Ordinance No. 13-08 CITY OF TIGARD, OREGON
TIGARD CITY COUNCIL
ORDINANCE NO. 13-0q
AN ORDINANCE ADOPTING COMPREHENSIVE PLAN AMENDMENT CPA 2013-00001 AND
DCA 2013-00002 TO ADOPT THE POPULATION AND HOUSING REVIEW AS A COMPONENT
OF TIGARD COMPREHENSIVE PLAN GOAL 10: HOUSING; TO AMEND TIGARD
COMPREHENSIVE PLAN GOAL 10: HOUSING; TO AMEND TIGARD DEVELOPMENT CODE
SECTION 18.360; AND TO AMEND TIGARD COMPREHENSIVE PLAN GOAL 2: LAND USE
PLANNING
WHEREAS, Oregon Statewide Planning Goal 10 and Administrative Rule 660 Division 7 requires cities under
State Periodic Review to complete a population and housing review;and
WHEREAS,the City of Tigard is under State Periodic Review order;and
WHEREAS, Tigard City Council directed staff to complete a population and housing review to comply with
Oregon Statewide Planning Goal 10 and Administrative Rule 660 Division 7;and
WHEREAS,the City of Tigard was awarded grant monies from the Oregon Department of Land Conservation
and Development to fund the Tigard Goal 10 Population and Housing Review,which required the inclusion of
specific elements;and
WHEREAS,the Tigard Goal 10 Population and Housing Review is consistent with Oregon Statewide Planning
Goal 10 and Administrative Rule 660 Division 7;and
WHEREAS, the city has proposed an amendment to the Tigard Comprehensive Plan to update the Goals,
Policies,and Recommended Action Measures corresponding to Statewide Planning Goal 10 and Goal 2;and
WHEREAS,the city has proposed an amendment to the Tigard Development Code Section 18.360;and
WHEREAS,the Tigard Planning Commission held a public hearing,which was noticed in accordance with city
standards, on April 15, 2013, and recommended approval of the proposed CPA 2013-00001 and DCA 2013-
00002 by motion with unanimous support;and
WHEREAS, on May 28,2013, the Tigard City Council held a public hearing,which was noticed in accordance
with city standards,to consider the Commission's recommendation on CPA 2013-00001 and DCA 2013-00002,
hear public testimony and apply applicable decision-making criteria;and
WHEREAS, on May 28, 2013, the Tigard City Council adopted CPA 2013-00001 and DCA 2013-00002
pursuant to the public hearing and its deliberations;and
WHEREAS, Council's decision to adopt CPA 2013-00001 and DCA 2013-00002 was based on the findings
and conclusions found in Exhibit "D" and the associated land use record which is incorporated herein by
reference and is contained in land use file CPA 2013-00001/DCA 2013-0002.
ORDINANCE No. 13-0%
Page 1
NOW,THEREFORE,THE CITY OF TIGARD ORDAINS AS FOLLOWS:
SECTION 1: Tigard City Council adopts the Tigard Goal 10 Population and Housing Review(EXHIBIT
"A") as a component of Tigard Comprehensive Plan Goal 10: Housing.
SECTION 2: Tigard Comprehensive Plan is amended to include new text and rescind existing text as
shown in Exhibit"B"and Exhibit"C".
SECTION 3: Tigard Development Code is amended to include the new text and rescind existing text as
shown in Exhibit"D".
SECTION 4: Tigard City Council adopts the findings and conclusions contained in Exhibit "E" in
support of the Council's action and to be the legislative basis for this ordinance.
SECTION 5: This ordinance shall be effective 30 days after its passage by the council, signature by the
mayor,and posting by the city recorder.
PASSED: By 1
Of!t vote of all council members present after being read by number
and title only,this y of52013.
Catherine Wheatley,City Recorder
APPROVED: By Tigard City Council this�a 'day of ,2013.
John L. Cook,Vor
A oved as to form:
ity Attorney
Date
ORDINANCE No. 13-01b
Page 2
Prepared by:
Angelo
Planning Group
in partnership with
Johnson Reid
February
2013
Population an • Housing
Anelo '
planning $roup
TIGARD
Table of Contents
1. INTRODUCTION AND OVERVIEW.............................................................................................................................1
2. HOUSING CONDITIONS AND TRENDS.......................................................................................................................3
3. RECOMMENDED COMPREHENSIVE PLAN AMENDMENTS.........................................................................................6
4. RECOMMENDED CODE AMENDMENTS....................................................................................................................8
NEWHOUSING TYPE-COTTAGE CLUSTER........................................................................................................................................8
NEW HOUSING TYPES-LIVE/WORK UNITS....................................................................................................................................10
DUPLEXLOT SIZE STANDARDS.......................................................................................................................................................11
SINGLE FAMILY ATTACHED HOUSING STANDARDS.............................................................................................................................12
RESIDENTIAL INFILL REQUIREMENTS OR REVISIONS TO PUD STANDARDS...............................................................................................13
ACCESSORYDWELLING UNITS.......................................................................................................................................................14
PARKINGREQUIREMENTS.............................................................................................................................................................16
CLEAR AND OBJECTIVE STANDARDS FOR NEEDED HOUSING................................................................................................................17
DENSITYOR HEIGHT BONUSES......................................................................................................................................................18
OTHERINCENTIVES.....................................................................................................................................................................20
S. FUTURE PLANNING FOR NEW RESIDENTIAL DEVELOPMENT AND REDEVELOPMENT...............................................21
RIVERTERRACE..........................................................................................................................................................................21
DOWNTOWN.............................................................................................................................................................................22
TIGARDTRIANGLE.......................................................................................................................................................................25
WASHINGTONSQUARE................................................................................................................................................................27
OTHERCORRIDORS AND CENTERS..................................................................................................................................................29
6. ADDITIONAL NON-REGULATORY STRATEGIES........................................................................................................32
FAIRHOUSING REQUIREMENTS.....................................................................................................................................................32
DESIGN PRACTICES TO ENSURE ACCESSIBILITY..................................................................................................................................33
ADDITIONAL INFORMATION FOR PRIVATE DEVELOPERS......................................................................................................................34
CONTINUED SUPPORT FOR LOCAL AND REGIONAL AFFORDABLE HOUSING EFFORTS.................................................................................35
7. ADMINISTRATIVE AND FUNDING STRATEGIES........................................................................................................37
STAFFING..................................................................................................................................................................................37
STATUTORY AUTHORITY AND FEDERAL FUNDING..............................................................................................................................38
FINANCINGTOOLS......................................................................................................................................................................40
8. IMPLEMENTATION PLAN.......................................................................................................................................42
City of Tigard Housing Strategies Report Revised Draft—February, 2013
1. Introduction and Overview
Having affordable, quality housing in safe neighborhoods with access to needed community and other services is
essential for all Oregonians. Like other cities in Oregon,the City of Tigard is responsible for helping to ensure
that its residents have access to a variety of housing types that meet households and residents of all incomes,
ages and specific housing needs. As part of the process of periodically updating its Comprehensive Plan,the City
is evaluating the housing needs of its citizens and identifying strategies that the City and others can implement
to achieve them. Some of the City's specific housing goals include:
• Go beyond minimum state and regional requirements and develop housing strategies that respond to
the opportunities presented by a variety of community assets and opportunities, including potential
high capacity transit stations, redevelopment of downtown Tigard,and future development of the
recently annexed River Terrace area.
• Create opportunities to meet the aspirations that have been developed during the Metro region's
Making the Greatest Places process.
• Respond to current and evolving housing market conditions and trends
• Address the needs of an aging population and potential recovery from the recent housing downturn
• Maintain a high level of residential livability
• Support housing affordability, special-needs housing, ownership opportunities, and housing
rehabilitation
• Promote innovative,well-designed, and sustainable housing developments
This report summarizes a variety of local housing issues and strategies recommended to address them. It builds
on a comprehensive study of the local housing market and future trends and an in-depth review of current local,
regional, state and federal housing requirements,goals and initiatives. It was prepared in coordination with an
advisory committee of City of Tigard staff, Planning Commissioners and citizens, as well as representatives of
Washington County, Metro,the Oregon Department of Land Conservation and Development,the Oregon
Homebuilders Association and the Washington County Community Housing Fund. The work has been funded by
a grant from the Oregon Department of Land Conservation and Development as part of its Periodic Review grant
progra m.
Section 2 of the Report summarizes key housing conditions and future trends to provide context for the
strategies that follow. Section 3 briefly reviews recommendations for updates to the City's Comprehensive Plan
which are described in more detail in a companion "Goal 10 Housing Report." Sections 4 through 7 outline
additional strategies related to the following types of initiatives:
• Recommended amendments to the City's Development Code
• Future planning for new residential development and redevelopment
• Information sharing with housing developers and other community partners
• Intergovernmental coordination and advocacy
• Administrative and funding tools
City of Tigard Housing Strategies Report Revised Draft—February, 2013
9
page 2
Key strategies include:
• Update the Comprehensive Plan to briefly describe existing housing conditions and past and historic
trends, as well as to include new or revised housing goals, policies and action items that reflect the
results of this planning effort.
• Update the City's Development Code to include provisions for"cottage clusters" and "live-work"
housing units; enhance provisions and standards related to accessory dwelling units and single family
attached housing; refine parking requirements for senior and affordable housing developments in
existing or future high capacity transit areas;and provide for density or height bonuses to promote
affordable housing in selected areas.
• Implement a variety of zoning, design and market-based strategies to promote development of a range
of housing types in newly developing or future mixed use areas, including River Terrace,the Tigard
Triangle,Washington Square, Downtown and other potential future high capacity transit corridors or
centers.
• As part of various planning, development and permitting processes, provide information from other
sources to housing developers, home builders,and landlords regarding fair housing goals and
requirements,as well as design practices that help ensure accessibility for people with physical or
mobility limitations, including older residents.
• Continue to coordinate with and support Washington County,as well as local non-profit groups and
other housing developers or providers, particularly those that provide affordable or special needs
housing. Assist with siting and permitting efforts and generally support residential development
projects that further the City's housing goals and objectives and meet the City's planning and zoning
requirements.
• City staff should continue to address housing goals and implement housing strategies in a consistent and
coordinated manner,with a common understanding of the goals, priorities and approaches identified in
this report.
• Continue to provide a certain level of funding to support affordable and special needs housing projects,
including maintaining existing programs and considering additional strategies, as resources allow in the
future. More specific recommended actions are described in the following section.
Section 8 of the Report summarizes specific recommended strategies in an Action Plan that includes proposed
activities,timelines and roles for implementing each one.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 3
2. Housing Conditions and Trends
Tigard has a current population of approximately 48,000 people. As of the 2010 Census, it was the fifth largest
city by population in the Portland metro area (excluding Vancouver,Washington). It represents 3%of the total
population within the three primary metro counties and is the 13th largest city in Oregon.
Between 2000 and 2010,Tigard grew by 6,857 people, or 17%. This is somewhat slower than the Washington
County growth of 19%during that period, but greater than the state of Oregon's growth of 12%. Tigard
experienced slower percentage growth than the two largest Washington County cities of Hillsboro and
Beaverton (31%and 18% respectively). The percentage of families was basically unchanged between 2000 and
2010 at 65%of all households. This is very similar to the Metro area figure of 63.5%family households, and
Washington County's 66.8%.
At just over$59,000 in 2010,Tigard's median household income 11% higher than the Portland/Vancouver metro
area median, but was 10% lower than the countywide median. However,the average (mean) income in Tigard
of over$79,000 is actually higher than the countywide average of$75,821. This indicates that there are a larger
proportion of high income households which pull the average higher. The number of households at the lower
end of the income spectrum has fallen since 2000,which mostly reflects general wage inflation. 16%of
households earn $25k or less, down from 20%of households in 2000. The poverty rate is higher than average
among females (9.9%)and those under 18 years of age(8.7%). This is likely reflective of the heightened poverty
rate among young single mothers,which mirrors national trends.
Changing demographic trends that are likely to affect future housing needs in Tigard include the following:
• As a first-tier suburb in the Portland metro area,the City of Tigard will continue to benefit from the
general trend of migration to urban areas. The metro area as a whole can expect continued growth,
with different suburbs filling different niches in terms of housing affordability, lifestyle amenities, and
employment opportunities. Tigard can continue to prioritize bringing some of the benefits of a more
urban environment to the city,through the long-term redevelopment of the Downtown area, possible
addition of light rail service, and development of additional town center or station areas.
• Over the coming 20 years,the baby boom generation will remain healthier and more independent for
longer than their parents, meaning that the transition to retirement communities will be postponed or
never undertaken. The youngest in this generation will just be reaching the traditional retirement age in
20 years. A subset of the baby boom generation will be interested in opportunities to live in well-
planned and safe mixed-use communities in the future. The demand from older households for multi-
family housing opportunities in town centers should be significant enough to be addressed, but should
not be overstated. Also, older seniors may prefer or require single-level housing.
• It is generally believed that while a significant percentage of the millennial generation (people born
between the 1980s and 2000) claim to prefer the urban core,they truly mean the center of a larger city
(in this case central Portland), rather than a suburban environment. However,the eventual impacts of
affordability and life-stage decisions are likely to cause some significant share of this generation to
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 4
either never move into the urban core, or move back out at some point. Tigard, like many suburban
cities, can plan ahead for this generation by creating mixed-use town centers and station centers which
will provide some urban amenities. Transit options and opportunities to walk and bike will also be
attractive. For all of their differences,good schools and a safe environment will appeal to millennial
households just as much as to preceding generations.
• The percentage of immigrants in Tigard has increased somewhat but not dramatically since 2000. The
main impact of ethnic minorities and immigrant groups in Tigard and other suburbs will be continuing
demand for low-to-moderate cost housing options,and the type of larger housing units already found in
most suburbs. As long as the policies and land inventory allow for the production of multi-family units,
it will be possible to meet the rental need for immigrants and other populations. Demand for for-sale
housing will largely be met by older existing housing units,rather than new housing. It is likely that
immigrant households and first-generation American households will provide a key source of demand
for suburban boomer housing
A comparison between current housing supply and needs indicates the following:
• In general,there is a need for some less expensive ownership units and rental units. This is not
uncommon as the lowest income households struggle to find housing of any type that keeps costs at
30%of gross income.
• Among prospective ownership households,there is a solid supply of mid-priced housing between $170k
and$240k,as well as upper-mid-priced housing of$370k to$550k. This analysis estimates the need for
more for-sale housing in between these ranges,and at the upper end of the market.
• There is a general need for rental units at the lower and middle price levels. There are levels of
estimated surplus for apartments ($620 to$1060 per month), and for single family homes for rent
($1770-$3,530). These bands represent the average rent prices in Tigard,where most units can be
expected to congregate.
• Overall,there is a total surplus of 270 ownership units, and a current surplus of rental units of 631. This
is an estimate based on a model of general preferences of households in different age and income
cohorts to either own or rent.
• There are an estimated 901 units more than the current number of households, reflecting the current
estimated vacancy rate of 4.4%.
In considering future housing needs and the projected supply of land available to meet them in Tigard,this study
found the following:
• There will be a need for over 6,500 new housing units by 2030,with a stronger emphasis on new
ownership units. This total need includes the West Bull Mountain area.
• Of the new units needed, 76%are projected to be ownership units,while 24%are projected to be rental
units.This is because analysis of the current supply finds a greater vacancy of rental units(Figure 7).
Therefore,to rebalance the supply with the projected future need profile, more new ownership units
will be needed than rental units,while the current surplus of rental units needs to be absorbed.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 5
• Of the new units needed,the largest share (53%) is projected to be single family detached homes, due
again to the stronger need for new ownership housing. The remainder of units (47%)is projected to be
some form of attached housing.
• Single family attached units are projected to meet nearly 20%of future need.
• Duplex through four-plex units are projected to represent over 8%of the total need.
• 18%of all needed units are projected to be multi-family in structures of 5+attached units.
• Less than 1%of new needed units are projected to be manufactured home units in manufactured home
parks,which meet the needs of some low-income households for both ownership and rental.
Manufactured home units in manufactured home parks are projected to make up a small share of future
demand. Tigard has two large manufactured home parks, both of which are fully occupied. It is
projected here that there will on-going demand for manufactured home units(36 units) in keeping
roughly with the current share of mobile home units in the community.
• The projected preferences for future unit types are based upon historically permitted units since 1980,
cross referenced with the profile of currently available buildable lands,and how that will shape future
inventory. It is projected that in coming decades a greater share of housing will be attached types,
including attached single family.
• There is an adequate supply of land within Tigard zoned appropriately to meet future housing needs and
comply with state and regional housing requirements and goals.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 6
3. Recommended Comprehensive Plan Amendments
Tigard is required to update its Comprehensive Plan to reflect an analysis of existing and future housing needs.
In doing so, it must comply with a variety of state and regional requirements,some of which will necessitate
amendments to the City's Comprehensive Plan.
Recommendation CP1: Update the Comprehensive Plan to briefly describe existing housing conditions and
past and historic trends,as well as to include new or revised housing goals, policies and action items that
reflect the results of the current planning process.
Details and Actions
This Report has been prepared in part to support the process of updating Tigard's Comprehensive Plan.
Statewide Housing Goal 10 states that:
"Buildable lands for residential use shall be inventoried and plans shall encourage the availability of
adequate numbers of needed housing units at price ranges and rent levels which are commensurate with
the financial capabilities of Oregon households and allow for flexibility of housing location, type and
density."
To achieve this goal, cities and counties in Oregon are required to plan for future housing needs by undertaking
the following efforts.
• Assess current and future housing conditions and needs, including the need for housing of different
types and in different price ranges
• Ensure that the City has an adequate supply of land zoned for residential use to meet future land needs
• Adopt Comprehensive Plan policies and Development Code provisions that support future housing
needs, meet state and regional requirements and guidelines and address specific local housing goals and
objectives
The Housing element of Tigard's Comprehensive Plan was last updated in 2008. To ensure compliance with
state requirements, it will need to be updated to reflect the results of the housing needs analysis recently
conducted as part of this planning effort. Amendments are expected to entail the following.
a. Revised narrative and findings. The existing Comprehensive Plan includes an opening narrative and a
"Findings"section that briefly summarizes existing housing and population conditions and previous and
projected future trends. It is recommended that this section of the Comprehensive Plan remain
relatively brief and focus on the same types of information currently addressed in the Plan. However,
specific information related to the following topics should be updated:
• Economic and demographic conditions and trends
• Need for housing overall and for specific types of housing units
• Land and zoning designations associated with housing needs
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 7
b. New or revised goals, policies and action measures. The existing Comprehensive Plan includes a very
well-rounded set of goals, policies and action measure intended to help the City meet the future housing
needs of its residents. In general,this section of the Comp Plan is already supportive of and consistent
with the housing issues and needs evaluated during this planning effort. However,several additional
policies and action measures have been identified for inclusion in an updated Comprehensive Plan.
They generally relate to the following:
• Explicit restatement of statewide Goal 10
• Support for Fair Housing Act
• References to additional housing types and needs
As noted above, information proposed to be included in the Comprehensive Plan is described in detail in the
Goal 10 Housing Report which will be included as an appendix to this document when completed.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 8
4. Recommended Code Amendments
One of the primary ways in which a city can help ensure that residents have access to a variety of housing types
at different price ranges is through the preparation and administration of their development code.
Development codes or zoning ordinances set the stage for what types of housing can be built in which parts of
the community and under what conditions. They also typically govern the design of new housing and how
housing relates to other land uses and services. While the City has a limited ability to affect the ultimate cost of
housing, standards related to lot sizes, architectural design features, parking and other aspects of housing can
affect housing prices.
This report addresses a number of different issues associated with Tigard Community Development Code (TCDC)
and recommends a variety of strategies for addressing future housing needs. Strategies are intended to ensure
access to a variety of housing types, including emerging or non-traditional housing types,to maintain and
improve residential livability, and to promote innovative,well-designed,and sustainable housing and to
encourage construction of needed or desired housing types in specific locations.
New Housing Type—Cottage Cluster
The cottage cluster housing type can be an economical way to provide additional housing choices, including
renter or owner occupied housing that meets the needs of people with moderate incomes and/or first-time
homebuyers. It also can be constructed on infill sites and designed and built to ensure compatibility with
surrounding housing and residential neighborhoods. While this type of housing can be built under existing
requirements (e.g., planned development and subdivision or multifamily), new or revised standard that are
unique to cottage clusters will make it easier to site and construct them and will expand opportunities for
different types of housing Tigard.
Recommendation CA1: Update the TCDC to add a new code section specific to cottage clusters.
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Examples of Cottage Clusters
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 9
Details and Actions: Cottage housing developments or"cottage clusters" consist of small houses, each usually
with less than 1,000 square feet of floor area, oriented around a common open space area and with shared
parking, and often with other common amenities. Depending on the cottage cluster development, cottages
might be owned fee simple (each on its own lot) or as part of a condominium plat where the !and is owned in
common but the buildings are individually owned. Typically the open space and parking areas are owned and
maintained in common. This housing type may be more likely to be developed in Tigard if the TCDC were
amended to address its unique attributes as described in more detail below.
Typical Standards for Cottage Clusters
Purpose. This section should outline the intent of providing standards for cottage housing development as an
alternative housing choice in order to encourage creation of usable common open space in residential
communities,promote neighborhood interaction and safety through design;ensure compatibility with
surrounding neighborhoods;and provide opportunities for creative infill development.
Applicability. This section should explain when and where cottages are allowed.
Site requirements. This section should establish the minimum and maximum number of cottages per development
density bonuses, lot coverage, as well as the minimum starting lot size,if any. Setbacks and the relationship
of the buildings to public streets and open space need to be addressed in a manner which recognizes that
cottage cluster developments may not have interior lot lines.
Building requirements. This section should establish the maximum size for each cottage(e.g.,building footprint and/or square
footage,height), whether attached units are
permissible,any specific rules about porches, Example-Site requirements for a cottage development
detached garages,or fences,and whether
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existing dwelling(s)on a site can be retained. Che**Iki:,g plus
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be appropriate here as well(e.g.,materials and mounts� ------i---- min.10'Open
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Parking and access. Because parking within a cottage
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multifamilydevelo development than a single famiSpam perly P 9 f Y �f� ! l,' i'
home(e.g., common parking areas with
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and driveways), unique standards for parking Common Open: �_____ �- L i (10130 SF mak.footprmt)
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requirements may be appropriate. 0 - - Tzrmirirnum
Front yards
Communitybuildings and accessory structures. Guest f"`ntpubfi i Mani num cottage
9 Y ROri min.15• i--- footprint of 1.000 SF
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could be included as part of a community ; '+ /—from Property line
building. Other accessory structures may or !
may not be shared. This section should
establish size standards for shared and ? ;
individual facilities as well as any special
design requirements for compatibility may
be needed. --- ! BOR
Parking�ocexd
betund or to side of
Private and common open space. Common open space dwellmgs
City of Tigard Housing Strategies Report Revised Draft-February,2013
page 10
is a defining characteristic of a cottage housing development. This section should establish the minimum
amount and dimensions of common open space to be provided as well as whether constrained lands(e.g.,
wetlands)can be included. If any specific landscaping requirements Private open space for each unit may be
required as well.
Ownership options. The code should allow ownership to be fee simple lots with a homeowner's association holding
common areas, or condominium ownership of the whole development.
Project advisory committee members supported these recommendations, noting that allowing for a variety of
housing options, including cottage cluster housing will meet city, regional and statewide goals of providing for a
range of housing types for people with different income levels and housing needs.
New Housing Types—Live/Work Units
Live/work units (especially live/work apartments or townhouses)are an emerging housing type. They can
provide flexibility by combining residential and commercial uses, and can allow residential uses on the ground
floor until the market is ready to support retail in these spaces. Live/work development could be considered in
Tigard's commercial districts(C-C, C-G, and C-P),which currently only allow residential uses: 1)conditionally as
group or transitional housing (C-G zone); 2)outright as mixed uses with commercial on the second floor or
above; or 3)as multi-family housing subject to PD regulations. Live/work could expand the flexibility of
residential and commercial uses in these zones, effectively increasing the residential capacity and meeting other
housing and land use goals in the City's mixed-use zones.
Recommendation CA2: Update the Development Code to add code provisions specific to live/work
apartments or townhouses in the C-C,C-G,and C-P zones.
Details and Actions: Live/work units are dwelling in which a business may be operated on the ground floor. They
are similar to a home occupation except that because they are in commercial or mixed use zones,they typically
have greater allowances for commercial area,visibility, signage,and access from the primary street. In order to
better enable live/work apartments or townhouses,these housing types should be defined and special
standards adopted that recognize their unique attributes.
Typical Standards for Live/Work Units
Definitions.
Live/work Townhome A residential,fee simple townhome unit in which a business may be
operated. The commercial or office portion of the building shall be limited to the ground floor
and may not exceed 50 percent of the square footage of the entire building, excluding the
garage.
Live/work Apartment:A primarily residential multi-story, multi-unit building with a maximum of
50 percent of the building ground floor square footage used as commercial or office space.
Residential units may be for rent or for sale in condominium or cooperative ownership.
Standards. Standards for live/work units typically address primary street frontage, off-street
parking,signs, and special standards including noise,storage,public access, and hours of
operation. Live/work provisions from other jurisdictions more specifically regulate the
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 11
commercial uses in live/work units, open space requirements, and conversion to and
conversion of live/work units depending on zoning district.
Project advisory committee members supported these recommendations, noting that allowing for live/work
units will help meet goals for residential and mixed use development in a number of neighborhoods where more
housing is needed or desired.
Examples of Live-Work Townhome and Apartment Units
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Duplex Lot Size Standards
Duplexes can provide for a mix of housing types and ownerships in otherwise purely single family
neighborhoods, including helping meet the needs of people with moderate incomes who want to enter the
housing ownership market. The medium-density R-7 zone permits duplexes outright; however,there is no
incentive to build them—both detached single family dwellings and duplexes require 5,000 sf per unit. Within
the R-4.5 zone duplexes are only allowed conditionally; however,the code provides an incentive for their
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 12
construction;a duplex is permitted on a 10,000 sf lot, but two single family detached houses would require
15,000 sf. A comparable incentive in the R-7 zone would mean a minimum lot size of 7,000 to 7,500 sf for
duplexes. This change could be made for all lots or only on corner lots. The added benefit of encouraging
duplexes on corner lots is that it can help solve the issue of fenced side yards adjacent to the sidewalk.
Recommendation CA3: Reduce the minimum lot size for duplexes in the R-7 zone from 10,000 sf to 7,500 sf.
Details and Actions: Amendments to the following code sections would be needed to implement this
recommendation:
■ Amend Section 18.510.020(List of Zoning Districts), subsection E (R-7: Medium-Density Residential
District)to change the description of the minimum lot sizes for duplexes.
■ Amend Table 18.510.2 Development Standards in Residential Zones to change the minimum lot size
for duplexes. If the lot size reduction is limited to corner lots,then an additional footnote would
need to be added to the table explaining that distinction.
■ Duplex lots would need to be designated on the plat in order to ensure compliance with minimum
density requirements.
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Example of a duplex on a corner lot
Project advisory group members generally supported this recommendation. However,they noted that if
duplexes were to make up a significant portion of housing in single-family zones, it could affect the overall
character and density of existing neighborhoods and that decision-makers should be aware of that issue.
Single Family Attached Housing Standards
The Housing and Population Study identifies a growing need for single-family attached housing,with that
housing type projected to account for approximately 20 percent of future new housing units, with construction
anticipated in medium density residential and mixed use zones. New single-family attached housing is
permitted in the R-7 through R-40 residential zones and in the MU-CBD zone. It is also allowed within the R-4.5
zone, but only as part of a planned development. Currently, single-family attached housing is subject to site
plan development review (TCDC 18.360.090). The TCDC does include some standards for single-family attached
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 13
housing which apply in specific circumstances locations (e.g.,TCDC 18.720 which applies in R-4.5 to R-40 zones,
when abutting"property zoned for single-family residential development"and TCDC 18.610.030 which applies
in Downtown). However,the review process for single-family attached housing needs to consider specific issues
related to the creation of narrow lots that are laid out with a particular building design in mind as well as scale
and design.
Recommendation CA4: Adopt single-family attached housing standards as special development standards for
use citywide.
Details and Actions: As noted above, because of the unique nature of single-family attached housing, it would
benefit from special development standards intended to control development scale;avoid or minimize impacts
associated with traffic, parking, and design compatibility; and ensure management and maintenance of common
areas.
Typical Standards for Attached Single-Family Housing
Lot requirements(that apply to the subdivision)
a. Some flexibility in lot width maybe appropriate to allow narrower interior lots and wider
exterior lots(esp. where necessary to meet special setbacks).
b. The need for alley access to minimize curb cuts
c. Requirements for common areas and shared maintenance of the building
Building requirement. Design standards that ensure entry visibility and minimize garage frontages
and neighborhood compatibility(esp. in lower density zones facades should include porches,
projecting eaves and overhangs, and other traditional architectural elements that provide
residential scale and help break up building mass).
Concurrent review. The code should require concurrent review of the building design to ensure that
the structures to be built on the lots can meet both the lot and building requirements.
Residential Infill Requirements or Revisions to PUD Standards
While the City's existing PD standards provide flexibility for residential development and work well for larger
scale developments,the process may not be appropriate for small scale infill projects. One option would be to
amend the PD standards; however,adopting cottage development standards as recommended above could
potentially address this issue more effectively. This could help reduce barriers to and provide more options for
infill residential development while also generally preserving the character of single-family residential
neighborhoods.
Recommendation CAS: Retain existing PD standards and consider adopting separate cottage housing
provisions to address small scale projects
Details and Actions:See cottage development recommendations above.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 14
Accessory Dwelling Units
By providing small scale housing in single family neighborhoods, accessory dwelling units provide a unique
housing opportunity, particularly for aging residents and smaller households,whose housing needs are
highlighted in the analysis for this study. While ADUs are an appropriate housing type for residential areas
throughout the city,they can be particularly important in areas with good access to transit and services for aging
residents or those who choose not to own a car. The City's current standards for Accessory Residential
[Dwelling] Units (ADUs) may limit the development of ADUs by restricting certain designs, requiring additional
parking, and limiting the size of the unit in relation to the primary dwelling. In addition to encouraging ADUs
through changes to the TCDC,some jurisdictions reduce or waive System Development Charges (SDCs)for ADUs.
While it may be beneficial to encourage ADUs, additional standards that help ensure neighborhood
compatibility also may be helpful to avoid opposition from residents in established neighborhoods.
Recommendation CA6: Amend TCDC 18.710.020 to allow more opportunities for ADUs as well as additional
standards to address neighborhood compatibility. In addition, consider waiving or reducing system
development charges(SDCs)for ADUs.
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Example of Accessory Dwelling Unit Site Layout
Source:Southwest Independence Concept Plan Designing for Density Presentation(September 21,2011)
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 15
Details and Actions: 18.710.020(B)Accessory Residential (Dwelling)Units (ADUs)could be amended as shown
below to address the issues described above.
Preliminary draft amendments to 18.710.020(B)Accessory Residential Units.
,g-t 4 the strwetuc ;Building materials and facade features of the accessory residential
unit shall be similar to the primary unit;
2.An accessory residential unit may not be larger than ewweed 0,%-f the size 4*"e ,.. .a Hni
te-a nqe*imi4n+4 800 square feet,
3. The number of residents permitted to inhabit the accessory residential unit is regulated by the
State Building Code;
4. Either the primary or accessory residential unit must be owner-occupied;
5.A primary residence in which an accessory residential unit has been created may have only one
home occupation;
Scr ening or buffering between the accessory residential unit
and housing on an adjacent lot may be required to address concerns about privacy:
7. The front door of the accessory residential unit shall not be located on the front facade of the
primary unit unless the door is already existing;
B. There shall be compliance with all development standards established in the base zone.
If the City considers reducing parking requirements for ADUs as shown in the amendments above, it may want
to focus those changes in areas with frequent transit services and access to commercial or other services that
reduce the need for residents to own a car. This topic in particular will require careful consideration and
conversation with decision-makers and other community members given concerns frequently raised about
parking issues in residential and mixed use neighborhoods, as noted by project advisory committee members.
Finally, as noted above,the City may want to consider waiving or reducing system development charges
associated with ADUs given that they must be developed in combination with an existing primary dwelling that
may already have paid an SDC,they typically use fewer resources in comparison to primary dwellings, and they
do not represent the development of any new land or neighborhoods. The City of Portland has recently seen a
City of Tigard Housing Strategies Report Revised Draft—February,2013
Page 16
increase in the development of ADUs and developers and affordable housing advocates attribute this in part to
the city's recent decision to waive SDCs for ADUs there.
Parking Requirements
Off-street parking requirements and the way in which they are calculated can have an impact on the cost of
housing and ability to develop it in certain areas, reducing the cost of housing and allowing for construction of
housing that meets the needs of households with lower or moderate incomes. In addition, parking needs can
vary in different parts of the community with the potential for less parking needed for certain types of uses and
lower parking demand in pedestrian-oriented areas with better access to frequent transit services. Reducing
parking requirements for developments that may require less parking can also serve as a potential incentive to
encourage desired types of development.
Recommendation CA7: Consider revising parking standards to allow for the following,either on a citywide
basis or in areas with existing or planned future high capacity or other frequent transit service:
• On-street parking credits
• Reduced or simplified parking space requirements for affordable,senior and/or other housing projects
Details and Actions:
On-street Parking Credits
Currently,the TCDC explicitly prohibits counting on-street parking as part of required minimum parking(TCDC
18.765.070.D.1).
The Model Code(Section 3.3.300.C) recommends crediting on-street parking if that parking is located on the
street adjacent to the development and that the parking is for public use (not restricted to the development's
use) and is not planned or needed for adjacent commercial or retail uses. It is recommended that the City
consider adopting a similar provision.This provides a relatively modest parking credit but it can reduce
development costs, particularly for developments which incorporate structured or garage parking for housing.
The City could consider adopting this provision city-wide but it may be more appropriate to consider this change
only in areas with frequent transit service or in mixed use areas with good access to public facilities and services
and shopping areas.
Parking Space Requirements for Residential Uses
City parking standards current vary by residential development type,with higher parking standards for multi-
family housing and group housing,with 1.00 spaces required for multi-family housing units of less than 500
square feet in size, 1.75 spaces required for multi-family units with three or more bedrooms, and one space per
bedroom required for group living(Table 18.765.2).'Scaling back parking requirements, particularly for senior or
affordable housing projects,would help reduce development costs for these types of housing and would be in
line with standards recommended in Oregon's Model Development Code. As with the strategy above, it may be
more appropriate to consider these changes only in areas with frequent transit service or in mixed use areas
1 Only one space per multi-family housing unit is required in the MU-CBD zone(Downtown).
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 17
with good access to public facilities and services and shopping areas (similar to existing provisions in the
Downtown area).
TCDC 18.360.080(Exceptions to Standards) already provides for an exception or reduction in the
amount of off-street parking required in certain situations. However, including some standard
reductions in Table 18.765.2 (Minimum and Maximum Required Off-Street Vehicle and Bicycle Parking
Requirements), rather than requiring the applicant to request an exception, might serve to encourage
senior housing by reducing the inherent risk in discretionary review.
B. Exceptions to parking requirements. The Director may grant an exception or deduction to the off-street
parking dimensional and minimum number of space requirements in the applicable zoning district based on
the following findings:
1. The application is for a use designed for a specific purpose which is intended to be permanent in
nature, e.g.,senior citizen housing, and which has a demonstrated low demand for off-street parking;
2. There is an opportunity for shared parking and there is written evidence that the property owners have
entered into a binding agreement to share parking;or
3. There is community interest in the preservation of particular natural feature(s)on the site, public
transportation is available to the site, and reducing the standards will not adversely affect adjoining
uses, therefore the public interest is not adversely affected by the granting of the exception.
C. Exceptions for private or shared
In considering the above recommendations related to parking requirements, it will be important to provide
opportunities for community conversation about them. Relaxing or reducing parking requirements often
generates concern among residents in affected neighborhoods who expect potential adverse impacts on the
supply of parking and the related need to walk or drive longer distances to access their homes or other nearby
destinations. Project advisory committee members noted these concerns and suggested that lower parking
requirements may be most appropriate in neighborhoods planned or zoned for high capacity transit service or a
concentration or nearby services and amenities within easy walking distance where the incidence of car
ownership is lower.
Clear and Objective Standards for Needed Housing
ORS 197.307 states that:
(4)Except as provided in subsection (6)of this section, a local government may adopt and apply only
clear and objective standards, conditions and procedures regulating the development of needed housing
on buildable land described in subsection(3)of this section. The standards, conditions and procedures
may not have the effect, either in themselves or cumulatively, of discouraging needed housing through
unreasonable cost or delay.
The development standards in TCDC 18.510.050 that apply within the residential zoning districts appear to be
clear and objective. However,all new residential development except for single-family detached units and
duplexes is also subject to Site Development Review(SDR). SDR applications are processed as a Type II
procedure using the approval criteria contained in TCDC 18.360.090.The SDR approval criteria address the
relationship between the built and physical environment, building fagade features, private and shared space,
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 18
and transit access and amenities. In addition to needed housing,these approval criteria apply to a wide range of
development types within the City(e.g.,commercial, industrial, etc.)that are not subject to the requirement for
clear and objective standards.
Recommendation CAB: Review the Site Development Review approval criteria contained in TCDC 18.360.090;
for those criteria that are not clear and objective,confirm that the issue is sufficiently addressed by other
code standards;and,exempt needed housing(or residential development generally)from those criteria that
are not clear and objective.
While most of the SDR approval criteria appear to be clear and objective,some do appear to allow for more
discretion. For example,criterion#4(Buffering, screening and compatibility between adjoining uses) requires
buffering between different types of land uses,for example, between single-family and multiple-family
residential, and residential and commercial uses. However,what constitutes an "adequate" buffer is
determined from considering a list of relatively subjective factors. Similarly,some of the specific language (e.g.,
subsections (a) and (b)) under criterion#10(Crime prevention and safety)also may not represent clear and
objective standards.
For residential uses, in some cases the existing standards (e.g.,setbacks, landscaping and other standards in TDC
18.510, as well as standards for streets and utilities in TDC 18.810) may be sufficient to address the issue
without the additional level of discretion provided by the approval criteria. In cases where the existing
standards are not sufficient,the criteria could be reworked and relocated to a new section with development
standards for attached and multi-family housing(NOTE: new code section could be included in 18.700 Specific
Development Standards or in 18.510 Residential Zoning Districts). SDR approval criterion#1 already requires
compliance with all of the applicable requirements of this title. Thus,for needed housing,the approval criteria
could be simplified to require compliance with the code standards per approval criteria#1 without necessarily
having an adverse impact on the quality of development.
Some examples of how this might be implemented are outlined below:
■ Criterion#3 (Exterior Elevations)–While this criterion is clear and objective, it is also a design
standard for single-family attached and multiple-family structures that might be better relocated to
a new section with development standards for attached and multi-family housing(NOTE: new code
section could be included in 18.700 Specific Development Standards or in 18.510 Residential Zoning
Districts).
■ Criterion#4(Buffering)–As noted previously,this criterion is may be too discretionary to be used
for needed housing. A more quantitative buffering standards could be included with the standards
for single-family attached and multiple-family structures, identifying depth, planting materials and
density/height. There are good examples in other jurisdictions where buffering requirements have
been quantified.
■ Criterion#5 (Privacy and noise—Multifamily or group living uses)–Similar to Criterion#4,this
criterion could be rewritten as a clear and objective standard and relocated to the standards for
single-family attached and multiple-family structures.
City of Tigard Housing Strategies Report Revised Draft–February, 2013
page 19
■ Criterion#6 (Private outdoor area—Multifamily use)and Criterion#7 (Shared outdoor recreation
areas—Multifamily use)–Similar to Criterion#3,these criteria already function as standards and
should be relocated to the standards for single-family attached and multiple-family structures.
■ Criterion#8-This criterion establishes a requirement for developments located adjacent to the 100
year floodplain. As written the criterion is somewhat subjective and potentially ineffectual as it
simply requires "consideration" of a greenway dedication suitable for a pedestrian/bicycle pathway.
Rewriting this criterion to include a reference to compliance with an adopted pedestrian/bicycle
plan would help clarify and strengthen the requirement.
■ Criterion#9 and#10–These criteria address crime prevention. While they provide good guidance
for residential and non-residential developments,they are potentially too discretionary for needed
housing. They could potentially be rewritten as standards, but it might be more practical to treat
them as guidelines for needed housing.
■ Criterion#12 (Landscaping)–This criterion contains landscaping standards that might be better
located in Section 18.745 (Landscaping and Screening). In addition,Criteria#12.b and c require
specific amounts of landscaping(20%for parking areas and 15%over all)which do not reflect
differences between residential, commercial, office or industrial uses.
Density or Height Bonuses
Encouraging the development of affordable housing by offering density and/or height bonuses can work in areas
where demand is constrained by zoning requirements. It also can potentially act as an incentive to building
specific types of housing needed or desired in specific areas. Residential developers in Tigard appear to find the
standard height and density requirements adequate to build their projects. Currently,there seems to be little or
no demand for height and/or density bonuses, and in some zones achieving the minimum densities may actually
be more of a concern to developers than exceeding the maximums. Project advisory committee members noted
that while the current market conditions don't suggest a significant demand for density or height bonuses,there
may be some types of projects that would benefit and changing demographics could lead to further interest in
these incentives in the future.
Recommendation CA9: Adopt density and height bonuses as incentives for affordable housing.
Details and Actions: Height and density bonuses for the provision of affordable housing in market-rate
development could be available in residential as well as mixed use zones. The affordable housing units would
not have to be limited to state or federally subsidized projects. Private deed restrictions could be used to ensure
that rental units remain affordable for a period of time (e.g., 30 years)and renters would have to be meet
income-qualifications. For affordable units that are for sale, buyers would also need to be income-qualified and
appreciation would be limited to so that the unit remains affordable if resold. In terms of code amendments to
implement this recommendation, one approach would be to create a new section in 18.700(Specific
Development Standards). Code provisions for affordable housing typically address the following:
■ Applicability,which zones or subareas (e.g. areas within x distance of high capacity transit)
are the incentives available;
City of Tigard Housing Strategies Report Revised Draft–February, 2013
page 20
■ Definitions, including those defining "affordable housing"and "low-and moderate-income
households";
■ The specific type and amount of incentives (bonuses)available;
■ Procedures for the review of affordable housing developments;
■ A requirement that the developer of housing enter into development agreements that will
ensure that the affordable housing,whether for sale or for rent, remains affordable;
■ Designation of an officer or body to review and approve applications for developments that
include affordable housing; and
■ Provisions for enforcement.
NOTE: The City of Tigard will likely need to work closely with the Washington County
Department of Housing Services and the Housing Authority to implement these provisions.
Development code provisions in the North Bethany and Hillsboro areas may provide examples for future use by
the City as it considers these types of code provisions.
Other Incentives
As noted above, height and density bonuses may be of somewhat limited benefit in the near-term. However,
several of the other recommendations above may encourage a variety of housing types and could be further
targeted toward affordable housing. For example, reducing parking requirements for ADUs and allowing them
to be detached as well as attached will serve to encourage this housing type. Similarly, reducing the amount of
off-street parking required for multi-family would serve to reduce the per unit cost of providing that housing. As
noted above,these reductions should be tied to the availability of frequent transit service. In addition, parking
reductions could be specifically targeted at affordable housing projects and/or senior apartment projects within
transit served areas to provide additional incentives to build these types of housing. Because providing required
parking is often a limiting factor when developing multi-family, parking reductions may be needed in order for a
development to take advantage of the density bonuses.
Recommendation CA10: Implement recommended ADU,parking and height and density bonuses suggested
above.
Details and Actions: No additional actions needed—see recommendation above.
City of Tigard Housing Strategies Report Revised Draft—February,2013
9
Page 21
5. Future Planning for New Residential Development and
Redevelopment
Several areas in Tigard represent unique opportunities to meet different type of housing needs for city
residents,either because they are relatively undeveloped and represent new growth or expansion area (e.g.,
River Terrace) or because they have opportunities for more intensive residential or mixed use development
given their location, zoning and access to community services and transportation facilities (e.g.,the Tigard
Triangle, Downtown and Washington Square areas). A number of the recommendations described in Sections 4,
6 and 7 would be appropriate for implementation in these areas and are described in more detail in those
sections of this report.
General Recommendation FP1: Pursue a variety of strategies to support,encourage or require residential
development in these areas that is consistent with city housing goals, other recent or future planning
processes and additional strategies described in this Report.
River Terrace
Recommendation FP2: Plan and zone land for residential use in this area that balances regional density
requirements (an average net density of 10 dwelling units per acre is required)with a community desire to
develop neighborhoods that emphasize single-family detached homes.
104
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9
West Bull Mountain Concept Plan Preferred Land Use Alternative
Source:West Bull Mountain Concept Plan,Washington County,October,2010
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 22
Details and Actions
The City is currently in the process of developing the River Terrace Community Plan for the areas that were most
recently brought into Tigard's portion of the UGB.z This includes lands addressed in the West Bull Mountain
Concept Plan, including the recent River Terrace annexation (Area 64),as well as urban growth boundary
expansion area 63 and the 50-acre Roy Rogers West area. The West Bull Mountain Concept Plan calls for a
range of housing types and zoning designations. The River Terrace Community Plan is expected to be generally
consistent with the Concept Plan. Zoning in the area will have to meet regional targets for an average density of
10 dwelling units per acre. At the same time,this area is seen as an area that is appropriate for the
development of neighborhoods predominantly characterized by single-family homes on individual lots. The City
will need to balance these objectives as it moves forward with the Community Plan process. Specific strategies
to do this may include:
• Ensure that zoning is in place to allow an appropriate mix of single-family and multi-family development.
Traditional single-family neighborhoods in a suburban environment tend to be somewhat segregated
from other uses,and cover a larger area. In order to ensure thriving single family residential
neighborhoods in this area, multi-family housing should be clustered in limited areas, near any planned
commercial uses, and perhaps buffered from single family residential development with medium-
density residential such as townhomes.
• Single family lot sizes that average somewhat smaller than those typically found in the Bull Mountain
area can help ensure that density targets are met. However, in this locale, lots which are too small
(perhaps<4,000 square feet) may face a marketing challenge. A mixture of larger and smaller lots can
produce a lower average lot size, while preserving housing choices.
• The River Terrace area currently features large parcels of land which will facilitate master planned
development and subdivision-style development. The current ownership pattern is advantageous for
more rapid development of the Plan Area as opposed to piecemeal development, and should help avoid
the need for public assembly of land.
• Despite the recent housing downturn, homebuilding is returning to the Metro Area,and this area can
anticipate interest in large-scale residential development in this area, if not in the next five years,then
likely in the next 10 to 15 years.
• Development will be facilitated by an adopted Community Plan, zoning and code changes,which create
certainty in the permitting and development process.
Downtown
Recommendation FP3:Continue to implement ongoing planning,urban renewal, marketing and other efforts
aimed at Downtown redevelopment,as well as implementing applicable development code strategies
identified in Section 4 of this report.
z More information about the River Terrace Community Plan is available online:http://www.tipard-
or.gov/city hall/departments/cd/long range planning/river terrace.asp
City of Tigard Housing Strategies Report Revised Draft—February, 2013
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page 24
Details and Actions
The City's long term vision for the Downtown assumes a mix of housing, retail and commercial development
with a well-connected, walkable street system and good connections between the Downtown and adjacent
neighborhoods. The City continues to work on a number of strategies for implementing this vision, including
using urban renewal funds to finance street improvements and support new multi-family housing and to
develop a Downtown Connectivity Plan and implementing standards to help ensure improved connectivity in the
future. All of these strategies will help achieve land use and housing goals for this and other centers in Tigard.
Zoning for the Downtown is primarily mixed use commercial and residential. As discussed in Section 4 of this
report, a number of development code amendments are recommended to enhance the ability to permit future
mixed use or higher density residential development in Tigard, particularly on infill parcels. Some of the
strategies described in Section 4, including those parking requirement and density or height bonuses may be
applicable to the Downtown and would serve as incentives for construction of housing in this and other regional
centers and/or areas with existing or potential future access to high capacity transit. Application of funding
strategies in this area, including use of fee waivers, urban renewal and tax abatement also would serve as
incentives to provide needed housing types in this area. Focusing development in this area which already has
available infrastructure and access to services also will reduce infrastructure-related costs of development in
this area.
Given the nature of existing conditions there, most future development in Downtown is likely to occur as
redevelopment either on individual sites or through consolidation and redevelopment of multiple properties.
The pace and character of this development will depend on a variety of market forces, as well as the availability
of developable sites within the area. The City can support these efforts through some of the strategies
described in Sections 4, 6 and 7 of this report, including:
• Continue to implement the improvements identified in the Downtown Connectivity Plan. This plan calls
for improved access among the mix of land uses in the Downtown area, as well as the eventual division
of the Downtown's "superblocks." Improving access into the interior of these superblocks will make
them more attractive for the type of urban residential development envisioned. Improving east/west
multi-modal access through the district will also encourage redevelopment through making the
neighborhood more cohesive.
• The City currently has access to a range of development tools,either internally(i.e. Urban Renewal), or
through regional partners such as TriMet and Metro,to offer incentives or subsidies for private
development. Tigard should continue to seek opportunities to facilitate one or more residential, mixed-
use or transit oriented developments which provide an example of density and design sought in the
Downtown area. While public participation is limited by available funds and political considerations,the
importance of the Downtown and extensive vision which has been developed for the district, make this
neighborhood a good candidate for such involvement.
• Implement the code-related strategies described in Section 4 of this report, including those that can
serve as an incentive to residential and mixed use development. Monitor current standards for
Downtown development and design as identified in the Development Code for any requirements which
are hampering residential development,and may need to be amended. Property owners and
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 25
developers can often identify obstacles during the planning and permitting phases,which give some
indication to the City if any code requirements are having the unintended consequence of hampering
development that would otherwise meet the district's vision. Districts in transition from low-density
legacy uses to high-density uses,such as Downtown Tigard, can sometimes limit the types of
development which occur in between,as the transition takes place.
• Work with affordable housing developers to target potential developments to sites with good access to
transit and other services in this area,consistent with recommendation NR1 (see Section 6).
Tigard Triangle
Recommendation FP4: If residential development is part of the future vision for the Tigard Triangle,consider
adopting zoning designations and standards that ensure that residential development or mixed use
development with a residential component will occur in these areas.
Details and Actions
The City has had a long-standing goal of increasing opportunities for residential and mixed use development in
the Tigard Triangle. The City recently received a grant from the state's Transportation and Growth Management
(TGM) program to develop a District Plan for the Tigard Triangle. The new plan is expected to address a variety
of land use and transportation planning issues, meet housing goals for the Triangle,and build on the
recommendations from Tigard's recently completed High Capacity Transit(HCT) Land Use Planning process. The
final report from that effort describes the Concept Plan for the Tigard Triangle as seeking to "blend smaller-scale
retail, restaurants and housing to complement the current employment center,especially in the northeast part
of the Triangle. Increased housing options would also be allowed northwest of Pacific Highway."
More specific objectives of the planning effort for the Tigard Triangle include supporting mixed use development
in the area;assessing the market for residential uses in the area and any barriers to that type of development;
and creating a walkable area that makes efficient use of the transportation system, including addressing the
needs of people who have difficulty accessing transportation due to their age, income or disabilities.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 26
STATION TYPOLOGY
Proposed Station Types
• ij �Town center/ Employnrew
Mainsbw Retai
Alls__v,PINE:!T—.,4UWIFir—` __ , �i � ,• Transit Transit
j_•_ �.+�'{J• ■Corridor Neighborhood
Proposed Connections(dew and lmpmved)
t y MEN Mae Local Witiniodal Street
•___=S MWA'ed Route
Proposed Amenities(Not Located)
A`' I CarmeMal Park/Open
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•• �� �'" Commuter Rai
•
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•
and Natural Resources
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Tigard HCT Plan Concept—Tigard Triangle
Source:City of Tigard High Capacity Transit Land Use Plan, Final Report, February,2012
While zoning in the Tigard Triangle currently allows for development of residential uses, little housing has been
built in the area. City staff reports that most property owners and developers envision the area as a location for
large scale retail, commercial or light industrial activities. It is recommended that if residential use is part of the
community vision for the Tigard Triangle, steps should be taken to ensure it is built in the future. To achieve this
goal, it is recommend that specific areas be rezoned for residential use or for a mix of uses with a required
residential component, rather than recommending that residential uses be a component of each future mixed
use development in the entire area. Future residential areas in the Triangle also should allow for commercial
uses that complement/support them.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 27
In addition to designating areas specifically for residential uses,the City's development code should be amended
to enhance standards for residential or mixed uses in the area. The current Tigard Triangle standards (TCDC
18.620), which were last amended in 2001, include site design standards, building design standards,entry
portals (gateway)standards,and street and accessway standards. More details on these standards are provided
in a technical appendix to this report(Task 3 and 5 Policy and Code review).
Updating these standards would provide the City with an opportunity to address future street connections and
street designs in greater detail (similar to what has been done in Downtown). The standards could vary setbacks
and building design elements based on the street type and land use designation, including for residential uses.
In addition,the area covered by the existing Tigard Triangle standards is smaller than the area envisioned in the
HCT Land Use Plan. Improving connections to the area north of Highway 99 and/or applying standard to
promote or facilitate transit-oriented development in this area would provide the City with an opportunity to
create a transit-oriented neighborhood north of the highway as well as to address design standards and both
sides of the street.
In addition to these strategies, a number of other recommendations identified in other sections of this report
would be appropriate for consideration in the Tigard Triangle, including the following:
• Application of new standards for single-family attached housing and live/work units
• Consideration density and height bonuses and adjustments to parking standards to serve as an incentive
to development of higher density, affordable or other needed types of housing in this area
• Use of permit or fee waivers or tax abatement for eligible affordable housing projects
• Focusing development in areas with existing infrastructure and partnering with developers to fund
additional needed infrastructure,where appropriate to reduce overall infrastructure-related costs of
development
Washington Square
Recommendation FPS: Review Washington Square density standards(18.620.030.13, E,and F)for potential
modifications to help make design standards more appropriate for residential developments and meet goals
for production of housing this area. For portions of the area envisioned for mixed use development,consider
implementing development code standards or requirements to ensure that residential development will
occur.
Details and Actions
Washington Square is designated as a Regional Center in the Metro 2040 Plan. Given this designation,the
Washington Square area represents opportunities for future residential and mixed use development. However,
there are fewer properties with significant redevelopment potential in this area in comparison to the Tigard
Triangle. The recently completed Tigard High Capacity Transit (HCT) Plan envisions land use changes in the
Washington Square area to create more transit-oriented, dense, mixed use development in this area. Portions
of the Washington Square area are designated as Town Center/Main Street,Transit Corridor and Transit
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 28
Neighborhood areas in the HCT Plan, although a more limited portion of the area is devoted to mixed use or
residential development concepts than in the Tigard Triangle. Underlying zoning in these areas is primarily
Mixed Use Employment, Mixed Use Residential and Single Family Residential.
H S Station WES CONCEPT
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Tigard HCT Plan Concept—Washington Square
Source: City of Tigard High Capacity Transit Land Use Plan,Final Report, February,2012
Design standards currently applied in this area include development standards,site design standards, and
building design standards for the Washington Square Regional Center.The types of site design and building
design standards addressed are similar to those applied in the Tigard Triangle. However, building design
standards in the Washington Square area apply to all new buildings within the MUC, MUE, and MUR zones in
Washington Square Regional Center, not just to non-residential buildings. The Washington Square standards
were adopted in 2002, before the latest update to Metro's Urban Growth Management Functional Plan
(UGMFP).
City of Tigard Housing Strategies Report Revised Draft—February,2013
Page 29
Similar to the standards applied in the Tigard Triangle, some of the building and site design standards may be
more appropriate for non-residential buildings and less appropriate for residential uses, including live/work
units and single-family attached housing. The same comments related to these standards in the Tigard Triangle
would apply in the Washington Square area. This area also would be appropriate for application of incentives to
encourage development of specific types and densities of housing in this area as described elsewhere in this
report. In addition, a broader range of housing types could be considered as permitted outright in this area,
including single-family attached and multi-family housing, but not including single-family detached housing.
Also, similar to the Tigard Triangle, if residential use is part of the community vision for this area as it appears to
be, steps should be taken to ensure it is built there in the future using a similar approach as identified for the
Triangle.
Other Corridors and Centers
Recommendation FP6: Implement a variety of strategies related to zoning designations and related
development standards,connectivity improvements,marketing and other strategies to promote residential
and mixed use development in potential future high-capacity transit areas.
Details and Actions
In the Tigard HCT Report, in addition to the areas described above,several other areas were considered as
potential high capacity transit station communities and recommended for transit-oriented development
strategies,or identified as opportunity areas for other more limited land use and connectivity changes
• Scholls Ferry Road (between approximately 120th and 125th Avenues)
• Gaarde McDonald area (centered on OR 99 north and south of Gaarde/McDonald Streets)
• 99W/Durham (centered on OR 99 between approximately Beef Bend and Fischer Roads)
• Upper Bridgeport area (centered on SW 72nd Avenue north and south of Upper Boones Ferry
Road/Carman Drive)
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 30
p
i
Downtown Tigard —I
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Map of Tigard HCT Planning Areas
Source:City of Tigard High Capacity Transit Land Use Plan, Final Report, February,2012
HCT recommendations for these areas vary,from relatively minimal changes in land use or intensity in the
Scholls Ferry/121St Avenue and Upper Bridgeport areas,to creation of new mixed use areas in 99W/Durham and
Pacific Hwy/Gaarde-McDonald. Specific strategies and tools to support development of housing in these areas
would be similar to some of those identified for the Tigard Triangle,Washington Square and Downtown, and
could include the following:
• Adopt Comprehensive Plan or Zone Changes in portions of the 99W/Durham and Pacific
Highway/Gaarde-McDonald areas to enable development of mixed use centers, including residential
uses
• Apply standards for single-family attached and live/work housing units in proposed mixed use portions
of the 99W/Durham and Pacific Highway/Gaarde-McDonald areas,consistent with recommendations
described in Section 4 of this report
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 31
• Implement updated parking standards and requirements described in Section 4 in areas identified as
transit corridors and main street/town center portions of these areas, in part to serve as an incentive for
residential and mixed use development in these areas
• Implement recommendations related to accessory dwelling units, infill development standards and
cottage clusters in portions of these areas designated as transit neighborhoods and encourage
development of these housing types in those areas
• Work with affordable housing developers to identify opportunities to develop housing in close proximity
to transit and other services and reduce infrastructure costs, consistent with recommendations in
Section 6 of this report
• Use permit or fee waivers or tax abatement for eligible affordable housing projects as described in
Section 7 of this report
• Take advantage of existing infrastructure in these areas to reduce infrastructure-related costs of
development
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 32
6. Additional Non-Regulatory Strategies
The City of Tigard can best meet some housing goals by providing information to other parties as part of
planning and development processes. In the areas of complying with the Fair Housing Act and the design of
accessible housing features,the City either does not have regulatory authority to directly address these issues or
doing so would create potential consistency issues with state or federal requirements. However, by providing
information, particularly readily available handbooks and guidelines prepared by other entities,the City can
further these housing goals.
Similar to Fair Housing practices and accessibility design, decisions about where and how to build and finance
housing are made primarily by other entities. Either private or non-profit developers or public agencies such as
Washington County directly fund and/or manage housing for people with low incomes or special needs. In
addition to its general role in planning for and permitting residential uses,the City also can help advocate for or
support specific projects that further the City's housing goals. In doing so,the City can provide information to
prospective developers about strategies described elsewhere in this report that help serve as incentives to
building needed housing in regional centers, high capacity transit corridors and other areas that provide
residents with access to transportation and access to services. In some cases,this also will include areas where
the cost of infrastructure is relatively lower, potentially reducing the overall cost of development.
More specific recommended approaches and actions are described below for several sub-topics.
Fair Housing Requirements
Recommendation NR1: The City should support the objectives of the Fair Housing Act by providing
information to other parties about actions or strategies that will be consistent with the Act and help achieve
its goals.
Details and Actions
Based on a recent review of fair housing impediments commissioned by Washington County,several specific
strategies are recommended towards this end:
• Provide affordable housing developers with information about areas or potential sites that will help link
residents with access to transportation, employment, needed goods and services,quality education and
personal enrichment opportunities. These would include sites with high quality schools, access to
public transit,walkable neighborhoods,grocery stores, other shopping opportunities and amenities.
Washington County has prepared a set of"Opportunity maps"that were included in the Consolidated
Plan, showing proximity to transit, health care facilities, public services, parks and trails,grocery stores
and farmers markets, and high test scores in schools by Census block groups throughout Washington
County. City of Tigard staff can use these maps to meet these objectives. They also can highlight areas
of the City being planned for future high capacity transit that currently or are planned to include some
of these amenities in the future.
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 33
• Help affordable housing advocates and developers identify vacant or redevelopable properties that
would be suitable for affordable or special needs in terms of their size, zoning, proximity to services or
other factors.
• As the City adopts code amendments recommended in this Report to facilitate development of a variety
of housing types, provide information about these new provisions to affordable housing advocates and
developers.
• Coordinate with the cities of Beaverton and Hillsboro as they develop a Green Construction Resource
Directory for affordable housing providers throughout the county; use this resource in identifying and
working with affordable housing providers in the future.
Design Practices to Ensure Accessibility
Recommendation NR2: The City should provide information to developers about design practices that will
help ensure that new housing units are accessible to people with physical or mobility disabilities, including
aging residents.
Details and Actions
An increasing percentage of the population is aging. As the baby boom generation ages, communities will
continue to see a need for housing that meets the needs of people with physical and mobility limitations.
Designing accessible features into housing of all types will be increasingly important.
As described above,the Oregon Building Code and the Americans with Disabilities Act both require that
accessible features be incorporated in certain types of housing. For example,the Oregon Structural Specialty
Code (OSSC)for multi-unit residential buildings includes a comprehensive set of accessibility requirements.
However, compliance with the OSSC does not assure compliance with all accessibility laws because the OSSC
includes only those standards that are required by Oregon law and does not incorporate all federal and Oregon
accessibility standards.
To help organizations comply with the accessibility provisions of the Fair Housing Act and to generally promote
the construction of accessible housing,the Department of Housing and Urban Development (HUD) established a
set of Fair Housing Accessibility Guidelines (FHAG)that "provide builders and developers with technical guidance
on how to comply with the accessibility requirements of the Fair Housing Amendments Act of 1988.i3 Use of
these guidelines can support accessibility and also act as a "safe harbor" in meeting Fair Housing Act
requirements.4
It is recommended that the City do the following to promote the design of accessible homes and compliance
with Fair Housing Act requirements:
3 Fair Housing Accessibility Guidelines
http://Portal.hud.gov/hudportal/HUD?src=/program offices/fair housing equal opp/disabilities/fhefhag
4 Fair Housing Council of Oregon Accessible Design and Construction Handbook,Fair Housing Council of Oregon and
Community Development Law Center(June 2010), http://fhco.org/pdfs/DCH and book062010.gdf
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 34
• Make builders aware of Fair Housing Act requirements related to accessibility for applicable
developments (i.e., residential building with four or more units). Tables presenting federal and state
accessibility standards in the 2010 Fair Housing Council of Oregon Accessible Design and Construction
Handbook also could be provided.
• Provide information about the Fair Housing Accessibility Guidelines to all builders and developers and
encourage them to follow the guidelines in building new housing and particularly for residential
development targeted to people with physical or mobility limitations. Specific features that promote
accessibility and address the needs of people with other disabilities can include but are not limited to
the following:
✓ A bedroom, kitchen, living room, and full bathroom on one level of the home
✓ Smooth walls and surfaces to reduce the accumulation of potential sources of infection for
people with lower immunity,and rounded edges of walls,doors,windows, and furniture to
reduce potential injuries
✓ Use of sound absorbing materials in the rooms to make it easier to hear
✓ Walk-in showers with height adjustable handheld showerheads
✓ Walk-in bedroom closets with storage at differing heights
✓ Rocker light switches instead of more common flip switches
✓ Lever-style door handles and faucets.s
Advisory Committee members note it is particularly important to provide this type of information to developers
who are returning to the housing market and/or have not traditionally consider accessibility in the design of
their residential homes or developments.
Additional Information for Private Developers
Recommendation NR3: In addition to providing information about accessible design features,the City should
provide information to developers that will generally help them understand the City's land use permitting
process and give them a sense of clarity and certainty about city requirements.
Details and Actions
Private market developers appreciate clarity and certainty in the design and permitting process. Certainty helps
the developer save time, make decisions to proceed, and avoid costly surprises further along in the process. In
some cases, a developer will even prefer the certainty of a clear process even if it has greater requirements and
fees, over a complex and unclear process with nominally lower requirements and fees. This means that City
5 These design ideas are drawn from the websites of non-profit organizations dedicated to issues faced by seniors and
people with disabilities.
http://www.oldagesolutions.org/Environment/DnE.aspx,
http://www.ageinplace.org/practical advice/making your home senior friendly.aspx
http://www.aarp.org/home-garden/livable-communities/info-07-2011/what-is-universal-desien.html
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 35
development code, design review process, permitting process,fees etc. should be as easy to understand and
navigate for the developer as possible. The City can do this in multiple ways:
• Ensure that primary documents such as the Development Code and design guidelines are easy to use for
a person moderately informed in the design or development process;
• Provide knowledgeable staff to answer questions regarding the entire process from planning to
permitting;
• Create additional materials such as one page handouts that summarizes relevant code and process
information, even if it is already available in longer documents;
• Provide information about code provisions and other strategies described elsewhere in this report that
can serve as incentives to develop housing in regional centers and high capacity transit corridors;
• Assign a single contact person to facilitate the development process in the case of projects the City
deems particularly important, such as a large-scale development, prominent site location, or catalyst
project;
• Provide as much of this information in advance as possible. Try to provide estimates of time,
requirements and fees to the extent practicable,while emphasizing that these are all preliminary
estimates that may change. Avoid processes which require developers to commit extensive time and
money before key requirements or public processes become apparent.
Continued Support for Local and Regional Affordable Housing Efforts
Recommendation NR4: The City should continue to participate in and support County and regional efforts to
meet current and future housing needs,particularly those targeted to affordable and special needs housing.
Details and Actions
A number of regional processes and programs are aimed at addressing housing needs in the Portland
Metropolitan area and Washington County. The City of Tigard is a community partner in these efforts and
should continue to participate in and support them. Washington County is the primary recipient of federal
funding associated with housing. Through its Consolidated Plan for Community Development and Housing and
annual Action Plans, it manages and allocates federal funds to meet a variety of housing and community
development needs. It also manages construction and operation of publicly assisted housing developments and
administers Section 8 vouchers through the County's Department of Housing Services. Other County-wide
efforts targeted to affordable and special needs housing include activities undertaken by the Vision Action
Network and the Community Housing Trust Fund in Washington County.
At the regional level, Metro helps guide local housing efforts through requirements and guidelines in its Urban
Growth Management Functional Plan related to zoning for a mix and density of housing to support a variety of
housing needs. Other regional housing efforts have included preparation of a Regional Affordable Housing
Strategy in 2000 and updated recommendations from the Housing Choice Task Force adopted by the Metro
City of Tigard Housing Strategies Report Revised Draft—February, 2013
9
page 36
Council in 2006.6 Those recommendations included establishing regional and local targets for production of
affordable housing and continuing to coordinate with Metro on other regional and local affordable housing
strategies.
The City should continue to participate in and support the activities recommended by these organizations and
planning processes. A number of strategies identified in other sections of this report will further those actions,
including development code strategies related to parking, location of housing in areas with good transit services
and other amenities, as well as planning and zoning for a full range of housing types, including in existing
residential and mixed use neighborhoods, as well as newly developing areas such as urban growth boundary
expansion areas.
It also would be helpful for the City to prepare informational materials that summarize how the city's policies
and codes support the development of affordable housing and use these materials in future communications
with developers, decision-makers and citizens. This could be done in the form of annual Affordable Housing
Program update, similar to a report which the City prepared in 2002, but a more concise version of that
document (http://www.tipard-or.gov/city hall/departments/cd/docs/affordable housing report.pdf).
6 Metro Housing Choice Task Force
http://www.oregonmetro.gov/index.cfm/go/by.web/id=269
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 37
7. Administrative and Funding Strategies
Implementing a number of the strategies described in this report will require a commitment of staff resources.
In addition, the City has historically supported affordable and special needs housing projects through fee waivers
and tax abatements. Those efforts are very helpful in providing needed financial support for such projects and
leveraging resources provided by other entities.
Recommendation AF1: City staff should continue to address housing goals and implement housing strategies
in a consistent and coordinated manner,with a common understanding of the goals, priorities and
approaches identified in this report. The City also should continue to provide a certain level of funding to
support affordable and special needs housing projects, including maintaining existing programs and
considering additional strategies,as resources allow in the future. More specific recommended actions are
described in the following section.
Details and Actions
Following is a summary of specific recommended strategies related to staffing and financing.
Staffing
Tigard has a relatively small but dedicated planning staff tasked with addressing a wide variety of long range and
current land use and other planning issues. Most staff, particularly those assigned to long range planning work
on multiple planning initiatives concurrently. The City does not currently have a single staff person dedicated to
addressing long range or current housing issues. Instead, multiple staff people address residential planning and
development issues through a range of activities, including reviewing residential development applications,
incorporating planning for housing in specific or sub-area planning processes,administering and updating the
City's Development Code, coordinating with regional and county efforts related to housing policy and
development.
We recommend that all staff continue to address housing needs in a consistent and coordinated manner,with
some activities assigned to a specific staff person. This will provide for a good balance of flexibility and
accountability needed to meet the City's housing needs and goals. Specific recommended approaches and
activities include the following:
• Require all planning staff to review this document and regularly refer to the strategies it includes,
particularly the summary table included in Section 8.
• identify one staff person who will be responsible for coordinating with other staff to review and refine
the list of strategies in this report on an annual basis. That process would not require updating the
report in its entirety but should entail updating the table in Section 8 to address any emerging housing
issues, needs or tools not previously identified. That process also should include an assessment of the
City's progress in implementing recommended housing strategies. The staff person assigned to this task
also could be a designated liaison for coordinating with Washington County, Metro and other local,
regional or state partnerships to address housing goals and needs. It will be important for this staff
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 38
person and possibly others to have a good working knowledge of affordable housing development
issues and practices, including information about available financing tools, property acquisition and
development practices and necessary partnerships between affordable housing developers, lenders and
builders, among other topics.
• Create a set of checklists of activities related to different types of planning efforts. The checklists should
reference associated strategies identified in this report or annual updates. Project managers should
review the checklists at the outset of any given planning project and continue to use them as they move
forward to address project-specific housing issues.
• Establish a plan for adopting the various Development Code recommendations identified in this report,
along with a strategy to fund that work. The City should explore state grant or other funding sources
that could be used to supplement available local resources. Section 8 of this report includes information
that could be incorporated in such a plan.
• Account for staffing needs associated with implementing housing strategies in annual budgeting and
work planning activities. This would entail regularly estimating the amount of time needed to
implement these strategies, prioritizing this work in relation to other duties, and ensuring that adequate
time and resources are available to meet these goals within the City's overall resource limits.
• Brief Planning Commission and Council members about these housing goals and strategies on a regular
basis,either as part of an annual or semi-annual event or as part of orientation and training for new
members.
Statutory Authority and Federal Funding
Tigard is projected to have over 50,000 residents within the next few years. This will make the City eligible to
directly receive federal housing and community development funding through the Community Development
Block Grant (CDBG) administered by the U.S. Department of Housing and Urban Development(HUD). Currently,
Tigard receives such funding indirectly through Washington County which is the designated entitlement agenda
for HUD funding for all jurisdictions within the County, except Beaverton. The HOME and ESG (Emergency
Solutions Grant) programs administered by HUD do not have the same population-related eligibility thresholds
and would not be affected in the same way. While the City of Hillsboro (which also is eligible to be an
entitlement jurisdiction) has chosen to continue to have such activities funded through Washington County's
program,the City of Beaverton has elected to administer its own set of federally funded housing and community
development programs.
Tigard will soon have the ability and responsibility for choosing which of these two paths to take. In considering
which approach to take,the City should consider the following factors among others:
• Increased flexibility. Being an entitlement agency allows a local jurisdiction to implement and tailor
programs more specific to local housing goals and priorities to some degree. For example, Beaverton
administers a number of housing rehabilitation and loan programs using its HUD funding. Tigard
currently has more limited ability to implement such programs for Tigard residents as part of the
Washington County consortium. At the same time, if Tigard reaches the threshold for becoming an
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 39
entitlement agency but elects to remain part of the Washington County Consortium, it can work with
the County to determine which types of programs and activities will be implemented in Tigard through a
joint CDBG block grant agreement.
• Specific needs. Smaller jurisdictions typically become entitlement entities to meet specific needs that
are not currently being met by the consortium of which they have been a member. In weighing the
costs and benefits of becoming an entitlement jurisdiction,the City of Tigard will want to ask whether
there are additional needs within the city that it can meet with CDBG funds on its own and are not
currently being provided by Washington County. The value of meeting these unmet demands will need
to outweigh the administrative and other costs associated with becoming an entitlement community.
• Administrative cost. Administering HUD funding entails more work by city staff than participating in the
County consortium. It would require use of a dedicated staff person to lead the city's efforts to
coordinate with HUD and help develop and administer specific programs or strategies. This in turn
would require more in-depth knowledge of federal programs and practices, internal and external
coordination with HUD staff and other community partners, program development and other activities.
City of Beaverton staff notes that meeting federal grant requirements takes a significant amount of time
and to some degree requirements(and time commitments)are the same, no matter the size of the
jurisdiction. In addition,the city likely would incur relatively significant legal costs associated with CDBG
grant administration. Cities that currently operate their own CDBG programs within the Portland Metro
area (Beaverton and Gresham) reportedly need to subsidize their programs with general fund revenues
because the costs to administer the programs exceed the HUD revenues available to operate them
(which are capped at a maximum of 20%of total local CDBG funds).
• Decision-making complexity. In addition to added responsibilities for staff,directly accepting and using
HUD funds would increase responsibilities for the City Council and possibly other city boards or
commissions, including during budget review and approval processes and/or associated with financing
specific programs or facilities.
• Complexity for local non-profit groups. Because CDBG funds cannot serve or provide funding to serve
people in other entitlement communities,the application process can be complex for non-profit groups
who serve more than one entitlement community. For example,currently local non-profit groups must
apply separately for funds to serve Beaverton and Washington County. Non-profit groups would face a
similar situation in Tigard if the city were to become an entitlement agency. In addition,those groups
would not be able to use funds provided by Washington County to provide services within Tigard but
could only provide services in Tigard using grant money provided by the City of Tigard.
• Funding thresholds and available resources. Funding thresholds for specific programs funded by HUD
as part of the CDBG program vary by the size of entitlement communities. In many cases,the maximum
amount of money available for projects in Tigard would be lower than for the County as a whole. This
could limit the size of HUD-funded projects that would be undertaken in Tigard to some degree. In
addition, it should be noted that resources for entitlement communities have decreased over the last 20
years. City of Beaverton staff notes that small entitlement jurisdictions(close to 50,000 population)
currently receive about$200,000 per year, compared to over$400,000 received by Beaverton when it
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 40
initially became an entitlement community. They question whether this current level of resources,
coupled with associated administrative responsibilities and costs,would lead to a cost-effective decision
to become an entitlement jurisdiction for a city the size of Tigard.
This report does not include an ultimate recommendation as to whether Tigard should become a CDBG
entitlement agency. In the long term,the City should consider the factors described above and other relevant
criteria in making this decision. However, in the short term, it is recommended that the City remain part of the
Washington County consortium (even after passing the 50,000 residents population threshold) and obtain
experience with the administration of HUD funds through a joint operating agreement relationship with
Washington County. During that time,the City may wish to establish a more formal evaluation and decision-
making framework for determining whether to become a separate entitlement community.
Financing Tools
One of the primary obstacles to achieving housing goals, particularly those for development of affordable
housing is a lack of funding at all levels of government, coupled with the inability of the private sector to meet
certain types of housing needs without public subsidy. The City of Tigard already implements several financing
programs to assist with the development of affordable housing, including:
• Use of urban renewal funding to construct public improvements that act as incentives for private sector
residential development and to augment the costs of selected residential development projects.
• In partnership with the Tigard/Tualatin School District,and Tualatin Valley Fire& Rescue, provides tax
exemptions for low-income housing owned by non-profit corporations. Exemptions,first adopted in
1996, must be renewed each year and have been granted to a total of five projects developed by
Community Partners for Affordable Housing. Currently,the City only offers these exemptions to non-
profit organizations. However,the City could consider providing the exemptions for affordable housing
developments built by private sector developers if they meet all the same program eligibility and other
requirements, including guarantees to maintain the long-term affordability of the units.
• Implementation of an Affordable Housing Fee Assistance program to waive or reduce fees for qualifying
affordable housing developments. As part of this program the City provides a fee waiver of up to$500
per unit up to a total budgeted amount of$10,000 per year for project that meet eligibility
requirements, including affordability standards.
In addition to these strategies,the City could consider a variety of other funding tools, including the following:
• Low interest loans,grants
• Downpayment assistance
• Leveraging private and non-profit resources
• Expansion of the fee assistance program or implementation of a separate program to waive or defer
payment of system development charges for affordable housing projects
As noted above,the City has implemented some of these strategies for affordable housing projects, including
tax exemptions and fee waivers. Several of these tools also are identified as recommended actions for local
City of Tigard Housing Strategies Report Revised Draft—February,2013
page 41
jurisdictions in Washington County's Consolidated Plan,although there are some obstacles to their
implementation. For example,some of the system development charges (SDCs) assessed to new development
in Tigard are not paid directly to the City but rather to special service districts that provide services in Tigard,
including the Tualatin Valley Fire and Rescue District and Clean Water Services. Currently,the only SDCs that the
City collects pertain to water service,storm water treatment and sanitary sewer treatment. Tigard can choose
to waive or pay its own SDCs for affordable housing projects. However,to cover other SDCs,the City must
either convince other service providers to waive their own charges or pay the SDCs of those other providers.
The current economic climate makes either of these tasks more challenging, particularly if the City chooses to
cover other agencies'SDCs. Further work on this issue should be conducted as part of a coordinated process
with Washington County and other local jurisdictions and service providers,as recommended by the County in
its current Consolidated Plan for Community Development and Housing.
If the City becomes a federal entitlement jurisdiction, it also would implement additional financing programs,
including low interest loans and grants and downpayment assistance. In doing so,the City could focus those
programs on the following activities:
• Target financing programs such as low interest loans,grants,downpayment assistance, and tax credits
or abatements to areas with high housing cost burdens; provide specific outreach about these programs
to people in these neighborhoods.
• Provide information about and encourage residents to take advantage of state and other programs
described in Appendix C.
As noted in Section 6 of this report,the City also should continue to work closely with local non-profits,
developers and others to leverage private resources to help meet a variety of housing needs, including through
the following efforts,some of which are described in more detail in other sections of this report:
• Partner with area non-profit development organizations to capitalize on their capacity to raise public
and private subsidies and structure financing near the break-even point that will ultimately benefit low
income households.
• Support the efforts of community housing development organizations and other non-profit housing
providers to identify opportunity sites, assist with the development permitting process and provide
information about local and state financing programs.
• Encourage other developers to incorporate housing affordable to low and moderate income residents in
their proposed developments,similar to development code provisions in Beaverton and Milwaukie.
• Encourage large employers to consider implementing employer assisted housing programs.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
8. Implementation Plan
Following is a summary of the recommendations in this report, including information about the relative level of effort to move forward with
each recommended strategy,the approximate amount of time needed to complete each activity, and other factors relevant to implementation.
Many of the individual recommendations below could be completed concurrently and/or in combination with other actions. This summary is
intended to help City staff in their annual work planning, as well as to inform discussions with the City Council and Planning Commission
regarding relative priorities for housing planning and development activities.
Strategy Level of Time to Relative Notes
Effort Complete Impact
C1. Update Comprehensive Plan Low 3-6 months Medium This will be accomplished as part of the current planning
narrative,goals, policies and action effort.
items.
CA1/CA5.Adopt new code provisions Medium 6-12 months Medium This will require preparation of a new code section,with
for cottage clusters. review by staff,the Planning Commission, Council and
possibly other stakeholders or community members. The
amount of time to complete this effort will depend in large
part on the scope of the proposal and the level of public
involvement.
CA2.Adopt new code provisions for Medium 6-12 months Low Same comments as for CA1.
live/work units.
CA3. Reduce the minimum lot size for Low(- 2-3 months Low This represents a fairly minor code amendment,especially if
duplexes in the R-7 zone Medium) limited to duplexes on corner lots; however,even relatively
minor changes to residential density can become
controversial. Early communication with affected
neighborhoods will determine the amount of public
outreach needed.
CA4.Adopt single-family attached Medium 6-12 months Medium Same comments as for CA1 and CA2.
housing standards for use city-wide.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
0
page 43
Strategy Level of Time to Relative Notes
Effort Complete Impact
CA6. Update standards for accessory Low(- 3-6 months Medium This entails relatively minor amendments to existing code
dwelling units. Medium) provisions; however,selected potential revisions (e.g.,
reduced parking requirements) could be controversial;
depending on the scope of the proposed revisions,a public
review process may be needed.
CA7. Consider revising parking Medium Medium While,the potential code revisions would be relatively
standards to provide flexibility and straightforward and would take a limited amount of time to
incentives. prepare,these changes likely will require a public review
process and could be controversial.
CAB.Amend standards for residential Medium 6-12 months Low Same comments as for CA3.
uses to ensure that standards for
needed housing are clear and objective.
CA9.Adopt density and height bonuses Low 3-6 months Low Same comments as for CA1 and CA2.
as incentives for affordable housing.
FP 2. Plan and zone land in River Low- 12-18 High It is assumed that this strategy will be implemented as part
Terrace for residential use in this area Medium months and of the River Terrace planning process that is currently
that balances local and regional housing ongoing underway;as a result, it should not require additional
and land use goals and requirements. resources or time beyond what will be needed to conduct
that larger planning process. Ongoing efforts will be needed
to implement some associated development strategies.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 44
Strategy Level of Time to Relative Notes
Effort Complete Impact
FP3.Continue to implement ongoing Low- Ongoing High This strategy is generally consistent with and would primarily
planning, urban renewal, marketing and Medium be undertaken with ongoing or other planned efforts
other efforts aimed at Downtown associated with downtown planning and redevelopment.
housing development and Some specific recommendations may require additional staff
redevelopment. time or other resources.
FP4. Consider adopting zoning Low- 18-24 High It is assumed that this strategy will be implemented as part
designations and standards and other Medium months and of the proposed Tigard Triangle planning process that is
strategies for the Tigard Triangle to ongoing expected to commence in 2013;as a result, it should not
help ensure that residential require additional resources or time beyond what will be
development or mixed use needed to conduct that larger planning process. Ongoing
development occurs in this area. efforts will be needed to implement some associated
development strategies.
FPS. Update residential design Medium 6-12 months Medium This will require updating an existing section of the city's
standards and implement other and ongoing code and will require a public process. No area-specific
strategies in Washington Square to public process is currently planning for Washington Square
meet goals for production of housing so a separate effort will be required but could be undertaken
this area. in concert with other development code updates. Additional
ongoing implementation of other development strategies
also will be needed.
FP6. Implement a variety of strategies Medium 6-12 months Medium This includes implementation of related potential code
in potential future high-capacity transit and ongoing amendments (strategies CAI-8),as well as other potential
corridors and centers to promote ongoing planning and development strategies.
residential and mixed use
development.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 45
Strategy Level of Time to Relative Notes
Effort Complete Impact
NR1. Provide information to other Low 3-6 months Medium This would involve outreach to stakeholders regarding the
parties about actions or strategies that and ongoing outcome of this planning process along with regular follow-
will achieve the goals of the Fair up contact regarding implementation of the other strategies
Housing Act. described here;staff could prepare an initial set of
informational materials or use reports from this process to
provide needed information.
NR2. Provide information to developers Low 1-3 months Medium This would involve ongoing outreach to developers using
about design practices that will help and ongoing existing readily available materials that staff could obtain
ensure that new housing units are with relatively minimal effort.
accessible to people with physical or
mobility disabilities.
NR3. Provide information to developers Medium 6-9 months Medium This would involve outreach to developers regarding current
to help them understand the City's land and ongoing and future planning processes and strategies identified
use permitting process and provide during this process. It also would require preparation of new
clarity and certainty about city informational materials.
requirements.
NR4. Continue to participate in and Low- Ongoing Medium This entails a continuation of participation in and
support County and regional efforts to Medium coordination with County and regional housing planning
meet current and future affordable, processes. To the extent new regional requirements are
special needs and other housing goals. adopted or new County programs are enacted, it could
require an increased level of effort.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
page 46
Strategy Level of Time to Relative Notes
Effort Complete Impact
AF 1.Continue to use staff resources to Medium- See below See See below
address housing goals and implement High below
housing strategies in a consistent and
coordinated manner and continue to
provide funding to support affordable
and special needs housing projects.
a. Implement the recommendations Medium Variable and High See above for more information about specific strategies;
in this plan in a proactive and ongoing additional work will be needed to institutionalize
coordinated manner. implementation of strategies as part of the city's annual and
ongoing work planning efforts.
b. Establish a framework for Low-High 3-6 months Medium Establishing a framework for determining whether or not to
determining whether to become a or more become an entitlement agency represents a relatively
federal funding entitlement modest level of effort. Evaluating and discussion the options
jurisdiction. with city decision-makers would be a medium amount of
work. If the city chooses to become an entitlement
jurisdiction, resulting responsibilities will be relatively
significant and ongoing.
c. Continue to implement current Medium- 6-9 months High Consideration of additional strategies identified in this report
affordable housing funding High and ongoing represents a relatively modest level of effort.
strategies;consider establishing Implementation of some strategies could result in added
and undertaking an expanded set financial costs or contributions to help offset the costs of
of strategies. affordable housing development.
City of Tigard Housing Strategies Report Revised Draft—February, 2013
E b Lt -B
City of Tigard Housing and Population Review
Task 6 Housing Report
Page 1
Memorandum
DATE: January 23, 2013
TO: Marissa Daniels, City of Tigard
FROM: Matt Hastie,Angelo Planning Group
SUBJECT: City of Tigard Population and Housing Review
Tasks 6: Housing Report—Preliminary Draft
This report includes proposed language for inclusion in an updated(Goal 10) Housing element of Tigard's
Comprehensive Plan. This element of the City's Comprehensive Plan was updated relatively recently(2008) and
much of the language in this section of the Plan remains relevant, including the majority of the Plan's goals,
policies and recommended action measures. However, a number of changes to the Plan are proposed,
consistent with the results of the Housing and Population Study and recommendations and information found in
reports prepared for Tasks 1-5 of this planning process. The remainder of this document contains proposed
updated Comprehensive Plan language. Proposed revisions to existing Plan language are shown in underline
and 540k gh format;the "Findings"section is recommended to be replaced in its entirety with the text
provided in this document.
Narrative
GOAL 10: Housing
"To provide for the housing needs of citizens of the state."
Some of the factors that local governments can influence are the supply of available residential land;the
availability of public services; development regulations (density and design), and support for low and moderate
income housing through funding or incentives. The City also can assist in providing information to non-profit
and private developers about housing opportunity sites,state and federal funding opportunities and design and
development practices that promote construction of accessible, sustainable,attractive and affordable housing.
In the Portland metropolitan region, only land included in the Metro Urban Growth Boundary(UGB), an invisible
line that separates resource land from presently developable areas , can be
developed at residential densities requiring urban services.At the local level, each
county and city must inventory its buildable land,which is defined as vacant and re-developable land suitable for
residential use,to determine housing capacity.Tigard maintains a buildable lands inventory(BLI)that tracks
available residential land.Two state and Metro requirements help determine housing capacities on buildable
land within the Portland Metropolitan Area—the state Metropolitan Housing Rule and Title 1 of Metro's Urban
Growth Management Functional Plan (Functional Plan). Both focus on increasing a local jurisdictions' housing
capacity in order to make efficient use of land and urban services use land within the UGB efficiently.
City of Tigard Housing Report Draft—February,2013
page 2
The Metropolitan Housing Rule (OAR 660-007/Division 7)established regional residential density and mix
standards for communities within the Metro UGB. It sets minimum residential density standards for new
construction by jurisdiction. Tigard must provide for the opportunity to build new housing at
an overall average density of 10 or more dwelling units per net buildable acre,as well as designate sufficient
buildable land to provide the opportunity for at least 50%of new residential units to be attached housing(either
single-family attached or multiple-family units.)
Urban Growth Management Functional Plan
Metro implements Goal 10 through Title 1 of the Metro Urban Growth Management Functional Plan (Functional
Plan).To meet Title 1, each jurisdiction was is required to determine its housing capacity and adopt minimum
density requirements.Tigard adopted an 80%of minimum density requirement for development in 1998. This
whirh means that a development must build 80%of the maximum units allowed by the applicable zoning
designation.
46
^� d^^city F^ meets. In addition to complying with the Functional Plan,the City's Development Code
identifies the types and densities of housing allowed in all of Tigard's residential and mixed use zoning districts.
The City of Tigard maintains an up-to-date buildable lands inventory and a permit tracking system for
development, The City also is responsible for monitoring
residential development. All of these tools aid the City in monitoring its progress toward the above goals,and
determining if the opportunity remains for current and future residents to have diverse housing choices.
Tigard's Geographic Limits to Growth
As noted above,the UGB established and maintained by Metro, in coordination with Tigard and other local
jurisdictions establishes a geographical limit to future growth. It is required to include an adequate supply of
land to meet the region's 20-year land needs associated with housing,employment and other needed land uses.
law, make that MR-54 ef these Eleyeleped land-5,4.vffill annex T;-",4
The UGB was
expanded in 2002 to include land referred to as Area 63 and Area 64. In 2012,the UGB was expanded again to
include an additional 50 acres (Roy Rogers West)to connect Areas 63 and 64. All of these areas were included in
the West Bull Mountain Concept Plan (WBMCP) and have since been annexed into the City of Tigard and are
known as River Terrace. This area, as well as other buildable and/or redevelopable properties in existing City
neighborhoods, represent the supply of land for future residential growth. Urban reserves also represent long-
term future growth areas.
.
lar__k iqf rP,;mdPRt*aI land Will FequiFe T-*gaFd te meet its housing eapaeuty ce-m-PAitrAeRtwithii; eurreRt
' . Future development in these areas will require a combination of additional
City of Tigard Housing Strategies Report Draft-February,2013
page 3
planning and development in new growth areas,coupled with infill development and redevelopment in existing
areas such as maior
transportation corridors, designated Regional and Town Centers and other mixed use areas.Thus,
res
Capacity for Future Housing Development
A city analysis of housing needs and capacity conducted in 2012 found the capacity to build approximately 7,000
new housing units on buildable lands zoned for residential development within the City's UGB, compared to an
estimated need for lust over 6,500 new units during the next 20 years. The analysis also found that the City's
zoning allows for the opportunity for more than 50%of new housing to be constructed as single-family attached
or multi-family housing, consistent with the Metropolitan Housing Rule. There is additional capacity for housing
to be constructed in the City's mixed use (commercial/residential)zones such as the Tigard Triangle,Washington
Square and Downtown areas.This is over and above the capacity for 7,000 units estimated in the analysis.
Affordable Housing/Special Needs Housing
Metro also addresses affordable housing in Title 7 of its Functional Plan.Title 7 includes voluntary affordable
housing production goals and other affordable housing strategies.Tigard has undertaken a variety of voluntary
actions to support and enhance opportunities for affordable housing, including offsetting City fees and charges
for affordable housing, and a tax exemption for low income housing developed by nonprofitrg oups. Among the
organizations involved in low income housing,special needs housing, and emergency housing, are Community
Partners for Affordable Housing, Luke-Dorf,a4+4 the Good Neighbor Center and
others.Tigard is also part of the Washington County Housing Consortium that utilizes HOME and CDBG funds to
provide housing opportunities. This Plan includes a variety of policies to further the development of affordable
and special needs housing in Tigard. The City's Development Code also includes provisions that can act as
incentives and/or create opportunities to help meet these housing needs.
Key Findings:
The following findings are based on a population and housing needs assessment prepared for the city in 2013.
Data included in the findings is based on a combination of Census data from 2010 and other data sources from
2012, except where noted. [Note: The following findings replace findings currently contained in the Housing
element of the Comprehensive Plan.]
Current (2010/2012) Population Trends
■ The 2013 Housing Strategies Report and supporting memos and analyses provide the basis for the
findings and recommendations in this element of the Comprehensive Plan. That document has been
adopted as an ancillary document of this Comprehensive Plan.
■ As of the 2010 Census, Tigard was the fifth largest city by population in the Portland metro area
(excluding Vancouver, Washington). It represents 3% of the total population within the three primary
metro counties. Tigard is the 131h largest city in Oregon.
City of Tigard Housing Strategies Report Draft—February, 2013
page 4
■ Tigard grew by 6,857 people between 2000 and 2010, or 17%. This is somewhat slower than growth in
Washington County of 19% during that period, but greater than growth in the state of Oregon of 12%.
Tigard experienced growth at a slower percentage than the two largest Washington County cities of
Hillsboro and Beaverton (31% and 18% respectively)during this timeframe.
■ Tigard was home to over 48,000 people and 19,000 households in 2010. Families represent 65% of all
households. This is very similar to the Metro area figure of 63.5%family households, and Washington
County's 66.8%.
■ Tigard's average household size in 2010 was 2.49 persons, which is slightly smaller than Washington
County and the Metro area's averages of 2.6 and 2.52 respectively.
■ Tigard's median household income was over $59,000 in 2010. This is 11% higher than the
Portland/Vancouver metro area median ($53,078). However, it is 10% lower than the countywide
median of$66,500.
■ Median income grew 15%between 2000 and 2010, while growing over 27% in Washington County.
■ An estimated 8% of the population in Tigard lives under the poverty level. (American Community
Survey, 2006-2010, five-year average) The poverty rate for Tigard households is higher than average
among females (9.9%) and those under 18 years of age (8.7%),similar to national trends.
Current (2010/2012) Housing Trends and Needs
■ An estimated 60% of housing units are ownership units, while an estimated 40% of housing units are
rental units. This is a similar ratio of ownership units compared to the general Portland/Vancouver
Metro Area (62%ownership rate),and the state.
■ Over 95% of ownership units are single family homes (detached or attached), while nearly 60% of
rental units are in structures of 5 units or more.
■ In general, there is a need for some less expensive ownership units and rental units. This is not
uncommon as the lowest income households struggle to find housing of any type that keeps costs at
30% of gross income.
■ Among prospective ownership households, there is a solid supply of mid-priced housing between
$170k and $240k, as well as upper-mid-priced housing of$370k to $550k. This analysis estimates the
need for more for-sale housing in between these ranges, and at the upper end of the market.
■ There is a general need for rental units at the lower and middle price levels. There are levels of
estimated surplus for apartments ($620 to $1060 per month), and for single family homes for rent
($1770 - $3,530). These ranges represent the average rent prices in Tigard, typical of the majority of
housing units in Tigard.
■ Overall,there is a total surplus of 270 ownership units, and a current surplus of rental units of 631. This
is an estimate based on a model of general preferences of households in different age and income
cohorts to either own or rent.
■ There are an estimated 901 units more than the current number of households, reflecting the current
estimated vacancy rate of 4.4%.
Future Housing Demand and Land Supply
• There is a need for over 6,500 new housing units by 2030,with a stronger emphasis on new ownership
units.
City of Tigard Housing Strategies Report Draft—February, 2013
page 5
• Of the new units needed, 76%are projected to be ownership units, while 24% are projected to be rental
units.
• Of the new units needed, the largest share (53%) is projected to be single family detached homes, due
to a stronger projected need for new ownership housing. The remainder of units (47%) is projected to
be some form of attached housing.
• It is projected that in coming decades a greater share of housing will be attached types, including
attached single family. Single family attached units are projected to meet nearly 20%of future need.
• Duplex through four-plex units are projected to represent over 8% of the total need, while 18% of all
needed units are projected to be multi-family in structures of 5+attached units.
• Under 1% of new needed units are projected to be manufactured home units in manufactured home
parks, which meet the needs of some low-income households for both ownership and rental.
• There is the capacity (as of 2012) to build approximately 7,000 new housing units on buildable lands
zoned for residential development (residential and "mixed use residential"zones)within the Citv's UGB.
• The supply of buildable land zoned for residential use in Tigard provides the opportunity to develop
more than 50% of new housing as single-family attached or multi-family units, consistent with the
Metropolitan Housing Rule.
• There is the capacity to build several thousand additional housing units on land zoned as "mixed use
employment" and "mixed use commercial" in the Downtown, Washington Square and Tigard Triangle
areas.
• City zoning provides the opportunity to construct housing at an average overall density of 10 units per
net developable acre, consistent with requirements of the Metropolitan Housing Rule.
• The City's Comprehensive Plan policies and Development Code provide for the opportunity to meet a
full range of housing choices and needs. However, a number of action measures are recommended in
this Plan to enhance those opportunities.
Goals, Policies and Recommended Action Measures:
Goal:
10.1 Provide opportunities for a variety of housing types at a range of price levels to meet the diverse housing
needs of current and future City residents.
Policies:
1.The City shall adopt and maintain land use policies,codes, and standards that provide opportunities to
develop a variety of housing types that meet the needs, preferences,and financial capabilities of Tigard's
present and future residents.
2. The City's land use program shall be consistent with applicable state and federal laws.
3. The City shall support housing affordability,special-needs housing,ownership opportunities,and housing
rehabilitation through programs administered by the state,Washington County, nonprofit agencies, and Metro.
City of Tigard Housing Strategies Report Draft—February,2013
page 6
4 .The City shall adopt and maintain land use regulations that provide opportunities to develop housing for
persons with special needs.The scale, design, intensity, and operation of these housing types shall be
compatible with other land uses and located in proximity to supporting community services and activities.
5.The City shall provide for high and medium density housing in the areas such as town centers (Downtown),
regional centers (Washington Square), and along transit corridors where employment opportunities,commercial
services,transit,and other public services necessary to support higher population densities are either present or
planned for in the future.
6. The City shall allow accessory dwelling units in appropriate residential districts, but shall require that they are
compatible and blend into the overall residential environment.
7.The City shall comply with state and federal housing laws, including the Fair Housing Act, as well as aod
applicable implementing administrative rules and regulations.
8. The City shall implement findings and recommendations from the 2013 Tigard Housing Strategies Report as
incorporated in the Recommended Action Measures described in this Plan and further detailed in the Housing
Strategies Report.
Recommended Action Measures:
i. Update the City's Buildable Land Inventory regularly to monitor the rate of development and the availability of
residential land.
ii. Monitor regional and local housing trends and periodically review and update the City's land use policies and
regulations accordingly to provide the range of housing development opportunities needed by Tigard's
residents.
iii. Allow manufactured homes on individual lots subject to standards to ensure their compatibility with single-
family residential housing types.
iv. Allow opportunities for accessory dwelling units in regional centers,town centers,and corridors per Metro
requirements, as well as in other residential areas of the City.
v. Increase opportunities for higher density mixed use development in the Downtown Urban Renewal District,
Washington Square Regional Center,Tigard Triangle, and designated Corridors to enable residential uses to be
located in close proximity to retail, employment, and public facilities,such as transit and parks.
vi. Provide incentives to encourage the development of a range of housing choices, including affordable housing
units at transit-supportive densities near existing and planned transit routes,and/or in proximity to major
activity centers such as employment,commercial areas,schools, and recreation areas.
vii. Lower development costs for affordable housing by subsidizing City fees and charges,giving higher priority to
housing projects close to major activity centers and transit services and/or providing additional incentives to
their development.
City of Tigard Housing Strategies Report Draft—February, 2013
page 7
viii. Communicate the availability of local, state, and federal affordable housing incentives and subsidies to those
involved in the housing industry.
ix. Participate with other Portland Metropolitan area jurisdictions and agencies to address both local and
regional affordable and workforce housing needs.
x. Develop and implement strategies to encourage affordable housing in the City's regional (Washington Square)
and town centers (Downtown) and other areas designated for mixed use and high residential densities.
xi. Coordinate with the Washington County Housing Authority, private non-profit housing corporations, H.U.D.
and other federal,state, and regional agencies for the provision of subsidized housing programs in Tigard.
xii. Increase Tigard's diversity of housing types through financial incentives and regulatory tools such as density
transfer and planned development standards;transit, and vertical oriented housing tax credits; reduced parking
requirements; height and density bonuses:voluntary inclusionary zoning,etc.
xiii. Work with Metro and Washington County to determine the City's projected regional share of affordable,
workforce, and special needs housing and to develop and implement strategies to accommodate projected local
and regional needs.
xiv. Work with the Washington County Housing Authority, and non-profit corporations to encourage
preservation or replacement of affordable and special use housing when:
A. redevelopment occurs in older areas of the City;
B. single family dwellings are upgraded for sale or higher rent;or
C. apartments are converted to condominiums or to rentals that are more expensive.
xv. Encourage the development of affordable housing when opportunities arise to redevelop public property
and private institutional lands.
xvi. Provide opportunities for affordable home ownership by:
A. Adapting the City's land use program to allow for the development of a variety of residential building
types and ownership arrangements;
B. Supporting the activities of non-profit housing providers such as Habitat for Humanity,a-R4 community
land trusts and others;and
C. Supporting the efforts of Washington County Housing Authority,a.R4 the Community Housing Fund, and
developers of affordable housing to utilize a variety of public and private subsidies and incentives.
xvii. Support housing types, such as shared housing, accessory dwelling units,smaller homes, cottage clusters,
adult foster homes, and other assisted living arrangements that allow the elderly to remain in their community
as their needs change.
City of Tigard Housing Strategies Report Draft—February, 2013
9
page 8
xviii. Support development of affordable rental housing through partnerships with the Community Housing Fund
and other affordable housing providers.
xix. Propose adopting updates to the City's development code to enhance opportunities to develop accessory
dwelling units, live/work housing units, cottage clusters, single-family attached housing and duplexes, consistent
with the Citv's 2012 Housing Strategies Report.
xx. Develop and apply standards for single-family attached housing in all zoning districts where it is allowed.
Goal:
10.2 Maintain a high level of residential livability.
Policies:
1.The City shall adopt measures to protect and enhance the quality and integrity of its residential
neighborhoods.
2. The City shall seek to provide multi-modal transportation access from residential neighborhoods to transit
stops,commercial services,employment, and other activity centers.
3. The City shall commit to improving and maintaining the quality of community life public safety, education,
transportation, community design; a strong economy, parks and recreation,etc.) as the basis for sustaining a
high-quality residential environment.
4.The City shall protect the habitability and quality of its housing stock through code inspection services and
enforcement.
5. The City shall encourage housing that supports sustainable development patterns by promoting the efficient
use of land, conservation of natural resources, easy access to public transit and other efficient modes of
transportation, easy access to services and parks, resource efficient design and construction, and the use of
renewable energy resources.
6. The City shall promote innovative and well-designed housing development through application of planned
developments and community design standards for multi-family housing.
7.The City shall ensure that residential densities are appropriately related to locational characteristics and site
conditions such as the presence of natural hazards and natural resources, availability of public facilities and
services, and existing land use patterns.
8.The City shall require measures to mitigate the adverse impacts from differing,or more intense, land uses on
residential living environments,such as:
A. orderly transitions from one residential density to another;
B. protection of existing vegetation, natural resources and provision of open space areas; and
C. installation of landscaping and effective buffering and screening.
City of Tigard Housing Strategies Report Draft—February, 2013
page 9
9.The City shall require infill development to be designed to address compatibility with existing neighborhoods.
10. The City shall regulate home-based businesses (occupations)to prevent adverse impacts on residential
areas.
Recommended Action Measures:
L Encourage future housing development on designated buildable lands in areas where public facilities and
services can be most readily provided.
ii. Develop infill design and/or cottage cluster housing standards to ensure that new housing constructed within
existing residential neighborhoods complements and is compatible with existing development.
iii. Engage Tigard's citizens in public policy decisions, programs, and projects to improve neighborhood quality of
life such as improving public safety;providing high quality public services;enhancing mobility and easy access to
activity centers; improving community design; providing parks and open space; and promoting a green
environment.
iv. Promote Planned Development, density transfer,site and building design standards, and other regulations to
protect natural areas preserve open spaces and enhance Tigard's residential environment.
v. Develop standards to enhance livability for those living in housing adjacent to major streets such as
appropriate setbacks, buffering and screening, noise mitigation, building orientation, landscaping, etc.
vi. Update and maintain the City's land use regulations, engineering standards,and building codes to be
consistent with federal and state requirements and responsive to current conditions and anticipated
development trends.
vii. Promote the maintenance of habitable housing in Tigard through Housing Inspection and Enhanced Housing
Safety programs. Contribute to an Emergency Housing Fund to assist those who lose housing due to
safety/habitability problems.
viii. Encourage those who must make habitability and safety improvements to their homes to access low interest
loan and grant programs offered by the Washington County Housing Rehabilitation Program.
ix. Promote the habitability and quality of existing housing stock through means such as effective code
enforcement and code violation follow-through, habitability standards,and rental licensing and inspection.
x. Develop regulations,standards, educational tools,and incentives to induce property owners to maintain
residential property to prevent blight and promote safe and healthy living environments.
A Develop regulations and incentives to induce property owners to rehabilitate or redevelop deteriorated and
marginally habitable residential properties.
xii. Develop and enforce codes and regulations to abate public health and safety problems associated with
residential properties being used for unlawful purposes.
City of Tigard Housing Strategies Report Draft—February,2013
page 10
xiii. Establish and maintain standards to regulate non-residential accessory structures to protect the character
and quality of existing neighborhoods.
xiv. Provide incentives and technical assistance to make resource efficient(green)technologies and materials
part of new development and the remodeling or retrofitting of existing development. Opportunities include
energy conservation,water re-use,water quality enhancements,green building materials, solar heating/
cooling, and drought tolerant landscaping etc.
xv.Adopt clear and objective approval standards, criteria, conditions, and review processes for needed housing
per state requirements.
xvi. Develop partnerships with neighboring jurisdictions on multijurisdictional code enforcement issues.
xvii. Provide information about accessible design practices to housing developers to help ensure that new
housing is accessible to people with physical and mobility limitations, including aging residents.
xviii. Provide informational materials and other technical assistance to housing developers to ensure that
residential development procedures and processes are as easy to understand and navigate as possible.
xix. Provide opportunities for city planning staff to obtain training and knowledge of housing development issues
to ensure they can continue to effectively implement housing goals, policies and action measures.
xx. Encourage all residential developers to incorporate housing affordable to low and moderate income
residents in their proposed developments.
xxi. Encourage large employers to consider implementing employer assisted housing programs.
City of Tigard Housing Strategies Report Draft—February, 2013
City of Tigard Housing and Population Review
Task 6 Housing Report
Page 1
City of Tigard Housing Strategies Report Draft—January, 2013
Exh; fJ_ C
CPA2013-00001
Tigard Periodic Review Task 6: Population Forecast and Coordination with Metro
Oregon land use law(ORS 195.036; 195.025) requires Metro to coordinate its regional population
forecasts with local governments inside the UGB for use in updating their comprehensive plans,
land use regulations and related policies. Metro goes through a highly technical analysis process to
produce twenty-year population and employment forecasts for the entire Portland Metropolitan
P Area based upon expected land supply and demand. Using land use and transportation modeling to
match demand with supply,the forecast is then distributed among each of the local jurisdictions in
the region. The Oregon Department of Land Conservation and Development requires consistency
by the local jurisdiction when applying population and employment forecasts in all subsequent
planning work.
Proposed Amendment to Tigard Comprehensive Plan Goal 2: Land Use Planning
Goal 2.1 Maintain an up-to-date Comprehensive Plan,implementing regulations and action
Plan as the legislative foundation of Tigard's land use planning program.
Policies: 1 through 24 (no changes)
25. The City shall use the most recently adopted Metro population and employment
forecast,as allocated to Tigard- for planning purposes.
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Tigard Population and Housing Review
Development Code Amendments
Staff Recommendation
DCA 2013-00002
Project Summary
To ensure the city is in compliance with state regulations which require, "clear and objective
standards, conditions and procedures regulating the development of needed housing" changes to
the Site Development Review (SDR) approval criteria are being proposed. These approval
criteria apply to a wide range of development types within the City (e.g.,commercial,industrial,
etc.),including housing. While most of the SDR approval criteria appear to be clear and
objective, some do appear to allow for more discretion.This code update clarifies that housing is
exempt from meeting these more discretionary criteria.
Background
Tigard has been awarded a Periodic Review grant by the Department of Land Conservation and
Development (DLCD) to complete a Goal 10 Population and Housing Review. Every five to
seven years,cities and counties are required to evaluate their comprehensive plans and land use
regulations through a process called "Periodic Review" (ORS 197.628-644 and OAR 660,
Division 25).This process ensures Tigard's Comprehensive Plan and land use regulations are
consistent with Oregon law and continue to provide for the growth management and
development needs of the community. The project looked at population projections and
demographic trends along with the amount and location of available land. The end result
is a list of potential strategies to meet the city's future demand for housing that implement
the city's aspirations and state requirements.
Development Code Amendments - How to Read This Section
This section is organized by Development Code chapter number. Odd-numbered pages show
the existing language with proposed amendments. Text that is proposed to be added to the
code is shown with double underlines. Text that is proposed to be deleted is shown with
stfkethrottg4.
Even-numbered pages contain commentary on the amendments,which establish,in part,the
legislative intent in adopting these amendments.
Commentary
Chapter 18.360 SITE DEVELOPMENT REVIEW
Clear and Objective Standards for Needed Housing
ORS 197.307 states that:
(4)Except as provided in subsection (6)of this section, a localgovernment may adopt and apply only
clear and objective standards, conditions and procedures regulating the development of needed housing on
buildable land described in subsection (3)of this section. The standards, conditions and procedures may
not have the effect, either in themselves or cumulatively, of discouraging needed housing through
unreasonable cost or delay.
The development standards in 18.510.050 that apply within the residential zoning districts
appear to be clear and objective. However,all new residential development except for single-
family detached units and duplexes is also subject to Site Development Review(SDR). SDR
applications are processed as a Type II procedure using the approval criteria contained in TCDC
18.360.090. The SDR approval criteria address the relationship between the built and physical
environment,building facade features,private and shared space,and transit access and
amenities. In addition to needed housing,these approval criteria apply to a wide range of
development types within the City (e.g., commercial,industrial,etc.) that are not subject to the
requirement for clear and objective standards.
This purpose of this code update is to implement the recommendation in the Tigard Housing
Strategies Report to:
Recommendation CA8:Review the Site Development Review approval criteria contained in TCDC
18.360.090;for those criteria that are not clear and objective, confirm that the issue is sulciently
addressed by other code standards;and, exempt needed housing(or residential developmentgenerally)
from those criteria that are not clear and objective.
18.360.010 through 18.360.080
No changes are proposed to the following sections:
• 18.360.010 Purpose
• 18.360.020 Applicability of Provisions
0 18.360.030 Approval Process
• 18.360.040 Bonding and Assurances
• 18.360.050 Major Modification(s) to Approved Plans or Existing Development
• 18.360.060 Minor Modification(s) to Approved Plans or Existing Development
• 18.360.070 Submission Requirements
• 18.360.080 Exceptions to Standards
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 2 March 7,2013
Code Amendments
Chapter 18.360
SITE DEVELOPMENT REVIEW
Sections:
18.360.010 Purpose
18.360.020 Applicability of Provisions
18.360.030 Approval Process
18.360.040 Bonding and Assurances
18.360.050 Major Modification(s)to Approved Plans or Existing Development
18.360.060 Minor Modification(s)to Approved Plans or Existing Development
18.360.070 Submission Requirements
18.360.080 Exceptions to Standards
18.360.090 Approval Criteria
18.360.010 through 18.360.080
[No change.]
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 3 March 7,2013
Commentary
18.360.090 Approval Criteria
While most of the SDR approval criteria appear to be clear and objective, some do appear to allow
for more discretion. For residential uses, in some cases the existing standards (e.g., setbacks,
landscaping and other standards in TDC 18.510, as well as standards for streets and utilities in TDC
18.810) may be sufficient to address the issue without the additional level of discretion provided by
the approval criteria.
Because all new residential development except for single-family detached units and duplexes are
also subject to the Site Development Review (SDR) requirements, the following amendmetns to
section 18.360.090 are being proposed to ensure the city is in compliance with ORS 197.307.
1. [No change.]
2. Relationship to the natural and physical environment
This criterion may be too discretionary to be used for needed housing. There are other areas
of the city's Development Code which provide more quantitative development standards
addressing similar issues. For example, 18.510.050 which applies within residential zoning
districts,is more clear and objective requiring mimimum lot sizes,setbacks,landscaping,etc.
To ensure the city is in compliance with ORS requirements for clear and objective standards
related to needed housing,text has been added to clarify that only nonresidential
development must meet Criterion #2.
3. [No change.]
Tigard Goal 10 Population and Housing Review Development Code Amendments
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Code Amendments
18.360.090 Approval Criteria
A. Approval criteria. The Director shall make a finding with respect to each of the following criteria
when approving,approving with conditions,or denying an application:
1. Compliance with all of the applicable requirements of this title including Chapter 18.810,
Street and Utility Standards;
2. Relationship to the natural and physical environment—Non-residential development:
a. Buildings shall be:
(1) Located to preserve existing trees, topography and natural drainage where possible
based upon existing site conditions;
(2) Located in areas not subject to ground slumping or sliding;
(3) Located to provide adequate distance between adjoining buildings for adequate light,
air circulation,and fire-fighting;and
(4) Oriented with consideration for sun and wind.
b. Innovative methods and techniques to reduce impacts to site hydrology and fish and
wildlife habitat shall be considered based on surface water drainage patterns, identified
per Section 18.810.100.A.3. and the City of Tigard "Significant Habitat Areas Map."
Methods and techniques for consideration may include, but are not limited to the
following:
(1) Water quality facilities(for infiltration,retention, detention and/or treatment);
(2) Pervious pavement;
(3) Soil amendment;
(4)Roof runoff controls;
(5) Fencing to guide animals toward safe passageways;
I (6) Re-directed outdoor lighting to reduce spill-off into habitat areas;
(7) Preservation of existing vegetative and canopy cover.
3. Exterior elevations:
a. Along the vertical face of single-family attached and multiple-family structures, offsets
shall occur at a minimum of every 30 feet by providing any two of the following:
(1) Recesses,e.g.,decks,patios,entrances,floor area,of a minimum depth of eight feet;
(2) Extensions, e.g., decks, patios, entrances, floor area, of a minimum depth of eight
feet,a maximum length of an overhang shall be 25 feet;and
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 5 March 7,2013
Commentary
18.360.090 Approval Criteria,ctd.
4. Buffering,screening and compatibility between adjoining uses
As noted previously,this criterion is may be too discretionary to be used for needed housing.
Criterion#4 requires buffering between different types of land uses,for example,between
single-family and multiple-family residential,and residential and commercial uses.
However,what constitutes an"adequate"buffer is determined from considering a list of
relatively subjective factors.
To ensure the city is in compliance with ORS requirements for clear and objective standards
related to needed housing,text has been added to clarify that only nonresidential
development must meet Criterion #4.
5. Privacy and noise—Multifamily or group living uses
This criterion is may be too discretionary to be used for needed housing. To ensure the city is
in compliance with ORS requirements for clear and objective standards related to needed
housing,and because the criterion relates only to residential uses(multifamily or group
living uses),Criterion#5 is proposed for deletion.
i
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 6 March 7,2013
Code Amendments
(3) Offsets or breaks in roof elevations of three or more feet in height.
4. Buffering, screening and compatibility between adjoining uses – Non-residential
development:
a. Non-residential development shall provide buffering Buffer-ing shall be pFo,,4
between different types of land uses, for example, between single c-nily and molti.'e
fiimily , mmr ial nd in st ' 1 u s and residential and commercial uses,
and the following factors shall be considered in determining the adequacy of the type and
extent of the buffer:
(1) The purpose of the buffer,for example to decrease noise levels, absorb air pollution,
filter dust,or to provide a visual barrier;
(2) The size of the buffer required to achieve the purpose in terms of width and height;
(3) The direction(s)from which buffering is needed;
(4) The required density of the buffering;and
(5) Whether the viewer is stationary or mobile.
b. On site screening from view from adjoining properties of such things as service areas,
storage areas, parking lots, and mechanical devices on roof tops, i.e., air cooling and
heating systems, shall be provided and the following factors will be considered in
determining the adequacy of the type and extent of the screening:
(1) What needs to be screened;
(2) The direction from which it is needed;
(3) How dense the screen needs to be;
(4) Whether the viewer is stationary or mobile;and
(5) Whether the screening needs to be year around.
5. Privacy and noise—Multifamily or group living uses: [deleted by Ord. 13-XX]
a. StFaewr-es whiek inelude Fesidefftia4 dwelling units shall pr-e-.ide private eutdoer areas
Suh-seetion 4.6.a ;
b. The buildings shall be or-ieftwd i hieh pfeteets private spaees en adjoining
e. Oa site uses whieh eFeate > light,
er- glar-e shall be buffered ffem adjoining
r-e..;.7....r:.l. ses;and
d-. Buffer-s shall be plaeed on the site as neeessafy to mitigate neise, light er-glafe fieffl off-
site setwees
Tigard Goal 10 Population and Housing Review Development Code Amendments
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Commentary
6. [No change.]
7. [No change.]
8. Consideration of the dedication of sufficient open land area
This criterion establishes a requirement for developments located adjacent to the 100 year
floodplain. As written the criterion is somewhat subjective and potentially ineffectual as it
simply requires"consideration"of a greenway dedication suitable for a pedestrian/bicycle
pathway.
To ensure the city is in compliance with ORS requirements for clear and objective standards
related to needed housing,text has been added to clarify that only nonresidential
development must meet Criterion #8.
Tigard Goal 10 Population and Housing Review Development Code Amendments
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Code Amendments
6. Private outdoor area—Multifamily use:
a. Private open space such as a patio or balcony shall be provided and shall be designed for
the exclusive use of individual units and shall be at least 48 square feet in size with a
minimum width dimension of four feet; and
(1) Balconies used for entrances or exits shall not be considered as open space except
where such exits or entrances are for the sole use of the unit; and
(2) Required open space may include roofed or enclosed structures such as a recreation
center or covered picnic area.
b. Wherever possible,private outdoor open spaces should be oriented toward the sun; and
c. Private outdoor spaces shall be screened or designed to provide privacy for the users of
the space.
7. Shared outdoor recreation areas—Multifamily use:
a. In addition to the requirements of Subsections A.5 and 6 above, usable outdoor
recreation space shall be provided in residential developments for the shared or common
use of all the residents in the following amounts:
(1) Studio up to and including two-bedroom units,200 square feet per unit; and
(2) Three or more bedroom units, 300 square feet per unit.
b. The required recreation space may be provided as follows:
(1) It may be all outdoor space; or
(2) It may be part outdoor space and part indoor space; for example, an outdoor tennis
court, and indoor recreation room; or
(3) It may be all public or common space; or
(4) It may be part common space and part private; for example, it could be an outdoor
tennis court,indoor recreation room and balconies on each unit; and
(5) Where balconies are added to units, the balconies shall not be less than 48 square
feet.
c. Shared outdoor recreation space shall be readily observable to promote crime prevention
and safety;
8. Where landfill and/or development for a non-residential use is allowed within and adjacent
to the 100-year floodplain, the City shall require consideration of the dedication of sufficient
open land area for greenway adjoining and within the floodplain. This area shall include
portions at a suitable elevation for the construction of a pedestrian/bicycle pathway within
the floodplain in accordance with the adopted pedestrian/bicycle plan.
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 9 March 7,2013
Commentary
9. Demarcation of public,semi-public and private spaces for crime prevention
While criterion#9 and#10 addressing crime prevention provide good guidance for residential
and non-residential developments,they are potentially too discretionary for needed housing.
To ensure the city is in compliance with ORS requirements for clear and objective standards
related to needed housing,text has been added to clarify that only nonresidential
development must meet Criterion #9.
10. Crime prevention and safety
While criterion#9 and#10 addressing crime prevention provide good guidance for residential
and non-residential developments,they are potentially too discretionary for needed housing.
To ensure the city is in compliance with ORS requirements for clear and objective standards
related to needed housing,text has been added to clarify that only nonresidential
development must meet Criterion #10.
11. [No change.]
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 10 March 7, 2013
Code Amendments
9. Demarcation of public, semi-public and private spaces for crime prevention — Non-residential
development:
a. The structures and site improvements shall be designed so that public areas such as
streets or public gathering places, semi-public areas and private outdoor areas are clearly
defined to establish persons having a right to be in the space, to provide for crime
prevention and to establish maintenance responsibility;and
b. These areas may be defined by,but not limited to:
(1) A deck,patio, low wall,hedge,or draping vine;
(2) A trellis or arbor;
(3) A change in elevation or grade;
(4) A change in the texture of the path material;
(5) Sign; or
(6) Landscaping.
10. Crime prevention and safety—Non-residential development:
a. Windows shall be located so that areas vulnerable to crime can be surveyed by the
occupants;
b. Interior'^• nd service areas shall be located in a way that they can be observed by
others;
c. Mailboxes shall be located in lighted areas having vehicular or pedestrian traffic;
d. The exterior lighting levels shall be selected and the angles shall be oriented towards
areas vulnerable to crime; and
e. Light fixtures shall be provided in areas having heavy pedestrian or vehicular traffic and
in potentially dangerous areas such as parking lots, stairs, ramps and abrupt grade
changes. Fixtures shall be placed at a height so that light patterns overlap at a height of
seven feet which is sufficient to illuminate a person.
11. Public transit:
a. Provisions within the plan shall be included for providing for transit if the development
proposal is adjacent to or within 500 feet of existing or proposed transit route;
b. The requirements for transit facilities shall be based on:
(1) The location of other transit facilities in the area; and
(2) The size and type of the proposal.
Tigard Goal 10 Population and Housing Review Development Code Amendments
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Commentary
12. [No change.]
13. [No change.]
14. [No change.]
15. [No change.]
Tigard Goal 10 Population and Housing Review Development Code Amendments
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Code Amendments
c. The following facilities may be required after City and Tri-Met review:
(1) Bus stop shelters;
(2) Turnouts for buses; and
(3) Connecting paths to the shelters.
12. Landscaping:
a. All landscaping shall be designed in accordance with the requirements set forth in
Chapter 18.745 and 18.790;
b. In addition to the open space and recreation area requirements of Subsections A.5 and 6
above, a minimum of 20% of the gross area including parking, loading and service areas
shall be landscaped; and
c. A minimum of 15%of the gross site area shall be landscaped.
13. Drainage: All drainage plans shall be designed in accordance with the criteria in the adopted
1981 master drainage plan;
14. Provision for the disabled: All facilities for the disabled shall be designed in accordance with
the requirements set forth in ORS Chapter 447; and
16. All of the provisions and regulations of the underlying zone shall apply unless modified by
other sections or this title, e.g., Planned Developments, Chapter 18.350; or a variance or
adjustment granted under Chapter 18.370. (Ord. 06-20, Ord. 02-33)■
Tigard Goal 10 Population and Housing Review Development Code Amendments
Page 13 March 7,2013
Exh � �-�.
Agenda Item:
Hearing Date: April 15,2013 Time: 7:00 PM
STAFF REPORT TO THE
PLANNING COMMISSION
FOR THE CITY OF TIGARD, OREGON
120 DAYS = N/A
SECTION I. APPLICATION SUMMARY
FILE NAME: TIGARD GOAL 10 POPULATION AND HOUSING REVIEW
FILE NO.: Comprehensive Plan Amendment(CPA)2013-00001,
Development Code Amendment(DCA)2013-00002
PROPOSAL: To adopt the Population and Housing Review as a component of Tigard
Comprehensive Plan Goal 10: Housing; to amend the current Tigard
Comprehensive Plan Goal 10: Housing goals, policies, and recommended
action measures; to amend Tigard Development Code section 18.360; and to
amend the current Tigard Comprehensive Plan Goal 2: Land Use Planning.
APPLICANT: City of Tigard OWNER: N/A
13125 SW Hall Boulevard
Tigard,OR 97223
LOCATION: Citywide
ZONING
DESIGNATION: All City zoning districts
COMP PLAN: All City comprehensive plan designations
APPLICABLE REVIEW CRITERIA:
Community Development Code Chapters 18.380.020 and 18.390.060.G;
Comprehensive Plan Goals 9; Comprehensive Goal 2; and Statewide
Planning Goals 1,2, 10 and 14.
SECTION II. STAFF RECOMMENDATION
Staff recommends that the Planning Commission recommend approval of the Goal 10 Population
and Housing Review to the Tigard City Council as determined through the public hearing process.
I TAI F 12I PORT TO TIIr PLANNING COMMISSION
CPA 2013-00001 G(ral 10 Popularion and Housing Review PAG E l OF 22
SECTION III. BACKGROUND INFORMATION
Project History
The City of Tigard is in State Periodic Review. One of the required Periodic Review work tasks is
to conduct a population and housing review. The City received grant funds from the Oregon
Department of Land Conservation and Development for technical consultant assistance to
complete this task.
The Tigard 2013 Housing Strategies Report(Housing Strategies Report) was developed in compliance with
OAR 660 Division 10 (Statewide Planning Goal 10: Housing) and is a technical study that
compares projected demand for land for housing to the existing supply of such land. The purpose
of the Housing Strategies Report is to assist the city in meeting community aspirations for growth,
as outlined in the comprehensive plan,while complying with state housing goals and requirements.
The project looks at population projections and demographic trends along with the amount and
location of available land. The end result is a list of potential strategies to meet the city's future
demand for housing that implement the city's aspirations and state requirements. The project also
provides a qualitative analysis of trends and market preferences in regards to an aging population
and potential recovery from the recent housing downturn. Strategies that respond to the
opportunities presented by potential high capacity transit,redevelopment of downtown Tigard, and
the future development of the recently annexed River Terrace are included.
The city convened a combined Technical Advisory Committee (TAC) and Citizens Advisory
Committee (CAC) for the project. This committee reviewed each task during the process to
complete the Housing Strategies Report. The six tasks reviewed by the committee included:
1. Data Review and Report
2. Metropolitan Housing Rule Review and compliance with OAR 660-07-0000
3. Policy Evaluation and Report
4. Development Code Evaluation and Report
5. Housing Strategies Report
6. Draft Goal 10 Population and Housing Report
The tasks include examining future population projections and demographic trends to asses
Tigard's housing development potential,projecting household growth and determining short-and
long term demand for residential land. This demand is compared to an inventory of suitable
residential land (supply) to assess the sufficiency of immediate and longer-term (20-year) supply of
residential land in the City's Urban Planning Area (UPA).
The project meets the state requirements for a Goal 10 population and housing analysis and acts as
a resource for staff, decision makers, and the public. One important task in the development of the
Housing Strategies Report was to consider land use planning efforts underway or already completed
and the City's expectations for redevelopment of its centers and corridors. This allowed the process
to build upon previously adopted plans to ensure consistency and continuity.
Proposal Description
Housing Strategies Report
The Housing Strategies Report serves as a component of the Tigard Comprehensive Plan Goal 10. It
identifies the amount of needed residential land for the next 20 years and strategies to implement
the city's vision related to housing. It builds on a comprehensive study of the local housing market
STAFF REPORT TO'THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and 1 lousing Review PAGE 2 OF 22
and future trends and an in-depth review of current local, regional, state and federal housing
requirements,goals and initiatives. The strategies in the report will help to guide future decisions.
Ubdates to the Comprehensive Plan
Goal 10.Housing
As part of the process, existing Goal 10 language, which was revised and adopted in 2008, is
proposed for updating. Much of the language remains relevant,including the majority of the Plan's
goals, policies and recommended action measures, however, a number of changes to the Plan are
proposed. In general, the narrative portion of the chapter has been updated to reflect current
conditions such as the annexation of the River Terrace area to the city. The Key Findings section
of the chapter is proposed to be replaced with data from the population and housing needs
assessment prepared for the city as part of this project. Several relatively small updates to the Goals,
Policies and Action Measures are proposed.
Goal 2:land Use Planning
Tigard Periodic Review Task 6 was a Population Forecast and Coordination with Metro. Oregon
land use law (ORS 195.036; 195.025) requires Metro to coordinate its regional population forecasts
with local governments inside the UGB for use in updating their comprehensive plans, land use
regulations and related policies. One additional policy in Chapter 2 is proposed for adoption.
Updates to the Development Code
To ensure the city is in compliance with state regulations which require, "clear and objective
standards, conditions and procedures regulating the development of needed housing" changes to
the Site Development Review (SDR) approval criteria are being proposed. These approval criteria
apply to a wide range of development types within the City (e.g., commercial, industrial, etc.),
including housing. While most of the SDR approval criteria appear to be clear and objective, some
do appear to allow for more discretion. This code update clarifies that housing is exempt from
meeting these more discretionary criteria.
The Housing Strategies Report recommends additional Development Code amendments to further
the city's vision for future housing. These amendments are included as part of an Action Plan and
will be addressed as part of CD's future work program.
Summary
The primary intent of the amendment is to ensure the City's Comprehensive Plan remains a
viable tool for decision-makers. By adopting the amendment, the City will ensure it is in
compliance with applicable laws, rules, regulations, plans, and programs. As importantly, the
update will also ensure that Goal 10 of the Comprehensive Plan reflects current community
conditions and values.
STAFF REPOR'r TO THE PLANNING COMMISSION
CPA 2013-00001 Gaal 10 Population and Housing Review PAGE:3 OF 22
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SECTION IV. APPLICABLE CRITERIA, FINDINGS AND CONCLUSIONS
APPLICABLE PROVISIONS OF THE TIGARD COMMUNITY DEVELOPMENT CODE
(TITLE 18)
Chapter 18.380: Chapter 18.380.020 Legislative Amendments to the Title and Map
Zoning Map A. Legislative amendments. Legislative zoning map and text
and Text amendments shall be undertaken by means of a Type IV procedure,
Amendments as governed by Section 18.309.060G
FINDING: The proposed will be reviewed under the Type IV legislative procedure as
set forth in the chapter. This procedure requires public hearings by both the
Planning Commission and City Council.
CONCLUSION: Based on the above findings,this provision is met.
Chapter 18.390: Chapter 18.390.020. Description of Decision-Making Procedures
Decision- B.4. Type IV Procedure. Type IV procedures apply to legislative
Making matters. Legislative matters involve the creation, revision, or large-
Procedures scale implementation of public policy. Type IV matters are
considered initially by the Planning Commission with final decisions
made by the City Council.
FINDING: The amendment to the Tigard Comprehensive Plan establishes policies to
be applied generally throughout the City of Tigard. Therefore it will be
reviewed under the Type N procedure as detailed in Section 18.390.060.G.
In accordance with this section, the amendment will initially be considered
by the Planning Commission with City Council making the final decision.
CONCLUSION: Based on the above findings,this provision is met.
Chapter 18.390: Chapter 18.390.060.G.Decision-making considerations.The
Decision- recommendation by the Commission and the decision by the Council
Making shall be based on consideration of the following factors:
Procedures 1. The Statewide Planning Goals and Guidelines adopted under
Oregon Revised Statutes Chapter 197;
2. Any federal or state statutes or regulations found applicable;
3. Any applicable Metro regulations;
4. Any applicable comprehensive plan policies;and
5. Any applicable provisions of the City's implementing
ordinances.
FINDING: Findings and conclusions are provided below for the applicable listed
+ factors on which the recommendation by the Commission and the decision
by the Council shall be based.
CONCLUSION: Based on the findings above and below,this provision is met.
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 4 OF 22
THE STATEWIDE PLANNING GOALS AND GUIDELINES ADOPTED UNDER
OREGON REVISED STATUTES CHAPTER 197
Goal 1: Citizen This goal outlines the citizen involvement requirement for adoption
Involvement of Comprehensive Plans and changes to the Comprehensive Plan and
implementing documents.
FINDING: This goal was met through an extensive public involvement process.
Information was distributed throughout the process via the City's website,
Cityscape articles, and a series of four public meetings with the combined
Technical Advisory Committee and Citizens Advisory Committee.
Outreach methods also included updates to City boards and commissions.
As part of the Comprehensive Plan Amendment process, public notice of
the Planning Commission and City Council public hearings was sent to the
interested parties list and published in the March 21, 2013 issue of The
Times (in accordance with Tigard Development Code Chapter 18.390). The
notice invited public input and included the phone number of a contact
person to answer questions. The notice also included the address of the
City's webpage where the entire draft of the text changes could be viewed.
CONCLUSION: Based on the above findings,Statewide Planning Goal 1 is met.
Goal 2: Land This goal outlines the land use planning process and policy
Use Planning framework. The Comprehensive Plan was acknowledged by DLCD
as being consistent with the statewide planning goals.
FINDING: The amendment to the Tigard Comprehensive Plan is being undertaken to
update the City's acknowledged Comprehensive Plan in a manner
consistent with current conditions and citizen values. The amendment to
the Tigard Comprehensive Plan is being processed as a Type IV procedure,
which requires any applicable statewide planning goals, federal or state
statutes or regulations, Metro regulations, comprehensive plan policies, and
City's implementing ordinances,be addressed as part of the decision-making
process. The amendment is included as a periodic review work program
task. The City of Tigard was notified of commencement of periodic review
in May 2008 and had its work program approved in April 2010.All noticing
requirements have been met. All applicable review criteria have been
addressed within this staff report.
CONCLUSION: Based on the above findings,Statewide Planning Goal 2 is met.
Goal 5: Natural This goal requires the inventory and protection of natural resources,
Resources open spaces,historic areas and sites.
FINDING: The City is currently in compliance with the State's Goal 5 program and
Metro's Title 13: Nature in Neighborhoods program, which implements
Goal 5. The amendment does not alter the City's acknowledged Goal 5
inventories or land use programs. No changes will occur to current natural
resource protections.
." STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 5 OF 22
a
CONCLUSION: Based on the above findings, Statewide Planning Goal 5 is met.
Goal 6:Air, This goal requires the inventory and protection of natural resources,
Water, and Land open spaces,historic areas and sites.
Resources
Quality
FINDING: The City is currently in compliance with Metro's Title 3: Water Quality and
Flood Management program, which implements Goal 6. The amendment
does not alter the City's acknowledged land use programs regarding water
quality and flood management protections.
CONCLUSION: Based on the above findings, Statewide Planning Goal 6 is met.
Goal 7:Areas To protect people and property from natural hazards.
Subject to
Natural Hazards
FINDING: The City is currently in compliance with Metro's Title 3: Water Quality and
Flood Management program, which implements Goal 7. The amendment
does not alter the City's acknowledged land use programs regarding water
quality and flood management protections. The City is currently a
participant in the National Flood Insurance Program administered by the
Federal Emergency Management Agency. The amendment does not alter
the City's participation.
CONCLUSION: Based on the above findings, Statewide Planning Goal 7 is met.
Goal 8: This goal requires the satisfaction of the recreational needs of the
Recreational citizens of the state and visitors and,where appropriate, to provide for
Needs the siting of necessary recreational facilities including destination
resorts.
FINDING: The City is currently in compliance with Statewide Planning Goal 8. The
amendment does not alter the City's acknowledged Goal 8 policies or land
use programs.
CONCLUSION: Based on the above findings,Statewide Planning Goal 8 is met.
Goal 9: To provide adequate opportunities throughout the state for a variety
Economic of economic activities vital to the health,welfare, and prosperity of
Development Oregon's citizens.
FINDING: The City is currently in compliance with Goal 9 and Metro's Title 4:
Industrial and Other Employment Areas through its acknowledged
Comprehensive Plan. The amendment does not alter the City's
acknowledged Goal 9 policies or land use programs.
CONCLUSION: Based on the above findings,Statewide Planning Goal 9 is met.
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and I lousing Review PAGE 6 OF 22
Goal 10: To provide adequate housing for the needs of the community, region
Housing and state.
FINDING: This amendment is required as part of State Periodic Review and OAR 660,
Division 7. The amendment adopts the Goal 10 Housing and Population
Review,which was completed following the rules outlined in Division 7 and
compares projected demand to current supply of buildable lands to ensure
the city's policies and implementing actions are sufficient to meet the
needed 20-year supply. The Housing strategies report shows in more detail
that the city will provide adequate housing to meet the needs of the Tigard
community. Updates to the narrative and key findings sections of the city's
Comprehensive Plan chapter 10 (CPA 2013-00001) are to reflect this
updated analysis.
The Department of Land Conservation and Development,who administers
Division 7, was consulted through the process and were requested to
submit comments. Any comments can be found in the Outside Agency
Comments section. The adoption of the Tigard Population and Housing
Review and the amendment to the Tigard Comprehensive Plan maintains
the city's compliance with Goal 10.
CONCLUSION: Based on the above findings, Statewide Planning Goal 10 is met.
Goal 11: Public To plan and develop a timely,orderly and efficient arrangement of
Facilities and public facilities and services to serve as a framework for urban and
Services rural development.
FINDING: The City is currently in compliance with Goal 11 through its acknowledged
Comprehensive Plan. This includes an adopted Public Facility Plan as
required by Oregon Revised Statute 197.712 and Oregon Administrative
Rule 660-011. The amendment does not alter the City's acknowledged Goal
11 policies or plans.
CONCLUSION: Based on the above findings,Statewide Planning Goal 11 is met.
Goal 12: To provide and encourage a safe, convenient, and economic
Transportation transportation system.
FINDING: The City is currently in compliance with Goal 12 and Metro's Regional
Transportation Plan through its acknowledged Comprehensive Plan and
Transportation System Plan as required by Oregon Administrative Rule
660-012 (Transportation Planning Rule). The amendment adopts the
Tigard Housing Strategies Report and does not alter Goal 12 plans or
policies. .
CONCLUSION: Based on the above findings, Statewide Planning Goal 12 is met.
STAFF REPORT TO TI IE PLANNING COMMISSION
CPA 2013-00001(foal 10 Population and Housing Review PAGE.7 OF 22
Goal 13: Energy Land and uses developed on the land shall be managed and
Conservation controlled so as to maximize the conservation of all forms of energy,
based on sound economic principles.
FINDING: The City is currently in compliance with Goal 13 through its acknowledged
Comprehensive Plan. The adoption of the Tigard Housing Strategies Report
does not alter the City's compliance with Goal 13.
CONCLUSION: Based on the above findings,Statewide Planning Goal 13 is met.
Goal 14: Land and uses developed on the land shall be managed and
Urbanization controlled so as to maximize the conservation of all forms of energy,
based on sound economic principles.
FINDING: The City is currently in compliance with Goal 14 and Metro's Title 11:
Planning for New Urban Areas through its acknowledged Comprehensive
Plan and land use regulations. The City also has a signed Urban Planning
Area Agreement and Urban Services Agreement as required by ORS
195.065 and ORS 197. This amendment is required as part of State Periodic
Review and OAR 660, Division 7. The amendment adopts the Tigard
Housing Strategies Report, which was completed following the rules
outlined in Division 7 and compares projected demand to current supply of
vacant residential land to ensure the City's policies and implementing
actions are sufficient to preserve the needed 20-year supply of this vacant
land. The amendment is consistent with this goal.
CONCLUSION: Based on the above findings, Statewide Planning Goal 14 is met.
APPLICABLE FEDERAL OR STATE STATUTES OR REGULATIONS
Fair Housing The Fair Housing Act is a federal law first passed in 1968 requiring
Act jurisdictions to take affirmative actions to ensure fair treatment of
"protected classes."
FINDING: The Fair Housing Act means that housing and housing finance tools cannot
be denied to any person based on gender, race, color, religion, national
origin, familial status, or disability. The state of Oregon augments the
protected class status to add additional protected classes.
The Tigard Population and Housing Review Task 3 and 4 Report details the
city's compliance with the Fair Housing Act. One additional policy is
recommended in the proposed Comprehensive Plan Goal 10 update to
address the Fair Housing Act. Additional voluntary strategies are
recommended in the Housing Strategies Report to address Fair Housing.
CONCLUSION: Based on the above findings, adoption of the proposed Comprehensive
Plan amendment (CPA 2013-00001) and the Tigard Housing Strategies
Report will ensure the city is in compliance with the Fair Housing Act.
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housnig Review PAGE.8 OF 22
OAR 660, The purpose of this rule is to assure opportunity for the provision of
Division 7: adequate numbers of needed housing units and the efficient use of
Metropolitan land within the Metropolitan Portland (Metro) urban growth
Housing Rule boundary,to provide greater certainty in the development process and
so to reduce housing costs.
FINDING: The Land Conservation and Development Commission adopted Oregon
Administrative Rule 660, Division 7 to implement Statewide Planning Goal
10. The City of Tigard is currently in State Periodic Review,which requires
the review and amendment of comprehensive plans and land use
regulations. The City was required to complete a Population and Housing
Review (Goal 10) as part of its periodic review work program to ensure
compliance with this rule.
The Tigard Task 1 and 2 Report of the Population and Housing Review
addresses compliance with the Metropolitan Housing Rule. Key sections of
the rule require local jurisdictions to provide a variety of housing types
(Section 30), and to meet overall target densities to ensure that land is used
efficiently (Section 35).
This detailed analysis of each section in Division 7 shows that Tigard is
meeting Rule requirements in all but one category. The proposed
development code amendment (DCA 2013-00002) will ensure that the city
is in compliance with Section 15 requiring clear and objective approval
standards.
CONCLUSION: Based on the above findings, adoption of DCA 2013-00002 will ensure the
city is in compliance with the Metropolitan Housing Rule.
ORS 197.295- Needed Housing in Urban Growth Areas
197.314
FINDING: ORS 197.296 establishes ,requirements for conducting buildable lands
inventories (BLIs) and needs analysis related to housing during periodic
review. The Tigard Population and Housing Review conducted an analysis
in accordance with ORS 197.296 to ensure that the Comprehensive Plan
provides sufficient lands within the urban growth boundary to
accommodate estimated housing needs for 20 years.
The Tigard Task 3 and 4 Report of the Population and Housing Review
addresses Tigard Development Code compliance with other statues: ORS
197.303, 197.307, 197.309, and 197.312. Again, adoption of the proposed
development code amendment (DCA 2013-00002) will ensure that the city
is in compliance with state statutes,particularly regarding clear and objective
standards (ORS 197.307).
Please note that ORS 197.299, 197.301, and 197.302 apply to Metro and
were not reviewed as part of the Tigard Population and Housing Review.
Sl'AFF REPORT TO THF.PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and I lousing Review PAGE'9 OF 22
CONCLUSION: Based on the above findings, adoption of the Comprehensive Plan
amendment (CPA 2013-00001) and Tigard Development Code
Amendment (DCA 2013-00002) will ensure the city is in compliance with
ORS 197.295-197.314.
APPLICABLE METRO REGULATIONS
Urban Growth Management Functional Plan
Title 1 Housing Capacity-The Regional Framework Plan calls for a
compact urban form and a "fair-share" approach to meeting regional
housing needs. It is the purpose of Title 1 to accomplish these
policies by requiring each city and county to maintain or increase its
housing capacity.
FINDING: Title 1 facilitates the efficient use of land within the Urban Growth Boundary
(UGB). The Title requires cities and counties to determine their capacity for
housing and adopt minimum density requirements. Title 1 also requires cities
and counties to report changes in capacity annually to Metro.
Metro staff has confirmed that the City of Tigard is in compliance with Title
1. The development of the Tigard Goal 10 Population and Housing Review
involved discussions with Metro staff and Oregon Department of Land
Conservation and Development staff. They were provided the opportunity
to review and comment on all work leading up to the documents proposed
for adoption. The purpose of the collaboration was to ensure consistency
and compliance with state and regional requirements.
This amendment (CPA2013-00001) adopts the Tigard Goal 10 Population
and Housing Review, which was completed following the rules outlined in
OAR 660, Division 7. The amendment sets policy related to a 20-year
supply of land and does not affect compliance with Title 1.
CONCLUSION: Based on the above findings, Metro's Urban Growth Management
Functional Plan Title 1 is met.
Title 7 Housing Choice-The Regional Framework Plan calls for
establishment of voluntary affordable housing production goals to be
adopted by local governments.
FINDING: The intent of Title 7 is to provide a choice of housing types, reduce barriers
to sufficient and affordable housing for all income levels in the region, create
housing opportunities commensurate with the wage rates of jobs available
across the region, initiate a process for addressing current and future needs
for affordable housing, and to reduce concentrations of poverty. In addition
to affordable housing production goals Title 7 contains other affordable
housing strategies.
Metro staff has confirmed that the City of Tigard is in compliance with Title
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and I lousing Review PAGE.10 OF 22
7. The development of the Tigard Goal 10 Population and Housing Review
involved discussions with Metro staff and Oregon Department of Land
Conservation and Development staff. They were provided the opportunity
to review and comment on all work leading up to the documents proposed
for adoption. The purpose of the collaboration was to ensure consistency
and compliance with state and regional requirements.
This amendment (CPA2013-00001) adopts the Tigard Goal 10 Population
and Housing Review, which was completed following the rules outlined in
OAR 660, Division 7. The amendment sets policy related to a 20-pear
supply of land and strengthens the city's commitment to providing
affordable housing. Comprehensive Plan Goal 10.1 is proposed to read,
"Provide opportunities for a variety of housing types at a range of ,price
levels to meet the diverse housing needs of current and future city
residents." Action measures and strategies are proposed for addition to the
Comprehensive Plan and Housing Strategies Report respectively to address
affordable housing.
CONCLUSION: Based on the above findings, Metro's Urban Growth Management
Functional Plan Title 7 is met.
APPLICABLE COMPREHENSIVE PLAN POLICIES
Chapter 1: Citizen Involvement
Goal 1.1 Provide citizens, affected agencies, and other jurisdictions the opportunity to
participate in all phases of the planning process.
Policy 2 The City shall define and publicize an appropriate role for citizens in
each phase of the land use planning process.
FINDING: The proposal has complied with all notification requirements pursuant to
Chapter 18.390.060 of the Tigard Community Development Code. This staff
report was also available seven days in advance of the hearing pursuant to
Chapter 18.390.070.E.b of the Tigard Community Development Code.
Information was distributed throughout the process according to a public
involvement plan, including via Cityscape articles and public meetings with a
combined TAC/CAC acting as the advisory committee. Involvement
opportunities included a series of four public meetings held by the advisory
committee and submitting written or oral comments at the meetings.
Outreach methods also included updates to City boards and commissions.
;c As part of the Comprehensive Plan Amendment process, public notice of
the Planning Commission and City Council public hearings was sent to the
interested party list and published in the March 21, 2013 issue of The
Times. The notice invited public input and included the phone number of a
F contact person. The notice also included the address of the City's webpage
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 11 OF 22
i
where the entire draft of the proposed amendment could be viewed.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 1.1 Policy 2
is met.
Policy 3 The City shall establish special citizen advisory boards and
committees to provide input to the City Council, Planning
Commission, and City staff.
FINDING: City staff convened a combined TAC/CAC to act as an advisory committee
for the Goal 10 Population and Housing Review. The advisory committee
helped guide the completion of the project by reviewing work products and
providing advice and feedback to ensure the community's needs and
aspirations were being captured in the update. The committee met four
times in public settings from July 2012 to February 2013.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 1.1 Policy 3
is met.
Policy 5 The opportunities for citizen involvement provided by the City shall
be appropriate to the scale of the planning effort and shall involve a
broad cross-section of the community.
FINDING: As outlined above, the community was given multiple venues to get
information and get involved. This included a number of articles in the
Cityscape newsletter that is delivered to every household in Tigard. Staff
also made a good faith effort to ensure a diversity of representation on the
advisory committee and the opportunity for citizen input at the advisory
committee meetings.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 1.1 Policy 5
is met.
Goal 1.2 Ensure all citizens have access to:
A. opportunities to communicate directly to the City;and
B. information on issues in an understandable form.
Policy 1 The City shall ensure pertinent information is readily accessible to the
community and presented in such a manner that even technical
information is easy to understand.
FINDING: Information regarding the topics included in Goal 10 Population and
Housing Review was available in multiple locations in an understandable
format for the duration of the process. This included paper and electronic
copies that were available in the permit center and also on the website.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 1.2 Policy 1
is met.
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Ilousing Review PAGE 12 OF 22
Policy 2 The City shall utilize such communication methods as mailings,
posters, newsletters, the internet, and any other available media to
promote citizen involvement and continue to evaluate the
effectiveness of methods used.
FINDING: Information was distributed throughout the process via the City's website,
Cityscape articles, and a series of four public meetings held by the advisory
committee. Outreach methods also included updates to City boards and
commissions.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 1.2 Policy 2
is met.
Policy 5 The City shall seek citizen participation and input through
collaboration with community organizations,interest groups, and
individuals in addition to City sponsored boards and committees.
FINDING: Outreach methods included updates to City boards and commissions.
Representation on the advisory committee included both city sponsored
committees, like the Planning Commission, and outside organizations like
the Home Builders Association of Metropolitan Portland.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 1.2 Policy 5
is met.
Chapter 2: Land Use Planning
Goal 2.1 Maintain an up-to-date Comprehensive Plan, implementing regulations and
action plans as the legislative basis of Tigard's land use planning program.
Policy 1 The City's land use program shall establish a clear policy direction,
comply with state and regional requirements, and serve its citizens'
own interests.
FINDING: The amendment refines the general policy direction related to Tigard
Comprehensive Plan Goal 10: Housing for the community. The policy
statements are clear and serve the interests of the citizens. The development
of the Tigard Housing Strategies Report was required as a component of
State Periodic Review and complies with Oregon Administrative Rule 660,
Division 7.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 2.1 Policy 1
is met.
Policy 2 The City's land use regulations, related plans, and implementing
actions shall be consistent with and implement its Comprehensive
Plan.
FINDING: The amendment refines the general policy direction related to Tigard
Comprehensive Plan Goal 10: Housing. The Tigard Goal 10 Population and
STAFF REPORTTO,rHE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 13 OF 22
Housing Review compares projected demand to current supply of vacant
buildable land to ensure the City's policies and implementing actions are
sufficient to preserve the needed 20-year supply of these lands. The
development of the Goal 10 Population and Housing Review used current
Tigard Comprehensive Plan policies and land use designations as part of the
analysis of future buildable land needs as required by state law.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 2.1 Policy 2
is met.
Policy 3 The City shall coordinate the adoption, amendment, and
implementation of its land use program with other potentially affected
jurisdictions and agencies.
FINDING: The City sent out request for comments on the proposed amendment to all
potentially affected jurisdictions and agencies. All were given 14 days to
respond. Any comments that were received are addressed in Section VII:
Outside Agency Comments of this Staff Report. Additionally, Metro, the
Department of Land Conservation and Development, and Washington
County staff provided input throughout the development of the Tigard
Goal 10 Population and Housing Review as members of the Technical
Advisory Committee.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 2.1 Policy 3
is met.
Policy 5 The City shall promote intense urban level development in Metro-
designated Centers and Corridors, and employment and industrial
areas.
FINDING: The Goal 10 Population and Housing Review identified and acknowledged
the City's desire for development, and the potential for redevelopment, of
these areas. Assumptions made about redevelopment and refill potential
were based on City policy and Metro guidance to determine the amount of
buildable land needed for the next 20-years.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 2.1 Policy 5
is met.
Policy 20 The City shall periodically review and if necessary update its
Comprehensive Plan and regulatory maps and implementing
measures to ensure they are current and responsive to community
needs,provide reliable information, and conform to applicable state
law, administrative rules, and regional requirements.
FINDING: The amendment is an update to Goals 2 and 10 of the Tigard
Comprehensive Plan as required by State Periodic Review. The amendment
adopts the Goal 10 Population and Housing Review, which used the most
reliable, up-to-date information to determine the 20-year buildable land
needs. The Goal 10 Population and Housing Review ensures compliance
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 14 OF 22
with Oregon Administrative Rule 660-007, which governs the efficient use
of land within the Metropolitan Portland (Metro) urban growth boundary.
Findings of conformance to applicable state and regional requirements can
be found in Section V of this Staff Report.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 2.1 Policy
20 is met.
Chapter 5:Natural Resources and Historic Areas
Goal S.1 Protect natural resources and the environmental and ecological functions they
provide and, to the extent feasible, restore natural resources to create naturally
functioning systems and high levels of biodiversity.
FINDING: As discussed in the findings made for Statewide Planning Goal 5, the
amendment does not alter the City's acknowledged Goal 5 inventories or
land use programs. No changes will occur to current Natural Resource
protections as the result of adopting the Tigard Goal 10 Population and
Housing Review. This amendment does not conflict with goals and policies
of this chapter of the Tigard Comprehensive Plan.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 5.1 is met.
Chapter 6: Environmental Quality
Goal 6.1 Reduce air pollution and improve air quality in the community and region.
Policy 3 The City shall promote land use patterns,which reduce dependency
on the automobile, are compatible with existing neighborhoods, and
increase opportunities for walking,biking, and /or public transit.
FINDING: The Tigard Housing Strategies Report is consistent with this policy as the
Goal 10 Population and Housing Review addresses future planning for new
residential areas, including development in River Terrace, Downtown, the
Tigard Triangle, Washington Square, and other centers and corridors.
Several strategies listed in the Implementation Plan address the city's vision
for residential development in these areas. The Strategies Report supports
the work of the Tigard HCT Land Use Plan which considered potential
high capacity transit station communities in Tigard. This development and
redevelopment will result in more intense urban land uses that reduce the
dependency on the automobile and increase opportunities for walking,
biking,and public transit.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal.6.1 Policy 3
is met.
Chapter 7: Hazards
STAFF RETORT TO TI IE PLANNING COMMISSION
CPA 2013-00001 Geral 10 Population and I lousing Revicw PAGE,15 OF 22
Goal 7.2 Protect people and property from flood, landslide, earthquake, wildfire, and
severe weather hazards.
FINDING: The adoption of the Tigard Goal 10 Population and Housing Review has
no impact on City policies or programs related to hazards. The
development of the Review used the city's buildable lands inventory. The
inventory excludes sensitive lands,including the 100-year floodplain.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 7.2 is met.
Chapter 8: Parks, Recreation,Trails, and Open Space
FINDING: The adoption of the Tigard Goal 10 Population and Housing Review has
no impact on City policies or programs related to parks,recreation, trails, or
open space.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Chapter 8 is met.
Chapter 9: Economic Development
Goal 9.3 Make Tigard a prosperous and desirable place to live and do business.
Policy 3 The City shall commit to improving and maintaining the quality of
community life (public safety, education, transportation, community
design, housing, parks and recreation, etc.) to promote a vibrant and
sustainable economy.
FINDING: This amendment adopts the Goal 10 Population and Housing Review,
which used the most reliable, up-to-date information to determine the 20-
year buildable land needs. An adequate supply of land for housing supports
this goal.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 9.3 is met.
Chapter 10: Housing
Goal 10.1 Provide opportunities for a variety of housing types to meet the diverse housing
needs of current and future City residents.
Policy 1 The City shall adopt and maintain land use policies, codes, and
standards that provide opportunities to develop a variety of housing
types that meet the needs, preferences and financial capabilities of
Tigard's present and future residents.
FINDING: This amendment adopts the Goal 10 Population and Housing Review,
which used the most reliable, up-to-date information to detexrnine the city's
20-year buildable land needs. The analysis also determined that the city is
meeting the regional residential density and mix standards according to the
STAFF REPORTTO'nIE PLANNING COMMISSION
CPA 2013-00001 Coal 10 Population and I lousing Review PAGE 16 OF 22
i
Metropolitan Housing Rule (and Metro's Title 1), to provide for a variety of
housing types. The analysis also discusses Tigard's continued support of
affordable housing through voluntary implementation of Title 7.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 10.1 Policy
1 is met.
Policy 2 The City's land use program shall be consistent with applicable state
and federal laws.
FINDING: The amendment establishes the general policy direction related to Tigard
Comprehensive Plan Goal 10: Housing for the community. The
development of the Goal 10 Population and Housing Review was
completed as a requirement of State Periodic Review and complies with
Oregon Administrative Rule 660, Division 7, which governs the
development of these studies in the state. Adoption of the proposed Goal
10 Population and Housing Review will help to ensure Tigard remains in
compliance with Comprehensive Plan Goal 10.1 Policy 2.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 10.1 Policy
2 is met.
Policy 5 The City shall provide for high and medium density housing in the
areas such as town centers (Downtown), regional centers (Washington
Square), and along transit corridors where employment opportunities,
commercial services, transit, and other public services necessary to
support higher population densities are either present or planned for in
the future.
FINDING: The Goal 10 Population and Housing Review addresses future planning for
new residential areas,including development in River Terrace, Downtown,
the Tigard Triangle, Washington Square, and other centers and corridors.
Several strategies listed in the Implementation Plan address the city's vision
for residential development in these areas. The Strategies Report supports
the work of the Tigard HCT Land Use Plan which considered potential
high capacity transit station communities in Tigard.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 10.1 Policy
5 is met.
Policy 7 The city shall comply with federal and state housing laws and
applicable implementing administrative rules.
FINDING: The Goal 10 Population and Housing Review addresses Tigard's
compliance with federal and state housing laws and applicable
implementing administrative rules. Adoption of the Tigard Goal 10
Population and Housing Review will ensure the city remains in compliance
with these rules.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 10.1 Policy
'4 STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 17 OF 22
7 is met.
Chapter 11: Public Facilities and Services
Goal 11.2 Secure a reliable, high quality, water supply to meet the existing and future
needs of the community.
Goal 11.3 Develop and maintain a wastewater collection system that meets the existing
and future needs of the community.
FINDING: This amendment adopts the Goal 10 Population and Housing Review,
which used the most reliable, up-to-date information to determine the 20-
year buildable land needs. Updated population and housing estimates help
to ensure that the city can accurately plan for an adequate supply of reliable
high quality water, and a wastewater collection system, that meet existing
and future needs.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goals 11.2 and
11.3 are met.
Chapter 12:Transportation
Goal 12.1 Develop mutually supportive land use and transportation plans to enhance the
livability of the community.
Goal 12.2 Develop and maintain a transportation system for the efficient movement of
people and goods.
Goal 12.3 Provide and accessible, multi-modal transportation system that meets the
mobility needs of the community.
FINDING: The Goal 10 Population and Housing Review addresses future planning for
new residential areas, including development in River Terrace, Downtown,
the Tigard Triangle, Washington Square, and other centers and corridors.
Several strategies listed in the Implementation Plan address the city's vision
for residential development in these areas. The Strategies Report supports
the work of the Tigard HCT Land Use Plan which considered potential
high capacity transit station communities in Tigard.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goals 12.1, 12.2,
and 12.3 and are met.
Chapter 13: Energy Conservation
Goal 13.1 Reduce energy consumption.
Policy 1 The City shall promote the reduction of energy consumption associated
with vehicle miles traveled through:
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CPA 2013-00001 Goal 10 Population and Rousing Review PAGE.18 OF 22
A. land use patterns that reduce dependency on the automobile;
B. public transit that is reliable, connected, and efficient; and
C. bicycle and pedestrian infrastructure that is safe and well
connected.
FINDING: The Goal 10 Population and Housing Review addresses future planning for
new residential areas, including development in River Terrace, Downtown,
the Tigard Triangle, Washington Square, and other centers and corridors.
The Strategies Report supports the work of the Tigard HCT Land Use Plan
which considered potential high capacity transit station communities in
Tigard. This development and redevelopment will result in more intense
urban land uses that reduce the dependency on the automobile and increase
opportunities for walking, biking, and public transit. Several strategies listed
in the Implementation Plan address the city's vision for residential
development in these areas.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 13.1 Policy
1 is met.
Chapter 14: Urbanization
Goal 14.1 Provide and/or coordinate the full range of urban level services to lands and
citizens within the Tigard City Limits.
Policy 6 The City shall, as needed, coordinate and/or participate in planning
activities or development decisions within the Tigard Urban Services
Area.
FINDING: This amendment adopts the Goal 10 Population and Housing Review,
which used the most reliable, up-to-date information to determine the 20-
year buildable land needs. The Report found that the city has the necessary
20-year supply of buildable land within the Tigard Urban Planning Area,
which is coincident with the Tigard Urban Services Area.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 14.1 Policy
6 is met.
Goal 14.2 Promote Tigard citizens' interests in urban growth boundary expansion and
other regional and state growth management decisions.
Policy 6 The City shall maintain the low-density residential character of its
existing single family residential neighborhoods and accommodate
more intense urban land uses in its regional and town centers and
within major transportation corridors to be consistent with Statewide
Planning Goals and the Metro Framework Plan.
FINDING: The Goal 10 Population and Housing Review addresses future planning for
new residential areas,including development in River Terrace, Downtown,
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CPA 2013-00001 Goal 10 Population and Housing Review PAG F.19 OF 22
the Tigard Triangle, Washington Square, and other centers and corridors.
The Strategies Report supports the work of the Tigard HCT Land Use Plan
which considered potential high capacity transit station communities in
Tigard. This development and redevelopment will result in more intense
urban land uses. Several strategies listed in the Implementation Plan address
the city's vision for residential development in these areas. This
redevelopment will help maintain the low-density residential character of
single family neighborhoods.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 14.2 Policy
6 is met.
Special Planning Area: Downtown
Goal 15.1 The City will promote the creation of a vibrant and active urban village at
the heart of the community that is pedestrian oriented, accessible by many
modes of transportation, recognizes natural resources as an asset, and features a
combination of uses that enables people to live, work, play, and shop in an
environment that is uniquely Tigard.
FINDING: This amendment adopts the Goal 10 Population and Housing Review, and
Housing Strategies Report. Within the Report, several strategies are listed
that the city can take to implement its vision for downtown to be a vibrant
and active urban village. Strategies include implementing the Downtown
Connectivity Plan, continuing to seek opportunities to offer incentives or
subsides for residential development Downtown,and more.
CONCLUSION: Based on the above findings,Tigard Comprehensive Plan Goal 15.2 is met.
Goal 15.2 Facilitate the development of an urban village
Policy 3 The downtown's land use plan shall provide for a mix of
complementary land uses such as:
A. retail,restaurants, entertainment and personal services;
B. medium and high-density residential uses, including rental and
ownership housing;
C. civic functions (government offices, community services, public
plazas,public transit centers, etc.)
D. professional employment and related office uses; and
E. natural resource protection, open spaces and public parks.
FINDING: The Goal 10 Population and Housing Review addresses future planning for
new residential areas, including development Downtown. The Strategies
Report supports the work of the Tigard HCT Land Use Plan which
considered potential high capacity transit station communities in Tigard.
Several strategies listed in the Implementation Plan address the city's vision
for residential development Downtown.
STAFF REPORT"I0 TML PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and I lousing Review PAGE 20 OF 22
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 15.2 Policy
3 is met.
Policy 6 New housing in Downtown shall provide for a range of housing types,
including ownership, workforce, and affordable housing in a high
quality living environment.
FINDING: The Goal 10 Population and Housing Review addresses the need for a
range of housing types throughout the city, including in Downtown.
Strategies listed in the Implementation Plan specifically address affordable
housing in the Downtown area.
CONCLUSION: Based on the above findings, Tigard Comprehensive Plan Goal 15.2 Policy
6 is met.
SECTION VI. ADDITIONAL CITY STAFF COMMENTS
The City of Tigard's Current Planning Division, Administrative Department, Public
Works Department, and Police Department has had an opportunity to review this proposal
and have no objections.
CONCLUSION: Based on no comment from City staff, staff finds the proposed amendment
does not interfere with the best interests of the City.
SECTION VII. OUTSIDE AGENCY COMMENTS
The following agencies/jurisdictions had an opportunity to review this proposal and did not
respond:
City of Beaverton
City of Durham
City of King City
City of Lake Oswego
City of Tualatin
Metro Land Use and Planning
Oregon Department of Transportation, Region 1
Oregon Department of Transportation, Region 1,District 2A
Tualatin Hills Parks and Recreation District
Tualatin Valley Water District
Tualatin Valley Fire and Rescue
Clean Water Services
Washington County, Department of Land Use and Transportation had an opportunity to
review this proposal and has no objections.
Oregon Department of Land Conservation and Development had an opportunity to review
this proposal and has no objections.
STAFF REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housing Review PAGE 21 OF 22
CONCLUSION: Based on responses from outside agencies listed above, the Commission finds
the proposed amendment meets all requirements of these agencies and is consistent with the best
interests of the City.
SECTION VIII. CONCLUSION
The proposed changes comply with the applicable Statewide Planning Goals, applicable regional,
state and federal regulations, the Tigard Comprehensive Plan, and applicable provisions of the
City's implementing ordinances.
Therefore,Staff recommends that the Planning Commission recommend approval of the Goal 10
Population and Housing Review to the Tigard City Council as determined through the public
hearing process.
ATTACHMENT:
EXHIBIT A: Tigard Housing Strategies Report
EXHIBIT B: Updates to the Comprehensive Plan- Goal 10: Housing
EXHIBIT C: Updates to the Comprehensive Plan- Goal 2: Land Use Planning
EXHIBIT D: Development Code Updates
April 4,2013
PREPARED BY: Marissa Daniels DATE
Associate Planner
April 4.2013
APPROVED BY: Kenny Asher DATE
Community Development Director
STAFT REPORT TO THE PLANNING COMMISSION
CPA 2013-00001 Goal 10 Population and Housnig Review PAGE 22 OF 22