it.
➢ Review City Pedestrian and Bicycle Plans. The City should review and modify
current City pedestrian and bicycle planning efforts to ensure that these support
simple and feasible access to, from and within downtown Tigard.
➢ Explore design requirements for "Green Street"street treatments. The TDIP calls
for integrating Fanno Creek into downtown Tigard. As part of this effort, Tigard
should explore developing design guidelines for green-street street treatments.
Possibilities include integrating concepts into traffic calming treatments,
intersection control,drainage, and parking areas.
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➢ Hall Boulevard and Highway 99W Cross-Sections. As the City of Tigard begins
additional planning work related to Highway 99W and Hall Boulevard,it is
suggested the City work with ODOT as early as possible to refine and define cross-
sectional preferences and requirements for these streets.
➢ Street Design Guidelines. The City of Tigard should participate as needed with
ODOT and Metro Staff to develop Highway Design Manual street design guidelines
blending features of both ODOT and Metro Street design requirements.
Longer Term Actions:
➢ Parking Management Plan. Develop and implement a parking management plan
that ensures adequate short-term and long-term parking supply for residents,
employees and patrons of Downtown. This plan is not necessary until Downtown
begins to grow and parking utilization increases, but the study should be conducted
prior to constructing any structured parking.
➢ Downtown Access. The results of the Ash Avenue evaluation and Downtown
access study will guide short-term and long-term transportation actions within
Downtown that should be implemented in the long term.
➢ At-grade Rail Crossing. It is desirable within Downtown Tigard, that a new at-
grade crossing of the railroad tracks be developed along the Ash Avenue alignment.
City of Tigard Staff should continue to work with Portland& Western Railroad and
the ODOT Rail Division to identify options for achieving this crossing. Challenges
exist, and significant local and regional planning efforts and engineering and
constructions costs would be required to achieve consensus for a new at-grade
crossing.
Land use Implementation
Overall the existing Community Development Plan and Comprehensive plan ordinances and
policies do not present significant barriers to developing Downtown as conceived on in the
Improvement Plan. Nonetheless, a review of these documents revealed that although few
barriers exist, the ability of the existing regulatory framework to shape a growing Downtown
as planned, more direct guidance is needed. The following sections summarize the findings
of the Land Use Technical Memorandum recommendations. Programming considerations are
further discussed in the Implementation Strategy section of this Plan.
Comprehensive Plan
To be consistent with the vision of the Improvement Plan,the City needs to make some
relatively small adjustments to policy statements and implementation strategies within the
Comprehensive Plan. The recommendations are focused on emphasizing the multi-functional
character and vibrancy desired within Downtown and also allow for consideration of
additional funding mechanisms.
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Development Code
Given the desired characteristics for an improved Downtown Tigard and the analysis of the
current CBD zoning in the Community Development Code,it is recommended that four new
Town Center base zones and two new Town Center overlay zones be created for Downtown.
The recommended zones are designed to guide uses as they are organized in the Preferred
Design Alternative.
The City of Tigard already has several mixed-use zones that are specifically tailored to meet
the needs of other areas in Tigard. While built upon these existing mixed-use zones,the
recommended zones provide area-specific purpose statements and alterations to the
development standards that tailor them to meet Downtown needs.
Base Zones
The following"base"zones are recommended in order to help achieve the public policy
objectives and vision of the TDIP.
➢ TC-CBD: Town Center—Central Business District -Intended to retain the character
of Main Street while guiding higher density development to the east of Main Street,
this zone allows for mainly retail uses with some other uses considered conditional or
limited.
➢ TC-MUC. Town Center—Mixed Use Commercial District—This zone is designed to
meet the needs of the regional retail center area at the intersection of Hall Boulevard
and Highway 99W. It is focused on medium-box retail establishments but allows for
supporting smaller retail uses.
➢ TC-MUE: Town Center— Mixed Use Employment —Designed to provide for civic,
office and professional employment needs, this zone will also allow for limited
residential development, but is focused on office use. The purpose statement for this
zone specifies that no residential uses should be allowed adjacent to the rail corridor.
➢ TC-MUR: Town Center — Mixed Use Residential — This zone has two levels of
intensity TC-MUR(1) and TC-MUR(2) that provide for medium and medium to high
residential density districts. It allows for supporting retail uses.
Overlay Zones
As discussed earlier,the following"overlay"zones are recommended in order to help achieve
the public policy objectives and vision of the TDIP, and to ensure review and coordination of
potential development proposals that might have the ability to limit or preclude options for
future uses pending completion of recommended feasibility/refinement studies.
➢ Green Corridor/Urban Creek Overlay—As an interim step to achieving the Tigard
vision for a Green Corridor/Urban Creek in Downtown,this overlay zone directs the
City to review all development proposals through a conditional use process to allow
for consideration of development siting in relationship to a potential future public
space.
➢ Fanno Creek Open Space Overlay—The Improvement Plan and Vision for
Downtown call special attention to the stewardship and enjoyment of Fanno Creek.
A low-intensity,passive recreation area is planned between Burnham Street and the
Fanno Creek 100-year floodplain, and this overlay zone is intended to restrict
development uses only to passive recreation as an additional protective measure for
this critical area.
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In addition to the base zone and overlay zone recommendations,the Land Use Technical
Memorandum suggests that the City's Special Development Standards should be evaluated
further by the Land Use Advisory Group being established by the Downtown Task Force.
Some specific areas recommended for attention include:
➢ Pervious paving treatments
➢ Vegetated stormwater treatment
➢ The expansion of options for joint parking facilities
➢ Sign standards for Downtown
➢ Visual clearance requirements
The first two items noted above are not currently addressed within the Special Development
Standards for the Central Business District. The latter three items should be examined and
revised or augmented to reflect the vision and guiding principles contained within this Plan.
Design Standards
Tigard has previously developed design standards for the Tigard Triangle and Washington
Square Regional Center. In addition, some design standards exist within the regulations of
the CBD zoning designation. It is recommended that these existing standards be adapted and
used as appropriate as a basis for developing design standards for Downtown Tigard,
consistent with carrying out the vision and guiding principles of this Plan.
Measure 37
The recent passage of Measure 37,requiring waivers of regulations or compensation to
property owners if regulations have the effect of reducing a property's value,presents a
challenge to every Oregon jurisdiction, as communities are still determining how to address
it. Accordingly,the potential"Measure 37 impacts"of the Improvement Plan have yet to be
addressed. It is recommended that this issue be addressed by the City in consultation with the
state,Metro, and other local jurisdictions as soon as possible. Once Measure 37 issues are
addressed, the Improvement Plan may need to be revisited if adjustments appear to be
required.
Regulatory Framework Timing
The overlay zones, especially the Green Corridor/Urban Creek overlay zone,need to be in
place as soon as possible to provide protection of the land to be used for the Fanno Creek
Public Area and for the Urban Creek from future development actions that might compromise
opportunity and/or location of the future improvement. Concurrent with the adoption of the
overlay zones,the City will need to conduct a Measure 37 analysis of the recommended
zoning for Downtown Tigard. Following these actions, adjustments to Comprehensive Plan
should be refined and adopted to set the framework to guide the future refinement and
adoption of the changes to the Community Development Code.
Funding Sources
Specific public-improvement projects can come about as a result of local, state and federal
grants,private investment and donations,city general fund allocations and other sources of
public financing. A variety of funding tools,options and policies were discussed in the
process of preparing this Plan,and detailed information on these is provided in the
appendices to this document. This section will provide a brief overview of urban renewal, the
types of bonds typically used to finance urban renewal projects,and a brief list of other
funding sources available to the City for Downtown improvements.
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Urban Renewal
By far the tool with the greatest ability to generate substantial revenue for targeted
investments is the establishment of an urban renewal district. The projects outlined in this
Plan will require a substantial public investment, and an urban renewal district is one of the
few tools available that can generate adequate revenue to realize the Plan's vision.
The basic idea behind urban renewal is simple: future tax revenues pay for revitalization
efforts. Urban renewal funds can be used for a variety of investments, such as:
➢ Redevelopment projects;
➢ Economic development strategies, such as small-business loans or loan programs;
➢ Housing loans and other financial tools for ownership and rental housing;
➢ Streetscape improvements,including new lighting,trees, sidewalks,pedestrian
amenities, etc.;
➢ Transportation enhancements,including light rail, streetcar,intersection
improvements, etc.;
➢ Historic preservation projects; and
➢ Parks and open spaces.
Urban renewal is a way to focus resources on a particular area,and to use public resources to
stimulate and leverage much larger private investments.
Local governments and urban renewal agencies have a variety of tools that can be used to
finance urban renewal projects. The most commonly used tool with potential for use in
Downtown Tigard is bonds. There are three general types of bonds that may be used to
finance projects within an urban renewal district:
➢ General Obligation Bonds—General Obligation Bonds must be approved by voters
and are backed by the power of the issuer to levy a property tax to pay debt service
on the bonds. Cities and counties are authorized to request voter approval for
General Obligation bonds; urban renewal agencies are not. Because these bonds are
backed by the power of the issuer to levy taxes, General Obligation bonds generally
command the lowest interest rates. An example of a General Obligation Bond is the
Library Bond approved by voters to build the new Tigard Library.
➢ Revenue Bonds—Revenue Bonds are backed by the stream of revenue generated by
a particular system or facility. Revenue bonds are generally considered less secure
by bond markets because the promise to repay is based solely on the revenue-
generating capacity of an identified facility or system. Interest rates are generally
higher than those commanded by General Obligation bonds, and are very dependent
upon the current and projected health of the revenue stream being offered as security.
Jurisdictions that operate facilities or systems are authorized to issue Revenue Bonds
without prior voter approval. Examples of revenue bonds include Water Revenue
Bonds, Parking System bonds, and Recreation System bonds.
➢ Tax Increment Bonds—Tax Increment Bonds are a specialized form of Revenue
Bonds. Debt service is paid by the revenue stream from the"increment"generated
by the district from normal growth in the district's assessed values and new
development. Bond markets generally look for some history of increment generation
before they are willing to consider purchasing Tax Increment Bonds
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Other Financing Tools
As detailed in the Appendices to this Plan,the City of Tigard has a number of financing tools
currently in place,or easily activated,to generate revenue to fund recommended development
or infrastructure improvements. A summary list of these tools includes:
➢ Grants-A variety of state and federal agencies(as well as private sources, such as
foundations)periodically issue grants which could be used for redevelopment
purposes.
➢ Business Improvement(BID),Economic Improvement(EID), or Local
Improvement Districts(LID) - State law allows the creation of a variety of local
districts that could overlay an urban renewal district. These special assessment
districts allow local property owners to come together to form a district and to create
assessments on properties within that district to achieve certain defined goals.
➢ Tax Abatement- State law allows local jurisdictions to abate taxes for properties that
meet certain requirements, which agree to engage in certain improvements,or which
provide certain services.
➢ Hotel/Motel Tax or Specialized Taxes-A Hotel/Motel(Transient Lodgings) Tax is a
specialized tax that is levied on hotel and motel room rentals.
Recommendations
As indicated above, Tigard has a number of financing tools currently in place, or easily
activated to generate revenue. A list of these tools and the activities needing to be pursued to
enable the City to generate the level of funding necessary to carry out the range of
improvements recommended by this plan is provided below.
Available Tools
➢ Tool: Land Assembly
o Action: Pursue land assembly of identified key parcels.
➢ Tool: Tax Abatements
o Action:Allow for property tax abatements for dense housing
development,under the State's Vertical Housing Tax Credit Program
(Note: Can impact tax increment revenues in an urban renewal district.)
➢ Tool: Grants (Metro, etc)
o Action: Apply for Federal, State and Regional grants to help fund
catalyst projects
Recommended New Tools
As mentioned earlier, there are additional, appropriate financing tools that are not
currently in place, and will require public approval to establish: Urban Renewal
Districts, Business Improvement Districts, Economic Improvement Districts or Local
Improvement Districts. The activities needing to be pursued to enable the City to
generate the level of funding necessary to carry out the range of improvements
recommended by this plan is provided below.
➢ Tool: Urban Renewal District
o Action: Prepare an Urban Renewal District Plan,and prepare campaign
for City-wide vote
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Downtown Improvement Plan
City of Tigard,Oregon
➢ Tool: Business or Local Improvement District
o Action: Explore establishment of committed funding sources to pay for
identified improvements.
It should be noted that implementing the recommended Downtown Improvement Plan is not
reliant upon any one of the above funding sources being available. By way of example, it is
clear that the use of urban renewal would provide the most significant source of funding for
the development and redevelopment of Downtown Tigard; to create an urban renewal district
requires voter approval, given the Tigard City Charter. Should the City pursue establishment
of an urban renewal district and the action not be supported by the voters, the Plan would still
be capable of being carried out. However, the length of time to generate other revenues to
make the public investments needed to spur private investment would lengthen considerably.
Organizational Follow-Up Actions
Task Force Advisory Groups
During Plan development,the Downtown Task Force formed three Working Groups to
address projects,tools and techniques for carrying out the plan in three categories: Financing;
Catalyst Projects; and"Brand Tigard"projects. It is recommended that the Task Force
establish advisory groups to focus upon carrying out the catalyst projects,identifying and
implementing the"Brand Tigard"projects,and fleshing out and adopting the proposed
changes to the comprehensive plan and Community Development Code.
Downtown Program Staff
A number of the recommended actions for carrying out this Plan will require substantial
support from staff. Tasks requiring such support include establishment and maintenance of
an urban renewal district(once approved by Tigard voters),property owner outreach efforts,
property assemblage,project development and administration,housing program development
and maintenance, and update/maintenance of a short-term implementation strategy.
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Downtown Improvement Plan
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5. IMPLEMENTATION ACTION PLAN
5.1 Introduction
The Downtown Tigard Improvement Plan is an action-oriented plan, focusing upon the
projects and actions needing to be undertaken to carry out a clearly defined vision,a set of
guiding principles,and a development/design concept. The TDIP will be implemented in
pieces,or components,over the course of the next several years. Some actions will be
initiated in 2005,others will be initiated in the years to follow.
5.2 How Will The Plan Be Carried Out?
As mentioned above,the TDIP will be implemented in pieces,over time. In the discussion
regarding catalyst projects,it was noted that in most instances, each catalyst project is an idea
or a program requiring a refinement study to pin down a concept,a location,a footprint or
criteria for subsequent development proposals. Accordingly,in the short description of each
catalyst project,the proposed preliminary"set-up"tasks or refinement study has been briefly
described.
In addition, several of the catalyst projects require the application of staffing resources to
establish programs, criteria,and to undertake preliminary tasks to enable projects to move
forward(e.g.,land assembly,property owner coordination, etc.). The Plan recommends a
number of amendments to the City's Comprehensive Plan and Development Code(to provide
greater recognition of Downtown,reflect objectives of the TDIP, etc.), as well as several new
zones to carry out Plan intent and to achieve the planned uses, character and densities
envisioned. In addition, two temporary overlay zones are recommended in order to protect
"footprints" for projects that are still at the conceptual level,awaiting further refinement
study.
The suggested amendments to the City's Comprehensive Plan and Development Code will be
further examined by Advisory Committees of the Downtown Task Force,and it is anticipated
that appropriate changes and the necessary ordinances to codify them will occur over the next
1-3 years.
It is anticipated that the City will begin talking with potential development interests regarding
making the Plan a reality. Certain major improvements will be made by the City of Tigard
through a variety of funding sources,including urban renewal,if approved by the voters.
Other improvements will be the responsibility of proposers of specific development activities.
One or more of the catalyst projects may come about as a result of a"public-private
partnership",a contractual arrangement tailor-made for each situation by which the public
sector authority assigns certain functions or responsibilities to a private developer.
The important point is that the TDIP is a long-term plan for the revitalization and growth of
Downtown Tigard over the course of the next 20-30 years,in alignment with a vision for the
future established by the community.
5.3 Implementation Action Plan
For a plan to be the"chart for change"it is intended to be, it must be accompanied by an
implementation program...a program indicating the appropriate tools, actions and timelines
for carrying out the plan. The Implementation Action Plan being recommended to carry out
the TDIP focuses on the following:
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Downtown Improvement Plan
City of Tigard,Oregon
• Recommended future transportation system improvements and any suggested
changes to the City's Transportation System Plan;
• Recommended changes to the City's Comprehensive Plan, zoning code and
implementing ordinances;
• Recommended development and community projects important for creating a climate
of investment Downtown,
• Recommended sources of funding for TDIP-related improvements,and
• Suggested time frame for initiating key actions and projects.
These areas of focus have been discussed in depth in four technical memoranda
accompanying the Plan: a Future Transportation System Technical Memorandum; a Future
Land Use and Regulatory Framework Technical Memorandum; a Funding Strategy Technical
Memorandum, and an Implementation Action Plan Technical Memorandum. Each
memorandum has recommendations for short and longer-term actions for carrying out the
TDIP.
As an effective Action Plan must be dynamic and open for change as funding, changes in
project priority,refinement studies and changes in community desires dictate,the
Implementation Action Plan is not contained within this overview Plan document. An
updated TDIP Implementation Strategy will be maintained and kept up-to-date by City staff,
and will be evolving as progress and change require.
5.4 Programming Recommendations
The initial list of recommended actions,next steps and projects has been compiled in the
TDIP's appendices (Implementation Action Plan Technical Memorandum). The
recommended actions and projects have been categorized and prioritized with regard to
relative timing (e.g., 1-3 years, 4-6, 6-10,beyond...). In addition, those short-term actions
needing to occur in each of the next three years have been determined and coordinated with
the City's Capital Improvements Program.
It is recommended that the City of Tigard develop and maintain a short-term strategic action
plan for incrementally implementing the TDIP's recommendations for improvements and
actions. It is envisioned that this would be viewed as an "Incremental Implementation
Strategy".
5.5 Short-Term Incremental Implementation Strategy
The City of Tigard will be maintaining a short-term strategic action plan for incrementally
carrying out the TDIP's recommendations for improvements and actions. This short-term
action plan will be known as the "Incremental Implementation Strategy"...a three year,
renewable/rolling, short-term action plan that would be regularly updated, with a regularly-
scheduled monitoring and updating process and a supporting budget.
By way of example,in developing this Incremental Implementation Strategy, each of the
TDIP's Guiding Principles would be examined on a regular basis to ascertain the current
status of progress in achieving them,and actions for moving ahead in each of the next three
years would be identified and planned for. The activities for Year 1 would be tied to the
City's annual operating budget. The activities identified for Year 2 and Year 3 would serve
as a placeholder or indication of anticipated action-related resource needs for the coming two
years. Once Year 1 is nearly complete, the status of activities would be reviewed, and the
activities for Year 2 would be adjusted as necessary, as it will become the new Year 1. Year
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Downtown Improvement Plan
City of Tigard,Oregon
3 would be adjusted as appropriate in readiness for its becoming the new Year 2,and
activities for a new Year 3 would be identified. The City would identify the coordinating
body responsible for the monitoring,development and update of the Incremental
Implementation Strategy,and for the coordination of the various City departmental activities
to fund and/or carry out the strategy. City staff or the identified coordinating body would
provide the City Council with a regularly scheduled status report on implementation
activities. This regular monitoring,reporting and updating helps to keep the TDIP flexible
and current, keeps all City departments focused on the carrying out of this important public
policy objective, and keeps the TRIP and its implementation on the"front burner".
In addition, it is recommended that the City review the TDIP on a regularly-scheduled basis,
and make amendments as opportunity or changing community and economic circumstances
necessitates. Should there be a desire to change the guiding principles or shift the emphasis
of a particular project, this plan-update process provides the mechanism for doing so within
the context of reviewing the plan as a whole.
5.6 Programming Concept and Conclusion
Programming Concept
A substantial number of actions,programs and projects are being recommended to carry out
the TDIP. Not all of these can be done at once,and consideration needs to be given at the
outset and during the regularly scheduled TDIP and Implementation Strategy update process
to the grouping,phasing or timing of particular actions. It is recommended that the
community program available/limited resources where they can do the most good,where they
can leverage other resources or supporting activities or provide the"biggest bang for the
buck",or where they can be concentrated to focus on a designated geographic target area.
Conclusion
In conclusion,the Tigard Downtown Improvement Plan represents the community's official
framework for the revitalization of Downtown into a Downtown neighborhood,a vital"urban
village",and one of the metropolitan area's Town Centers. As this plan represents the
expression of the community's vision and desired outcomes for Downtown,the Plan must be
a dynamic and responsive policy framework...one that changes as needed to keep pace of
changing community values and external factors,and as opportunities arise. Over time,the
TDIP is intended to continue to evolve, serving as the framework for further refinement
according to the wishes of the community.
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Downtown Improvement Plan
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Appendices
Introduction
A. Existing Community Conditions
B. Existing Economic Conditions
C. Existing Transportation Conditions and Deficiencies
D. Evolution of the Conceptual Design Plan
Attachments
E. Future Transportation System
F. Future Land Use and Regulatory Framework
G. Funding Strategy
H. Community Involvement
Attachments
L Summary Memorandum on Economic Reports
J. Implementation
38
TIGARD DOWNTOWN IMPROVEMENT PLAN
Existing Conditions / Opportunities
and Constraints Report
Prepared for The City of Tigard
October 2004
by
Parametrix
Kittelson & Associates, Inc.
2OF40
Introduction ................................................................................... 3
Overview of Previous Plans and Studies ...................................... 3
Oregon Downtown Development Association......................................................................... 3
TigardBeyond Tomorrow....................................................................................................... 4
2004 Downtown Tigard Survey............................................................................................... 5
Planning and Regulatory Context ................................................. 7
Statewide ............................................................................................................................... 7
Regional Planning Requirements ..........................................................................................10
TigardPlan and Ordinances..................................................................................................11
Existing Conditions...................................................................... 15
PlanArea Description............................................................................................................15
Transportation .......................................................................................................................19
NaturalEnvironment..............................................................................................................29
Opportunities and Constraints..................................................... 35
Land Use, Transportation and Natural Environment..............................................................35
Opportunities.........................................................................................................................37
Constraints............................................................................................................................39
Initial Concepts for Improvement...........................................................................................39
Summary..................................................................................... 40
Appendices
Appendix A Existing Traffic Operations and Level-of-Service
Appendix B ODOT STA and UBA Policies
Appendix C Metro Street Design Guidelines
Appendix D Tigard Street Design Guidelines
Appendix E Tigard Railroad Analysis
City of'Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
3OF40
INTRODUCTION
This Existing Conditions / Opportunities and Constraints Report describes planning and transportation
baseline information for the Tigard Downtown Improvement Plan (TDIP). The purpose of the report is
threefold:
■ To summarize and briefly analyze the existing land use,natural environment and
transportation system conditions and issues within the study area.
■ To summarize the planning and regulatory context of this project and to highlight those
policy,planning and regulatory requirements that may have an impact upon the TDIP.
■ To briefly discuss which aspects of the information can be considered as opportunities or
which as constraints toward achieving the objectives of this project.
The City of Tigard's long-standing partnership with its citizens and commitment to creating a vibrant
downtown is evident in the efforts begun in the early 1980s to empower citizen task forces. Although the
appearance and function of the Downtown core has not changed during the past 20 years,it is not because
of a lack of effort, study, and collaboration. The present planning process leading to the development of a
specific action plan for Downtown improvement will not ignore the past work by the Tigard community;
rather,it will build upon it.
This report is based on preliminary review of data provided by the City of Tigard as well as from time
spent with City staff during the August 26, 2004, walking tour. Some additional information was
gathered based on Task Force Member input during the walking tour and meeting on September 2, 2004.
OVERVIEW OF PREVIOUS PLANS AND STUDIES
Oregon Downtown Development Association
The 2000 Resource Team Report, written by the Oregon Downtown Development Association (ODDA)
for the Tigard Central Business District Association, provides findings and recommendations for
Downtown revitalization generated by ODDA's three-day intensive visit to Tigard. It expresses many
opinions of local business owners, provides market analysis, and identifies possible improvement
concepts that are primarily focused on Main Street. The following bullets are summary excerpts from the
ODDA report:
➢ Strengthening Image and Sense of Place
■ Strengthen Downtown Tigard as the"heart"of the community through elements of
design,mixed-use redevelopment, and integrating Tigard's Downtown image,history and
culture.
■ Create and market the special character of Downtown Tigard as a `haven in the midst of
miles of highway sprawl.'
■ Create an inviting and safe shopping environment by addressing the transient population
use of the south end of Downtown and developing interesting storefronts.
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➢ Public Space
■ Enhance the gateways into Downtown using existing physical features and new
development to invite visitors into Downtown.
■ Improve pedestrian crossings through better marking and surface texturing to interrupt
and slow traffic.
■ Improve internal traffic circulation to create a more "workable"downtown.
■ Provide pedestrian amenities to make the area more inviting through upgraded street
lighting,trash receptacles, and benches.
■ Extend the trail to the northwest under the OR 99W bridge to help alleviate the live-in
transient problem.
➢ Private Space
■ Encourage appropriate, traditional uses that are consistent with the context of a traditional
downtown.
■ Capitalize on the landmark railroad commuter station as a focal point and a new anchor
for development.
■ "Tighten"the urban fabric and pedestrian friendliness through appropriately scaled in-fill
development.
■ Create design guidelines for Downtown and enforce a sign ordinance.
Tigard Beyond Tomorrow
Another important effort within Tigard is the Tigard Beyond Tomorrow program. Beginning in 1996
residents, City staff, business owners and community leaders came together to define a vision for the
entire City of Tigard on issues of public safety, urban and public services, schools and education, growth
and growth management, transportation and traffic, and community character and quality of life.
Members have continued to evaluate progress on each of the goals set in Tigard Beyond Tomorrow.
Tigard Beyond Tomorrow contains six specific visions or "Direction Statements", one for each of the
major subject areas, and a set of guiding statements that serve as the vision for the Tigard Beyond
Tomorrow process. This overall vision is provided below:
➢ Tigard Beyond Tomorrow Vision
■ Tigard is a safe,dynamic community supported by coordinated and efficient public
services.
■ Citizens are educated about how to access public services and understand their
responsibility to participate as members of the community.
■ There are a variety of opportunities for citizens of all ages to access education programs
for life-long learning. Our community recognizes and accepts the responsibility each
citizen has in promoting and supporting quality education.
■ Small and local businesses thrive. Business owners are involved and take responsibility
for the impacts their businesses have on the community.
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■ A community value "to respect open spaces and natural features"encourages access to
these by our citizens. Many leisure time and recreational opportunities are available for
our community.
■ All of these elements work together to promote and protect Tigard's individual identity
and quality of life.
Goals defined within the Community Character&Quality of Life section of Tigard Beyond Tomorrow
that directly affect Downtown Tigard strive to achieve a future where "The Main Street area is seen as a
`focal point' for the community," and "A clear direction has been established for a pedestrian-friendly
downtown and is being implemented."
Three strategies to reach the goal of providing opportunities to work closely with the Tigard Central
Business District Association(TCBDA) were identified as follows:
■ Work proactively with TCBDA for long-term planning–The Transportation Growth
Management funded program that this report is a part of is directly implementing this
goal. Many Task Force members are also members of the TCBDA.
■ Monitor City's regulations for the Central Business District–The Task Force
recommended design preferences for the TriMet Commuter Rail Station. City Council
approved the recommendation in March 2003.
■ Develop strategies for public improvements in Tigard's central business district area(this
area includes Main Street) and adjacent areas- Efforts have been made to obtain grant
funding to install improvements such as public restrooms, special street lighting fixtures,
sidewalks,etc.
2004 Downtown Tigard Survey
In an effort to better understand the reasons people use Downtown Tigard and to inform the Downtown
Improvement Planning process, Tigard Downtown Task Force ("Task Force") conducted a 10-question
community survey in Spring and early Summer 2004. The Task Force visited local community groups,
city committees, local events such as the Balloon Festival and the Farmers' Market, and met with local
business owners. At these events, the Task Force provided an overview of the process and asked people
to fill out the survey. The survey was self-selected. The results as tabulated in September 2004 provide a
snapshot of how the 588 survey respondents, 61 percent of whom live in Tigard, view the existing
Downtown,why they go there—if they do—and what they think about it.
Table 1 summarizes the results of the survey's multiple-choice questions.
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Table 1-2004 Downtown Tigard Survey Results
1.How often do you visit Tigard's Downtown? 6.There is plenty of parking Downtown.
Daily 19.28% Strongly Agree 2.45%
Weekly 41.64% Agree 28.02%
Monthly 20.65% Neutral 29.95%
Few times a year 16.72% Disagree 30.82%
Never 1.71% Strongly Disagree 8.76%
Total 100.00%
2.Why do you visit Downtown? (Check all that 7.Downtown Tigard is an excellent place to do
apply) business.
Shop 28.65% Strongly Agree 4.41%
Work here 5.37% Agree 27.34%
Eat 23.00% Neutral 38.27%
Personal services 13.85% Disagree 21.52%
Live Downtown 0.66% Strongly Disagree 8.47%
Ride bus 3.58%
Business-related 13.85%
Other 11.03%
3.Which of the following describe you?(Check 8.The look and feel of Downtown should not
all that apply) change.
Tigard Resident 60.67% Strongly Agree 5.81%
Non-Tigard Resident 25.72% Agree 12.50%
Tigard Business Owner 9.08% Neutral 19.37%
Downtown Tigard Business Owner 2.87% 1 Disagree 31.16%
Downtown Tigard Property Owner 1.66% Strongly Disagree 31.16%
4.Which of the following methods of 9.I feel safe Downtown.
transportation do you use Downtown?(Check
all that apply)
Car 69.54% Strongly Agree 23.09%
Bus 7.49% Agree 45.49%
Bike 6.47% Neutral 22.92%
Walk 16.50% 1 Disagree 6.60%
Strongly Disagree 1.91%
5.The existing Downtown business mix is 10.The planned Commuter Rail will provide
excellent. passenger rail service between Wilsonville to
Beaverton,with a station in Downtown Tigard.
Would you use the station?
Strongly Agree 2.45% Yes 51.10%
Agree 22.03% No 23.60%
Neutral 36.59% Don't Know 24.30%
Disagree 26.40%
Strongly Disagree 12.24%
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It is apparent from the survey results that the majority of the respondents visit the Downtown weekly or
monthly, and nearly five out of ten respondents visit Downtown daily. The most common reason to visit
Downtown is to shop, followed closely by eating. Personal services and business-related visits come
next. Approximately 70 percent of respondents use their cars Downtown while approximately 17 percent
walk. However, 52 percent indicated they would use the proposed TriMet Commuter Rail station.
With regard to questions about how the respondent feels about Downtown's character and quality, the
results were more mixed. Just under half of respondents agree that they feel safe Downtown. In general,
38 percent of respondents disagreed to some extent with the statement that the existing Downtown
business mix is excellent. Approximately 31 percent agreed to some extent that Downtown Tigard is an
excellent place to do business.
When asked to evaluate the statement "The look of Downtown should not change," approximately 62
percent of respondents disagreed. This result is interesting when contrasted with a qualitative evaluation
of the results submitted to the open answer question, "What three things do you like best about
Downtown?" Many respondents stated that they like the small town feel, old buildings, and small
businesses present in Downtown. So, although they think it needs to change, some of what they
appreciate about it are the way it feels and looks. These were just a few of the many and varied
responses. The following question, "What improvement, if any, would you suggest for Downtown?"
drew even more varied responses too numerous to categorize here. The responses range from `no
changes necessary' to suggestions to demolish the entire Downtown and start over. Most responses offer
useful advice and provide insight into how the users of Downtown would like to see the area change.
The survey next asks what specific types of businesses the City should seek to attract. Although again,
the answers vary widely, a main theme of restaurants, bakeries, cafes, and small, privately owned
specialty-retail shops is evident throughout the responses.
Downtown Parking Study
City of Tigard staff and the members of the Downtown Task Force conducted a parking supply and
demand survey on a typical Tuesday and Thursday during the summer of 2003. Although a number of
factors have changed since the parking survey was conducted (e.g. Tigard Fitness is operational
again), the City staff believes that the general survey results are still valid. The survey was
conducted on both sides of Burnham, Commercial, and Main Streets. The purpose of the survey was to
identify the type and location of parking and the demand for parking in Downtown Tigard. Results of the
study are discussed under Transportation in the Existing Conditions section of this report.
PLANNING AND REGULATORY CONTEXT
Federal, state, and local plans and regulations have an impact upon the development of a town center and
downtown improvement plan for Tigard. In addition to these, the Task Force approved a set of Guiding
Principles for this plan, principles intended to serve as a guide and a measure of success for what the plan
is to achieve. This section of the report will discuss these tiered levels of regulatory structure and how
they affect the development of a downtown improvement plan for Tigard.
Statewide
Oregon Statewide Planning Goals
The state of Oregon's 19 Statewide Planning Goals were established in 1973 and are administered
through the Oregon Department of Land Conservation and Development, by the Land Conservation and
Development Commission (LCDC). The goals convey the state's policies on land use and on related
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topics, such as citizen involvement, natural resources, and housing. By state law, each city and county
must adopt a comprehensive plan that is consistent with the statewide planning goals and must adopt a
zoning and land-division ordinance to implement the comprehensive plan. The City of Tigard's
Comprehensive Plan has been reviewed and acknowledge by the LCDC as consistent with the Statewide
Planning Goals. Any proposed changes to the Tigard Comprehensive Plan and zoning ordinances must
be compliant with the Statewide Planning Goals.
Transportation Planning Rule
The Transportation Planning Rule (TPR) directs cities and counties to develop balanced transportation
systems addressing all modes of travel including motor vehicles, transit, bicycles and pedestrians. The
TPR envisions development of local plans that will promote changes in land use patterns and
transportation systems that make it more convenient for people to walk, bicycle, use transit, and drive less
to meet their daily needs. The TPR also directs cities and counties to plan changes in transportation
facilities in tandem with land use and development patterns.
Oregon transportation Plan
The Oregon Transportation Plan (OTP), adopted in 1992, is the state's 20-year multimodal plan for the
statewide transportation system. The plan includes policies for bicycle and pedestrian facilities, public
transportation, highways, waterways, airports and railroads. It considers private and public facilities and
the local, regional and state elements of the system. The OTP is the guiding document for the state modal
plans and local transportation system plans. It also establishes investment scenarios.
The OTP emphasizes:
• Achieving a safe, balanced and efficient multimodal system
• Fostering economic development in a safe, energy efficient and environmentally sound manner
• Supporting livability
• Providing a stable but flexible finance system while working cooperatively with others.
Oregon Highway Plan
The 1999 Oregon Highway Plan includes a series of policies and actions related to integrating land use
and transportation. Policy 1B recognizes that state highways serve as the main streets of many
communities. The policy strives to maintain a balance between serving these main streets and the through
traveler. It emphasizes management of the transportation system for safety and efficient use of resources.
This policy provides guidance to Oregon Department of Transportation (ODOT) regarding system
management planning and implementation activities. It is designed to clarify how ODOT will work with
local governments and others to link land use and transportation plans, facility and corridor plans, plan
amendments, access permitting and project development. The role of ODOT and local governments in
designating highway segments is to work together so that planned community development patterns are
individually tailored yet also meet statewide highway needs for safety and mobility.
This policy provides different roadway designations as tools for fostering compact development patterns
in communities:
• Special Transportation Area (STA) - An STA is a designated district of compact development
located on a state highway within an urban growth boundary in which the need for appropriate
local access outweighs the considerations of highway mobility except on designated Freight
Highways where through highway mobility has greater importance. While traffic moves through
an STA and automobiles may play an important role in accessing an STA, convenience of
movement within an STA is focused upon pedestrian, bicycle and transit modes. STAs look like
traditional "Main Streets" and are generally located on both sides of a state highway. The primary
objective of an STA is to provide access to and circulation amongst community activities,
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businesses and residences and to accommodate pedestrian, bicycle and transit movement along
and across the highway. Direct street connections and shared on-street parking are encouraged
and individual driveways are discouraged. Local auto, pedestrian, bicycle and transit movements
to the area are generally as important as the through movement of traffic. Traffic speeds are slow,
generally 25 miles per hour or less.
• Urban Business Area (UBA)—A UBA is a highway segment designation which may vary in size
and which recognizes existing areas of commercial activity or future nodes or various types of
centers of commercial activity within urban growth boundaries on District, Regional or Statewide
Highways where vehicular accessibility are important to continued economic viability. The dual
objectives of a UBA on the state highway are to provide local access to meet the access needs of
abutting properties and to maintain existing speeds to move through traffic. Speeds are generally
35 miles per hour or less. Vehicular accessibility and circulation is often as important as
pedestrian, bicycle and transit accessibility. Safe and regular street connections are encouraged.
Transit turnouts, sidewalks and bicycle lanes are accommodated.
Further details related to STAs and UBAs are included in Appendix B.
To designate a roadway segment as an STA, the community needs to adopt local plans identifying the
road as such, and most importantly coordinate and develop an agreement with ODOT about the STA
designation. The principal advantage of an STA is that ODOT and the local jurisdiction must work
together to agree to a plan for multi-modal transportation mobility and access integrated with the
surrounding land use plan on the state owned highway through a major community center.
Through the project study area, Oregon 99W does not exhibit the characteristics of a STA or UBA and is
likely not a candidate for either designation. Hall Boulevard through the project study area may qualify
as a candidate for a STA. It is less likely that this segment qualifies as a UBA. In both cases it will be
important to begin the conversation with ODOT regarding these designations.
If established as an STA, the City of Tigard and ODOT would have an established plan for future
roadway cross-sections and adjacent land use. The mix of acceptable roadway elements in an STA allows
Tigard to plan for a narrow roadway section (e.g. lanes and medians), slower travel speeds, and wider
sidewalks.
ODOT Rail Policies
The Oregon Department of Transportation Rail Division represents and advocates for customers of
railroads, both passenger and freight, to ensure a safe, efficient and reliable rail transportation system. A
critical overlap point between the rail transportation system and the pedestrian, bicycle and vehicle
transportation system is rail crossings. ODOT rail and the operating railroad authorize crossings of the
tracks. For obvious reasons, these crossings must be equally safe for all modes of transportation. When
considering a crossing, ODOT Rail will consider many factors including safe stopping distance, the need
to provide clear zones/separation from the rail lines and crossings, and perhaps the greatest challenge, no
net gain in at-grade crossings. Therefore to obtain an Order authorizing a new street to cross railroad
tracks, jurisdictions need to work collaboratively with the railroad and ODOT Rail; this can include
closing at least one other crossing in the jurisdiction. See Appendix E for details on the facilities and
history of Rail in downtown Tigard.
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Regional Planning Requirements
Metro's 2040 Growth Concept and Framework Plan
Although the Tigard community has focused on the growth and development of Downtown Tigard for
years independently, as a designated Town Center in Metro's 2040 Growth Concept Plan, Tigard is
obligated to create a land use and transportation plan consistent with Metro guidelines for Town Centers.
The Metro 2040 Growth Concept defines regional growth and development in the Portland metropolitan
region. The growth concept was adopted in the Region 2040 planning and public involvement process in
December 1995. Metro's 2040 Growth Concept Plan provides guidance with respect to how Town
Centers should function. The 2040 Growth Concept identifies centers as compact, mixed-use
neighborhoods of high-density housing, employment and retail that are pedestrian-oriented and well
served by public transportation and roads. Metro's projected density for Downtown Town Centers in the
2040 Growth Concept is 40 average persons per acre. Town Centers are described as the central focus of
community life and should serve residents living within two or three miles. Some key objectives for
developing Metro designated 2040 Centers include:
■ Promoting more intensive mixed-use development.
■ Providing infrastructure to support more intensive development.
■ Creating effective local and regional transportation connections to and within the center
for all travel modes.
■ Providing public spaces and distinct center identification.
■ Recognizing the natural environment as a desired amenity.
Specific guidance provided in the 2040 Growth Concept for land use within Centers includes:
■ Permitting multiple uses on one property.
■ Discouraging and limiting parking within the Center.
■ Limiting the number of auto-dependent uses.
■ Prohibiting storage as a primary use.
■ Providing bicycle parking at major destinations.
■ Minimizing impervious paved areas for new streets and parking areas.
Metro's Title 6—Requirements for Town Center Planning
Metro's Urban Growth Management Functional Plan (Functional Plan), which is included in Metro's
Code as Chapter 3.07, implements Metro's 2040 Growth Concept Plan. Title 6 of the Functional Plan
affects areas designated as Central City, Regional Centers, Town Centers and Station Communities, and
is intended to enhance these centers by encouraging development that will improve the critical roles
centers play throughout the region and discouraging development that will detract from the function of
the centers.
Town Centers are smaller than regional centers (e.g., Washington Square), and are characterized by local
shopping and employment opportunities within a local market area. They are connected to regional
centers by roads and transit. Each city with a Center needs to have an enhancement strategy by Dec. 31,
2007, per Title 6/3.07.610 of the Functional Plan. The following elements are required for a strategy to
be accepted:
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1. An analysis of physical and regulatory barriers to development and a program of
actions to eliminate or reduce them.
2. An accelerated review process for preferred types of development.
3. An analysis of incentives to encourage development and a program to adopt incentives
that are available and appropriate for each Center.
4. A schedule for implementation of Title 4 of the Urban Growth Management Functional
Plan.
5. An analysis of the need to identify one or more Neighborhood Centers within or in
close proximity to Inner and Outer Neighborhoods to serve as a convenient location of
neighborhood commercial services, as authorized by Title 12, Section 3.07.1230 of the
Urban Growth Management Functional Plan.
6. A work plan,including a schedule,to carry out the strategy.
Title 6 allows cities that have adopted a strategy in compliance with Section 3.07.620 for a Town Center
or other type of center to be eligible for designation of state highways within that center as a Special
Transportation Area under Policy 1B of the 1999 Oregon Highway Plan.
Title 6 further provides that cities should strive to locate government offices within a designated center
and to the extent possible, should prevent the location of government offices outside of the center. The
City of Tigard's City Hall and other administrative offices are presently located within the Downtown
Tigard area, near the intersection of the Fanno Creek and Hall Boulevard. The public library is just
outside the plan area and is very close to City Hall. The Tigard Downtown Improvement Plan will fulfill
the Title 6 requirement for the Tigard Town Center with improvement strategies and a specific
implementation program.
Tigard Plan and Ordinances
Comprehensive Plan
The City of Tigard Comprehensive Plan was built by aggregating seven separate Neighborhood Planning
Organizations' plans that comprised the communities' planning efforts into one "Community Wide
Comprehensive Plan" for the City of Tigard. The plan was adopted in 1983 and has had numerous
revisions. The City must regularly update the plan through the state requirement of periodic review,
which does not require the City to update its plan until 2010-2015. The City also must address
performance measures set by Metro.
The Comprehensive Plan outlines goals and policies for nine planning areas as follows: 1) Citizen
Involvement, 2)Natural Features and Open Space, 3)Air, Water and Land Resources Quality,
4)Economy, 5)Housing, 6)Public Facilities and Services, 7)Transportation, 8)Energy, and
9)Urbanization. These goals and polices guide Tigard's future growth and development and are vital to a
successful downtown improvement process. Plans resulting from the present planning effort must be in
compliance with existing Comprehensive Plan policies and implementation strategies. If the outcomes of
the Downtown Improvement planning process show that existing policies conflict with the community
vision, adjustments to the Comprehensive Plan will be needed. This report focuses on those statements
within the Comprehensive Plan that directly concern Downtown Tigard,referred to in the Comprehensive
Plan as the Central Business District (CBD). In the plan, the policy statements provide directives to the
City for making decisions and preparing plans. The implementation strategies are recommendations and
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propose implementation methods. The CBD policies have not been revised since 1983. The applicable
policies and implementation strategies are included below:
ECONOMY SECTION—VOL.II,POLICY 5-1
Policies
5.3 THE CITY SHALL IMPROVE AND ENHANCE THE PORTIONS OF THE
CENTRAL BUSINESS DISTRICT AS THE FOCAL POINT FOR COMMERCIAL,
HIGH DENSITY RESIDENTIAL,BUSINESS, CIVIC AND PROFESSIONAL
ACTIVITY CREATING A DIVERSIFIED AND ECONOMICALLY VIABLE
CORE AREA.
5.4 CITY SHALL PROHIBIT RESIDENTIAL DEVELOPMENT IN COMMERCIAL
AND INDUSTRIAL ZONING DISTRICTS EXCEPT: COMPLIMENTARY
RESIDENTIAL DEVELOPMENT SHALL BE PERMITTED ABOVE THE FIRST
FLOOR IN THE CENTRAL BUSINESS DISTRICT, AND ABOVE THE SECOND
FLOOR IN COMMERCIAL PROFESSIONAL DISTRICTS. (THE DENSITY OF
RESIDENTIAL DEVELOPMENT SHALL BE DETERMINED IN ACCORDANCE
WITH THE R-40 DISTRICTS.)
Implementation Strategies
8. The City shall target efforts to strategic areas for growth and diversification. Specific
areas include the Central Business District,the Tigard Triangle, and the 74th Avenue
Industrial area.
9. The City shall concentrate resources for the revitalization of the Central Business
District utilizing Local Improvement Districts and a program to encourage private
investment.
10. The City shall encourage new development by allowing more flexible zoning
standards within the CBD than are allowed citywide.
SPECIAL AREAS OF CONCERN—VOL.11,POLICY 11-1
SPECIAL AREAS OF CONCERN
The purpose of this chapter is to address those areas within each Neighborhood Planning
Organization that are of special concern to each particular area. This chapter is divided by
Neighborhood Planning Organization.The subsequent policies address a broad range of
issues and relate directly to the main Citywide policies in Chapters 1-10. The larger,bold
number adjacent to each policy refers to the Citywide policy of Chapters 1-10.
11.1 Neighborhood Planning Organization#1
A. Central Business District
Policies
11.1.1 THE REDEVELOPMENT OF DOWNTOWN TIGARD SHALL BE
ACCOMPLISHED IN ORDER TO MAKE IT COMPLEMENTARY TO
NEWER SHOPPING AREAS. CONVENIENCE,APPEARANCE AND THE
NEEDS OF THE SHOPPING PUBLIC SHOULD BE PRIMARY
CONSIDERATIONS.
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Implementation Strategies
1. The City shall emphasize the revitalization of the Central Business District within the
economic development program. The CBD is a special area of concern for economic
development activity.
2. The City shall coordinate and cooperate with the private sector to promote their
participation in the revitalization of the Central Business District.
Currently,there are only three policies in the Comprehensive Plan that directly pertain to the CBD. These
policies provide general guidance that the CBD should be developed into a focal point for the city and
should move toward the high-density residential and mixed uses in Town Centers.
In Policy 11.1.1, the phrase"complementary to newer shopping areas"is a matter of interpretation. At the
time, it may have referred to the newer strip-mall type development in the CBD. The phrase
"complementary" is instructive, as the whole CBD is not considered a focus. It may also refer to other
shopping choices in the area. Policy 11.1.1 also emphasizes shopping, as opposed to other uses such as
residential or office. The use of the term redevelopment reflects a 1980s mindset. Today, there is
recognition that some properties will need different approaches — redevelopment, revitalization or no
changes at all. Lastly,note what is absent: There are no references to Downtown's historic appearance.
Notably,both sections refer specifically to economic development programs. The City has neither
an economic development department nor a program. A Business Improvement District(BID)
was proposed in 2001,but did not pass.
Tigard Transportation System Plan
The Tigard Transportation System Plan (TSP) establishes the city's goals, policies and action strategies
for developing the transportation system for the Tigard urban area. The TSP is intended to serve as a
blueprint or master plan to guide transportation decisions to address both short and long term needs. The
TSP discusses on-going roadway maintenance needs, and identifies improvements to enhance roadway
safety, non-motorized travel (bicycles and pedestrians) and public transit service, and to accommodate
future land development activity. The Tigard Transportation System Plan addresses Oregon Statewide
Planning Goal 12 and the Oregon Transportation Planning Rule (TPR). Completed in January 2002, the
TSP was reviewed by state and regional agencies and found to be in compliance with the TPR.
A listing of those TSP policies having potential pertinence to the Tigard Downtown Improvement Plan is
provided below.
A listing of those TSP policies having potential pertinence to the Tigard Downtown Improvement Plan is
provided below.
• Goal I — Livability: Plan, design and construct transportation facilities in a manner which
enhances livability in Tigard
• Goal 2 — Balanced Transportation System: Provide a balanced transportation syststem
incorporating all modes of transportation
• Goal 3 — Safety: Strive to achieve a safe transportation system by developing street standards,
access management policies and speed controls when constructing streets, by making street
maintenance a priority and through a comprehensive program of engineering, education and
enforcement
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• Goals 4—Performance: Transportation performance measures shall be set and maintained by the
City.
• Goal 5—Accessibility: Develop Transportation facilities which are accessible to all members of
the community and minimize out of direction travel
• Goal 6—Goods Movement: Provide for efficient movement of goods and services
• Goal 7—Coordination: Implement the TSP in a coordinated manner
These goals, and the recommended policies supporting these goals will be taken into consideration as the
Tigard Downtown Improvement Plan is developed.
Municipal Code
Chapter 18.520 Commercial Zoning Districts of the Tigard Municipal Code Title 18 defines
allowed uses and development standards within the CBD zone. The entire Downtown is within
Title 18 of the Tigard Development Code as:
"The CBD zoning district is designed to provide a concentrated central business
district, centered on the City's historic downtown, including a mix of civic, retail and
office uses. Single-family attached housing, at a maximum density of 12 units/net
acre, equivalent of the R-12 zoning district, and multi-family housing at a minimum
density of 32 units/acre, equivalent to the R-40 zoning district, are permitted outright.
A wide range of uses, including but not limited to adult entertainment, utilities,
facilities with drive-up windows, medical centers, major event entertainment and
gasoline stations, are permitted conditionally."
The following summary of applicable standards was provided by the City of Tigard:
Summary of Allowed Residential Uses for CBD:
Household Living: Single-family attached and multi-family residential units developed
at R-40 standards, except the CBD area bounded by Fanno Creek,Hall Boulevard,
O'Mara,Ash Avenue and Hill Street. This area is designated R-12 PD and shall be
developed as planned developments in conformance with R-12 district standards.
Group Living: Permitted
Transitional Housing: Conditional Use
Home Occupation: Restricted: permitted subject to requirements Chapter 18.742
Summary of Commercial Development Standards for CBD:
■ No minimum lot size
■ No minimum lot width
■ Minimum Setbacks: There are no setback requirements, except a 30-foot is required
where a commercial use within a district abuts a residential zoning district.
■ No minimum building height
■ Maximum building height is 80 ft(except that the maximum height of any building
in the CBD zone within 100 ft of any residential zoning district shall not exceed 40
feet.)
Table 18.520.1 lists the allowed outright, conditional, and prohibited uses for the CBD today. Several
types of uses presently found within the Downtown area are identified as prohibited uses in Table
18.520.1, including light and general industrial, warehouse freight movement, and industrial. Auto
service uses, except for auto cleaning is also a prohibited use. These nonconforming uses are allowed to
continue until they are torn down; expansion or redevelopment of non-conforming uses is prohibited. In
either of these situations,the development would be required to meet the current code. Section 18-520-16
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allows existing nonconforming industrial structures at the following locations to continue as I-P Industrial
Uses (allows a change in ownership and I-P). This code section applies to the following tax lots:
2S 12AA04700,2S 12AC00100,2S 12AC00202,2S 12AD01203,2S 12DB00100, and 2S 12DA00300.
Minimum residential density is 32 units/acre. Buildings are limited to 80 feet in height, or 40 feet when
within 100 feet of residential areas. Mixed-use developments could be allowed; however, there are no
specific regulations that guide this type of development within the CBD. Other regulations specific to
Mixed-use are contained in other sections of the code.
Currently, the CBD regulations within Section 18.520 are categorized as "interim" until a full plan and
corresponding code can be adopted. The interim regulations do not address guidelines for building
materials or finish. The current regulations do include pedestrian connection requirements, transit
accommodations, and a minimum of 15 percent landscaping per site (allowing 85 percent site coverage).
According to the City's recent experience, these regulations have not been applicable to development
applications received by the City.
EXISTING CONDITIONS
Plan Area Description
Located approximately seven miles southwest of downtown Portland, Tigard's approximately 146-acre
Downtown core ("Plan Area") is bound by two state highways. Oregon Highway 99 West (OR 99W)
defines the northwest boundary and Hall Boulevard (Beaverton -Tualatin Highway) defines the eastern
boundary. The Southern Pacific and Burlington Northern rail lines bisect the Plan Area. The existing
Fanno Creek Trail forms the southern boundary and also connects the Plan Area with the Regional Trails
System and the residential areas to the south of the Downtown core. From the intersection of Hall
Boulevard and OR 99W, the elevation slopes gradually down through the Downtown until reaching the
Fanno Creek floodplain. Continuing south past Fanno Creek, the elevation gradually rises again. Given
this topographical setting, the Downtown Tigard core rests in a small, shallow valley and is considerably
lower than OR 99W, which displays very little grade change from the north to south ends of the Plan Area
(see Figure 1 Existing Conditions).
Figure 1 Existing Conditions, is a compilation of Geographic Information System (GIS) data provided by
the City of Tigard. GIS "layers" describe a complete picture of technical information pertaining to the
study area. The GIS layers used to create the Existing Conditions Map include the following:
■ Central business district Lots -taxlot shapefile containing lot size, and year built
■ Central business district Buildings -building footprint shapefile created by City
Engineering
■ Comprehensive Plan designations in coverage format
■ Map directory of PDF's concerning the Downtown area
■ City streets layer coverage,contains Transportation System Plan designations
■ Vacant land analysis in shapefile format
■ Title 3 -METRO's Title 3 environmental data
■ Zoning
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
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17 OF 40
Land Use
The existing uses in the Plan Area include retail, office, residential, auto-dependent businesses, and large-
lot light industrial businesses as well as public park and civic service, and transit uses (see Figure 2 Land
Use). Industrial uses are prominent to the southeast of the Plan Area. Retail commercial uses are
concentrated to the northwest along OR 99W, and residential districts surround the Downtown core to the
southeast and northwest. Based on a September 2003 Downtown land use and building inventory survey
conducted by the City of Tigard, approximately 38 percent of land in the Plan Area is occupied by
commercial uses, including office and retail as shown in the figure below. Industrial uses comprise
approximately 14 percent of the land area, and government uses,including City services, transit services,
and the US Post Office occupy approximately 18 percent of the land the Plan Area. The next largest use
by land area is public parks, which occupy 16 percent of the land. Multi-family land use occupies
approximately eight percent of the land area, and less than two percent each is classified as vacant land,
single family, single family attached, or institutional.
Land Use by Acreage
E1% ❑ 1% ❑Commercial
■2% E]Government
M 16% ❑Industrial
❑gg% ❑Institutional
08% ■Multi-Family
❑2% Park
❑Single-Fam ily
❑ 14% ❑Single-Family Attached
018% ■Vacant
Lot sizes within the Plan Area vary widely. The average lot size is just under one acre, while the
maximum lot size is approximately 15 acres. The more compact lots are found along Main Street and on
the south side of the Southern Pacific and Burlington Northern rail lines. Larger lots are concentrated
along Fanno Creek and the southern half of Hall Boulevard.
As mentioned in the Municipal Code section above, some existing land uses are not allowed under current
zoning, and based on Metro's guidance,these uses are not desired for development and enhancement of
Town Centers. Figure 2 shows that industrial and institutional uses are scattered throughout the eastern
two-thirds of the Plan Area. Section 18.520-16 of the Tigard Municipal Code allows existing
nonconforming industrial structures at some locations Downtown'. The auto repair facilities that are also
non-conforming uses are included in the Commercial land use type on Figure 2 and are located on Main
Street and in other locations within the Plan Area.
'The following tax lot locations are allowed to continue as I-P Industrial Uses(allows a change in ownership and I-
P):2S 12AA04700,2S 12AC00100,2S 12AC00202,2S 12AD01203,2S 12DB00100,and 2S 12DA00300.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
6
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ON.o River Single Family Commercial Industrial Services(roofing,etc)m Research and Development Park
ff] Building Footprints Single Family Attached(duplex) Commercial/industrial Manufacturing/Production Wholesale sales Vacant
Parcels Multi-Family Commercial/institutional Warehouse/freight movement Institutional Government
19 OF 40
Transportation
Pedestrian Transportation
Facilities
Sidewalks and the Fanno Creek Pathway form the backbone of the pedestrian system in Downtown
Tigard. There are sidewalks on both sides of Main Street, Tigard Street and Commercial Street south of
Main Street2. On Burnham Street, Scoffins Street and Ash Street, there are sidewalks where recent
development has occurred; otherwise properties do not have sidewalks along their frontage. The lack of a
continuous sidewalk network throughout the entire Downtown area limits the extent to which the area is
viewed as a single district and creates obstacles to users of the Downtown. Opportunities for pedestrian-
only connections at places where right-of-way or easements exist should be explored.
Pedestrian facilities on Main Street also include a curb extension at the southwest corner of Main and
Burnham Streets and a mid-block pedestrian crossing near Tigard Cycle & Ski. This pedestrian crossing
has in-pavement lighting to provide enhanced safety. The crossing does not align continuously with the
existing Fanno Creek Parkway.
Attractions
There is a desire to address the pedestrian facility crossing under Oregon 99 W at the Fanno Creek
Pathway and eventually to extend the trail further to the north. This is a potential pedestrian gateway into
Downtown Tigard, but pedestrians comment that the current configuration feels unsafe and is
unattractive. In addition,there is no current signage directing pedestrians to use the pathway.
Pedestrian connectivity issues also exist between the new library and City Hall and the Downtown area.
The new library is located on the east side of Hall Boulevard in the vicinity of SW O'Mara Street. This
issue will be a particular consideration in the future classification and design of Hall Boulevard through
the project study area. Figure 3 shows current pedestrian facilities and opportunities and constraints.
Bicycle Transportation
Facilities
Figure 4 shows existing and planned bicycle facilities in the Tigard Downtown Improvement Area, and
the functional classification of existing and planned streets in the area. According to the City's street
design guidelines, all arterial and collector streets should include six foot striped bicycle lanes.
The Fanno Creek pathway is a facility for bicycle travel to and through the project study areas.
Participants on the field walk conducted in August 2004 indicated that families do bicycle on the Fanno
Creek Pathway.
There are no striped bicycle lanes currently in the core of Downtown Tigard3. Along the boundaries of
Downtown Tigard, Oregon 99W does not have bicycle lanes. Alternately signed and striped bicycle lanes
do exist on SW Hall Boulevard, but the environment is not especially attractive for cyclists. As planning
evolves for the project, attention should be given to providing safe bicycle connections to, from and
within the study area as well as along and across Hall Boulevard and across Oregon 99W.
2 DKS Associates,Tigard Commercial Rail Traffic Study,February 2003
'MID
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
Tigard Downtown Improvement Plan 0ctober2004
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Tigard Downtown Improvement Plan October 2004
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— TIGARD,OREGON
KMR KITTELSON&ASSOCIATES,INC.
ANSPOATATONPTANNNc,TAaFFCENGINEERING
22 OF 40
The current City of Tigard TSP includes an extension of Ash Street from ORE 99W to Hunziker through
a portion of the Fanno Creek Pathway. This project has been under consideration for many years, and has
been in and out of the TSP and Comprehensive Plan at least once. Impacts to pedestrian and bicycle
circulation, as well as environmental impacts, would have to be studied in detail as part of any Ash Street
extension project. The City and neighborhoods collective desire for this project will be reconsidered in
this project.
Attractions
The relatively flat terrain and currently low traffic volumes make cycling an attractive possibility within
Downtown Tigard. In addition, with the existing Tri-Met Transit Center and the future Commuter Rail
station, there is a possibility for cyclists to transfer from a local trip on a bicycle to a sub-regional or
regional trip on the bus or commuter rail.
Tigard Cycle & Ski on Main Street could be a resource to build on for cyclist education and outreach,
especially given its strategic location along the Fanno Creek Greenway. It is also important to note that
the Hit-N-Run Paintball on Commercial Street, the library, and the proposed skate-park at City Hall are
likely to attract youth to the Downtown area and adequate routes and bicycle parking should be provided
at these destinations.
Transit
Figure 5 shows the Tri-Met bus routes that travel through Downtown Tigard and to and from the Tri-Met
Transit Center located on Commercial Street. As summarized in Table 2, Tri-Met provides seven bus
routes within the Downtown Improvement Plan area, with five serving the Tigard Transit Center and two
running on 99W.
Table 2 Summary of Downtown Tigard Transit Service
Route Headways Major Destination
• 15 minute headways from 5:30 a.m.to 9:00 p.m. Portland City Center via Tigard and Barbur Transit
12 Centers—30 minute trip
• 30 minute headways from 9:00 p.m.to Midnight
• 23 minute headways from 5:30 a.m.to 9:00 am. Portland City Center via Washington Square—45
minute trip
• 60 minute headways from 9:00 a.m.to 2:00 p.m.
45
• 35 minute headways from 2:00 p.m.to 5:30 p.m.
• 60 minute headways from 5:30 p.m.to 8:45 p.m.
• 23 minute headways from 5:45 a.m.to 7:45 am. Marquam Hill via Barbur Transit Center—30
64X minute trip
• 33 minute headways from 3:30 p.m.to 5:45 p.m.returning from
Marquam Hill
• 30 minute headways from 6:15 a.m.to 7:15 p.m. Tualatin to Beaverton Transit Center via
76 Washington square TC—30 minute trip to
• 60 minute headways from 7:15 until 10:00 p.m.or 11:00 p.m. Beaverton;25 minute trip to Tualatin
(depending on the direction)
• 30 minute headways from 6:00 a.m.until 7:30 p.m Lake Oswego to Beaverton Transit Center via
Tigard and Washington Square Transit Center—25
78 • 60 minute headways from 7:30 until 11:30 p.m. minute trip to Lake Oswego,30 minute trip to
Beaverton
• 11 minute headways from 6:10 a.m.to 8:00 am.from Sherwood to Express bus from Sherwood to Portland City
Portland City Center Center
94
• 11 minute headways from 3:30 p.m.to 6:00 p.m.Portland City Center
to Sherwood
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
23 OF 40
Route Headways Major Destination
• 17 minute headways from 6:20 a.m.to 7:30 am.from Sherwood to Express bus from Sherwood to Portland City
Portland City Center Center
95
• 30 minute headways from 4:40 p.m.to 5:40 p.m.from Portland City
Center to Sherwood
In the future, Commuter Rail from Wilsonville to Beaverton will also stop at the transit center.
Commuter Rail will operate during the morning and evening rush hours and it is forecast that a total of
4,650 people will ride the trains daily. Plans are under development for track re-alignment, pedestrian
access to and from the station and trains, and parking supply and access in Downtown Tigard. The
addition of commuter rail to the existing transit mix may result in some shift of ridership from existing
bus service. An analysis of the impact of this shift is beyond the scope of this study.
With this amount of transit to and from Downtown Tigard and along the boundaries, there is an
opportunity for Downtown Tigard to become a multi-modal center; however it will be important to
appropriately manage parking supply so that the Downtown does not become a park and ride facility. It
will also be important to develop a pedestrian and bicycle system that is comprehensive and provides safe
and intuitive access to and from the Transit Center and within Downtown Tigard.
Parking System
City of Tigard staff and the members of the Downtown Task Force conducted a parking supply and
demand survey on a typical Tuesday and Thursday during the summer of 2003. Although a number of
factors have changed since the parking survey was conducted (e.g. Tigard Fitness is operational again),
the City staff believes that the general survey results are still valid. The survey was conducted on both
sides of Burnham, Commercial, and Main Streets. The purpose of the survey was to identify the type and
location of parking and the demand for parking in Downtown Tigard. In the survey Main Street was
divided into two parts: East Main Street, which is Main Street east of the railroad tracks toward the Rite
Aid;West Main Street,which is Main Street toward the Fanno Creek Pathway.
Parking Supply
At the time of the parking survey there were a total of 1,295 parking spaces in Downtown Tigard; of
those, 235 were on-street and 1,060 were off-street spaces. Among the on-street spaces, four are
designated as 15-minute spaces, 54 designated as 2-hour spaces; and the rest do not have time restrictions.
The City of Tigard currently provides limited enforcement of these parking restrictions. Of the 1,060 off-
street spaces, 94 are marked as restricted to patrons of individual businesses while the remaining 966 are
unmarked.
On-street parking on the north side of Main Street is generally diagonal (except where space limitations
between driveways allow only for parallel parking) while parking along the south side of Main Street is
parallel to the curb. There are a limited number of handicapped parking spaces within the district and
their location was not identified in this survey.
Table 3 summarizes parking supply in Downtown Tigard.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
Tigard Downtown Improvement Plan October 2004
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KKKITTELSON&ASSOCIATES,INC.
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25 OF 40
Table 3 Downtown Tigard Parking Inventory
On-Street Parking Supply Off-Street Parking Supply
Street 15-minute 2-hour Unrestricted Restricted Unrestricted Total
Main west of railroad
tracks 2 15 78 19 186 300
Main east of railroad
tracks 2 15 35 41 542 635
Commercial. 0 21 40 26 76 163
Burnham 0 3 24 8 162 197
Total 4 54 177 94 966 1295
Parking Utilization
The parking utilization results summarized in Table 4 shows the percent of occupied parking spaces
during the survey hours. The utilization survey was conducted for on-street parking only. The survey
was conducted from 8:00 a.m. to 10:00 a.m., 11:30 a.m. to 1:30 p.m., and 4:00 p.m. to 6:00 p.m. As
shown in this table, parking utilization for each street and for the system as a whole was well below 50
percent. The highest parking utilization was during the lunch hour and the highest localized utilization
levels were directly in front of restaurants during their hours of service.
Table 4 Downtown Tigard Parking Utilization
Street
Peak Hour West Main East Main Commercial Burnham Total
AM Peak Hour 32% 12% 20% 40% 26%
Mid-day 42% 36% 26% 41% 36%
PM Peak Hour 27% 20% 17% 21% 21%
Total 34% 23% 21% 34% 28%
Many members of the Task Force began the survey believing that there was a significant parking shortage
in Downtown Tigard, but finished believing that there were more than enough parking spaces within the
Downtown area. City staff also compared these results to the Urban Land Institute's parking thresholds,
which recommend that agencies should begin planning for new parking supply when utilization rates
exceed 70 percent. According to this threshold,this is currently not an issue in Downtown Tigard.
Parking Duration
Parking duration at a single space varied significantly by location, with an average parking duration of 3.5
hours on Burnham Street, 3 hours on Commercial Street, 1.5 hours on West Main, and 0.75 hours on East
Main. Also observed was the prevalence of the same vehicles in front of some businesses for several
hours, suggesting that employees might be parking in spaces most desirable for customers.
Commuter Rail Parking
Current commuter rail plans include a stop in Downtown Tigard. This would include construction of a
new 120-space parking lot over the easternmost pair of train tracks on the south side of Main Street with
an access to East Main Street in the vicinity of the railroad crossing. As planning continues it will be
important to review the designs for this lot and determine how this will affect circulation patterns on Main
Street as well as the proposal to link Walnut Street with Ash Street on either side of the railroad tracks.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
Tigard Downtown Improvement Plan October 2004
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— TIGARD,OREGON
KKKKITTELSON&ASSOCIATES,INC.
ANSPORTATONPLANNING/TRAFFIC ENGINEERING
27 OF 40
Vehicle Transportation System
Figure 6 shows the roadway classification system within the project study area for existing streets and the
proposed connection of Walnut Street to Ash Street and north to Scoffins Street. This connection has
been planned for many years. However, a major constraint to implementing this concept is acquiring the
permit for a new railroad crossing of the Burlington Northern and Southern Pacific railroad tracks. The
City will need to work collaboratively with the railroad to acquire a new permit for a new crossing. This
would include closing at least one other crossing in Tigard and likely include an effort to identify an
alternative switching area to replace the existing switching area between Hall Boulevard and Main Street.
The current use of the railroad tracks for switching operations has a negative impact on traffic patterns on
both Hall Boulevard and Main Street, with long lines of vehicles waiting as trains block the roadway for
extended periods of time. During the one-hour walking tour, trains stopped traffic on at least four
occasions, with queues forming each time. Finding an alternative switching site would have benefits not
just for the proposed Ash Street extension but also for general traffic flow.
Figure 6 also shows the location of the traffic signals within the study area. All other intersections within
the study area are either controlled by stop signs or there is no traffic control.
DKS Associates conducted a traffic study for the Commuter Rail project in February 2003. Based on this
study there were no peak hour capacity or delay constraints on Main Street at Burnham Street, Tigard
Street, or Commercial Street. However, while on the walking tour, City of Tigard staff indicated that if
there is congestion on the Oregon 99W viaduct, some motorists divert to Main Street through Tigard as a
short cut, which in turn causes short-term congestion on Main Street. Staff also indicated that motorists
regularly disregard the all-way stop controlled intersection at Main Street/Burnham Street. The traffic
volumes and level of service results taken from the DKS study are shown in Appendix A.
All of the roadways within the project study area are two lane roads with the exception of Hall Boulevard
and Oregon 99W. Hall Boulevard is a two-lane road north of Burnham Street and a three-lane road south
of Burnham Street. There are bike lanes on both sides of Hall Boulevard. The roadway is ODOT
jurisdiction and classified as a District Highway. The posted speed limit is 30 miles per hour near 99W
and 45 miles per hour near McDonald Street. The Metro Regional Transportation Plan calls for widening
Hall Boulevard to a five-lane road through the project study area. A major consideration in the Hall
Boulevard project should be developing a street design that accommodates all modes of transportation
and provides the connectivity needed between the new Tigard library, City Hall and Downtown Tigard.
Oregon 99W through the project study area is a six-lane roadway under ODOT jurisdiction. It is classified
by ODOT as a Statewide Highway on the National Highway System.
Planned Proiects...CIP
The City of Tigard Capital Improvement Program (CIP) for FY 04-09 includes the following specific
projects within the project study area:
• Curb extensions on Main Street at Burnham Street in front of the Main Street Car Wash (FY 04-
05);
• Modifying a curb return on Main Street/Commercial Street to accommodate Tri-Met buses (FY
04-05);
• Hall Boulevard improvements from the Fanno Creek Bridge north to City Hall — project
description forthcoming from Tigard Staff(FY 06-07);
• Design, right of way acquisition, and construction of Burnham Street improvements. This is
scheduled to be complete by the end of FY 08. Current plans for Burnham Street call for a three-
lane cross-section; other amenities such as bike lanes, sidewalks,medians and landscaping will be
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
28 OF 40
identified through this process. Care has to be taken in planning to account for the Fire Station on
the south end of Burnham Street; and
• Design and Feasibility analysis for re-aligning the intersection of Hall Boulevard/Scoffin
Street/Hunziker Street.
There are other general programs in the CIP (i.e. traffic calming, striping, sidewalks and pedestrian
improvements)that may become a resource project for funding within the Tigard Downtown study area.
Planned Projects...TSP
The City of Tigard's TSP identifies several desired changes to the transportation system within or having
the potential to impact the project study area:
• A proposed extension of Ash Street from Highway 99W to Hunziker Street.
• Intersection Improvements at
o Main Street/Greenburg Road/Ore 99W — Southbound right turn lane, retain westbound
right turn lane when Ore 99W is widened to seven lanes
o Hall/Ore 99W — Southbound right turn lane, northbound left turn lane, westbound right
turn overlap,retain westbound right turn lane when ORE 99W is widened to 7 lanes.
• Sidewalks on both sides of Hall Boulevard, SW Hunziker Street, the proposed Ash Street
extension
• Bike Lanes on the proposed Ash Street extension, Burnham Street, and Commercial Street. In
addition Hall Boulevard and the Fanno Creek pathway are designated as Regional Access
Bikeway, and Regional multi-use path respectively
• Provide a commuter rail station
• Provide transit amenities at major bus stops
• Improve pedestrian connections to Transit Facilities
• Decrease headways
Street Desikn Guidelines
The City of Tigard, ODOT and Metro functional classifications of streets within the project
study area are summarized in Table 5 below. These classifications are used to identify street
design concepts according to Tigard, ODOT and Metro Guidelines. In addition, Metro
guidelines indicate that the Fanno Creek Pathway as a regional trail.
Table 5 Downtown Tigard Street Classifications
Street Tigard Classification ODOT Classification Metro Classification
Oregon 99W Arterial Statewide Highway Regional Boulevard
Potential light rail or rapid
bus
Regional bus
Major Arterial
Main Roadway Route for
Freight
Regional Corridor for
Cyclists
Transit/Mixed Use
Corridor
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
29 OF 40
Hall Boulevard Arterial District Highway Community Boulevard
Minor Arterial
Regional Corridor for
Cyclists
Transit/Mixed Use
Corridor
Burnham Street Collector None None
Main Street Collector None None
Commercial Street Collector None None
Scoffins Boulevard Collector None None
Ash Street(Existing and Collector None None
Proposed)
Table 6 shows the width of roadway characteristics identified in both sets of guidelines. As shown in this
table, a major distinction between these design guidelines is the desired width of sidewalk. Metro design
guidelines call for an eleven or twelve foot sidewalk. City of Tigard guidelines call for a six-foot
sidewalk. This difference will significantly influence right of way requirements. Metro design guidelines
also call for eleven-foot travel lanes, and Tigard guidelines call for twelve-foot travel lanes. Examples of
Metro regional boulevard and community boulevard street design guidelines are included in Appendix C.
Tigard's major arterial street design guidelines are included in Appendix D. ODOT's typical urban
fringe/suburban area, STA and UBA roadway element minimum design standards are included in
Appendix B. These guidelines are taken directly from the ODOT Highway Design Manual
Table 6 Street Design Guidelines Typical Widths
Street Right of Way Sidewalks Planter Bike Parking Lane Median
Type Requirements Strip Lane Lane Widths Widths
Tigard Varies by
Major Number of 6 feet 6 feet 6 feet None 12 feet Varies 12 to
Arterial Lanes-60 feet 14 feet
to 122 feet
100 feet(or 116 Varies- 10
Metro if double median feet, or wider
Regional boulevard is 11 feet 7 feet 5 feet None 11 feet where left
Boulevard used) turns
provided
7 feet as a Varies- 10
Metro periodic cut feet, or wider
Community 80 feet 12 feet 7 feet 5 feet out in planter 11 feet where left
Boulevard strip turns
provided
Examples of Metro regional boulevard and community boulevard street design guidelines are included in
Appendix C. Tigard's major arterial street design guidelines are included in Appendix D.
Rail Corridor
Current Conditions
All trackage within Tigard is operated by Portland & Western Railroad, Inc. (PNWR), which is
headquartered in Salem.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
30 OF 40
Under current operations, approximately eight freight trains visit Tigard over any 24-hour day period.
Some of these do not stop,but others pause to pick up and/or leave cars (switching). All crossings in the
vicinity of downtown Tigard, from North Dakota Street through Hall Boulevard, are subject to blockage
from time to time by switching. This activity results in added noise caused by the back and forth nature
of switching plus train whistling and vibrations emanating from the movement. At the present time the
main tracks through Tigard are acceptable for 25 MPH freight operation. Speed on auxiliary and industry
tracks is restricted to less than 10 MPH. Major commodities moved through Tigard include forest
products,manufactured industrial products, aggregates (crushed rock and sand),bulk feed,paper,propane
and fertilizers.
Future Conditions
The Washington County Commuter Rail Project, which forecasts start of commuter service between
Wilsonville and Beaverton in fall of 2007, will drastically alter the appearance and character of the
railroad through Tigard. Replacing the system of older tracks will be a modern two-track, fast-moving
state-of-the-art passenger and freight railroad built to heavy-duty standards. With 40-plus train
movements daily during the week (32 commuter and eight freight trains), the Beaverton-Tigard rail
corridor will become one of the busiest segments of railroad in Oregon.
Removal of the old Oregon Electric main track and parallel siding in the vicinity of Hall Boulevard, Main
Street and north along Tigard Avenue will eliminate current facilities for storing and switching freight
cars in Tigard. New track to be built near Beaverton City Hall will replace trackage lost in Tigard.
However, compared with present day operations, PNWR may lose overall trackage for conducting freight
operations. Because freight volume is expected to increase over time, PNWR is advocating for the
creation of a storage track south of Hall Boulevard that aside from storage uses, would also provide
access to existing industrial spurs in this area. Switching movements at the north end of this potential
storage track might affect traffic on Hall Boulevard and possibly Main Street.
According to PNWR,the commuter track upgrade will meet standards for designation as Federal Railroad
Administration Class 4. Class 4 tracks permit maximum speeds of 80 MPH and 60 MPH for passenger
and freight trains, respectively. While TriMet does not propose passenger speed anywhere in Tigard
faster than 65 MPH, PNWR believes freight operation between 40 MPH and 60 MPH is feasible and
desirable.
While improvements will permit passenger operation up to 65 MPH, most of the trackage in the City of
Tigard will be posted for operation at less than that speed. Moreover, other factors often intercede to
cause operation slower than the maximum permissible limit. For example, all 32 passenger trains will be
scheduled to stop at Tigard station between Main Street and Hall Boulevard. Accordingly, these trains
either will be slowing to stop or accelerating after stopping, resulting in passage over Main and Hall at
speeds less than the allowable maximum. Because freight trains won't stop at the platform, they have
potential to pass through Tigard at speeds greater than today,perhaps up to 60 MPH.
The initial morning commute schedule entails running 16 trains, eight trains in each direction; the evening
program is the same. The quick passage of these relatively lightweight vehicles should be significantly
less intrusive for railroad neighbors and the downtown business district than the passing of a conventional
locomotive-hauled freight train. To help achieve on-time performance, PNWR has agreed to minimize
freight train interference during the morning and evening rush-hour periods. To do this the freight
activity currently operation primarily during the day will shift to operation at night. While the number of
trains will increase from eight to 40 per 24-hour period, increased freight activity at night is likely to be
noticed most by residents who live along or near the rail corridor. Train whistling, noise accompanying
faster freight train movement, and possible vibration in structures close to the track are potential sources
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Tigard Downtown Improvement Plan 10104
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of conflict with residential land uses. Also likely to be voiced is concern that more frequent and faster
trains endanger motorists, pedestrians and trespassers on the urban right of way. It should be noted that
the faster trains would require less time to transit the community and shorten interruptions at crossings.
Although there will be 32 of them per day, the very short length of the two-car commute trains will cause
minimal delays at grade crossings.
Land-Use Issues
Future zoning decisions should recognize the rail corridor's heavy industrial character and use, and seek
to limit conflicts with other more sensitive development. For example, homes and apartments developed
adjacent to railroads can creating discontented residents and increase the potential for personal and
property damage resulting from rail accidents.
Natural Environment
Downtown Tigard is bordered to the southwest by Fanno Creek and its associated riparian features. The
City of Portland Bureau of Environmental Services Clean Rivers website describes the creek as a 15-mile
waterway located within the Tualatin River basin that flows from the intersection of Southwest Capitol
Highway and Beaverton Hillsdale Highway (near Wilson High School) to the Tualatin River in the town
of Durham. Fanno Creek and its tributaries drain about 7,800 acres of residential land, open space and
undeveloped forested areas. The watershed supports diverse wildlife species including amphibians,
reptiles, birds, fish and mammals. Although half the land is open space or undeveloped, the area's steep
slopes and clay soils create relatively high stormwater volumes. The lower portion of the watershed is
heavily urbanized.
Fanno Creek flows for approximately nine tenths of a mile within the Plan Area along its southwestern
boundary. Several delineated wetlands are associated with Fanno Creek within the Plan Area, and Fanno
Creek's 100-year floodplain ranges from approximately 50 feet on either side of the creek's centerline
near Main Street to approximately 375 feet on either side of the creek's centerline near Ash Street (see
Figure 7 Fanno Creek Natural Resources.)
The City of Tigard's Local Wetlands Inventory Wetlands Assessment, prepared in 1994, delineated six
identified wetlands within the Plan Area along Fanno Creek. This system of wetlands within the Plan
Area totals 22.63 acres. Vegetation within and around the wetlands includes native species, but is
dominated by non-native vegetation, such as reed canary grass and Himalayan blackberry. The vegetative
buffer around the wetlands includes western red cedar, Douglas fir, Oregon white oak, and ponderosa
pine. The City of Tigard's Fanno Creek Park Enhancement Plan to administer a broad range of strategies
to enhance the park's natural ecosystem while also providing recreation, relaxation and nature-viewing.
Two of the plan's major goals are to remove non-native vegetation and to install appropriate native plant
material. The park has also been a source of unwanted criminal and transient activities, and the plan
includes approaches to alleviate this problem. Activities are planned through 2007 and maintenance is
expected to continue in perpetuity.
Some development already exists within the floodplain and wetland areas as shown on Figure 7 by the
existing building footprints, however existing regulations restrict the extent and resulting impacts allowed
for any future development. Any development activities within the floodplain or wetland areas
surrounding Fanno Creek are subject to the City of Tigard's Sensitive Lands Chapter 18.775 of the
Municipal Code, which,in part,is intended to address several layers of regulation as follows:
4 http://www.cleanrivers-pdx.org/clean—rivers/ws—fanno—creek.htm
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Tigard Downtown Improvement Plan 10104
32 OF 40
■ Flood plain management program as required by the National Flood Insurance Program.
■ Washington County,Clean Water Services Design and Construction Standards.
■ Performance standards of the Metro Urban Growth Management Functional Plan related
to water quality and flood management areas (Title III).
■ Requirements of Statewide Planning Goal 5 (Natural Resources) and the safe harbor
provisions of the Goal 5 administrative rule pertaining to wetland and riparian corridors.
The City of Tigard specifically regulates development within the riparian and wetland areas surrounding
Fanno Creek through Section 18.775.090 of the municipal code. Development within protected areas is
generally prohibited unless an applicant can demonstrate that the resource is no longer significant
(Section 18.775.130 B), or can show through the results of an Environmental, Social, Economic and
Energy consequences analysis (in accordance with OAR 660-23-040) that the proposal is justified
(Section 18.775.130 A).
In addition, federal and state regulations through the U.S. Army Corps of Engineers, the Oregon
Department of State Lands, and the Oregon Department of Environmental Quality must be considered for
any future development within the wetland areas of Fanno Creek.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
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34 OF 40
DRAFT GUIDING PRINCIPLES
Guiding Principles provide the vision and direction that the entire Downtown improvement planning
process will follow throughout development of all concepts, plans, and final documents. They also
provide overall context for future planning and development within the Downtown area. The Tigard
Downtown Task Force members prepared the following Guiding Principles with the assistance of the
consultant team, who provided a draft set of principles based on key findings from the recent building-
block planning processes Tigard Beyond Tomorrow and the Oregon Downtown Development
Association's Resource Team Report. The draft Guiding Principles provided by the consultant team were
also informed by extensive experience with downtown improvement projects. The Task Force reviewed
and revised the draft principles and adopted the principles provided below on September 16, 2004.
Guiding Principles -Adopted September 16, 2004
The vision for an improved Downtown Tigard must reflect the community's values and
cultures.
Downtown Tigard should possess the qualities essential to successful downtowns,
including:
■ Extended hours of operation...not"folding at 5:00"
■ A mix of employment,retail, housing and cultural/entertainment uses
■ Providing a unique experience not available elsewhere in the community
■ Possessing a"sense of place"with a special identity
■ Being seen as the"center" or the"heart" of the community
■ A vibrant and compact core, accessible by all modes of transportation
■ A feeling of accessibility and safety
■ Accessibility in varied climatic conditions (e.g., throughout the various
seasons of the year)
Downtown should recognize the value natural resources provide as both an amenity and
as a distinct and special"place".
Planning for Tigard's Downtown should capitalize on commuter rail and Fanno Creek as
catalysts for future investments and development.
The Downtown's transportation system should be multi-modal, connecting people, places
and activities safely and conveniently.
Downtown Tigard's streetscape and public spaces should be pedestrian-friendly, and not
visually dominated by the automobile.
The Downtown Improvement Plan should be forward thinking, with objectives and
actions that will set the community up for future successes.
Downtown improvement projects should make creative use of unused and underutilized
properties, while maintaining and building upon Tigard's history.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
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The Downtown Improvement Plan should be outcomes-based and action-oriented, with
an array of key signature projects capable of being carried out.
City codes and regulations should enable the Downtown Improvement Plan's vision to be
carried out,recognizing the difference between Downtown and other commercial centers.
OPPORTUNITIES AND CONSTRAINTS
Opportunities and constraints are defined as—opportunities for, and constraints to, improving Downtown
Tigard (through the project Design Alternatives) consistent with the adopted Guiding Principles (included
earlier in this report). They are described below in two sections — Land Use, Transportation and Natural
Environment, and Urban Design.
Land Use, Transportation and Natural Environment
The matrix below (Table 7) summarizes the opportunities and constraints for elements related to land use,
transportation and natural environment.They were developed from the following:
• previous planning and visioning efforts
• current City of Tigard existing conditions GIS data
• draft transportation analysis by the consulting team
• City of Tigard staff,Task Force and consultants attended a walking tour of the Plan Area
• Task Force comment on their understanding of how the Plan Area functions
The matrix briefly describes opportunities and constraints associated with each element. For each
constraint, a statement is provided(italicized) about how the project will address the constraint.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
Table 7 Land Use,Transportation and Natural Environment
Opportunities &Constraints Matrix
ELEMENT OPPORTUNITY 1 CONSTRAINT
Land Use
Main Street Retail Healthy retail district with complimentary uses Additional retail uses will increase competition and could diminish viability of some existing uses. Market analysis will include
recommendations for maintaining the long-term retail health of the existing main street district.
Mixed Use Increases market support for Main Street Comprehensive plan, zoning ordinance and design standards will be needed to maximize compatibility between uses.Implementation strategies
will include concept level recommendations to address compatibility.
Residential Key feature of healthy downtown—wide range of residential prototypes Community sensitivity to introduction of new housing prototype for downtown-high-density multi-family. The design team will explore design
solutions to address height/massing/scale, and transportation and affordability impacts..
Office Establish a"working downtown" Comprehensive improvements to circulation throughout downtown. Transportation analysis will recommend a local circulation system and
Strengthen"civic district" parking program best suited for circulation and site development efficiency.
Enhance "employment district" with a flexible architectural prototype (adaptive flex space) to
respond to changes in the office market over time.
Industrial/Manufacturing Reduce proportion of uses over time while maintaining flexibility Maintain jobs and healthy economy. Market analysis will recommend phased approach to job replacement to maintain healthy employment
balance for downtown Tigard.
Auto Dependent Uses Enhance multi-modal, walkability of downtown Reduction of parking standards. Implementation strategies will include concept level recommendations for a parking program to maximize
efficiency.
Transportation
Multi-Modality Accommodate all modes in streetscape design Cost
More continuity in sidewalks Right-of-way availability needs to be explored. Transportation analysis will include an assessment of right-of-way impacts associated with new
Relatively flat terrain good for ped/bike access streets.
Facilities Separate facilities for pedestrians and bikes Cost
Flood plain regulations
Implementation strategies will describe state and federal requirements and explore "green street"design solutions.
Functional Classification Provide more connectivity Limited through-put and local connectivity
Transportation analysis will recommend street system additions/extension necessary to maintain a healthy and safe system.
Accessibility More connections from adjacent areas Limited due to grade changes
Pedestrian/bike access at 99W underpass Cost and safety concerns—security
Transportation analysis and site design solutions will include safety features(maximize visual exposure, lighting, etc.)
Rall Connect station area to Main Street Train and auto queueing conflicts
Direction connection to platform from Main St. Freight rail shifting to night operation may be incompatible with nearby residential uses
se station area as catalyst for future development Safety at Main St crossing and along railroad rights of way
Limited effect of commuter rail as inducement to"transit oriented community"
Design analysis will include short-term viability for commuter rail and a phased approach to long-term development as a station area
community.
Transportation System Connections / extensions to enhance local street connectivity — Ash, Walnut, new local streets, Rail crossing permit—BN&SP
etc. All circulation analysis will include ODOT Rail review as part of project Technical Advisory Committee.
Relevant Policies STA or UBA designations 99W does not exhibit characteristics for designation
TA designation would allow for the development of a cross-section with slower travel speeds, Hall Blvd.may be candidate for designation
arrower lanes, wider sidewalks. UBA un-likely in either case
It is a practice and goal of the ODOT Rail Division to achieve no net gain in railroad crossings
A f Transportation analysis will include a comprehensive evaluation of the potential for area roadway network special designations.
Natural Environment
Integrate Fanno Creek and Public space and visual connections Floodplain regulations restrict use and street impervious surfaces
related green areas "Green"streets Additional local,federal and state restrictions and requirements
Green and water element into streetscape design Implementation strategies will describe state and federal requirements and explore "green street"design solutions.
Central Gathering Place Park/public gathering place with access to green space and Fanno Creek trail system Floodplain management
Clean Water Services Design requirements
Implementation strategies will describe state and federal requirements and describe compliant passive recreation opportunities..
Natural Resource Beauty Help define sense of identity for downtown Additional design detail and compliance for integration in public and private development
Same as above.
Urban Design Opportunities & Constraints
Figure 8, Urban Design Opportunities & Constraints, summarizes the Urban Design Opportunities and
Constraints. They are a result of a compilation of Task Force recommendations by the consulting team.
The Task Force members individually toured the downtown plan area to create maps showing how they
perceive the study area. They used design terms provided by the consulting team. These terms helped the
Task Force simplify and describe how they experience downtown. These design terms are as follows:
■ Paths are channels along which people customarily, occasionally, or potentially move—
sidewalks,trails, streets, etc.
■ Edges are linear barriers that restrict lateral movement—freeways,rails,rivers,etc.
■ Districts are multiple-block"mini-neighborhoods"which people can go mentally"inside
of and which have some common, identifying character or association—old towns,
China Town, warehouse districts, shopping districts, etc.
■ Nodes are block size or smaller"points" of concentrated activity through which people
pass—intersections,train stations, public outdoor space, "100% corners" (retail/
commercial/mix use activity centers), etc.
■ Landmarks are singular features that contrast with their background, occupy a
prominent location or in some way distinctly signify a place—clock or bell towers,
distinct buildings,public art,key public places, etc.
The following summarizes a composite of the Task Force findings:
Opportunities
Paths
■ Upgrade the Fanno Creek trail to enhance visual connections from downtown and
physical connections to neighborhoods
■ Increase east-west connectivity—local and through-put circulation
■ Pedestrian circulation in place of abandoned RR right-of-way
■ Increase multi-modal character of downtown streets
Edges
■ Increase pedestrian-friendly connections to downtown across Hwy. 99W, Hall Blvd and
the RR.
■ Increase access to and connections along, Fanno Creek
■ Perforate edges with visual and physical connections when technically feasible
Districts
■ Reinforce Main Street as the primary retail district
■ Establish mixed use(employment/housing) districts to"feed"Main Street
■ Take advantage of natural features—hillside views at the top of Main Street,proximity to
Fanno Creek—to distinguish districts.
39 OF 40
■ Enhance pedestrian connections and central focus (new district?)between civic and Main
Street districts.
Nodes
■ The intersection of Main Street and the rail lines provides a high activity node
■ The area around Value Village and Rite Aid is underused and provides opportunity for
increased density and activity
■ Establish series of pedestrian-scaled—"living rooms"throughout districts within a five
minute walk of each other
Landmarks
■ The entrance from OR 99W at the south end of Main Street is a gateway into downtown
■ One or two buildings on Main Street may be vacant or removed in the foreseeable future
allowing for some influence over what use is installed in their place
■ Kauffman's is famous in the fly fishing business
■ The former Greyhound ticket sales building at the TriMet transit center is vacant offering
an opportunity to influence how it is used in the future
■ A skate park is planned in the southern end of Plan Area adding focus and activity to that
end of downtown
Constraints
■ Dominance of light industrial uses outside of Main Street
■ Lack of boutique and service oriented retail outside of Main Street
■ Public spaces are scattered throughout the Plan Area with no focal point
■ Only a limited number of residential units exist within the Plan Area
■ Appearance that there are vacant or underused properties in the Plan Area leads to an
impression that the area has a low level of activity
■ Existing structures appear to be between poor to average quality
■ It is a practice and goal of the ODOT Rail Division to achieve no net gain in railroad
crossings lack of visual cohesion
Initial Concepts for Improvement
■ Increase residential/mixed-use development
■ Introduce public space as a focal point—living room(s)
■ Integrate the Fanno Creek natural area into the rest of downtown
■ Increase retail and service uses outside of Main Street
■ Take advantage of entrances to the Plan Area by creating visual gateways
■ Provide for unique,long-term employment
■ More residential—downtown high-density feeling
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SUMMARY
This existing conditions and opportunities and constraints report 1) summarizes how Downtown Tigard
functions today; 2) identifies where opportunities can lead to improvement; 3) identifies current
constraints that work against the community's goals; and 4) outlines preliminary concepts that will be
further developed in the TDIP.
Land use, along with transportation, economic development, and urban design, is a central component to
creating the best conditions for a vibrant downtown. The current land uses are lacking in medium to
high-density residential dwellings and are dominated by light industrial/office buildings with little
pedestrian-friendly orientation. Outside of Main Street, the existing buildings do not create a sense of
place and cohesive function,but rather appear to be spread out and auto-dependent.
Land use component opportunities that would help improve Downtown's vitality include introducing
more residential and mixed-use developments around the planned commuter rail stop, focusing
employment and office toward the southeastern corner, near the existing civic uses, and using public
spaces to create meeting places.
Downtown Tigard has a long history of citizen involvement and is continuing that tradition with the
Tigard Downtown Improvement Plan. The findings in this report will be further developed and built
upon as the City of Tigard and the Tigard Downtown Task Force talk with community members in the
planned Community Dialogs.
City of Tigard,OR 273-2395-041
Tigard Downtown Improvement Plan 10104
JOHNSON
G A R D N E R
TIGARD DOWNTOWN
IMPROVEMENT PLAN
EXISTING CONDITIONS:
ECONOMIC ANALYSIS
PREPARED FOR:
THE CITY OF TIGARD
OCTOBER 12,2004
PORTLAND SEATTLE
520 SW Sixth Avenue,Suite 914,Portland,OR 97204 157 Yesler Way,Suite 508
503/295-7832 503/295-1107(fax) Seattle,WA 98104
TABLE OF CONTENTS
I. EXECUTIVE SUMMARY ..................................................................................1
II. MACROECONOMIC OVERVIEW...................................................................3
RegionalTrends.........................................................................................................3
TigardOverview........................................................................................................5
EconomicOutlook......................................................................................................9
III. RENTAL APARTMENTS.................................................................................10
RegionalOverview................................................................................................... 10
Tualatin, Tigard eTWilsonville Submarket Trends..................................................... 11
Tigard Market Area Apartment Survey..................................................................... 12
New Construction, Planned&Proposed Apartment Development............................... 13
Apartment Development Assessment.......................................................................... 13
IV. OWNERSHIP HOUSING................................................................................15
RegionalOverview................................................................................................... 15
Tigard Ownership Housing Trends........................................................................... 16
New Construction, Planned&Proposed Development............................................... 17
Ownership Housing Development Assessment............................................................. 17
V. SPECULATIVE OFFICE..................................................................................19
RegionalOverview................................................................................................... 19
Kruse Way Submarket Trends...................................................................................21
Tigard Area Office Survey........................................................................................22
New Construction, Planned&Proposed Development...............................................23
Office Development Assessment.................................................................................23
VI. INDUSTRIAL & FLEX....................................................................................25
RegionalOverview...................................................................................................25
Westside Submarket Trends......................................................................................26
Tigard IndustriallFlex Survey...................................................................................27
New Construction, Planned&Proposed Development...............................................28
IndustriallFlex Development Assessment....................................................................28
VII. SPECULATIVE RETAIL..................................................................................30
RegionalOverview...................................................................................................30
Tigard, Tualatin, Wilsonville Submarket Trends.......................................................31
Tigard Speculative Retail Survey...............................................................................32
New Construction, Planned&Proposed Development...............................................33
Retail Development Assessment..................................................................................33
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE i
I. EXECUTIVE SUMMARY
From a market perspective, Downtown Tigard has a number of opportunities to leverage its
existing strengths and promote additional economic and community development:
Downtown Development Opportunities
■ Continue to diversify existing mix of private and public uses
■ Build on efforts of strong Downtown business association with active business
promotion and retention initiatives
■ Promote location near major arterials, including the Pacific Highway, Hall Boulevard,
Greenburg Road and Highway 217
■ Plan residential and commercial development proximate to the new commuter rail stop
■ Better leverage proximity to Fanno Creek Park and Fanno Creek Greenway Trail
■ Take advantage of a clean slate. No redevelopment initiative has been attempted on a
large scale in Tigard. There are many areas with potential for in-fill development.
Downtown Tigard also faces a number of obstacles that will constrain future development
opportunities. These include the following:
Downtown Development Constraints
■ Lack of consolidated downtown corridor
■ Poor visibility due to elevation of Pacific Highway
■ Limited sense of"destination" to draw drivers off of nearby arterials
■ Numerous office and retail competitors with superior access and visibility
■ Lack of housing and residential compatible development
■ Relatively small surrounding residential base and low employment density
■ Rail line noise and traffic congestion
Taking into account these market area opportunities and constraints, as well as local and
regional market conditions,Johnson Gardner evaluated the short and long-term potential for
future development in Downtown Tigard. The table below summarizes our significant
findings and conclusions by land use.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 1
FIGURE)-1 TIGARD MARKET CONDITIONS& ASSESSMENT OF
DOWNTOWN DEVELOPMENT OPPORTUNITIES BY LAND USE
Land Use Occupancy/ Lease Rates/ Short-Term Long-Term
SalesActivity ,........._Sale Prices......................................_Development.............................................................................................._Development..................................................
Rental Low $0.80 to$1.05 Weak development Land assembly difficulties may limit
Housing occupancy per square foot potential. Apartment substantial new development. Lack of
(Apts) levels, quoted rents, market conditions are existing residential component
currently effective rents poor in Tigard and Downtown may be a deterrent,but
estimated at significantly throughout the metro could be overcome. Central housing
93.0% lower due to area. May be possible would be complementary to planned
widespread market support for tax commuter rail stop.
concessions credit affordable project.
Ownership 72 attached Average of Weak development Similar issues as those raised for
Housing home sales in $132 per square potential,despite a surge apartments above. In addition,
(Condos) the second foot for new in condominium Downtown Tigard is an unproven
quarter,60 of construction, development elsewhere condominium market,which may pose
which were $109 per square in Tigard,the an obstacle for any new attached
resales foot for resales Downtown lacks a ownership housing development.
residential feel,which Long term potential will be a function
will be a major of the City's ability to create a
impediment to new marketable downtown environment.
construction
Office Better than $14.00 to Weak development Neighborhood serving office
most of $18.00 per potential. High development should keep pace with
Portland square foot occupancy in the overall modest local population growth.
MSA: (Gross) Portland market will Development of a more regional office
93.2%direct, deter immediate new concentration is unlikely given
88.9%with development,despite locational constraints and proximity to
sublease space more favorable market existing concentrations in Kruse Way
included conditions in Tigard. and Beaverton
......... ......... ..................................................................................................................................................................................._;
Industrial Better than $6.00 to$9.00 Modest development From a market perspective,Tigard will
Flex most of per square foot potential. Assuming remain an attractive industrial/flex
Portland (NNN) continuing economic location with its superb regional access
MSA: recovery in Tigard and and large existing industrial
92.0%direct, the greater metro area. concentration. From a policy
90.5%with perspective,additional new
sublease space development may be less desirable in
included the interest of further diversifying local
development and increasing
employment density.
......... ..... ..........
Retail Healthy $13.00 to Modest development The potential for regional retail
occupancy of $16.00 per potential. Retail market downtown is limited due to poor
93.9% square foot conditions throughout visibility and the lack of a major
(NNN) the Portland MSA are "destination"to attract passerby away
strong as a result of from other big box and strip mall
continuing in-migration competitors off of Pacific Highway.
and the on-going The planned commuter rail stop will
regional economic provide a boost for neighborhood
recovery. retailers;however,retail growth may be
constrained by only modest population
rowth in the City.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 2
H. MACROECONOMIC OVERVIEW
The following section provides context for economic trends that shape current and likely
future development in Tigard and the greater Portland metropolitan area.
Regional Trends
Portland metropolitan area employment expanded by 10,400 jobs, or 1.1%, in the second
quarter of 2004--a modest improvement over the second quarter of 2003, when employment
increased by 6,600 jobs, or 0.7%. The trend on a monthly basis is definitely improving and
June marked the fifth consecutive month of local employment growth. Despite recent job
gains, the region lags behind the nation, which experienced 2.9% positive job growth in the
second quarter! Local employment is stabilizing, but still remains below pre-recession levels.
Total employment in June 2004 was 930,400 as compared to 945,600 in 2002. Modest
growth is expected to continue throughout 2004 and into 2005.
FIGURE II-1: PORTLAND MSA EMPLOYMENT TRENDS, 2000-2004YTD
EMPLOYMENT CHANGE FROM PREVIOUS YEAR
30,000
20,000
10,000
O
-10,000
-20,000
-30,000
-40,000
Employment gains during the last year were concentrated in Construction (2.0%),
Government (1.5%), and Manufacturing (1.4%). High Tech jobs, which have historically
driven the local economy, grew by approximately 1.7%. Employment in Professional &
' Based on the Bureau of Labor Statistics Household Survey.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 3
Business Services and Trade, Transportation, Warehousing and Utilities also edged up by
0.3% and 0.1%, respectively. The Leisure & Hospitality sector reported the greatest
magnitude of losses ((1,800 jobs), while Information reported the greatest percentage decline
(-3.4%). Financial Activities and Education and Health Services also had moderate losses
over the period.
FIGURE 11-2: PORTLAND MSA EMPLOYMENT BY INDUSTRY, 2Q04
ABSOLUTE GROWTH PERCENT GROWTH
High Tech 800 High Tech .7910
Government 1,90o Govern , 1 S�
Leisure&Hos lrt (1,800) Leisure Sc 2 1
pica'y Hospitality
Eduction&Health Eduction&Health 96
Services CGOOJ S—i—
Professional& 300 Professional&
0.3%
Business Services Business Services
Financial Activities (1,300) Financial Activities -1.9%
Information (800) Iaformacwn -3.4
=WU 1/ /00 TTWU 1/ 0.1910
Construction 11000
Construction 2.0910
Maaufac ing 11
600 Maaufact—i-9 1.4916
(5,000) - 5,000 _8% -6% _4% -2% 0% 2% 4%
1/Trade,Transportation,Warehousing&Utilities
Despite a 4.4 percent drop in MSA employment between 2000 and 2003, the local
population grew by an estimated 5.1 percent.2 In addition to natural increases (more births
than deaths), several factors contributed to regional population growth including an
accelerated pace of urbanization within the state and in-migration by out-of-state residents.
Portland's relative affordability on the West Coast and high quality of living continue to
attract outsiders to the metro area even in the absence of employment growth. The result
has been a sustained period of relatively high unemployment, which is expected to persist,
along with population growth, into the foreseeable future. In July unemployment in the
MSA was 6.8% as compared to 5.8% nationally.
Boosted by in-migration, residential construction activity is strong, despite only moderate
employment growth. In 2003, metro-area residential permitting recorded its highest level
since 1997 with 14,631 units, 36% of which were attached product (rental and for-sale
attached). So far this year, 6,334 permits have been issued and if construction continues at its
current pace permit activity will exceed that of 2003.
2 Oregon Employment Department,2004. People Moved to Oregon Despite Recession.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 4
FIGURE II-4: PORTLAND MSA RESIDENTIAL PERMIT ACTIVITY, 1984-2004
RESIDENTIAL PERMIT ACTIVITY
14,000
12,000
■Single Family
10,000
11 Multi Family
8,000
6,000
4,000
2,000
0
ti0� ti)� �013 4�1 ti�bb ti�4q titiqC~ ti�C� 1�ql qcs es �013 cls �q� �C)l 40
0 ~ 01, p', 1
X00
*2004 permit activity through May
Tigard Overview
The Tigard economy is closely linked to that of the greater Portland metropolitan area. A
large number of non-residents commute into Tigard for shopping and other services, while a
sizeable portion of local residents commute to other parts of the MSA for employment.
Within Tigard, wholesale trade, retail trade and the service industry drive the local economy.
Retail trade has the most establishments, and the retail and service industries employ the
most people.'
The figure below summarizes the top ten City employers by number of employees. Most of
these employers are located outside of Tigard's Downtown. Within Downtown, the city is
by far the largest employer. Private employers include mostly small businesses and light
industrial operations.
3 City of Tigard,2002-2003 Profile
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 5
FIGURE II-5: LARGEST TIGARD EMPLOYERS BY NUMBER OF EMPLOYEES, 2003
Company #Employees
1.Renaissance Credit Services 1167
2.Meier&Frank 502
3.Nordstrom Inc. 476
4.Servicemaster Bldg.Maintenance of Tigard 250
5.Rockwell Collins Flight Dynamics 249
6.Quest Diagnostics 246
6.Gerber Legendary Blades 246
8.Home Depot 241
9.Tigard 239
10.U.S.Bancorp.Equip.Finance.Inc. 234
Tigard's population totaled 41,223 in 2000, according to the U.S. Census. Claritas, a
statistical reporting firm estimates that the City's population grew by 2.3% annually over the
past four years, and will reach 45,093 by the end of 2004. Similarly, the number of
households in the City grew at an estimated rate of 2.2% per year rising from 16,507 in
2000 to 18,005 in 2004. The average household size is currently 2.5 persons and is
projected to remain steady over the next five years. Most city households can be classified as
middle income, earning$35,0004100,000 per year.
FIGURE 11-6: TIGARD DISTRIBUTION OF HOUSEHOLDS BY INCOME, 2004
$500,000..d.� 0.3/
$250.000.5499,999 1
1.2
$154000$249,999 6.3
$100.000-5149,999
575,000499,999 14.9%
550,000474,999 7 20.6%
535,000449,999 15.4%
525.000434,999
$15.000$24,999 9.8%
t<„moo$15,000 7.9%
Tigard's population diversified significantly over the past decade. According to U.S. Census
data, the number of residents that identified themselves as white fell from 94% in 1990 to
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 6
84% in 2000. Asians (6%), and other races4 (4%), followed by people of two or more races
(3%) made up the next largest racial groups in the City in 2000. It is likely that the Census
underestimates the percentage of the population of these non-white groups given these
groups tend to have a higher share of unreported residents, which are not incorporated in
official Census figures. In addition it should be noted that Hispanics and Latinos are not
classified as a group in and of themselves in this data, which is somewhat misleading. The
chart below shows the number of people that identify themselves as Hispanic within each of
these groups. The chart also shows racial distribution projections for 2004 to 2009
including a breakdown of the population that identifies itself as Hispanic or Latino,
approximately 11% in 2004. Projections show increasing diversification of the City's
population over the next five years.
FIGURE 11-7: TIGARD RACIAL CHARACTERISTICS, 2004-2009
City of Tigard
Ethnic Identification 2004 2009 Chane %
White alone 37,221 39,617 2,396 6%
Black or African American alone 572 716 144 25%
American Indian and Alaskan Native alone 297 367 70 24%
Asian alone 2,916 3,690 774 27%
Native Hawaiian and Other Pacific Islander alone 292 383 91 31%
Some other race alone 2,166 2,988 822 38%
Two or more races 1,629 2,142 513 31%
Total 45,093 49,903 4,810 11%
City of Tigard
Hispanic Identification 2004 2009 Chane %
Non-Hispanic 39,965 42,828 2,863 7%
White alone 2,602 3,574 972 37%
Black or African American alone 33 47 14 42%
American Indian and Alaskan Native alone 47 67 20 43%
Asian alone 32 40 8 25%
Native Hawaiian and Other Pacific Islander alone 5 8 3 60%
Some other race alone 2,091 2,909 818 39%
Two or more races 318 430 112 35%
Total 45,093 49,903 4,810 11%
The majority of City households (72%) are family households with two or more related
members. Primary householders followed by children make up the largest share of
household members. Cohabitation with an unrelated roommate is less common. See the
figure below for a comparison of household composition in Tigard and the greater Portland
area.
4 Other races include people of a single race that is not black/African American,American Indian,Pacific
Islander or Asian. Many people with Hispanic origin fall into this category.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 7
FIGURE II-8: TIGARD & PORTLAND HOUSEHOLD COMPOSITION, 2000
Household C—posirio.n
Prhnary Househdda
Spouse ❑Poalaud
MSA
Children
■Ciry of
Ot1117
her Relatives Tigazd
Non-relatives
0% Wl 20% 30% 40%
The gender balance in Tigard is nearly fifty-fifty. Children aged 0 to 18 make up
approximately 27% of the population, while over 50% of the population consists of adults
between the ages of 25 and 59. Consistent with national trends, aging of the baby-boomers
is expected to result in a growing senior population in the region.
FIGURE II-9: TIGARD DEMOGRAPHIC CHARACTERISTICS, 2000
Resident Charictaristics
Census Classificati City of Portland
Sex
Male 49% 49%
Female 51% 51%
Educational Attainment I/
Bachelor's Deg 36% 33%
Some College 64% 67%
Age Breakdown
0-18 Years 27% 22%
18-24 Years 8% 9%
25-34 Years 17% 18%
35-44 Years 18% 17%
45-59 Years 18% 19%
60-74 Years 7% 9%
75+Years 6% 6%
l/ Educational attainment of population 25+
Source: U.S. Census Bureau &Johnson Gardr
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 8
Tigard residential permit activity averaged 272 units annually over the last eight years. With
the exception of 1999, when 255 multi-family permits were issued, there has been virtually
no attached single-family construction in the City. Over the past four years, permitting for
detached single-family homes picked up as a result of low interest rates, but will likely ease
off over the next year with mortgage rate increases expected.
FIGURE II-10: TIGARD RESIDENTIAL PERMIT ACTIVITY, 1997-2004
600
500
■single Family
■Multi Family
400
300
200
100
0
1997 1998 1999 2000 2001 2002 2003 *2004
*2004 permit activity through May
Economic Outlook
Job gains from February to July, along with continuing national growth, provide some hope
for broader job recovery by late 2004.5 Our forecasts assume that the Portland metropolitan
area will benefit from a national expansion, although lagging national growth rates.
Mortgage rates, which more than anything have bolstered the local housing market, will
creep upward over the next several months, though not dramatically. Long-term rates are
s Oregon Employment Department,2003 Employment Trends Show Ripple Effects
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 9
determined by demand and supply of long-term debt instruments, largely by Asian central
banks such as those of Japan and China. Because those two countries desire to keep their
currency strong—to keep a surplus trade balance and render domestic capital assets expensive
to foreign investors —the U.S. dollar will be propped up by their purchase of long-term U.S.
debt for artificially low interest rates.
III. RENTAL APARTMENTS
Apartment market conditions in Tigard, as well as the greater Portland metropolitan area,
have been relatively soft since the onset of the recession, with low mortgage rates continuing
to entice renters to invest in ownership housing options. While the economy is improving
and rates are expected to rise, full recovery in the market is not anticipated till the end of
2005. Several new apartment complexes have been proposed in the Tigard area, but only
one has a scheduled completion date. Over the short term, new development in Tigard will
be constrained by low market occupancy and over-building in other parts of the region.
Regional Overview
The metropolitan area rental apartment market tightened in the first and second quarters of
2004, with overall occupancy rising 1.0%. According to Norris Beggs & Simpson average
rents increased 1.5% during the second quarter, reflecting a 6.1% annualized rate.
Investment activity in existing apartment complexes was robust, with 39 transactions
reported during the first quarter. Tightening market conditions came on the heels of recent
economic growth and reflects a marked improvement over weak market performance
throughout 2003. With interest rates expected to rise over the next year, competition from
ownership products should continue to diminish; however, inflation, a common side effect
of economic expansion, may take its toll on the operations side of complexes with un-
metered utilities. Energy costs rose by 15 percent over the last 12 months.
The overall market occupancy rate was estimated at 93.4% at the end of the second quarter
of 2004. Current estimated occupancy rates range from 91.9% in the Close-in Westside to
94.9% in the Hillsboro/Tanasbourne subregion. All sub-markets except the Close-in
Westside experienced a rise in occupancy over the quarter. Weakness in the Close-in
Westside may be attributed to several factors including a disproportionately large number of
renters taking advantage of lower interest rates and buying homes. It also may be due to a
preference for newly constructed apartment product in the nearby Central City. Following
a surge in new construction, the Central City sub-market is showing signs of weakness,
despite a moderate rise in occupancy. In the second quarter, recently constructed Central
City projects offered substantial price discounts and average rents fell by over 18%.
Although rental rates are significantly improving in most suburban sub-markets, new
construction remains limited to tax-credit projects outside of Downtown Portland, with
achievable lease rates still insufficient to justify new market rate construction.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 10
FIGURE III-1: RENTAL APARTMENT MARKET TRENDS / MARKET-RATE UNITS
7,000 10%
6,000 00 8%
5,000 6%
4,000 4%
3,000 2%
2,000 0%
1,000 -2%
Esl __J
0 4%
1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005
NEW RENTAL SUPPLY
NET ABSORPTION 10-Year Average Annual Supply 3,459
VACANCY RATE 10-Year Average Annual Absorption 2,835
-RENT ESCALATION 10-Year Average Annual Rental Increase: 2.50
10-Year Average Annual Vacancy Rate: 5.50
Net absorption is projected to outpace new supply in 2004, for the first time since 2000.
Overall market conditions are expected to improve through 2005, with average occupancy
approaching 95% by mid-2005. Despite recent increases, rent levels are still fairly low and
will keep new construction to a minimum until there is a more substantial shift in achievable
rents. With a rising interest rate environment and local economic expansion expected, a
significant shift in rents is expected in the latter half of 2004 and beginning of 2005.
Over the next year, we forecast that demand will exceed new supply, with most new supply
in suburban markets continuing to be income-restricted. The overall occupancy rate is
projected to climb to 94.2% by the second quarter of 2005. In a reverse of recent trends, the
Central City and Close-in markets are expected to become relatively soft, with significant
recovery in the suburban markets. The following table summarizes current and projected
market conditions by major sub-region in the metropolitan area:
Tualatin, Tigard&Wilsonville Submarket Trends
Trends in the Tualatin, Tigard,Wilsonville submarket historically mirror those of the greater
metropolitan area; however, submarket occupancy is generally 0.5% to 1.0% below that of
the MSA. Occupancy in the submarket currently averages 93.0% as compared to 93.4% in
the Portland region. Unlike occupancy levels, rents in the Tualatin, Tigard, Wilsonville
submarket tend to be consistent with those of the metro area. In the second quarter of 2004
new unit rents were $764 in the submarket, and $762 in the greater MSA.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 11
FIGURE III-2: TIGARD, TUALATIN & WILSONVILLE APARTMENT TRENDS
111 K1 • • 11
Year End Net Net Occupied Occupancy
l c.ir Inventor 1/ Additions 2/ Absorption Units Rate 700 95%
600 9596
1995 10,796 203 -- 10,283 95.2% 500
9496
1996 11,150 354 369 10,651 95.5% 400
1997 11,613 463 289 10,940 94.2% y300 93% z
1998 11,635 22 -61 10,879 93.5% L'200 • 92%
1999 12,034 399 565 11,444 95.1% '�100
2000 12,044 10 16 11,460 95.1% 0 0New Supply 91 o
2001 12,173 129 -200 11,260 92.5% �Ner Absorpriou 90%
2002 12,544 371 375 11,634 92.8% -too +o parKrRa�e 8996
2003 12,846 302 40 11,674 90,9% -200
2Q04 12,995 149 409 12,082 93.0% -300 88%
1995 1996 1997 1998 1999 2000 2001 2002 2003 2Q04
• •'
Vet Net Occupied Occupancy 90 93.795
Qua-, Inventory Additions Absorption Units Rate
80 93.795
2Q04 12,995 -- -- 12,082 93.0% 70 93,695
3Q04 12,995 0 59 12,142 93.4% 60 a
93.696 V
4Q04 13,039 44 59 12,201 93.6% E.50 Q
IQ05 13,092 53 59 12,260 93.6% Z 93.595 a
2Q05 13,169 77 59 12,319 93.5% 910 v
30 93.595
D New Supply
20 �N.Absor 93.495
prio
10 �A-0 c pavry Rare 93.495
0 93.3%
3Q04 4Q04 1Q05 2Q05
Over the last five years, new apartment construction in the Tualatin, Tigard, Wilsonville
submarket outpaced construction in the MSA. The inventory of 15+ unit apartments in
Portland grew by 3.76%, while it rose by 9.80% in the submarket. In the coming year,
174 new apartment units are scheduled to come on-line in the sub-market, but absorption is
expected to outpace new supply,pushing up occupancy 0.5% to 93.5%.
Tigard Market AreaApartment Survey
To establish market conditions specific to the Tigard market area, JOHNSON GARDNER
surveyed eight market-rate apartment complexes in the City of Tigard. See the figure below.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 12
FIGURE III-3: SURVEY OF TIGARD MARKET RATE APARTMENTS
Project Name/ Year Unit Characteristics Units Occupancy Monthly Rents
Location Built Total Type Size(S.F.) Mix Occupied Rate(%) Price Price/S.F.
Arbor Heights 1997 348 820 330 95% $652 $0.80
Main Street Village 1994 243 704 234 96% $802 $1.17
Meadow Creek 1985 304 418 284 93% $595 $1.42
Avalon Park 1990 192 770 173 90% $668 $0.89
Sumer Creek 1997 150 982 149 99% $945 $0.98
Fanno Creek 1992 60 1,168 58 97% $942 $0.81
Brighton Hills 1968 62 750 48 77% $588 $0.78
Bull Mountain Heights 1996 126 822 112 89% $642 $0.78
TOTAL/AVERAGE 1,485 740 1,388 93% $705 $0.95
Surveyed complexes comprise approximately 1,500 units, which average 740 square feet in
size. Their overall occupancy, at 93%, is roughly consistent with that of the Tualatin,
Tigard, Wilsonville sub-market as well as the greater Portland metropolitan area. In
contrast, their average rent of$0.95 per square foot is higher than the $0.83 rate in newly
constructed projects in the Tualatin, Tigard, Wilsonville submarket. This suggests that
Tigard rents may be higher than those in Tualatin and Wilsonville, or more likely, that rents
in our survey are inflated and do not reflect rent concessions offered by surveyed Tigard
projects. A number of property managers we spoke with, particularly those in older projects
with higher vacancy, said they offered up to two months free with a year lease.
New Construction, Planned&Proposed Apartment Development
There is one 32-unit affordable/mixed income apartment complex currently under
construction in the City of Tigard. Four other developments comprising 247 units have
been proposed in the City, but one has been abandoned and the remaining three are still in
pre-planning and planning stages. See the figure below.
FIGURE III-4: TIGARD APARTMENT PIPELINE FOR NEW DEVELOPMENT
Number Target Property Project
Project Tide Primary Owner Name Primary Address of Units Completion Type Stars
Apartments The Dalton Company 16185 SW 108th Ave 111 NA Apartmen¢ Abandoned
Bull Mountain Heights Apartments-Phase III MCH Constmction 11336 SW Bull Mountain Rd 70 NA Apartments NA
Bull Mountain Heights Apartments Ph II MCH Constmction 11336 SW Bull Mountain Rd 42 NA Apartments Planning
Coe Apartments Gary Coe 11115 SW 135th Ave 24 NA Apartments Pre-Planning
Oleson Woods Aparnnenn Community Parmets for Affordable Housing SW 91th Ave&SW Oleson Rd 32 May-05 Apartments(Subsidized) Start
Apartment Development Assessment
Based on our review of regional and market area apartment trends, it is the opinion of
Johnson Gardner that there is limited market support for additional apartment development
in Tigard over the short term. The following figure summarizes our market findings:
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 13
FIGURE III-5: APARTMENT DEVELOPMENT POTENTIAL & FEASIBILITY
COMPETITIVE ADVANTAGES
■ Proximity to Major Arterials Including Pacific Highway, Hall Boulevard, Greenburg
Road and Highway 217
■ Plans Underway for Future Commuter Rail Stop Downtown
■ Proximity to Fanno Creek Park and Fanno Creek Greenway Trail
COMPETITIVE DISADVANTAGES/CONCERNS
■ Land Assembly for Large Development May be Difficult
■ Lack of Existing Residential Development Concentration in Downtown Tigard
■ Some Surrounding Land Uses are not Residential Friendly
■ Rail Line Noise and Traffic Congestion
OCCUPANCY
■ Stable, but Slightly Soft Conditions: Our survey of Tigard rental apartments indicates
occupancy of 93.0% in existing units. Typically occupancy of 95% indicates a healthy rental
market, suggesting some weakness in the market. Over the past year, occupancy has been
relatively stable. It is projected to edge up to 93.5% by mid-2005.
RENTS
■ Concessions Market: Projects in our survey averaged rents of$705, or$0.95 per square
foot. On a price per square foot basis,their rents are higher than those in surrounding areas,
but this may be misleading given widespread rent concessions in Tigard.
FUTURE COMPETITION
• 5 Projects in Pipeline:A 32-unit affordable/mixed income project is currently under
construction. Four other projects comprising 247 units are in early planning stages.
DEVELOPMENT POTENTIAL
■ Short Term: Weak development potential. Apartment market conditions are poor in Tigard and
throughout the metro area. May be possible market support for tax credit affordable project.
■ Long Term: Land assembly difficulties may limit substantial new development. Lack of existing
residential component Downtown may be a deterrent,but could be overcome. Central housing would
be complementary to planned commuter rail stop.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 14
IV. OWNERSHIP HOUSING
Due to existing build-out in Downtown Tigard, the section below focuses on attached
ownership housing rather than single family housing, which is not a practical development
option in the area. Some information on single-family housing is provided as a reference
point for overall home prices and sales activity in the City.
Over the short term, we see modest support for new condominium development in Tigard,
as is evident by several projects in the pipeline. Demand for housing Downtwon, will likely
be more limited than in outlying areas, but that could change over time if efforts are made to
attract more residential friendly development in the city center.
Regional Overview
Sales activity for both attached and detached product surged in the second quarter of 2004
and was up by 26.1% over activity last year. Attached sales volume was 19.5% higher than
during the first quarter of 2003, while detached volume was 27% higher. The overall sales
volume during the quarter was 10,843 units, of which 10.8% were attached. The market
has not seen this level of sales activity for several years. With interest rates expected to rise,
many buyers appear to be acting now to secure lower rates.
FIGURE IV-1: SUMMARY OF PORTLAND MSA OWNERSHIP HOUSING SALES ACTIVITY
Detached Attached Total
2nd Quarter-04 9,670 1173 10,843
1st Quarter-04 5,593 797 6,390
4th Quarter-03 7,064 876 7,940
3rd Quarter-03 8,870 966 9,836
2nd Quarter-03 7,616 982 8,598
1st Quarter-03 5,609 696 6,305
4th Quarter-02 6,642 816 7,458
Annual Percent Increase(Decrease) 27.0% 19.5% 26.1%
Attached/
Detached Attached Detached
WESTSIDE
NEW $415,525 $271,922 65.4%
ALL SALES $368,932 $202,505 54.9%
EASTSIDE
NEW $258,827 $196,796 76.0%
ALL SALES $250,578 $158,862 63.4916
CLARK COUNTY
NEW $323,137 $204,808 63.4%
ALL SALES $219,082 $167,321 76.4916
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 15
Prices rose significantly during the first quarter, with average pricing for new product in the
Westside almost $40,000 per unit higher than reported during the first quarter of 2004.
The average sales price of new detached product was $415,525 on the Westside, $323,137 in
Clark County and $258,827 on the Eastside. New attached product averaged $271,922 on
the Westside, $196,796 on the Eastside and $204,808 in Clark County.
Units priced below $200,000 accounted for 49.2% of all activity during the first quarter,
with units priced below $300,000 accounting for 78.5%. Attached housing continued to
prosper as a low-price housing alternative, accounting for 29% of all sales priced below
$150,000 and 41% of all sales priced below $125,000. These levels are largely consistent
with trends during the first quarter of 2004.
FIGURE IV-2: PORTLAND MSA OWNERSHIP HOUSING SALES ACTIVITY BY PRICE
Total Sales Total Sales
Price Range Detached Attached Distribution M 00..$500,000 5.3%
Under $85,000 52 71 1.1% $x05,000-$499.999 '
G
$85,000-$99,999 72 82 1.4% $450,000-4,999 0.8.8
$100,000-$124,999 337 163 4.6% -
$125,000-$149,999 945 252 11.0% $+24.000s+","' 1.3%
1.
$150,000-$174,999 1,577 160 16.0% 5+00.000-$404,Tr,
$175,000-$199,999 1,509 119 15.0%
$3004399 99 12
.3%
$200,000-$224,999 985 64 9.7%
5350,000-$304,9x, 2.4%
$225,000-$249,999 860 67 8.5% $325.0004349,9x, 3.4%
$250,000-$274,999 604 50 6.0% $300,000-$304.9x, 3.5
$275,000-$299,999 516 27 5.0% $21,000-$299.9x, 5.0%
$300,000-$324,999 363 20 3.5% $250,000-$20499 6.0%
$325,000-$349,999 355 18 3.4% $225.000-$249.995 s.5
$350,000-$374,999 252 12 2.4% $200.000-$204,9x, 9.7%
$375,000-$399,999 238 15 2.3% $va000-V9999 15.
$400,000-$424,999 128 9 1.3% $50,000-W� 99, 16.0%
$425,000-$449,999 137 9 1.3% $25.000-$:49.9x, 11.
$450,000-$474,999 100 9 1.0% $00.00o-s�0a,9x, 46%
$475,000-$499,999 87 5 0.8% $85,000499 99 7 4%
$500,000#&Over 553 21 5.3% uoa..$05.000 1.
Total 9,670 1,173 100% 0% 2% 4% 6% 8% 10% 12% 14% 16% 18%
Tigard Ownership Housing Trends
As compared to elsewhere in the Portland metropolitan area, Tigard has a small stock of
attached ownership housing and attracts a smaller share of new attached housing
construction. Over the past two years, only 76 new attached units were sold in the City.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 16
FIGURE IV-3: TIGARD ATTACHED OWNERSHIP HOUSING SALES ACTIVITY
Sales Volume Rate of Change SALES VOLUMES
Qua;cer New Resale New Resale �0 3Q02 to 2Q04
3Q02 4 49 -83% -39% 60 ■Res Homes
4Q02 3 41 -25% -16% 50 ■New Homes
IQ03 2 31 -33% -24%
2Q03 11 52 450% 68% o
3Q03 6 43 -45% -17%
4Q03 24 33 222% 12% o
I Q04 14 44 -34% 1% la:
2Q04 12 60 -14% 36% ;12112 4Q02 IQ03 2Q03 3Q03 4Q03 1Q04 2Q04
In the second quarter of 2004, Tigard sales activity for new attached housing fell by 14%
and rose 36% for resales. The total sales volume for the city was 72 homes, of which 60
were resales. The price for new attached homes was $231,882, approximately$40,000
below the average sales price for new attached construction throughout the metro area.
Units priced below$200,000 made up 87.5% of total sales, a much higher proportion of
total sales than elsewhere in the region. On a per square foot basis, new construction
averaged sales of$133 and resales averaged $109.
Detached sales activity is significantly healthier in Tigard. New sales and resales grew at rates
of 21% and 57%, respectively, in the second quarter of 2004, exceeding overall sales growth
in the greater Portland area. New attached home prices in the City average $385,913, as
compared to $290,817 for resales. In contrast to attached homes, only 23% of homes sold
for less than $200,000.
New Construction, Planned&Proposed Development
There is one new attached ownership development, Bonita Townhomes, under construction
in the City of Tigard. It has 53 units and is scheduled for completion in March of 2005.
Three other developments, consisting of 102 units are in preliminary planning stages.
FIGURE IV-5: TIGARD APARTMENT PIPELINE FOR NEW DEVELOPMENT
Number Target Property Project
Project Title Primary Owner Name Primary Address of Units Completion Type Status
Barrows Road Townhomes Tom Secolo 13900 SW Barrows Rd 35 NA Townhouse/Condo Planning
Barrows Triangle Townhomes MGH Associates 13818 SW Barrows Rd 17 NA Townhouse/Condo Planning
Bonita Townhomes Derek L.Brown&Associates 7865&7965 SW Bonita Rd 53 Mar-05 Townhouse/Condo Start
Condominiums Alpha Engineering 13700 SW Hall Blvd 50 NA Townhouse/Condo Planning
Ownership Housing Development Assessment
Based on our review of regional and market area ownership housing trends, it is the opinion
of Johnson Gardner that there is modest market support for new housing development in
Tigard over the short term. In the Downtown market area, development opportunities will
be limited to attached product, and opportunities will be more limited. The table below
summarizes our significant findings.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 17
FIGURE IV-6: ATTACHED OWNERSHIP HOUSING DEVELOPMENT POTENTIAL &
FEASIBILITY
COMPETITIVE ADVANTAGES
■ Proximity to Major Arterials Including Pacific Highway, Hall Boulevard, Greenburg
Road and Highway 217
■ Plans Underway for Future Commuter Rail Stop Downtown
■ Proximity to Fanno Creek Park and Fanno Creek Greenway Trail
COMPETITIVE DISADVANTAGES/CONCERNS
■ Land Assembly for Large Development May be Difficult
■ Lack of Existing Residential Development Concentration in Downtown Tigard
■ Some Surrounding Land Uses are not Residential Friendly
■ Rail Line Noise and Traffic Congestion
■ Not a Proven Market for Condominium Development
SALES ACTIVITY
■ Low Sales Volume: Attached product makes up a small share of the Tigard housing stock
and a proportionally small share of total home sales. Sales per quarter fluctuated between 40
and 75 homes over the last two years.
SALES PRICES
■ Low Sales Prices: Nearly 90% of homes sold are below $200,000. The average price for
new home sales is $233,882, or $133/per square foot. These prices are significantly lower
than market area averages.
FUTURE COMPETITION
■ 4 Projects in Pipeline: A 53-unit condominium development is currently under
construction. Three other projects comprising 247 units are in early planning stages.
DEVELOPMENT POTENTIAL
■ Short Term: Despite low interest rates and a surge in condominium development elsewhere
in Tigard, the Downtown lacks a residential feel,which will likely impede new construction.
■ Long Term: Land assembly difficulties may limit substantial new development. Lack of
existing residential component Downtown may be a deterrent, but could be overcome.
Central housing would be complementary to planned commuter rail stop. In addition,
Downtown Tigard is an unproven condominium market, which may pose an obstacle for any
new attached ownership housing development. The concentration of social service providers
Downtown may also limit
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 18
V. SPECULATIVE OFFICE
As a result of over-building in the late 1990s and lingering effects of the recent recession, the
Portland speculative office market, although improving, remains relatively weak. While
market conditions in Tigard are superior to those of elsewhere in the region, occupancy and
rents in the area are not high enough to warrant new development in the immediate future.
Market recovery is not expected before mid-2006 at the earliest.
Regional Overview
The Portland metropolitan area's speculative office market reported net absorption of
372,170 square feet of office space during the second quarter of 2004, reflecting the seventh
consecutive quarter of positive absorption despite lackluster economic performance. The
direct vacancy rate fell slightly to 14.6% and vacancy including sublease space edged down to
17.0%
The direct vacancy rate for Class-A space is estimated at 11.2%, or 14.3% with sublease
space included. Direct vacancy is estimated at 17.1% and 17.3% for Class-B and Class-C
space, respectively. Over the second quarter, occupancy rose in both Class-A and Class-B
space, but dropped in Class-C space. Nearly 9.0 million square feet of tracked space is
directly vacant, with 1.4 million square feet of space identified for sublease.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 19
FIGURE V-1: PORTLAND MSA SPECULATIVE OFFICE TRENDS, 2Q04
Speculative New Inventory Net Vacancy Vacancy
Invenrory Construction Adjustments Absorption Direct Sublease Direct Total
Class 25,374,319 0 -190,728 184,564 2,834,159 803,357 11.17% 14.34%
Class B 23,008,727 74,250 519,991 259,650 3,932,280 545,036 17.09% 19.46%
Class C 12,004,020 0 148,485 -72,044 2,078,323 45,645 17.31% 17.69%
Total 60,387,066 74,250 477,748 372,170 8,844,762 1,394,038 14.65% 16.96%
NET ABSORPTION AND VACANCY RATE TRENDS
2,500,000 20% 1,000,000 16%
18% 800,000 =
2,000,000 14%
1696 600,000
12%
1,500,000 1496
w 400,000 w
w 12% F w 1095 F
W 1,000,000 �Absorpri w 200,000
C tVac
cy 10% U 8% U
an
a500,000 8% < d
6%
6% -200,000
0
4%
-400,000 �Absorprion 4%
-500,000 fVacan<y
2916 -600,000 2910
-1,000,000 1 0910 -800,000 096
v v
1999 2000 2001 2002 2003 ddddddddddddddddd
YEAR
While overall market conditions have been relatively stable, a number of submarkets
continue to experience sustained high vacancies. These include Clark County (29.1%
suburban vacancy), Sunnyside (26.3%), Oregon City/Milwaukie (20.5%), and
Beaverton/Cedar Hills (22.3%).
Only 101,212 square feet of new space is expected to enter the market over the next year,
while demand is forecasted to grow and reach 473,400 square feet. Our demand forecasts
for office space are employment driven, and as a result do not factor in the marginal impact
of soft market conditions and reduced effective lease rates. During periods of relatively high
vacancy, aggressive leasing tactics have the ability to generate demand through reducing the
effective cost of space to tenants. While this can lead to an increase in net absorption, it is
important to recognize that the impact is temporary, and does not change the underlying
demand for space if priced appropriately. Our projected demand increase reflects predictions
for improved economic performance in the region. Over the next year, office demand is
expected to increase consistent with expectations of economic growth. Vacancy rates are
projected to fall slightly to 14.0% by the end of the first quarter of 2005.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 20
Kruse Way Submarket Trends
In the Kruse Way office sub-market, which includes Tigard, Kruse Way and the 217
Corridor, direct office vacancy averaged 10.71% and 13.99% with sub-lease space included
in the second quarter of 2004. These rates were approximately 3% lower than those in the
greater Portland metropolitan area, which is consistent with long-term regional trends.
Kruse Way has become the pre-eminent office location in the Portland metropolitan area,
with superb access along the 217 Corridor and proximity to residential concentrations in
Multnomah and Washington Counties. Vacancy in the sub-market is consistently lower
than elsewhere in the region; however, the sub-market still suffers from excess supply, like
the rest of the metro area.
Occupancy in Class C space, followed by Class A space was highest in the Kruse Way sub-
market in the second quarter. Direct vacancy for all types of space in Tigard (6.78%) was
lower than both Kruse Way (8.50%) and the Washington Square/217 Corridor (15.49%).
Rents in Tigard ranged from $9.36 to$24.00, as compared to $6.43 to $28.55 in the greater
sub-market.
FIGURE V-2: KRUSE WAY SUBMARKET SPECULATIVE OFFICE TRENDS, 2Q04
Speculative New Inventory Net Vacancy Vacancy
Inventory Construction Adjustments Absorption Direct Sublease Direct Total
•
Class A 3,154,147 0 -74,525 133,356 321,497 76,224 10.19% 12.61%
Class B 3,391,331 0 -38,527 -8,133 405,601 158,894 11.96% 16.65%
Class C 770,713 0 6,230 10,540 56,664 4,972 7.35% 8.00%
Total 7,316,191 0 -106,822 135,763 783,762 240,090 10.71% 13.99%
Kruse Way 2,058,313 0 28,185 44,911 174,990 42,519 8.50% 10.57%
Tigard 2,361,218 0 -16,770 7,727 160,080 102,074 6.78% 11.10%
Wash Sq./217 Corr. 2,896,660 0 -118,237 83,125 448,692 95,497 15.49% 18.79%
Total 7,316,191 0 -106,822 135,763 783,762 240,090 10.71% 13.99%
NET ABSORPTION AND VACANCY RATE TRENDS
350,000 18% 250,00016%
Absorption
300,000 16% 200,000 (Vacancy 14%
250,000 14% 12%
150,000
200,000
�-. 10% F
w
w 150,000 10% � w� 100,000
8% Z
100,000 8% ¢ ] 50,000
d < d 6%
50,000 6%
0
4%
0 4%
50,000
[::=Absorption -50,000
-50,000 2%
f Vacancy
-100,000 0% -100,000 0%
v
1997 1998 1999 2000 2001 2002 a a a d a a J a a
YEAR QUARTER
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 21
Over the next year, sub-market conditions are projected to remain fairly stable, with vacancy
edging up 0.02% to 10.73% by the second quarter of 2005. Three new office developments,
comprising approximately 80,000 square feet, have been proposed in the sub-market, but
current market conditions are projected to deter actual construction plans for at least a year,
and likely much longer. None of these developments are in Tigard.
Tigard Area Office Survey
To provide additional context for speculative office conditions in the Tigard area, specifically
average rental rates,Johnson Gardner gathered sample data from Co-Star Group on 53 office
complexes in Tigard and neighboring regions with office concentrations. See the figure
below as well as Exhibits 4.05 and 4.06 in the Appendix.
FIGURE v-3: SURVEY OF SELECTED SPECULATIVE OFFICE DEVELOPMENTS
CITY OF TIGARD & NEIGHBORING OFFICE CONCENTRATIONS
Year Vacancy Asking
Location Built Total SF Vacant SF Rate Rate
Central Tigard (10 Properties)
Class B 1986 119,521 76,914 64.4% $12.16
Class C 1976 42,643 7,025 16.5% $13.81
Total/Average 1984 162,164 83,939 51.8% $12.60
SW 72nd Corridor(17 Properties)
Class A 1999 220,857 24,595 11.1% $20.99
Class B 1989 316,584 42,191 13.3% $17.60
Class C 1982 172,142 17,221 10.0% $16.01
Total/Average 1988 709,583 84,007 11.8% $18.27
Washington Square (14 Properties)
Class A 1986 614,596 86,792 14.1% $20.43
Class B 1984 159,728 19,454 12.2% $18.48
Class C 1987 18,785 0 NA NA
Total/Average 1985 793,109 106,246 13.4% $19.55
Kruse Way(12 Properties)
Class A 1992 613,589 76,655 12.5% $25.80
Class B 1986 155,699 21,708 13.9% $20.22
Class C 1980 28,995 2,950 10.2% $15.99
Total/Average 1988 798,283 101,313 12.7% $24.36
Total/Average 1986 2,463,139 375,505 15.2% $20.28
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 22
Rents in the sample average $20.28, reflecting a mixture of both gross and triple net rates.
Rates in Kruse Way were the highest at $24.36 (mostly representing gross figures) and lowest
in Central Tigard at $12.60 (mostly based on NNN figures).
In terms of occupancy, the more comprehensive sub-market survey discussed above is
probably a better indicator of market conditions. That being said, amongst the properties
surveyed, overall vacancy averages 15.2%. Vacancy is lowest in the SW 72nd Corridor,
followed by Kruse Way and Washington Square. Central Tigard has vacancy higher than
any of these outlying areas, which may be an aberration in our sample, but more likely
reflects a general preference for space in the City along the 72nd Corridor and closer to 1-5.
New Construction, Planned&Proposed Development
Weak office conditions continue to deter new office development throughout the Portland
metropolitan area. There are no new speculative office developments under construction, or
planned or proposed, in the City of Tigard.
Office Development Assessment
Based on our review of regional and market area speculative office trends, it is the opinion of
Johnson Gardner that there is no market support for additional speculative office
development in Tigard over the short term. The following figure summarizes our significant
market findings:
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 23
FIGURE V-4: SPECULATIVE OFFICE DEVELOPMENT POTENTIAL & FEASIBILITY
COMPETITIVE ADVANTAGES
■ Proximity to Major Arterials Including Pacific Highway, Hall Boulevard, Greenburg
Road and Highway 217
■ Plans Underway for Future Commuter Rail Stop Downtown
■ Existing Concentration of Government and Neighborhood Serving Office Tenants
■ Proximity to Large Residential Populations in Multnomah and Washington Counties
COMPETITIVE DISADVANTAGES/CONCERNS
■ Lack of Downtown "Destination" and Small Existing Office Concentration
■ Relatively Small Local Residential Base to Fuel Neighborhood Office Growth
■ Limited Draw as Regional Office Location
■ Regional Office Concentrations in Beaverton and Kruse Way are Closer to Residential
Concentrations and Proximate to More Amenities
■ Rail Line Noise and Traffic Congestion
OCCUPANCY
■ Low, but Better than Most of Portland: Tigard speculative office vacancy averages 6.8%,
and 11.1% including sub-lease space.Vacancy in the greater Portland area is significantly
higher at 14.6% and 17.0%,respectively.
RENTS
■ Healthy Rental Rates: Projects in our survey averaged rents of$12.80 per square foot
(NNN) in Central Tigard and $18.27 (Gross) closer to I-5 along the 72"d Corridor. These
rates are higher than those of many other areas in the city, but lower than in neighboring
Kruse Way and Washington Square office concentrations.
FUTURE COMPETITION
■ No Development in Pipeline: There are no speculative office developments under
construction, or planned or proposed, in the City of Tigard. Relatively weak office market
conditions region-wide constrain
DEVELOPMENT POTENTIAL
■ Short Term: High occupancy in the overall Portland market will deter immediate new development,
despite more favorable market conditions in Tigard.
■ Long Term: Neighborhood serving office development should keep pace with modest local
population growth. Growth of a more regional office concentration is unlikely given
locational constraints and proximity to existing Beaverton and Kruse Way office parks.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 24
VI. INDUSTRIAL & FLEX
Like the regional office market, the industrial/flex market currently suffers from high
vacancy, which is largely due to lingering affects of the recent recession. In Tigard,
industrial/flex vacancy, at nearly half regional levels, is markedly better than elsewhere in the
metro area. Long-term demand for industrial/flex space in the City is expected to remain
strong.
Regional Overview
The local industrial market showed modest improvements in the second quarter of 2004,
despite limited expansion in the local economy.
FIGURE VI-1: PORTLAND MSA INDUSTRIAL/FLEX TRENDS, 2Q04
Speculative New Inventory Net Vacancy Vacancy
Inventory Construction Adjustments Absorption Direct Sublease Direct Total
•
Industrial 29,179,188 111,450 333,139 346,393 3,215,323 453,917 11.02% 12.57%
Flex 13,628,978 0 140,869 577,013 3,159,108 526,192 23.18% 27.04%
Total 42,808,166 111,450 474,008 923,406 6,374,431 980,109 14.89% 17.18%
1111 IN-.0110
Aloha/Hillsboro 16,367,377 0 35,334 422,408 2,900,224 342,655 17.72% 19.81%
Beaverton 8,219,352 0 155,660 171,514 1,344,729 200,127 16.36% 18.80%
Lake Oswego 690,464 0 10,000 3,778 34,320 3,378 4.97% 5.46%
Tigard 4,617,007 0 -5,809 215,675 369,484 70,850 8.00% 9.54%
Tualatin/Sherwood 7,038,308 111,450 241,070 186,696 723,260 153,390 10.28% 12.46%
Wilsonville 5,506,378 0 -19,847 -88,052 920,115 201,209 16.71% 20.36%
Inner Southwest 369,280 0 57,600 11,386 82,299 8,500 22.29% 24.59%
Total 42,808,166 111,450 474,008 923,406 6,374,431 980,109 14.89% 17.18%
NET ABSORPTION AND VACANCY RATE TRENDS
1,400,000 229,o 1,000,000 - 20%
Absorption
1,200,000 203" 800,000 f 18/0
Vacancy
1,000,000 18' 16%
800,000 16% 600,000 14%
w w
w 600,000 14916 �' w 400,000 12%
w
a 400,000 12% U w >^
z, c4 200,000 10% U
a 200,000 101yo ¢ 8% U
a
° 8% ' ° U, >
6%
-200,000 or 6910 -200,000
-400,000 DAbsorpdo 4910 4%
t Varanry -400,000 A.../U --2%
-600,0002%
1998 1999 2000 2001 2002 2003 2004 -600,000 0%
YTD d d d d d d d d d d
YEAR
QUARTER
Net absorption was just less than 1.34 million square feet and was fairly widespread
geographically in the metropolitan area. This quarter marked the fifth consecutive quarter of
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 25
positive net absorption and fourth consecutive quarter of increased occupancy. The overall
occupancy rate for traditional industrial space is estimated at 15.3% direct and 16.9% with
sublease space included. Rates in the flex market are 23.3% direct, and 26.9% overall. On a
sub-region basis, both the Northeast and Southeast sub-markets had occupancy fall over the
quarter; however, occupancy in all sub-markets remained below 20%.
As with office space, the demand for industrial space is directly correlated with growth in
industrial space using employment, and a rebound in this market will ultimately be directly
tied to an economic rebound. The apparent strength of the market during the past year may
partially reflect aggressive leasing, as well as a substantial increase in the inventory of space
surveyed (over 5.6 million square feet). Based on recent employment trends, it is unlikely
that the increase in occupied space is employment driven.
New supply is expected to be limited due to the relatively soft market conditions, with the
exception of owner occupied and turnkey deals. We are forecasting that market conditions
will remain relatively constant over the next year, with a more significant improvement
forecast for 2005.
Westside Submarket Trends
Market conditions in the Westside submarket, which includes Tigard, generally mirror those
of the greater Portland metropolitan area. According to data from CoStar Group, the
submarket had direct vacancy of 14.89% and vacancy of 17.18% with sub-lease space
included in the second quarter of 2004. These rates were within a percent of regional
vacancy rates. Conditions were markedly better within the City of Tigard where direct and
sub-lease vacancy rates were 8.00% and 9.54%, respectively. In the sub-market as a whole,
vacancy in flex space was over 10% higher than that of purely industrial space. Weak flex
conditions can largely be attributed to continuing softness in the office market.
In the Westside submarket industrial rental rents range from $0.25 to $1.08 per square foot,
while flex rates range from $0.29 to $1.47 per square foot. Within Tigard quoted rents vary
to lesser extent. Industrial rents run from $0.38 to $1.02 per square foot and flex rents go
from $.40 to $1.13 per square foot.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 26
FIGURE VI-2: WESTSIDE SUBMARKET INDUSTRIAL/FLEX TRENDS, 2Q04
Speculative New Inventory Net Vacancy Vacancy
Inventory Construction Adjustments Absorption Direct Sublease Direct Total
•
Industrial 29,179,188 111,450 333,139 346,393 3,215,323 453,917 11.02% 12.57%
Flex 13,628,978 0 140,869 577,013 3,159,108 526,192 23.18% 27.04%
Total 42,808,166 111,450 474,008 923,406 6,374,431 980,109 14.89% 17.18%
Aloha/Hillsboro 16,367,377 0 35,334 422,408 2,900,224 342,655 17.72% 19.81%
Beaverton 8,219,352 0 155,660 171,514 1,344,729 200,127 16.36% 18.80%
Lake Oswego 690,464 0 10,000 3,778 34,320 3,378 4.97% 5.46%
Tigard 4,617,007 0 -5,809 215,675 369,484 70,850 8.00% 9.54%
Tualatin/Sherwood 7,038,308 111,450 241,070 186,696 723,260 153,390 10.28% 12.46%
Wilsonville 5,506,378 0 -19,847 -88,052 920,115 201,209 16.71% 20.36%
Inner Southwest 369,280 0 57,600 11,386 82,299 8,500 22.29% 24.59%
Total 42,808,166 111,450 474,008 923,406 6,374,431 980,109 14.89% 17.18%
NET ABSORPTION AND VACANCY RATE TRENDS
1,400,000 22% 1,000,000 20%
Absorption
1,200,000 20% 800,000 I8%
tVacancy
1,000,000 18% 16%
600,000
800,000 16% 14%
W w
w 600,000 14% �' w 400,000 12% t'
w
400,000 12% U
y. 200,000_f�l10% U
d 200,000 10% 8% U
d
0 8% 0 >
6%
-200,000 6% -200,000
or
-400,000 DAbsorprioo 4% 4%
t Vacancy %
-600,000 2% -400,000 2
1998 1999 2000 2001 2002 2003 2004 -600,000 0910
YTD a a d d a d d d d d
YEAR QUARTER
Over the coming year, Johnson Gardner predicts that direct vacancy in the sub-market will
fall 0.6% to 14.29%. Demand is expected to pick up with only one new development
expected to come on-line, 45,050 square feet of space at the Canyon Creek Business Park in
Wilsonville.
Tigard Industrial/Flex Survey
To provide additional context for industrial/flex market conditions in the Tigard area,
specifically average rental rates, Johnson Gardner gathered sample data from Co-Star Group
on 16 industrial and flex developments in the City. See the figure below.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 27
FIGURE VI-3: SURVEY OF SELECTED TIGARD INDUSTRIAL/FLEX DEVELOPMENTS, 2Q04
Year Vacancy Lease Lease
Property Name Location Improvement Type Built Total SF Vacant SF Rate Rate/SF Type
Industrial
Durham Hall Business Ctr,Bldg 300 16285 SW 85th Ave Industrial/Warehouse 1987 16,667 4,200 25.2% $0.75 IG*
Burnham Business Park 8900 SW Burnham Rd Industrial/Warehouse 1973 130,000 2,820 2.2% $0.73 IG*
Oregon Business Park I,Bldg 18 16110 SW 72nd Ave Industrial/Warehouse 1978 117,398 4,988 4.2% $0.60 NNN
Oregon Business Park I,Bldg 8 16600 SW 72nd Ave Industrial/Warehouse NA 25,900 10,000 38.6% $0.58 NNN
Oregon Business Park III,Bldg H 7301 SW Kahle Lane Industrial/Warehouse NA 21,000 3,375 16.1% $0.56 NNN
Oregon Business Park I,Bldg 1 16120 SW 72nd Ave Industrial/Warehouse NA 40,000 5,000 12.5% $0.50 NNN
Tigard Central Industrial 12700 SW Hall Blvd Industrial 1965 141,205 13,450 9.5% $0.45 IG*
Oregon Business Park I,Bldg 2 16200 SW 72nd Ave Industrial/Warehouse NA 82,900 24,500 29.6% $0.38 NNN
Nelson Business Center,Bldg B 14280 SW 72nd Ave Industrial NA 76,800 0 0.0% NA NA
1,870 68,333 10
65 .5% $0.56
Flex
PacTrust Business Center,Bldg Q 7204 SW Durham Rd Class B Flex 1982 130,000 2,820 2.2% $1.06 NNN
Bridgeport Woods Business,Bldg 1 7600 SW Bridgeport Rd Class B Flex 1989 34,000 13,007 38.3% $0.85 NNN
Park 217 Business Center,Bldg 3 12150 SW Garden PI Class B Flex 1982 46,400 15,355 33.1% $0.78 NNN
Park 217 Business Center,Bldg 4 12100 SW Garden PI Class B Flex 1982 27,200 3,200 11.8% $0.78 NNN
Park 217 Business Center,Bldg 6 12000 SW Garden PI Class B Flex 1982 45,000 11,208 24.9% $0.78 NNN
Oregon Business Park III,Bldg B 15875 SW 72nd Ave Class B Flex 1989 43,500 6,077 14.0% $0.60 NNN
PacTrust Business Center,Bldg D 16165 SW 72nd Ave Class B Flex NA 25,000 0 0.0% NA NA
351,100 51,667 14.7% $0.87
Total/Average 1,002,970 120,000 12.0% $0.67
Among the developments surveyed, rents, which are predominantly reported on a triple net
basis, average $0.56 per square foot for industrial space, $0.87 per square foot for flex space
and $0.67 per square foot overall.
In terms of occupancy, the more comprehensive Westside submarket survey discussed above
is probably a better indicator of market conditions. That being said, amongst the properties
surveyed, overall vacancy averages 12.0%, or 10.5% in industrial properties, and 14.7% in
flex properties.
New Construction, Planned&Proposed Development
Two new developments have been proposed in Tigard-Bonita Industrial Park and an un-
named project to be located at NE Boones Ferry Road. These projects will comprise 44,000
square feet and 24,000 square feet, respectively. Neither project has a scheduled completion
date nor is expected to begin construction within the next year.
Industrial/Flex Development Assessment
Based on our review of regional and market area industrial/flex trends, it is the opinion of
Johnson Gardner that there is limited market support for additional industrial/flex
development in Tigard over the short term. The following figure summarizes our significant
market findings:
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 28
FIGURE VI-4: INDUSTRIAL/FLEX DEVELOPMENT POTENTIAL & FEASIBILITY
COMPETITIVE ADVANTAGES
■ Proximity to Major Regional Arterials Including Highway 217 and Interstate 5
■ Proximity to Freight Rail Line
■ Low Profile Location Not a Deterrent to Industrial Firms
■ Large Existing Industrial Concentration
COMPETITIVE DISADVANTAGES/CONCERNS
■ Further Industrial Development May Discourage Development of Other Land Uses
■ Employment Density Generated by Industrial Development is Generally Low
OCCUPANCY
■ Low Vacancy Compared to Rest of Portland MSA: Tigard industrial/flex vacancy averages
8.00% (9.54%with sublease space included). Occupancy in the City is significantly higher
than in
RENTS
■ Rates Consistent with Elsewhere on Westside: Projects in our survey average rents of
$0.67 per square foot (NNN).
FUTURE COMPETITION
■ 2 Projects in Pipeline: There are two proposed industrial developments in Tigard
comprising a total of 68,000 square feet. Both projects are still in preliminary planning stages
and are not expected to begin construction until overall Portland market conditions improve
significantly.
DEVELOPMENT POTENTIAL
■ Short Term: Limited development potential. High occupancy in the overall Portland market
will deter immediate new development, despite relatively favorable market conditions in
Tigard.
■ Long Term: From a market perspective,Tigard will remain an attractive industrial/flex location with
its superb regional access and large existing industrial concentration. From a policy perspective,
additional new development may be less desirable in the interest of further diversifying local
development and increasing employment density.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 29
VII. SPECULATIVE RETAIL
Retail market conditions in Tigard as well as the greater Portland/Vancouver market area are
relatively strong. Vacancy in the region is well below 10%, generally considered the
benchmark for healthy conditions in a retail market. With continuing population growth in
the region, and recovery of the local economy, market support for additional retail
development is expected to remain strong in the overall metro area, including Tigard.
Regional Overview
The Portland metropolitan area's retail market continues to see new construction related to
the entry and expansion of major retailers. The overall vacancy rate in the retail market is
estimated by CoStar at 8.6%, with the highest vacancy rates seen in mixed-use and
strip/specialty/urban centers. Norris Beggs & Simpson estimates overall vacancy rates at a
more robust 5.0%. Vacancy remains negligible in regional and power centers, while
community/neighborhood centers report a relatively healthy 6.9% rate. Retail occupancy in
the region is fairly stable, down only 0.1% from the first quarter.
Tenants are driving the market, as expansion by major retailers such as Lowe's, Wal Mart,
Target, G.I. Joe's, Dollar Tree and major grocers fuels new development. Over the last year,
there has also been an influx of national restaurants and boutique retailers into the area.
Romano's Macaroni Grill and P.F. Chang's recently opened their first Portland stores and
Panda Express and Zao Noodle Bar, among others, have plans for expansion in the market in
2004. Retailers such as Diesel Jeans and Adidas now have high-profile storefronts in the
Pearl District while Anthropologie, West Elm, Crate & Barrel and Z Galleries are all
scheduled to open their first Portland stores soon. In coming months it will be interesting to
see the effect of these national retailers, and their deeper pocket, on rent rates in select areas.
Several power/regional centers are planning major expansions over the next year. The
Clackamas Town Center is about to undergo a major addition, adding 240,000 square feet
of retail space. Washington Square has begun the first phase of a 100,000 square foot
expansion that will include a four-level parking garage, 28 additional retailers, and a
restaurant. The new Gateway Station will bring 120,000 square feet of retail space, mixed
with office and residential space. Finally, ground broke in Tualatin for the Bridgeport
Village, a 350,000 square foot lifestyle center.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 30
FIGURE VII-1: PORTLAND MSA RETAIL TRENDS, 2Q04
Speculative New Inventory Net Vacancy
Inventory Construction Adjustments Absorption S.P. Rate
Strip/Specialty/Urban 10,157,233 19,582 5,919,180 192,051 1,655,197 16.3%
Community/Neighborhood 18,158,294 31,500 -6,038,483 -41,874 1,247,212 6.9%
Mixed Use 519,149 0 519,149 85,659 169,563 32.7%
Power/Regional 8,049,337 0 -452,851 -15,044 84,283 1.0%
Total 36,884,013 51,082 -53,005 220,792 3,156,255 8.6%
NET ABSORPTION AND VACANCY RATE TRENDS
1,800,000 10910 1,200,000 10910
1,600,000 9/ DAbsorption 9/
0
1,0001000 f Vacancy
1,400,000 8% 8%
1,200,000 0000m� 800,000
7% W 7%
W
1,000,000 F 600,000 W
w6916w 6%
° 800,000
w S% U a 400,000 S% U
Q 600,000 z z
d
400,000 Ir 4% Q d 200,000 4916 Q
200,000 3916
- Ph, 1 3%
0 2% 0 2%
-200,000 ®Absorption 1% -200,000 0
1/o
f Vacancy
-400,000 09/0
-400,000 09/0
1998 1999 2000 2001 2002 2003 2004 c�c�000000000000000000
YTD dddddddddddddddddddd
YEAR
QUARTER
A total of 717,815 square feet of new space is projected to enter the market over the next
twelve months, while demand is forecasted at 5552,000 square feet. As a result, the overall
vacancy rate is projected to increase slightly to 8.8% over the next year. The overall vacancy
rate is expected to fall to 7.7% by the first quarter of 2006.
Tigard, Tualatin, Wilsonville Submarket Trends
Market conditions in the Tigard, Tualatin &Wilsonville sub-market are slightly tighter than
those of the greater Portland metro area. According to Norris, Beggs & Simpson, vacancy in
the submarket averages 4.1% as compared to 5.0% for the entire metro area. Vacancy in
Tigard (6.1%) is higher than both Washington Square (3.0%) and
Tualatin/Wilsonville/Sherwood (4.5%). Similar to regional trends, occupancy is highest in
power and regional centers and lowest in mixed-use developments. Vacancy in mixed use
spaces generally tends to be higher because they are unanchored. Rents in the sub-market
range from $4,00 to $28.000, as compared to $10.00 to $22.81 in Tigard, specifically.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 31
FIGURE VII-2: TIGARD, TUALATIN & WILSONVILLE SUBMARKET RETAIL TRENDS,
2Q04
Speculative New Inventory Net Vacancy
Inventory Construction Adjustments Absorption S.F. Rate
•
Strip/Specialty/Urban 797,687 0 85,941 78,861 36,072 4.52%
Community/Neighborhood 2,290,695 0 -240,002 -222,556 141,853 6.19%
Mixed Use 46,308 0 0 8,926 6,149 13.28%
Power/Regional 1,619,500 0 0 291 11,709 0.72%
Total 4,754,190 0 -154,061 -134,479 195,783 4.12%
BREAKOUT
Tigard 1,042,170 0 15,788 21,114 63,378 6.08%
Washington Square 2,301,580 0 17,352 16,132 68,616 2.98%
Tual.-Wilsonville-Sherwood 1,410,440 0 -187,201 -171,725 63,789 4.52%
Total 4,754,190 0 -154,061 -134,479 195,783 4.12%
NET ABSORPTION AND VACANCY RATE TRENDS
150,000 791b 600,000 8
�Absorption Absorption
100,000 fVaany 6% 500,000 tVacancy 7%
__5916
/ 400,000 6%
50,000
300,000 5%
4%
0 200,000 4%
3%
-50,000 100,000 3%
2%
0 2%
-100,000 1
9/0 -100,000 - 19/0
-150,000 0yo -200,000 0910
2000 2001 2002 2003 2004 O O N N m m r
YTD d d d d d d d d d
Over the coming year, vacancy in the Tigard, Tualatin &Wilsonville submarket is projected
to remain low, falling 0.2% to 3.9%. Vacancy in Tigard is expected to remain above other
regions in the sub-market, with a modest decline from 6.1% to 5.7%. Poor exposure is
largely the reason for Tigard's underperformance in the region. Although several projects are
in planning stages or already under construction none are scheduled for completion over the
next year,which will enable the market to keep tightening in the midst of growing demand.
Tigard Speculative Retail Survey
To provide additional context for the Tigard speculative retail market, Johnson Gardner
gathered survey information from CoStar Group and Norris, Beggs & Simpson. The chart
below summarizes occupancy and lease rate information for seventeen retail centers in the
City of Tigard, the majority of which are located along Pacific Highway.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 32
FIGURE VII-3: SURVEY OF SELECTED TIGARD RETAILERS, 2Q04
Year Vacancy Asking Rate Lease
Property Name Location Built Total SF Vacant SF Rate Low High Average Type
Pacific Crossroads 11705 SW Pacific Hwy 1984 39,340 2,577 6.6% $19.00 $19.00 $19.00 NNN
Cash&Carry 11745 SW Pacific Hwy 1995 32,380 9,772 30.2% $10.00 $10.00 $10.00 NNN
Tigard Plaza Shopping Center 11945 SW Pacific Hwy 1961 117,398 4,988 4.2% $8.26 $13.73 $11.00 NNN
11975 SW Pacific Hwy 11975 SW Pacific Hwy 1936 3,288 3,288 100.0% $22.81 $22.81 $22.81 NNN
Tigard Marketplace 13500 SW Pacific Hwy 1988 117,646 2,500 2.1% $22.00 $23.00 $22.50 NNN
Hudson Plaza 12950 SW Pacific Hwy NA 12,750 2,250 17.6% $12.00 $12.00 $12.00 NNN
Barrow's Crossing SW Rd&Walnut St 1998 120,000 1,326 1.1% $22.00 $22.00 $22.00 NNN
Canterbury Square 15000 SW Pacific Hwy 1972 80,000 3,000 3.8% $11.95 $11.95 $11.95 NNN
Winco Tigard Center Hwy Dartmouth Rd 1993 207,216 2,200 1.1% $15.00 $15.00 $15.00 NNN
Fred Meyer Tigard 11565 SW Pacific Hwy 1965 161,200 0 0.0% $12.00 $16.00 $14.00 NNN
King City Plaza 15100 SW Pacific Hwy 1972 62,072 530 0.9% $20.00 $20.00 $20.00 NNN
Tigard Promenade 15660 SW Pacific Hwy 1996 106,575 0 0.0% $17.00 $19.00 $18.00 NNN
Tigard Rite Aid Center 12060 SW Main 1970 71,236 0 0.0% $7.50 $7.50 $7.50 NNN
Tigard Town Square 16200 SW Pacific Hwy 1988 180,875 3,842 2.1% $10.00 $10.00 $10.00 NNN
Tigard Triangle Center 7765 SW Dartmouth Rd 2000 37,200 18,652 50.1% $5.80 $5.80 $5.80 NNN
Willowbrook Business Park 11515 Durham Rd 1985 50,635 7,235 14.3% $12.00 $16.00 $14.00 NNN
Cascade Boulevard Center 10407 SW Cascade Blvd 1997 100,300 0 0.0% NA NA NA NA
Total/Average 1,500,111 62,160 4.1% $14.21 $15.24 $14.72 NNN
Amongst the properties in this sample, rents averaged $14.72 per square foot (NNN).
Occupancy at 4.3% was slightly lower than the Tigard rate of 6.1% estimated by the more
comprehensive Tigard, Tualatin, Wilsonville sub-market survey discussed above.
New Construction, Planned&Proposed Development
Bridgeport Village, a new lifestyle center, recently broke ground at the intersection of
Bridgeport and 72°d Avenue. While this site is technically in Tualatin, we expect it to
compete directly with the Tigard market as well as Washington Square. Bridgeport Village
will comprise nearly 500,000 square feet of retail space and include retailers such as Wild
Oats, Regal Cinemas and P.F. Chang's Chinese Bistro. Crate & Barrel will open its first
Portland are store there.
In addition, Dartmouth Square, a new retail center has been proposed off of SW 70th Avenue
in the Tigard Triangle. It would include four single-story stand-alone buildings totaling
23,000 square feet. This project is still in a preliminary planning stage and no additional
information is available about the project at this time.
Retail Development Assessment
Based on our review of regional and market area speculative retail trends, it is the opinion of
Johnson Gardner that there is moderate market support for additional retail development in
Downtown Tigard over the short term. The following figure summarizes our significant
market findings:
FIGURE VII-4: SPECULATIVE RETAIL DEVELOPMENT POTENTIAL & FEASIBILITY
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 33
COMPETITIVE ADVANTAGES
■ Proximity to Major Arterials Including Pacific Highway, Hall Boulevard, Greenburg
Road and Highway 217
■ Proximity to Pacific Highway in-fill Residential Development
■ Plans Underway for Future Commuter Rail Stop Downtown
■ Strong Downtown Business Association with Active Business Retention Efforts
COMPETITIVE DISADVANTAGES/CONCERNS
■ Large Number of Nearby Big Box and Strip Center Competitors as well as the
Washington Square Regional Center
■ No Visibility due to Elevation of Pacific Highway
■ Lack of Downtown "Destination" to Draw Drivers off of Nearby Arterials
■ Relatively Small Residential Base and Low Employment Density
■ Rail Line Noise and Traffic Congestion
OCCUPANCY
■ High Occupancy: Tigard retail occupancy averages 93.9% according to Norris, Beggs &
Simpson. Typically occupancy of 90% or above indicates a healthy retail market, suggesting
there may be sufficient demand to warrant new construction. Occupancy is projected to edge
up to 94.3%by mid-2005.
RENTS
■ Healthy Rental Rates: Projects in our survey averaged rents of$14.72 per square foot
(NNN),ranging from $8.26 to $22.00 per square foot.
FUTURE COMPETITION
■ 2 Projects in Pipeline: Dartmouth Square, a 32,000 square foot retail space has been
proposed. Bridgeport Village, a nearly 500,000 square foot lifestyle center just broke ground
in nearby Tualatin.
DEVELOPMENT POTENTIAL
■ Short Term: Moderate market potential Retail market conditions throughout the Portland MSA are
strong as a result of continuing in-migration and the on-going regional economic recovery
■ Long Term: The potential for regional retail downtown is limited due to poor visibility and the lack
of a major"destination" to attract passerby away from other big box and strip mall competitors off of
Pacific Highway. The planned commuter rail stop will provide a boost for neighborhood retailers;
however, retail erowth may be constrained by only modest nodulation Growth in the area.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 34
KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNINGITRAFFIC ENGINEERING
810 SW ALDER,SUITE 700 PORTLAND,OR 97205 [503]228-5230 • FAX(503)273-8169
MEMORANDUM
Date: October 27, 2004 Project#: 6759
To: Dave Siegel
Parametrix
From: Elizabeth Wemple, P.E.; Patrick McMahon
Project: Tigard Downtown Improvement Plan
Subject: FINAL Existing Conditions, Opportunities and Constraints Memo
Introduction
In this first phase of the Tigard Downtown Improvement Study, the project team is developing
an assessment of existing facilities and opportunities and constraints for the Tigard Downtown
area. With this information reviewed and confirmed, the Task Force and the consultant team
will further develop project goals and objectives, and subsequently begin to develop alternative
solution concepts for improving Downtown Tigard.
The purpose of this transportation memorandum is to document existing transportation facilities
by mode, and begin to develop an assessment of opportunities and constraints related to the
transportation system in Downtown Tigard. Subsequent to Task Force review, the findings
included in this draft memorandum will be updated and integrated into work activities for later
phases of the project. In its final form, this memo will serve as a transportation reference tool for
understanding existing facilities, and concerns related to these facilities.
This memo is being prepared as deliverable 2.3 of the project contract. It is anticipated that
excerpts of this memo will be integrated into the team report on Existing Conditions and
Opportunities and Constraints. The transportation work documented is based on a review of
material provided by the City of Tigard, our familiarity with Tigard and our walking tour
conducted August 26, 2004. The analysis and findings have been conducted at a qualitative
level drawing on technical findings from other work previously conducted in the area.
Summary of Assessment
Downtown Tigard has the potential to be a highly multi-modal area. Today, there is extensive
existing transit service serving many parts of the Portland region. In addition, completion of the
commuter rail will further enhance transit service to and from Downtown Tigard. Coupled with
the relatively flat terrain, there is also the potential for a high degree of pedestrian and bicycle
H:\projfile\6759\report\final\KAI_Existing_Conditions_Opportunities final.doc
DRAFT Existing Conditions Opportunities and Constraints Project #: 6759
September 13, 2004 Page 2
travel, although an integrated, comprehensive and complete pedestrian and bicycle system needs
to be developed as Downtown Tigard continues to improve.
Traffic congestion on the boundary streets (i.e. Hall Boulevard and Oregon 99W) can influence
travel within the Downtown Core; however this seems to occur on a limited basis — associated
with crashes or significant congestion on the highway, or extended train delays at the railroad
crossings.
Pedestrian Transportation
Facilities
Sidewalks and the Fanno Creek Pathway form the backbone of the pedestrian system in
Downtown Tigard. There are sidewalks on both sides of Main Street, Tigard Street and
Commercial Street south of Main Street'. On Burnham Street, Scoffins Street and Ash Street,
there are sidewalks where recent development has occurred; otherwise properties do not have
sidewalks along their frontage. The lack of a continuous sidewalk network throughout the entire
downtown area limits the extent to which the area is viewed as a single district and creates
obstacles to users of the downtown. Opportunities for pedestrian-only connections at places
where right-of-way or easements exist should be explored.
Pedestrian facilities on Main Street also include a curb extension at the southwest corner of Main
and Burnham Streets and a mid-block pedestrian crossing near Tigard Cycle & Ski. This
pedestrian crossing has in-pavement lighting to provide enhanced safety. The crossing does not
align continuously with the existing Fanno Creek Parkway.
Attractions
There is a desire to address the pedestrian facility crossing under Oregon99 W at the Fanno
Creek Pathway and eventually to extend the trail further to the north. This is a potential
pedestrian gateway into Downtown Tigard, but pedestrians comment that the current
configuration feels unsafe and is unattractive.
Pedestrian connectivity issues also exist between the new library and City Hall and the
downtown area. The new library is located on the east side of Hall Boulevard in the vicinity of
SW O'Mara Street. This issue will be a particular consideration in the future classification and
design of Hall Boulevard through the project study area.
Figure I shows current pedestrian facilities and opportunities and constraints.
Bicycle Transportation
Facilities
Figure 2 shows existing and planned bicycle facilities in the Tigard Downtown Improvement
Area, and the functional classification of existing and planned streets in the area. According to
'DKS Associates,Tigard Commercial Rail Traffic Study,February 2003
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DRAFT Existing Conditions Opportunities and Constraints Project #: 6759
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the City's street design guidelines, all arterial and collector streets should include six foot striped
bicycle lanes.
The Fanno Creek pathway is a facility for bicycle travel to and through the project study areas.
Participants on the field walk conducted in August 2004 indicated that families do bicycle on the
Fanno Creek Pathway.
There are no striped bicycle lanes currently in the core of Downtown Tigard. Along the
boundaries of Downtown Tigard, Oregon 99W does not have bicycle lanes. Alternately signed
and striped bicycle lanes do exist on SW Hall Boulevard, but the environment is not especially
attractive for cyclists. As planning evolves for the project, attention should be given to
providing safe bicycle connections to, from and within the study area as well as along and across
Hall Boulevard and across Oregon 99W.
Attractions
The relatively flat terrain and currently low traffic volumes make cycling an attractive possibility
within Downtown Tigard. In addition, with the existing Tri-Met Transit Center and the future
Commuter Rail station, there is a possibility for cyclists to transfer from a local trip on a bicycle
to a sub-regional or regional trip on the bus or commuter rail.
Tigard Cycle & Ski on Main Street could be a resource to build on for cyclist education and
outreach, especially given its strategic location along the Fanno Creek Greenway. It is also
important to note that the Hit-N-Run Paintball on Commercial Street, the library, and the
proposed skate-park at City Hall are likely to attract youth to the downtown area and adequate
routes and bicycle parking should be provided at these destinations.
Transit
Figure 3 shows the Tri-Met bus routes that travel through Downtown Tigard and to and from the
Tri-Met Transit Center located on Commercial Street. As summarized in Table 1, Tri-Met
provides seven bus routes within the Downtown Improvement Plan area, with five serving the
Tigard Transit Center and two running on 99W.
Table 1 Summary of Downtown Tigard Transit Service
Route Headways Major Destination
. 15 minute headways from 5:30 a.m. to 9:00 p.m.; Portland City Center via Tigard and
12 Barbur Transit Centers-30 minute
• 30 minute headways from 9:00 p.m. to Midnight trip
. 23 minute headways from 5:30 a.m. to 9:00 a.m.; Portland City Center via Washington
Square-45 minute trip
• 60 minute headways from 9:00 a.m. to 2:00 p.m.;
45
• 35 minute headways from 2:00 p.m. to 5:30 p.m.; and
• 60 minute headways from 5:30 p.m. to 8:45 p.m.
. 23 minute headways from 5:45 a.m. to 7:45 a.m.; Marquam Hill via Barbur Transit
64X Center-30 minute trip
• 33 minute headways from 3:30 p.m. to 5:45 p.m. returning
2IBID
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Route Headways Major Destination
from Marquam Hill
• 30 minute headways from 6:15 a.m. to 7:15 p.m., Tualatin to Beaverton Transit Center
76 via Washington square TC-30 minute
60 minute headways from 7:15 until 10:00 p.m. or 11:00 trip to Beaverton; 25 minute trip to
p.m. (depending on the direction), Tualatin
• 30 minute headways from 6:00 a.m. until 7:30 p.m., Lake Oswego to Beaverton Transit
Center via Tigard and Washington
78 • 60 minute headways from 7:30 until 11:30 p.m. Square Transit Center-25 minute trip
to Lake Oswego, 30 minute trip to
Beaverton
• 11 minute headways from 6:10 a.m. to 8:00 a.m. from Express bus from Sherwood to
Sherwood to Portland City Center, Portland City Center
94
• 11 minute headways from 3:30 p.m. to 6:00 p.m. Portland
City Center to Sherwood
• 17 minute headways from 6:20 a.m. to 7:30 a.m. from Express bus from Sherwood to
Sherwood to Portland City Center, Portland City Center
95
• 30 minute headways from 4:40 p.m. to 5:40 p.m. from
Portland City Center to Sherwood
In the future, Commuter Rail from Wilsonville to Beaverton will also stop at the transit center.
Commuter Rail will operate during the morning and evening rush hours and it is forecast that a
total of 4,650 people will ride the trains daily. Plans are under development for track re-
alignment, pedestrian access to and from the station and trains, and parking supply and access in
Downtown Tigard. The addition of commuter rail to the existing transit mix may result in some
shift of ridership from existing bus service but an analysis of the impact of this is beyond the
scope of this study.
With this amount of transit to and from Downtown Tigard and along the boundaries, there is an
opportunity for Downtown Tigard to become a multi-modal center; however it will be important
to appropriately manage parking supply so that the Downtown does not become a park and ride
facility. It will also be important to develop a pedestrian and bicycle system that is
comprehensive and provides safe and intuitive access to and from the Transit Center and within
Downtown Tigard.
Parking System
City of Tigard staff and the members of the Downtown Task Force conducted a parking supply and
demand survey on a typical Tuesday and Thursday during the summer of 2003. Although a number of
factors have changed since the parking survey was conducted (e.g. Tigard Fitness is operational
again), the City staff believes that the general survey results are still valid. The survey was
conducted on both sides of Burnham, Commercial, and Main Streets. The purpose of the survey was to
identify the type and location of parking and the demand for parking in downtown Tigard.
Parking Supply
At the time of the parking survey there were a total of 1,295 parking spaces in downtown Tigard;
of those, 235 were on-street and 1,060 were off-street spaces. Among the on-street spaces, four
are designated as 15-minute spaces, 54 designated as 2-hour spaces; and the rest do not have
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time restrictions. The City of Tigard currently provides limited enforcement of these parking
restrictions. Of the 1,060 off-street spaces, 94 are marked as restricted to patrons of individual
businesses while the remaining 966 are unmarked. In the survey Main Street was divided into
two parts: East Main Street, which is Main Street east of the railroad tracks toward the Rite Aid;
West Main Street,which is Main Street toward the Fanno Creek Pathway
On-street parking on the north side of Main Street is generally diagonal (except where space
limitations between driveways allow only for parallel parking) while parking along the south
side of Main Street is parallel to the curb. There are a limited number of handicapped parking
spaces within the district and their location was not identified in this survey.
Table 2 summarizes parking supply in downtown Tigard.
Table 2 Downtown Tigard Parking Inventory
On-Street Parking Supply Off-Street Parking Supply
Street 15-minute 2-hour Unrestricted Restricted Unrestricted Total
Main west of
railroad tracks 2 15 78 19 186 300
Main east of
railroad tracks 2 15 35 41 542 635
Commercial 0 21 40 26 76 163
Burnham 0 3 24 8 162 197
Total 4 54 177 94 966 1295
Parking Utilization
The parking utilization results summarized in Table 3 shows the percent of occupied parking
spaces during the survey hours. The utilization survey was conducted for on-street parking only.
The survey was conducted from 8:00 a.m. to 10:00 a.m., 11:30 a.m. to 1:30 p.m., and 4:00 p.m.
to 6:00 p.m. As shown in this table, parking utilization for each street and for the system as a
whole was well below 50 percent. The highest parking utilization was during the lunch hour and
the highest localized utilization levels were directly in front of restaurants during their hours of
service.
Table 3 Downtown Tigard Parking Utilization
Street
Peak Hour West Main East Main Commercial Burnham Total
AM Peak Hour 32% 12% 20% 40% 26%
Mid-day 42% 36% 26% 41% 36%
PM Peak Hour 27% 20% 17% 21% 21%
Total 34% 23% 21% 34% 28%
Many members of the Task Force began the survey believing that there was a significant parking
shortage in downtown Tigard, but finished believing that there were more than enough parking
spaces within the downtown area. City staff also compared these results to the Urban Land
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Institute's parking thresholds, which recommend that agencies should begin planning for new
parking supply when utilization rates exceed 70 percent. According to this threshold, this is
currently not an issue in Downtown Tigard.
Parking Duration
Parking duration at a single space varied significantly by location, with an average parking
duration of 3.5 hours on Burnham Street, 3 hours on Commercial Street, 1.5 hours on West
Main, and 0.75 hours on East Main. Also observed was the prevalence of the same vehicles in
front of some businesses for several hours, suggesting that employees might be parking in spaces
most desirable for customers.
Commuter Rail Parking
Current commuter rail plans include a stop in Downtown Tigard. This would include
construction of a new 120-space parking lot over the easternmost pair of train tracks on the south
side of Main Street with an access to East Main Street in the vicinity of the railroad crossing. As
planning continues it will be important to review the designs for this lot and determine how this
will affect circulation patterns on Main Street as well as the proposal to link Walnut Street with
Ash Street on either side of the railroad tracks.
Vehicle Transportation System
Figure 4 shows the roadway classification system within the project study area for existing
streets and the proposed connection of Walnut Street to Ash Street and north to Scoffins Street.
This connection has been planned for many years. However, a major constraint to implementing
this concept is obtaining approval from the ODOT Rail Division for a new railroad crossing of
the Wilsonville-Beaverton Commuter Rail Line. In order to obtain an Order authorizing a new
street to cross the railroad tracks, the City will need to work collaboratively with the railroad and
ODOT Rail. This may include closing at least one other crossing in Tigard and likely include an
effort to identify an alternative switching area to replace the existing switching area between
Hall Boulevard and Main Street.
The current use of the railroad tracks for switching operations has a negative impact on traffic
patterns on both Hall Boulevard and Main Street, with long lines of vehicles waiting as trains
block the roadway for extended periods of time. During the one-hour walking tour, trains
stopped traffic on at least four occasions, with queues forming each time. Finding an alternative
switching site would have benefits not just for the proposed Ash Street extension but also for
general traffic flow.
Figure 4 also shows the location of the traffic signals within the study area. All other
intersections within the study area are controlled by stop signs or there is no traffic control.
DKS Associates conducted a traffic study for the Commuter Rail project in February 2003.
Based on this study there were no peak hour capacity or delay constraints on Main Street at
Burnham Street, Tigard Street, or Commercial Street. However, while on the walking tour, City
of Tigard staff indicated that if there is congestion on the Oregon 99W viaduct, some motorists
divert to Main Street through Tigard as a short cut, which in turn causes short-term congestion
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on Main Street. Staff also indicated that motorists regularly disregard the all-way stop controlled
intersection at Main Street/Burnham Street. The traffic volumes and level of service results taken
from the DKS study are shown in Appendix A.
All of the roadways within the project study area are two lane roads with the exception of Hall
Boulevard and Oregon 99W. Hall Boulevard is a two-lane road north of Burnham Street and a
three-lane road south of Burnham Street. There are bike lanes on both sides of Hall Boulevard.
The roadway is ODOT jurisdiction and classified as a District Highway. The posted speed limit
is 30 miles per hour near 99W and 45 miles per hour near McDonald Street. The Metro Regional
Transportation Plan calls for widening Hall Boulevard to a five-lane road through the project
study area. A major consideration in the Hall Boulevard project should be developing a street
design that accommodates all modes of transportation and provides the connectivity needed
between the new Tigard library, City Hall and Downtown Tigard.
Oregon 99W through the project study area is a six-lane roadway under ODOT jurisdiction. It is
classified by ODOT as a Statewide Highway on the National Highway System.
Planned Projects
The City of Tigard Capital Improvement Program (CIP) for FY 04-09 includes the following
specific projects within the project study area:
• Curb extensions on Main Street at Burnham Street in front of the Main Street Car Wash
(FY 04-05);
• Modifying a curb return on Main Street/Commercial Street to accommodate Tri-Met
buses (FY 04-05);
• Hall Boulevard improvements from the Fanno Creek Bridge north to City Hall —project
description forthcoming from Tigard Staff(FY 06-07);
• Design, right of way acquisition, and construction of Burnham Street improvements. This
is scheduled to be complete by the end of FY 08. Current plans for Burnham Street call
for a three-lane cross-section; other amenities such as bike lanes, sidewalks, medians and
landscaping will be identified through this process. Care has to be taken in planning to
account for the Fire Station on the south end of Burnham Street; and
• Design and Feasibility analysis for re-aligning the intersection of Hall Boulevard/Scoffin
Street/Hunziker Street.
There are other general programs in the CIP (i.e. traffic calming, striping, sidewalks and
pedestrian improvements) that may become a resource project for funding within the Tigard
Downtown study area.
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Relevant Policies
City of Tigard Transportation System Plan, Prepared by DKS Associates, January 2002
The Tigard Transportation System Plan (TSP) establishes the city's goals, policies and action strategies
for developing the transportation system for the Tigard urban area. The TSP is intended to serve as a
blueprint or master plan to guide transportation decisions to address both short and long term needs. The
TSP discusses on-going roadway maintenance needs, and identifies improvements to enhance roadway
safety, non-motorized travel (bicycles and pedestrians) and public transit service, and to accommodate
future land development activity. The Tigard Transportation System Plan addresses Oregon Statewide
Planning Goal 12 and the Oregon Transportation Planning Rule (TPR). Completed in January 2002, the
TSP was reviewed by state and regional agencies and found to be in compliance with the TPR.
A listing of those TSP policies having potential pertinence to the Tigard Downtown Improvement Plan is
provided below.
• Goal 1 —Livability: Plan, design and construct transportation facilities in a manner which
enhances livability in Tigard
• Goal 2 — Balanced Transportation System: Provide a balanced transportation syststem
incorporating all modes of transportation
• Goal 3 — Safety: Strive to achieve a safe transportation system by developing street
standards, access management policies and speed controls when constructing streets, by
making street maintenance a priority and through a comprehensive program of
engineering, education and enforcement
• Goals 4 — Performance: Transportation performance measures shall be set and
maintained by the City.
• Goal 5 — Accessibility: Develop Transportation facilities which are accessible to all
members of the community and minimize out of direction travel
• Goal 6— Goods Movement: Provide for efficient movement of goods and services
• Goal 7— Coordination: Implement the TSP in a coordinated manner
These goals, and the recommended policies supporting these goals will be taken into
consideration as the Tigard Downtown Improvement Plan is developed
The City of Tigard's Transportation System Plan(TSP) identifies several desired changes to the
transportation system within or having the potential to impact the project study area:
• A proposed extension of Ash Street from Highway 99W to Hunziker Street.
• Intersection Improvements at:
o Main Street/Greenburg Road/Ore 99W — Southbound right turn lane, retain
westbound right urn alne when ORE99W is widened to 7 lanes; and
Kittelson &Associates, Inc. Portland, Oregon
DRAFT Existing Conditions Opportunities and Constraints Project #: 6759
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o Hall/Ore 99W— Southbound right turn lane, northbound left turn lane, westbound
right turn overlap, retain westbound right turn lane when ORE 99W is widened to
7 lanes.
• Sidewalks on both sides of Hall Boulevard, SW Hunziker Street, the proposed Ash Street
extension;
• Bike Lanes on the proposed Ash Street extension, Burnham Street, and Commercial
Street. In addition Hall Boulevard and the Fanno Creek pathway are designated as
Regional Access Bikeway, and Regional multi-use path respectively;
• Provide a commuter rail station;
• Provide transit amenities at major bus stops;
• Improve pedestrian connections to Transit Facilities; and
• Decrease headways
ODOT STA and UBA Policies
The 1999 Oregon Highway Plan includes a series of policies and actions related to integrating
land use and transportation. Policy 1B recognizes that state highways serve as the main streets
of many communities and it strives to maintain a balance between serving these main streets and
the through traveler. It emphasizes management of the transportation system for safety and
efficient use of resources. This policy provides guidance to ODOT regarding system
management planning and implementation activities. It is designed to clarify how ODOT will
work with local governments and others to link land use and transportation plans, facility and
corridor plans,plan amendments, access permitting and project development. The role of ODOT
and local governments in designating highway segments is to work together so that planned
community development patterns are individually tailored yet also meet statewide highway
needs for safety and mobility.
This policy provides different roadway designations as tools for fostering compact development
patterns in communities:
• Special Transportation Area (STA) - A Special Transportation Area (STA) is a
designated district of compact development located on a state highway within an urban
growth boundary in which the need for appropriate local access outweighs the
considerations of highway mobility except on designated Freight Highways where
through highway mobility has greater importance. While traffic moves through an STA
and automobiles may play an important role in accessing an STA, convenience of
movement within an STA is focused upon pedestrian, bicycle and transit modes. STAB
look like traditional "Main Streets" and are generally located on both sides of a state
highway. The primary objective of an STA is to provide access to and circulation
amongst community activities, businesses and residences and to accommodate
pedestrian, bicycle and transit movement along and across the highway. Direct street
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DRAFT Existing Conditions Opportunities and Constraints Project #: 6759
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connections and shared on-street parking are encouraged and individual driveways are
discouraged. Local auto, pedestrian, bicycle and transit movements to the area are
generally as important as the through movement of traffic. Traffic speeds are slow,
generally 25 miles per hour or less.
• Urban Business Area (UBA) — An Urban Business Area is a highway segment
designation which may vary in size and which recognizes existing areas of commercial
activity or future nodes or various types of centers of commercial activity within urban
growth boundaries on District, Regional or Statewide Highways where vehicular
accessibility are important to continued economic viability. The dual objectives of an
UBA on the state highway are to provide local access to meet the access needs of
abutting properties and to maintain existing speeds to move through traffic. Speeds are
generally 35 miles per hour or less. Vehicular accessibility and circulation is often as
important as pedestrian, bicycle and transit accessibility. Safe and regular street
connections are encouraged. Transit turnouts, sidewalks and bicycle lanes are
accommodated.
Further details related to STAs and UBAs are included in Appendix B.
To designate a roadway segment as a STA, the community needs to adopt local plans identifying
the road as such, and most importantly coordinate and develop an agreement with ODOT about
the STA designation. The principal advantage of an STA is that ODOT and the local jurisdiction
must work together to agree to a plan for multi-modal transportation mobility and access
integrated with the surrounding land use plan on the state owned highway through a major
community center. Through the project study area, Oregon 99W does not exhibit the
characteristics of a STA or UBA and is likely not a candidate for either designation. Hall
Boulevard through the project study area may qualify as a candidate for a STA. It is less likely
that this segment qualifies as a UBA. In both cases it will be important to begin the conversation
with ODOT regarding these designations.
If established as an STA, the City of Tigard and ODOT would have an established plan for
future roadway cross-sections and adjacent land use. The mix of acceptable roadway elements in
a STA allows Tigard to plan for a narrow roadway section (e.g. lanes and medians), slower
travel speeds, and wider sidewalks.
Street Design Guidelines
The City of Tigard, ODOT and Metro functional classifications of streets within the project
study area are summarized in Table 4 below. These classifications are used to identify street
design concepts according to Tigard, ODOT and Metro Guidelines. In addition, Metro guidelines
indicate that the Fanno Creek Pathway as a regional trail.
Kittelson &Associates, Inc. Portland, Oregon
DRAFT Existing Conditions Opportunities and Constraints Project#: 6759
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Table 4 Downtown Tigard Street Classifications
Street Tigard ODOT Metro Classification
Classification Classification
Oregon 99W Arterial Statewide Highway Regional Boulevard
Potential light rail or rapid bus
Regional bus
Major Arterial
Main Roadway Route for Freight
Regional Corridor for Cyclists
Transit/Mixed Use Corridor
Hall Boulevard Arterial District Highway Community Boulevard
Minor Arterial
Regional Corridor for Cyclists
Transit/Mixed Use Corridor
Burnham Street Collector None None
Main Street Collector None None
Commercial Street None None None
Scoffins Boulevard Collector None None
Ash Street(Existing Collector None None
and Proposed)
Table 5 shows the width of roadway characteristics identified in both sets of guidelines. As
shown in this table, a major distinction between these design guidelines is the desired width of
sidewalk. Metro design guidelines call for an eleven or twelve foot sidewalk. City of Tigard
guidelines call for a six-foot sidewalk. This difference will significantly influence right of way
requirements. Metro design guidelines also call for eleven-foot travel lanes, and Tigard
guidelines call for twelve-foot travel lanes.
Table 5 Street Design Guidelines Typical Widths
Street Right of Way Sidewalks Planter Bike Parking Lane Median
Type Requirements Strip Lane Lane Widths Widths
Tigard Varies by
Major Number of 6feet 6 feet 6 feet None 12 feet Varies 12 to
Arterial Lanes-60 feet 14 feet
to 122 feet
100 feet(or 116 Varies- 10
Metro feet, or wider
Regional if double median 11 feet 7 feet 5 feet None 11 feet where left
Boulevard boulevard is turns
used)
provided
7 feet as a Varies- 10
Metro feet, or wider
Community 80 feet 12 feet 7 feet 5 feet periodic cut 11 feet where left
Boulevard out in planter turns
strip provided
Examples of Metro regional boulevard and community boulevard street design guidelines are
included in Appendix C. Tigard's street design guidelines are included in Appendix D.
Kittelson &Associates, Inc. Portland, Oregon
DRAFT Existing Conditions Opportunities and Constraints Project #: 6759
September 13, 2004 Page 12
Next Steps
It is anticipated that as an outcome of their review and discussion of this draft existing conditions
opportunities and constraints memo, the Downtown Task Force will provide feedback regarding
issues identified and possible opportunities and constraints. As appropriate the feedback will be
integrated into the final memo. As the project proceeds, this memo will be used as a reference
source for information related to the Downtown Tigard transportation system, and as a checklist
to ensure that transportation related opportunities and constraints are being integrated into
concepts for improving Downtown Tigard.
Kittelson &Associates, Inc. Portland, Oregon
Tigard Downtown Improvement Plan October2004
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ANSPORTATONPLANNING/TRAFFIC ENGINEERING
Parametrix ENGINEERING.PLANNING.ENVIRONMENTAL SCIENCES
700 NE MULTNOMAH,SUITE 1000
PORTLAND,OREGON 97232-2131
T.503.233.2400 T.360.694.5070 R 503.233.4825
w .pammetrixxom
M E M O R A N 0 U M
Date: June 21, 2005
To: Barbara Shields, Long Range Planning Manager
City of Tigard
From: David M. Siegel, AICP
Project Manager
Subject: Evolution of the Conceptual Design Plan
cc: Sonya Kazen, Associate Planner
Oregon Dept. of Transportation
Project Number:
Project Name: Tigard Downtown Improvement Plan
The purpose of this memorandum is to provide an overview of the evolution of the Conceptual Design
Plan for the Tigard Downtown Improvement Plan (TDIP). A brief overview of the TDIP planning process
will be followed by a brief description of the three evolutionary stages of the Conceptual Design Plan for
the TDIP. The graphics for each of the three stages are attached to this document.
Introduction
Process
In order to make the most of limited project resources and the most efficient use of Tigard's Downtown
Task Force, the TDIP work plan was structured to focus on the desired outcomes expressed by the
community. Rather than prepare a series of plan alternatives for analysis and review, the community
agreed to use an evolutionary, iterative process. After developing a vision and principles to guide the
preparation of the plan (attached), three successive versions of a conceptual plan would be developed by
the consulting team, the Downtown Task Force, the public and the City: an Initial Concept; a Refined
Alternative; and a Preferred Design Alternative. The public would be involved through a series of smaller-
group "design dialog" meetings at which plan concepts would be discussed and opinions gathered, and
two larger, interactive public events. In order to focus resources, a detailed analysis of the transportation
system would be performed for the preferred alternative, and adjustments would be made if/as
appropriate. A Technical Advisory Committee (TAC) comprised of representatives of various City
departments (planning, parks, public works, finance), the Oregon Department of Transportation (planning,
rail), the Oregon Department of Land Conservation and Development, TriMet, Washington County and
Metro helped with providing information and offering comments on draft materials.
Foundation
Existing conditions and opportunities and constraints in the key areas of land use, transportation and the
local and regional economy were analyzed in order to provide a foundation for the brainstorming of ideas.
In addition, three special forums were provided to address special issues (see TDIP appendix for all
forum summary notes), as follows:
1. Transportation Summit. A meeting was convened to discuss such transportation issues as safety,
circulation, noise, mobility, capital improvements, the Commuter Rail project and project
(Rev.02/04)
Barbara Shields, Long Range Planning Manager
June 21, 2005
Page 2 of 4
programming/timing. In addition, there were outstanding issues between the community's desire for
additional rail crossings and conflicts with state policies regarding potential future crossings. Accordingly,
participants at this meeting also discussed the potential need for, location and type of potential future rail
crossings. Participants included the railroad, Tri-Met, the Oregon Department of Transportation and the
City of Tigard. Discussion at this meeting clarified the difficulty of obtaining an at-grade rail crossing at
Ash Avenue in downtown.
2. Role/Extension of Ash Avenue. The proposal for an Ash/Walnut Street extension and potential
crossing of Fanno Creek into Downtown has been a matter of concern for the Ave Avenue neighborhood,
and has been the source of much discussion through the process of developing the Transportation
System Plan and the Capital Improvement Program. The first TDIP public workshop resulted in the
consultant team and Task Force agreeing that the Ash/Walnut Street extension was an important
component of the downtown plan. Given the previously sensitive nature of this issue, a separate
community forum to specifically discuss this issue was held. The input received at this well-attended
forum resulted in the removal of a motorized crossing over Fanno Creek in the concept plan. Rather, the
City would conduct a study in the future to identify appropriate options for increasing access into
Downtown. The design framework of the Downtown Plan would be designed so as to not preclude the
potential for an extension of Ash Avenue across Fanno Creek in the future, should one be desired.
3. Deve%per Focus Group. Prior to taking the Refined Alternative to the next step in its evolution, the
City, consultants and Task Force held a focus group meeting with local/regional developers and financiers
to review the draft plan and its assumptions in order to get a"reality check"on it, and to ascertain its
attractiveness for investment. The meeting was attended by nine representatives of local and regional
developers. The chief finding from the meeting was that the conceptual plan, its assumptions and initial
recommendations for catalyst projects were sound. It was agreed that housing and improving access into
Downtown were two necessary plan components. A substantial amount of additional input was received
that would subsequently be used to advance the plan to the next level.
Products
As indicated above, three iterations of the conceptual plan for Downtown Tigard were prepared during the
course of this planning effort: an Initial Concept; a Refined Alternative; and a Preferred Design
Alternative. These iterations had a common foundation, depicted by the Figures 1 through 4, and defined
as follows:
1. The Bones (Figure 1). The existing transportation system of local roadways, state highways and the
railroad constitute the"bones upon which the plan is based. The existing freight railway will be sharing
the same right-of-way as the planned future Commuter Rail, a key component of the downtown
environment. Key roadways upon which downtown depends are Commercial and Tigard Streets, west of
Main Street and parallel to the railroad; State facility Hwy 99W, major arterial Hall Boulevard; and three
important downtown collectors— Main, Scoffins and Burnham Streets.
2. Key Opportunities For Enhancement(Figure 2). The planning team next looked for opportunities for
enhancing access, service and movement within the study area. These included a number of key
intersections involving the"bones" mentioned above and the Fanno Creek trail. In addition, the
downtown collectors and Hall Boulevard were identified as having the opportunity for significant
streetscape enhancement, consistent with the desire heard through the Design Dialog and Task Force
discussions for"green streets".
3. Conceptual Frame (Figure 3). Adding to the infrastructure upon which the iterations of the plan would
be hung was the concept of a "green cross", with the intersection near the future Commuter Rail station.
The Design Dialog and Task Force discussions clearly indicated a desire to build upon the natural
features of the community, particularly Fanno Creek. Discussions turned to two questions: how best to
conceptually or physically link downtown to Fanno creek, and what to do with the possibility of excess
Barbara Shields, Long Range Planning Manager
June 21, 2005
Page 3 of 4
railroad right-of-way transecting the study area? What key clues did this provide for an initial design
concept?
4. Conceptual Organization (Figure 4). Building upon the bones, the opportunities for enhancement of
existing infrastructure and the concept of the "green cross", the Task Force set about conceptually
organizing future land uses to build upon what they liked that currently existed, and to take advantage of
potential opportunities, such as:
• The commercial potential near the intersection of Hwy 99W and Hall Boulevard
• The opportunity for residential and mixed uses within walking distance of the commuter rail
station
• The active and passive open space opportunities afforded by Fanno Creek
• Building upon the historic retail location of Main Street
• Focusing office, employment and some residential uses east of Ash Avenue
These four primary steps set the stage for the work of the Task Force in developing the Initial Concept
plan, and in identifying "catalyst projects"...key projects that would help jump-start the process of
downtown's improvement and create the climate of investment attractive to developers. The evolution of
this design concept will be briefly discussed below and illustrated in accompanying Figures 5 through 7.
Initial Concept
The Initial Concept graphic was a "bubble diagram" illustrating initial land use and circulation concepts.
Based upon identified opportunities and constraints and the initial vision and guiding principles for the
TDIP, this graphic roughly suggested the following:
❖ where key transportation (vehicular and pedestrian) linkages might be needed;
❖ where potential concentrations of retail, housing and employment uses might be generally
located; and
❖ where opportunities existed for improving the overall access to and potential use of Fanno Creek.
This graphic is attached to this memorandum as Figure 5.
Refined Alternative
Informed by the Design Dialog smaller-group meetings (mentioned above, and described in the
appendices to this plan) and Task Force work sessions, the work associated with the Refined Design
Alternative took the initial concept quite a bit further through three main concepts:
Great Ideas
The consulting team took the suggestions and comments received from the public and the Task Force
and synthesized them into "Great Ideas"that would later be fleshed out into key"catalyst projects",
projects that would create a climate for investment and stimulate development(attached to this
memorandum).
Districts
The Refined Design Alternative organized the downtown into "districts": multiple-block"mini-
neighborhoods"which people can go mentally inside of, and which have some common identifying
characteristics or association. This step helped the Task Force and the community understand and
further develop the relationship of various land uses to the others, and to provide additional guidance on
connections and compatibility.
Development Feasibility
The Refined Design Alternative illustrated how potential development types could be situated within the
various districts. These prototypical, fictional building footprints were meant only to show possibilities,
and did not take property ownerships and most existing buildings into account. This spatial/graphic
organization of development types helped to convey a sense of or one scenario (of infinitely many)for
Barbara Shields, Long Range Planning Manager
June 21, 2005
Page 4 of 4
how development could populate the districts downtown. Now that it was known that"it could be done",
attention could turn to the identification of catalyst projects and further refinement of outstanding issues.
The graphic depicting the Refined Design Alternative is attached to this memorandum as Figure 6.
Preferred Design Alternative
The Preferred Design Alternative took the prototypical development"footprints"off the map, indicating
instead the general location of development types. In addition, the Preferred Design Alternative reflected
changes due to the Task Force's consideration of the extensive public comment received. The most
noticeable of these concerns Ash Avenue. A proposed extension of Ash Avenue across Fanno Creek
into Downtown was removed, as was a proposed at-grade crossing of the railroad tracks. Should a need
be identified in the future for these, the configuration of the plan would not preclude it. A Fanno Creek
overlook and a pedestrian bridge linking the neighborhood east of the creek have taken their place. The
general location of a possible performing arts and/or community recreation center was adjusted to provide
some additional distance from emergency services facilities (primarily for siren noise considerations). In
addition, key intersections/access points to Downtown were highlighted to reflect their special role and
potential location for future gateway improvements. Finally, the Fanno Creek"public area"was presented
in a more generalized manner, reflecting that no firm decisions were to be made at this time with regard
to the specific uses and design considerations for this space, be it active, passive, or some combination
thereof.
As referred to above, the organizational concept of"Great Ideas" resulted in the generation of eight, key
"catalyst projects", those that would create a climate for investment and stimulate development. The
locations of these catalyst projects are identified on the Preferred Design Alternative graphic, attached to
this memorandum as Figure 7.
Summary
As mentioned earlier in this memorandum, rather than prepare a series of plan alternatives for analysis
and review, the community agreed to use an evolutionary, iterative process. Three successive versions
of a conceptual plan were developed by the consulting team, the Downtown Task Force, the public and
the City: an Initial Concept; a Refined Alternative; and a Preferred Design Alternative. In order to focus
resources, the Preferred Design Alternative was then evaluated with regard to the projected land use and
potential population, and then modeled to ascertain the impact the concept plan would have upon the
transportation system within the City's adopted Transportation System Plan.
Two reports, the Future Transportation System Technical Memorandum and the Future Land Use and
Regulatory Environment Technical Memorandum are provided in the appendices to the TDIP. The first
addresses the transportation improvements needed to accommodate the TDIP. The second provides a
review of the City's comprehensive plan, zoning map and implementing codes and standards,
recommending changes as appropriate in order to carry out the TDIP. A final Technical Memorandum
provides an incremental implementation strategy for undertaking the actions recommended for carrying
out the plan.
KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNING/TRAFFIC ENGINEERING
810 SW ALDER,SUITE 700 - PORTLAND,OR 97205 - [503]228-5230 • FAX(503)273-8169
TECHNICAL MEMORANDUM
Future Transportation System Analysis and
Recommendations
June 30, 2005 Project# 6759
To: Tigard Downtown Improvement Plan Task Force
From: Elizabeth Wemple, P.E.
cc: Dave Siegel, Parametrix
Introduction
This final transportation memo for the Tigard Downtown Improvement Plan (TDIP) provides a
summary of the transportation analysis conducted on the Preferred Design Alternative and of the
project recommendations assuming implementation of the currently Preferred Design
Alternative. This technical memorandum will be an appendix to the final plan document. As
such it has been written without significant plan context or explanation. Specifically, the
purpose of this memorandum is to document the:
o Future conditions travel demand model analysis; and
o Future transportation system recommendations including:
o Downtown street functional classification
o Compliance with Metro Policies
o Compliance with Oregon Department of Transportation Policies
o City of Tigard Transportation System Plan(TSP)Amendments; and
o Transportation Public Improvements.
This memo is organized according to the above bullet list.
C:\Documents and Settings\denver\My Documents\TDIM-Future Transp System\7 4 05 Revised Transportation Memo.doc
Forecast Land Use Traffic Analysis Project#: 6759
June 30, 2005 Page 2
Future Conditions Travel Demand Model Analysis
Network and Land Use Assumptions
Washington County staff provided travel forecasts for the project based on the year 2000
Adopted Metro Regional Transportation Plan emme/2 travel demand model. As shown in Table
1, the Washington County model is based on a different projection of employees and households
than has been applied in the TDIP project.
Table 1 Land Use Assumptions
Washington County TDIP
Land Use Type
Year 2000 Base Year202O Year2025
Households 450 466 2242
Retail Jobs 1270 2065 1384
Other Jobs 2457 3200 3668
To address the difference between the two data sources, the following facts and assumptions
were applied to the model:
o The 2000 Regional Transportation Plan (RTP) regional travel demand model has a
forecast year of 2020. The trip table developed for this forecast year was factored to
2025 using a growth rate for the purposes of comparison to the TDIP Preferred Design
Alternative and plan;
o The regional transportation network included in the 2000 RTP travel demand model was
applied to this analysis. As part of the development of the 2025 forecasts, there were also
minor network changes applied in downtown Tigard. These are:
o Commercial Street and Scoffins Street were added to the transportation network
as collector streets
o The analysis was conducted with and without Ash Avenue connecting from
Walnut Street to Hunziker Street.
o The majority of Downtown Tigard is within one Transportation Analysis Zone (TAZ),
and a small portion of Downtown Tigard is within a second TAZ. The household and
employment numbers were for these TAZs were modified to reflect the Preferred Design
Alternative; household and employment assumptions were not changed for any other
TAZ in the model.
o The City's adopted TSP has a forecast year of 2015. For the purposes of comparing the
results of the 2025 modeling to the adopted TSP, a growth factor was developed from the
baseline (1994) and future (2015) traffic volumes in the TSP. The growth factor was then
applied to the 2015 TSP forecasts to estimate 2025 traffic volumes according to the
adopted TSP.
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Traffic Analysis Project#: 6759
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Scenarios Analyzed
The travel demand modeling analysis was conducted to respond to three questions:
1) Does the Preferred Design Alternative for the TDIP cause significant negative traffic volume
impacts to the regional facilities of Hall Boulevard, Greenburg Road, Walnut Street,
Hunziker Street, or OR 99W?
2) Does the Preferred Design Alternative for the TDIP necessitate changes to street
classifications given to Burnham Street, Commercial Street, or Scoffins Street in the City of
Tigard's adopted TSP?
3) What are the forecast volume-to-capacity ratios assuming implementation of the TDIP?
Therefore the following scenarios were analyzed:
o Year 2000 baseline conditions assuming the regionally adopted RTP land uses and
transportation network.
o Year 2025 future conditions assuming the regionally adopted RTP land uses and
transportation network Year 2025 without Ash Avenue.
o Year 2025 future conditions assuming the regionally adopted RTP land uses and
transportation network Year 2025 with Ash Avenue.
o Year 2025 future conditions assuming the regionally adopted RTP land uses and the
TDIP land uses and transportation network without Ash Avenue.
o Year 2025 future conditions assuming the regionally adopted RTP land uses and the
TDIP land uses and transportation network with Ash Avenue.
This analysis includes the transportation conditions with and without Ash Avenue to provide
information to the City of Tigard for future consideration and projects. The TDIP does not
include the proposed Ash Avenue connection to Walnut Street as a requirement; nor does it
preclude Ash Avenue from being constructed in the future, should the City pursue this.
Results
Regional Facility Impacts
Table 2 provides a comparison of forecast 2025 traffic volumes on the regional roadways in the
study area under the 2000 RTP and the Preferred Design Alternative. As shown, with
implementation of the TDIP there is no significant change in p.m. peak hour traffic volumes on
the surrounding regional streets when compared to the 2000 RTP.
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Trak Analysis Project#: 6759
June 30, 2005 Page 4
Table 2 Downtown Tigard Improvement Plan Screenline Analysis WITHOUT Ash Avenue
2000 RTP 2025
Direction (forecast to Preferred
Road 2025) Design
Alternative
Northbound 1050 985
Greenburg Road(north Southbound 995 1015
of Hwy 99W)
Total 2045 2000
Northbound 625 665
Walnut Street(north of Southbound 740 770
Hwy 99W)
Total 1365 1435
Westbound 2660 2645
Hwy 99W Eastbound 2045 2075
(west of Walnut Street)
Total 4705 4720
Northbound 550 610
Hall Blvd.
(south of Burnham Southbound 1065 1040
Street)
Total 1615 1650
Northbound 525 540
Hunziker Street(east of Southbound 345 335
Burnham Street)
Total 870 875
Westbound 1995 2415
Highway 99W Eastbound 2310 1825
(east of Hall Blvd)
Total 4305 4240
Northbound 645 620
Hall Boulevard(north of Southbound 605 630
Hwy.99W)
Total 1255 1250
The City of Tigard's currently adopted TSP forecasts traffic volumes to the year 2015. A growth
factor was developed from the adopted TSP data (i.e. 1994 counts and 2015 forecast volumes) to
extrapolate the adopted TSP volumes to a 2025 forecast. The adopted TSP also includes the Ash
Avenue Extension. A comparison of the extrapolated TSP volumes and the Preferred Design
Alternative volumes with Ash Avenue is shown in Table 3.
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Trak Analysis Project#: 6759
June 30, 2005 Page 5
Table 3 Downtown Tigard Improvement Plan Screenline Analysis With Ash
2015 2025 2025
Adopted Adopted Preferred
Direction TSP TSP with Design
Road Growth Alternative
Factor
Northbound 575 580 985
Greenburg Road(north Southbound 800 875 1015
of Hwy 99W)
Total 1375 1425 2000
Northbound 835 865 665
Walnut Street(north of Southbound 700 715 770
Hwy 99W)
Total 1535 1580 1435
Westbound 1945 1955 2645
Hwy 99W Eastbound 1350 1355 2075
(west of Walnut Street)
Total 3295 3310 4720
Northbound 810 820 610
Hall Blvd.
(south of Burnham Southbound 700 700 1040
Street)
Total 1510 1520 1650
Northbound 545 550 540
Hunziker Street(east of Southbound 420 445 335
Burnham Street)
Total 965 995 875
Westbound 2805 2860 2415
Highway 99W Eastbound 2265 2300 1825
(east of Hall Blvd).
Total 5070 5160 4240
Northbound 840 860 620
Hall Boulevard(north of Southbound 840 860 630
Hwy.99 W)
Total 1680 1620 1250
In summary, the most significant differences in traffic volumes occur on Greenburg Road north
of Highway 99W, and on Highway 99W east of Hall Boulevard and west of Walnut Street.
These are shown in italics above.
In the case of Greenburg Road the difference in forecast traffic is likely due to the difference in
the level of detail between the Tigard TSP model and the regional RTP model. The TSP model
contains more roadways and TAZs in the vicinity of downtown Tigard than does the regional
model. Even with the higher projected volumes in the TDIP on Greenburg Road, the functional
classification and number of travel lanes identified in the TSP still pertain.
On Highway 99W west of Walnut Street, the TDIP volumes are higher than predicted by the
TSP; in contrast east of Hall Boulevard the TDIP forecast traffic volumes are lower than
predicted by the TSP. Again, this distinction may be due to the more detailed model developed
in the TSP. Nonetheless, the traffic volumes forecast through the TDIP modeling effort can still
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Traffic Analysis Project#: 6759
June 30, 2005 Page 6
be accommodated within the three travel lanes per direction cross-section for Highway 99W that
is identified in the City's TSP.
Therefore, the Preferred Design Alternative does not cause impacts to the surrounding
transportation system that cannot be accommodated by improvements already identified in the
adopted TSP.
Collector Street Impacts
The modeling effort conducted for the Tigard TSP included Burnham Street, but not Scoffins or
Commercial Street. To estimate 2025 traffic volumes on Burnham Street under the adopted TSP
scenario, a growth factor was applied to the 2015 forecast volumes. With the growth factor for
the TSP, Burnham Street would carry approximately 615 vehicles (in both directions) in the
2025 p.m. peak hour. Under the TDIP, it is estimated that Burnham Street will carry
approximately 675 vehicles (in both directions) during the weekday p.m. peak hour. Both sets of
data are consistent with Burnham's classification as a collector street.
The RTP and TDIP forecasts on Commercial Street, Scoffins Street, and Burnham Street are
very similar and consistent with their classifications as collector streets. For this reason, no
modifications to the TSP functional classifications are needed.
Link Level Capacity Analysis
Table 4 provides a comparison of forecast volume to capacity ratios on key regional links within
the study area. As shown in this table, assuming implementation of the TDIP Preferred Design
Alternative, the volume-to-capacity ratios on the key links remain essentially the same as the
forecast p.m. peak hour volume to capacity ratios assuming the adopted regional land use plan.
Again the TDIP Preferred Design Alternative is not forecast to have significant impacts on the
surrounding street system.
Table 4 Downtown Tigard Improvement Plan Volume to Capacity Analysis
2000 RTP Forecast to 2025 2025TDIP Preferred Design
Conditions Alternative
Volume-to- Volume-to-
Volume-to- Volume-to-
Capacity Capacity Ratios Capacity Capacity
Road Direction Ratios Ratios Ratios
with Ash without Ash with Ash without Ash
Greenburg Road Northbound 0.58 0.58 0.55 0.56
(north of Hwy 99W) Southbound 0.55 0.53 0.56 0.56
Walnut Street(north Northbound 0.52 0.54 0.55 0.56
of Hwy 99W) Southbound 0.62 0.65 0.64 0.65
Hwy 99W Westbound 1.27 1.25 1.26 1.24
(west of Walnut
Street) Eastbound 0.97 0.97 0.99 0.98
Hall Blvd. Northbound 0.31 0.29 0.34 0.34
(south of Burnham
Street) Southbound 0.59 0.59 0.58 0.58
Hunziker Street(east Northbound 0.75 0.75 0.77 0.77
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Trak Analysis Project#: 6759
June 30, 2005 Page 7
Table 4 Downtown Tigard Improvement Plan Volume to Capacity Analysis
2000 RTP Forecast to 2025 2025 TDIP Preferred Design
Conditions Alternative
Volume-to- Volume-to-
Volume-to- Volume-to-
Capacity Capacity Ratios Capacity Capacity
Road Direction Ratios Ratios Ratios
with Ash without Ash with Ash without Ash
of Burnham Street) Southbound 0.49 0.49 0.48 0.48
Highway 99W Westbound 0.98 0.98 1.01 1.00
(east of Hall Blvd.) Eastbound 0.77 0.77 0.76 0.76
Hall Boulevard(north Northbound 0.36 0.36 0.35 0.35
of Hwy. 99W) Southbound 0.34 0.34 0.35 0.34
Future Transportation System Recommendations
Functional Classification
It is recommended that with the exception of Hall Boulevard and Hwy 99W, the proposed TDIP
include the following functional street classification system (See Table 5). This is consistent
with Metro guidelines for Town Centers and the adopted TSP. Figures 1-3 shows examples of
these street designs.
Table 5 Proposed Downtown Functional Classification
Street From To Classification Median Type
Main Street Hwy 99W Hwy 99W Collector Street Landscaped with specific Left-Turn
Pockets
Burnham Street Main Street Ash Avenue Collector Street Landscaped with specific Left-Turn
Pockets
Burnham Street Ash Avenue Hall Boulevard Collector Street Two-way-left-turn-lane
Commercial Street Main Street Hall Boulevard Collector Street Landscaped with specific Left-Turn
Pockets
Scoffins Street Main Street Hall Boulevard Collector Street Two-way-left-turn-lane
Ash Avenue Scoffins Street Commercial Local Street—with ROW
Street to Collector Street
Ash Avenue Railroad Tracks Fanno View Local Street—with ROW
Point to Collector Street
Table 6 shows the ODOT, Tigard and Metro classifications for Highway 99W and Hall
Boulevard.
Kittelson &Associates, Inc. Portland, Oregon
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Table 6 Hall Boulevard and Highway 99W Functional Classification
Street ODOT Classification Tigard Metro Classification
Classification
Oregon 99W Statewide Highway Arterial Regional Boulevard
Potential light rail or rapid bus
Regional bus
Major Arterial
Main Roadway Route for Freight
Regional Corridor for Cyclists
Transit/Mixed Use Corridor
Hall Boulevard District Highway Arterial Community Boulevard
Minor Arterial
Regional Corridor for Cyclists
Transit/Mixed Use Corridor
Hall Boulevard and Highway 99W are under ODOT jurisdiction and therefore, unless design
exceptions are received, must be designed according to ODOT Highway Design Manual
standards. Table 7 summarizes these standards for major street cross-sectional features. Table 7
also shows these standards according to the City of Tigard TSP and Metro Street design
guidelines. As shown in this table, there are differences among the design standards. As the City
of Tigard moves forward with planning projects for Hall Boulevard or Highway 99W, it is
recommended that the City of Tigard work with ODOT to resolve design distinctions. As
appropriate, Tigard may have to acquire design exceptions from ODOT for specific elements.
Kittelson &Associates, Inc. Portland, Oregon
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Table 7 Design Features for Highway 99W and Hall Boulevard
ODOT Highway Design City of Tigard TSP Metro Street Design Guidelines
Manual
Sidewalks 6 feet 10 feet 12 feet
Can be exceeded without
design exception
Planter Strip None required; if provided 5 feet Included in above sidewalk width
should be 4 to 8 feet
Shoulder 6 feet None None
Combined shoulder/bike
lane
Parking None None 7 feet
Combined with street tree wells
Bike Lane None—combined with 5 to 6 feet 5 feet
shoulder
Lane Width 12 feet 12 feet 11 feet
Median 15 or 16 feet depending 12 feet 10 feet
Width/TWLTL on design speed
Street Trees A design exception is Yes Yes
required for street trees on
urban streets with a
design speed greater than
35 miles per hour.
Compliance with Metro Policies
Table 1.3 of the 2004 adopted Metro Regional Transportation Plan shows alternative mode
percentages that have been established as goals for cities and counties to work toward as they
implement the 2040 Growth Concept at the local level. In Town Centers the adopted goal is that
45-55-percent of trips to, from and within the Town Center be made by non-single occupant
vehicle modes of transportation.
To begin to work toward these goals, the City should consider the options outlined below.
For cyclists:
o To build momentum for the TDIP, prioritize constructing bike lanes on collector streets
in Downtown Tigard. Integrate this with projects to improve non-motorized access to
Downtown. Bike lanes could be painted with different colors to accentuate critical areas
(e.g. known points of conflict between vehicles and cyclists, school area).
o Plan city bike routes to focus crossings of major streets (e.g. Hall Boulevard or Highway
99W) at signalized intersections with sufficient signal time available for cyclists to cross
the street. Consider providing additional traffic signal equipment such as loop detectors
for cyclists or bicycle crossing signal call buttons. If the volume of cyclists crossing
these roadways grows sufficiently, consider providing a"bike-box"to provide cyclists an
advantage when crossing the street.
o Provide covered bicycle lockers or racks in strategic places in Downtown(e.g. commuter
rail station, bike store, popular retail, restaurant or coffee areas, future performing arts
center, or the post office).
Kittelson &Associates, Inc. Portland, Oregon
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June 30, 2005 Page 10
o Revise development code to integrate end-of-trip facilities (e.g. bicycle parking, shower,
and/or locker rooms) into new commercial/retail developments.
o In collaboration with bike shops in Tigard, develop public education campaigns
providing information about cycling in Tigard and specifically cycling to, from and
within Downtown.
For pedestrians:
o To build momentum for the TDIP, prioritize constructing sidewalks on streets in
Downtown Tigard. Integrate this with projects to improve non-motorized access to
Downtown. Provide a comprehensive system of sidewalks to, from and within
Downtown;
o Plan pedestrian routes to ensure that pedestrian crossings of major streets occur at
signalized intersections with sufficient signal time for pedestrians to cross the street;
o Provide streetscape treatments such as landscaping, pedestrian scale lighting, and street
furniture to make pedestrians feel secure as they are walking in Downtown;
o Plan for pedestrian activity in new parking areas.
o Plan traffic calming devices such as curb extensions or chokers to enhance pedestrian
environment but not detract from the cycling environment.
For transit users:
o Work with Tri-Met to provide adequate pre or post-transit trip facilities (e.g. shelter, bike
storage, and parking)to simplify and facilitate the transit trip.
o Encourage development in the vicinity of the commuter rail station that provides services
commuter's desire at the beginning or end of their transit trip.
Parking
Under current conditions there is ample parking supply in downtown Tigard, and no apparent
issues related to parking demand and/or management. In the near future commuter rail will
begin operation that will include a station in downtown Tigard. A parking lot is planned for
commuter rail passengers.
As commuter rail operations and redevelopment in Downtown begins, it will be important for
City of Tigard staff to monitor parking supply, demand and utilization in the Downtown area.
Staff will want to monitor parking demand to ensure that short-term and long-term parking is
available to residents, employees and patrons of Downtown as well as commuter rail passengers.
Under most circumstances in Downtowns, on-street parking is considered full when peak hour
parking utilization exceeds 85-percent.
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Traffic Analysis Project#: 6759
June 30, 2005 Page 11
In the event that on-street parking utilization begins to increase, the City of Tigard should have
parking management policies in place to manage the demand and possibly provide additional
parking supply. While a detailed parking supply, demand and utilization analysis will be
required to establish these policies, possible parking management strategies include:
• Integrating parking management considerations with multi-modal access plans for
Downtown to encourage and enhance non-auto travel.
• Initiating and enforcing different parking duration limits in different areas of Downtown;
• Initiating shared parking policies (this complements shared access policies);
• Initiating area parking permit programs;
• Working with property owners to make private parking available to the public; and
finally
• A very long-term possibility, develop a city owned parking area.
Compliance with ODOT Policies
Access Management
Hall Boulevard and Highway 99W are under the jurisdiction of ODOT. The TDIP does not call
for any additional access points to either of these streets. However,the development of the TDIP
would add a fourth leg to the intersection of Garden Place/Hall Boulevard. Depending on the
magnitude of development that occurs in this part of downtown Tigard, a traffic signal may
become warranted at this location. If so, both ODOT Access Management Policies, and ODOT
Signal Policy (outlined in OAD734-020-430 through 490) should be evaluated.
Within downtown Tigard all of the streets are under the jurisdiction of Tigard; thus ODOT
access management policies do not apply. However, the City of Tigard should pursue shared
access arrangements with developers and property owners as new development occurs. This will
ultimately minimize the number of access points to the City's Downtown collector system;
therefore preserving and enhancing the long term mobility and safety of the streets. In addition
this complements shared parking policies to minimize the amount of space devoted to parking
supply.
Transportation Planning Rule
Recent modifications to the Oregon Transportation Planning Rule require that "where an
amendment to a functional plan, an acknowledged comprehensive plan, or a land use regulation
would significantly affect an existing or planned transportation facility, the local government
shall put in place measures as provided in section(2) of this rule to assure that allowed land uses
are consistent with the identified function, capacity, and performance standards (e.g. level of
service, volume to capacity ratio, etc) of the facility." The modifications to the rule also explain
that a land use plan or regulation significantly affects a facility if it would:
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o "Change the functional classification of an existing or planned transportation facility;
o Change standards implementing a functional classification;
o Allow land uses or levels of development that would result in types or levels of travel or
access that are inconsistent with the functional classification of an existing or planned
facility;
o Reduce the performance of an existing or planned facility below the minimum acceptable
performance standard identified in the TSP or comprehensive plan; or
o Worsen the performance of an existing or planned transportation facility that is otherwise
projected to perform below the minimum acceptable performance standard identified in
the TSP or comprehensive plan."
As shown in Tables 2 and 3, the Preferred Design Alternative will not significantly affect the
transportation system in the vicinity of downtown Tigard. Therefore, the TDIP Preferred Design
Alternative densities are consistent with the findings of previous transportation analyses and the
currently adopted TSP remains applicable.
Special Transportation Area and Urban Business Area
Early in the project both Highway 99W and Hall Boulevard were evaluated in the context of
ODOT Special Transportation Area (STA) and Urban Business Area (UBA) policies contained
in the Oregon Highway Plan. The analysis revealed that neither Highway 99W nor Hall
Boulevard qualifies as an STA or UBA, and that the TDIP does not change this conclusion.
Transportation System Plan Amendments
The TDIP Preferred Design Alternative does not include extending Ash Avenue from Walnut
Street to Hall Boulevard as called for in the City's adopted TSP. The TDIP project included
much discussion about the Ash Avenue extension from Walnut Street to Downtown. The main
themes of these discussions were:
o Many residents of Ash Avenue south of Fanno Creek do not want to see Ash Avenue
extended from Walnut Street to Downtown. They are concerned about increases in
traffic volumes and safety for their children in their neighborhood.
o Business owners and residents along what has been shown as a conceptual alignment for
Ash Avenue extension from Walnut Street to Downtown are concerned about the
implications to their businesses and residences.
o Citizens were concerned about the environmental impacts of a new bridge across Fanno
Creek.
o Potential developers of downtown Tigard did not see an Ash Avenue connection from
Walnut Street to Downtown Tigard as mandatory for successful re-development in
downtown Tigard.
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Traffic Analysis Project#: 6759
June 30, 2005 Page 13
o ODOT and Portland & Western Railroad indicated that an Ash Avenue at-grade crossing
of the railroad tracks in downtown Tigard would be very difficult to achieve. At a
minimum one other at-grade crossing and preferably two at-grade crossings would need
to be closed in order to open a new Ash Avenue at-grade crossing of the railroad tracks.
Because consensus about extending Ash Avenue from Walnut Street at Highway 99W to
Hunziker Street was not achieved during this project, the TDIP plan was developed without
including the Ash Avenue as a roadway connection from Walnut Street to Downtown Tigard.
The Preferred Design Alternative however, does not preclude Ash Avenue from being
constructed in its entirety as in the adopted TSP or in segments. Therefore, the proposed Ash
Avenue connection does not need to be modified in the TSP.
Overall, the currently adopted TSP will accommodate the TDIP Preferred Design Alternative
without any significant impacts to the regional or local transportation system in the study area.
There are no modifications recommended as part of this plan.
Public Improvements
As the TDIP is implemented, in addition to the continuous planning that will occur to achieve
the community vision, the following specific projects should be considered.
o Near-Term
o Continue implementing the plans and policies in the adopted TSP.
o Achieve consensus on the Ash Avenue extension from Walnut to Downtown
Tigard. This is clearly a difficult issue for all stakeholders in downtown Tigard
and vicinity. Extending the street from Walnut to Downtown Tigard is included
in the adopted TSP; however some stakeholders would prefer that the street not
be constructed. To address these discrepancies, the City of Tigard plans to
conduct a corridor alternatives analysis for Ash Avenue. As part of this project, it
is recommended that the City conduct a public consensus-building program to
evaluate whether or not the community at large would benefit from and prefer that
Ash Avenue be connected from Walnut Avenue to downtown Tigard. An
element of this project would be a detailed assessment of the travel demand to,
from and within Downtown and intersection operations within Downtown with
and without Ash Avenue. It is further recommended that a sub-area travel
demand model be developed to support this process. The transportation
component of such a study could cost $50,000 to $100,000.
o Review City Pedestrian and Bicycle Plans. Staff should review current City
pedestrian and bicycle planning efforts to ensure that these support simple and
feasible access to, from and within downtown Tigard. Modify plan as necessary.
o Explore design requirements for "Green Street" street treatments. The TDIP
calls for integrating Fanno Creek back into downtown Tigard. As part of this,
Tigard should explore developing design guidelines for green-street street
treatments. It may be possible to integrate green-street concepts into traffic
Kittelson &Associates, Inc. Portland, Oregon
Forecast Land Use Traffic Analysis Project#: 6759
June 30, 2005 Page 14
calming treatments, intersection control, drainage, and parking areas. Initially,
City of Tigard Staff could work with City of Portland Staff to evaluate successes
and failures in Portland.
o Hall Boulevard and Highway 99W Cross-Sections. As the City of Tigard begins
additional planning work related to Highway 99W and Hall Boulevard, work with
ODOT as early as possible to refine and define cross-sectional preferences and
requirements for these streets.
o Street Design Guidelines. The City of Tigard Staff should participate as needed in
work with ODOT and Metro Staff to develop Highway Design Manual street
design guidelines blending features of both ODOT and Metro Street design
requirements.
o Long-Term
o Develop and implement a parking management plan that ensures adequate short-
term and long-term parking supply for residents, employees and patrons of
Downtown. Depending on the amount of data collection, public involvement,
analysis, and code modification this could cost $40,000 to $75,000. This is not
necessary until Downtown begins to grow and parking utilization increases. Such
a parking study should be conducted prior to constructing any structured parking.
o The results of the Ash Avenue evaluation and Downtown access study will
provide information about short-term and long-term transportation needs within
Downtown. Begin implementing these measures as identified in the evaluation.
o It is desirable that within Downtown Tigard, that a new at-grade crossing of the
railroad tracks be developed along the Ash Avenue alignment. City of Tigard
Staff should continue to work with Portland & Western Railroad and the ODOT
Rail Division to identify options for achieving this crossing. Current policy states
that to open new at-grade crossings at least one and preferably two at-grade
crossings need to be closed or grade-separated. Options for closing or grade-
separating at-grade crossings do exist in Tigard (e.g. Hall Boulevard, North
Dakota, Tiedeman); however, significant local and regional planning efforts and
engineering and constructions costs would be required to achieve consensus about
these projects.
Kittelson &Associates, Inc. Portland, Oregon
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Tigard Downtown Improvement Plan
Land Use Technical Memorandum
Prepared for
City of Tigard
City of Tigard
13125 SW Hall Blvd.
Tigard, OR 97223
Prepared by
Parametrix
700 NE Multnomah, Suite 1000
Portland, OR 97232-4110
503-233-2400
www.parametrix.com
August 2005 1 273-2395-041
CITATION
Parametrix. 2005.Tigard Downtown Improvement Plan
Land Use Technical Memorandum.
Prepared by Parametrix,
Portland, Oregon.
August 2005.
Tigard Downtown Improvement Plan
Land Use Technical Memorandum
City of Tigard
TABLE OF CONTENTS
1. INTRODUCTION .................................................................................................1
2. TIGARD DOWNTOWN IMPROVEMENT PLAN CHARACTERISTICS ...............1
3. EXISTING LAND USE AND REGULATIONS......................................................2
3.1 OVERVIEW OF CURRENT LAND USES.................................................................2
3.2 TIGARD COMPREHENSIVE PLAN .........................................................................3
3.3 TIGARD COMMUNITY DEVELOPMENT CODE...................................................4
3.4 DESIGN STANDARDS................................................................................................8
3.5 REGIONAL GOVERNMENT REQUIREMENTS AND GUIDANCE.......................8
4. RECOMMENDATIONS........................................................................................10
4.1 COMPREHENSIVE PLAN..........................................................................................10
4.2 COMMUNITY DEVELOPMENT CODE...................................................................11
4.3 DESIGN STANDARDS...............................................................................................15
5. MEASURE 37......................................................................................................19
6. SUMMARY AND PREFERRED TIMING .............................................................19
LIST OF TABLES
TABLE 1 ALLOWED RESIDENTIAL USES.........................................................................5
TABLE 2 SPECIFIC DEVELOPMENT STANDARDS..........................................................6
TABLE 3 COMPREHENSIVE PLAN REVIEW.....................................................................10
TABLE 4 EXISTING CBD DESIGN STANDARDS..............................................................15
TABLE 5 BUILDING PLACEMENT EXAMPLES................................................................17
TABLE 6 IMPLEMENTATION TIMING...............................................................................20
August 2005 273-2395-041 i
Tigard Downtown Improvement Plan
Land Use Technical Memorandum
City of Tigard
1 . INTRODUCTION
Before the City of Tigard's Downtown can grow into the vision created by the Tigard
Downtown Improvement Plan ("Improvement Plan"), the City must ensure that the
appropriate Comprehensive Plan policies and zoning ordinances (Tigard's Community
Development Code) are in place to help carry out the community's public policy objectives.
This technical memorandum will provide guidance to the City of Tigard by identifying
existing regulatory barriers to implementing the Improvement Plan and by suggesting concept
level additions or changes that would facilitate the desired development types. In addition, a
proposed sequence of implementation for the recommended changes is provided based on the
preferred sequence of development for the Downtown Improvement Plan Catalyst Projects.
Z. TIGARD DOWNTOWN IMPROVEMENT PLAN CHARACTERISTICS
The preferred design alternative for the Improvement Plan is in keeping with the Downtown
Task Force's and the community's vision of an urban village (see Appendix A). The historic
service and retail mix present on Main Street will be preserved and activity here will be
augmented by:
- increased emphasis on streetscape design,
- compact lot sizes,
- business front orientation to Main Street,
- a second story presence allowing for office and residential uses, and
- shared parking areas to allow for auto access with a focus on pedestrian or bicycle
modes of transport within the district.
A major shopping opportunity for residents of the region will be provided by a regional retail
marketplace with prominent visibility at the intersection of OR Highway 99W and Hall Blvd.
Emphasis here will be on larger scale, "medium-box" retailers centered around a community
plaza, which also serves as the northern extent, or `headwaters,' of a new and unique urban
creek feature. The creek will represent key values of Tigard's citizens and will lead
pedestrians from the regional retail center down to the `Heart' of Downtown, at Fanno Creek.
The Urban Creek will pass through medium to high density, compact, mixed-use residential
areas with cafes and shops along the park; link with employment/office districts along the
commuter rail; connect with the commuter rail, Tri-Met bus system transit center and
adjacent linear park; and have a direct connection with a future community performance and
recreation center. As yet undesigned, the conceptual terminus of the urban creek is at the
planned Fanno Creek open space providing a link with a future open plaza and the southern
end of the Main Street district.
A medium to high-density residential area will be located along Hall Blvd. between the new
regional retail center and Commercial Street. This area is envisioned to provide up to eight-
story residential towers with underground or structured parking and ample open, green space.
A more moderate density housing area, focused on condominiums is planned to the southeast
of the current southern terminus of Ash Avenue between the Fanno Creek floodplain and the
civic and employment center of Downtown. Civic uses will continue to be centralized along
Burnham Street,east of Ash Avenue and south along Hall Blvd.
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In addition to the recommendations on the layout of Downtown uses and functions, the Task
Force and the Tigard community-at-large also incorporated two other key requirements for
the Improvement Plan: Streetscape design and improvements; and an overarching
environmental responsibility, or greening of Downtown drawing upon the natural and
ecological characteristics of Fanno Creek for inspiration.
The organization and unique elements of the Improvement Plan will promote transit use,
shared parking, successful commerce, and community enjoyment, all vital to a vibrant urban
village.
Eight catalyst projects have been defined in the Improvement Plan to help create this vibrant
Downtown character. These projects are more thoroughly described in the Downtown
Improvement Plan document.
1. Streetscape Enhancement Program
2. Green Corridor/Urban Creek
3. Hall Blvd. Regional Retail
4. Downtown Housing Development
5. Ash Area Downtown Improvement
6. Performing Arts and Recreation Center
7. Fanno Creek Public Area
8. Relocating Post Office
The Preferred Design Alternative is predicted at full build-out to provide for approximately
1,986 households and approximately 4,077 employees with assumed densities of 250 square
feet per employee for office, 500 square foot per employee for the performing arts and
recreation center and 470 square feet per employee for retail. The residential density
assumption was 1,000 gross square feet per residential unit.
The desired features and characteristics for Downtown Tigard, built on community and Task
Force recommendations, and the land use and density assumptions provided above form the
basis for the recommendations in this Land Use Technical Memorandum. The
recommendations provided in this memo are intended to provide the City of Tigard guidance
for amending existing Comprehensive Plan and Community Development Code to create
appropriate and effective implementation tools for Tigard's Downtown.
3. EXISTING LAND USE AND REGULATIONS
3.1 Overview of current land uses
The existing uses in Downtown include retail, office, residential, auto-dependent businesses,
and large-lot light industrial businesses as well as public park, civic service, and transit uses
(see Appendix B). Industrial uses are prominent to the southeast of the plan area. Retail
commercial uses are concentrated to the northwest along OR 99W, and residential districts
surround the Downtown core. Based on a September 2003 Downtown land use and building
inventory survey conducted by the City of Tigard, approximately 38 percent of land in the
plan area is occupied by commercial uses, including office and retail. Industrial uses
comprise approximately 14 percent of the land area, and government uses, including City
services, transit services, and the US Post Office occupy approximately 18 percent of the land
in the plan area. The next largest use by land area is public parks, which occupy 16 percent
of the land. Multi-family land use occupies approximately eight percent of the land area, and
less than two percent each is classified as vacant land, single family, single family attached,
or institutional.
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Lot sizes within the plan area vary widely. The average lot size is just under one acre, while
the maximum lot size is approximately 15 acres. The more compact lots are found along
Main Street and on the south side of the Southern Pacific and Burlington Northern rail lines.
Larger lots are concentrated along Fanno Creek and the southern half of Hall Boulevard.
3.2 Tigard Comprehensive Plan
Currently, there are three policies in the Comprehensive Plan that directly pertain to the
Downtown, which is designated as Central Business District (CBD). In the plan, the policy
statements provide directives to the City for making decisions and preparing plans. The
implementation strategies are recommendations and propose implementation methods. The
applicable policies provide general guidance that the CBD should be developed into a focal
point for the city and should move toward the high-density residential and mixed uses
envisioned for Town Centers. The policy text is included below. To see the applicable
implementation strategies, please refer to the Existing Conditions and Opportunities and
Constraints report that is attached as an appendix to the Tigard Downtown Improvement
Plan.
ECONOMY SECTION—VOL.II,POLICY 5-1
5.3 The city shall improve and enhance the portions of the central business
district as the focal point for commercial, high density residential,
business, civic and professional activity creating a diversified and
economically viable core area.
5.4 City shall prohibit residential development in commercial and industrial
zoning districts except: complimentary residential development shall be
permitted above the first floor in the central business district, and above
the second floor in commercial professional districts. (the density of
residential development shall be determined in accordance with the R-40
districts.)
SPECIAL AREAS OF CONCERN—VOL.II,POLICY 11-1
11.1 Neighborhood Planning Organization#1
A. Central Business District
11.1.1 The redevelopment of downtown Tigard shall be accomplished in
order to make it complementary to newer shopping areas. Convenience,
appearance and the needs of the shopping public should be primary
considerations.
Policy 5.3 in the Economy Section currently provides direction to move toward a diversified
and economically sound Downtown. It includes the major elements of the Preferred Design
Alternative, with the exceptions of supporting multi-modal transportation and retaining the
character of Main Street.
Policy 5.4 currently directs the City of Tigard to restrict residential development in
commercial zones (CBD included), allowing residential uses only above street level. The
Preferred Design Alternative calls for live-work units and condominium development as well
as some garden style apartments that would place residential uses at street level. In the
Preferred Design Alternative, these areas would be designated with a Town Center residential
zoning district to be described later in this memorandum.
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Policy 11.1.1 in the Special Areas of Concern section is currently missing the multi-
functional goals that the Preferred Design Alternative embodies. Instead, this policy focuses
on retail and shopping and does not promote the "18-hour" day activity called for in the
Improvement Plan. This policy also places the primary focus on the shopping public rather
than on the desires of the community of Tigard. Specifically, the primary considerations
should mirror those developed by the Task Force in their vision for Downtown:
"Our vision of Downtown Tigard is a vibrant and active urban village at the heart of
our community that is pedestrian oriented, accessible by many modes of
transportation, recognizes and uses natural resources as an asset, and features a
combination of uses that enable people to live, work, play and shop in an
environment that is uniquely Tigard."
The Special Areas of Concern section may benefit from including that the design of
redevelopment along Main Street should work to maintain the historic character and
appearance that creates a small town feel either as a policy or as an implementation strategy.
New policies or implementation strategies in the Economy section should recognize that
change in the Downtown will occur gradually and that when possible, flexibility can be
employed to foster the development of the catalyst projects. The Economy section should
also change its statements regarding a general economic development program to recognize
the consultant and Task Force recommendation that new funding mechanisms, including
urban renewal,be used to help carry out the Improvement Plan.
3.3 Tigard Community Development Code
3.3.1 Base Zone
All of Downtown Tigard is currently zoned Central Business District(CBD) in Title
18 of the Tigard Municipal Code. Chapter 18.520 Commercial Zoning Districts
defines allowed uses and development standards within the CBD zone and provides
the following purpose statement:
"The CBD zoning district is designed to provide a concentrated central
business district, centered on the City's historic downtown, including a
mix of civic, retail and office uses. Single-family attached housing, at a
maximum density of 12 units/net acre, equivalent of the R-12 zoning
district, and multi-family housing at a minimum density of 32 units/acre,
equivalent to the R-40 zoning district, are permitted outright. A wide
range of uses, including but not limited to adult entertainment, utilities,
facilities with drive-up windows, medical centers, major event
entertainment and gasoline stations, are permitted conditionally."
This purpose statement and the allowed uses and basic development standards of the
CBD zone (shown in Table 1) are generally appropriate for the several `districts'
proposed in the Improvement Plan,but do not provide enough specificity to direct
development in those districts into the types of uses and building forms called for in
the Preferred Design Alternative. Where the Improvement Plan calls for regional
retail,the current CBD zone may allow for residential,office or civic uses.
Similarly,where the Improvement Plan recommends residential condos,the CBD
zone may allow for development of lower density single-family residential or office
space. Further,mixed-use developments could be allowed within the current CBD
base zone;however,there are no specific regulations that guide this type of
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development to occur within any specific areas of the CBD. New base zones with
more specific purpose statements should be developed for the Downtown.
Additionally,each district, as envisioned during the planning process,requires a
slightly different set of development standards (lot sizes,building heights and sizes,
etc.)to bring the desired character of each district into realization. Recommendations
for creating a zoning scheme are provided later in this memorandum.
Table 1 Allowed residential Uses
Summary of Allowed Residential Uses for CBD(from Table 18.520.1)
Household Living Single-family attached and multi-family residential units
developed at R-40 standards,except the CBD area bounded
by Fanno Creek,Hall Boulevard,O'Mara,Ash Avenue and
Hill Street.This area is designated R-12 PD and shall be
developed as planned developments in conformance with R-
12 district standards.
.............................................................................................................................................................................................................................................................................................................................................................................................................................................
Group Living ■ Permitted Use
.............................................................................................................................................................................................................................................................................................................................................................................................................................................
Transitional Housing • Conditional Use
Home Occupation Restricted Use. Permitted subject to requirements
Chapter 18.742
Summary of Commercial Development Standards for CBD (from Table 18.520.2)
Minimum lot size • None
.............................................................................................................................................................................................................................................................................................................................................................................................................................................
Minimum lot width • None
.............................................................................................................................................................................................................................................................................................................................................................................................................................................
Minimum Setbacks None,except a 30-foot setback is required where a
commercial use abuts a residential zoning district.
.............................................................................................................................................................................................................................................................................................................................................................................................................................................
Minimum building height ■ None
.............................................................................................................................................................................................................................................................................................................................................................................................................................................
Maximum building height 80 feet,except where the building is within 100 ft of any
residential zoning district,maximum building height is 40
feet.
3.3.2 Specific Development Standards
The Specific Development Standards chapters in the Community Development Code
(I 8.700s) were reviewed and analyzed with the guidelines provided by the City of Tigard, the
Task Force, and the consultant design team on the desired characteristics and development in
Downtown in mind. Requirements were found within several chapters that may act as
barriers to creating the kind of Downtown envisioned in the Improvement Plan. Other
chapters were silent where the Improvement Plan may need regulatory or incentive based
direction in the code. The treatment of nonconforming situations, an issue brought up early
in the planning process for Downtown, is addressed separately below, while the remaining
issues are compiled in Table 2 in the following section.
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Nonconforming Situations
Several types of uses presently found within the Downtown area are identified as prohibited
in Table 18.520.1, including light and general industrial, and warehouse freight movement.
Auto service uses,except for auto cleaning are also prohibited.
Section 18.520.060.B.2 allows existing nonconforming industrial structures at the following
locations to continue as I-P Industrial Uses. This code section applies to the following tax
lots: 2S 12AA04700, 2S 12AC00100, 2S 12AC00202, 2S 12AD01203, 2S 12DB00100, and
2S12DA00300t. Section 18.760.B exempts single-family residences in the CBD zone from
the nonconforming situation requirements.
In simple terms, citywide a nonconforming use cannot be expanded but it may remain as long
as the use is not changed or abandoned for more than 6 months (a use can't be "destroyed",
but the structure that holds the use can). A nonconforming structure can remain; in general it
can be remodeled for cosmetic and safety purposes provided the square footage is not
increased.
Although the Task Force is working diligently to change the character and improve the
economic vitality of Downtown and understands that industrial and single-family housing
uses are not generally conducive to a thriving downtown, it also recognizes that change needs
to and will occur slowly. Historically successful uses, even if they are nonconforming and
will continue to be nonconforming under new zoning for the Downtown, should be given a
higher degree of acceptability than is generally provided under standard nonconforming use
regulations.
To retain sensitivity to business owners currently operating legally established
nonconforming uses Downtown, it is advisable to consider developing a threshold of allowed
expansion or redevelopment based on a percentage of square footage. Rather than providing
a complete exemption, as is the current practice, this approach will allow business owners to
improve their property within certain limits while operating a nonconforming use. During the
implementation phase, the Land Use Advisory Group will work with land and business
owners to develop code language to address Downtown nonconforming situations that will
assist in the transition period. This will help ensure continued viability of existing uses in
areas of Downtown that may not be ready to change or redevelop their property to reflect the
new uses planned in the Preferred Design Alternative.
Other Specific Design Standards
Table 2 provides a planning level analysis of existing Special Development Standards and
consistency with the Improvement Plan. This analysis focuses on identifying existing
barriers to creating the desired character in Downtown and areas where the Community
Development Code is silent on certain Preferred Design Alternative elements.
Table 2 Specific Development Standards
Code Section 1 Specific Language Consistency with Improvement Plan
18.705.030.F.4 Pedestrian walkways shall Need to ensure that pervious pavers (i.e.
be paved with hard surface grass-crete) are allowed by including these
materials, such as concrete, treatments in this list. Further research is
..........................................................................................................................................................................................................................................................................................................................................................................................................................................................
I
The uses on these lots are not considered nonconforming and are limited by the standards the CBD
zone. These uses can expand while following all other applicable standards in the Community
Development Code.
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Code Section Specific Language Consistency with Improvement Plan
asphalt, stone, brick, etc. required to determine feasibility with
emergency vehicle and structural and safety
requirements.
...................................................................................:.....................................................................................................................................................................................................................................................................................................................................................................
18.745.030 Landscaping and Screening. While not specifically prohibited now,it
General comment: vegetated would be beneficial to address and
stormwater treatment encourage vegetated stormwater facilities to
be used to meet landscaping requirements.
Providing design examples of these
facilities within the Buffer Combinations in
Table 18.745.2 would be helpful.
...................................................................................:.....................................................................................................................................................................................................................................................................................................................................................................
18.765 General comment:Metro The City of Tigard is currently in
standards conformance with Metro parking
requirements.
.......................................................................................................................................................................................................................................................................................................................................................................................................................................................
18.765.030.0 Joint Parking. Owners of Within the Downtown,the City may want
two or more uses, to consider allowing joint parking for users
structures, or parcels of whose peak hours do coincide (as opposed
land may agree to utilize to limiting this section to only those uses
jointly the same parking and that do not coincide). One possibility to
loading spaces when the accomplish this would be by including a
peak hours of operation do requirement for a larger minimum number
not overlay, subject to the of spaces and a more permanent legal
following: ... agreement instrument. The benefit would
be that fewer parking lots would occupy
Downtown space and pedestrian access
within Downtown would be encouraged.
...................................................................................:..............................................................................................................................................:......................................................................................................................................................................................................................
18.765.040.B.5 Access drives shall be Again,this requirement needs to ensure that
improved with an asphalt or pervious pavers (i.e. grass-crete) are
concrete surface; allowed by including these treatments in
this list. Further research is required to
determine feasibility with emergency
vehicle and structural and safety
requirements.
...................................................................................:..............................................................................................................................................:......................................................................................................................................................................................................................
18.775 Sensitive Lands. General The Improvement Plan includes
Comment:Agreement and recommendations for limited development
support along Fanno Creek within or near areas
protected by Chapter 18.775. The
Improvement Plan is in full support of the
environmental protections and review
process established by Chapter 18.775. No
special exemptions or provisions are
recommended.
....................................................................................:....................................................................................................................................................................................................................................................................................................................................................................
18.780.130.0 Signs in the C-G and CBD Further analysis of allowed signs in
zones. General Comment: conjunction with the development of
Allowed signs Downtown design standards is
recommended.
..........................................................................................................................................................................................................................................................................................................................................................................................................................................................
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Code Section 1 Specific Language Consistency with Improvement Plan
18.795.030 Visual Clearance This exception is likely applicable to the
Requirements. Except in the Main Street area and potentially other areas
CBD zoning district a visual of Downtown. However, the City should
clearance area shall be revisit this provision to determine its
maintained on the corners applicability and the benefits of providing
of all property adjacent to the exception only in certain districts of
the intersection of two Downtown(e.g. Main Street,residential
streets, a street and a areas near the regional retail and the office
railroad, or a driveway district along the commuter rail) and not in
providing access to a public others (e.g. the regional retail center,the
or private street. "Heart" and the civic district where
emergency service vehicles are stationed.
3.4 Design Standards
The City currently defines design guidelines for Downtown within the Interim requirements
in the CBD zone in Section 18.520.060.B. All of the objectives presented here are consistent
with the goals of the Preferred Design Alternative including guidance for building
orientation, provision of pedestrian facilities, limiting automobile support services and
avoiding the creation of small scattered parking areas for development within '/4 mile of a
public transit line or stop. Facilitation of pedestrian and bicycle circulation is provided for
sites along streets designated with bike paths or that are adjacent to a designated greenway,
open space, or park area. Considerations include lighting, windows at street level, bicycle
parking, and protection from auto/truck circulation areas. Currently these guidelines only
apply to a limited number of sites. It may be beneficial to apply some of these guidelines, or
similar guidelines, to all properties within Downtown to increase pedestrian and bicycle
access and improve the experience of using these transportation modes Downtown.
Other guidelines in this section address the need for coordination of development within
Downtown and require that consideration be given to continuity and/or compatibility of
development while they also encourage flexibility to share access and landscaping where this
approach would be beneficial. Siting and orientation of land uses is also considered under
coordination of development, and currently this section requires the development to consider
the `adopted plan'. If this regulation were to remain in the new design guidelines for
Downtown further direction as to land use orientation may need to be developed to
accompany the Preferred Design Alternative. Currently orientation is suggested by the
organizing principles of the Green Corridor/Urban Creek, the Heart at Fanno Creek and Main
Street. This section in the current code also requires screening of industrial and commercial
areas from the view of residential uses. With the Preferred Design Alternative many areas
are intended to provide mixed uses to include both residential and commercial. Some
screening is appropriate and beneficial between residential uses and commercial uses,
however further consideration should be given to the extent of screening required in the
design guidelines and differentiation between requirements for residential uses within the
newly proposed zones should be developed.
3.5 Regional Government Requirements and Guidance
The Tigard community has focused on the growth and development of Downtown Tigard for
years. However, as a designated Town Center in Metro's 2040 Growth Concept Plan, Tigard
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is obligated to create a land use and transportation plan consistent with Metro guidelines for
Town Centers. The following sections address Tigard's regional policy compliance.
3.5.1 Metro's 2040 Growth Concept and Framework Plan
The Metro 2040 Growth Concept defines regional growth and development in the Portland
metropolitan region. The growth concept was adopted in the Region 2040 planning and
public involvement process in December 1995. Metro's 2040 Growth Concept Plan provides
guidance with respect to how Town Centers should function. The 2040 Growth Concept
identifies centers as compact,mixed-use neighborhoods of high-density housing,employment
and retail that are pedestrian-oriented and well served by public transportation and roads.
Metro's projected density for Downtown Town Centers in the 2040 Growth Concept is 40
average persons per acre. Town Centers are described as the central focus of community life
and should serve residents living within two or three miles. Some key objectives for
developing Metro designated 2040 Centers include:
■ Promoting more intensive mixed-use development.
■ Providing infrastructure to support more intensive development.
■ Creating effective local and regional transportation connections to and within
the center for all travel modes.
■ Providing public spaces and distinct center identification.
■ Recognizing the natural environment as a desired amenity.
Specific guidance provided in the 2040 Growth Concept for land use within Centers includes:
■ Permitting multiple uses on one property.
■ Discouraging and limiting parking within the Center.
■ Limiting the number of auto-dependent uses.
■ Prohibiting storage as a primary use.
■ Providing bicycle parking at major destinations.
■ Minimizing impervious paved areas for new streets and parking areas.
Metro has determined that Tigard is in compliance with Functional Plan requirements.The
Improvement Plan represents a continued commitment by Tigard toward achieving Town
Center objectives.
3.5.2 Town Centers
Metro's Urban Growth Management Functional Plan (Functional Plan), which is included in
Metro's Code as Chapter 3.07, implements Metro's 2040 Growth Concept Plan. Title 6 of
the Functional Plan affects areas designated as Central City, Regional Centers, Town Centers
and Station Communities, and is intended to enhance these centers by encouraging
development that will improve the critical roles centers play throughout the region and
discouraging development that will detract from the function of the centers.
Town Centers are smaller than regional centers (e.g., Washington Square), and are
characterized by local shopping and employment opportunities within a local market area.
They are connected to regional centers by roads and transit. Each city with a Center needs to
have an enhancement strategy by Dec. 31, 2007, per Title 6/3.07.610 of the Functional Plan.
The following elements are required for a strategy to be accepted:
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1. An analysis of physical and regulatory barriers to development and a
program of actions to eliminate or reduce them.
2. An accelerated review process for preferred types of development.
3. An analysis of incentives to encourage development and a program to
adopt incentives that are available and appropriate for each Center.
4. A schedule for implementation of Title 4 of the Urban Growth
Management Functional Plan.
5. An analysis of the need to identify one or more Neighborhood Centers
within or in close proximity to Inner and Outer Neighborhoods to serve as a
convenient location of neighborhood commercial services, as authorized by
Title 12, Section 3.07.1230 of the Urban Growth Management Functional
Plan.
6. A work plan,including a schedule,to carry out the strategy.
Title 6 allows cities that have adopted a strategy in compliance with Section 3.07.620 for a
Town Center or other type of center to be eligible for designation of state highways within
that center as a Special Transportation Area under Policy 1B of the 1999 Oregon Highway
Plan.
Title 6 further provides that cities should strive to locate government offices within a
designated center and to the extent possible, should prevent the location of government
offices outside of the center. The City of Tigard's City Hall and other administrative offices
are presently located within the Downtown Tigard area, near the intersection of the Fanno
Creek and Hall Boulevard. The public library is just outside the plan area and is very close to
City Hall. The Tigard Downtown Improvement Plan will fulfill the Title 6 requirement for
the Tigard Town Center with improvement strategies and a specific implementation program.
The Improvement Plan represents the work plan and schedule for carrying out the
requirements of Title 6.
4. RECOMMENDATIONS
4.1 Comprehensive Plan
To be consistent with the vision of the Improvement Plan, the City of Tigard needs to make
some relatively small adjustments to policy statements and implementation strategies within
the Comprehensive Plan. Table 3 summarizes the recommended changes:
Table 3 Comprehensive Plan Review
Section I Policy I Recommendations
Economy 5.3 No change required.
Economy 5.4 This policy should declare that residential development within the
TC zones is encouraged. Multiple housing types are to be provided
within the TC zones that will accommodate the needs of several
different housing markets. More housing and a variety of housing
types Downtown will help create a vibrant and economically sound
city core.
................................................................................:......................................... ....................................................................................................................................................................................................................................................................................................
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Section I Policy I Recommendations
Economy New New policies or implementation strategies in the Economy section
should recognize that change in the Downtown will occur
gradually and that when possible,flexibility can be employed to
foster the development of the catalyst projects.
......................................................................................................................;................................................................................................................................................................................................................................................................................................................................
Economy New The City should change statements regarding a general economic
development program to recognize the consultant and Task Force
recommendation that urban renewal be used as a funding
mechanism.
..............................................................................._......................................._................................................................................................................................................................................................................................................................................................................................
Special Areas 11.1.1 : Should be rewritten to include the multi-functional goals of
Downtown;retail shopping,housing,recreation,civic services,
employment, and transit are all important to the success of
Downtown. Primary focus should be on the vision statement and
guiding principles developed by the Task Force in the
Improvement Plan planning process.
..............................................................................._......................................._................................................................................................................................................................................................................................................................................................................................
Special Areas New Although the vision and guiding principles include historical
preservation as a goal,it may be beneficial to include a specific
policy stating the preference for retaining the character historically
present on Main Street.
................................................................................:........................................................................................................................................................................................................................................................................................................................................................................
It is also recommended that the Comprehensive Plan be amended to include the Tigard
Downtown Improvement Plan as an element of the Comprehensive Plan.
4.2 Community Development Code
Given the desired characteristics for an improved Downtown Tigard described above and the
analysis of the current CBD zoning in the Community Development Code, it is recommended
that four new Town Center base zones and two new Town Center overlay zones be created
for Downtown. The recommended zones designed to guide uses as arranged on the Preferred
Design Alternative, are shown on the Zoning Map in Appendix C.
The analysis of the existing regulatory framework for Downtown revealed that there are not
many regulatory barriers to developing Downtown as it is envisioned in the Improvement
Plan. However, there is also a lack of specific direction and requirements strong enough to
guide development into what is desired. In other words, the existing code would continue to
allow developments that are not conducive to creating a vibrant, urban village with organized
mixed uses to taking the best advantage of the setting and surroundings.
Several options exist for creating guidance in a regulatory environment: incentives, a mix of
incentives and regulations, and only regulations. The vision for Downtown Tigard is strong
and requires a lot of change over time to achieve. Relying heavily on incentives is not likely
to create results. Tigard needs to rely more on regulatory structure to shape development
Downtown than on an incentive structure, and it is for this reason that the four new base
zones and two new overlay zones are proposed. This is not to say that incentives should not
be used. In fact, throughout the Community Development Code recommendations, the future
development of incentives is recommended to achieve some of the `greener' characteristics.
The City of Tigard already has several mixed-use zones that are specifically tailored to meet
the needs of other areas of the city. While built upon these existing mixed-use zones, area-
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specific purpose statements and alterations to the development standards are provided for the
recommended zones.
o TC-CBD: Town Center—Central Business District
• Model Zone: current CBD zoning
■ Purpose Statement: The TC-CBD zoning district is designed to provide a
concentrated central business district, centered on the City's historic
downtown Main Street and providing a mix of uses including retail, office,
service, and civic. Utilities and transit-related park-and-ride lots are allowed.
A wide range of uses, including but not limited to, facilities with drive-up
windows, medical centers, and major event entertainment are permitted
conditionally. Multi-family residential housing should be considered as a
conditional use above first floor commercial uses and should comply with the
R-40 (or similar)zoning district standards and density requirements.
■ Uses: In contrast to the existing CBD zone, the TC-CBD zone would prohibit
single-family residential and adult entertainment uses, and would allow
medium-high density residential, office, civic/public, indoor entertainment,
etc. as fits the desired character of Main Street. Residential uses should be
prohibited adjacent to the commuter rail line.
■ Development Standards: With the exception of building heights, the existing
development standards in Table 18.520.2 as applied to the CBD zone are
recommended for the TC-CBD zone. To retain the character of Main Street,
properties fronting on Main Street should have a building height maximum
of 40 feet. This should accommodate the current multi-story buildings and
allow for limited upward expansion for single story buildings and new
development.
o TC-MUC: Town Center—Mixed Use Commercial District
■ Model Zone: MUC—Mixed Use Commercial
■ Purpose Statement: The TC-MUC zoning district is designed to promote
medium to large retail establishments to anchor the economy of Downtown
and create a regional draw to the Downtown. In general, retail uses
supporting sales, eating establishments and some personal services will be
the focus.
■ Uses: Allowed uses will include sales-oriented, personal services retail, and
eating and drinking establishments. Conditional uses will include repair-
oriented retail, bulk sales, office uses, and other commercial uses. Multi-
family residential housing should be allowed as a conditional use above first
floor commercial uses and should comply with the R-40 zoning district
standards and density requirements.
■ Development Standards: With the exception of building heights, the existing
development standards in Table 18.520.2 as applied to the MUC zone are
recommended for the TC-MUC zone. To accommodate the taller single
story warehouse-like structures of medium-box retail anticipated in this area,
this zone should have a maximum building height of 40-50 feet.
o TC-MUE:Town Center—Mixed Use Employment
■ Model Zone: MUE-2
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■ Purpose Statement: The TC-MUE zoning district is intended to provide an
employment base comprised of civic and office uses, while also providing
medium to high density multi-family housing appropriate to the character of
the area and meeting the density requirements of the R25 zoning district.
Commercial and retail support uses are allowed but are limited.
■ Uses: This zoning district allows a wide range of uses including
business/professional offices, civic uses, multi-family housing, and retail
good and services. Light industrial is a conditional use as are community
recreation facilities, religious institutions and utilities. Residential uses
should be prohibited adjacent to the commuter rail line.
■ Development Standards: Existing development standards in Table 18.520.2
as applied to the MUE-2 zone are recommended for the TC-MUE zone.
o TC-MUR: Town Center—Mixed Use Residential
■ Model Zone:MUR districts
■ Purpose Statement: The TC-MUR zoning district has two levels of intensity,
TC-MUR-1 and TC-MUR-2 that are both intended to provide predominately
residential areas where compatible mixed-uses are allowed.
■ Uses: TC-MUR-1 allows for high density, medium-rise residential with a
minimum residential density of 50 units per acre. Supporting service retail is
an allowed use. TC-MUR-2 allows for medium density apartment, town
home and condominium uses with a maximum of 50 units per acre.
Supporting service retail is an allowed use.
■ Development Standards: Existing development standards in Table 18.520.2
as applied to the MUR-1 and MUR-2 zones are recommended for the TC-
MUR-1 and TC-MUR-2 zones,respectively.
o Green Corridor/Urban Creek Overlay—
■ Model Zone: None
■ Purpose Statement: The Green Corridor/Urban Creek Overlay Zone provides
a mechanism to guide development such that the future development of the
Green Corridor/Urban Creek is not precluded. The overlay zone designates
the area of Downtown within which proposed development plans must be
reviewed especially to determine whether proposals meet the intent of the
Improvement Plan to provide a Green Corridor/Urban Creek.
■ Guidelines: The recommended regulatory mechanism is to require that all
proposed development be reviewed through the conditional use permit
process to include significant collaboration between city staff and the
development applicant. The purpose of the collaboration is to jointly reach
the best site design that accommodates both the future use of the corridor and
the needs of the applicant. Because dimensions and other necessary
characteristics of the corridor are yet to be developed, specific approval
criteria to be applied to proposed development in this overlay zone will be
developed after, or as part of, the Green Corridor/Urban Creek feasibility
study. These will create a secondary, more specific mechanism to ensure
development is appropriate for the intended use of the area.
August 2005 1273-2395-041 13
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City of Tigard
■ Uses: The overlay zone does not affect allowed uses established in the base
zone.
■ Development Standards: Because the location, dimensions, and details of
the Green Corridor/Urban Creek are yet to be determined, the overlay zone
does not affect development standards established in the base zone.
However, it may be beneficial to offer some extent of flexibility with
development standards if doing so would make it possible for a proposed
development to both comply with development standards and provide the
best site design to accommodate the future corridor.
o Fanno Creek Open Space Overlay—
■ Model Zone: None
■ Purpose Statement: The Fanno Creek Open Space Overlay Zone provides a
designation of the area within Downtown on the north bank of Fanno Creek
that is envisioned in the Improvement Plan to be developed into a passive
recreation open space area. This overlay zone establishes the intended type
and intensity of use for sites within the overlay zone area. The overlay zone
does not amend the development restrictions found in Chapter 18.775
Sensitive Lands that would apply to much of the land within the overlay.
■ Uses: The overlay zone amends the allowed uses of the base zone to only
include passive recreation and entertainment/public gatherings such as
wildlife observation, walking and biking (on designated pathways), and
picnicking, and smaller special entertainment events and public gatherings.
■ Development Standards: Within the overlay zone, development standards
are amended to include performance-based standards to protect water quality,
native vegetation and diversity of vegetation, and habitat for fish and
wildlife, and to provide sensitive construction practices.
o The Special Development Standards in Chapters 18.700 — 18.798 were evaluated for
this analysis and the findings are presented above in Section 3.3.2. Here, the specific
recommendations are summarized.
■ Pervious paving treatments, such as grass-crete should be added to all special
development standards that required hard-surface paving. This should only
be done after investigation of safety standards.
■ Vegetated stormwater treatment swales should be allowed to count towards
landscaped area requirements.
■ The expansion of options for joint parking facilities should be considered to
potentially allow uses that do have some overlap in peak parking times to
share parking.
■ Sign standards for Downtown should be reviewed for cost and aesthetic
considerations and should potentially be amended.
■ The CBD is currently exempt from visual clearance requirements. With the
creation of new base zones for Downtown, this exception should be revisited
as it may only be appropriate for certain areas of Downtown (i.e. Main
Street,residential areas,and the office district along the commuter rail line).
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4.3 Design Standards
As discussed in Section 3.4 above, the existing Interim requirements in the CBD zone
currently in the Tigard Community Development Code contain guidelines and objectives that
should be retained for Downtown when the zoning code is amended. Table 4 highlights those
things that may not be appropriate for Downtown and that should be further evaluated:
Table 4 Existing CBD Design Standards
Code Section Subject Recommendations
18.520.060.B.I.a(1 &2) Transit oriented site Currently these guidelines only apply to a
design and limited number of sites. It may be beneficial
pedestrian to apply some of these guidelines, or similar
circulation guidelines,to all properties within Downtown
to increase pedestrian and bicycle access and
improve the experience of using these
transportation modes Downtown.
...................................................................................................................................................................................................................................................................................................................................................................................................................................................................
18.520.060.B.1.a(3)(b) Siting and building If this regulation were to remain in the new
orientation design guidelines for Downtown further
direction as to land use orientation will need
to be developed to accompany the Preferred
Design Alternative. Currently orientation is
suggested by the organizing principles of the
Green Corridor/Urban Creek, the Heart at
Fanno Creek and Main Street.
...................................................................................................................................................................................................................................................................................................................................................................................................................................................................
18.520.060.B.1.a(3) Use screening With the Preferred Design Alternative many
areas are intended to provide mixed uses to
include both residential and commercial.
Some screening is appropriate and beneficial
between residential uses and commercial
uses,however further consideration should be
given to the extent of screening required in
the design guidelines and differentiation
between requirements for residential uses
within the newly proposed zones should be
developed.
The remainder of the interim design guidelines should be retained in some form while
revising the Community Development Code. Tigard has developed design standards for the
Tigard Triangle and Washington Square Regional Center. For the purposes of this Technical
Memorandum, the Washington Square Regional Center Design Standards were evaluated for
form and content and recommendations were developed for using these standards as a model
to create Downtown Tigard design standards. Each major component of the Washington
Square Regional Center Design Standards chapter (18.630) is summarized below and
recommendations are provided for adaptation.
August 2005 1273-2395-041 15
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City of Tigard
It is recommended that the content of the existing interim design standards for the CBD
district and the adapted content and organization of the Washington Square Design Standards,
as provided below, be used in combination to create design standards for Downtown Tigard.
These new design standards would have the opportunity to allow for creation of a theme
consistent with a future streetscape plan and/or consistent with Main Street, if desired.
Creating a theme should provide an impression of unity throughout Downtown.
Purpose and Applicability
This section provides context for the creation of design standards. It acknowledges input and
guidance from the community, addresses connections with regional planning goals,
establishes the desired character of the area of focus, and draws a conclusion that new zoning
districts to implement change are appropriate.
This section also establishes the context and applicability of design principles and
development conformance, and identifies how uses and conflicting standards will be
addressed.
Recommendation
This section should be used as a model for Downtown Tigard design standards, however area
and process specific changes are necessary to be consistent with Downtown Tigard.
Development Standards
This section establishes where applicable development standards are found in the Community
Development Code and provides processes for flexibility with development standards. It also
establishes special density requirements for areas near riparian setbacks.
Recommendation
This section and its components are appropriate for the Downtown Tigard Improvement Plan.
Providing. Downtown Tigard specific language would be necessary.
Pre-Existing Uses and Developments
This section establishes special provisions related to nonconforming structures and uses and
provides flexibility for redeveloping these properties above and beyond the restrictions
provided in chapter 18.760 Nonconforming Situations.
Recommendation
This section provides the needed flexibility described earlier in this memorandum by
allowing a threshold of development for expansion of lawfully established nonconforming
situations. The Land Use Advisory Group will need to determine the appropriate threshold
limit for Downtown Tigard.
Street Connectivity
This section defines standards intended to create and retain a street network that facilitates
movement throughout the district by establishing required minimum distances between public
streets. Flexibility is granted for barriers due to existing rail lines,topography, etc.
Recommendation
A section intended to establish and/or retain street connectivity is necessary for Downtown
Tigard. However, it is recommended that rather than referring to quantitative requirements,
such as minimum distances between public streets, the Downtown Tigard Design Standards
may be more effective by referring to the street and pedestrian connection layout provided in
the Preferred Design Alternative Map (Appendix A).
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Site Design Standards
This element contains several subsections that must be considered separately.
Building placement
This section focuses on the percentage of street frontages occupied by buildings and the
location of buildings at intersections. For minor and major arterial streets, it establishes a
minimum percentage requirement and requires that when a property is located at an
intersection,the building must be located at the intersection.
Recommendation
For Downtown Tigard, it is likely more appropriate to provide specific minimums within
each new zoning district. The Land Use Advisory Group will need to evaluate and determine
the exact requirements, but in concept, Table 5, below, provides potentially appropriate
examples:
Table 5 Building Placement Examples
Zone Example Minimum Required Building Frontage
TC-CBD 50% -70% to provide compact Downtown character
........................................................................................................................................................................................................................................................................................................................................................................................................................................
TC-MUC40% -50% to allow for parking required for retail
...............................................................................:........................................................................................................................................................................................................................................................................................................................................................
TC-MUE 20% -40% to allow for civic use and parking needs
........................................................................................................................................................................................................................................................................................................................................................................................................................................
TC-MUR 20% -40% to allow for smaller building facades in residential districts
Building setback&front yard setback design
These sections establish what section of the code defines the building setbacks and provides
design requirements for landscaping or hard-surface treatments within setbacks greater than
zero feet.
Recommendation
These sections should be included in any new design standards for Downtown and should be
augmented to encourage the use of pervious pavers and native plants. It is also recommended
that placing vegetated stormwater treatment swales within the setback be allowed.
Walkway Connection to building entrances
This section requires that pedestrian connections between building entrances and the street be
provided to enhance the pedestrian environment and facilitate pedestrian transportation
within the district.
Recommendation
This section should be included in design standards for Downtown with the addition of
encouragement to use pervious pavers wherever possible.
August 2005 1273-2395-041 17
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Land Use Technical Memorandum
City of Tigard
Parking location and landscape design
This section focuses on locating private parking areas behind or to the side of new buildings
and providing landscape screening of parking areas to enhance the pedestrian streetscape
experience.
Recommendation
This design principle was raised during the development of the Downtown Tigard
Improvement Plan and should be incorporated into any Downtown Tigard design standards.
Building Design Standards
The building design standards provided for Washington Square are nearly identical to those
provided for the Tigard Triangle. They provide standards intended to create interesting
facades, provide `eyes on the street', require the use of higher quality siding materials, and
screen unsightly building components from view.
Recommendation
It appears all of the building design standards are appropriate for Downtown Tigard.
However, it is recommended that the Land Use Advisory Group evaluate the standards to
determine if any more stringent requirements are desired.
Signs
This section incorporates the existing standards for signs into the design standards and
provides a few additional restrictions to guide the creation of aesthetically pleasing signs.
Recommendation
These standards seem appropriate for Downtown Tigard and should be incorporated into any
design standards adopted for Downtown.
Entry Portals (Gateways)
The Tigard Triangle design standards for entry portals were used as a model for this analysis
because the Washington Square standards are as yet undeveloped. This section establishes
gateway locations and provides a basic design statement for what gateways are meant to
accomplish.
Recommendation
The Downtown Tigard design standards should refer to the Preferred Design Alternative to
establish locations for gateways. The Land Use Advisory Group will need to conduct further
analysis in order to provide specific gateway design standards.
Landscaping and Screening
This section incorporates the L-1 and L-2 landscaping standards of Chapter 18.745 and
makes minor additions for use within the area subject to the design standards. It also states
that these are minimum requirements and that higher standards may be substituted.
Recommendation
These standards are reasonable for Downtown and should be included in design standards
created for Downtown. However, in keeping with the expressed desire of the community, a
requirement to use native plants (or some percentage of native plants), wherever practicable,
should be added. A purpose statement should be added to this section identifying why native
plants are beneficial and how their use can be educational and can help create a sense of
community stewardship and connection with Fanno Creek.
18 August 2005 1273-2395-041
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City of Tigard
Street and Accessway Standards
This section refers to the area plan for the functional street classifications and streetscape
layouts.
Recommendation
For Downtown Tigard, this section can refer to the Future Transportation System Technical
Memorandum incorporated as part of the Tigard Downtown Improvement Plan for a
description of functional street classifications and streetscape layout options.
Design Evaluation
For Washington Square, this section refers back to the design evaluation process established
for the Tigard Triangle, so the Tigard Triangle process is evaluated here. In summary, the
design evaluation section allows for an applicant to either demonstrate compliance with all of
the applicable design standards and go through the typical review process with the City, or to
ask for modifications to design standards and be reviewed by the Design Evaluation Team
(DET). The DET is comprised of three architectural and engineering professionals contracted
with the City to evaluate design standard modification requests. A different process and fee
apply to DET review.
Recommendation
The established process used for Washington Square and the Tigard Triangle is appropriate
for Downtown Tigard because it makes use of an existing process for efficiency and allows
for flexibility in the application of design standards.
J. MEASURE 37
The recent passage of Measure 37, requiring waivers of regulations or compensation to
property owners if regulations have the effect of reducing a property's value, presents a
challenge to every Oregon jurisdiction, as communities are still determining how to address
it. Accordingly, the potential "Measure 37 impacts" of the Improvement Plan have yet to be
addressed. It is recommended that this issue be addressed by the City in consultation with the
state, Metro, and other local jurisdictions as soon as possible. Once Measure 37 issues are
addressed, the Improvement Plan may need to be revisited if adjustments appear to be
required.
G. SUMMARY AND PREFERRED TIMING
6.1.1 Preferred Timing
Several steps are needed in order to incorporate the recommended changes into the
Comprehensive Plan and Community Development Code. These general steps are identified
below and a recommended time frame is provided.
August 2005 1273-2395-041 19
Tigard Downtown Improvement Plan
Land Use Technical Memorandum
City of Tigard
Table 6 Implementation Timing
Action Year I Year 2 Year 3
Refine and Adopt Overlay Zones ✓
...............................................................................................................................................................................................................................................................................................................:.............................................:...........................................................................................
Measure 37 Analysis of Zoning Recommendation ✓
...............................................................................................................................................................................................................................................................................................................:.........................................................................................................................................
Refine Comprehensive Plan Policies ✓
...............................................................................................................................................................................................................................................................................................................:.........................................................................................................................................
Adopt refined Comprehensive Plan Policies ✓
........................................................................................................................................................................................................................................................................................................................................................................................................._.............................................
Refine Base Zones, Design Standards, and Development ✓ ✓
Standards
......................................................................................................................................................................................................................................................................................................................................................................................................................................................
Adopt Base Zones, Design Standards, and Development ✓
Standards
The overlay zones, especially the Green Corridor/Urban Creek overlay zone, need to be in
place as soon as possible to provide protection of the land to be used for the urban creek from
future development. Concurrent with the adoption of the overlay zones, the City will need to
conduct a Measure 37 analysis of the recommended zoning for Downtown Tigard. Following
these actions, adjustments to Comprehensive Plan should be refined and adopted to set the
framework to guide the future refinement and adoption of the changes to the Community
Development Code.
6.1.2 Summary
This memorandum provides analysis and concept level recommendations for adjusting the
existing regulatory framework to facilitate development of Downtown Tigard as
recommended in the Improvement Plan. In general it was found that no insurmountable
barriers to the Downtown Improvement Plan are present, and existing zoning districts can be
used as models with modifications to accommodate the unique character planned for
Downtown. It was also found that more specific guidance for uses and development
standards is needed in order to ensure that Downtown develops according to the Downtown
Improvement Plan. Recommendations are provided for new base zones, overlay zones, and
design standards, minor adjustments to the Comprehensive Plan, and relatively minor
adjustments to the existing specific development standards.
20 August 2005 1273-2395-041
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JOHNSON
G A R D N E R
DATE: June 14, 2005
TO: Dave Siegel
PARAMETRIX
Barbara Shields
CITY OF TIGARD
FROM: JOHNSON GARDNER,LLC
RE: Funding Strategy for the Downtown Improvement Plan
MEMORANDUM
I. INTRODUCTION
The City of Tigard's Downtown Improvement Plan envisions a revitalized downtown core,with a
mix of uses and improvements in the study area that are unlikely to be realized without some
level of public intervention. A mix of catalytic and branding projects have been identified as
desirable as part of the planning effort. The purpose of this memorandum is to identify
incentives, initiatives, and investments that can help the City realize these projects. This
memorandum provides a general description of potential tools available to assist in
implementation of the plan. It also provides specific recommendations with respect to appropriate
funding sources for the eight identified catalyst projects.
The funding strategy is based upon information presented in the existing conditions report
prepared earlier in this analysis, and is primarily focused on the identified catalyst projects. The
term "catalyst project" is used within this analysis to refer to projects having the ability to
substantively alter the development environment in the study area. These projects represent key
components of the overall plan, and their development would be expected to serve as a catalyst
for development in the study area consistent with that outlined in the plan. In addition to the
catalyst projects, a series of downtown improvements were also identified as part of this project,
referred to as "Brand Tigard" projects. These are seen as being important to generating and
maintaining public interest and momentum in the area and are supportive of the catalyst projects,
with many of the Brand Tigard projects incorporated into the catalyst projects.
The development of both the catalyst and Brand Tigard projects was done through the Downtown
Task Force. Three working groups were formed as part of this evaluation, which were used to:
❑ Help us identify the types of catalyst projects that might stimulate investment and
that were appropriate and pertinent to Tigard... uniquely Tigard;
520 SW SIXTH AVENUE,SUITE 914 PORTLAND,OR 97204 503/295-7832 503/295-1107(FAX)
❑ Help us identify the types of smaller projects that might help generate and
maintain interest in downtown; and
❑ Discuss potential funding sources with an eye toward suitability for application
in Tigard.
This memorandum reflects the work of the consultant team and Downtown Task Force to identify
a series of projects and improvements to stimulate development activity and to generate and
maintain momentum over time in the study area. The catalyst projects are ordered in a sequence
that the consultant team felt was appropriate. The memorandum recommends methods of
financing at a broad level for the catalyst projects. Some of these are readily available to the City,
while others would require actions on the City's part to implement. The following is a brief
summary of financing mechanisms discussed:
City Funding Dedicated Staff Time
General Fund
Gas Taxes
Water Quality/Quantity Fund
Parks Capital Fund
Grants Metro Transit Oriented Development Grants
System Development Charges (SDCs) SDC credits
Pro e Tax Abatements Vertical Housing Abatement
Urban Renewal Tax Increment Financing(TIF)
Improvement Business Improvement District(BID)
Districts Local Improvement District(LID)
Economic Improvement District(EID)
II. RECOMMENDED IMPROVEMENTS AND COSTS
A total of eight major catalyst projects were identified as part of the Downtown Improvement
Plan. The smaller, Brand Tigard projects identified by the Task Force are supportive of the
catalyst projects, and have largely been grouped with them. This section summarizes these
projects, and discusses implementation steps necessary and potential funding mechanisms we feel
would be appropriate. The projects are addressed in order of priority or phasing, based on the
consultant team's professional opinion.
1. Streetscape Enhancement Program
The improvement program would include streetscape design and street function improvement for
Burnham, Main, Commercial, and Scoffins, and gateway/portal improvements at Scoffins, Main,
Garden Place, and Tigard Street. Improvement would include:
■ Aesthetic enhancements to streets and the area between the curb and the
building facades.
■ Streetfurniture
■ Lighting
■ Signage
FUNDING STRATEGIES PAGE 2
■ Landscaping
■ Public Art
■ Decorative pavers
Streetscape improvements enhance the public space environment, and can provide a cohesive
theme and sense of place identifying the district. Increasing the attractiveness of the public
spaces has a positive impact on local properties, and can encourage cross shopping and more
extended stays in the district.
Implementing this item is relatively straightforward, with funding provided by the City or by a
targeted improvement district. The City's current Capital Improvement Plan (CIP) includes a
number of targeted improvements, with additional improvements most appropriately provided
through future CIPS, locally-applied System Development Charges (SDCs) and improvement
districts.
Cost Factor Public Private Funding
Streetscape Enhancements: ✓ ✓ City(general fund,gas taxes),
•Finishing materials Local Improvement District,
•Landscaping approach Business Improvement District,
•Signalization System Development Charges,
•Signage Tax Increment
Financing
Storefront Improvement ✓ ✓ City(general fund),Tax
Program I Increment Financing
This effort could be bolstered by a storefront improvement program,providing matching funds or
design assistance to property owners wanting to upgrade their storefronts. In addition, there has
been a consistently expressed desire to accommodate the Farmer's Market in the area, and this
project would include this effort.
2. Green Corridor/Urban Creek
The Urban Creek is the supporting structure that connects the two anchors of Fanno Creek and
the Regional Retail Area at Hall and 99W. It is comprised of a natural appearing creek,pedestrian
walkways, service road, and landscaping. The Urban Creek is integrated with new and existing
development, providing an alternative "front door" to redeveloped properties along its length.
Depending upon final design, it could serve as a public amenity, stormwater
conveyance/treatment method, and development stimulant while connecting Downtown areas.
The envisioned project may be comprised of a natural-appearing creek or linked water features,
depending upon the outcome of a more detailed feasibility study.
This project would have an organizing impact on the study area, defining a clear east-west
pedestrian link and providing an amenity that future development can capitalize upon. We would
anticipate that future projects bordering the green corridor would orient activities to take
advantage of the amenity value. In addition, the project helps to establish a unique identity for
Downtown Tigard.
Implementing this catalyst project will require a more detailed feasibility study, establishing a
preferred location, preliminary engineering and a detailed phasing/financing plan. The following
matrix outlines the likely funding sources for portions of the implementation:
FUNDING STRATEGIES PAGE 3
Public Private Funding
Feasibility Study ✓ Grants,Government
partnerships,City(General
Fund),Sewer/Water Funds,
Improvement District,Tax
Increment Financing
Acquisition ✓ Same
Rail and street crossings ✓ Same
Public Art ✓ Same
Interpretive features ✓ Same
Stormwater conveyance ✓ Same
3. Hall Blvd. Regional Retail
This key gateway with its prominent visibility from Hwy 99W will be developed with regional
mid-sized retail with parking and a public plaza space. The purpose will be to pull people into
Downtown and start to draw them further to Main, the Green Corridor, the "Heart", etc. and to
jumpstart development in the area. Planned intersection improvements at Hall Boulevard and
Highway 99W will require public acquisition of some key properties, and may provide an
opportunity to offset some of the costs of this project.
The project will require a complex assemblage of parcels. Identified actions necessary to
implement the catalyst project are as follows:
■ Contact Property Owners to Ascertain Interest/Issues
■ Feasibility Study/Programming
■ Pursue or Facilitate Assembly of Parcels
■ Solicit Developer Interest
■ Potential condemnation if necessary
■ Brand Tigard Projects: The design and development of gateways and a landmark
icon on Main Street to attract attention to the area
This project would offer a number of benefits for the study area. It would create a strong entry
statement for the district from Highway 99W and Hall. In addition,the project could be designed
with linkages to the remainder of the study area, generating activity and adding amenities that
would be valuable to future development activity in the study area.
Implementation would require the following:
■ Determination of ownership of the parcels in question;
■ Preparing a feasibility study regarding viability as well as most appropriate
approach for the City to take;
■ Gaining control of the parcels, either by the City or a developer;
■ Solicitation of developers; and
■ Negotiation of a public/private partnership if needed
We expect that facilitating this development may require assembly of the parcels, a task requiring
a considerable financial commitment. The following matrix outlines recommended funding
sources for implementation.
FUNDING STRATEGIES PAGE 4
Public Private Funding
Contact Property Owners ✓ City(Staff Time or funding
for consultant)
Feasibility Study ✓ City(Staff Time or funding
for consultant)
Assemble Parcels ✓ Tax Increment Financing
Facilitate Assembly ✓ ✓ Staff Time
Developer
Potential for City participation ✓ City(Staff Time),Tax
in public improvements with Increment Financing
private developers
Solicit Developer ✓ City Staff,Tax Increment
Financing
Development 1(5%) ✓(95%) Staff Time,private funds,
Tax Increment Financing
Urban renewal funds can be used to offset City staff time directly related to the qualified
activities in the district.
4. Downtown Housing Development
The plan anticipates creating more housing of various types in several locations in Downtown.
The intent is to bring more people into Downtown as their home, which will activate the
Downtown throughout the day and create demand for more services. Implementation steps
identified include the following:
■ Develop Housing Program/Determine tools to be made available
■ Adopt policy and guidelines to encourage residential development
■ Research and develop funding sources
■ Brand Tigard projects that help create an amenity for downtown housing, such
as the creek clean up and the linear park along the railway
Housing development in the downtown will provide a number of benefits, including increased
support for local services such as retail. In addition, residential development can provide a
greater number of "eyes on the street", increasing the perception of security in the district.
Residential development in the area is also supportive of transit, and can capitalize on the planned
commuter rail line.
Implementation will require adoption of a series of housing policies for the district, as well as
coordination of tools available to encourage the development of desired housing types. The City
will need to develop policy guidelines, as well as to allocate adequate staff time to pursue housing
opportunities in the study area. A key component of developing a housing program is developing
a Housing Strategy. This type of analysis identifies local housing issues, identifies tools available
to encourage or direct housing development in the area, and develops a series of policies to guide
public involvement in future housing projects.
Initial steps are expected to be largely funded through the City, with various types of assistance
offered to incent new residential development in the area.
FUNDING STRATEGIES PAGE 5
Cost Factors Public Private Funding
Develop Program ✓ City
Staff the Program ✓ City
Policy Guidelines ✓ City
Solicit/Evaluate Projects ✓ City
Develop Projects ✓ Abatements, System
Development Charges,
Waivers,Tax Increment
Financing(Urban Renewal),
Private funds
It should be noted that housing programs often take years to realize a development, but it is
important that policy guidelines are established early to determine if projects are consistent with
goals and to determine the appropriate incentives.
5. Ash Avenue Downtown Improvement
This project provides for street and public space improvements to Ash Avenue between the
planned Park and Ride and the Fanno Creek floodplain. Improvements will include a new bike
and pedestrian bridge, an overlook area for Fanno Creek and the extension of Ash from Burnham
to the Park and Ride. The City has committed funds for design, right of way acquisition, and
roadway improvements to Burnham(see Table 3,page 13).
Improved linkages between the Fanno Creek open space and downtown Tigard have consistently
been cited as desirable by the Downtown Task Force, and represent a key component of the plan.
These improvements have positive impacts similar to those outlined in the streetscape
enhancement program, with this project also directly targeting an important linkage between the
floodplain and the commuter rail Park and Ride.
As with the streetscape enhancement program,implementation of this project is relatively straight
forward. The project needs to be designed, the right of way acquired and improvements funded.
The primary funding mechanism for this work is expected to be direct City funding through the
annual Capital Improvement Program(CIP).
Cost Factors Public Private Funding
Design/Engineering ✓ City(CIP)
Right of Way Acquisition ✓ City(CIP)
Construct Improvements ✓ City(CIP)/Transit Oriented
Development Grants,Tax
Increment Financing
FUNDING STRATEGIES PAGE 6
6. Fanno Creek Public Area
The plan envisions creating a community amenity that acts as a gathering spot while respecting
the natural environmental character and needs of the Fanno Creek area. The City has a number of
current commitments in the area, including:
■ City of Tigard's Fanno Creek Park Enhancement Plan restoration projects
planned through 2007—primarily vegetation management
■ Design,ROW acquisition, and roadway improvements to Burnham
■ Land Acquisition for Fanno Creek Public Area(Area#2—Downtown
Revitalization) (Proposed 05-06)
The Fanno Creek area has consistently been identified as a key amenity in the district, with
considerable emphasis in the plan dedicated to increasing linkages to Fanno Creek from the
remainder of the study area. Creating an attractive public area adjacent to the natural
environment surrounding the creek will work towards further capitalizing on this amenity, for
both the district as well as the City of Tigard.
Implementing this catalyst project will require preparing a series of plans and assessments,
providing programming input for the space, environmental assessment and design work. Funding
is expected to largely be derived from the City as well as through bonds and private donations.
Cost Factors Public Private Funding
Environmental Studies ✓ City(General Fund),Tax
Increment Financing
Program Needs Assessment ✓ ✓ City(General
Fund)/Patrons,Tax
Increment Financing
Develop Program ✓ ✓ City(General
Fund)/Patrons,Tax
Increment Financing
Run Bond Measure Campaign ✓ ✓ City(General
Fund)/Private Backers,
Tax Increment Financing
Acquire/Construct ✓ ✓ Bond/Private
Donations/Metro Open
Space Grant,Tax
Increment Financing
7. Performing Arts and Community Recreation Center
Development of a Performing Arts and Community Recreation Center is seen as an opportunity
to create a community gathering place for the arts and activities in the "Heart" of Downtown that
links visually and physically with the Fanno Creek Public Area across Burnham Street. The
purpose would be to bring day-round activity to the Downtown"Heart" and provide a community
gathering space while stimulating patronage of complimentary uses (e.g. restaurants, coffee
shops, etc.)
FUNDING STRATEGIES PAGE 7
A number of actions would be necessary to realize this project, including the following:
■ Survey needs of public for facility
■ Develop program guidelines for facility
■ Run bond measure campaign
■ Brand Tigard Projects: Creek clean up to provide space for smaller outdoor
performances to gain interest and momentum, or a landmark icon on Main could
draw attention to this area
Development of this Center would provide a strong activity generator,both during the day as well
as evenings. Activity associated with the Center would provide support to local restaurants and
retailers, as well as providing an amenity to residents. In addition, activity associated with the
Center would raise awareness of downtown Tigard and the opportunities available there to shop,
live and work.
Funding for this type of project is typically done through a combination of City funding, bond
issuance and private donations. Implementation often takes a number of years, and involves
developing a program, preliminary designs and then running a bond measure campaign for the
facility. A parallel process is typically undertaken on the private side to raise funds from private
and corporate donations.
Cost Factors Public Private Funding
Public Survey ✓ ✓ City(general
fund)/Patrons/Tax
Increment Financing
Develop Program ✓ ✓ City(general
fund)/Patrons/Tax
Increment Financing
Preliminary Design ✓ ✓ City(general fund)/Private
Backers/Tax Increment
Financing
Run Bond Measure Campaign ✓ ✓ City(general fund)/Private
Backers/Tax Increment
Financing
Acquire/Construct ✓ ✓ Bond/Private
Donations/Tax Increment
Financing
8. Relocating Post Office
The plan calls for shifting the Post Office location from Main Street to the border between the
"Heart" and the Civic District. The purpose would be to soften the transition between the"Heart'
and the Civic District while freeing up valuable retail space along Main Street. The current Post
Office location is owned by the USPS, and the agency would need to approve any suggested
change of location.
The primary motivation for relocating the Post Office is that the current facility is not seen as
being supportive of desired activity on Main Street. While the post office draws regionally and
can generate a substantial level of traffic, this activity is not typically seen as linking with other
desired commercial activities on Main Street. The consultant team and Task Force feels that
relocating the facility to a location with better access and that is less disruptive to Main Street
would encourage development patterns consistent with those outlined in the plan.
FUNDING STRATEGIES PAGE 8
Implementation will require approaching the Postal Service to initiate an internal evaluation of
the proposed relocation, and associated costs. The City may need to contribute towards the
relocation costs if the Postal Service does not find that the relocation is cost effective or
operationally beneficial.
Cost Factors Public Private Funding
Approach Postal Service&build ✓ Staff Time
partnership
Determine Program ✓ Postal Service/City
(General Fund)
Acquire/Construct ✓ Postal Service/City
(General Fund)/Tax
Increment Financing
Main Street site programming, ✓ Private Funds/Tax
planning,engineering,construction Increment Financin
Estimated Cost of Catalystjects
The series of eight catalyst projects will require a substantial amount of investment to be realized.
At this time, it is extremely difficult to ascertain reliable costs for the projects, as detailed
engineering and costing has not been completed. In addition, a number of involve public-private
partnerships, and little detail is available regarding the specific projects.
Most of the initial funding needs for the catalyst projects are associated with design and
engineering studies. The following is a brief summary of funding needs by general timeframe:
FUNDING STRATEGIES PAGE 9
SUMMARY OF CATALYST PROJECTS AND PLANNING LEVEL FUNDING REQUIREMENTS
General Timing
Description 1-2 Years 3-5 yem 5+yean Comments
Streetscape Enhancement Program $500,000 annually[l] $300,000 annually $200,000 annually The costs of these improvements will be a function of
final design and scope.This effort could be bolstered
by a storefront improvement grant program,providing
matching funds or design assistance.
Green Corridor/Urban Creek $225,000 for initial design and Funding of right of way Construction of project The final design,route and related acquisition costs are
engineering study acquisition all variables that would need to be known to generate a
reliable cost estimate.
Hall Boulevard Regional Retail $30,000 for dedicated staff Property acquisition,Developer At this point,we do not know the cost of assembly and
time,Feasibility and Design Selection the disposition of relevant property owners. If
Studv$100,000f21 assembly is possible at market rates,then this may not
re uire a substantial public investment.
Downtown Housing Developments Housing policy study— $30,000 in annual staff time to $30,000 in annual staff time to The cost of these projects will be a function of how
$60,000,$30k in annual staff run program,Develompent run program,Develompent many projects and the extent to which the City desires
time to run programf3l Incentives f31 Incentives to vary from the market. Higher densities under
current market conditions will require a greater level of
subsidy,but shifts in pricing may alter that
relationship.
Ash Avenue Downtown Property Acquisition$800,000 Construction of improvements The project has been designed,with acquisition costs
Improvements estimated for right of way improvements.
Fanno Creek Public Area Leverage off of usage program Bond Measure Campaign The costs of these improvements will be a function of
for Performing Arts,Design $50,000[3] final design and scope.Hold off on current City
Plan$100,000 commitments until plan is done.
Performing Arts and Community Feasibility/Usage Program Bond Measure Campaign The final program and siting for this project will
Recreation Center $100,000 $50,000 determine pricing. Public investment will also be a
function of the level of private donations that can be
coeratcd.
Relocating Post Office Initiate proposal to Postal Negotiated Relocation Costs Negotiated Relocation Costs If possible,the cost of this will be negotiated between
Service[41 the USPS and the City.
Total $2,505,000 $1,090,000
P] The nature,extent and quality of streetscape improvements will vary by individual transportation projects,and actual costs cannot be determined until a
specific project is designed.Some of this cost maybe borne by an improvement district or other entity
[2] Depending upon the viability and cost of assembly,this project may require additional funding for development assistance to be realized.
[3] Urban renewal funds can be used for this program. Additional funding maybe necessary if incentives are offered.
[4] The Postal Service may require some level of financial assistance to facilitate the move.
FUNDING STRATEGIES PAGE 10
Within the preceding tables, a substantial level of staff time has been allocated to project
implementation. Another alternative for the City is to utilize consultants for some of this work,
funded either directly by the City or through Urban Renewal(Tax Increment Financing).
The availability of Tax Increment Financing through an Urban Renewal District will be a key
determinant in the timing and viability of many of these catalyst projects. The funding
requirement for some of these projects is substantial, and finding alternative sources of funding at
appropriate levels will be difficult.
III. INCENTIVES TO CATALYST PROJECT
DEVELOPMENT
Framework for evaluatingtools
ools
The Downtown Improvement Plan envisions a series of projects, many of which can be directly
implemented by the City. For these projects, the primary issue is identifying available funding.
The more complicated projects also involve participation of the private development community,
and the City will need to direct to the extent possible private development activity to meet public
sector objectives.
In general, policies to impact development in the study area can be organized into two categories:
incentive-based approaches and regulatory approaches. The incentive-based approaches are
typically voluntary and offer various `carrots' to developers to encourage them to develop
targeted project. Regulatory approaches are not voluntary. The City can require that developers
meet development objectives through mandated policies.
Alternative tools can be evaluated using the following three criteria:
• Effectiveness.How great an effect is the policy likely to have on increasing density,
given the likely range of its application and the existing policy framework in the Metro
region?
• Cost.What will it take to implement the policy?
• Equity.Who is likely to pay that cost?
Incentive-based approaches
Table 1 summarizes the different policy tools government can use to make it easier for developers
to do what elected officials, and the citizens they represent,want.
The table is organized from the least direct to the most direct incentives. The first two allow the
targeted development to occur. The next three provide guidance or information that facilitates
development. The next three provide financial incentives through regulatory relief—not a direct
transfer of funds,but a means of allowing a developer to keep more of its financial resources. The
final five provide direct financial assistance to developers.
FUNDING STRATEGIES PAGE 11
TABLE 1: INCENTIVE BASED APPROACHES
Policy Mechanism; Effect on Density Cost Who Pays
ED Comments
Increased permitted Allows densities at higher These types of approaches Small:requires Taxpayers through
density level than previously only work if density limits change to zoning local government
Density bonus allowed are below what the market code
Development rights determines in the highest
and best use.
transfer
Mixed-Use zoning Allows flexibility to mix Weak:May or may not Small:requires Taxpayers through
uses.This policy can be increase density. change to zoning local government
either an incentive code
("allow")or a regulation
("require")
Policy Mechanism; Effect on Density Cost Who Pays
Comments
Regulatory relief:fee Wide range:reduces Strong:direct effect on the Moderate to high: Taxpayers through
reduction SDCs,building fees, cost of development loss in revenue to local government
exactions,etc. local government
Regulatory relief: Wide range:allows Strong:increases density Small:requires Taxpayers through
design standards narrower streets,less directly and can decrease change to zoning local government
parking,smaller setbacks, developer costs by code
less landscaping increasing revenue-
generating space
Land assembly Acquisition,by voluntary Strong:increases Moderate Taxpayers through
negotiation or eminent marketability of downtown local government
domain,of contiguous for development
parcels to create large community
developable tracts
Subsidy for Direct grants or guaranteed Strong:direct effect on the High:significant Taxpayers through
development/public or low-interest loans for cost of development use of public funds local,state,or federal
investment land,infrastructure, government
parking,etc. Financing tools
Property Tax Abatements include Urban
Renewal(Tax-
Increment Financing)
or non-local funding
sources
Property Tax Ten year property tax Increased net operating Modest;Short term Taxpayers through
Abatements abatement for qualified income or achievable sales loss in property reduced assessed
residential and mixed-use prices,enhancing return taxes can be offset valuation for local
development and allowing for higher by long term gain service providers
density. in value.
Low Income Housing Tax credit program Can improve the viability Low:federally HUD
Tax Credits administered by OHCS of rental housing projects funded
Source:ECONorthwest and Johnson Gardner,Metro Urban Centers:An Evaluation of the Density of Development,
July 2001.
Many of these approaches are not necessarily focused on increasing density, but on encouraging
redevelopment and infill. Redevelopment and infill are important because of the already
developed landscape in downtown. It is possible, however, that new development in downtown
could continue to be at lower densities than the 2040 Center design type describes without
incentive or regulatory-based intervention.
FUNDING STRATEGIES PAGE 12
Regulatory approaches
Table 2 summarizes the different policy tools local governments can use to make it harder for
developers to do what elected officials, and the citizens they represent,do not want.
TABLE 2:REGULATORY APPROACHES
Policy Mechanism; Effect on Cost Who Pays Side Effects
Comments Density
Minimum-density Requires that Strong: Requires fundamental Taxpayers through local Unless minimum density
zoning development meet ensures minimum change to zoning code government for code or accurately reflects the
some minimum expectations are met and comprehensive plan plan changes market,the regulations
requirement for could drive some
But can preclude any Reduces the value of Landowners lose value
densitydevelopers to other parts
development if land when it precludes if highest and best use
market is not ready development of the was at the lower density of the region or outside
for higher-density property under its zoning the region,where they
development highest and best use can develop at lower
densities.
Phased Allows placement Strong:prevents Small:additional Taxpayers through local Limited,but no assurance
Development of buildings to preclusion of higher planning,some higher government for that the higher densities
allow future infill future densities but development costs planning will ever be achieved.
allows development Developer pays for any
to occur. additional costs of
development
Mandated mixed Requires Weak:may or may Small:requires change Taxpayers through local Shorter trips
use commercial uses to not increase density to zoning code government More transit use
mix with residential. Could reduce land Developers or property Potential conflict
values if inappropriate owners if land values between uses
for site. impacted.
Source:ECONorthwest and Johnson Gardner,Metro Urban Centers:An Evaluation of the Density of Development,
July 2001.
Potential Local Financing Tools
The previously outlined policies almost all require some level of financial commitment. The City
has the ability to fund a number of projects identified as part of this project through their Capital
Improvements Program(CIP), and have set aside over$1.8 million in the fiscal year 2005-06 CIP
for projects in Downtown Tigard.
FUNDING STRATEGIES PAGE 13
TABLE 3: FISCAL YEAR 2005-06 CAPITAL IMPROVEMENT PROGRAM
CIP Project Catalyst Project Amount
Land Acquisition(Area 2-Downtown Revitalization 1-2 acres) Fanno Creek Public Area $200,000
Downtown Streetscape Design/Phase I;Implemetation-Main Street Streetscape Enhancement Program $350,000
Downtown Improvements Streetscape Enhancement Program $150,000
Burnham Street-Design&Right-of-Way Streetscape Enhancement Program $300,000
Consolidation of Public Works Facilities D owntown H ousing D evelopment $500,000
Greenburg Rd/Hwy 99W Intersection-Feasibility Study Hall Blvd.Regional Retail $40,000
Fanno Creek Park Outdoor Exercise Trail Fanno Creek Public Area $15,000
Commercial Street Sidewalk(Lincoln to Main St) Streetscape Enhancement Program $250,000
Walnut/Ash/Scoffins Streect Connection Feasibility Study Ash Avenue Downtown Improvement $40,000
Total $1,845,000
Local governments and urban renewal agencies also have a variety of tools that can be used to
finance urban renewal projects. The following information lists short explanations of the more
commonly used tools that could potentially be used in the area.
Urban Renewal District— Establishing an urban renewal district provides a number of tools
to realize urban renewal projects. A more detailed description of urban renewal as a tool is
included in this memorandum as Section IV.
Bonds - Local governments and urban renewal agencies can issue a variety of debt
instruments, known as bonds to finance public and private purpose projects. Bonds can only
be used to finance capital costs; they cannot be used to pay for operating costs.
If bonds are issued to pay for public improvements (such as streets, parks, public buildings,
etc.) interest paid on the bonds is exempt from state and federal taxation, making them an
attractive investment option. Tax exempt bonds generally carry interest rates lower than
commercial bonds of similar credit quality.
If bonds are issued to pay for projects which include elements that benefit private activities
(commercial establishments or businesses), and that benefit is more than 10% of the bond
issue, interest paid on the bonds will be taxable. Taxable bonds will carry higher interest
rates than tax exempt bonds.
There are three general types of bonds that may be used to finance projects within an urban
renewal district:
a. General Obligation Bonds — General Obligation Bonds must be approved by voters
and are backed by the power of the issuer to levy a property tax to pay debt service
on the bonds. Cities and counties are authorized to request voter approval for
General Obligation bonds; urban renewal agencies are not. Because these bonds are
backed by the power of the issuer to levy taxes, General Obligation bonds generally
command the lowest interest rates. An example of a General Obligation Bond is the
Library Bond approved by voters to build the new Tigard Library.
FUNDING STRATEGIES PAGE 14
b. Revenue Bonds —Revenue Bonds are backed by the stream of revenue generated by
a particular system or facility. Revenue bonds are generally considered less secure
by bond markets because the promise to repay is based solely on the revenue-
generating capacity of an identified facility or system. Interest rates are generally
higher than those commanded by General Obligation bonds, and are very dependent
upon the current and projected health of the revenue stream being offered as security.
Jurisdictions that operate facilities or systems are authorized to issue Revenue Bonds
without prior voter approval. Examples of revenue bonds include Water Revenue
Bonds, Parking System bonds, and recreation System bonds.
C. Tax Increment Bonds — Tax Increment Bonds are a specialized form of Revenue
Bonds. Debt service is paid by the revenue stream from the "increment" generated
by the district from normal growth in the district's assessed values and new
development. Bond markets generally look for some history of increment generation
before they are wiling to consider purchasing Tax Increment Bonds.
Grants -A variety of state and federal agencies periodically issue grants which could be used
for redevelopment purposes. Grants may be for general purposes (such as Community
Development Block Grants — CDBG) or may be for very specific purposes. Grants may
require local matches of cash or in-kind services, and often contain specific restrictions or
requirements on use. Granting agencies will require reporting on grant-funded activities or
projects, and some federal grants will contain provisions such as vesting ownership of any
equipment purchased in the federal government. If grants are available, they are usually a
good way of financing local projects.
Business Improvement (BID), Economic Improvement (EID), or Local Improvement
Districts (LID) - State law allows the creation of a variety of local districts that could overlay
an urban renewal district. These special assessment districts allow local property owners to
come together to form a district and to create assessments on properties within that district to
achieve certain defined goals. BIDS and ElDs are generally used to pay for specialized
operating or non capital costs (such as a higher level of street sweeping or police patrol or
district-wide marketing efforts.) LIDS are commonly used by cities to install public
improvements which are of special benefit to properties within a defined area.
Tax Abatement- State law allows local jurisdictions to abate taxes for properties that meet
certain requirements, which agree to engage in certain improvements, or which provide
certain services. (For example, provision of low income housing.) Tax abatement can be a
useful tool in helping projects assemble construction financing or cover ongoing operating
costs, but when offered within urban renewal areas, may tend to offset growth in tax
increment.
Hotel/Motel Tax or Specialized Taxes - A Hotel/Motel (Transient Lodgings) Tax is a
specialized tax that is levied on hotel and motel room rentals. Prior to 2003, Hotel/Motel
taxes could be used for a variety of governmental purposed. The 2003 Legislature adopted a
statewide Hotel/Motel tax and at the same time pre-empted any new local Hotel/Motel other
than those dedicated to "tourism development." "Tourism development" may be broadly
defined, but that would have to be researched to determine whether a local Hotel/Motel tax
could be used to benefit redevelopment.
FUNDING STRATEGIES PAGE 15
Authority for other types of specialized taxes (such as business taxes, local sales taxes, etc.)
currently exists,but it is not clear whether any of these would be an option for Tigard.
Development Impact of Alternative Tools
A number of potential actions have been identified to encourage higher density development
forms within the Downtown Tigard study area. This section addresses the tangible general
implications of these actions, and their ability to affect final development forms.
The following is a brief summary of the implications of potential actions on the general viability
of projects.
Reduce Planning and Information Costs
The reduction of planning and information costs improves viability in a number of ways.
Increased certainty regarding what will be approved and abbreviated approval timelines lower the
level of uncertainty associated with entitlement, which lowers holding costs and may lower the
required return parameters. This can have a substantial financial impact on the development, as
well as lowering the required yield to induce new development.
Land Assembly
By assisting in land assembly, the City can reduce carrying costs as well as uncertainty.
Development of some of the identified catalyst developments will require a complex assembly.
Private sector developers are reluctant to initiate developments requiring complex assemblies,
which would be required for some of the catalyst projects identified. The City can selectively use
its powers of condemnation or strategic acquisitions to assist in providing developable sites
consistent with public policy objectives.
Direct Grants/Parking Subsidy
These types of actions have a direct impact on the bottom line, delivering a large impact but at a
large cost. The present value of grants is fairly straightforward to calculate, as is removing the
cost of structured parking from a project. Low interest loans provide a number of benefits. First
of all, they typically reduce the equity requirement for the project, with equity carrying a
relatively high cost for the development. This can be through a better debt coverage ratio
associated with lower-cost funds, and/or a lower equity requirement per the terms of the debt. A
commonly used tool is subordinated or second position debt, which is debt secured by a second
position in the property. This can be used to reduce equity requirements. This type of debt is not
typically available in the market, as it is not adequately secured by real property.
Tax Abatement
Measures to reduce ongoing property taxes w .
have a significant impact on viability. Tax Assessed Value(AV) $160,000
abatement programs are the most commonly Taos Rate 1.50%
used of these types of measures, typically with Annual Property Takes $2,400
a term of ten years on qualifying projects. As AbatenEnt Period/Yeers 10
shown in the table to the right, a ten year tax Assumed Escalation Rate 3.0%
abatement has a discounted value roughly Total Value $27,513
equal to between 11% and 12% of assessed Amimed Discount Rate 10%
Present Vaiue(Discounted) $18,173
Present Value'Aseesmd Value 11.4%
FUNDING STRATEGIES PAGE 16
value. For an income property such as a rental apartment project, this value is realized directly by
the developer. For a condominium unit, the abatement goes to the purchaser, and the developer
needs to realize a pricing premium on the unit consistent with the value of the abatement. Two
programs are currently available under Oregon State law, for multiple unit housing (ORS
307.600) and vertical housing (ORS 285C.450).
Low Income Housing Tax Credits
HUD, through the State of Oregon's
Housing and Community Services,
provides tax credits for affordable housing Qualified Cost $90,000
projects. These credits significantly Credit Percentage 4.00%
improve the viability of many rental Credit Period/Yea's 10
projects, despite limits on rents that can be Total Value $36,000
Assumed Dismunt Rate 12/0
charged. As shown in the table to the right, Present Val ue(D i smunted) $22,782
the present value of a 4% tax credit can be Present Value/Qualified Cost 25.3%
equal to a quarter of qualified cost. While
qualifying projects typically must demonstrate a rent advantage relative to what is achievable in
the market,the program still provides for a net boost in viability.
IV. URBAN RENEWAL DISTRICTS
While a variety of funding options and policies have been discussed in this memorandum, by far
the tool with the greatest ability to generate substantial revenue for targeted investments is
establishing an urban renewal district. The projects outlined in the plan will likely require a
substantial public investment, and an urban renewal district is one of the few tools available that
can generate adequate revenue to realize the vision.
The basic idea behind urban renewal is simple: future tax revenues pay for revitalization efforts.
A jurisdiction adopts an urban renewal plan which includes a line around an area it finds to be in
need of public investment (the urban renewal boundary) and necessary improvements within that
area. The urban renewal agency then issues urban renewal bonds to pay for the identified
improvements. (The amount of bonds issued is usually limited by the typically low tax increment
revenues available at the beginning of an urban renewal plan.) As property values increase in the
area due to new investment, the rise in property tax revenues (called "tax increment") is used to
pay off the initial urban renewal bonds and to support additional bonds. This financing method is
called tax-increment financing, and it is the most common method of paying for improvements in
an urban renewal area.
FUNDING STRATEGIES PAGE 17
Urban renewal funds can be used for a variety of investments, such as:
Redevelopment projects;
Economic development strategies, such as small-business loans or loan programs;
Housing loans and other financial tools for ownership and rental housing;
• Streetscape improvements, including new lighting, trees, sidewalks,pedestrian amenities,
etc.;
Transportation enhancements, including light rail, streetcar, intersection improvements,
etc.;
• Historic preservation projects; and
Parks and open spaces.
Urban renewal is a way to focus resources on a particular area, and to use public resources to
stimulate and leverage much larger private investments. Specific public-improvement projects
can come about as a result of local, state and federal grants, private investment and donations,
city general fund allocations and other sources of public financing. Each of these options has its
particular drawbacks. Competition for projects funded by the city's general fund is intense. Grant
money is similarly competitive, time-consuming to obtain, and usually arrives with strings
attached. Tax-increment financing is a simple and reliable financial tool.
The Downtown Task Force Funding Working Group recommended further investigation of
establishing an urban renewal district to generate dedicated revenues to pay for needed
improvements in Downtown Tigard. The Tigard Charter currently prohibits any renewal districts
without a citywide vote. The following is a brief overview of the general advantages and
disadvantages of urban renewal:
Advantages:
■ Creation of a dedicated funding source that grows with growth in assessed values in the
urban renewal district and that can be used to pay for needed improvements.
■ Public improvements paid for by urban renewal will spur private investment that will
further increase values in the district, and will accommodate job and housing growth
■ Once the urban renewal plan is accomplished and all bonds are paid off, the assessed
value is returned to the general tax rolls and help pay for citywide service.
Disadvantages:
■ Urban renewal "locks up"growth in assessed values during the life of the urban renewal
plan, thereby limiting growth in tax revenues for all overlapping taxing jurisdictions.
■ Urban renewal mechanics are complicated and difficult to explain to the public in an
election setting.
■ Creation of an urban renewal district requires the active support of major property
owners within the proposed district.
■ Urban renewal requires a vote and approval by the citizens of Tigard.
A commonly asked question with respect to urban renewal districts is their impact on other taxing
entities, most notably schools. Urban renewal does not directly affect a school system's operating
budget because schools are funded by the state on a per-pupil instead of a property-tax basis.
Other taxing jurisdictions' share of tax revenue from property inside the urban renewal area
boundary is frozen for the length of the urban renewal area,usually 20 or 30 years. Because of the
public investments made during that span, however, those taxing jurisdictions should see
FUNDING STRATEGIES PAGE 18
substantial increases in future tax collections. Taxing jurisdictions also are protected from
significant impact by state limits on how much of a municipality can be designated an urban
renewal area.
The formation of an urban renewal area does not result in new taxes. Urban renewal activities are
financed by bonds. These bonds are repaid from the property taxes generated by the increase in
value, over time, of properties within the boundary. Although property values within an urban
renewal area are likely to rise, property taxes are based on assessed values, which are limited to a
3-percent annual rise in most cases.
In urban renewal areas, public investment is used to stimulate private investment on a much
larger scale. The amount of urban renewal funds invested in any one area is small compared to
the private investment that follows. Urban renewal is primarily used to update and improve an
area's infrastructure -- and to provide incentives for desired development such as affordable
housing, family-wage jobs and building refurbishment. The result is that private investments pay
for the lion's share of new building construction and renovation costs in urban renewal areas.
V. RECOMMENDED FUNDING STRATEGY
The most appropriate tools for the City of Tigard to use in accomplishing its objectives for the
Downtown Improvement Plan are: grants(Metro Transit Oriented Development); land assembly;
property tax abatements; and establishing an urban renewal district. A number of these tools are
currently in place, or may be easily activated to generate revenue. There are one or two other
tools that are not currently in place, and will require public approval to establish. Together, these
tools and recommendations regarding priority and timing of activities to activate or establish
them constitute the recommended funding strategy for carrying out the Tigard Downtown
Improvement Plan. Many of these recommendations and activities will be incorporated within
the Incremental Implementation Strategy proposed with the Downtown Improvement Plan.
Available Tools
As indicated above, Tigard has a number of financing tools currently in place, or easily
activated to generate revenue. A list of these tools and the activities needing to be
pursued to enable the City to generate the level of funding necessary to carry out the
range of improvements recommended by this plan is provided below.
❑ Tool: Land Assembly
o Action: Pursue land assembly of identified key parcels.
o Time Frame: Immediate, and throughout the planning period.
❑ Tool: Tax Abatements
o Action:Allow for property tax abatements for dense housing
development,under the State's Vertical Housing Tax Credit Program
o Time Frame: Immediate
o Note: Can impact tax increment revenues in an urban renewal district.
❑ Tool: Grants (Metro, etc)
o Action: Apply for Federal, State and Regional grants to help fund
catalyst projects
o Time Frame: Immediate and ongoing
FUNDING STRATEGIES PAGE 19
Recommended New Tools
For the reasons mentioned earlier in this memorandum, there are additional, appropriate
financing tools that are not currently in place, and will require public approval to
establish: Urban Renewal District and Improvement Districts (Business (BID),
Economic (EID) or Local(LID)). The activities needing to be pursued to enable the City
to generate the level of funding necessary to carry out the range of improvements
recommended by this plan is provided below.
■ Tool. Urban Renewal District
o Action: Prepare an Urban Renewal District Study,prepare campaign for
City-wide vote
o Time Frame: Immediate start, one to three years to implement if
successful
■ Tool. Business or Local Improvement District
o Action: A Business Improvement District recently failed to get the
required 51% support. The need for these districts would be negated if
an Urban Renewal District was in place.
o Time Frame: One to Five Years
VI. CLOSING COMMENTS
It should be noted that implementing the recommended Downtown Improvement Plan is not
reliant upon any one of the above funding sources being available. By way of example, it is clear
that the use of urban renewal would provide the most significant source of funding for the
development and redevelopment of Downtown Tigard; to create an urban renewal district
requires voter approval, given the Tigard City Charter. Should the City pursue establishment of
an urban renewal district and the action not be supported by the voters, the Plan would still be
capable of being carried out. However, the length of time to generate other revenues to make the
public investments needed to spur private investment would lengthen considerably.
FUNDING STRATEGIES PAGE 20
Parametrix ENGINEERING.PLANNING.ENVIRONMENTAL SCIENCES
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M E M O R A N 0 U M
Date: June 21, 2005
To: Barbara Shields, Long Range Planning Manager
City of Tigard
From: David M. Siegel, AICP
Project Manager
Subject: Community Involvement Technical Memorandum
cc: Sonya Kazen, Associate Planner
Oregon Department of Transportation
Project Number:
Project Name: Tigard Downtown Improvement Plan
The purpose of this memorandum is to provide an overview of the community and stakeholder
involvement process used to prepare the Tigard Downtown Improvement Plan (TDIP). This
memorandum will address the overall organization of the public involvement effort, the process used to
obtain public input, and a summary of public meetings and events held in association with plan
preparation and refinement.
Task Force Direction
The City of Tigard has been involved in planning for the improvement of its downtown for several years
prior to the initiation of the current effort in 2004. These earlier efforts included work by the Oregon
Downtown Development Association, a community survey, and many meetings by the City's appointed
Downtown Task Force.
With the receipt of a grant from Oregon's Transportation and Growth Management Program for FY2004-
05, a work program was initiated for building upon the previous studies and working with the community
to develop a downtown improvement plan and an implementing strategy for carrying it out. Accordingly,
the City of Tigard, through its Downtown Task Force, directed the Parametrix consulting team in applying
its expertise to help the community develop its vision and plan for improving Tigard's downtown. The
planning process was to be open and transparent, and was to be the community's plan, not that of the
consultant.
As mentioned in the Technical Memorandum discussing the"Evolution of the Conceptual Design Plan",
the TDIP process was evolutionary in nature. In this process, three successive iterations of a conceptual
plan would be developed: an Initial Concept; a Refined Alternative; and a Preferred Design Alternative".
This iterative process was informed by community participation throughout.
Task Force and Public Participation Process
The current effort to develop the Tigard Downtown Improvement Plan has been citizen-based, and has
been led by the City's Downtown Task Force. Meeting on a monthly basis, the Downtown Task Force's
meetings have been advertised and open to the public, and the public in attendance has been offered the
(Rev.02/04)
Barbara Shields, Long Range Planning manager
June 21, 2005
Page 2 of 5
opportunity to participate in discussions and to offer comments and advice. The following discussion
provides an overview of the major Task Force and public participation components of the planning
process.
The Task Force, working as a committee of the whole or in smaller"working groups," actively participated
in the development of all facets of the Plan. In keeping with this direction, the monthly meetings of the
Task Force were frequently supported by work sessions with the consulting team. The Downtown Task
force conducted two rounds of smaller-group public meetings ("Community Dialogs")to discuss the plan
and obtain comments and advice, reaching over 280 citizens in the process. Task Force members also
actively participated in the two major public events conducted in support of developing the plan: the
December 4, 2004, Workshop, and the April 23, 2005, Open House.
Gettinq "Grounded"
The Task Force launched the planning process by holding a walking tour through the study area with the
consulting team in order to share perceptions, ideas and desires for what downtown Tigard might be like
in the future. The Task Force members then took individual walking tours to identify places and features
that would help form an opportunities and constraints map to serve as the foundation for an initial design
concept. Task Force members were asked to identify:
• Where were the"pathways": channels along which people customarily, occasionally or
potentially move?
• Where were the"edges": linear barriers that restrict lateral movement?
• Where were the"districts": multiple-block"mini-neighborhoods" which people can go mentally
inside of, and which have some common identifying characteristics or association?
• Where were the"nodes": block-size or smaller"points" of concentrated activity through which
people pass?
• Where were the"landmarks": singular features that contrast with their background, occupy a
prominent location or distinctly define a place?
This activity and the information it generated helped prepare the Task Force for their smaller-group
discussions with the public, described below under"Community Dialogs".
Visioning
Following the "grounding" and perception-sharing process, the consulting team worked with the
Downtown Task Force in a workshop setting to develop a 20 to 30-year vision for Downtown Tigard. The
following draft vision was generated by the Task Force:
"Our vision of Downtown Tigard is a vibrant and active urban village at the heart of our community
that is pedestrian oriented, accessible by many modes of transportation, recognizes and uses
natural resources as an asset, and features a combination of uses that enable people to live,
work, play and shop in an environment that is uniquely Tigard."
To ensure the planning effort was focused toward achieving the vision, the Task Force developed a set of
guiding principles reflecting desired outcomes. The guiding principles, also served as criteria against
which the Task Force evaluated the success of the various iterations of the concept plan. These Guiding
Principles are as follows:
• The vision for an improved Downtown Tigard must reflect the community's values and
cultures.
• Downtown Tigard should possess the qualities essential to successful downtowns,
including:
Barbara Shields, Long Range Planning manager
June 21, 2005
Page 3of5
o Extended hours of operation...not"folding at 5:00"
o A mix of employment, retail, housing and cultural/entertainment uses
o Providing a unique experience not available elsewhere in the community
o Possessing a "sense of place"with a special identity
o Being seen as the"center" or the "heart" of the community
o A vibrant and compact core, accessible by all modes of transportation
o A feeling of accessibility and safety
o Accessibility in varied climatic conditions (e.g., throughout the various seasons of
the year)
• Downtown should recognize the value natural resources provide as both an amenity and
as a distinct and special "place".
• Planning for Tigard's Downtown should capitalize on commuter rail and Fanno Creek as
catalysts for future investments and development.
• The Downtown's transportation system should be multi-modal, connecting people, places
and activities safely and conveniently.
• Downtown Tigard's streetscape and public spaces should be pedestrian-friendly, and not
visually dominated by the automobile.
• The Downtown Improvement Plan should be forward thinking, with objectives and actions
that will set the community up for future successes.
• Downtown improvement projects should make creative use of unused and underutilized
properties, while maintaining and building upon Tigard's history.
• The Downtown Improvement Plan should be outcomes-based and action-oriented, with
an array of key signature projects capable of being carried out.
• City codes and regulations should enable the Downtown Improvement Plan's vision to be
carried out, recognizing the difference between Downtown and other commercial centers.
The opportunities and constraints information and the draft vision and guiding principles formed the
foundation for developing a very preliminary design concept for downtown Tigard, which suggested
potential key transportation (vehicular and pedestrian) linkages; locations for retail, housing and
employment uses; and where opportunities existed for improving the overall access to and potential use
of Fanno Creek.
Community Dialogs
As mentioned previously, the Task Force conducted smaller-group meetings with a variety of interest
groups and stakeholders to explore issues, concepts and priorities for a future downtown. The purpose of
the Dialogs was to engage the public in a structured, creative and well-documented conversation about
the TDIP: its overall purpose, key products, and specific opportunities for public input. In October 2004,
during the initial round of Dialogs, 26 public meetings were held by the Task Force and City staff to
discuss and obtain comments on the project, opportunities and constraints, the vision and guiding
principles, and the preliminary design concept. Following a workshop and several other special-focus
meetings, a second round of 24 Dialogs was held in the spring of 2005 to again share information at the
Barbara Shields, Long Range Planning manager
June 21, 2005
Page 4 of 5
smaller-group level and obtain comments and advice on a much-refined concept plan, potential key
projects, and initial ideas regarding plan implementation.
Prior to each round of Dialogs, an outreach packet was prepared to assist the Task Force members in
conducting them. These packets contained general background information, supporting graphics, and
suggested questions and discussion points. The packets and summary of input from the two rounds of
Dialogs are attached to this memorandum.
Public Workshops
Two major public events were held in conjunction with the plan development process. An initial public
workshop was held on December, 4, 2004, to present the vision, guiding principles and plan concept,
and to discuss and receive input on the"great ideas"that would eventually be fleshed out into key
"catalyst projects"that would create a climate for investment and stimulate development. Following
substantial further work on the plan, the Task Force held a second major public event, a community open
house, on April 23, 2005. This event focused upon sharing the Preferred Design Alternative with the
public, discussing how the plan could be financially implemented, and providing an overview of the next
steps in completing the plan. The open house featured a panel with Tigard Mayor Craig Dirksen,
Washington County Board of Commissioners Chair Tom Brian; State Rep. Larry Galizio, Metro Councilor
Carl Hosticka, ODOT Region 1 Planning and Development Manager Robin McArthur, and TriMet
Executive Director of Capital Projects Neil McFarlane. The speakers discussed potential sources of
funding, the intergovernmental and public-private partnerships required to carry out the plan, and how
citizens could play a role.
Special-Purpose Outreach
As the project progressed, it became apparent that the project, stakeholders and the community at large
would benefit from additional, topic-specific outreach and communication. Accordingly, the scope of the
project was amended to accommodate three special-purpose outreach forums to address:
• Coordination of multi-agency transportation issues;
• The role of Ash Avenue and its potential extension across Fanno Creek; and
• The development feasibility of the proposed plan concept.
Memoranda providing an overview of these three forums (and summary meeting notes) are attached to
this document.
Communications Materials
Other communication media were employed to disseminate information regarding the TDIP and how to
get involved, and are discussed below.
Interested Parties List: Beginning with the spring 2004 survey, the City built an extensive Interested
Parties list to provide meeting and event notification. At the present time, the list consists of 235 mailing
addresses and 129 e-mail addresses. Each party received a copy of the next agenda; those on the
regular mailing list also received previous meeting minutes. In addition, the Task Force and City produced
an informational brochure to promote the process, which was distributed throughout the community.
Notification: The City submitted press releases to the Tigard Times and the Oregonian prior to Task
Force meetings and events. This effort resulted in regular news briefs and calendar listings, including
profile and feature articles focusing on the Task Force's efforts. Meeting notices were also included in the
Community Connectors e-mail list sent out by the City; in the City's newsletter, Cityscape; and posted as
part of the monthly TVTV cable show"Focus on Tigard."
Public Access to Information: The City maintained an active website for the TDIP
(www.ci.tigard.or.us/downtown). Meeting notices, agendas and minutes; and materials from the Dec. 4
Barbara Shields, Long Range Planning manager
June 21, 2005
Page 5 of 5
Workshop, Community Dialogs, and April 23 Open House are posted and archived at this site. All the
Design Concepts are posted for the public's access and review.
Special Events: For the Workshop and Open House and special events, the City also notified property
and business owners in the Central Business District, and submitted notices to the Tigard Area Chamber
of Commerce for their weekly fax and newsletter. Additionally, the area's Citizen Participation
Organizations were notified.
Written summaries of additional structured outreach conducted by the City of Tigard regarding the TDIP
are attached to this document as Appendices_though_.
Further Public and Stakeholder Involvement
Following review by the Tigard Planning Commission and City Council, the City will hold a public meeting
to receive public input prior to accepting the products from the TDIP process. There are a number of
recommended actions within the TDIP, including special studies and the establishment of new sources of
funding. Once the plan's products have been accepted by the City Council, the Advisory Groups and
Downtown Task Force will move forward with implementation of the TDIP, providing the additional
opportunity for public and stakeholder participation.
Attachments:
A. Community Dialog Packet No. 1
B. Community Dialog Packet No. 2
C. Summary of Community Dialog Comments
D. Transportation Summit Summary Notes
E. Ash Avenue Neighborhood Meeting Summary Notes
F. Developers' Forum Summary Notes
G. December 4, 2004 Workshop Summary Notes
H. April 23, 2005 Open House Summary Comments
JOHNSON
G A R D N E R
DATE: June 24, 2005
TO: Dave Siegel
PARAMETRIX
Barbara Shields
CITY OF TIGARD
FROM: JOHNSON GARDNER,LLC
RE: Summary Memorandum on Economic Reports
MEMORANDUM
This memorandum summarizes and reconciles the results of the Economic Analysis Study from the
Tigard Downtown Improvement Plan with feasibility work done by Tashman Johnson LLC for the
Commuter Rail/217 Corridor Revitalization Feasibility Study.
The Tashman Johnson report covered a number of urban renewal issues, but our review focuses on
the market conditions section of the report. The report being reviewed was more general in nature
than the one we prepared for Downtown Tigard, although specific conclusions are presented for
Downtown Tigard,
Washington County Profile
A profile of Washington County was provided,which included data on population and employment
trends. The data was consistent with ours, although the use of population trends by jurisdiction is a
bit misleading, as it doesn't recognize the impact of annexations. The employment data used is from
the Bureau of Economic Analysis in SIC format, while we used wage and salary data and the NAICS
breakdowns, but the results are not inconsistent.
Real Estate Market Overview
Commercial and industrial market data in the Tashman Johnson report was derived from Norris
Beggs & Simpson, a commercial brokerage firm, and officespace.com, an online listing service. We
find the data from both sources reliable, but used Costar in our report for office and industrial space,
an alternative data source that has a significantly larger survey which includes owner-occupied space.
Our comparative conclusions regarding individual product types are summarized below:
Office Spa
Most of the market data presented in the Tashman Johnson report is dated 2003, while we used
second quarter 2004 data. Our inventory ofspace was substantially larger, but the overall vacancy
rates were consistent. The general conclusions of both reports were that the market was soft and
would not recover for several years.
520 SW SIXTH AvENUE,SUITE 914 PORTLAND,OR 97204 503/295-7832 503/295-1107(FAY)
The Tashman report assumes office lease rates of$20 per square foot gross, while our analysis
expects a rate of$14 to$18 per square foot gross. We feel our analysis is more reflective of current
conditions, but rates will need to rise closer to the Tashman assumption if new supply is to be
warranted.
Commercial/Retail Space
Our conclusions regarding the retail market are generally consistent, but the Tashman Johnson
report appeared to indicate that land values for retail were justifying structured parking. The
market comps used are limited but appropriate. We do not feel that is currently the case, with the
exception of very limited instances, and do not think it is realistic from a market perspective in
Tigard, at least in the short-term.
Retail rates were assumed to be$22 gross, and$18 net in the Tashman report. Our analysis set
rents in the current market at$13 to $16 net, slightly below those in the Tashman report. Retail
rents do show a great deal of variability, and a new development consistent with that envisioned
in the Downtown Plan may get substantially higher lease rates, while the older space retains rates
closer to our assumptions.
Multi-Family Development
We agree on the conclusions in the Tashman Johnson report with respect to general rent conditions
and occupancy rates. The conclusions regarding both rental apartments and condos are generally
consistent with those in our report.
Rental apartment rates were assumed at$13.20 per square foot per year, or$1.10 per square foot
per month. This is above the high end of our assumptions, which ranged from $0.80 to$1.05 per
square foot. We feel this assumption is probably sound within the next few years, but aggressive in
the current market.
The condominium sales prices were assumed at $150 per square foot in the Tashman report,
again higher than our assumed rate of$132 per square foot. In light of trends in the last year, the
Tashman assumption is probably correct at this time.
General Market Position
Both reports are in wide agreement with respect to the general market position of Downtown Tigard,
as well as viable use types. The primary variance is their allocation of residential development south
of the railroad tracks, while the Downtown plan anticipates more residential northeast of the tracks.
This reflects a design solution, as opposed to a differential with respect to market factors.
ECONOMIC REPORTS RECONCILIATION PAGE 2
Parametrix ENGINEERING.PLANNING.ENVIRONMENTAL SCIENCES
700 NE MULTNOMAH,SUITE 1000
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T.503.233.2400 T.360.694.5070 R 503.233.4825
w .pammetrixxom
M E M O R A N 0 U M
Date: June 30, 2005
To: Barbara Shields, Long-Range Planning Manager, City of Tigard
Sonya Kazen, Associate Planner, ODOT
From: David M. Siegel, AICP
Project Manager
Subject: TDIP Implementation Action Plan
cc:
Project Number:
Project Name: Tigard Downtown Improvement Plan (TDIP)
Introduction
The City of Tigard has been involved in planning for the improvement of its downtown for several years
prior to the initiation of the current Tigard Downtown Improvement Plan (TDIP) effort in 2004. These
earlier efforts included work by the Oregon Downtown Development Association, a community survey,
and many meetings by the City's appointed Downtown Task Force. With the receipt of a grant from
Oregon's Transportation and Growth Management Program, a work program was initiated for building
upon the previous studies and working with the community to develop a downtown improvement plan and
an implementing strategy for carrying it out. Accordingly, the City of Tigard, through its Downtown Task
Force, directed the Parametrix consulting team in applying its expertise to help the community develop its
vision and plan for improving Tigard's downtown. The TDIP is a long-range (20-30 year) plan for the
future growth and improvement of Downtown Tigard, consistent with the criteria for a Town center as
required by Metro's 2040 Growth Concept.
Any good plan is accompanied by an implementation program...a program indicating the appropriate
tools and actions for carrying out the plan. The purpose of this memorandum is to present the
Implementation Action Plan being recommended to carry out the TDIP. This implementation program will
focus on the following:
• Recommended future transportation system improvements and any suggested changes to the
City's Transportation System Plan;
• Recommended changes to the City's Comprehensive Plan, zoning code and implementing
ordinances; and
• Recommended development and community projects important for creating a climate of
investment Downtown, and recommended sources of funding for these and other improvements.
These three areas of focus have been discussed in depth in three technical memoranda accompanying
the plan: a Future Transportation System Technical Memorandum; a Future Land Use and Regulatory
Framework Technical Memorandum; and a Funding Strategy Technical Memorandum. Each
memorandum has recommendations for short and longer-term actions for carrying out the TDIP. The
purpose of the Implementation Action Plan is threefold:
• To collect all the recommended actions in one location;
(Rev.02/04)
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 2 of 16
• To identify those short-term actions needing to occur in each of the next three years to get set-up
for the next year; and
• To separate the short-term actions into two categories when appropriate..."organizational"and
"project-related".
Context
To help understand why certain actions have been suggested, it is appropriate to provide some
foundational context.
Downtown Vision
Early on in the planning process, the consulting team worked with the Downtown Task Force in a
workshop setting to develop a vision for Downtown Tigard...for what the downtown would be like in 20-30
years. The following vision was generated by the Task Force:
"Our vision of Downtown Tigard is a vibrant and active urban village at the heart of our community
that is pedestrian oriented, accessible by many modes of transportation, recognizes and uses
natural resources as an asset, and features a combination of uses that enable people to live,
work, play and shop in an environment that is uniquely Tigard."
Guiding Principles
To ensure the planning effort was focused toward achieving the vision, the Task Force developed a set of
guiding principles...statements reflecting desired outcomes. The guiding principles, which also served as
criteria against which the success of the TDIP would be gauged, are as follows:
• The vision for an improved Downtown Tigard must reflect the community's values and
cultures.
• Downtown Tigard should possess the qualities essential to successful downtowns,
including:
o Extended hours of operation...not"folding at 5:00"
o A mix of employment, retail, housing and cultural/entertainment uses
o Providing a unique experience not available elsewhere in the community
o Possessing a "sense of place"with a special identity
o Being seen as the"center" or the "heart" of the community
o A vibrant and compact core, accessible by all modes of transportation
o A feeling of accessibility and safety
o Accessibility in varied climatic conditions (e.g., throughout the various seasons of
the year)
• Downtown should recognize the value natural resources provide as both an amenity and
as a distinct and special "place".
• Planning for Tigard's Downtown should capitalize on commuter rail and Fanno Creek as
catalysts for future investments and development.
• The Downtown's transportation system should be multi-modal, connecting people, places
and activities safely and conveniently.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 3of16
• Downtown Tigard's streetscape and public spaces should be pedestrian-friendly, and not
visually dominated by the automobile.
• The Downtown Improvement Plan should be forward thinking, with objectives and actions
that will set the community up for future successes.
• Downtown improvement projects should make creative use of unused and underutilized
properties, while maintaining and building upon Tigard's history.
• The Downtown Improvement Plan should be outcomes-based and action-oriented, with
an array of key signature projects capable of being carried out.
• City codes and regulations should enable the Downtown Improvement Plan's vision to be
carried out, recognizing the difference between Downtown and other commercial centers.
The Vision and Guiding Principles provided the foundation for developing the successive iterations of the
Downtown conceptual plan and the three aforementioned Technical Memoranda. Given that an effective
planning process requires thinking about implementation "early on", and throughout, focus now turned to
thinking about tools and concepts for carrying out the plan...even thought it was still under development.
Task Force Working Groups
The Downtown Task Force formed three Working Groups to address projects, tools and techniques for
carrying out the plan in three categories: Financing; Catalyst Projects; and "Brand Tigard" projects.
These Working Groups would address these three key topics over the course of a few meetings, and then
make initial recommendations to the Task Force as a whole. The Task Force would then provide
direction on components of an initial implementation program. An overview of the charge of each of the
three implementation Working Groups is provided below.
• Catalyst Project Working Group
Charge: What are the major projects or developments that will serve as the "catalyst"for
generating momentum...for leveraging additional progress and additional development? A
"catalyst" project is a significant improvement, one that helps create a climate for additional
development and investment by"shocking the system"and generating related or complementary
development efforts. In addition, what actions need to be taken to pave the way or create the
climate conducive to carrying them out? Topics could include, but not be limited to the following:
• "Anchor" projects
• "Opportunity" projects
• Key major public improvements
• Ownership consolidation
• "Brand Tigard" Working Group
Charge: Successful downtown planning efforts are supported by many small projects that help
create an identity or"brand", help focus the public's attention and generate and maintain
momentum. Using the Guiding Principles as a framework, what are those projects and activities,
and how can they help achieve them? Topics could include, but not be limited to the following:
• Streetscape improvements
• Beautification
• Direction and wayfinding
• Greenspaces and "pocket parks"
• Special events
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 4 of 16
• Finance Working Group
Charge: Identify the funding sources and financing tools available to pay for major and minor
improvements, and provide direction on what sources or tools might be appropriate for Tigard in
carrying out the Guiding Principles and funding the catalyst projects. What are the funding
sources and financing tools available to pay for these improvements...initially and over time?
What sources or tools are appropriate for Tigard, and what is the City willing to "put on the table"
to generate momentum and attract investment? Topics could include, but not be limited to the
following:
• Urban Renewal Districts
• Business Improvement and/or Local Improvement Districts
• Revenue Bonds
• Grants
• Debt financing
• Hotel/motel tax
• Tax abatement or SDC credits
• New fees
• Condemnation
The three Working Groups made their recommendations to the Task Force and the consulting team.
These recommendations guided the preparation of the Preferred Design Alternative (specifically with
regard to the identification and location of catalyst projects), as well as the projects, actions and
implementation framework identified within the Transportation, Land Use and Funding technical
memoranda.
Implementation Concept
The Downtown Tigard Improvement Plan is an action-oriented plan, focusing upon the projects and
actions needing to be undertaken to carry out a clearly defined vision, a set of guiding principles, and a
development/design concept. The TDIP will be implemented in pieces, or components, over the course
of the next several years. Some actions will be initiated in 2005, others initiated in the years to follow.
As mentioned above, the TDIP will be implemented in pieces, over time. The Technical Memorandum on
Financing discussed the notion of catalyst projects, providing descriptions of them and their value. This
document and the TDIP Summary Plan Document both noted that in most instances, each catalyst
project is an idea or a program requiring a refinement study to pin down a concept, a location, a footprint
or criteria for subsequent development proposals. Accordingly, in the short description of each catalyst
project, the proposed preliminary "set-up" tasks or refinement study was briefly described.
In addition, several of the catalyst projects require the application of staffing resources to establish
programs, criteria, and to undertake preliminary tasks to enable projects to move forward (e.g., land
assembly, property owner coordination, etc.). The Plan recommends a number of amendments to the
City's Comprehensive Plan and Development Code (to provide greater recognition of Downtown, reflect
objectives of the TDIP, etc.), as well as several new zones to carry out Plan intent and to achieve the
planned uses, character and densities envisioned. In addition, two temporary overlay zones are
recommended in order to protect"footprints"for projects that are still at the conceptual level, awaiting
further refinement study.
The suggested amendments to the City's Comprehensive Plan and Development Code will be further
examined by Advisory Committees of the Downtown Task Force, and it is anticipated that appropriate
changes and the necessary ordinances to codify them will occur over the next 1-3 years.
It is anticipated that the City will begin talking with potential development interests regarding making the
Plan a reality. Certain major improvements will be made by the City of Tigard through a variety of funding
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 5 of 16
sources, including urban renewal, if approved by the voters. Other improvements will be the
responsibility of proposers of specific development activities. One or more of the catalyst projects may
come about as a result of a "public-private partnership", a contractual arrangement tailor-made for each
situation by which the public sector authority assigns certain functions or responsibilities to a private
developer.
The important point is that the TDIP is a long-term plan for the revitalization and growth of Downtown
Tigard over the course of the next 20-30 years, with many actions and several refinement studies being
required to set the stage for carrying out the improvements recommended as being needed to realize the
vision for the future established by the community.
Implementation Action Plan
For a plan to be the"chart for change" it is intended to be, it must be accompanied by an implementation
program...a program indicating the appropriate tools, actions and timelines for carrying out the plan. The
Implementation Action Plan being recommended to carry out the TDIP focuses on the following:
• Recommended future transportation system improvements and any suggested changes to the
City's Transportation System Plan;
• Recommended changes to the City's Comprehensive Plan, zoning code and implementing
ordinances;
• Recommended development and community projects important for creating a climate of
investment Downtown,
• Recommended sources of funding for TDIP-related improvements, and
• Suggested time frame for initiating key actions and projects.
These areas of focus have been discussed in depth in three technical memoranda accompanying the
Plan: a Future Transportation System Technical Memorandum; a Future Land Use and Regulatory
Framework Technical Memorandum; and a Funding Strategy Technical Memorandum. Each
memorandum has recommendations for actions for carrying out the TDIP.
It is also recommended that the City review the TDIP on a regularly-scheduled basis, and make
amendments as opportunity or changing community and economic circumstances necessitates. Should
there be a desire to change the guiding principles or shift the emphasis of a particular project, this plan-
update process provides the mechanism for doing so within the context of reviewing the plan as a whole.
Programming Concept
A substantial number of actions, programs and projects are being recommended to carry out the TDIP.
Not all of these can be done at once, and consideration needs to be given at the outset and during the
regularly scheduled TDIP and Implementation Strategy update process to the grouping, phasing or timing
of particular actions. It is recommended that the community program available/limited resources where
they can do the most good, where they can leverage other resources or supporting activities or provide
the "biggest bang for the buck", or where they can be concentrated to focus on a designated geographic
target area. As opportunities and priorities change, or as additional funding becomes available, there
may very well be the desire to change the geographic focus for carrying out components of the TDIP.
The Incremental Implementation Strategy and its periodic review are intended to allow for and
accommodate just this sort of flexibility.
All too often, the best-intended plans are approved without an action plan for implementation, without a
system or process for monitoring progress, and without a time frame for checking back in and updating
the plan to reflect progress made or changing conditions. The scope of work for developing the
Downtown Improvement Plan calls for preparation of an implementation strategy...an assemblage of
objectives and a game plan of short-term and medium-range actions for achieving them. Given the
aforementioned efforts of the Task Force Working Groups and the various Technical Memoranda and
their recommendations for improvements and actions, the focus now turns to:
• Collecting all the recommended actions in one location;
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 6 of 16
• Categorizing the implementing projects and actions, and prioritizing them with regard to relative
timing (e.g., 1-3 years, 4-6, 6-10, beyond...); and
• Identifying those short-term actions needing to occur in each of the next three years to get set-up
for the next year.
The consulting team recommends that the City of Tigard develop and maintain a short-term strategic
action plan for incrementally implementing the TDIP's recommendations for improvements and actions. It
is envisioned that this would be viewed as an "Incremental Implementation Strategy"...a three year,
renewable/rolling, short-term action plan that would be annually updated, with a regularly-scheduled
monitoring and updating process and a supporting budget.
By way of example, in developing this Incremental Implementation Strategy, each of the TDIP's Guiding
Principles would be examined on an annual basis to ascertain the current status of progress in achieving
them, and actions for moving ahead in each of the next three years would be identified and planned for.
The activities for Year 1 would be tied to the City's annual operating budget. The activities identified for
Year 2 and Year 3 would serve as a placeholder or indication of anticipated action-related resource needs
for the coming two years. Once Year 1 is nearly complete, the status of activities would be reviewed, and
the activities for Year 2 would be adjusted as necessary, as it will become the new Year 1. Year 3 would
be adjusted as appropriate in readiness for its becoming the new Year 2, and activities for a new Year 3
would be identified. The City would identify the coordinating body responsible for the monitoring,
development and update of the Incremental Implementation Strategy, and for the coordination of the
various City departmental activities to fund and/or carry out the strategy. City staff or the identified
coordinating body would provide the City Council with a regularly scheduled status report on
implementation activities. This regular monitoring, reporting and updating helps to keep the TDIP flexible
and current, keeps all City departments focused on the carrying out of this important public policy
objective, and keeps the TDIP and its implementation on the "front burner".
In addition, it is recommended that the City review the TDIP on a regularly-scheduled basis (every few
years), and make amendments as changing community and economic circumstances (and/or opportunity)
necessitates.
Incremental Implementation Strategy
As mentioned earlier, three of the technical memoranda accompanying the Plan (Future Transportation
System Technical Memorandum; Future Land Use and Regulatory Framework Technical Memorandum;
Funding Strategy Technical Memorandum) contained a discussion and set of recommendations for short
and longer-term actions for carrying out the TDIP, including:
• Recommended development and community projects important for creating a climate of
investment Downtown (e.g., the"catalyst projects"),
• Recommended future transportation system improvements and any suggested changes to the
City's Transportation System Plan;
• Recommended changes to the City's Comprehensive Plan, zoning code and implementing
ordinances;
• Recommended sources of funding for TDIP-related improvements, and a
• Suggested time frame for initiating key actions and projects.
As the aforementioned projects and actions have been discussed in depth in the respective technical
memoranda, this discussion will not be duplicated here. The following discussion will briefly summarize
the major improvements and actions being recommended, accompanied by a table depicting the initial
recommendation for programming their execution. The discussion will begin with the eight catalyst
projects, followed by sections addressing funding, transportation and land use actions.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 7of16
Catalyst Project Implementation
Catalyst projects are those seen as being able to substantively alter the development environment in the
study area. These projects represent key components of the overall plan, and their development would
be expected to serve as a catalyst for development in the study area consistent with that outlined in the
plan.
Eight catalyst projects were identified by the Downtown Task Force and the Catalyst Project Working
Group. Each of these projects is noted on the Preferred Design Concept map (Figure 10 within the
Summary Plan Document), and a brief description of each one, and its attendant benefits, is provided
below. In most instances, each catalyst project is an idea or a program requiring a refinement study to
pin down a concept, a location, a footprint or criteria for subsequent development proposals. Accordingly,
in the short description of each catalyst project, the proposed preliminary"set-up"tasks or refinement
study is briefly described. As will be noted in the Implementation section of this Plan, initial
recommendations for programming and carrying out these components have been provided in Appendix
J to this document.
A. Streetscape Enhancement
Streetscape improvements enhance the "public space" environment, and would include an overall
streetscape design theme for the Downtown area, and design and street function improvements to
specific streets, gateways, public spaces, rail crossings and the commuter rail station. Increasing the
attractiveness of public spaces has a positive impact on local properties, and can encourage cross-
shopping and more extended stays in the district. A positive public space will help attract development.
Improvements would include streetscape design and street function improvements for Burnham, Main,
Commercial, and Scoffins, and gateway/portal improvements at Scoffins, Main, Garden Place, and Tigard
Street.
Implementation Timing for Streetscape Enhancement
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Streetscape Plan X
Main Street X X
Burnham X X X
Scoffins X X X
Commercial X X X
Ash Avenue
a. Study and ROW Acquisition X
b. Construction X
B. Urban Creek/Green Corridor
The concept of developing an "urban creek" seeks to establish a unique feature that reinforces the
concept of a "green downtown", providing a thematic linkage to Fanno Creek, and helping to establish a
unique identity for Downtown Tigard. Connecting the two anchors of Fanno Creek and the Regional
Retail Area (another of the proposed catalyst projects) at Hall Boulevard and 99W, the Urban Creek could
be a natural appearing creek, portions of a creek or a series of water features linked by plazas, or some
other combination of water and public space/amenity. The Urban Creek would be integrated with new
and existing development, providing an alternative "front door"to redeveloped properties along its length.
In addition to the creek or water features, this major public amenity would be accompanied by plazas or
open spaces, pedestrian walkways, a service road, and landscaping. This project would have an
organizing impact on the study area, defining a clear pedestrian link and providing an amenity that future
development can capitalize upon. Future projects bordering the green corridor would be encouraged to
orient activities to take advantage of the "waterfront" or public space value of this amenity. In addition,
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 8 of 16
depending upon final design, the Urban Creek could serve as a means for stormwater conveyance and
treatment, or could potentially demonstrate the use of recycled water. Regardless, this project serves the
dual role of development stimulant while connecting Downtown areas.
Determining the design concept, form and "footprint' of the Urban Creek requires a detailed feasibility
study to ascertain public preference, preliminary design, constructability and cost. It will be important to
protect the potential footprint of this amenity pending completion of the feasibility/preliminary design work.
For this reason, a temporary overlay zone or other method of ensuring review and coordination of
potential development proposals that might have the ability to limit or preclude options for its location is
being proposed.
Implementation Timing for Urban Creek
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Feasibility Study
a. Public Preference X
b. Preliminary Engineering X
Acquisitions & Easements X
Land Disposition X X X
Final Design & Engineering X
Construction X
NOTE: Include connection to Fanno Creek area, Burnham and RR Crossing.
C. Hall Boulevard Downtown Gateway
Hall Boulevard provides a natural gateway into Downtown Tigard, given its intersection with Highway
99W. This key gateway with its prominent visibility from Hwy 99W is proposed to be developed with
regional mid-sized retail with parking and a public plaza space. The purpose will be to pull people into
Downtown and start to draw them further to Main Street, the Green Corridor/Urban Creek, Fanno Creek
Public Area, and etc., and to jumpstart development in the area. Planned intersection improvements at
Hall Boulevard and Highway 99W will require public acquisition of some key properties, and may provide
an opportunity to offset some of the costs of this project.
This project would offer a number of benefits for the study area. It would create a strong entry statement
for the district from Highway 99W and Hall. In addition, the project could be designed with linkages to the
remainder of the study area, generating activity and adding amenities that would be valuable to future
development activity in the study area. An example of this would be linking the development with the
upper portion or"genesis" of the Urban Creek and Green Corridor. As with the aforementioned Urban
Creek, determining the design concept, form and "footprint' of the Hall Boulevard Downtown Gateway
requires a detailed feasibility study to ascertain public preference, preliminary design criteria to guide
future proposals to carry out the Gateway and associated development.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 9 of 16
Implementation Timing for Hall Blvd Downtown Gateway
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Feasibility/Preliminary Design & X
Guidelines
Land Disposition-Methodology/Program X X
Data
Land Assembly X X
RFP X
NOTE: 1. Fallback if assembly is compromised—revisit concept
2: Need Funding, Need URA
D. Downtown Housing
The Plan anticipates creating more housing of various types in several locations in Downtown. The intent
is to bring more people into Downtown as residents. This will activate the Downtown throughout the day
and into the evening. Housing development in the downtown will provide a number of benefits, including
increased support for local services such as retail. In addition, residential development can provide a
greater number of"eyes on the street", increasing the perception of security in the district. Residential
development in the area is also supportive of transit, and can capitalize on the planned commuter rail line.
The Plan identifies generalized locations for housing, favoring the concept of moderate to higher-density
mixed use development, with housing availability for a wide range of income levels. Carrying out this
catalyst project concept requires undertaking an initial housing policy study to identify housing needs,
affordability and design guidelines, property consolidation needs, availability and applicability of funding
and/or incentives, and etc.
Implementation Timing for Downtown Housing
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Housing Policy Study X X
Housing Program Estimate X
Implementation X X X X
E. Ash Avenue Downtown Improvements
This project provides for street and public space improvements to Ash Avenue between the planned Park
and Ride and the Fanno Creek floodplain. Improvements will include a new bike and pedestrian bridge,
an overlook area for Fanno Creek, an at-grade pedestrian crossing (with the desire for a vehicular at-
grade crossing over the long term)and the extension of Ash from Burnham to the Park and Ride. The
City has committed funds for design, right of way acquisition, and roadway improvements to Burnham.
Improved linkages between the Fanno Creek open space and downtown Tigard have consistently been
cited as desirable by the Downtown Task Force, and represent a key component of the plan. These
improvements have positive impacts similar to those outlined in the streetscape enhancement program,
with this project also directly targeting an important linkage between the floodplain/open space and the
commuter rail Park and Ride.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 10 of 16
Implementation Timing for Ash Avenue Downtown Improvements
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Downtown Access Alts Study X
RR At-Grade Crossing
a. Initiate Negotiations X
b. Pedestrian Crossing X
c. Vehicle Crossing X
Burnham to Fanno Overlook X
Ped/Bicycle Bride X
E. Terminus to RR Tracks X
F. Fanno Creek Public Area and Performing Arts/Recreation Center
These two catalyst projects, the Fanno Creek Public Area Improvements and the Performing
Arts/Recreation Center are linked, both with regard to general location, and for the joint benefits to be
derived from their interconnection. Accordingly, these two projects will be discussed together in this
subsection.
Fanno Creek Public Area
The Plan envisioned the"Heart of Downtown" as one of the Great Ideas explored early in the process.
This concept called for recognition and improvement of a central open space resource and gathering
place adjacent to Fanno Creek, supporting a range of passive and active open space and public
gathering uses. These could include such uses as:
➢ A home for the Tigard Farmer's Market
➢ A smaller, appropriately-scaled entertainment venue, perhaps a natural amphitheatre for public
concerts and other events
➢ Picnics, weddings, and other gatherings
The improvement of this area as a community amenity that acts as a gathering spot while respecting the
natural environmental character and needs of the Fanno Creek area further advances the concept of a
"green Downtown", respecting the valuable Fanno Creek resource. The Fanno Creek area has
consistently been identified as a key amenity in the district, with considerable emphasis in the Plan
dedicated to increasing linkages to Fanno Creek from the remainder of the study area. Creating an
attractive public area adjacent to the natural environment surrounding the creek will work towards further
capitalizing on this amenity, for both the district as well as the City of Tigard.
To further define the uses associated with this catalyst project, their location and scale, it is
recommended that a feasibility study of the improvement of the Fanno Creek Public Area be conducted in
conjunction with the examination and programming study to be conducted for the Performing
Arts/Recreation Center(see following section). Such a study should address the potential for an
intermediate and then "final" home for the Tigard Farmer's Market. As with the Urban Creek, a temporary
overlay zone or other method of ensuring review and coordination of potential development proposals
that might have the ability to limit or preclude options for future uses pending completion of the study is
being proposed.
Performing Arts/Recreation Center
Development of a Performing Arts and Community Recreation Center is seen as an opportunity to create
a community gathering place for the arts and activities in the"Heart" of Downtown that links visually and
physically with the Fanno Creek Public Area across Burnham Street. The purpose would be to bring day-
round activity to the Downtown "Heart"through the recreation center, provide a space for the performing
and visual arts, and provide a community gathering space while stimulating patronage of complimentary
uses (e.g. restaurants, coffee shops, etc.).
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 11 of 16
It is recommended that the City conduct an examination of the feasibility of the suggested Performing Arts
and Community Recreation Center, and of the programming to be associated with them. It is further
recommended that this study be coordinated with the aforementioned Fanno Creek Public Area use and
feasibility study. The program development study will enable the city to determine the amount of funding
needing to be raised for these improvements, and provide the basic information for a bond levy, should
the city pursue one.
Implementation Timing for Fanno Creek Public Area & Performing Arts/Recreation Center
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Comprehensive Use/Feasibility Study X
Performing Arts/Recreation Center X
Program Development
Bond Approval X
Land Disposition X X X X X
Area &Creek Enhancement Activities X X X X X X
Farmer's Market
a. Interim Location X
b. Final Home (Per Feasibility Study) X X
G. Post Office Relocation
The Plan calls for shifting the location of the Post Office from Main Street to the border between the
"Heart" and the Civic District. The primary motivation for relocating the Post Office is that the current
facility is not seen as being supportive of desired activity on Main Street. While the post office draws
regionally and can generate a substantial level of traffic, this activity is not typically seen as linking with
other desired commercial activities on Main Street. Shifting the facility to a location with better access
and that is less disruptive to Main Street would encourage development patterns consistent with those
outlined in the plan.
The purpose would be to soften the transition between the "Heart" and the Civic District while freeing up
valuable retail space along Main Street. The current Post Office location is owned by the USPS, and the
agency would need to approve any suggested change of location. As such an undertaking is a lengthy
process, it is recommended that discussions with the USPS be initiated in the near term.
Implementation Timing for the Post Office
Description YR 1 YR 2 1 YR 3 1 YR 4-6 YR 6-10 1 ONGOING
Initiate discussions with USPS X X
Follow-up Actions (Location/Replacement X X X X
Study/Facilitation)
Funding, Transportation and Land Use Improvements
In addition to the projects that have been identified as "catalyst projects", those seen as having the
potential to help "jumpstart" development and redevelopment activities, there are a number of other
projects and actions being recommended to help realize the public policy objectives of this Plan, and its
vision. These recommendations fall under several categories:
1. Transportation System Improvements
2. Code and Regulatory Adjustments
3. Funding Sources
4. Organizational/Follow-Up Actions
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 12 of 16
A. Funding
Specific public-improvement projects can come about as a result of local, state and federal grants, private
investment and donations, city general fund allocations and other sources of public financing. A variety of
funding tools, options and policies were discussed in the process of preparing this Plan, and detailed
information on these is provided in the appendices to this document.
As indicated above, Tigard has a number of financing tools currently in place, or easily activated to
generate revenue. A list of these tools and the activities needing to be pursued to enable the City to
generate the level of funding necessary to carry out the range of improvements recommended by this
plan is provided in the Funding Strategy Technical Memorandum.
Available Tools
➢ Tool: Land Assembly
o Action: Pursue land assembly of identified key parcels.
➢ Tool: Tax Abatements
o Action:Allow for property tax abatements for dense housing development, under the
State's Vertical Housing Tax Credit Program. Note: Can impact tax increment
revenues in an urban renewal district.
➢ Tool: Grants (Metro, etc)
o Action: Apply for Federal, State and Regional grants to help fund catalyst projects
Recommended New Tools
As mentioned earlier, there are additional, appropriate financing tools that are not currently in
place, and will require public approval to establish: Urban Renewal Districts, Business
Improvement Districts, Economic Improvement Districts or Local Improvement Districts. The
activities needing to be pursued to enable the City to generate the level of funding necessary to
carry out the range of improvements recommended by this plan is provided below.
➢ Tool: Urban Renewal District
o Action: Prepare an Urban Renewal District Study, prepare campaign for City-wide
vote
➢ Tool: Business or Local Improvement District
o Action: Explore establishment of committed funding sources to pay for identified
improvements.
It should be noted that implementing the recommended Downtown Improvement Plan is not reliant upon
any one of the above funding sources being available. By way of example, it is clear that the use of
urban renewal would provide the most significant source of funding for the development and
redevelopment of Downtown Tigard; to create an urban renewal district requires voter approval, given the
Tigard City Charter. Should the City pursue establishment of an urban renewal district and the action not
be supported by the voters, the Plan would still be capable of being carried out. However, the length of
time to generate other revenues to make the public investments needed to spur private investment would
lengthen considerably.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 13 of 16
Implementation Timing for Funding Improvements
Description YR 1 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Urban Renewal District
a. Plan now X
b. Ballot Measure (May 2006) X
Grants X X X X X X
Tax Abatements X X X X X
Districts LID/BID X X X X
Developing Partnerships & Funding X X
Downtown's Future Workshop
B. Transportation
Overall, the City's currently adopted Transportation System Plan (TSP)will accommodate the Preferred
Design Alternative without any significant impacts to the regional or local transportation system in the
study area. There are no modifications to the TSP recommended at this time as being needed to help
carry out this Plan.
As the TDIP is implemented, in addition to the continuous planning that will occur to achieve the
community vision, the following specific projects should be considered.
Near Term Actions:
➢ Plans and Policies. Continue implementing the plans, projects and policies identifies within the
adopted TSP.
➢ Achieve consensus on alternative Downtown Access Improvements. Extending Ash Avenue
from Walnut to Downtown Tigard is included in the adopted TSP; however some stakeholders
would prefer that the street not be constructed. The City will be undertaking an Ash Avenue
corridor study to address the improvements identified in the Ash Avenue Improvements catalyst
project discussed above. It is recommended that the City conduct an examination of potential
alternatives for improving access to downtown. Detailed travel demand to, from and within
Downtown and sub-area travel demand models should be developed to support this process. If
the identified access improvements do not include an extension of Ash Avenue across Fanno
Creek, it is recommended that the TSP be updated accordingly to remove it.
➢ Review City Pedestrian and Bicycle Plans. The City should review and modify current City
pedestrian and bicycle planning efforts to ensure that these support simple and feasible access
to, from and within downtown Tigard.
➢ Explore design requirements for"Green Street"street treatments. The TDIP calls for integrating
Fanno Creek into downtown Tigard. As part of this effort, Tigard should explore developing
design guidelines for green-street street treatments. Possibilities include integrating concepts
into traffic calming treatments, intersection control, drainage, and parking areas.
➢ Hall Boulevard and Highway 99W Cross-Sections. As the City of Tigard begins additional
planning work related to Highway 99W and Hall Boulevard, it is suggested the City work with
ODOT as early as possible to refine and define cross-sectional preferences and requirements
for these streets.
➢ Street Design Guidelines. The City of Tigard should participate as needed with ODOT and
Metro Staff to develop Highway Design Manual street design guidelines blending features of
both ODOT and Metro Street design requirements.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 14 of 16
Longer Term Actions:
➢ Parking Management Plan. Develop and implement a parking management plan that ensures
adequate short-term and long-term parking supply for residents, employees and patrons of
Downtown. This plan is not necessary until Downtown begins to grow and parking utilization
increases, but the study should be conducted prior to constructing any structured parking.
➢ Downtown Access. The results of the Ash Avenue evaluation and Downtown access study will
guide short-term and long-term transportation actions within Downtown that should be
implemented in the long term.
➢ At-grade Rail Crossing. It is desirable within Downtown Tigard, that a new at-grade crossing of
the railroad tracks be developed along the Ash Avenue alignment. City of Tigard Staff should
continue to work with Portland & Western Railroad and the ODOT Rail Division to identify
options for achieving this crossing. Challenges exist, and significant local and regional planning
efforts and engineering and constructions costs would be required to achieve consensus for a
new at-grade crossing.
Implementation Timing for Transportation Improvements
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Hall/99W Cross-Sections X
Downtown Access Alternatives X
Ped/Bike Plans
a. Update Plans X
b. Focus & Implementation on Downtown X
Parking Management Plan X
a. Monitor Ongoing Situations X X X X X X
b. Determine Catalyst Project Impacts X
c. Prepare Plan X
C. Land Use
Code and Regulatory Adjustments
Overall the existing Community Development Plan and Comprehensive plan ordinances and policies do
not present significant barriers to developing Downtown as conceived on in the Improvement Plan.
Nonetheless, a review of these documents revealed that although few barriers exist, the ability of the
existing regulatory framework to shape a growing Downtown as planned, more direct guidance is needed.
The following sections summarize the findings and recommendations of the Land Use Technical
Memorandum. Programming considerations are further discussed in the Implementation Strategy section
of this Plan.
Comprehensive Plan
To be consistent with the vision of the Improvement Plan, the City needs to make some relatively small
adjustments to policy statements and implementation strategies within the Comprehensive Plan. The
recommendations are focused on emphasizing the multi-functional character and vibrancy desired within
Downtown and also allow for consideration of additional funding mechanisms.
Development Code
Given the desired characteristics for an improved Downtown Tigard and the analysis of the current CBD
zoning in the Community Development Code, it is recommended that four new Town Center base zones
and two new Town Center overlay zones be created for Downtown. The recommended zones are
designed to guide uses as they are organized in the Preferred Design Alternative.
The City of Tigard already has several mixed-use zones that are specifically tailored to meet the needs of
other areas in Tigard. While built upon these existing mixed-use zones, the recommended zones provide
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 15 of 16
area-specific purpose statements and alterations to the development standards that tailor them to meet
Downtown needs.
1. Base Zones
The following "base"zones are recommended in order to help achieve the public policy objectives
and vision of the TDIP.
➢ TC-CBD: Town Center— Central Business District - Intended to retain the character of Main
Street while guiding higher density development to the east of Main Street, this zone allows
for mainly retail uses with some other uses considered conditional or limited.
➢ TC-MUC:Town Center— Mixed Use Commercial District—This zone is designed to meet the
needs of the regional retail center area at the intersection of Hall Boulevard and Highway
99W. It is focused on medium-box retail establishments but allows for supporting smaller
retail uses.
➢ TC-MUE: Town Center — Mixed Use Employment — Designed to provide for civic, office and
professional employment needs, this zone will also allow for limited residential development,
but is focused on office use. The purpose statement for this zone specifies that no residential
uses should be allowed adjacent to the rail corridor.
➢ TC-MUR: Town Center— Mixed Use Residential — This zone has two levels of intensity TC-
MUR(1) and TC-MUR(2) that provide for medium and medium to high residential density
districts. It allows for supporting retail uses.
2. Overlay Zones
As discussed earlier, the following "overlay" zones are recommended in order to help achieve the
public policy objectives and vision of the TDIP, and to ensure review and coordination of potential
development proposals that might have the ability to limit or preclude options for future uses pending
completion of recommended feasibility/refinement studies.
➢ Green Corridor/Urban Creek Overlay—As an interim step to achieving the Tigard vision for
a Green Corridor/Urban Creek in Downtown, this overlay zone directs the City to review all
development proposals through a conditional use process to allow for consideration of
development siting in relationship to a potential future public space.
➢ Fanno Creek Open Space Overlay—The Improvement Plan and Vision for Downtown call
special attention to the stewardship and enjoyment of Fanno Creek. A low-intensity, passive
recreation area is planned between Burnham Street and the Fanno Creek 100-year
floodplain, and this overlay zone is intended to restrict development uses only to passive
recreation as an additional protective measure for this critical area.
In addition to the base zone and overlay zone recommendations, the Land Use Technical
Memorandum suggests that the City's Special Development Standards should be evaluated further
by the Land Use Advisory Group being established by the Downtown Task Force. Some specific
areas recommended for attention include:
➢ Pervious paving treatments
➢ Vegetated stormwater treatment
➢ The expansion of options for joint parking facilities
➢ Sign standards for Downtown
➢ Visual clearance requirements
The first two items noted above are not currently addressed within the Special Development
Standards for the Central Business District. The latter three items should be examined and revised or
augmented to reflect the vision and guiding principles contained within this Plan.
Barbara Shields, Long-Range Planning Manager,City of Tigard
June 30, 2005
Page 16 of 16
3. Desiqn Standards
Tigard has previously developed design standards for the Tigard Triangle and Washington Square
Regional Center. In addition, some design standards existed within the regulations of the CBD
zoning designation. Considering these existing standards, it is recommended that the content of the
existing interim design standards for the CBD district and the adapted content and organization of the
Washington Square Design Standards be used as a basis for developing design standards for
Downtown Tigard that are consistent with carrying out the vision and guiding principles of this Plan.
Measure 37
The recent passage of Measure 37, requiring waivers of regulations or compensation to property owners
if regulations have the effect of reducing a property's value, presents a challenge to every Oregon
jurisdiction, as communities are still determining how to address it. Accordingly, the potential "Measure
37 impacts" of the Improvement Plan have yet to be addressed. It is recommended that this issue be
addressed by the City in consultation with the state, Metro, and other local jurisdictions as soon as
possible. Once Measure 37 issues are addressed, the Improvement Plan may need to be revisited if
adjustments appear to be required.
Regulatory Framework Timing
The overlay zones, especially the Green Corridor/Urban Creek overlay zone, need to be in place as soon
as possible to provide protection of the land to be used for the Fanno Creek Public Area and for the
Urban Creek from future development actions that might compromise opportunity and/or location of the
future improvement. Concurrent with the adoption of the overlay zones, the City will need to conduct a
Measure 37 analysis of the recommended zoning for Downtown Tigard. Following these actions,
adjustments to Comprehensive Plan should be refined and adopted to set the framework to guide the
future refinement and adoption of the changes to the Community Development Code.
Implementation Timing for Land Use/Code Improvements
Description YR 1 YR 2 YR 3 YR 4-6 YR 6-10 ONGOING
Refine &Adopt Overlay Ordinances X
Base Zones, Design Guidelines &
Development Standards
a. Refine Zones and Standards X X
b. Adopt Above X
Measure 37 Analysis of Zoning X
Recommendation
Comprehensive Plan Policies
a. Refine Policies X
b. Adopt Refined Policies X
D. Organizational Follow-up Actions
Task Force Advisory Groups
During Plan development, the Downtown Task Force formed three Working Groups to address projects,
tools and techniques for carrying out the plan in three categories: Financing; Catalyst Projects; and
"Brand Tigard" projects. It is recommended that the Task Force establish advisory groups to focus upon
carrying out the catalyst projects, identifying and implementing the "Brand Tigard" projects, and fleshing
out and adopting the proposed changes to the comprehensive plan and Community Development Code.
Downtown Program Staff
A number of the recommended actions for carrying out this Plan will require substantial support from staff.
Tasks requiring such support include establishment and maintenance of an urban renewal district(once
approved by Tigard voters), property owner outreach efforts, property assemblage, project development
and administration, housing program development and maintenance, and update/maintenance of a short-
term implementation strategy.