11/12/2008 - Packet City of Tigard
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City Center Advisory Commission — Agenda
TIGARD
MEETNG DATE: Wednesday, November 12, 2008, 6:30-8:45 p.m.
MEETING LOCATION: Red Rock Creek Conference Room, City Hall
13125 SW Hall Blvd., Tigard, OR 97223
1. Welcome and Introductions ....................................................................................................6:30 — 6:35
2. Review / Approve Minutes .....................................................................................................6:35 —6:40
3. Downtown Future Vision—Refinement Plan (U of O)......................................................6:40 — 7:00
(Sean Farrelly)
4. Downtown Project Updates....................................................................................................7:00 — 7:10
(Phil Nachbar)
5. Housing—Follow Up...............................................................................................................7:10 — 7:20
(Phil Nachbar / Discussion)
6. Report from Council Business Session —Downtown Leadership .....................................7:20 —7:30
(Alice Ellis-Gaut)
7. Organizational Leadership— Downtown...............................................................................7:30 — 8:45
(Subcommittee / Discussion)
8. Adjourn ......................................................................................................................................8:45 p.m.
CITY CENTER ADVISORY COMMISSION AGENDA—November 12, 2008
City of Tigard 1 13125 SW Hall Blvd.,Tigard,OR 97223 1 503-639-4171 1 www.tigard-or.gov I Page 1 oft
City Center Advisory Commission
Meeting Minutes
Date of Meeting: November 12, 2008
Location: Red Rock Creek Conference Room
Called to order by: Chair Alice Ellis Gaut
Time Started: 6:30 p.m.
Time Ended: 9:10 p.m.
Commissioners Present: Carolyn Barkley; Chair Alice Ellis Gaut; Ralph Hughes;
Kevin Kutcher; Vice Chair Lily Lilly; Peter Louw; Thomas Murphy; Elise Shearer;
Martha Wong; Alexander Craghead (alternate); Linli Pao (alternate)
Commissioners Absent:
Others Present: Tyler Ellenson, Marland Henderson, Mike Marr, Lisa Olson
Staff Present: Phil Nachbar, Downtown Redevelopment Manager; Sean Farrelly, Associate
Planner;Jcrree Lewis, Executive Assistant
AGENDA ITEM #1: Welcome and Introductions
Important Discussion and/or Comments: Introductions were made.
Action Items (Follow-Up or Votes): None
AGENDA ITEM #2: Review/Approve Minutes
Important Discussion and/or Comments: It was noted that there was an error on page
one, third line from the bottom, of the October 8, 2008 minutes. It reads "Commissioner
Thomas"; it should read "Commissioner Murphy." The secretary will make the correction.
Action Items (Follow-Up or Votes): Motion by Commissioner Kutcher, seconded by
Commissioner Murphy, to accept the October 8, 2008 meeting minutes as corrected. The
motion passed by a vote of 5-0. Commissioners Barkley and Wong abstained.
Commissioners Lilly and Shearer arrived after the vote was taken.
CCAC Meeting Minutes for November 12, 2008 Page 1 of 10
AGENDA ITEM #3: Downtown Future Vision — Refinement Plan (U of O)
Important Discussion and/or Comments: Sean Farrelly provided an update of the
Tigard Downtown Future Vision— a collaboration effort with the University of Oregon
Architecture Department and the City of Tigard. The Tigard Downtown Improvement Plan
(TDIP) was refined by the U of O students to make it a more visual document. It will be
presented to Council next week. Metro has also seen some of the drawings and may get a
briefing.
Some of the major findings/recommendations made by the students include:
1. Downtown needs a new circulation plan.
2. Blocks need to be broken down to smaller sizes as new development happens.
3. Extend the green of Fanno Creek Park throughout the downtown.
4. Fanno Creek represents a major opportunity, but it also constrains downtown because
it's difficult to get across. That limits circulation somewhat.
5. There is limited access into the downtown.
G. WES Commuter Rail is a major opportunity, but it also impacts circulation and
connectivity.
7. Land use and design standards are necessary and will be important for redevelopment.
8. Property ownership is dispersed and a lot of the parcels are large in size which could
help to attract developers,
9. First impressions of the downtown might not be very favorable to developers right
now. The City and private property owners should make downtown look better.
10.Parking is a concern. As density increases, structured parking could be considered.
Farrelly advised that the City may work with the students to do a study of the 99W corridor.
It was clarified that the study was a part of the design process —it's not going to be adopted
by Council.
A copy of Farrelly's PowerPoint presentation is attached as Exhibit A.
Action Items (Follow-Up or Votes): The document is almost in its final form. The
Commissioners will receive a copy when it is printed.
AGENDA ITEM #4: Downtown Project Updates
Important Discussion and/or Comment: Phil Nachbar provided a brief update on
Urban Renewal projects (Exhibit B). He advised that the urban renewal cash fund is
relatively low right now. To be able to bond and fund a $3 million plaza site acquisition
CCAC Meeting Minutes for November 12,2008 Page 2 of 10
project, we will need about $300,000 a year. A second plan may be to issue a parks bond
measure in the fall of 2010.
There was discussion about putting potted trees along Main Street. It was noted that big
pots on the narrow sidewalks would hinder pedestrian traffic. Also, the leaves make the
sidewalk slick and there are trip hazards now with uneven sidewalks. It was suggested
exploring other options, perhaps placing the pots next to buildings if there's more room,
clustering the pots, putting them by the commuter rail station or on the Main Street median.
Nachbar talked about a fagade improvement program. He would like to see if we can fund
the beginning of a fagade grant program this year. This would provide funding to improve
the face of buildings and could include such things as awnings, restoration, and painting.
Typically, it's a matching grant program. The City would match funds with the private
property owner. All improvements would be on the front of the buildings. He would like to
propose this as a project for this fiscal year.
It was asked if the City could develop some maintenance standards for downtown. Nachbar
said there are pros and cons to doing that. We can try to enforce things, but if people don't
see the need to invest in their own property,it may not be the best way to go about it. It
was noted that there are current regulations in place for some things, such as safety issues
and weeds. It was also noted that some businesses may not want to put money into their
property if it will be redeveloped later. We may be pushing too fast and the timing is not
right.
Action Items (Follow-Up or Votes): None.
AGENDA ITEM #5: Housing — Follow Up
Important Discussion and/or Comments: Phil Nachbar distributed a memo in response
to an earlier request from the Commission for a housing study (Exhibit C). He advised that
staff will be able to provide the kind of information the Commissioners need.
Commissioner Murphy reported that Community Partners for Affordable Housing (CPAH)
has gone to contract on a parcel within the urban renewal district. The parcel is located
between Hunziker and Knoll on Hall Blvd. The plan is for a 50 unit affordable senior
housing project.
A copy of the 2004 Johnson/Gardner Tigard Downtown Improvement Plan, Existing
Conditions: Economic Analysis was provided (Exhibit D).
CCAC Meeting Minutes for November 12,2008 Page 3 of 10
Action Items (Follow-Up or Votes): Staff will provide information as to how many
current residential units there are in the urban renewal area.
AGENDA ITEM #6: Report from Council Business Session — Downtown
Leadership
Important Discussion and/or Comments: Chair Ellis Gaut reported on the October 14`h
meeting with City Council. The purpose of the meeting was to update Council on what the
CCAC is doing with respect to the downtown leadership study and dialog that's going on.
She said the Councilors are aware that there are 2 groups in the downtown at this point,
neither one very large. The Councilors were interested in outreach and generating interest in
non-retail businesses.
Councilor Buehner was interested in outreach to the property owners as part of the process;
Councilor Wilson wants to generate interest with non-retail businesses; the Mayor talked
about creating an equal opportunity for everybody to engage in the dialog; Councilor
Woodruff wants to keep the dialog open because people think things are happening faster
than they in fact are.
It was noted that the study done by the U of O students would be a good way to present
information to people to generate discussion about the project. Staff advised that posters of
the vision document will be displayed during WES week, February 2"d-6`h
Action Items (Follow-Up or Votes): None
AGENDA ITEM #7: Organizational Leadership — Downtown
Important Discussion and/or Comments: Alternate Commissioners Craghead and Pao
facilitated discussion on organizational leadership. Commissioner Craghead noted that there
would not be any decision made tonight. The purpose of the discussion will be to get any
issues in the Commissioners' minds about downtown leadership out on the table.
The Commissioners had the following comments:
■ The responsibility of the City to fund or provide funding and make a choice on a
particular organization when there could be competing organizations — how do we
direct the City to make that choice? Once the funding is used up,what happens from
there? How does the organization sustain itself and grow?
CCAC Meeting Minutes for November 12,2008 Page 4 of 10
■ To be successful, the organization needs strong leadership; the leadership starts with
the City's point person and all the issues come through that person. Also, that person
can be a facilitator for property owners to get their point of view and help them to be
a good organization and focus on important issues.
■ It seems like we're not capable of answering the question, "Do we need a downtown
organization?" This is always the question that we're left not answering. Nobody
wants to commit to saying yes,it's obvious the City would benefit with some sort of
downtown organization. I would answer it yes, because it's obvious it could benefit.
Now, what does it look like, that's the discussion. I want that question verbalized and
put in writing,yes it could benefit.
■ It appears there are hurt feelings or unspoken things. There are businesses, entities,
and people at work and at play in this downtown process that maybe have a history of
fear, pain, or hurt because of whatever the past is. I would like to address that more
openly and understand what the real underpinnings are.
■ There isn't a very direct link with any kind of leadership organization and the success
or failure of downtown redevelopment. We should drop it until somebody can show
a significant benefit of having an organization vs. not having one. We should
abandon it until someone can demonstrate that there's a link. I disagree with the
Leland study due to lack of evidence.
■ I'd like to consider what the external conditions are to a downtown organization that
maximize both the prospects for success of that downtown association and also
maximize the potential contribution of that downtown association to the urban
renewal process. We brainstormed a lot about what a downtown association looks
like; most of that was viewed at the interior of the association or the operation/action
of the association. I don't think we paid very much attention to the environment in
which that association would be introduced. That environment is made up of a lot of
things: partly of the timing, the history of downtown, and a lot of other things. I
would like to think about what an association needs in its environment to thrive and
also contribute.
■ I don't think this is the right time for an association to be funded. We have a series of
projects on the timeline that are going to be developed and built. We do not have a
positive economic climate at this time to draw more businesses into the downtown.
Once some of the projects are finished, maybe some more businesses will be
interested in locating down here. At that point, we could have a successful EID or
CCAC Meeting Minutes for November 12,2008 Page 5 of 10
BID that could fund an association. We're looking at a minimum of 5 years out.
■ We are not necessarily looking at any particular immediate or not immediate
movement. The question that we're trying to answer is fairly open ended —would
there be some benefit to having a cohesive downtown association. In my mind, the
answer is yes, whether it's now or 10 years from now. It boils down to what are the
external conditions that provide the fertility in which broad interest can develop in the
business community,whether that's business owners or property owners. Does the
City have an interest in trying to identify some of those conditions and be a sort of
promoter by saying, here are some conditions that are ripe, how can we facilitate this?
The U of O graphics might be a place to start generating discussion among people so
that we can get a sense of how broad the interest is. Initially, I would be interested in
exploring how we take that temperature and what are the circumstances that allow
that level of interest to come forth so that people feel like they do want to talk to one
another and make a decision.
■ What keeps coming to me are economic climate, funding, leadership, and
incentivizing. They succeed with a lot of incentivizing, proper funding, and proper
leadership. Given what we have to do over the next several years, we might be
spreading our minds and energy too thin to make this work right now. I am for it, but
I agree that it should be delayed. For us to spend more time going through the pros
and cons, we could probably put our time to better use.
■ I think a downtown association needs to be self-standing, self-developed by the
businesses and property owners in the district. I don't think the City should be
funding or kick-starting any organization. The business owners and property owners
should kick start it or it's not going to happen. I don't think that we should be
deciding whether there is an organization. I think there will be one if one is formed,
whether we have any move in it or not. I feel the City shouldn't be funding it; it
should be self-standing.
Commissioner Craghead advised that there are five options to determine what sort of
involvement the City would have in forming or supporting a downtown association. He
noted that an association is one potential tool to solve a problem; it is not the only tool to
solve the problem of retail uses or improvements in the downtown.
Funding an association is not critically linked to urban renewal. This doesn't mean it won't
help it, it just means that it's not something you can't live without. Whatever policy is
eventually crafted, the CCAC will continue to work with any and all associations in the
downtown.
CCAC Meeting Minutes for November 12,2008 Page 6 of 10
The five options are:
Option 1: Absolute Yes — the City would provide seed money and support to help an
association to form now.
Option 2: Absolute No —it's not appropriate; not the City's place to intervene; the market
needs to do it; the group needs to be self-motivated; no connection between successful
urban renewal and a downtown association; the City would be more passive.
Option 3: Conditional Yes —it's a great idea; we support the idea, but we don't support
doing it now because ... (could be many reasons for not doing it now, e.g., the time isn't
appropriate, the economic conditions aren't correct right now, waiting for more leadership
to show up in the downtown before we're ready to do that, etc.). Commissioner Craghead
referred to a timeline for downtown (Exhibit E), showing where we've been, as well as
where we're going. One argument might be to wait until some of the key wins happen
before launching a downtown association effort. He noted that City funding doesn't
necessarily mean cutting a check. It could also could mean helping to administer things or
taking on certain financial items for the association.
Option 4: Take a Different Approach — all other possible ways of solving a problem, e.g.,
economic development director, consultants on retainer for business development, etc.
Option 5: Fail to Make a Recommendation—kick it upstairs, we don't make the
decision. Commissioner Craghead remarked that Council has the ultimate power. They will
probably take any reasonable course that the CCAC recommends, but they could also
disagree and take a different route.
The Commissioners discussed pros and cons for each option:
Option #1, Yes to Seed Money (from City to existing Business Association)
Pros
■ If the assumption is that a BA is good for the URD, then #1 is our only option
■ Keeps plan moving in spite of economic conditions, with a long term view
■ Perceptible accomplishment of Urban Renewal
■ Provides recognition/endorsement of BA by City
Cons
■ Let's move on to TRUE work, with attention on Urban Renewal
■ There is NO demonstrated nexus between BA and UR, therefore it = distraction
■ BA couldn't act independently from the City
CCAC Meeting Minutes for November 12,2008 Page 7 of 10
■ Strings attached to funding
■ Association is just an association
■ If it can't stand on its own, then it won't stand.
■ The money can be put to better use.
■ Not enough info for an informed decision
■ Not enough money
■ No evidence that funding guarantees success
■ Insufficient interest from business community
■ Perception of this as a city organization
■ No incentive (to find their own funding)
Option #2, No, It's Not Appropriate (for City to intervene)
Pros
■ None, as this is an absolute statement
Cons
■ Never say never!
• Saying"no" doesn't give the City the opportunity to support the business community
■ Is it a delivered message?
Option #3, Conditional Yes (to funding) —but not now
(Conditional upon criteria, representation, timing, economics)
Pros
■ Interested parties of existing association(s)
■ Waiting until more is accomplished, in order to know more about leadership
■ Waiting for leaders to appear/step-up
■ Question as to whether a BA is beneficial, conditions could be myriad? City should not be
an initiator, but could be beneficial if BA needs seed money to kick-start. Needs to function
in tandem with the City
■ Identify conditions in which BA could thrive and figure out how to nurture those conditions
■ Take interim steps
■ Leave options open
■ New businesses coming in at a later date will be more excited. There will be new people,
fresh approaches, no history, new leadership possible. They will be seeing UR successes,
e.g., Burnham St. reconstruction, Tigard Plaza, WES Light Rail, new housing development
(City utility yard?)
■ Attracting, but not pushing it, as an invisible idea, needs money, people want to wait and see
(insurance)
■ Needs critical mass (evolutionary divergence)
■ Let's stick to what we do until people show up
■ If they think it, they will come
CCAC Meeting Minutes for November 12,2008 Page 8 of 10
Cons
■ Makes CCAC look indecisive
• Does/Doesn't answer the question (sets up another debate)
■ Delays things further (implementation and definitions)
Option #4, Take A Different Approach
Pros
■ Focus on the actual improvements and trusting that the market will cough up an
organization that can succeed
■ Could be a subset of Option #2 or #3 as an instead or interim
■ Support existing business while UR is happening, as a form of outreach by City
■ Funding could be used for something else
■ Lots of ways to support business besides a BA
■ Flexibility of not taking this option now
Cons
■ If you believe that you're trying to create rapport with businesses, not having one won't help
• Too time-consuming (adds to agenda)
■ Who makes the decisions on this approach? (Is it too complex?)
■ There are already lots of approaches
Option #5 (CCAC) Fails to Decide or Recommend
Pros
■ CCAC not subject to criticism
• Off our plate
Cons
■ So much time spent, so little accomplished
■ Not following up on recommendation by Leland Report
■ Compromised mission of CCAC?
Action Items (Follow-Up or Votes): Commissioner Shearer will type up the pros and
cons and send to Commissioner Craghead to wordsmith. At a future meeting, the
Commissioners will be able to make a decision on what approach they want to take.
AGENDA ITEM #8: Other Business and Adjournment
Important Discussion and/or Comments: At the request of Commissioner Hughes,
[amended at the December 10, 2008 CCAC meeting] Chair Ellis Gaut provided a brief update on
CCAC Meeting Minutes for November 12,2008 Page 9 of 10
the Burnham Street right-of-way acquisition interviews. The interviews have been
completed with those property owners who were interested in talking to the City. A number
of agreements had already been reached or were in progress before these discussions began.
The Mayor and Chair Ellis Gaut talked with 5 or 6 property owners. One of the property
owners who had engaged counsel was not able to find a mutually agreeable location for the
meeting, so that meeting did not happen. Discussions with that party are ongoing. We're in
different stages of progress for all of the properties involved. Chair Ellis Gaut believes that,
overall, all of the meetings were positive. In some cases, there were misconceptions that
were able to be resolved.
The meeting adjourned at 9:10 p.m.
Action Items (Follow-Up or Votes): None
ee Lewis, CCAC ecretary
ATTEST:
Chair Alice Ellis Gaut
CCAC Meeting Minutes for November 12,2008 Page 10 of 10
12/3/2008
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Tigard Downtown
Future Vision:
a visual refinement
of the TDIP
w� CCAC Presentation
November 12,2008
Project Purpose:
• Develop a clear understanding of Downtown
Tigard's future development potential and
urban form.
• Graphically refine the Tigard Downtown
Improvement Plan (TDIP) to express an urban
design vision for the Downtown.
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Format of Document
I. Findings and Recommendations
II. Future Urban Form
III. Detailed Opportunity Site Studies
IV. Appendix
• History, Past Planning Documents
• Regional and Local Context
• Physical and Political Framework
• Site Documentation
• Site Analysis
• Green Urban Network
I. Findings and Recommendations
1.Downtown Circulation Plan
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I. Findings and
Recommendations
2. Block Sizes o0
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I. Findings and
Recommendations
2. Block Sizes
Conceptual Future
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I. Findings and
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Recommendations CONCEPTUAL
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3. Extending the Green
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I. Findings and Recommendations
4. Fanno Creek: Opportunities and Constraints
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I. Findings and Recommendations
5. Hwy 99W, Hall Blvd. and Downtown Entra es
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I. Findings and Recommendations:
6. WES Commuter Rail/ P&W Rail Line
7. Land Use Regulations and Design
Standards
8. Property Ownership and Lot Patterns
9. Downtown's First Impressions
10. Parking
8
12/3/2008
II . Future Urban Form
Potential Build-out Depicted over 50 years
• 5-10 years
• 10-20 years
• 20-50 years
Existing ,.•
Conditions •
Downtown Tigard
2008
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12/3/2008
S-10 Years
Downtown Tigard •+ Hall/99W
2018 Vision -, New
Development
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Public Plaza and Transit Oriented
Fanno Creek Development
Park Improvements t�';
Public Works Annex 4�
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Residential
Redevelopment
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10-20 Years ,
Downtown Tigard •-;1 Hall/99W
2028 Vision r Intersection
Fully Redevelops
High Capacity
Transit Corridor �� .e,,."
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20-50 Years -1,-_ .< 99W Corridor
Downtown Tigard ` Redevelops
2058 Vision �.
Circulation Plan
Performing
Implemented
Arts/Cultural
Center
Parking Structures
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Fanno Creek Edge
l� Fully Redevelops
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III. Detailed Opportunity Site Studies
Detailed visualizations of potential
development at three opportunity sites:
1. Public Work Annex (next to Fanno Creek)
2. Main Street and the railroad intersection
3. Intersection of Hwy 99W and Hall Blvd.
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Document Uses:
• Provides information to make decisions about the
key building blocks for urban renewal such as
downtown circulation, needed improvements to
public facilities and services, land-use regulations
and design standards, etc.
• A tool to communicate Tigard's vision to property
owners and businesses, investors, regional and
state decision-makers, and the public.
• Provides a clear picture of the goal to be attained
as a reference point for decision-making.
Thank you
1.5
Project Updates —CCAC Meeting November 12`'
1. Burnham St. —Budget: est $8 million. Fund: Gas Tax / TIF. There are 22 properties in
total, 5 properties have been acquired, 5 are in the works. The other properties are in
various stages of progress. The goal is to be in a position to bid the project in the spring
2009.
2. Lower Fanno Creek Park Construction Documents / Permitting Contract - Budget: est. $
240,000 Fund: Parks SDC's. Walker Macy has awarded the contract to provide final
construction document and permitting for Lower Fanno Creek Park. The objective of this
project is to get ready for the start of construction of the Lower Park in Spring of 2009.
3. Stevens Marine- Plaza Site Acquisition Budget: est. $ 3 million Fund: undetermined. The
City is negotiating with Stevens Marine to develop an option agreement for the purchase of
the property. So far,both parties are on track to complete the agreement,but are discussing
specific terms of interest. The City has provided a legal draft to Stevens which has been
reviewed, and is now under consideration by the City.
4. Transit Center Redevelopment Budget: $50,000 Fund: Consulting services Fund. The City
has drafted an Inter- Governmental Agreement (IGA) between the City,TriMet and Metro
to conduct a feasibility study of redevelopment of the TriMet Transit Center on Commercial
St. The project would be a mixed-used (housing / commercial / office) on the site. The
City will work jointly with TriMet and Metro this fiscal year to determine the feasibility of a
project.
5. Hall / 99W Study Budget: $25,000 Fund: Consulting Services. The Leland Study identified
this area as a prime location for redevelopment and recommended that a development
opportunity study of specific properties be done. The first step is to meet with with
property owners to determine the level of interest, and if there is willingness to work with
the City to determine the potential for a project. If there is sufficient level of interest, a
consultant will be hired to assist in a feasibility study. The City would manage a team
including property owners,a consultant, and interested Developers to assess the potential
for future investment
6. Hall / 99W Gateway Improvements Budget: $200,000—500,000. Fund: County, General
Fund,Urban Renewal Fund. A concept plan for the first stage of a"gateway" has been
developed. The concept will be discussed with the CCDA,and the CCAC in December /
January. The first stage of the plan includes widened sidewalks, street trees, and an area for a
gateway feature at the southeast corner of the intersection. Staff will evaluate the use of
development standards for a second stage of improvements that would take place when
redevelopment of the area occurs.
7. Temporary Main St. Improvements Budget: $20,000 Fund: General Fund. The addition of
potted trees on Main St. has been discussed by the CCAC and Staff. A proposal will
presented to the CCAC and Council for consideration by the end of 2008. There are other
ideas that have been discussed which include the removal of the concrete containers holding
signage,and a Facade Rehabilitation Program pending for Main St. businesses. The Fagade
Rehabilitation Program will be presented and discussed with the CCAC and CCDA during
the FY 08-09 budget cycle.
8. CCAC Recruitment—Interviews will take place in November 17 for the three member
openings and one alternate.
LxI�J"
MEMORANDUM
. • ,
TO: Alice Ellis Gaut, Chair CCAC
FROM: Phil Nachbar, Redevelopment Manager
RE: Housing Discussion / Follow-up from October 81h CCAC Meeting
DATE: November 12, 2008
The Commission requested that staff look into whether the City could provide information
with regard to housing (projections) as a starting point for their discussion about policy and
principles they would like to consider. This request stems from the Commission initial
request for a Housing study during the FY 08-09 budget process. At that time, staff
suggested that a full-blown housing study would not be necessary, but that staff assistance
with perhaps some consulting funds if necessary should be adequate to provide any
information the Commission might need to think about relevant policy issues.
As follow-up to the Commission's request, the City will be able to provide housing
projections for Downtown. Long-range planning staff has begun to work on this, but has
not finalized anything. At this point, the City staff will be able to provide projections for
total housing in the downtown, and perhaps look at reasonable timeframes for build-out
over time, and the breakdown between ownership and rental units. Also mentioned by the
Commission was the volume of housing needed to stimulate commercial development in the
Downtown. This is also information that the City could provide and would probably verify
this with consultants.
The intent of projections would be to provide a realistic estimate of future development over
time, based on sound assumptions. The way the Commission uses the information is
entirely up to the group. Initial CCAC discussions included an interest in establishing some
"housing goals" for downtown. This could be a useful tool to gage our progress and guide
the City's actions to achieve such goals. In particular, perhaps setting some benchmarks for
when units could be built over time, addressing ownership vs. rental, how much affordable
housing including a definition of"affordable", and what environment such as infrastructure
or amenities would be necessary to achieve housing goals.
Because market studies become dated, and useful for no more than about 6 months from
the time of completion, they would not help with what could be built over the long haul in
downtown. However, projecting housing units over time would necessitate some
Housing Memo
Page 1
assumptions as to what could reasonably be absorbed in a larger market area. As part of the
Transit Center Feasibility Study, an initial estimate of the market will be conducted, but will
likely be time specific.
I talked with PDC staff re: housing projections in Urban Renewal Districts. Typically they
are done by the City of Portland Planning Bureau. PDC delegates this to Portland Planning
Bureau, however when it comes to individual projects, the PDC has a specific market study
of a project conducted, usually performed by the developer.
Housing Memo
Page 2
5
JOHNSON
6 A R D N E R
TIGARD DOWNTOWN
IMPROVEMENT PLAN
EXISTING CONDITIONS:
ECONOMIC ANALYSIS
PREPARED FOR:
THE CITY OF TIGARD
OCTOBER 12,2004
PORTLAND SEATTLE
520 SW Sixth Avenue,Suite 914, Portland,OR 97204 157 Yesler Way,Suite 508
503/295-7832 503/295-1107(fax) Seattle,WA 98104
r
TABLE OF CONTENTS
I. EXECUTIVE SUMMARY..................................................................................1
II. MACROECONOMIC OVERVIEW...................................................................3
RegionalTrends.........................................................................................................3
TigardOverview........................................................................................................5
EconomicOutlook......................................................................................................9
III. RENTAL APARTMENTS.................................... ...................10
..........................
RegionalOverview................................................................................................... 10
Tualatin, Tigard 'Wilsonville Submarket Trends..................................................... 11
Tigard Market Area Apartment Survey..................................................................... 12
New Construction, Planned 6-Proposed Apartment Development............................... 13
Apartment Development Assessment.......................................................................... 13
IV. OWNERSHIP HOUSING................................................................................15
RegionalOverview................................................................................................... 15
Tigard Ownership Housing Trends.............................
New Construction, Planned 6-Proposed Development............................................... 17
Ownership Housing Development Assessment............................................................. 17
V. SPECULATIVE OFFICE..................................................................................19
RegionalOverview................................................................................................... 19
KruseWay Submarket Trends...................................................................................21
Tigard Area Office Survey........................................................................................22
New Construction, Planned&Proposed Development...............................................23
Office Development Assessment.................................................................................23
VI. INDUSTRIAL &FLEX....................................................................................25
RegionalOverview...................................................................................................25
WestsideSubmarket Trends......................................................................................26
Tigard Industrial/Flex Survey...................................................................................27
New Construction, Planned 6-Proposed Development...............................................28
Industrial7Flex Development Assessment....................................................................28
VII. SPECULATIVE RETAIL..................................................................................30
Regional Overview................................. 30
..................................................................
Tigard, Tualatin, Wilsonville Submarket Trends................. 31
......................................
Tigard Speculative Retail Survey.........................................
New Construction, Planned&Proposed Development...............................................33
Retail Development Assessment..................................................................................33
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE i
I. EXECUTWE SUMMARY
From a market perspective, Downtown Tigard has a number of opportunities to leverage its
existing strengths and promote additional economic and community development:
Downtown Development Opportunities
■ Continue to diversify existing mix of private and public uses
■ Build on efforts of strong Downtown business association with active business
promotion and retention initiatives
■ Promote location near major arterials, including the Pacific Highway, Hall Boulevard,
Greenburg Road and Highway 217
■ Plan residential and commercial development proximate to the new commuter rail stop
■ Better leverage proximity to Fanno Creek Park and Fanno Creek Greenway Trail
■ Take advantage of a clean slate. No redevelopment initiative has been attempted on a
large scale in Tigard. There are many areas with potential for in-fill development.
Downtown Tigard also faces a number of obstacles that will constrain future development
opportunities. These include the following:
Downtown Development Constraints
■ Lack of consolidated downtown corridor
■ Poor visibility due to elevation of Pacific Highway
■ Limited sense of"destination" to draw drivers off of nearby arterials
■ Numerous office and retail competitors with superior access and visibility
■ Lack of housing and residential compatible development
■ Relatively small surrounding residential base and low employment density
■ Rail line noise and traffic congestion
Taking into account these market area opportunities and constraints, as well as local and
regional market conditions,Johnson Gardner evaluated the short and long-term potential for
future development in Downtown Tigard. The table below summarizes our significant
findings and conclusions by land use.
TIGAm DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 1
FIGURER-1 TIGARD MARKET CONDITIONS& ASSESSMENT OF
DOWNTOWN DEVELOPMENT OPPORTUNITIES BY LAND USE
Land Use OccupanryI Lease Rates/ Short-Term Long-Term
Sales Activity Sale Prices Development _ _ Development
Rental Low $0.80 to$1.05 Weak development Land assembly difficulties may limit
Housing occupancy per square foot potential. Apartment substantial new development. Lack of
(Apts) levels, quoted rents, market conditions are existing residential component
currently effective rents poor in Tigard and Downtown may be a deterrent,but
estimated at significantly throughout the metro could be overcome. Central housing
93.0% lower due to area. May be possible would be complementary to planned
widespread market support for tax commuter rail stop.
concessions credit affordable project.
Ownership 72 attached Average of Weak development Similar issues as those raised for
Housing home sales in $132 per square potential,despite a surge apartments above. In addition,
(Condor) the second foot for new in condominium Downtown Tigard is an unproven
quarter,60 of construction, development elsewhere condominium market,which may pose
which were $109 per square in Tigard,the an obstacle for any new attached
resales foot for resales Downtown lacks a ownership housing development.
residential feel,which Long term potential will be a function
will be a major of the City's ability to create a
impediment to new marketable downtown environment.
_ construction
Office Better than $14.00 to Weak development Neighborhood serving office
most of $18.00 per potential. High development should keep pace with
Portland square foot occupancy in the overall modest local population growth.
MSA: (Gross) Portland market will Development of a more regional office
93.2%direct, deter immediate new concentration is unlikely given
88.9%with development,despite locational constraints and proximity to
sublease space more favorable market existing concentrations in Kruse Way
included conditions in Tigard. and Beaverton
Industrial Better than $6.00 to$9.00 Modest development From a market perspective,Tigard will
d,Flex most of per square foot potential. Assuming remain an attractive industrial/flex
Portland (NNN) continuing economic location with its superb regional access
MSA: recovery in Tigard and and large existing industrial
92.0%direct, the greater metro area. concentration. From a policy
90.5%with perspective,additional new
sublease space development may be less desirable in
included the interest of further diversifying local
development and increasing
_Heahy______ $ 3.00o employment density.
Retail Modest development
The potential for regional retail
occupancy of $16.00 per potential. Retail market downtown is limited due to poor
93.9% square foot conditions throughout visibility and the lack of a major
(NNN) the Portland MSA are "destination"to attract passerby away
strong as a result of from other big box and strip mall
continuing in-migration competitors off of Pacific Highway.
and the on-going The planned commuter rail stop will
regional economic provide a boost for neighborhood
recovery. retailers;however,retail growth may be
constrained by only modest population
growth in the City.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 2
II. MACROECONOMIC OVERVIEW
The following section provides context for economic trends that shape current and likely
future development in Tigard and the greater Portland metropolitan area.
Regional Trends
Portland metropolitan area employment expanded by 10,400 jobs, or 1.1%, in the second
quarter of 2004--a modest improvement over the second quarter of 2003, when employment
increased by 6,600 jobs, or 0.7%. The trend on a monthly basis is definitely improving and
June marked the fifth consecutive month of local employment growth. Despite recent job
gains, the region lags behind the nation, which experienced 2.9% positive job growth in the
second quarter.' Local employment is stabilizing, but still remains below pre-recession levels.
Total employment in June 2004 was 930,400 as compared to 945,600 in 2002. Modest
growth is expected to continue throughout 2004 and into 2005.
FIGURE II-1: PORTLAND MSA EMPLOYMENT TRENDS, 2000-2004YTD
EMPLOYMENT CHANGE FROM PREVIOUS YEAR
30,000
20,000
10,000 - -
0
-10.000
-20,000
-30,000
-40.000 -------1_2
$ $ $ $ g g 4 q q 4 4 4 Q q 4 4
Employment gains during the last year were concentrated in Construction (2.0%),
Government (1.5%), and Manufacturing (1.4%). High Tech jobs, which have historically
driven the local economy, grew by approximately 1.7%. Employment in Professional 8&
' Based on the Bureau of Labor Statistics Household Survey.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 3
Business Services and Trade, Transportation, Warehousing and Utilities also edged up by
0.3% and 0.1%, respectively. The Leisure & Hospitality sector reported the greatest
magnitude of losses ((1,800 jobs), while Information reported the greatest percentage decline
(-3.4%). Financial Activities and Education and Health Services also had moderate losses
over the period.
FIGURE II-2: PORTLAND MSA EMPLOYMENT BY INDUSTRY, 2Q04
ABSOLUTE GROWTH PERCENT GROWTH
High T«h 800 High Tech r.7%
t
Covemmrnr 1,900 Go.<rnment I S%
i
Isiru-&H—phallty (l,do0) L. ute K
Hospitality
Eduction&Health (6001 Lducrien h Health S%
5—i— Servwet
P-fk ional& prof,ions x
owinm service 300 Btuineas Setvira 0.3%
1
Financial Aedviriea (1.300) Financial Aairid-
I
lnformatian (eoo) lnfotmario -5.411
Trwu a foo TlvpU 11 o.1%
e nnrnetnn 1.000 enn..nKean 3.0%
Manulaauring f,600 Manufxrwing I 1 %
15.000) - 5.000 -E% -G% 4% -2% O% 2% 416
I/Trade,Transpomition,Warehousing 8[Uti iris
Despite a 4.4 percent drop in MSA employment between 2000 and 2003, the local
population grew by an estimated 5.1 percent.Z In addition to natural increases (more births
than deaths), several factors contributed to regional population growth including an
accelerated pace of urbanization within the state and in-migration by out-of-state residents.
Portland's relative affordability on the West Coast and high quality of living continue to
attract outsiders to the metro area even in the absence of employment growth. The result
has been a sustained period of relatively high unemployment, which is expected to persist,
along with population growth, into the foreseeable future. In July unemployment in the
MSA was 6.8%as compared to 5.8% nationally.
Boosted by in-migration, residential construction activity is strong, despite only moderate
employment growth. In 2003, metro-area residential permitting recorded its highest level
since 1997 with 14,631 units, 36% of which were attached product (rental and for-sale
attached). So far this year, 6,334 permits have been issued and if construction continues at its
current pace permit activity will exceed that of 2003.
: Oregon Employment Department,2004. People Moved to Oregon Despite Recession.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 4
FIGURE II-4: PORTLAND MSA RESIDENTIAL PERMIT ACTIVITY, 1984-2004
RESIDENTIAL PERMIT ACTIVITY
14,000
12,000
■Single Family
10.000 — --
®Multi Family
8.000
6,000 —
4.000 �+
2.000
0 a --
'2004 permit activity through May
Tigard Overview
The Tigard economy is closely linked to that of the greater Portland metropolitan area. A
large number of non-residents commute into Tigard for shopping and other services, while a
sizeable portion of local residents commute to other parts of the MSA for employment.
Within Tigard, wholesale trade, retail trade and the service industry drive the local economy.
Retail trade has the most establishments, and the retail and service industries employ the
most people.'
The figure below summarizes the top ten City employers by number of employees. Most of
these employers are located outside of Tigard's Downtown. Within Downtown, the city is
by far the largest employer. Private employers include mostly small businesses and light
industrial operations.
'City of Tigard,2002-2003 Profile
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 5
FIGURE II-5: LARGEST TIGARD EMPLOYERS BY NUMBER OF EMPLOYEES, 2003
Company i Employees
1.Renaissance Credit Services 1167
2.Meier&Frank 502
3.Nordstrom Inc. 476
4.Servicemaster Bldg.Maintcnancc of Tigard 250
5.Rockwell Collins Flight Dynamics 249
6.Quest Diagnostics 246
6.Gerber Legendary Blades 246
S.Home Depot 241
9.Tigard 239
10.U.S.Bancorp.Equip.Finance.Inc 234
Tigard's population totaled 41,223 in 2000, according to the U.S. Census. Claritas, a
statistical reporting firm estimates that the City's population grew by 2.3% annually over the
past four years, and will reach 45,093 by the end of 2004. Similarly, the number of
households in the City grew at an estimated rate of 2.2% per year rising from 16,507 in
2000 to 18,005 in 2004. The average household size is currently 2.5 persons and is
projected to remain steady over the next five years. Most city households can be classified as
middle income, earning$35,000-$100,000 per year.
FIGURE II-6: TIGARD DISTRIBUTION OF HOUSEHOLDS BY INCOME, 2004
15.A wde.- a5%
9159A00�HM.fM 11%
1159.000-{:If.fff 6.5%
1.90,0003149.1" 11.9%
1]5=4M.9M llf%
{s9.9w414.9M 31.49
sf5.99osff.1M 15.41
sn.99o-f5f.1M 10.1%
s5s,lm.utlM f.8%
s�s.om 7.9%
Tigard's population diversified significantly over the past decade. According to U.S. Census
data, the number of residents that identified themselves as white fell from 94% in 1990 to
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 6
84% in 2000. Asians (6%), and other races' (4%), followed by people of two or more races
(3%) made up the next largest racial groups in the City in 2000. It is likely that the Census
underestimates the percentage of the population of these non-white groups given these
groups tend to have a higher share of unreported residents, which are not incorporated in
official Census figures. In addition it should be noted that Hispanics and Latinos are not
classified as a group in and of themselves in this data, which is somewhat misleading. The
chart below shows the number of people that identify themselves as Hispanic within each of
these groups. The chart also shows racial distribution projections for 2004 to 2009
including a breakdown of the population that identifies itself as Hispanic or Latino,
approximately 11% in 2004. Projections show increasing diversification of the City's
population over the next five years.
FIGURE II-7: TIGARD RACIAL CHARACTERISTICS, 2004-2009
Ottt of Tsmtad
Bthdc Identification 2004 2009 Cbmw %
White alone 37,221 39,617 2,396 6%
Black or African American alone 572 716 144 25%
American Indian and Alaskan Natiw alone 297 367 70 24%
Asian alone 2,916 3,690 774 27%
Native Hawaiian and Other Pacific Islander alone 292 383 91 31%
Some other race alone 2,166 2,988 822 38%
Two or more races 1,629 2,142 513 31%
Tout 45,093 49,903 4,810 11%
{jy of Tiprd
Himpank Identificatioe 2004 2009 %
Non-Hispanic 39,965 42,828 2,863 7%
White alone 2,602 3,574 972 37%
Black or African American alone 33 47 14 42%
American Indian and Alaskan Native alone 47 67 20 43%
Asian alone 32 40 8 25%
Natiw Hawaiian and Other Pacific Islander alone 5 8 3 60%
Some other n«alone 2,091 2,909 818 39%
Two or more races 318 430 112 35%
Total 45.093 49,903 4,810 II%
The majority of City households (72%) are family households with two or more related
members. Primary householders followed by children make up the largest share of
household members. Cohabitation with an unrelated roommate is less common. See the
figure below for a comparison of household composition in Tigard and the greater Portland
area.
4 Other races include people of a single race that is not black/African American,American Indian,Pacific
Islander or Asian. Many people with Hispanic origin fall into this category.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 7
FIGURE II-8: TIGARD & PORTLAND HOUSEHOLD COMPOSITION, 2000
Prunuy Householder
54PO11 •Ponland
MSA
t l'M
■Ciyd
UdieRe6ovri Tiprd
ore�uv<
ai
lot'. 0% 40%
The gender balance in Tigard is nearly fifty-fifty. Children aged 0 to 18 make up
approximately 27% of the population, while over 50% of the population consists of adults
between the ages of 25 and 59. Consistent with national trends, aging of the baby-boomers
is expected to result in a growing senior population in the region.
FIGURE 11-9: TIGARD DEMOGRAPHIC CHARACTERISTICS, 2000
Resident Charictaristics
Census Classifcatil City of Portland
Sex
Male 49% 49%
Female 51% 51%
Educational Attainment I/
Bachelor's Deg 36% 33%
Some College 64% 67%
Age Breakdown
0-18 Years 27% 22%
18-24 Years 8% 9%
25-34 Years 17% 18%
35-44 Years 18% 17%
45-59 Years 18% 19%
60-74 Years 7% 9%
75+Years 6% 6%
1/ Educational attainment of population 25+
Source: U.S. Census Bureau &Johnson Gardr
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 8
Tigard residential permit activity averaged 272 units annually over the last eight years. With
the exception of 1999, when 255 multi-family permits were issued, there has been virtually
no attached single-family construction in the City. Over the past four years, permitting for
detached single-family homes picked up as a result of low interest rates, but will likely ease
off over the next year with mortgage rate increases expected.
FIGURE II-10: TIGARD RESIDENTIAL PERMIT ACTMTY, 1997-2004
600
500
■Single Family
400 ®Multi Family
300
200 3I
1
100
i
0
1997 1998 1999 2000 2001 2002 2003 '2004
2004 permit activity through May
Economic Outlook
Job gains from February to July, along with continuing national growth, provide some hope
for broader job recovery by late 2004.5 Our forecasts assume that the Portland metropolitan
area will benefit from a national expansion, although lagging national growth rates.
Mortgage rates, which more than anything have bolstered the local housing market, will
creep upward over the next several months, though not dramatically. Long-term rates are
s Oregon Employment Department,2003 Employment Trends Show Ripple Effects
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 9
determined by demand and supply of long-term debt instruments, largely by Asian central
banks such as those of Japan and China. Because those two countries desire to keep their
currency strong—to keep a surplus trade balance and render domestic capital assets expensive
to foreign investors—the U.S. dollar will be propped up by their purchase of long-term U.S.
debt for artificially low interest rates.
III. RENTAL APARTMENTS
Apartment market conditions in Tigard, as well as the greater Portland metropolitan area,
have been relatively soft since the onset of the recession, with low mortgage rates continuing
to entice renters to invest in ownership housing options. While the economy is improving
and rates are expected to rise, full recovery in the market is not anticipated till the end of
2005. Several new apartment complexes have been proposed in the Tigard area, but only
one has a scheduled completion date. Over the short term, new development in Tigard will
be constrained by low market occupancy and over-building in other parts of the region.
Regional Overview
The metropolitan area rental apartment market tightened in the first and second quarters of
2004, with overall occupancy rising 1.0%. According to Norris Beggs & Simpson average
rents increased 1.5% during the second quarter, reflecting a 6.1% annualized rate.
Investment activity in existing apartment complexes was robust, with 39 transactions
reported during the first quarter. Tightening market conditions came on the heels of recent
economic growth and reflects a marked improvement over weak market performance
throughout 2003. With interest rates expected to rise over the next year, competition from
ownership products should continue to diminish; however, inflation, a common side effect
of economic expansion, may take its toll on the operations side of complexes with un-
metered utilities. Energy costs rose by 15 percent over the last 12 months.
The overall market occupancy rate was estimated at 93.4% at the end of the second quarter
of 2004. Current estimated occupancy rates range from 91.9% in the Close-in Westside.to
94.9% in the Hillsboro/Tanasbourne subregion. All sub-markets except the Close-in
Westside experienced.a rise in occupancy over the quarter. Weakness in the Close-in
Westside may be attributed to several factors including a disproportionately large number of
renters taking advantage of lower interest rates and buying homes. It also may be due to a
preference for newly constructed apartment product in the nearby Central City. Following
a surge in new construction, the Central City sub-market is showing signs of weakness,
despite a moderate rise in occupancy. In the second quarter, recently constructed Central
City projects offered substantial price discounts and average rents fell by over 18%.
Although rental rates are significantly improving in most suburban sub-markets, new
construction remains limited to tax-credit projects outside of Downtown Portland, with
achievable lease rates still insufficient to justify new market rate construction.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 10
FIGURE III-1: RENTAL APARTMENT MARKET TRENDS/ MARKET-RATE UNITS
7.000 10%
6,000 e%
5.000 G%
4,000 4%
FIA
3.0002%
low
2,000 0%
I,D00 s - -2%
o 4%
1991 1942 199! 19% 1995 1996 1997 199 1999 2000 2001 2002 2003 2004 2005
IM NEW RENTAL SUPPLY
®NET ABSORPTION 10-Year Average Annual Supply 3,459
—VACANCY RATE 10-Year Average Annual Absorption 2,935
—RENi ESCAIATION 10-Year Average Annual Rental Ina r. 2.5%
10-Year AvemW Annual Vacancy Rare' 5.5%
Net absorption is projected to outpace new supply in 2004, for the first time since 2000.
Overall market conditions are expected to improve through 2005, with average occupancy
approaching 95% by mid-2005. Despite recent increases, rent levels are still fairly low and
will keep new construction to a minimum until there is a more substantial shift in achievable
rents. With a rising interest rate environment and local economic expansion expected, a
significant shift in rents is expected in the latter half of 2004 and beginning of 2005.
Over the next year, we forecast that demand will exceed new supply, with most new supply
in suburban markets continuing to be income-restricted. The overall occupancy rate is
projected to climb to 94.2% by the second quarter of 2005. In a reverse of recent trends, the
Central City and Close-in markets are expected to become relatively soft, with significant
recovery in the suburban markets. The following table summarizes current and projected
market conditions by major sub-region in the metropolitan area:
Tualatin, Tigard t+Wilsonville Submarket Trends
Trends in the Tualatin, Tigard,Wilsonville submarket historically mirror those of the greater
metropolitan area; however, submarket occupancy is generally 0.5% to 1.0% below that of
the MSA. Occupancy in the submarket currently averages 93.0% as compared to 93.4% in
the Portland region. Unlike occupancy levels, rents in the Tualatin, Tigard, Wilsonville
submarket tend to be consistent with those of the metro area. In the second quarter of 2004
new unit rents were$764 in the submarket, and$762 in the greater MSA.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 11
FIGURE III-2: TIGARD, TUALATIN& WILSONVILLE APARTMENT TRENDS
Year End Net Na O=pied Oceopanq 70096%
Yeat Inftntory 11 Addidoo.2/ Absorption Units Raa:
600 95%
1993 10,796 203 – 10,283 95.2% Soo
94%
1996 11.150 354 369 10,651 95.5% 400
1997 11.613 463 289 10,940 94.2% 300 93%bZ
1998 11,635 22 -61 10,879 93.5% 200
1999 12,034 399 565 11,444 95.1% 100 -
2000 12,044 10 16 11,460 95.1% 0 ®New Suppl7 9l%
2001 12,173 129 -200 11,260 92.5% B�Nei Alrwpuon. 90%
2002 12,544 371 375 11,634 92.8% -100 "+t–Oaipec�Wa 200 89%
2003 IZ846 302 40 11,674 90.9% -
2Q04 12,995 149 409 12,082 93.0% -300 - - 88%
1995 1996 1997 1998 1999 3000 2001 2001 2003 1004
el
Net Net O-Vied Otsxp-q 90 93.7%
nat0ee jft ntofy Addidow Abootption Units RM
.0 93.7%
2Q04 12.995 -- – 12,082 93.0% 70 91696
3004 12,995 0 59 12,142 93.4% 60
4Q04 13,039 44 59 12,201 93.6% 936%
�s0
1005 13,092 53 59 12,260 93.6% k ' - 935%
2Q05 13,169 77 59 12,319 93-5% 0
9
30 35%
®Nn+5yp1,
20 Ne Ab.T6.. 934%
10 µac 934%
0 93.3%
3Q01 4001 1009 2005
Over the last five years, new apartment construction in the Tualatin, Tigard, Wilsonville
submarket outpaced construction in the MSA. The inventory of 15+ unit apartments in
Portland grew by 3.76%, while it rose by 9.80% in the submarket. In the coming year,
174 new apartment units are scheduled to come on-line in the sub-market, but absorption is
expected to outpace new supply, pushing up occupancy 0.5% to 93.5%.
Tigard Market AreaApartment Survey
To establish market conditions specific to the Tigard market area, JOHNSON GARDNER
surveyed eight market-rate apartment complexes in the City of Tigard. See the figure below.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 12
FIGURE III-3: SURVEY OF TIGARD MARKET RATE APARTMENTS
Project Name/ Yea, Unit Characteristic - Units Occupancy. Monthly Reno
location Built Total Type Sire(S.F.) Mi: Occupied Rate(%) Price Price/S.P.
Arbor Heights 1997 348 820 330 95% $652 $0.80
Main Street Village 1994 243 704 234 96% $802 $1.17
Meadow Creek 1985 304 418 284 93% $595 $1.42
Avalon Park 1990 192 770 173 90% $668 $0.89
Sumer Crock 1997 150 982 149 99% $945 $0.98
Faun.Creek 1992 60 1,168 58 97% $942 $0.81
Brighton Hills 1968 62 750 48 77% $588 $0.78
Bull Mountain Heights 1996 126 822 112 89% $642 $0.78
TOTAUAVERAGE 1,485 7410 1,388 93% $705 $0.95
Surveyed complexes comprise approximately 1,500 units, which average 740 square feet in
size. Their overall occupancy, at 93%, is roughly consistent with that of the Tualatin,
Tigard, Wilsonville sub-market as well as the greater Portland metropolitan area. In
contrast, their average rent of$0.95 per square foot is higher than the $0.83 rate in newly
constructed projects in the Tualatin, Tigard, Wilsonville submarket. This suggests that
Tigard rents may be higher than those in Tualatin and Wilsonville, or more likely, that rents
in our survey are inflated and do not reflect rent concessions offered by surveyed Tigard
projects. A number of property managers we spoke with, particularly those in older projects
with higher vacancy, said they offered up to two months free with a year lease.
New Construction, Planned&Proposed Apartment Development
There is one 32-unit affordable/mixed income apartment complex currently under
construction in the City of Tigard. Four other developments comprising 247 units have
been proposed in the City, but one has been abandoned and the remaining three are still in
pre-planning and planning stages. See the figure below.
FIGURE III-4: TIGARD APARTMENT PIPELINE FOR NEW DEVELOPMENT
N.nber T.,W pngw rl Projw
to Tide P' Oweer Name t Add— of ueiu Com 4rioa Type Suter
ApuarKna The Dalton CemPany 16185 SW 10&h Ave 111 NA Ap.—. Abandoned
Bull M.—in Hcigho ApuoaKne-Ph-111 MCH Camouo w 11336 SW Bull Mountain Rd 70 NA Apamrmo NA
Bull Mounnin Hera Aparonmo Ph 11 MCH C--in 11336 SW Bull Mountain Rd 42 NA Apuonenrs Phoning
Coe Aparnnena Gary Cae 11115 SW 135th Ate 24 NA Apar . Pre-Planning
Oloon Wood,Apar— Com ky P.—for Affordable H..iog SW 91d,Ave 8t SW 01—.Rd 32 May-05 Apunmu,(Subu4i ed) Stan
Apartment Development Assessment
Based on our review of regional and market area apartment trends, it is the opinion of
Johnson Gardner that there is limited market support for additional apartment development
in Tigard over the short term. The following figure summarizes our market findings:
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 13
FIGURE III-5:APARTMENT DEVELOPMENT POTENTIAL& FEASIBILITY
COMPETITIVE ADVANTAGES
■ Proximity to Major Arterials Including Pacific Highway, Hall Boulevard, Greenburg
Road and Highway 217
■ Plans Underway for Future Commuter Rail Stop Downtown
■ Proximity to Fanno Creek Park and Fanno Creek Greenway Trail
COMPETITIVE DISADVANTAGES/CONCERNS
■ Land Assembly for Large Development May be Difficult
■ Lack of Existing Residential Development Concentration in Downtown Tigard
■ Some Surrounding Land Uses are not Residential Friendly
■ Rail Line Noise and Traffic Congestion
OCCUPANCY
■ Stable, but Slightly Soft Conditions: Our survey of Tigard rental apartments indicates
occupancy of 93.0% in existing units. Typically occupancy of 95% indicates a healthy rental
market,suggesting some weakness in the market. Over the past year,occupancy has been
relatively stable. It is projected to edge up to 93.5%by mid-2005.
RENTS
■ Concessions Market: Projects in our survey averaged rents of$705,or$0.95 per square
foot. On a price per square foot basis, their rents are higher than those in surrounding areas,
but this may be misleading given widespread rent concessions in Tigard.
FUTURE COMPETITION
• 5 Projects in Pipeline:A 32-unit affordable/mixed income project is currently under
construction. Four other projects comprising 247 units are in early planning stages.
DEVELOPMENT POTENTIAL
■ Short Term: Weak development potential. Apartment market conditions are poor in Tigard and
throughout the metro area. May be possible market support for tax credit affordable project.
■ Long Term: Land assembly difficulties may limit substantial new development. Lack of existing
residential component Downtown may be a deterrent,but could be overcome. Central housing would
be complementary to planned commuter rail stop.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 14
IV. OWNERSHIP HousiNG
Due to existing build-out in Downtown Tigard, the section below focuses on attached
ownership housing rather than single family housing, which is not a practical development
option in the area. Some information on single-family housing is provided as a reference
point for overall home prices and sales activity in the City.
Over the short term, we see modest support for new condominium development in Tigard,
as is evident by several projects in the pipeline. Demand for housing Downtwon, will likely
be more limited than in outlying areas, but that could change over time if efforts are made to
attract more residential friendly development in the city center.
Regional Overview
Sales activity for both attached and detached product surged in the second quarter of 2004
and was up by 26.1% over activity last year. Attached sales volume was 19.5% higher than
during the first quarter of 2003, while detached volume was 27% higher. The overall sales
volume during the quarter was 10,843 units, of which 10.8% were attached. The market
has not seen this level of sales activity for several years. With interest rates expected to rise,
many buyers appear to be acting now to secure lower rates.
FIGURE IV-1: SUMMARY OF PORTLAND MSA OWNERSHIP HOUSING SALES ACTIVITY
Tot2l Sales Volume
Detached Attached Total
2nd Quarter-04 9,670 1173 10,843
1st Quarter-04 5,593 797 6,390
4th Quarter-03 7,064 876 7,940
3rd Qu2rter-03 8,870 966 9,836
2nd Quarter-03 7,616 982 8,598
I st Quarter-03 5,609 696 6,305
4th Quarter-02 6,642 816 7,458
Annual Percent Increase Decrease 27.0% 19.5% 26.1%
Attached/
Detached Attached Detached
WESTSIDE
NEW $415,525 $271,922 65.496
ALL SALES $368,932 $202,505 54996
EASTSIDE
NEW $258,827 $196,796 760%
ALL SALES $250,578 $158,862 63.4%
CLARK COLtMIY
NEW $323,137 $204,808 63.496
ALL SALES $219,082 $167,321 76.4%
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 15
Prices rose significantly during the first quarter, with average pricing for new product in the
Westside almost $40,000 per unit higher than reported during the first quarter of 2004.
The average sales price of new detached product was $415,525 on the Westside, $323,137 in
Clark County and $258,827 on the Eastside. New attached product averaged $271,922 on
the Westside, $196,796 on the Eastside and$204,808 in Clark County.
Units priced below $200,000 accounted for 49.2% of all activity during the first quarter,
with units priced below $300,000 accounting for 78.5%. Attached housing continued to
prosper as a low-price housing alternative, accounting for 29% of all sales priced below
$150,000 and 41% of all sales priced below $125,000. These levels are largely consistent
with trends during the first quarter of 2004.
FIGURE N-2: PORTLAND MSA OWNERSHIP HOUSING SALES ACTIVITY BY PRICE
Total Solea Tod Sola
ltia Kano DCUKW Attached Distribution 5.%
Ueda, $85.000 52 71 1.1%
S85.00D-$99.999 72 82 1.4%
5100.000-$124,999 337 163 4.6%
$125,000-$149,999 945 252 11.0%
$150,000-5174,999 1,577 160 16.0%
f 175.000•5199,999 1,509 119 15.0%
u+swu,,.n, 2.3%
(200,000-$224,999 985 64 9.7%
nwrma+,s 2,4%
1225,000-$249.999 860 67 8.5%
5250,000-$274,999 604 50 6.0%
5275.000-S299,999 516 27 5.0%
5300,000-$324,999 363 20 3.5%
5325.000-S349.999 355 18 3.4% 8.5
5350,000-$374.999 252 12 2.4% usaes•sn.. 7%
5375.000-S399,999 238 15 2.3% uxru»sn 15
$400,000-$424,999 128 9 1.3%
5425,000-S449,999 137 9 1.3% ,u,.aee,,,,. 11 %
$450,000-S474,999 100 9 1.0% 4.6
$475.000-$499,999 87 5 0.8% u,oe„ 1 4%
5500,000 i&0- 553 21 5.3% „•d„„. t.%
Toal 9,670 1,173 100% 0% 2% 4% 6% 8% 10% 12% 14% 16% IB%
Tigard Ownership Housing Trends
As compared to elsewhere in the Portland metropolitan area, Tigard has a small stock of
attached ownership housing and attracts a smaller share of new attached housing
construction. Over the past two years, only 76 new attached units were sold in the City.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 16
FIGURE N-3: TIGARD ATTACHED OWNERSHIP HOUSING SALES ACTIVITY
,Sal=yolnme Raw of Change SALES VOLUMES
New Resale New R=ak x 3Q02 w 2Q04
3Q02 4 49 -83% -39% so ---- �Pai1e f1oms
4Q02 3 41 -25% -16% -- ON-11— _ -------- ------
1001 2 31 -33% -24% a - ------ - ------
-- _
2QO3 11 52 450% 68%
3Q0 6 43 45% -17% 30
4Q0! 24 33 222% -12% to
1Q" 14 44 -34% 1%
0
2QO/ 12 60 -14% 36% IQ02 4WI IQ03 21Q03 3Q03 4W3 IQos 2"
In the second quarter of 2004, Tigard sales activity for new attached housing fell by 14%
and rose 36% for resales. The total sales volume for the city was 72 homes, of which 60
were resales. The price for new attached homes was $231,882, approximately$40,000
below the average sales price for new attached construction throughout the metro area.
Units priced below$200,000 made up 87.5% of total sales, a much higher proportion of
total sales than elsewhere in the region. On a per square foot basis, new construction
averaged sales of$133 and resales averaged$109.
Detached sales activity is significantly healthier in Tigard. New sales and resales grew at rates
of 21%and 57%, respectively, in the second quarter of 2004, exceeding overall sales growth
in the greater Portland area. New attached home prices in the City average $385,913, as
compared to $290,817 for resales. In contrast to attached homes, only 23% of homes sold
for less than $200,000.
New Construction, Planned&Proposed Development
There is one new attached ownership development, Bonita Townhomes, under construction
in the City of Tigard. It has 53 units and is scheduled for completion in March of 2005.
Three other developments, consisting of 102 units are in preliminary planning stages.
FIGURE IV-5: TIGARD APARTMENT PIPELINE FOR NEW DEVELOPMENT
Nom►u Tarpt Propery Project
ProTide Pd Owner Name PAwary Addnmr of unity Completion Type Status
Barrows Road Townhomes Tom Secolo 13900 SW Barrows Rd 35 NA TownhousclCondo Planning
Bartow:Triangle Townhomes MGH Associates 13818 SW Barrows Rd 17 NA Townhouse/Condo Planning
Bonita Townhomm Derck L Brown 8c Associates 7865 h 7965 SW Bonira Rd 53 Mar-05 Townhouse/Condo Scan
Condominiums Alpha Engineering 13700 SW Hill Blvd 50 NA Townhouse/Condo Planning
Ownership Housing Development Assessment
Based on our review of regional and market area ownership housing trends, it is the opinion
of Johnson Gardner that there is modest market support for new housing development in
Tigard over the short term. In the Downtown market area, development opportunities will
be limited to attached product, and opportunities will be more limited. The table below
summarizes our significant findings.
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 17
FIGURE IV-6: ATTACHED OWNERSHIP HOUSING DEVELOPMENT POTENTIAL&
FEASIBILITY
COMPETITIVE ADVANTAGES
■ Proximity to Major Arterials Including Pacific Highway, Hall Boulevard, Greenburg
Road and Highway 217
■ Plans Underway for Future Commuter Rail Stop Downtown
■ Proximity to Fanno Creek Park and Fanno Creek Greenway Trail
COMPETITIVE DISADVANTAGESICONCERNS
■ Land Assembly for Large Development May be Difficult
■ Lack of Existing Residential Development Concentration in Downtown Tigard
■ Some Surrounding Land Uses are not Residential Friendly
■ Rail Line Noise and Traffic Congestion
■ Not a Proven Market for Condominium Development
SALES ACTIVITY
■ Low Sales Volume: Attached product makes up a small share of the Tigard housing stock
and a proportionally small share of total home sales. Sales per quarter fluctuated between 40
and 75 homes over the last two years.
SALES PRICES
■ Low Sales Prices: Nearly 90% of homes sold are below $200,000. The average price for
new home sales is $233,882, or $133/per square foot. These prices are significantly lower
than market area averages.
FUTURE COMPETITION
■ 4 Projects in Pipeline: A 53-unit condominium development is currently under
construction. Three other projects comprising 247 units are in early planning stages.
DEVELOPMENT POTENTIAL
■ Short Term: Despite low interest rates and a surge in condominium development elsewhere
in Tigard, the Downtown lacks a residential feel,which will likely impede new construction.
■ Long Term: Land assembly difficulties may limit substantial new development. Lack of
existing residential component Downtown may be a deterrent, but could be overcome.
Central housing would be complementary to planned commuter rail stop. In addition,
Downtown Tigard is an unproven condominium market,which may pose an obstacle for any
new attached ownership housing development. The concentration of social service providers
Downtown may also limit
TIGARD DOWNTOWN IMPROVEMENT PLAN--Economic Analysis Study PAGE 18
DOWNTOWN TIGARD TIMELINE
Oct 2002 Council approves IGA with TriMet for development of commuter rail
station in Tigard.
Nov 2002 Council establishes what will later become the Tigard Downtown
Taskforce (TDTF) to recommend design elements for the Tigard
Commuter Rail Station.
Mar 2003 Commuter Rail Station Elements report accepted by Council.
2004 City obtains TGM grant to develop a downtown plan.
Mar 2005 TDTF expanded from 12 to 24 members.
May 2005 Council establishes City Center Advisory Commission (CCAC)
Aug 2005 Additional 6 members appointed to CCAC to join original 8.
Sep 2005 Tigard Downtown Improvement Plan completed and accepted by
Council.
Nov 2005 TDTF disbanded.
Nov 2005 League of Oregon Cities awards Tigard their 2005 Good Governance
Award for the TDIP process.
Dec 2005 Urban Renewal Plan developed by CCAC and adopted by Council.
Feb 2006 Commuter rail station shelter upgrades approved by Council.
May 2006 Urban Renewal Ballot Measure passes authorizing the use of Urban
Renewal and tax increment financing in Downtown
Aug 2006 First annual Tigard Downtown Implementation Strategy is developed by
CCAC and adopted by Council.
Sep 2006 Tigard Downtown Streetscape Design Plan is accepted by Council.
Oct 2006 New Bylaws drafted and adopted.
Mar 2007 City awarded $2.5 million "green street" grant by Metro, largest grant
city has ever received.
Mar 2007 Council approves IGA with Clean Water Services (CWS) to form
partnership to develop Lower Fanno Creek Park
Aug 2007 Downtown Public Plaza location chosen by Council.
Sep 2007 City develops Memorandum of Understanding (MOU) with Stevens
Marine to develop an Option Agreement for purchase of their property for
use as the Downtown Plaza.
Oct 2007 Leland Development Strategy completed and accepted by Council.
Feb 2008 Master Plan for Fanno Creek Park & Plaza is developed and adopted
by Council.
Aug 2008 Burnham Street final design is completed, and City forms team to work
with property owners to acquire needed right-of-way for construction.
Sep 2008 PC-CCAC jointly develops a draft set of new land use regulations and
design guidelines using a modified "form-based" code for Downtown.
Oct 2008 Lower Fanno Creek Park — Contract award to develop construction
documents and permitting for construction of Phase I in Summer 2009
Dec 2008 City develops IGA with TriMet to study potential redevelopment of TriMet's
Tigard Transit Center (anticipated).
Jan 2009 City to begin final design of Main Street (anticipated) .
Jan 2009 New land use regulations and design guidelines adopted by Council
(anticipated).
2009 Phase I Lower Fanno Creek Park construction (anticipated).
2009 Burnham Street construction to begin (anticipated).
2011 Main Street construction to begin (anticipated).
2012 Downtown Park Plaza construction (anticipated).
2017 MAX/High Capacity Transit construction on 99W (potential).
2019 MAX/High Capacity Transit opens on 99W (potential).
2026 Urban Renewal District sunsets.
Additional tasks yet to be undertaken include: Performing Arts Center plan, Main
Street green street program Phase II -- Railroad tracks northwards, Transportation
and circulation plan for downtown, Housing study & policy.
441
MM
MEMORANDUM
TO: City Center Advisory Commission
FROM: Sean Farrelly,Associate Planner
RE: Tigard Downtown Future Vision-A Visual Refinement of the
Tigard Downtown Improvement Plan
DATE: November 3, 2008
The Tigard Downtown Future Vision was developed as a joint project between the
City of Tigard and the University of Oregon's Portland Urban Architecture Research
Laboratory (PUARL). This project was done to develop a clear understanding of
Downtown Tigard's future development potential and urban form. It graphically
refines the Tigard Downtown Improvement Plan (TRIP) to express an urban design
vision for the Downtown.
This document is important because property owners, businesses, investors, and the
City need information to make decisions about the key building blocks for urban
renewal such as downtown circulation, needed improvements to public facilities and
services, future parking need, land-use regulations and design standards, etc.
This work has important practical uses. It is a tool which can help to further refine
development ideas and concepts. It also can help provide essential information
regarding the scale of needed public investments to support future development and
potential scope (square footage) of various downtown land uses. From this
information market scenarios and refined site development plans can be developed.
A three-dimensional vision of the Downtown also represents a powerful tool to
communicate Tigard's vision to property owners and businesses, investors, regional
and state decision-makers, and the general public. This project provides a clear
picture of the goal to be attained as a reference point for decision-making.
The document consists of four sections:
I. Findings and Recommendations:
The project's urban design findings and recommendations consist of 10 themes:
1) Downtown Circulation Plan and Street Network;
2) Downtown Block Sizes and Arrangements;
3) Extending the Green throughout the Downtown;
4) Fanno Creek—Opportunities and Constraints;
5) Hwy 99W, Hall Blvd, and Downtown Entrances;
6) WES Commuter Rail/Portland & Western Rail Line;
7) New Development, Architecture, Land Use Regulations and Design
Standards;
8) Property Ownership and Lot Patterns;
9) Downtown's First Impressions;and
10) Parking.
II. Future Downtown Urban Form:
This section presents urban form/development scenarios of the downtown as
might happen in time periods of 5 to 10 years, 10 to 20 years, and 20 to 50 years,
when it is assumed the Downtown will be mostly built out. These visualizations
were based on the recommendations of the TRIP and the assumption that the
Downtown would evolve over time in response to the Portland Metropolitan
Region's market and population dynamics.
III. Detailed Opportunity Site Studies: •
This section presents a series of sketch studies of three Downtown opportunity
sites showing how the above general design concept can be further refined.
IV. Appendix:
The appendix documents the research,studies, and analysis involved in
developing the Tigard Downtown Urban Design Vision.
This document is intended to be a starting point to engage in more informed
discussions with Downtown stakeholders. It will help City decision-makers, property
owners, businesses, and potential developers to envision Downtown redevelopment
on specific properties and throughout the Downtown as a whole.
The document appendix is still undergoing editing and the full document will be
printed in 3-4 weeks.
Downtown Actions from October 2002—November 2008 (chronological),
• Council approves IGA with TriMet for development of commuter rail station in Tigard—
October 2002
• Council establishes the Downtown Task Force to provide direction to develop a Downtown
Plan—November 2002
• Council establishes Downtown Taskforce to recommend design elements for the Tigard
Commuter Rail Station—November 2002.
• City obtains TGM grant to develop a downtown plan-2004
• Council establishes City Center Advisory Commission (CCAC)—May 2005
• Tigard Downtown Improvement Plan completed and accepted by Council in September
2005
• CCAC established as advisory commission focused on urban renewal efforts in downtown
• Urban Renewal Plan is developed and adopted by Council—December 2005
• Council approves and allocations funds for upgrading the Commuter Rail Station with a
traditional shelter design- February 2006
• Urban Renewal Ballot Measure passes authorizing the use of Urban Renewal and tax
increment financing in Downtown—May 2006
• First annual Tigard Downtown Implementation Strategy is developed and adopted by
Council—August 2006
• Tigard Downtown Streetscape Design Plan is accepted by Council—September 2006
• Tigard hosts League of Oregon Cities seminar on Tigard's Downtown Planning efforts—
September 2006
• CCAC develops and works with Council to adopt new By Laws—October 2006
• City of Tigard is awarded a League of Oregon Cities Small City Citizen's Planning award for
citizen involvement for the Tigard Downtown Improvement Plan—2006
• City receives largest grant in history-$2.5 million for redesign / construction of Main St.
(railroad to southwest entrance at 99W)—March 07
• Council approves IGA with Clean Water Services (CWS) to form partnership to develop
Lower Fanno Creek Park—March 2007
• City Council,Citizens and Staff travel to Port Moody,B.C. to learn about how their
community creates a high density,pedestrian-scale,liveable City—August 2007
• Council selects location for Downtown Public Plaza—August 2007
• City develops Memorandum of Understanding(MOU) with Stevens Marine to develop an
Option Agreement for purchase of their property for use as the Downtown Plaza—
Septembcr 2007
• Leland Development Strategy completed and accepted by Council—October 2007
• Master Plan for Fanno Creek Park&Plaza is developed and adopted by Council-February
2008
• Burnham Street final design is completed,and City forms team to work with property
owners to acquire needed right-of-way for construction—August 2008
• City develops a draft set of new land use regulations and design guidelines using a modified
"form-based" code for Downtown—September 2008
Downtown Actions List 2002-2008
Page 1
• Development and negotiations of an Option Agreement for purchase of the Stevens Marine
underway—August 2008
• Lower Fanno Creek Park—Contract award to develop construction documents and
permitting for construction of Phase I in Summer 2009—October 2008
• City works with U of O to develop the Tigard Downtown Future Vision:A Refinement of
the TDIP—November 2008
• City develops IGA with TriMet to study potential redevelopment of the TriMet Transit
Center—December 2008 (anticipated)
• City to begin final design of Main Street with anticipated construction FY 2011-12—Jan
2009 (anticipated)
Downtown Actions List 2002-2008
Page 2
I
-t
Tigard / • •
introduction
0 This project was undertaken as a pragmatic assumption*that the Downtown will evolve Student participants: Funding provided by:
way to develop a clear understanding of over time in response to the Portland (leader) The City of Tigard
downtown Tigard's future development Metropolitan Region's market and population Brian LRena Simon(l
potential and physical form. Up to now, dynamics. Therefore,three time-based
ckyear
understanding of the future physical form urban form scenarios are presented. These Jack Claros City of Tigard Urban Design
j of the Downtown has been somewhat are images of the Downtown in 10 years,20 Samanttha Polinik Planning Team:
UN1vERS1TY theoretical and not easy to visualize. years,and In 50 years;when it is assumed Jason Johnson
OV O R FCON The Tigard Downtown Improvement the Downtown will be mostly built out. Cory Smitke
Plan(TDIP)has served as a guiding Kirsten Poulsen Tom Coffee, Community
document for downtown planning projects This project is not an end in itself. It does not Ellen Lind Development Director
and other efforts,but its concepts and make specific recommendations. Rather,it Dick Bewersdorff,Planning Manager
recommendations have been portrayed is a starting point for future discussion out of City of Tigard Advisors: John Floyd,Associate Planner
primarily through words and conceptual which well-reasoned recommendations may Phil Nachbar.Downtown
graphics.While very useful,the TDIP and arise. It is a tool to engage in more informed Ron Bunch,Assistant Community Redevelopment Manager
other Downtown planning related documents discussions with those concerned about Development Director
do not clearly express a design vision of the the future of the downtown. It is intended to Sean Farelly,Associate Planner for City of Tigard Editors/Graphic Design:
Downtown's development potential. help City decision-makers,property owners, Long Range Planning
businesses,and potential developers to Helen Marvin,Office Services
A clear understanding of how the Downtown envision Downtown redevelopment on Instructors: Supervisor
may develop and its future land use, specific properties and throughout the Doreen Laughlin,Administrative
transportation,and design characteristics Downtown as a whole.The document is Professor Jim Pettinan Specialist II
is important for public and private decision- intended to spark discussion and debate, Emily Refi
making. Even though the outcome of this and raise questions of the'what if'nature.
study results from a series of"informed Managing PI: Acbrowled9ements:
assumptions,"0 provides decision-makers The Downtown Tigard Urban Design vision
and the public with order of magnitude is the first in a series of research and design Professor Hajo Neis,Director rigardCityCounciUCityCenter
information necessary to make broad scale projects by the Portland Urban Architecture Development Agency
decisions such as layout of a downtown Research Laboratory(PUARL). We are very ORSA 8 CHI Mayor Craig E.Dirksen
circulation plan;sizing necessary for public thankful to the City of Tigard for providing Sydney Sherwood,Council President
facilities and services to serve projected land the University this opportunity and assisting This study was supported by ORSA, Gretchen Buehner
uses:the conceptual basis to refine design us with the project. Especially appreciated Office of Research Services and Nick Wilson
standards and regulations,etc. is the close cooperation of Tigard's Administration and CHI.Center for Tom Woodruff
Community Development Department staff, Housing Innovation City Center Advisory Commission
Furthermore,a three-dimensional vision of particularly Ron Bunch,Assistant Community
the Downtown represents a powerful tool Development Director,and Sean Farrelly, Alice Ellis Gaut-Chair
to communicate Tigard's vision to property Associate Planner. Tigard's participation Financial Manager: Lily Lilly-Vice Chair
owners and businesses,investors,regional helped make this project a success and we Carolyn Barkley
and state decision-makers,and the general hope to be able to continue this cooperation Julie Hale Alexander Craighead
public.While engaging in long-term efforts in the future. Ralph Hughes
such as Downtown redevelopment,it is PUARL Kevin Kutcher
important to have a clear picture of the The Portland Urban Architecture Research Peter Louw
goal to be attained as a reference point for Laboratory,(PUARL)is part of the University Portland Urban Architecture Thomas Murphy
decision-making. of Oregon Portland Urban Architecture Research Laboratory Linli Pao
Program. Its main purpose is to conduct University of Oregon Portland Elise Shearer
This project has been based upon an and promote activities in urban architecture 70 NW Couch Street Martha Wong
informed and deliberate process that takes and design research with regard to urban Portland,OR 97204
into account the many factors that have morphology,urban patterns,urban building Tel.503 412 3731
shapedTigard to date. These factors www. sten uor on.edu/arch/ The City would also like to
g types as well as urban processes mat �- g' � acknowledge the contributions of
include the history of Tigard;the City's create urban forms. The PUARL attempts to indexlphp
geographic context;the political and integrate sustainability into the urban design the members of the Tigard Central
Business Distract Association
physical structure of the Downtown and an process for conducting basic and applied
analysis of existing conditions. From this research(throughout the region)for civic
research specific design criteria,findings, groups,public agencies,professional firms,
and conclusions were developed to and development interests.
2 shape urban form images.The underlying
table of contents
INTRODUCTION APPENDIX
Al: HISTORY/DEVELOPMENT /REFINEMENT
1. PROJECT PROCESS AND SUMMARY: A2: REGIONAL AND LOCAL CONTEXT
FINDINGS AND RECOMMENDATIONS . . . . . . . . . . . . . . . . . 5 A3: POLITICAL AND PHYSICAL FRAMEWORK
A4: SITE DOCUMENTATION
2. FUTURE URBAN FORM . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
A5: SITE ANALYSIS
INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
A6: GREEN URBAN NETWORK
PHASE I : 5 TO 10 YEAR REDEVELOPMENT . . . . . . . . 15
PHASE II : 10 TO 20 YEAR REDEVELOPMENT . . . . . . 17
PHASE III: 20 TO 50 YEAR REDEVELOPMENT . . . . . 19
3. DETAILED OPPORTUNITY SITES STUDIES . . . . . . . . . . 23
A. RESIDENTIAL AT FANNO CREEK . . . . . . . . . . . . . . 24
B. MAIN STREET CONNECTIONS . . . . . . . . . . . . . . . . . 26
C. FOUR CORNERS GATEWAY AT
HALL AND Hwy 99W . . . . . . . . . . . . . . . . . . . . . . . 28
3
PAS.
, , a
Project Process and Summary
The development of the Tigard Downtown Vision is to make the most of the area's All of the above factors,and more,have
Urban Design Vision project followed a The Downtown also exists within a"Political remaining natural features. Throughout been synthesized through the design
straightforward planning and urban design and Physical Framework." Both the natural all of the previous planning work.Fanno process into"future urban design visions."
process.As with any design related and built environments clearly affect Creek and Fanno Creek Park are identified This was done for three time periods;5—10
project,the methods used also describe the Downtown's urban form.Hwy 99W, as significant references for design and years,10—20 years,and 20—50 years.
the results. The following is both a brief Fanno Creek,and Fanno Creek Park are redevelopment efforts. Therefore,a At the end of 50 years it was determined
summary of the projects methodology and good examples. Political decisions have reoccurring theme throughout the Design that the Downtown would be essentially
its results. been,and will continue to be,important Vision document is to"extend the green" built-out to a dense urban environment.
contributors to urban form. The designation of Fanno Creek Park into the redeveloped Visioning the Downtown was not a blank
At the outset it was important to develop of 193 acres of the Downtown as an urban downtown. slate process,but was based on an in-
a clear understanding of the history and renewal district was a significant political depth analysis of the factors described
context of Downtown Tigard. This included decision. This decision will have long- The Urban Design Vision project also above. Each of the three urban visions
evaluation of historical and cultural term and lasting consequences on the recognizes that strongly held community were prepared starting from informed
influences on the Downtown's urban form. Downtown's physical character. Other values are important to future urban assumptions that have been developed
As part of this,the"Downtown's Past political decisions,particularly relating to design decisions. In this regard,it seeks through this and other planning efforts. As
Planning and Development Efforts"were public facilities and services and land- to portray a traditional downtown in terms expressed in the introductory statement,
also evaluated. This is important,since one use regulations will also have long-lasting of function and form by proposing an these scenarios show"what if'possibilities
of the project's objectives is to refine the impacts. The decision to use public funds interconnected multi-modal circulation dependent upon decisions made by
concepts of Tigard Downtown Improvement to adapt the Portland&Western rail line system that would create distinct,walkable Tigard. The foremost decision is for Tigard
Plan(TDIP)into a design vision. for commuter rail purposes is an excellent blocks on a modified grid pattern. In to develop the"structure"of a traditional
example. addition,the project proposes that future downtown and hold to the community's
This project also depicts the Downtown downtown architecture form a fine-grained, vision,sound design principles.and
within the Portland Metropolitan Region Currently many public projects are in pedestrian-oriented building pattern that development quality.
and within its own sub-region of southeast process. Some are in later stages of is emblematic of the traditional American
Washington County.There are many implementation than others,and others downtown.Not all buildings have to be in
factors,within both the region and depend on funds which may take years the form of traditional American commercial
sub-region that will ultimately affect the to materialize.The Urban Design Vision architecture.However,they must be of high
Downtown's urban form. For example,the project has attempted to reference and design quality and provide opportunities
Downtown is almost equidistant from two incorporate these anticipated projects. for the functions and uses that complete
major retail centers;Washington Square Examples include the future extension of downtowns have always provided. These
and Bridgeport Village.Also,as it has done Ash Avenue to the commuter rail park- opportunities include a range of housing
for almost 60 years,the Hwy 99W corridor and-ride site;the reconfiguration of the and commercial opportunities that promote
will continue to compete for the consumer's Hunziker/Hall/Scoffins intersection;and the opportunity to live.Shop,work,and
retail and service dollar.Consequently, the enhancement of Fanno Creek Park. recreate in a defined.identifiable.urban
Downtown Tigard will likely not develop place.
as a major retail center. Instead,it is best The Downtown Vision project made a
situated to provide shopping,professional significant effort to evaluate and document Essential to the creation of a new Downtown
and personal services,entertainment,and the physical character of the Downtown. are land use and design regulations that
dining opportunities,to nearby residential Understanding"place"is essential to a require new development to achieve
areas. From this perspective,the successful design project at all levels the community's objectives such as the
Downtown has an opportunity to develop as of detail. There are several significant creation of a logical and interconnected
a"lifestyle center"for people who wish to findings within these chapters. One of circulation system;extension of the"green"
live in an urban environment.Ultimately,it the most important is that Downtown throughout the downtown;the development
is expected downtown commercial uses will redevelopment will have to overcome of a pedestrian-oriented building pattern
derive significant support from downtown the consequences of significant physical and streetscape;and opportunities for both
residents/customers. From this perspective barriers to downtown circulation.These residential development and commerce
the primary redevelopment opportunity for barriers,as previously mentioned,include to occur in ways that are compatible and
the Downtown is high-density residential Hwy 99W,Fanno Creek,and the rail complementary. Land use regulations must
development served by close-by corridor. Because of these barriers it is be crafted carefully to promote high quality
commercial businesses and high-quality, important to specifically create gateways to architecture and site design,support
frequent transit. The Downtown may also the Downtown at key points,and redevelop desired transportation goals,and foster
serve as a destination for other Tigard the existing incomplete street network the multi-use character of a traditional
residents who desire to recreate and into a cohesive and connected multi- downtown.
shop within a traditional downtown modal circulation network. Another major
environment. theme of the Downtown Urban Design
6
1.1. Downtown Circulation important because resdent al uses tend to are essentially part of the open space
be set back further from the street,while network. The provide significant amenities
Plan and Street Design
They g
commercial uses need to be established at along their tree-lined lengths and can
the street frontage"build-to lines." Future connect visually to the surrounding natural i►
Street and pedestrian connections will � � ".• '
streets are recommended to be built with landscapes such as Fanno Creek Park and
Downtown Tigard. Streets are much morree
play a critical role in the redevelopment view corridors in mind. Streets the wetlands to the east of Downtown, i r
than a means to accommodate automobiles.
pedestrians,and transit.They also have Fig.1.1.1
important urban design,social and economic
._
roles. Decisions regarding the extension
and connection of Downtown streets and
resultant block sizes must be carefully made f x
to ensure the City's objectives for a vibrant
Downtown are realized. r
Recommendations: �. v, _
It is recommended that a Downtown
Circulation Plan be adopted as part of the
Tigard Transportation System Plan(TSP) O \ 00
O o O
that specifically identifies that location of
Downtown streets,pedestrian ways,and vp °n C� 03
transit facilities. The potential circulation O 0000 O o�
plan(Figure 1.1.1)illustrates a conceptual
street network.
Existing and future streets in the Downtown O o° ;
should be evaluated,designed,and
constructed according to their desired °O o o°
Fig-
function. It is important for streets to be °o °o O O '°0 O 1.12 ?�6
appropriately sized to match the pedestrian °°0000 o OD �Ovn oO� t�`�
scale environment that is desired for theC/o� C?.
Downtown. It is important for streets 00Q � 0 0°\ o
to have pedestrian amenities such as
adequate sidewalks,street trees and other
landscaping,lighting,benches,and other ° 0 °°
street furniture. '..� o
OHO
DO �.
Streets must not be oversized and out of
scale with the pedestrian oriented and ; Dopoo J �0
intimate Downtown environment the City is ;s ,40° .a
trying to create. Within the Downtown it i5 >o t o
better to have smaller streets than ones that ° ; c°
are oversized for their function. In many o �� •- r;
places one-way lanes.public alleys,and r. ' g0 0
shared streets and pedestrian pathways «' -9
would function well and provide a unique
quality to the Downtown,
Commercial and residential streets should CONCEPTUAL FUTURE POTENTIAL CIRCULATION PLAN
have different design characteristics PEDESTRIAN PATHS
because each serves a different need. The EM FUTURE STREETS/AUTO CONNECTIONS Based on current streets and potential
street continuations as well as alignments
Tigard Downtown Improvement Plan calls EXISTING PEDESTRIAN PATHS of destination points this diagram shows a
for andEasresidential
streets s be geared more of future vehicular and pedestrian
toward residential uses,and North/South - EXISTING STREETS projection
streets toward more storefront commercialFANNO CREEK circulation.
activities(Figure 1.1.2).The difference is Nk
7
1.2. Block Sizes and respects,the Downtown's structure is
"frozen in time." An excellent example of Tigard's block size
Arrangements this is that the Downtown's primary street _
network has not changed substantially fi �� » •�� � �� 7 ���< �
Tigard's Downtown was bisected by a ��� �_
since the 1940s. y (`
major state highway structure in the early
1940's.If this had not happened.Downtown
may have evolved into a more compact R2COflTfflefldaf1011S:
and traditional downtown form,similar The previous"potential Circulation plan" ✓
to small and midsize cities throughout illustrates a possible blockfor attern
P
Oregon. However,rapid suburban growth ^.
the Downtown. In addition,Figure 1.2.1
was spurred by easy access from Portland I J
illustrates how a very large inaccessible J 51
via Hwy 99W and,later,Interstate 5. Strip a
property can become an accessible and �ti -i = f \� � i �_/ a 2
commercial development then became the more intensely developed commercial i y{
dominant commercial pattern. Besides
Main Street,the Downtown did not have block. It is recommended that the City �Jje<
require downtown"block formation" \ i'
the Opportunity to develop a struCtUre Of associated with implementation Of its DOWNTOWN TIGARD DOWNTOWN PORTLANO
defined and accessible blocks since most Downtown circulation plan.
of the City's commercial development Block size plays an important role in the accessibility of a
occurred on the Hwy 99W strip.In some downtown. For comparison,Downtown Portland,the Kenton 'neighborhood,and Lake Oswego are shown at the same
scale. From its historic framework Downtown block sizes can �✓
Fig.1.2.1 be developed that establish a logical and efficient clrcutation
systems for all modes of transportation-transit,pedestrian,bike,
EXISTING BLOCK CONCEPTUAL FUTURE BLOCKS and auto.The creation Of a safe,vibrant and attractive pedestrian
environment is essential for the Downtown's future. This means — ,F
IT that it is essential to create"permeable"accessible blocks with
alleys,shared streets and pathways,in addition to sidewalks. y
OF
DOWNTOWN KENTON(POFtTLAND)
ua
b WWLJC rtiCr 1
fr % DOWNTOWN LAKE OSWEGO
0 iao .� 0 40C
8
1.3. Extending the Green
"Extending the Green"is an important concept a (i
for the redevelo , \ `I
pment of the Downtown. New ;,�==�_
Downtown landscape needs to be undertaken DOWNTOWN TIGARD 2008 w " CONCEPTUAL 2058
with as much care as the architecture of future \4 -
buildings. Forexample,it is vital to provide Existing green " - :- "Extended"green \
the area and soil volumes needed to support = r
landscape. It is possible to create green
spaces in small areas,even by landscaping
walls using vines,espaliered trees and small
pockets of landscape. An objective will be to
ensure that a significant portion of Downtown Jam.
be landscaped. 1l� w, "AV%
Other ways to extend the green is to make
substantial use of"green roof"technology. x _j
Also,it is possible to transform parking lots
into"parking plazas"where landscape is
given equal priority with cars. It is possible
through good landscape architecture to :-
make this happen and still accommodate
needed parking. "
The Downtown Tigard Urban Design Vision t s
document provides the concept of how } \
the green can be expanded throughout
the Downtown. It is recommended that the
City use the Vision document to work with
interested property owners to implement its \ ��
urban landscape concepts.
Recommendations: y Fsy
The City should develop landscape and -
open space standards specifically for e
the Downtown. Furthermore,green roof °" X
and storm water retention and treatment
technology should be implemented
whenever possible.Proposals to redevelop
existing streets,and construct new ones. otyti�
should be accompanied by street tree and
landscape plans.Parking tots should be ? w
landscaped to impart plaza-like qualities
and perhaps provide multiuse opportunities.
New development should preserve existing 4 1381
significant trees and vegetation.
The Oty should consider developing an
"Extend the Green Master Plan"for the
entire Downtown. In areas not planned for
development such as street right of ways, Figure 1.3.1-Extending the Green"
intersections,unusable and leftover parts
of private and public property,the City and
property owners should begin tree planting
and landscaping to start implementing the
concept.
1.4. Fanno Creek 1.5. Highway 99W, Hall Hall Boulevard is also a state facility and is 1.6. WES Commuter Rail/ Future design of the Downtown must link
Boulevard and Downtown planned to be a five lane roadway between Portland & Western together a wide range of transportation modes
Fanno Creek presents both opportunities and Hwy 99W and Durham Road. It is also a high- such as automobile,commuter rail,light rail,
constraints to the redevelopment of Tigard's Entrances volume artenal that accommodates several Rail Line bus,walking,and bicycling.
Downtown into a lively,economically strong, thousand trips per day. The majontyof the The Portland&Western rail line is also a
and livable urban center. Fanno Creek is a DOWNTOWN ENTRANCES entrances to the Downtown come from these
natural physical barrier that prevents direct two roadways;there are only eight street barrier to Downtown circulation. For its entire 1.7. New Development,
Z
' access t0 neighborhoods South and southeast S entrances to the Downtown. Compared p
length through the Downtown,there are only
of Downtown. However,it is a"green jewel" to traditional downtowns developed on a two vehicle crossings:one at Main Street, Architecture, Land Use
that could be symbolically extended into I small block grid and the other at Hall Blvd.However,as a
dpattem,Tigartl'sDowntown Regulations and Design
the Downtown to create a unique beauty has limned connections to the rest of the
y 1 commuter rail line,it also presents Tigard
g with unique redevelopment Standards
and character that is lacking in many of the � community. q P opportunities. It
region's town centers. 7` is potentially one element in a mix of transit
•� alternatives that could make Downtown Tigard The success of urban renewal and
Resolution of the obstacle formed by Fanno 3
+_ Recommendations: a suburban transportation center. The urban redevelopment depends upon making the
design and redevelopment Downtown a lace where people wish to live,
g p opportunities p p p
Creek by connecting Ash Street to Walnut 6 Transportation improvement projects on
Avenue with a bridge is a matter for the �. � \ � Hwy 99W and Hall Blvd within the vicinity of Presented by commuter rail are significant. recreate,and shop. The Downtown must
community to resolve in the future depending
Downtown Tigard should enhance pedestrian However,there are challenges including become a desirable destination:a place
on whether it is necessary to accommodate1 . and other multi-modal access. It is tticularly providing an additional rail crossing to better whre peoplle can nd community 9 eir evfriends
ents and spend
rid
increased traffic generated b urban growth. ' important that intersection improvements connect the north and south parts of thefamily
g y g p Downtown. The other challenge is to make rewarding leisure time. Therefore,the design
provide safer and more convenient Tigard a destination and a place of origin challenge for Downtown redevelopment is to
4 opportunities to cross Hwy 99W and Hall rather than just a place to pass through. The g
Recommendations: create an authentic character without bean
Blvd. w both roadways,it l important to fill too imitative. A sense of authenticity is what
It is recommended that future land use in sidewalk gaps and consolidate driveways Presence of commuter rail by itself cannot ty
regulations and City beautification efforts to reduce pedestrian,bicycle,and transit user
do this:however it is one foundation block to typically makes the classic or traditional
conscious) strive to extend the green Hwy 99W is also a barrier. The highway the building of an attractive and prosperous downtown charming and interesting.
y g conflicts w th turning vehicles. However,because Ti ard's Downtown did
character of the Fanno Creek riparian area into is elevated along much of the Downtown's Downtown. Commuter rail,and other forms of 9
western boundaries.It is a traffic congested. more frequent transit service.can help make not have the opportunity,except along Main
Downtown, The concept of d unique
the Because of the limited number of connection Street,to develop a traditional downtown
Green'can be a powerful and unique urban regional arterial that accommodates many points to the Downtown to and from the the Downtown a vibrant,attractive place to live p
thousands of automobiles daily. State Hwy by serving as the focus of new transit oriented urban form and because of the condition of
design element. rest of the community,it h important to man existing buildings much of the"new
99W and Hall Boulevard to the east are the make the most Of[hose that already exist. development. Y 9 9
primary routes by which people can get Downtown"will have to be created from the
Fanno Creek also represents an important It is essential to ensure that access to the
entry into Downtown Tigard because it is the into Downtown. How traffics managed on Downtown is easy,safe,and accessible Examples of the connectivity issues posed by ground u p.
route of the Fanno Creek regional trail. Future these arterials,and the future development by all transportation modes. Also,it is the railroad can be seen in the development
improvements to the trail system should also of high capacity transit facilities,will greatly recommended that Downtown entrances be along Burnham and Commercial Streets that There is some good existing architecture.
include signage and other"way-fording" affect the Downtown's future. Especially accentuated as part of a larger Downtown abut the railroad track.In the past,these land especially those buildings which are
measures to bring the trail user into the important is how to get people,via a variety of way-finding effort. uses had a major transportation advantage by constructed of masonry and brick. These
Downtown. transportation modes,into the Downtown from having rail access. However,in their current buildings may serve as reference points
these major roadways. configuration,these properties have significant for future development. Nevertheless.it is
Both roadways also present visual barriers connectivity problems.It's difficult,from the projected that at build out in 2055,few of the
b the Downtown. e converted effort should existing buildings will remain.
a t The Ci in concert with the Oregon streets tem,to access the back art of these g 9s
� EE ty• g be made to improve the visual and aesthetic � P
Nssa Department of Transportation and other p relatively large parcels.Public street or lane
MP characteristics of the roadways to create a There are two important factors that will
affected agencies and jurisdictions, connections adjacent to the railroad track Po
completed the Tigard 99W Improvement more pedestrian-friendly environment. are needed to maximize these properties' contribute to the quality of future Downtown
and Management Plan in 2007.The plan The Hwy 99W viaduct presents a unique economic use. architecture. The first is the experience and
recognizes that widening Hwy 99W to ability of developers who are attracted to work
design challenge. Currently,it essentially in the Downtown. The seconds the City's
accommodate growing traffic needs is neither is a wall that separates Downtown from the Recommendations: Downtown land use regulations and design
financially feasible,nor desirable,from a e9 9
rest of the community. Within the short term, standards.
community impact standpoint. Therefore, The City should ensure that there is at least
it is important that improvements be made
the 99W Plan recommends that future one additional street that crosses the Portland
improvements be focused on intersection to the current"under crossings'to improve g Western rail line.Furthermore,public street
P pedestrian comfort and safety. In the long p Recommendations:
improvements.access management, DOTaccess is needed along the rear of properties
term,when it becomes necessary for demand
to It is important that the City's land-use
transit service,pedestrian,and bicycle rebuild the structure.Tigard should demand that abut the railroad on Burnham and Po Y
improvements. The bottom line is that g Commercial Streets. regulations and design standards emphasize
greater access to the Downtown through the quality high of ment
solutions to ease congestion on Hwy 99W p g q ty architecture
structure and much higher design aesthetics. the development
site design.Future Downtown
cannot be resolved by widening the roadway. It might even be possible to accommodate Lands adjacent to me commuter rail station 9
Latent traffic demand would use up any some t should be the focus of transit oriented development must not be restricted to a
increase in capacity. overpass structure.types structure.of structured parking as part of an residential and mixed use development. particular genre or type of architecture This
lU
is important because the market demands Recommendations: will remain. Structured parking is a long-term The design and siting of parking lots must
buildings that can be adapted to many The key to successful downtown prospect.Its development in the short term be done with a redevelopment plan in mind.
uses over time. Flexibility is key to market redevelopment is for multiple property owners would require a high level of subsidization by Ultimately,land prices and transit availability
relevance,so Tigard's objective should be to agree to assemble adequate land for a either public or private entities and would have will reduce the need for off-street parking
to ensure the Downtown is adaptable to successful project. The Downtown Tigard to be justified by a high level of development and it is important that valuable urban land
Changing times. Urban Design Vision provides examples of demand and activity.However,attainment of eventually be redeveloped from parking lots
how this Can ocair. It is recommended that Tigard's Downtown's long-term urban design into buildings.
the City uses the Vision document to work with vision should not be constrained by the
.. ` interested property owners to assemble viable parking issue. There are several things that Recommendations:
development sites. the City and Downtown advocates can do now
to address future parking need. The City should work with its regional partners
to promote the development of high capacity
An essential step to managing parking transit services to Downtown Tigard. Parking
i 1.9. Downtowns First demand is to provide transportation options. associated with transit services must be
t Impressions First,it is essential that Tigard be served by designed to transform transit users into
direct high-capacity transit-bus and light-rail customers. Downtown Tigard must not
1 Although not explicitly part of the Design -in addition to WES Commuter rail. These become a large parking lot for transit users.
Vision project,it is important to address the services also pose an issue for the Downtown. The City should develop land use standards
type of impressions an outsider may have High quality transit attracts people who wish that reduce off-street parking requirements
of the Downtown. There is a general sense to park their automobile and board the train by taking into account the availability of transit
in the Urban Renewal District of a lack of or bus.It is essential that valuable Downtown and on-street parking.The siting and design
There are common design themes;however, maintenance and care on many public and land not become inundated by these parked of off-street parking must be done in a way to
that should be fostered to ensure a cohesive private properties,such as cracked and cars.When transit becomes an important allow for the logical redevelopment of parking
design character,including the development potholed streets:poorly maintained buildings: aspect of Downtown,it may be necessary for lots as the need for surface parking declines.
of an attractive,comfortable pedestrian- overgrown lots;outdated signage:barren the City.in conjunction with the transit agency, Public on-street parking is a valuable
oriented streetscape;use of durable materials: landscapes,and discontinuous sidewalks. to develop structured parking. commodity and needs to be preserved
compatibly scaled buildings:appropriately From a developer's perspective,this lack of and enhanced whenever possible. When
sized streets,etc. Also important is the care reduces the perception that the place is Parking areas must be sited and designed to Downtown properties redevelop,actions such
development of a rich and highly aesthetic economically viable. convert transit users into customers. Publicly as driveway consolidation and access controls
landscape throughout the Downtown. This accessible parking should be provided in will be necessary.
has been addressed previously as"Extending Recommendations: strategic locations that allow customers to
the Green." A good place to start would be visit multiple locations after parking once,thus
to protect existing mature trees as a basis The City and Downtown property owners and reducing traffic and parking requirements
on which to build the Downtown's green businesses should engage in an ongoing for individual businesses. Transit access
character. effort to clean up,repair,and landscape points must also be designed in such a way
the Downtown to provide an impression of to provide access to local businesses. Thus
potential,rather than a place that has been transit parking,in conjunction with a grocery
1.8. Property Ownership passed by. It is important to do a number or hardware store at which a transit commuter
and Lot Patterns of small things to make the Downtown ready may shop,is a success,while parking that
for redevelopment. Small efforts such as requires one to get off the train and into a
fagade improvements,painting and new car to drive a few miles down the road for
A major challenge for Downtown signage can all serve to improve the visual groceries,is a failure.
redevelopment is the area's fragmented impression of the Downtown. Another issue
property ownership. However,the average ,s the appearance of the Hwy 99W viaduct. The City must also evaluate its parking
sized parcel in the Downtown is about The City and ODOT should partner to improve requirements for downtown uses.
one acre,much larger than that of many the appearance of the structure and its side Developments convenient to transit and
traditionally developed downtowns. Also slopes Also,the passages under/through accessible to a broader range of goods
significant is that the largest privately owned the structure should be improved to enhance and services may not require more than
lot is approximately 6.5 acres. The Downtown pedestrian safety and connections to other one parking space per unit. Furthermore
is much less developed than traditional,fully parts of the community.
evolved,central business districts. Much businesses that are required to front a public
of the Downtown is occupied by sparsely street and rely upon street parking may not
need as much off-street parking as businesses
used parking lots. The potential for infill and 1.10. Parking along a commercial strip.On-street parking
property assembly and boundary adjustments is a valuable public commodity and must
is significant. Parking is an urban design necessity for be preserved and enhanced to the extent
the Downtown.It is expected that,until land possible.
prices significantly rise,surface parking lots
11
12
EXISTING DOWNTOWN, 2008 tl
FUTURE URBAN
,.'� '� 5-W YEAR STUDY
4
F 0 R M
The three scenarios that
make up the Downtown
Urban Design Vision are
. \\ - .�,,Vii;' \\\\�\ -• \
\. the result of substantial
research and analysis
which is documented in
``\ \ \, \\\\\ _ gyp ` the attached appendix.
The appendix includes the
basis for how Downtown
Tigard could develop in the
"�' �\ \`�\`'• �i/� '�' i •M-20 YEAR STUDY
•• �.%; � `��\ \ i �' manner portrayed in the
following pages.
\\\\\ \
• \\
�, ,,, ,�� .', 20-50 YEAR STUDY 13
The development of an urban place does not assumed that the City of Portland,which in
occur overnight.Normally redevelopment the last 10 years has attracted the most urban
occurs slowly,over long periods of time, refill and redevelopment in the region,will
prompted by many factors such as the have used up much of its easily redevelopable
market for a particular type of real estate sites. Thus,land costs will be much higher
development,the needs and wishes of the for good refill/redevelopment opportunities
property owners,and the ability of local and a substantial portion of this market will
governments to provide incentives and shift to other close-in jurisdictions.Downtown
assistance t0 develop high quality urban Tigard,Beaverton,and Milwaukee will be
projects. likely candidates for this type of development,
especially if provided with transit.
In Tigard's case,the lack of financial
resources makes it difficult to catalyze Another important assumption is that costs of
development with such actions as assembling automobile travel will continue to rise due to
property and making infrastructure higher fuel prices and increased congestion
investments.Also,there are other market and on the region's streets and highways.
financial variables that influence when and Therefore,close-in urban centers like Tigard
how quickly redevelopment occurs.Therefore, will attract new populations of residents drawn
it is not possible to make detailed projections by the opportunity to live in a high amenity
about what the Downtown will look like in the area close to transit and services.
future. However,it is possible to project a
general understanding of future urban form
based on existing conditions and things the
local government can control,such as a future
circulation plan and commensurate block
patterns,urban renewal boundaries,and land
use policies and regulations. Add to this some
reasonable assumptions about market trends,
and a picture of future Downtown potential
emerges.This is what the City,along with its
University of Oregon partners,has done.
As previously stated,the following presents
Downtown's potential future appearance.
This work has been done as a visioning and
educational effort to illustrate possibilities.
Also it is a tool to begin discussion about
how public and private actions can create an
attractive and economically vibrant Downtown
urban character.
This project envisioned Downtown Tigard
redeveloping in three distinct phases.The first
development scenario occurs over a five to ten
year time period.The second phase is ten to
twenty years and the third twenty to fifty years
from now.It is assumed that at the end of the
fifty year timeframe,the Downtown is expected
to be completely built out.
There are major assumptions associated
with these future urban form/development
scenarios.The most important is that,within 10
-20 years,Tigard and areas within the Hwy
99W/Interstate 5 travel shed will be served by
light rail and other forms of enhanced transit
such as bus rapid transit.Furthermore,it is
14
Phase I: Five to Ten Year Redevelopment — 2018
1.FANNO CREEK PARK AND PLAZA 2.WES COMMUTER RAIL 3.HOUSING AT FANNO CREEK 4.MAIN STREET GREEN STREET 5.NEW CONNECTIONS
". The Main Street Green Street project will
dramatically improve the aesthetic character
of Main Street.Redevelopment may occur
spurred by this effort as well as the potential j
market created by new Downtown residential
Within the 10 year timeframe,the City of development.
Tigard's Public Works Department will have
The Westside Commuter Rail Project will serve relocated to a new site and the Public Works
as a catalyst for transit oriented development Annex will be redeveloped as single-family
near the station.The Current Tri-Met Transit attached and multi-family housing.
r Center adjacent to the commuter rail station As the Downtown population of business
will likely be the first site to redevelop. owners,employees.and residents increase.
Because the site is directly adjacent to the Downtown street improvements will be
new rail station,it is a prime location for a high necessary. It is especially important to
density multifamily mixed use development. connect Burnham Street via Ash Avenue to
the commuter rail station. Extension of Ash
Properties south of the tracks,used today Avenue would make it possible to develop
primarily as overflow parking and as vehicle logical blocks between the Portland&Western
and boat storage,may also redevelop as railroad and Burnham Street. This would
transit oriented housing. create access to land between Burnham and
`�..
the railroad to be developed for high density
\ housing. Furthermore,the extension of Ash
\ Avenue would create a direct linkage to Fanno
Creek Park.the Plaza,and the Commuter rail
station.
It is important to note that within the short-term
time frame.parking will still be accommodated
on surface lots but as urban development
intensifies during phases two and three,and
land values increase.parking structures will
become more feasible.
Within ten years.Fanno Creek Park
improvements,and the development of a new
plaza,will create a magnet for community
activity and spur redevelopment investment in
the Downtown core area.
15
-x: �r ��- �.• ..� � �=�.�` �r ..yam-_ _ � �_ -
IMP
�!► wk
�.� *��<. Vit. `10;
N - ,
� Ali � / �'., �i �. ♦ �i
Phase II: 10 to 20 Year Redevelopment — 2028
1.HALL/HWY 99W DEVELOPMENTS 2.NEW RESIDENTIAL DEVELOPMENT 3.ASH AVENUE RAIL CROSSING 4.HIGH CAPACITY TRANSIT ON HWY 99W
i
i
j A major development catalyst will be the
completion of the Hwy 99W 1 Interstate 5
light rail line between Downtown Pordand
and Sherwood.Tigard will become a sub-
As the Downtown population of business regional transportation center for southeast
tt owners,employees,and residents increase, and southwest Washington County and south
It is assumed that within the 10 to 20 yearf� Downtown street improvements will be Clackamas County.Bus,commuter rail,and
timeframe,all four comers of the intersection of f necessary. It is especially important to light rail will intersect in Tigard,providing
Hall Blvd and Hwy 99W will redevelop.These connect Burnham Street via Ash Avenue to transit connections throughout the region.
sites have exposure to high volumes of traffic the commuter rail station. Extension of Ash
and would be prime locations for future retail, As new commercial and office development Avenue would make it possible to develop
office,and commercial uses,particularly if occurs In the Downtown,more residential logical blocks between the Portland&Western
there are improvements in either bus or light development will also occur.Hail Blvd will railroad and Burnham Street. This would
rail transit,to the Downtown.This intersection see new mufti-family development along with create access to land between Burnham and
has a great potential to become an intense streetscape enhancements.The edge of the railroad to be developed for high density
node of mixed-use activity—particularly Fanno Creek will become built out with single- housing. Furthermore,the extension of Ash
commercial and office employment with family attached and mufti-family housing. Avenue would create a direct linkage to Fanno
opportunities for multi-story apartments and Creek Park,the Plaza,and the Commuter rail
condominiums.This will require a new street station.
connection to Hall Blvd from this area to
improve connectivity.
17
Lei 01
I-..tea ia•. IV5
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v 000
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Phase III: 20— 50 Year Redevelopment 2058
t.99W REDEVELOPMENT 2.PERFORMING ARTS/CULTURAL CENTER 4.CIRCULATION 8 BLOCK SIZE 5.FULL DEVELOPMENT OF THE FANNO CREEK EDGE
Within the next half Century high capacity
transitflight rail will transform the Hwy 99W
corridor from auto oriented to transit oriented
development.Properties along Hwy 99W will With the prospect of several thousand new \~
redevelop as a high density and high amenity units within the Downtown and along Hwy
urban corridor with residential development 99W,and also with many thousands of new j
primarily along its segments with commercial jobs in the area,there would be the market for
and employment development at speck high quality leisure and recreation services _
nodes,particularly at transit stops. in the Downtown.This would be the time for
the City to consider developing a Performing
Arts/CuRural Center in the Downtown.Such
a center could be located near residential
areas along Hall Blvd.and Fanno Creek.
Locating the center east of the railroad track
would further serve to tie the Downtown area
together.
3.PARKING STRUCTURES
Within the 20—50 year timeframe,the street
connections identified in the Circulation Plan
will be completed.The result will be smaller,
more viable,commercial and residential
block sizes. During this time,the Hwy 99W
viaduct structure will either be replaced or
c substantially remodeled.New connections
During the 50 year timeframe,urban land will from Downtown can then be made to
become so valuable that structured parking residential areas north and south of Main
will be the primary way to accommodate Street.Wth the increase in pedestrian use,
off-street parking. The challenge will be altematives to at-grade Hwy 99W crossings
to integrate structured parking into the will be necessary to Connect the intense land
Downtown's architectural character.It is uses on all four comers of Hall and Hwy 99W.
important these structures include ground 1�
floor uses,such as shops and restaurants to
activate the street.
There is great potential that by 2058 the edges of Fanno Creek that meet downtown will have
full residential development.Residents will benefit greatly from balconies and patios at different
heights of development.
19
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ooh ' 3 DETAILED
OPPORTUNITY SITES
oeoo
2 nn The Downtown Urban Design O RESIDENTIAL AT FANNO CREEK Vision Is Intended as a tool
e to foster more in-depth eval-
O00 uation of specific sites in the
Downtown for development.
o It is an opportunity to expand
m the community's discussion
oa°
9 a from the very broad general
= nature of the Downtown as a
whole,to very specific sites.
The following design studies in
the detailed opportunity sites
illustrate how more in-depth
visual evaluation of specific
development sites can occur.
MAIN STREETTRANSIT CONNECTIONS In drawing from discoveries
made during this study,the
detailed opportunity sites
visualize the potential building
and landscape elements
j A necessary for a vibrant
future commercial,civic, and
r residential area.
HALL&99W GATEWAY 23
1. Residential at Fanno Creek
The improvements to Fanno Creek Park
will strengthen its position as a community
amenity and also increase the desirability
for new residential development bordering
the Park.The Public Works Annex,when it is
vacated,will be a 3.5 acre redevelopment site
that could be transformed into a high amenity
residential area of townhouses and low-nse
multi-family buildings..
A.PARK TO RESIDENCE RELATIONSHIPS
—I I I IN' i
The Downtown Design Standards will ensure that new development in proximity to the park
does not overwhelm it.There will be reduced maximum heights for new development near the
park,compared to the rest of Downtown.New streets or connections will open up the Park to
the rest of Downtown.
B.FRONT ENTRANCES C.GARAGES D.BALCONIES&PATIOS
1
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Balconies and patios will provide some private open space for these new developments.
Garages will be placed in the rear of the
development so they will not dominate the
streetscape.
The facades of new residential development
will be oriented to the public streets or
pedestrian connections.This will provide
"eyes on the street*',while being set back
enough to give residents a feeling of privacy.
24
Residential at Fanno Creek
Detailed Opportunity Sites
fann creek
s0 AD
25
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3. Four Corners Gateway at Hall/99W
This location has been identified as a strategic development site,due to its location at two
busy arterials. In this scenario five new blocks of mixed use(residential,office,and retail)
development would be clustered around a future high capacity transit stop at the intersection
of Hall and 99W.A new plaza and street connection could present a view corridor to the rest
of Downtown.New blocks of development would occur over structured parking.
A.PLAZA AMENITIES 13-PEDESTRIAN CROSSINGS C.VIEWS
t
The TDIP calls for a plaza to be included The construction of high capacity transit in The site's relatively high elevation presents
as part of the private redevelopment of the the 99W corridor,will increase pedestrian an opportunity for taller buildings that would
Hall/99W area.This plaza would be a smaller activity on the street.To connect the intense have views of the surrounding Tualatin
bookend to the main public plaza next to land uses on all four corners there will need Valley.These 5-8 stories buildings would
Fanno Creek Park.This open space could to improvements in pedestrian safety and also serve as landmarks to the entrance to
include seating,fountains,public art,and comfort.This could come in the form of Downtown.
space for programmed activities. enhanced at-grade crossings,or under and
over crossings.
28
Four
Corners
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FIVE OPTIONS
1.) Yes / Seed Money
• The "absolute yes": we're ready, lets do this soon.
• A downtown association would be good for downtown in general.
• It is appropriate to spend money and support here.
• It directly supports urban renewal.
2.) No, this is not an appropriate action.
• The "absolute no": it is not the City's place to intervene.
• Importance of group being self-motivated and that without this factor the City's
effort to create an association would be ineffective.
• No connection between successful urban renewal and a downtown association
• Even though a downtown might be beneficial to downtown in general, it is the
composition of the team, and its motivation that will determine its success.
• City-assocation relationship is passive, communicative, and not financial.
3.) Conditional
• Yes, but not right now.
• Certain external conditions need to be met first:
* Economic environment
" URD construction "wins"
• Demographics (number of businesses, customer residents
• Waiting until a group of interested businesses show an interest is the best way
to insure the potential for success.
• Certain internal conditions must be met first:
* Broad representation and participation among businesses downtown
* A clear mission
* A positive approach in general.
• City may consider interim steps to take to foster these conditions.
4.) Take a different approach.
• To achieve the goals of urban renewal, the City would be better off spending its
money on a different approach.
5.) Fail to reach a decision.
• The CCAC is unable to reach a recommendation in a timely manner or at all.
• A decision will be made by CCDA/Council without any advice from the CCAC.
I
ISSUE & PURPOSE
* Protect promote and support URD is job 1.
CONTEXT
* The City cannot control if an association exists.
* The City is not going to create a new association.
* An association is one potential tool to solve a problem, not the only tool.
* Funding an association is not critically linked to successful urban renewal.
* Regardless of what policy the City adopts, the City will work with any community
organization with an interest in improving downtown Tigard.
I
Summary of Notes on Downtown Leadershid
Oct 8``'—CCAC
Do we want to plan for a downtown association—is it beneficial to plan for?
Pros Cons
• Marketing business • Lack of nexus between successful urban
• Advocate for business,provides united renewal districts and the presence of a
voice,conduit to City downtown association
• Addresses issues like parking,maintenance • No advantage to non-retail business
• Helps find tenants • Difficulty in getting business to pay
• Effective for location-specific businesses membership fees
only(retail) • "political mayhem"from advocacy role
• Ability to"build rapport" • "Fight for airtime"
• Create a"brand image"
• "programming events"-plaza
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