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01/29/2007 - Packet • • TIGARD PLANNING COMMISSION AGENDA " JANUARY 29, 2007 7:00 p.m. TIGARD TIGARD CIVIC CENTER- RED ROCK CREEK CONF. ROOM 13125 SW HALL BOULEVARD TIGARD, OREGON 97223 1. CALL TO ORDER 2. ROLL CALL 3. COMMUNICATIONS AND COMMITTEE REPORTS 4. APPROVE MINUTES 5. COMPREHENSIVE PLAN UPDATE - JOINT MEETING WITH TIGARD BEYOND TOMORROW TASK FORCE - STATE OF THE CITY REPORT (WRAP-UP) 6. PLANNING COMMISSION TRAINING 7. OTHER BUSINESS 8. ADJOURNMENT • . Tigard Planning Commission - Roll Call Hearing Date: / 7 Starting Time: 7 : &4. COMMISSIONERS: Jodie Inman (President) Tom Anderson Rex Caffall Margaret Doherty ./ .1 ' Jeremy Vermilyea David Walsh STAFF PRESENT: Dick Bewersdorff " Tom Coffee Gary Pagenstecher YRon Bunch Cheryl Gaines Emily Eng Duane Roberts Kim McMillan 17Beth St. Amand Gus Duenas Phil Nachbar Sean Farrelly , 2u • • CITY OF TIGARD PLANNING COMMISSION Meeting Minutes January 29, 2007 1. CALL TO ORDER President Inman called the meeting to order at 7:00 p.m. The meeting was held in the Tigard Civic Center,Town Hall, at 13125 SW Hall Blvd. 2. ROLL CALL Commissioners Present: President Inman; Commissioners Anderson, Caffall,Doherty, Vermilyea, and Walsh. Commissioners Absent: Staff Present: Dick Bewersdorff, Planning Manager;Ron Bunch,Long Range Planning Manager;Beth St. Amand, Senior Planner;Liz Newton,Assistant City Manager;Loreen Mills, Senior Risk Manager;Jerree Lewis, Planning Commission Secretary 3. PLANNING COMMISSION COMMUNICATIONS AND COMMITTEE REPORTS The Planning Secretary reviewed the upcoming Planning Commission calendar. Ron Bunch reported on his meeting with the Tree Board. He noted that the Planning Commission had tabled the work that the Tree Board had done in favor of taking a comprehensive approach. The Board sees the advantages of taking a comprehensive approach to protecting trees. Janet Gillis, the Tree Board Chair,is preparing a letter to Council in support of the Planning Commission's recommendation,provided some things happen. The Tree Board would like consistent, knowledgeable staff support; an ongoing communication with the Planning Commission and City Council; and that the Planning Commission and City Council seriously consider the results of the Tree Board's effort. Other cities have comprehensive tree protection standards that involve a regulatory approach to protect trees, both on public and private property, and that also involve sound enforcement actions, community education,incentives, and a tree management program. Council has asked staff to look at the tree code and identify any interim emergency changes that might be possible to prevent the loss of trees. This will be discussed at the February 20th Council meeting. 4. APPROVE MEETING MINUTES PLANNING COMMISSION MEETING MINUTES—January 29,2007—Page 1 • • It was moved and seconded to approve the December 18, 2006 meeting minutes as submitted. The motion passed by a vote of 3-0. Commissioners Anderson, Doherty, and Caffall abstained. 5. COMPREHENSIVE PLAN UPDATE - JOINT MEETING WITH TIGARD BEYOND TOMORROW TASK FORCE - STATE OF THE CITY REPORT (WRAP-UP) Vision Task Force members in attendance: Jerry Palmer, Beverly Froude, Dean Williams, Rick Boyce, Storm Smith, Marci Thornton-Smith, and Sheila Fink The Vision Task Force and Planning Commission introduced themselves. Ron Bunch advised that the purpose of this meeting was to discuss the integration of the Vision Task Force work into the Comprehensive Planning process. Task Force members were encouraged to continue to be involved in the Comprehensive Plan and to consider participating with the Planning Commission. Beth St. Amand gave a PowerPoint presentation explaining the process and highlighting how the transition would occur (Exhibit A). She advised that the Comprehensive Plan provides goals, policies, and action measures for accomplishing the vision for the City. There are 7 major chapters in the Comprehensive Plan: Citizen Involvement; Natural Features; Environmental Quality; Community (Economic Development and Housing);Public Facilities and Services;Transportation; and Future Growth and Development. There is a close relationship between the Comprehensive Plan and the goals of the Tigard Beyond Tomorrow Vision Task Force. St.Amand reported that there are numerous ways for citizens to be involved in the Comprehensive Plan process: join the NewsList, apply to serve on the Planning Commission, attend an open house,be involved in interest groups and web surveys, participate in work sessions, and attend public hearings. Once the process is complete, there will be periodic "check-ins" to look at changes in community circumstances and to monitor, evaluate, and update the Comp Plan. Ron Bunch referred to the Comprehensive Plan as a "living document". If circumstances change in the community, the City Council can amend the Comp Plan. It serves as a foundation for rules and laws that the City utilizes to guide land use activities. Task Force members provided the following comments: • The Vision Task force wasn't viewed as a prelude to the Comprehensive Plan. A lot of the things from the Task Force were programmatic, not Comprehensive Plan related. There were some elements that could be integrated into the Comp Plan. Staff noted that PLANNING COMMISSION MEETING MINUTES—January 29,2007—Page 2 • • basic directions and themes came out of the range of programs developed by the Task Force. The Comp Plan also has programmatic aspects that are called action measures. • Tualatin has started a similar process and their Comp Plan came up immediately in the process. They may be able to get some ideas from Tigard. • Everyone was excited about Hwy. 99W and Hall Blvd. During the past 10 years, nothing much has changed, except more traffic. • When the Task Force first started,people were interested in things that could be fixed on a short term basis. Results could be seen over time. • With regard to vision, sometimes we're taking into consideration everybody and everything that have to be involved in forming the vision and making it work. Put all the things listed in the vision document into the Comp Plan and make them work. • The Comp Plan does not have the same breadth of the work done by the Task Force. The group became more aggressive as they moved from vision to action. It will be hard to "get us off your shoes"— there's a passion that isn't going to wane. How could we best fit in to be a positive contributor to the Planning Commission's efforts? • Another Task Force member echoed the comments about Hwy. 99W. It's a difficult issue, but something has to be done, perhaps more push on the State. President Inman noted that each new chapter of the Comp Plan brings more challenges. How do we balance competing issues? She would welcome feedback and a new perspective from Task Force members. • There are opportunities for placing density where it makes sense and ways to balance the other issue areas. The Planning Commission has to create a document that integrates them all. It will enable us to push developers to do the right thing. • There are a lot of competing interests—it's nice to be able to walk on cul-de-sacs and quiet streets, however, the lack of connectivity, dead end streets, and cul-de-sacs can hinder emergency response time. • Commissioner Walsh thinks that visioning is a positive process, but then we have to figure out what can we have. The Comp Plan steps down in a kind of hierarchy of needs. It deals with regulatory environment and what the State has mandated. The vision is a great source of input, but it's impossible to get it all. It will be a challenge. • There was great participation in the Task Force and it's been a wonderful experience. It dwindled down to a small group over time. • There were some Task Force members who had a narrow focus on 1 or 2 issues, and once those goals were reached, the member was no longer involved. • The Planning Commission was advised to rely on the resources of City staff because they were the driving force behind organizing the Task Force and keeping it moving. They have the history. • This has been a very rewarding committee because it was possible to see results over time. • Traffic and growth management are paramount, as well as trees. It's surprising that there isn't more indoor recreation. There's a need for indoor facilities—maybe the high school or the old Haggens location. Classes for adults and children could be taught by high school or college students. PLANNING COMMISSION MEETING MINUTES—January 29,2007—Page 3 • • The Planning Commission can take a leadership role to make Tigard a sustainable community (economically, socially, environmentally) by integrating those principles in the new Comp Plan in a way that pushes developers to do great projects. Staff noted that the community needs to support the actual implementation of the Plan. It requires a continued citizen voice from vision to the policies to implementation to let elected officials know that this is important. • The new Neighborhood Organizations being put together by Liz should be included in the process. The Bull Mountain and Metzger CPOs should also be included in the outreach effort. • Will green standards be put into the Development Code? Tigard could take a leadership role in this endeavor. President Inman noted that there are only so many new obstacles that can be put into play because of legal repercussions, but there may be some potential obstacles that could be removed that could encourage and allow sustainability. It will be hard to impose new standards that people might perceive in a negative way. The Planning Commission and Task Force were provided copies of a draft example of a Comprehensive Plan chapter (Exhibit B), direction statements/overall goals of the Tigard Beyond Tomorrow vision plan (Exhibit C), and the draft Tigard 2007 Comprehensive Plan Resource Report (Exhibit D). 6. PLANNING COMMISSION TRAINING Dick Bewersdorff provided training on the land use process (Exhibit E). 7. OTHER BUSINESS Jeremy Vermilyea announced that he would not be able to serve on the City Center Advisory Commission. David Walsh was elected Vice President of the Planning Commission. 8. ADJOURNMENT • The meeting adjourned at 9:23 p.m. / // 44).44 Jerree L6is,Planning Commission Secretary l C✓ r 7ri J , r! ATTEST: P -nt Jodie Inman '( PLANNING COMMISSION MEETING MINUTES—January 29,2007—Page 4 wy ;.1 • TIGARD 2027: the • an i�1a�}�r:�a 111! �i Vsion and Vision Tas January 29, 2007 * * . V4.4 itilp011;1111 'HI . . . . f ................ ......................... .................. ................................. ......................... .................................... ............................ ....................................... ................................ ................................................. ..................................... ...................................................... ............................................. .... ..... ... ................... ............................... ... < °. MOM 1 4. D#°,,.f ['Lin:: O er.atin� ..._ :-,: ' 1 < 3. >.n• �{§(}', jl v' ,1 '''`-E:,' , ..._ ' i ".� 9< t�toj rA %> , .. _ iE a Igard Beyond Tomorrow Goals Ple C.,b ..... w..... ..: :......,.,., C halite-I' r?£z r., • Ifs .............................. ........................ .............................. ..................... ................................ ...................... ....................................... ....................... ............................. .................. .. .......................... ........ ............ ................................. ...................... ............................. .......................... Shape Tigard's Future: Get Involved! • Join NewsList Tonig • Apply for the Plannin • Commi • Attend spring Open Houses • Participate in Interest Grou 's w surveys, interactive tools • Participate in Planning Commission work sessions, submit written comm • Attend Public Hearings DRAFT EXAMPLE: CPREHENSIVE PLAN CHAR Downtown and Natural Features S P E C I A L A R E A S O F C O N C E R N 11.1 DOWNTOWN TIGARD URBAN RENEWAL DISTRICT Citizens have expressed a desire to create a "heart" for their community: a place to live,work, and play, and to serve as a community gathering place. Main Street and the surrounding area have served as Tigard's historic center, dating back to around 1907. A central business district developed around the railway station, serving the then small farming community with businesses such as a bank, hotel, restaurants and a farming supply store. The prevalent urban form of one and two-story buildings is still present on Main Street. In the 1940s and 50s the automobile became the primary mode of transportation. Tigard's population grew steadily,but Downtown Tigard lost its prominence with the Pacific Highway viaduct,which bypassed Main Street, and the construction of Washington Square Mall and other large shopping centers. Today, the existing uses in the Downtown Urban Renewal District include retail, office, residential, auto- dependent businesses, and large-lot light industrial businesses as well as public park, civic, and transit uses. Industrial uses are prominent to the southeast of the plan area. Retail commercial uses are concentrated to the northwest along OR 99W.Within the Urban Renewal District, there is a small amount of residential development, including a mobile home park and one and two-story apartment buildings. Planning for Downtown Tigard's revitalization has been a long-term process, stretching back at least 25 years. The most recent effort dates back to 2002,with the announcement of plans for a Washington County Commuter rail line with a planned station in downtown Tigard. This inspired a small group of citizens and business owners to work on ideas for Downtown to capitalize on Commuter Rail. In 2004 the City received a state Transportation and Growth Management (TGM) grant,which facilitated the hiring of consultants and a more extensive planning process. A Task Force of 24 citizens was formed to guide the plan's development. The planning process incorporated high levels of citizen involvement, including community dialogues,workshops, open house, and a public survey. Tigard Downtown Improvement Plan (TDIP) The TGM grant and planning process resulted in the Tigard Downtown Improvement Plan (TDIP). The TDIP set forth a vision to create "a vibrant and active urban village at the heart of the community that is pedestrian oriented,accessible by many modes of transportation, recognizes and uses natural resources as an asset, and features a combination of uses that enable people to live,work, play and shop in an environment that is uniquely Tigard." To achieve this vision and the Preferred Design Alternative, the TDIP made several policy recommendations. Eight catalyst projects were proposed to help create a more active Downtown: 1. Streetscape Enhancement Program 2. Green Corridor/Urban Creek 3. Hall Blvd. Regional Retail 4. Downtown Housing Development 5. Ash Area Downtown Improvement Special Areas of Concern 1 Downtown • • DRAFT EXAMPLE: COMPREHENSIVE PLAN CHAPTER Downtown and Natural Features 6. Performing Arts and Recreation Center 7. Fanno Creek Public Area 8. Relocating Post Office The TDIP also made recommendations on Transportation System Improvements, Code and Regulatory Adjustments, Funding Sources, and Follow-Up Actions. The City Council accepted the TDIP in September 2005. Urban Renewal Plan An Urban Renewal Plan was developed to implement the TDIP. The tools provided by urban renewal, including Tax Increment Financing, are intended to attract private investment and facilitate the area's redevelopment. Tigard voters approved the use of Tax Increment Financing for Urban Renewal in the May 2006 election. Tigard Downtown Streetscape Design Plan The Tigard Downtown Streetscape Design Plan provides specific guidance for Streetscape Enhancement, one of the catalyst projects. It was developed with significant citizen involvement. The Plan includes a Design Framework, Streetscape Design Concepts, and Gateway and Public Spaces, all of which will encourage the development of a pedestrian-friendly Downtown. Applicable State and Regional Policies and Plans In addition to the Statewide Goals, there are a number of other state policies that are relevant to the Downtown: Transportation Planning Rule The Transportation Planning Rule (1PR) directs cities and counties to develop balanced transportation systems addressing all modes of travel including motor vehicles, transit,bicycles and pedestrians. The TPR envisions development of local plans that will promote changes in land use patterns and transportation systems that make it more convenient for people to walk,bicycle, use transit, and drive less to meet their daily needs. The TPR also directs cities and counties to plan changes in transportation facilities in tandem with land use and development patterns. Oregon Highway Plan The 1999 Oregon Highway Plan includes a series of policies and actions related to integrating land use and transportation. 99W and Hall Boulevard are two roadways (both under ODOT's jurisdiction) which run through the Downtown,which could conceivably receive these designations to help foster compact development: Special Transportation Area (STA)is a designated district of compact development located on a state highway within a downtown in which the need for appropriate local access outweighs the considerations of highway mobility. Urban Business Area (UBA)is a highway segment designation which may vary in size and which recognizes existing areas of commercial activity or future nodes or various types of centers of commercial activity within a downtown. Special Areas of Concern 2 Downtown DRAFT EXAMPLE: C IPREHENSIVE PLAN CHAER Downtown and Natural Features Metro's 2040 Growth Concept and Framework Plan The Metro 2040 Growth Concept and Framework Plan designates Downtown Tigard as a Town Center, defined as "compact, mixed-use neighborhoods of high-density housing, employment and retail that are pedestrian-oriented and well served by public transportation and roads." Town Centers are described as the central focus of community life, serving residents living within two or three miles. Some key objectives for developing Metro-designated 2040 Centers include: • Promoting more intensive mixed-use development. • Providing infrastructure to support more intensive development. • Creating effective local and regional transportation connections to and within the center for all travel modes. • Providing public spaces and distinct center identification. • Recognizing the natural environment as a desired amenity. 2. FINDINGS • Existing Conditions Land Use The Urban Renewal Area contains approximately 193.71 acres (including 49.57 acres of right-of-way) and comprises 2.6% of the City's 7496 acres of total land area. It contains 193 individual properties. The current land uses are dominated by development with little pedestrian-friendly orientation. Outside of Main Street, the existing buildings do not create a sense of place and cohesive function, but rather appear to be spread out and auto-dependent. Block sizes are large for a downtown. In general, downtown properties have low improvement to land (I:L) ratios. Healthy I:L ratios for downtown properties range between 7.0 -10.0 or more. In Tigard's Urban Renewal Area 2004-05 I:L averages were 1.43 for commercial properties and 2.79 for multi-family residential. (Repoli Accompany.ng the City Center Urban Renewal Plan.) Under existing conditions, Downtown is underdeveloped and lacks the mix of high quality commercial, office, residential and public uses suitable for an urban village. Transportation Sj:stem The Area is served by two major transportation corridors (99W and Hall Blvd.) with heavy traffic levels. Many of the other Downtown streets lack complete sidewalks. In general, there are poor linkages to and within the Downtown. Railway tracks also bisect the Downtown.A planned system upgrade will make both commuter and freight train operation more efficient and less disruptive to automobile traffic. Natural Features Fanno Creek flows through downtown and is the most notable natural feature. The creek, part of its floodplain and associated wetlands are part of a 22-acre city park with a multi-use path. Special Areas of Concern 3 Downtown • • DRAFT EXAMPLE: COMPREHENSIVE PLAN CHAPTER Downtown and Natural Features • Current Zoning Districts and Comprehensive Plan Designations The majority of the Downtown is zoned Central Business District (CBD). While the current CBD zone allows the mix of uses necessary for a successful downtown, the regulations lack the language to guide new development to be consistent with the preferred urban form. As a result, the area has developed without many of the pedestrian-oriented qualities specified in the Tigard Downtown Improvement Plan and Metro's 2040 Growth Concept. The Tigard Urban Renewal Area encompasses the original Plan area and several additional tax lots, which are zoned R-4.5, R-12 (PD), R-25, C-G (General Commercial) and C-P (Professional/ Administrative Commercial.) Several of these tax lots are located to the northwest of Highway 99\X1. These additional zones do not permit mixed use development,which is crucial for successful downtowns. • Community Values According to the Comprehensive Plan Issues and Values Summary, Downtown is important to Tigard residents;many use it on a weekly basis. Many would like it to see improvements so it will become a gathering place for the community. Tigard Beyond Tomorrows Community Character& Quality of Life section includes a goal to achieve a future where"the Main Street area is seen as a `focal point' for the community," and"a clear direction has been established for a pedestrian-friendly downtown and is being implemented." The passage of the Urban Renewal measure in May 2006 by 66% of voters also shows strong community support for Downtown's revitalization. • Metro Requirements for Town Center Planning Title 6 of the Urban Growth Management Functional Plan requires local jurisdictions to adopt land use and transportation plans that are consistent with Metro guidelines for Town Centers. GOAL The City will promote the creation of a vibrant and active urban village at the heart of the community that is pedestrian oriented, accessible by many modes of transportation,recognizes natural resources as an asset, and features a combination of uses that enable people to live, work, play and shop in an environment that is uniquely Tigard. POLICIES 11.2 Develop and Improve the Open Space System and Integrate Natural Features into Downtown 11.2.1 Natural resource functions and values shall be integrated into Downtown urban design. 11.2.2 The Fanno Creek Public Use Area, adjacent to Fanno Creek Park shall be a primary focus and catalyst for revitalization. Special Areas of Concern 4 Downtown DRAFT EXAMPLE: C(IPREHENSIVE PLAN CHAIR Downtown and Natural Features 11.2.3 Development of the Downtown shall be consistent with the need to protect and restore the functions and values of the wetland and riparian area within Fanno Creek Park. ACTION MEASURES Staff will work on these short and medium term actions to implement policies that will support the creation of a vibrant, compact, mixed-use area with housing,retail and employment opportunities. 11.B Develop and Improve the Open Space System and Integrate Natural Features into Downtown 11.B.1 Acquire property and easements to protect natural resources and provide public open space areas, such as park blocks, plazas and mini-parks. 11.B2 Develop "green connections" linking parks and greenways with adjacent land uses, public spaces and transit. 11.B.3 Incorporate public art into the design of public spaces. 11.B.4 Enhance the landscape and habitat characteristics of Fanno Creek as a key downtown natural resource. Action Chart: Downtown Action Timeline Who Implements Short Medium 9 (City Departments)• • Term Term Term Ongoing Next5 6 to 10 11+ Years Years_ Years I I.B DEVELOP AND IMPROVE OPEN SPACE AND INTEGRATE NATURAL FEATURES Acquire property and easements to I protect natural resources and provide X X CD-LR, PW •ublic open s•ace areas -- CD-LR, CD-E, 2 Develop"green connections" X X R, PW 3 Incorporate public art into the design of X -- X CD-LR, CD-E, public spaces. PW 4 Enhance the landscape and habitat of X X CD-LR, CD-E, Fanno Creek PW CD-LR=Community Development -Long Range Planning CD-CP=Community Development - Current Planning CD-E= Community Development—Engineering PW= Public Works Special Areas of Concern 5 Downtown • • TIGARD BEYOND +TOMORROW — TIGARD'S COMMUNITY VISION What will Tigard look like in 2017? In 1997, the citizen-based Vision Task Force developed the direction for our community and goals to be achieved by 2017. These principles have continued to be the overall direction for our community. Following is the overall direction statement for the community's vision of what Tigard should look like in 2017. We, as citizens of the Tigard_community,_are`committed to shaping the community's future in >agreemeri with the directon given througl this on going visioix process This process relies ox citizen involvement_and participation;and coordinated actions by the community's decision.make>s Tigard_is a safe, dynamic community supported by coordinated and efficient public;services Funding. for services is stable and recipients pa their`share:_-:_ ,. °'-'_ _, - Citizens are educated about how to access: public services and understand their responsibility to participate as:members of the community There are a variety,of opportunties fox citizens of all ages to access education programs._fox life-long learning put community recognizes and accepts the responsibility each citizen has:in promoting and supporting gi,ali education Small and local businesses thrive Business.owners are involved and take responsibility for:the impacts then�businesses hay e on the community A community value ``to respect open spaces and natural features" encourages access to these ly our citizens Many leisure tune and recreational opportunities are available for our communt is All of these elements work together to promote and protect Tigard's individual identity and quality,of life Direction Statements. have been in place for each target area of the vison. Those statements are more urban a Public services specific to each area but are still true to the overall vision statement you see above. The following two pages include the specific target area statements. ra a w. Again, the following statements reflect what Tigard Tr p on& Esa,,00,� should look like in 2017. G,owm a Cxowth Manopement • • Community Character & Quality of Life Direction Statement: Tigard citizens are involved in their community. Involvement will be citizen driven and citizens will have the tools to communicate effectively with community-wide decision-makers. Volunteer spirit will be maximized through community-wide coordination of volunteers. Our community will support its volunteers with appropriate training and volunteer recognition. Tigard will encourage local, regional and community events. City funding priorities will go to events, which move toward financial self-sufficiency, and new community-wide events. Business owners, property owners, and residents of the Main Street Area shall display strong leadership, ownership, and commitment to downtown development. The Main Street area will be seen as a `focal point' for the community. A clear direction will be established for a pedestrian-friendly downtown will be implemented. The Tigard community must have a defined, proactive vision for community aesthetics. Growth & Growth Management Direction Statement: Tigard continues to grow. Growth will be accommodated while protecting the character and livability in new and established neighborhoods. The City will encourage and support private sector programs to maintain diverse and affordable housing. Urban services will be provided to all citizens within Tigard's Urban Growth Boundary. Recipients of services will pay their share. Local and small businesses will be encouraged as an important part of our community and our economy. The City of Tigard must be an active participant in regional issues. Its citizens will be educated about issues in our region and take advantage of opportunities to participate in decision-making processes. Public Safety Direction Statement: Tigard will be a safe place to live, play, and do business, with efficient public safety services coordinated by police, fire, and emergency management providers. Citizens and businesses will be well educated about public safety services; Tigard's citizens will understand their role and responsibilities for the safety of themselves and their community, and businesses will take a proactive role for their responsibility in protecting their investment in the community. Public Safety service providers shall plan for their service delivery in such a way as to minimize the negative impacts of the regional populations that travel to and through our community each day. Stable funding will provide uninterrupted public safety services at desired levels. Schools, Education and Youth Direction Statement: Tigard area residents will have access to good quality public and private schools. Residents of our community, whether or not they have children in the school system, will understand the importance of education and how they can help promote education of our community. The public schools will have stable funding through state and local funding options. Curriculum and extra-curricular programs are important and will be well supported through volunteers, local funding, and increased partnerships with business and government. New development will assist in paying for new education infrastructure required by growth in the community. Public schools and governmental entities in our community shall actively partner in day-to-day operations and other costs to facilitate the most efficient delivery of services. • • Transportation and Traffic Direction Statement: Tigard will take a proactive role in regional transportation planning. Funding sources will be diverse, include regional resources and shall be adequate to build and maintain our transportation system. Each type of street will safely handles the traffic it is designed to serve. Local traffic will be served by a well-connected street network that minimizes traffic impacts on neighborhoods. Tigard's arterials and major collector streets will accommodate through-traffic reducing the impact of regional traffic on local neighborhoods. Alternative transportation methods will be affordable and available. Use of alternative transportation will be encouraged. Urban & Public Services Direction Statement: (includes Library, Parks, Greenways, Water & Storm Water) Basic Urban Services (parks, recreational opportunities and libraries) will be provided to Tigard citizens through property taxes, fees, endowments, grants, estate planning and other alternative funding sources for service. Enhanced services (i.e. rental of shelters in the park, rental of rooms in the library, etc.) will be available on a cost-for-service basis. Expansion of the infrastructure necessary to serve growth will be paid for by growth. In an effort to facilitate the most efficient delivery of basic urban services, partnerships with businesses, special interest groups, and other communities will be encouraged. Citizens will be educated about basic urban services, and how to access and preserve the services. Im\H:\DOCS\Vision 2006\Vision Direction Statements 1-29-07.doc ,..... ail.. S .. .... . ..... 1 1 1 •k*. . .:401: •.4:: i',..1.11:'. . .,' . „,,ily,'..:::,:,:i•"'• 1 ..... 3 ',.* *•** 1(....,1•:::• . .• .. . :'• I.* •••• .•• i•''•I'ii•;',411•!!••••... .......••,•:•:•:•:•:::,....:•:•:::•:•:::::::::•...• 1,..,:,:;.1:...::* ...'•.1.. :.:.•''..1:•••:**'.1:Ilikifii.. 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' .!.....4 ie.i.,...:::........:. ..,, -`-, • . •54 .. .0 0,1$:........0... _ i • ..... ..:,...,....:.:.:::. ...;:::::,: MI I .. .. • 0 * • „''• r Jil vii ,.,... •• ...:::::..".•••:.-. ...,... . ili$::::::.:..:::...:. :. . :••.•• • - • .. . :: ...... • ::: •....••••, -.:,-........:.' .itif,:.....::, ,..... „ :•:::::.•.:.• • ..... .. . . •••• . • ....... . ;gi‘'.':•:::.. • :::::•:::::::::: :.• •i: .. "' • • •, ."... : ,,,•••.4., .1.iii.iii.i.i.`it` .::■' . ''... 1 .• liffiggg'.4 ... 474.A.•F'1.;:'.1.i.i....i......!..!. I ... 3 . illt . ,...l...111...:!....:11:11',........................:* ....'....".* :',:;:;:::::',::::::::• ••.• .• , 40... 3 I .„„„. • • • • The City of Tigard's "Tigard 2007"report forms the factual base for the Comprehensive Plan update. From June-December 2006, the Planning Commission met nine times to discuss and provide direction on five topic reports. This document includes all reports and completes Phase II: State of the City. Goals, policies and action measures will be developed by the community using this information and additional data, as appropriate. Produced by the City of Tigard Community Development Department Tom Coffee, Director Ron Bunch, Planning Manager Long-Range Planning Division 13125 SW Hall Blvd. Tigard, OR 97223 503-639-4171 III • • 2027;, r ACKNOWLEDGEMENTS LA ..4,A • City of Tigard Planning Commission (2006): Gretchen Buehner Rex Caffall Teddi Duling William Haack Patrick Harbison Jodie Inman, President Katherine Meads Judy Munro,Vice President Jeremy Vermilyea David Walsh 2027 Project Management Team: Ron Bunch, Long-Range Planning Manager Beth St. Amand, Project Manager Darren Wyss,Assistant Project Manager Editors: • Marissa Daniels Doreen Laughlin Long-Range Planning Staff: Alejandro Bancke Marissa Daniels Sean Farrelly Denver Igarta Duane Roberts Darren Wyss All Maps by Darren Wyss City of Tigard Internal Team Brenda Abbott, Police Roger Dawes, Finance Maureen Denny, Finance Greer Gaston,Public Works Kim McMillan, Engineering Liz Newton, City Administration • Paula Walker,Library • • 2027 TABLE OF CONTENTS • INTRODUCTION 1. NATURAL RESOURCES 1. STREAMS 1-5 2.WETLANDS 1-10 3. FISH AND WILDLIFE HABITAT 1-14 4. GROUNDWATER 1-19 5. MINERALS 1-23 6. NATURAL HAZARDS 1-29 APPENDIX A 1-43 APPENDIX B 1-44 APPENDIX C 1-45 APPENDIX D 1-46 2. ENVIRONMENTAL QUALITY 1.AIR RESOURCE QUALITY 2-3 2.WATER RESOURCE QUALITY 2-9 3. LAND RESOURCE QUALITY 2-16 4. ENERGY CONSERVATION 2-22 APPENDIX A 2-28 • 3. COMMUNITY 1. HOUSING 3-4 2. ECONOMY 3-16 3. HISTORIC 3-27 4. PUBLIC FACILITIES 1.. PUBLIC WATER INFRASTRUCTURE 4-3 2. PUBLIC SAFETY 4-14 3. COMMUNITY FACILITIES 4-20 4. PARKS,RECREATION,TRAILS AND OPEN SPACES 4-28 5. TRANSPORTATION 1. MOTOR VEHICLES 5-4 2.TRANSIT 5-11 3. BICYCLES 5-19 4. PEDESTRIANS 5-23 4. MOVEMENT OF GOODS 5-27 5.TRANSPORTATION DEMAND MANAGEMENT 5-31 • • • 2027 I N T R O D U C T I O N • Tigard 2007 In 1983, the City of Tigard and its residents completed the Tigard Comprehensive Plan. The Plan was based on the City's natural, social and economic environment and was adopted as a blueprint to guide Tigard's growth and development until the year 2000. The Plan also sought to identify future needs of the City's growing population such as parks, trails,natural areas,open spaces and public facilities and services. Tigard has grown dramatically since 1983 - from 18,379 residents to 46,300 today. Jobs and business activity have grown just as fast. There have also been many other changes since 1983 that affect the City. For example, the Portland Metropolitan Area has also experienced rapid population and economic growth; there have been major changes in Oregon's statewide land-use and environmental protection programs; Metro's land-use planning authority has changed significantly, and the state and federal governments have enacted many new laws and programs that require conformance by local governments. It is now seven years beyond the 1983 Comprehensive Plan's year 2000 planning horizon. The 1983 Plan,in many ways, does not reflect current and projected community conditions and circumstances and it is necessary to undertake a thorough update. This is important to ensure the Plan remains a viable tool for decision-makers and citizens to use when making decisions about Tigard's future. The new comprehensive planning effort will directly involve Tigard's citizens and other stakeholders, such as businesses, other agencies and jurisdictions that have a stake in Tigard's decisions. The comprehensive • planning process will also incorporate past efforts to envision Tigard's future such as the "Tigard Beyond Tomorrow Vision". In many ways the "vision" will serve as a touch-stone for the updated new Plan's goals, policies and recommended action measures. It is essential that the Comprehensive Plan be based on a factual understanding of conditions and trends that affect both Tigard and the rest of Portland Metropolitan Area. State law references the importance of sound data, whereby "Statewide Planning Goal 2, Land Use", requires comprehensive plans be based on relevant facts. The "Tigard 2007" report establishes the factual basis that will be used to develop Comprehensive Plan goals, policies and action measures over the next year. It consists of five chapters: Natural Resources; Environmental Quality; Community (Housing and Economy); Public Facilities and Services, and Transportation. A sixth chapter "Growth and Development" will follow as data is further refined and analyzed. This chapter will recommend policy measures on ways to accommodate anticipated future employment and household growth. The above chapters address important issues concerning each topic and provide specific data and findings. In most cases, the "1983 Comprehensive Plan, Volume I Resource Document" provides an historical reference comparing current information to that of approximately 25 years ago. Sections with more recent updates are acknowledged in the text. • I 0 NATURAL RESOURCES • D ,,,,!, DEFINITION: Land - and water features and their ..... value or impact ii ' \ . , , , •,.• A-y'',1 y ;,,, -,,,,,, on the community Ik:.... ,le ,,,,_ .. , x.f,. , -: '''-;,` .i. `4'' and wildlife . , . . f,-,;:4,-,-. ;,,,, u-dtp ot• -,y, ... . : .1„,,,, ,,.'' 1 •s44-, ,''';k',A,,,,M,14,4,, _. 1,43..,r., ,,-,. .....,c6T..,,,,i-opeOtvg- ,ro i ,,,t,, r;t 1 eekm *L.,. .■.,i,1„, CHAPTER 1: 0 STREAMS (GOAL 5) PAGE 1-5 WETLANDS (GOAL 5) PAGE 1-10 FISH AND WILDLIFE (GOAL 5) PAGE 1-14 GROUNDWATER (GOAL 5) PAGE 1-19 r MINERALS (GOAL 5) PAGE 1-23 ) NATURAL HAZARDS (GOAL 7) PAGE 1-29 Key City Departments: Contact: Community Development Ron Bunch Public Works Long Range Planning Manager IIIron@tigard-or.gov • • NATURAL RESOURCES III This Natural Resources topic report accounts for Tigard's natural features such as water bodies and terrain, and naturally occurring substances,including subsurface features and living organisms.The report will serve as a factual base documenting the present state of natural resources within and around the City of Tigard. Figure 1-1:Tigard Area Subwatersheds The Comprehensive Plan documents the significance -- " ASH CRE ■ of Tigard's natural resources, and aims to strike a =w., = • • -v EK ' balance between broader public interests and iR ''" `'" individual rights. This is accomplished through a ASH CREE process of using nature as the major guide for land ivy =_;,± ' ' , _ . - development. Nature's processes are used to determine ° policy direction to ensure that continued development - will be in harmony with the area's natural features and i 'EGE s a� "`�' s / / FANNDCREEK b,z. r in the best interest of the community. ws,,; ; ,.r,:*. >_ -'' DERRY DELL CREEK • zL lJ:ice# Our lives, as humans, are closely tied to nature. As 1 `_ /:. ; ;•Tigard's population continues to grow, so does the _'- '`e . potential for conflict between the desire to preserve TUA RIVER - , ,l y4;. natural resources and the need to provide adequate , " .. f land for growth. As development patterns change to accommodate growth, more pressure is placed on the features, such as vegetation and drainageways that are naturally present. The tension between the built and • natural environments results from the competition for land resources. The steady trend of growth and development further necessitates the importance of finding a suitable balance in the future. Figure 1-2: Tigard Area Terrain Features The City of Tigard is located in the Willamette Valley ecoregion and lies entirely within the Tualatin River F - w ' Watershed, which drains most of Washington County . . from its headwaters in the Coast Range east to the Willamette River. A watershed (or basin) comprises the w- - ¢ land area that drains all surface water to a specific body ,,• of water (e.g. river) forming a single interconnected .., ecosystem. A river watershed is often composed of , i ii ,. smaller sub-watersheds (or sub-basins) which drain into f the streams within the larger basin. Watersheds often , iY„,,,„. /� =., cross jurisdictional boundaries reinforcing the importance of regional collaboration in planning efforts. r ` ' `' =`'' Roughly 30 miles of stream channels cross through the i. City. Nearly all the streams in Tigard drain into Fanno fi Creek, which dissects Tigard from north to south before ,,,., ;•,•, converging with the Tualatin River. Heading westward from the low-lying riparian areas, the elevation rises III Natural Resources Page 1-2 Draft— Tigard 2007 • • NATURAL RESOURCES • towards the highest point in the City on Bull Mountain; this peaks at 713 feet just west of the city limits. Little Bull Mountain just east of Bull Mountain rises to an elevation of 430 feet. D A T A S U M M A R Y This section presents information on the location, quality and quantity of each of the natural resources present within the City of Tigard. The inventories account for the natural resources present within Tigard's city limits; however, the boundaries for each study (extending beyond the city limits) vary from resource to resource. Inventories of the five natural resources have been compiled and summarized using existing and available information and data. In addition, the report also provides a brief overview of their ecological, recreational and aesthetic functions. Although the benefits associated with each resource are often interconnected, the functions provided by each are also quite unique. In assessing the current state of natural resources within the City of Tigard,it is important to consider which functions of these natural resources might be impaired or at risk. A number of outside agencies are also involved in the effort to address State Goal 5 rules. In 2000, the Portland Metropolitan Service District (Metro) began work on a regional inventory of significant fish and wildlife habitat, focusing on riparian corridor and wildlife habitat resources. Shortly after completing the inventory in 2002, the Tualatin Basin Partners for Natural Places, an alliance between Washington County and local cities (including Tigard)working with the Portland Metropolitan Service District (Metro),Tualatin • Hills Parks and Recreation District and Clean Water Services, was formed to meet relevant federal, state and regional requirements. Metro entered into an intergovernmental agreement with the Tualatin Basin Partners for Natural Places to develop a basin-specific approach to protect Goal 5 (riparian and wildlife habitat) resources in compliance with the Metro's Urban Growth Management Functional Plan, Title 3 (WaterQuality and Flood Management) and Title 13 (Nature in Neighborhoods). This topic report addresses Oregon statewide planning Goal 5, which aims "to protect natural resources, open spaces and scenic and historic areas."As outlined by the State rules for complying with Goal 5 (refer to Goal 5 standard inventory process in Appendix 1), existing conditions were examined for the following natural resources: • Streams. This section presents an inventory of natural drainageways, surface water management issues,protection of our"riparian corridor". • Wetlands.This section focuses on the City's existing wetlands inventory. • Fish and Wildlife Habitat. This section focuses on the regional inventory of significant fish and wildlife habitat,Metro classifications and the Tualatin Basin Fish &Wildlife Habitat Program. • Groundwater. This section focuses on soils,drinking water,and critical groundwater areas. • Minerals. This section focuses on Tigard Area geology, aggregate resources, soils and other minerals. • Natural Resources Page 1-3 Draft—Tigard 2007 • • NATURAL RESOURCES • • Hazards.This section focuses on earthquakes,wildfire, steep slopes/ landslides and floods. Natural resources addressed by Oregon Statewide Planning Goal 5 which are not present within the City of Tigard include the following • Federal wild and scenic rivers • State scenic waterways • Natural areas (on the Oregon State Register of Natural Heritage Resources) • Wilderness areas • Energy sources III 111 Natural Resources Page 1-4 Draft— Tigard 2007 • • 1 . STREAMS • Water is an essential ingredient for life. We depend on fresh water not only for drinking, but also for ecological, recreational, agricultural, industrial and household functions. Fresh water is a finite resource. Although three-quarters of the earth is covered with water, 97.6 percent of our water is salty and 1.9 percent is frozen into the polar ice caps. This means that only about half a percent of our planet's water resources is fresh water. Of these fresh water resources, 0.02 percent is found in rivers,lakes and streams while the rest, 0.48 percent,is groundwater. This section presents an inventory of natural drainageways within the City of Tigard. Metro defines a "stream" as a body of running water moving over the earth's surface in a channel or bed, such as a creek, rivulet or river. It flows at least part of the year, including perennial and intermittent streams. Streams are dynamic in nature and their structure is maintained through build-up and loss of sediment (Metro Code 3.07.1010). Stream corridors provide a complex ecosystem linking water, land, plants and animals. Rivers and streams, and the adjacent areas referred to as "riparian" areas, perform several ecological functions, including storing and conveying surface water, modulating flows, removing pollutants and providing vital habitat for aquatic organisms. Urbanization in a watershed contributes to a number of surface water management issues, such as flooding, water pollution and declining groundwater levels. The Tigard area is the recipient of the exportation of upstream drainage and runoff,in particular from Multnomah County,Portland,Metzger, Garden Home and Beaverton. As impervious surface area increases due to development upstream, more storm water (along with potential contaminants) is routed into streams that ultimately flow through Tigard before reaching the • Tualatin River. Clean Water Services' Healthy Streams Plan Oune 2005) notes that recent observations of flow gages and hydrology models have suggested that "rainfall is efficiently converted to runoff in the urban environment, rather than being retained and infiltrated into groundwater." As a result, elevated stream flows result in "more frequent stream channel scour, which leads to adjustments in geomorphic conditions, riparian vegetation,water quality, and aquatic habitat." IIII Natural Resources Page 1-5 Draft— Tigard 2007 • • 1 . STREAMS • I N V E N T O R Y Since these are basin-wide problems, enactment of r.,,.," , : :." ;: . protective measures within the City must be matched by Applicablrules;sfatut rid;p1a t at /, im act streams and tt arran.areas within�,. effective watershed management by neighboring f� p. itttga g . p - the-City�mclude ' (upstream) jurisdictions. As noted in the introduction, the a ; , ,4 r '* City of Tigard has participated in the Tualatin Basin `s 1r 'p e An gtate de,tfa yG:a.15 w"` , Partners for Natural Places, an alliance of Washington g County and local jurisdictions working with Clean Water Natural ReSOUrees;'Sc c e • Services and Metro to protect riparian and wildlife habitat %4:l3xeas,S..... Spae 2 E Greg©n>'Adimnistratl e ule resources, since its formation in 2002. r �'.-%F; �= Y � . J 6660- equu d z<F :Application Procedures for ` The City collaborates with Clean Water Services (CWS), n "<Complying with,Go . the surface water management and sanitary sewer system <: utility for urban Washington County, to protect local '" `660-023: Procedu es an•" yr; water resources. Through CWS Design & Construction - Goal?5 , ` Standards, local governments in the Tualatin Basin .; ;° t 3 Metro Urba Gro $ ..emen { (including Tigard) developed a unified program to n,=..: ,, _ ;4;1-2;1 Functzona1 Plan � - address water quality and flood management � . r �" _ . ` ••.::r.Titlek3;'Water Qua ty,.Fl.od requirements for Title 3 of Metros Urban Growth s h Ma ement anted Fis an. • Management Functional Plan. 3 �N- na g : • oz sergat on :=''litlel`3.. ature i 'Nei In 2002, the City of Tigard adopted regulations restricting 4 Clean Water:Services :;: development within and adjacent to sensitive water ;z _;;,`Des:'" &Ctristructso;nS„arird ";kA „” f grz, resource areas, including streams, ; A m through standards in -F;. . • Healthy Streams Pla ri,:At ._ ,,.o.? :F=; the Clean Water Services (CWS) Design & Construction : '-`r spa Manual. The CWS standards provide for "vegetated corridor" buffers, ranging from 15 to 200 feet wide, and mandate restoration of corridors in marginal or degraded condition. In addition, applicants proposing development near streams and wetlands are required to prepare a site assessment and obtain approval from CWS prior to submitting a land use application to the City. Additionally, the Tigard Community Development Code contains a chapter devoted to the protection of "sensitive lands", including natural drainageways, wetlands and the 100-year floodplain, by requiring applicants proposing development within a sensitive area to obtain a permit for certain activities depending on their nature and intensity. A. LOCAL RESOURCES All 30 miles of streams within Tigard's city limits ultimately drain into the Tualatin River, which serves as City's southern border between Pacific Highway and the Southern Pacific Railroad Bridge. Refer to Map 1- 1. The River is approximately 80 miles long (roughly 1.5 miles along Tigard's southern border) and the • Natural Resources Page 1-6 Draft— Tigard 2007 • • 1 . STREAMS • volume of water carried (more than 1.1 million acre-feet annually) varies greatly with the seasons. ( Y) � Y Approximately 85% of the annual flow is discharged from November through March,with only 3% of the total discharge from June through October.' Fanno Creek is the last major tributary of the Tualatin River prior to reaching its confluence with the Willamette River. Fanno Creek is the dominant stream system within the City of Tigard, flowing roughly 15 miles (roughly 6.5 miles of which are within Tigard's city limits) from its headwaters in the West Hills of Portland,to its mouth at the Tualatin River. The Fanno Creek sub-basin drains roughly 32 square miles (20,500 acres) of land in Portland, unincorporated Washington County, Beaverton, Tigard and Durham. Approximately 117 miles of streams are within the Fanno Creek sub-basin including two primary tributaries, Ash Creek and Summer Creek, and 12 smaller tributaries.2 Eight of these smaller tributaries are within the City of Tigard including Red Rock, Pinebrook, Ball, Derry Dell, Krueger, Hiteon and two unnamed streams. Two small perennial streams, Copper Creek and Willowbrook Creek, flow directly into the Tualatin River along the southern border of the plan area. Refer to Table 1-1 for a comparison of streams within the City of Tigard. The area adjacent to surface water bodies, referred to as the riparian area, serve as an important transition zone from an aquatic ecosystem to a terrestrial ecosystem. The land and vegetation within the riparian area contributes to water quality, soil stabilization and healthy fish and wildlife habitat. Statewide Planning Goal 5 requires local governments to adopt programs to protect "riparian corridors" defined as the "water areas, • fish habitat, adjacent riparian areas, and wetlands within the riparian area boundary." The "safe harbor" provisions provide an optional course of action to protect a significant riparian corridor rather than following the standard Goal 5 ESEE procedures of OAR 660-023-0040 and 0050. In 1997, the City of Tigard adopted an overlay district under the Goal 5"safe harbor" provisions to protect "riparian corridors" within a standard setback distance from all "major", or fish-bearing, streams. The safe harbor provisions aim to prevent permanent alteration of the riparian corridor by grading or by the placement of structures or impervious surfaces. In accordance with OAR 629-635-0200, a stream is considered to have fish use if inhabited by anadromous or game fish species or species listed under the federal or state Endangered Species Acts. Based on this definition, streams determined to be "fish bearing" include the Tualatin River,Fanno Creek,Ash Creek (South Fork),Ball Creek and Summer Creek. As defined under OAR 600-023-0090, streams with average annual stream flow greater than 1,000 cubic feet per second (cfs) are assigned a 75-foot riparian corridor boundary, while fish-bearing streams with average annual stream flow less than 1,000 cfs are assigned a 50-foot riparian corridor boundary. For developed subdivision lots along fish-bearing streams, a riparian setback of 25 feet is in place. The setbacks are measured horizontally from and parallel to the top of each bank, or the upland edge of any associated wetland. Refer to Table 1-1 for a summary of standard riparian setbacks applied to Tigard streams. 1 `Tualatin River Watershed Technical Supplement",Tualatin River Watershed Council,www.trwc.org,October 1998 2 Fanno Creek Management Watershed Plan Unified Sewerage Agency,June 1997. 11111 Natural Resources Page 1-7 Draft—Tigard 2007 z E. ZjD Table 1-1: Tigard Streams1 H °c Standard % Piped Sub- Peak Flows n Stream Riparian Length (within city watershed 100 YR(cubic PI Name Class Setback (within city limits) limits) Point Location Area (Miles) feet/ second) trJ Ash Creek Major 50 ftr(South 8,678 None RR tracks near 4.28 685 Fork) N. Dakota Ball Creek Major 50 ft 4,612 30% RR tracks near 2.38 749 N 74th Ave • Cooper Minor n/a 2,285 45% — n/a — Creek Deny Dell Minor n/a 11,201 (E. Fork 3,498 5% Walnut Street 0.82 228 Creek /W. Fork = 4,224) '-d Major Fanno Ma or 50 ft 34,621 None Tualatin River 32.06 2989 ag Creek Confluence co Hiteon Co Creek Minor n/a 3,000 None Hart Pond 0.77 243 Krueger 12,650 (E. Fork 3,802 Near Katherine Creek Minor n/a /W. Fork = 3,899) 10% St. 0.83 197 Pinebrook Minor n/a 3,830 None — n/a — Creek Red Rock Minor n/a 12,586 None RR tracks at 1.62 538 Creek Wall Street • Summer Major 50 ft 11,125 None Fowler Middle 6.13 1050 Creek School Willowbrook Minor n/a 2,458 39% — n/a — Creek Tualatin b Major 75 ft 1.5 miles None — 712 — River 1 I 1 The sub-w atershed area and 100 year peak flows are based on the dean Water Services flow gage locations noted in colurm 6. H Source:Community Development Department,2006 I I I 0.Z. a, 5* N O O V III III III • • 1 . STREAMS ° KEY F I N D I N G S • Tigard has 13 streams stretching approximately 30 miles in length within the city limits. • Fanno Creek is the largest stream in the City spanning roughly 15 miles (roughly 6.5 miles within Tigard's city limits) and draining an area of more than 32 square miles. • Eleven of the 13 streams within the City are tributaries of Fanno Creek. • All streams ultimately flow into the Tualatin River,which runs along the southern boundary of the City for a length of roughly 1.5 miles. • Riparian areas serve as an important transition zone from an aquatic ecosystem to a terrestrial ecosystem. • The City adopted safe harbor provisions to protect riparian corridors from grading, placement of structures or impervious surfaces within a standard setback distance, except for the defined uses. • Clean Water Services Design and Construction Standards establish a vegetated corridor buffer adjacent to the City's streams to protect water quality. • In addition to contributing to the general aesthetic quality of the area, streams and the adjacent riparian areas perform several ecological functions, including storing and conveying surface water, modulating flows,removing pollutants and providing vital habitat for aquatic organisms. • • Many other natural features are located within stream corridors, including wetlands,vegetation, fish and wildlife, and open space. • Increased impervious area resulting from development has an impact on flooding, stormwater runoff, channel alterations, water pollution, declining groundwater levels and other surface water management issues. IIII Natural Resources Page 1-9 Draft— Tigard 2007 • • 2 . W E T L A N D S • Wetlands,including swamps, bogs, fens, marshes, and estuaries, play a crucial role in a healthy ecosystem by providing essential habitat for waterfowl, fish, amphibians and many other animal and plant species. The state defines a "wetland" as an area that is inundated or saturated by surface water or groundwater at a frequency and duration sufficient to support, and that under normal circumstances does support, a prevalence of vegetation typically adapted for life in saturated soil conditions (Oregon Administrative Rule 660-023-0100). These areas also serve several natural hydrologic functions, including absorbing flood waters, sustaining summer stream flows,replenishing groundwater, and filtering out harmful pollutants from waterways. Wetlands also offer prime sites for people to witness the wonders of a unique natural setting where fish, wildlife, plants and water converge. These beneficial functions of wetlands, however, may be adversely affected by human activities such as encroachment through development, alterations to natural drainage patterns,pollution, and the introduction of nuisance plant species. According to the 2000 Oregon State of the Environment report, the Willamette Valley has lost approximately 57% of its original wetlands and a recent study indicates the valley continues to lose more than 500 acres per year. According to the study, 29% of statewide native wetland plant communities (and 44% within the Willamette Valley) are designated as "imperiled." These statistics reinforce the importance of addressing the threats to existing wetland areas. The Federal Government regulates the discharge of dredged or fill materials into "waters of the United States", including wetlands, through a program established by Section 404 of the Clean Water Act. The U.S. Army Corps of Engineers administers the Wetland Regulatory Program including the permit review for proposed activities impacting wetlands. • In addition, the Oregon State Remove and Fill Law requires those who plan to fill, remove or alter materials in waters of the state, including wetlands, to obtain a permit from the Oregon Department of State Lands (DSL). Under Oregon Administrative Rule (OAR) 660-023, local governments may develop a program to protect locally significant wetlands using either the standard Goal 5 Economic, Social, Environmental and Energy (ESEE) process or a "safe harbor" ordinance, as defined in OAR 660-023-0100. Locally Significant Wetlands, as defined under OAR 141-086-0330, are "those wetland sites that provide functions or exhibit characteristics that are pertinent to community planning decisions made at a local scale." In 1997, the City of Tigard adopted an overlay district under the Goal 5 "safe harbor" provisions to protect locally significant wetlands. The safe harbor provision restricts grading excavation, placement of fill, and vegetation removal within significant wetlands. Additional wetland regulations contained in the Tigard Community Development Code apply to significant wetlands, as well as, existing or created wetlands covered by Clean Water Services "vegetated corridor" buffer as defined in their Design and Construction Standards. The Sensitive Lands chapter also specifies that "precise boundaries may vary from those shown on wetland maps"; thus necessitating site specific delineation of wetland boundaries for proposed development. • Natural Resources Page 1-10 Draft— Tigard 2007 • • 2 . WETLANDS • I N V E N T O R Y --;`� a ; .��. „,. ,y'L;,.r;:=r<ttii. #x -- -;,'i ,.. ��A• •2tcableo-rules;,stotute a 'd=puns that Y . we n ,fwit the City mcludeW In 1994, the City of Tigard contracted with Fishman ,-! �� l '- "4 �� Environmental Services (now known as SWCA *�� - "a'` ' to �yN 7 4 b Environmental Consultants) to update the City's existing .=f ti h ' Cl �: " ;' wetlands inventory conducted b Scientific ty , <� � if. rY Y ;� � ,�8�® .e Space; � �� Resources, Inc in 1989) to meet statewide Goal 5 �" fW e s� •• q c trativ�R e Pei R ' requirements and Department of State Lands' (DSL) ot� , 5 A ��'� �., rY (LWI) requirements. e.uireme tss pphcatto+ . r Local Wetland Invento Local m wetlands were identified and delineated using three sets of � :!, d ree 9r��mpl? �4 c0 ;,:i.;:4:. criteria (as outlined by the 1989 Federal Interagency 9,`,023 ' o ed'r �.an: , Committee for Wetland Delineation manual), including ®� 1404, ! ply t.1„1..,.. , vegetation criteria, hydric soils criteria and hydrology i >. p 0 RI,45 v n trance • , • ozcem . criteria. �r �� y ti The 1994 Local Wetlands Inventory was performed by y ' F-086 Wetland Conse auto. Fishman Environmental Services in close coordination ""`r,`��" with DSL staff. The Local Wetland Invento was carried " �'""0 out using a "watershed" approach based on a stream ,..N '`4.'`f `°"�gY corridor assessment, which emphasized the interrelationship with related aquatic resources within the same • ecological system. Stream reaches and zoning patterns were used to delineate 11 aquatic resource units. The study area included all areas within the City's border (including unincorporated islands) and some properties directly adjacent to the city limits. The majority of wetlands inventoried in Tigard are closely associated with Fanno Creek and its tributaries,in particular along Ash Creek and Summer Creek. A few isolated wetlands and two small streams flowing directly into Tualatin River were also inventoried. Field investigations were conducted by Galen &Walker during August through October 1994. Each site was field checked, except when access was denied,in order to update the off-site wetland inventory to LWI standards. The Oregon Freshwater Wetland Assessment Method was used to assess six wetland functions: wildlife habitat, fish habitat, water quality, hydrological control, education and recreation. It also assesses the conditions of sensitivity to impacts, enhancement potential and aesthetics. The results of the function and value assessment for each of the 11 aquatic resource units are summarized in the Appendix 2. As outlined under Oregon Administrative Rule (OAR) 141-086 for Wetland Conservation Planning,"locally significant wetlands" were designated according to the criteria and procedures for identification of significant wetlands adopted by the Oregon Department of State Lands (DSL). Inventoried wetlands were deemed "significant" if they received the highest rating on at least two of the four primary wetland functions, namely wildlife habitat, fish habitat, water quality and hydrological control. Of the 141 wetlands (within the city limits) identified in Tigard's Local Wetland Inventory, roughly 98% are classified as "significant"wetlands. Refer to Table 1-2 for a summary of significant and insignificant wetlands. • Natural Resources Page 1-11 Draft— Tigard 2007 • • 2 . WETLANDS • In 1997, the City of Tigard Local Wetlands Inventory (LWI) and Wetlands Assessment were approved by the State DSL. Approval by DSL means that the wetlands inventory meets state LWI standards, and therefore, becomes part of the State Wetlands Inventory and must be used in lieu of the National Wetlands Inventory. Table 1-2: City of Tigard Wetlands Since the approval of the LWI, several Classification Number Acres Percent new wetland delineations have occurred Significant 111 286.27 98.41% within the city limits. These 19 new o, delineations were performed by wetland o Non-Significant 11 3.09 1.06% professionals and concurred by DSL. r" Covered by SLR2 12 1.23 0.42% The newly delineated wetlands become § part of the LWI, although a function Q o Not Covered by SLR2 7 0.32 0.11% assessment was not performed. Without Total 141 290.91 100.00% the assessment, significance cannot be 1 Included in 1994 Fishman Survey determined. For this reason, the 19 2 SLR=Sensitive Lands Review wetlands are divided into separate 3 Delineation concurred by DSL,needs function assessment categories (see Table 1-2). Source:Community Development Department,2006 The category "covered by SLR" includes wetlands that are currently under protection from the City's sensitive lands review process because of their location in a stream corridor, 100-year floodplain, or within the CWS vegetated corridor. The category "not covered by SLR"includes wetlands located outside of the sensitive lands review process. Both categories are • subject to the state Removal-Fill Law and must secure permits as required by the law. The City's safe harbor regulations for significant wetlands provide affected property owners with the option to apply for a comprehensive plan amendment under a "hardship" variance, which would be approved based on a site-specific Economic, Social, Environmental and Energy (ESEE) analysis or a determination of wetland "insignificance". A map of inventoried wetlands within the City of Tigard is shown in Map 1-2. K E Y F I N D I N G S • According to the City of Tigard Local Wetlands Inventory (LWI), there are 122 wetlands covering approximately 287 acres within the City's borders. • Roughly 99% of the City's wetlands are classified as "locally significant wetlands," per procedures outlined under Oregon Administrative Rule (OAR) 141-086. • The City of Tigard coordinates the development review of proposed activities impacting wetlands with the U.S.Army Corps of Engineers, Oregon Department of State Lands and Clean Water Services. • The City of Tigard has adopted "safe harbor" provisions provided under Statewide Planning Goal 5 to protect locally significant wetlands from grading, excavation,placement of fill,and vegetation removal. • Natural Resources Page 1-12 Draft— Tigard 2007 • • 2 . WETLANDS • • The Tigard Community Development Code requires Sensitive Lands Review for any development which would impact"significant"wetlands or the "vegetated corridor" buffer to wetlands, as defined in Clean Water Services Design and Construction Standards. • Wetlands in their natural state perform vital ecological functions including the storage, absorption, detention, and natural filtration of water, the provision of diverse habitats for fish and wildlife, the recharge of groundwater, and the growth of unique vegetation communities. • Wetlands may be adversely affected by human activities such as encroachment through development, alterations to natural drainage patterns,pollution, and the introduction of nuisance plant species. 1111 • Natural Resources Page 1-13 Draft—Tigard 2007 • • 3 . F I S H A N D W I L D L I F E H A B I T A T III Despite growing urbanization, Tigard and the surrounding area remain home to an impressive diversity of birds, mammals, fish, amphibians and reptiles. This is evidenced by the 2006 opening of the nation's tenth urban wildlife refuge just a few miles up the Tualatin River from Tigard's city limits. The Tualatin River Wildlife Refuge hosts several notable native plant and animal species, including bald eagles, painted turtles and beaver. Fish and wildlife species depend on a complex array of habitat conditions for their food,water, mobility, security and reproductive needs.The state defines 'Wildlife habitat" as an area upon which wildlife depends in order to meet their requirement for food, water, shelter, and reproduction. Examples include wildlife migration corridors, big game winter range, and nesting and roosting sites (Oregon Administrative Rule 660-023-0100). Wildlife habitat within the City of Tigard is heavily concentrated adjacent to water bodies, such as streams and wetlands. However, there are patches of upland habitat in drier, higher elevations across the City. Vegetation contributes to the aesthetic quality of the community and serves as an essential element in controlling runoff and soil erosion, moderating temperatures, reducing air pollution and providing protective cover for wildlife. In 1973, the Federal Government passed the Endangered Species Act to protect and recover imperiled (endangered and threatened) species and the ecosystems which they depend upon. The U. S. Fish and Wildlife Service (FWS) and the National Marine Fisheries Service (NMFS) are responsible for listing species in danger of extinction and identifying their critical habitat. Under Statewide Planning Goal 5, local governments are required to obtain current habitat inventory III information for wildlife habitat inventories (at a minimum including threatened, endangered, and sensitive wildlife species habitat information; sensitive bird site inventories; and wildlife species of concern and/or habitats of concern) from the Oregon Department of Fish and Wildlife (ODFW), and other state and federal agencies. Refer to Appendix 3 for a list of Oregon Natural Heritage Program listed species found within the Lower Tualatin Watershed, which includes in the southeastern portion (covering Tigard) of the Tualatin River Basin from river mile 28.2 to the Willamette River.3 Goal 5 rules outline a standard process for inventorying significant habitat areas which follows three basic steps, including inventorying habitat areas; performing an economic, social, environmental, and energy (ESEE) analysis, and developing and implementing a protection program. Since fish and wildlife habitat is considered a "regional resource", each phase of the standard Goal 5 process was coordinated between Metro and local jurisdiction in collaboration with other agencies (such as Clean Water Services). 3 Lower Tualatin Watershed Analysis,Washington County Soil and Water Conservation District,J.T.Hawksworth,August 2001. 1111 Natural Resources Page 1-14 Draft— Tigard 2007 • • 3 . F I S H A N D W I L D L I F E H A B I T A T III #f � 9, S s p�°t te an s lan s h�a-ca. e e 'stau �I N V E N T O R Y . � . a +� df °lbia ,d a ''ue ' A. SIGNIFICANT HABITAT v P. #pr ' !{9 v F . ,„,..a.,-'0 .-,1 5Y`.., .Y st In 2002, the Metro Council adopted a regional inventory ' . l rtA • ce ce c�•�' st of significant fish and wildlife habitat.Two sets of criteria 1 ® . . .a were selected to identify the location and health of fish � I a . ius•,ti 'ule, 6 01;G�3-. and wildlife habitat one for riparian habitat and one for -- 4' . e . 4 . . d pca�t o - ,� drier upland wildlife habitat. Riparian habitat was ' . . ,,fi m i.. g withl gales assessed based on the following criteria: microchmate and ;� Ili. ... �. fui tra• 41,71,,tjyt...6ishade; bank stabilization, sediment and pollution control, a . ' stream flow and water storage;woody debris and channel 1 r dynamics; and organic matter input. Based on the criteria . a e can established more than 1,100 acres of. regionally ' r yc � v4 significant riparian habitat was inventoed within eig h.arhoa• '''<,; r r , Tigard's city limits. „..if..,;.,,,, , „w.,..,,,,4,,,,,; • - • Wildlife habitat was defined by habitat patch size, Figure 1-3:Tigard Area Vegetative Cover habitat area in the center of a patch, distance between : _ i_`� �' �,{ ,. habitat patches, and access to water and habitats of 4 • concern. Based on the criteria established, nearly 300 i!r t` a- ;, p acres of regionally significant "upland" habitat was b e_ '� I inventoried within the City of Tigard. •� , ,` � 4l+' i .r In determining regional habitats of concern, Metro C- t * '- '- ,,,,,\,____... ,.Lb i gathered data on sensitive species sighting locations, a �'" f ` sensitive bird sites, and wildlife species of concern; 'T r� ` . linked sensitive wildlife species to their habitat needs; -i .' / {~/ , - a and estimated the amount of potential habitat ' ` r a �. �� rra available. Sources of this data included Oregon i $ ' Is Department of Fish and Wildlife (ODFW), Oregon + Natural Heritage Program, Metro Parks and , t'r $$ r . '�a A'iiik a c;� • Greenspaces, Audubon Society of Portland, local , .,1 ri� -+ _ __. wildlife experts,and other Metro fieldwork. —=� , i As part of a regional inventory of significant habitat ilk; . ' ' ,' .. areas, Metro produced a "vegetative cover" map based on 2002 digital image data and a generalized criteria for canopy type (forest,woody vegetation or low structure/open field) defined by the Metro Data Resource Center. The criterion for each vegetative cover type was based on type of vegetation observed in the aerial photos and size of the overall contiguous area of each patch of vegetation. The resulting Metro Vegetative Cover Map shows that forest canopy covers roughly 11% of the City, low structure/open field covers roughly 7%, and woody vegetation covers only 0.2%. Refer to Table 1-3 for the total acres for each III Natural Resources Page 1-15 Draft- Tigard 2007 • • 3 . F I S H A N D W I L D L I F E H A B I T A T III vegetation type. The vegetation cover status of each habitat area was used to classify both significant riparian and significant upland habitat within the region. Metro ranked the riparian and wildlife habitat areas Table 1-3:2002 Vegetative Cover' based on their relative health and importance for Percent of City providing benefits to fish and wildlife. The regional Cover Type Acres Covered2 habitat inventory divided significant riparian areas Forest 836 11.20% into three types; Class I is the highest value, Class II is moderate value, and Class III is the lowest value. Woody vegetation 15 0.20% Significant upland wildlife is also divided into three Low structure/open o types; Class A is the highest value, Class B is field 504 6.70/o moderate value, and Class C is the lowest value. 1 Mapped by Metro Table 1-4 summarizes the acreage for each significant 2 City of Tigard Total Area:7,496 acres riparian and upland type identified within the City. Source:Community Development Department,2006 Much of the habitat designated by Metro as Class I riparian areas is protected by regulations restricting development within and adjacent to Clean Water Services' (CWS) "vegetated corridor" as established in their Design & Construction Standards. Other regulations exist within the Tigard Community Development Code, which restrict development within "sensitive lands", including streams and streamside (or riparian) resources such as drainageways,wetlands and the 100-year floodplain. The Tualatin Basin Partners for Natural Places, an alliance of local governments (including Tigard) 41) throughout Washington County, used the regional habitat inventory as the basis for conducting a general analysis of the Economic, Social, Environmental and Energy (ESEE) consequences of allowing, limiting or prohibiting uses that would negatively impact inventoried resources. The site-specific component of the ESEE analysis provided a more localized analysis and an opportunity to refine the Basin-wide "limit" decision where necessary. Based on the ESEE analysis, a basin-wide Table 1-4: Inventoried Habitat by Class within Tigard Limits Allow-Limit-Prohibit (ALP) decision was made, Metro Habitat Classification Acres and the range of "limit" classifications was Riparian Class I 704 broken down into "lightly" limit, "moderately" Riparian Class II 259 limit, and "strictly" limit designations. The Riparian Class III 144 delineation of Tualatin Basin "limit" Upland Class A 22 classifications for inventoried habitat areas are Upland Class B 172 Upland Class C 94 mapped on Map 1-3. Source:Community Development Department,2006 III Natural Resources Page 1-16 Draft— Tigard 2007 . • 3 . F I S H A N D W I L D L I F E H A B I T A T • I able 1-5: Tigard Inventoned Habitat Designations Acres within Tigard Percent of City Designation Border' Covered Strictly Limit 588 7.84% Moderately Limit 370 4.94% Lightly Limit 422 5.63% 1 City of Tigard Total Area:7,496 acres Source:Community Development Department,2006 As shown in Table 1-5, the City of Tigard has 588 acres of habitat designated as "strictly" limit (i.e. Metro inventoried Class I and II riparian resources within the Clean Water Services Vegetated Corridor). An estimated 370 acres of Class I and II riparian habitat situated outside the Clean Water Services Vegetated Corridor are designated as "moderately" limit. In addition, 422 acres of non-Class I and II riparian resources within the City are designated as "lightly" limit, including both upland and lower-value riparian habitat areas. The Tualatin Basin Fish & Wildlife Habitat Program was developed by the member of the county-wide alliance to implement the findings of the ESEE analysis. In September 2005, Metro incorporated the Tualatin Basin Program as part of the regional Nature in Neighborhoods Program (Title 13) and instructed local jurisdictions to implement applicable program elements. A primary component of the program is the • local adoption of provisions to facilitate and encourage the use of habitat-friendly development practices, which include a range of development techniques that reduce detrimental impacts on fish and wildlife habitat. K E Y F I N D I N G S • There are more than 1,100 acres of regionally significant riparian habitat inventoried within Tigard's city limits: 704 acres of the highest value (Class I), 259 acres of the moderate value (Class II) and 144 acres of the lowest value (Class III). • Wildlife habitat within the City of Tigard is heavily concentrated adjacent to waterbodies. • A large portion of the Class I and II Riparian Resources are currently protected under City of Tigard's Development Code and Clean Water Services'Design and Construction Standards. • Nearly 300 acres of regionally significant "upland" habitat have been inventoried within the City of Tigard: 22 acres of the highest value (Class A), 172 acres of the moderate value (Class B) and 94 acres of the lowest value (Class C). • Metro Vegetative Cover Map shows forest canopy covering roughly 11% of the City, low structure/open field covers roughly 7%,and woody vegetation covers only 0.2% • Based on the Economic, Social, Environmental and Energy (ESEE)analysis conducted by the Tualatin Basin Partners for Natural Places, 588 acres of the inventoried regionally significant habitat was III Natural Resources Page 1-17 Draft— Tigard 2007 • • 3 . F I S H A N D W I L D L I F E H A B I T A T • designated as "strictly limit", 370 acres was designated as "moderately limit" and 422 acres was designated as "lightly limit". • Fish and wildlife species depend on a complex array of habitat conditions for their food,water,mobility, security and reproductive needs. • Vegetation contributes to the aesthetic quality of the community and serves as an essential element in controlling runoff and soil erosion, moderating temperatures, reducing air pollution and providing protective cover for wildlife. • Since 2002, the City of Tigard has collaborated with other jurisdictions within Washington County, Clean Water Services, and Metro to complete an inventory of significant fish and wildlife habitat and develop a program to conserve,protect and restore inventoried resources. • • Natural Resources Page 1-18 Draft—Tigard 2007 • • 4 . G R O U N D W A T E R • As noted in the streams section, fresh water is a finite resource. The portion of rainwater or snow melt which seeps below the earth's surface, referred to as groundwater, makes up only 0.48 percent of the planet's water resources. Groundwater is pulled downward by gravity until it reaches the saturation zone, or water table,which fluctuates with seasonal recharge from precipitation. In addition to meeting human water needs for drinking, household use, commercial/industrial use and irrigation, groundwater also serves an important function by naturally discharging during dry months to replenish wetlands, sustain stream flows, and help provide vital habitat for aquatic organisms. Statewide Planning Goal 5 requires local inventories of "significant groundwater resources", which are limited to critical groundwater areas,restrictively classified areas and wellhead protection areas. The Oregon Water Resource Department is the State agency responsible for conducting a variety of functions critical to the management of Oregon's water resources. Information gathered by the division's studies is managed and analyzed by agency staff and used for water availability assessments, mapping, planning for future water supplies and supporting local efforts. The City of Tigard's Water Division within the Public Works Department is responsible for ensuring the supply and quality of drinking water for residents through monitoring, planning, comprehensive designs, construction, operation and system maintenance. In addition to groundwater sources within the City, Tigard obtains water from wholesale sources to meet • local demand, including the Portland Water Bureau, the City of Lake Oswego, the Joint Water Commission and the Tualatin Valley Water District • The Portland Water Bureau is the largest provider of water which is obtained from the Figure 1-4: Groundwater Diagram Bull Run Watershed (on Mt. Hood) and production wells located near the Columbia River. k ,. .;s„ r • The City of Lake Oswego draws its wateriw los supply from the Clackamas River Basin. �"12' Cad fir{�+,, pC• Sa(ryaMdtar !'l.o.-f!•°..!'°..°.'0.$.!" o.•f1'.:.. ■ The Joint Water Commission, a partnership of �Q..� °°oQ.:e°co�°Oep eQ•-era: ::c c water systems including the cities of m Gravel Beaverton, Hillsboro, Forest Grove, Tigard ,,e MN th.,o ! G ,1 and Tualatin Valley Water District,is a surface F sal o'""6eid h" '4 pock 6acU.a u dai�4 �7"-$4',OX water source originating in the Coast Range. 104 F. ; . -.Spa Irma M thud Sow bda¢.d Saw, • The Tualatin Valley Water District purchases Source:Groundwater Basics,The Groundwater Foundation,groundwater.org water from the Portland Water Bureau and the Joint Water Commission. • Natural Resources Page 1-19 Draft— Tigard 2007 • • 4 . G R O U N D W A T E R • I N V E N T O R Y 4130ble 0 ,3'w,25,adl,ui a im"'act;fish'andq � bitat withiw ,...,.,, Soils in Tigard tend to have concentrations of fine- grained r`£ � (clay) materials limiting their permeability and restricting the movement of water below the surface. z Care n t} d •laniiin•xC QaiS Groundwater recharge is slower in areas where soils and j iI ,, m&t :'y�°"-Natural�Resau es�Scenic��8c�His ric15, �:' de osits are less permeable. In addition, °---;,; ° a M 0r -. % W F.f K ; " geological p p Ares8c ace x.,t--��: increased impervious surface area from development >" ° =Y`` - " t' $" P P 2`�;'C7regon��dmiiustrativ- ule�Ci60�Q16`;-604)1 affects the water table by restricting the infiltration of "= • �" " '"'%F -5 �: Y g "Require en .." dApplcanon rainfall into the ground to recharge natural aquifers. In `` Pi ace ure "or Cozziplyin�g W1th d t1 the Tigard area, the water table can be found at an annual ;4s1 r,rRy � '�: " �Ore o � d . strattve;Rul°e minimum depth of roughly 140 feet in higher elevations ;4 4 '°' x° "°`°"`# ` and near the level of surface � ,Procedures and Regtasrements o s ace streams along the r-: ,.r ;,. a<,Ciainplying "ttli.G"tial 5w;.i>' -<" : floor. "r.n , 4 Metrii t bail G"r`ow "I1�anag meet ;, £r- Eiirictiazla Plan;-'Title 13`'l ature i l m ; The City of Tigard does not ` ` s ;"'&g ,`z"` -: = e"" '"=Vi,µ" g o possess a supply of drinking °��.��' °°"'f�� oa � � `-; �;,�=;y'"�-- ,��Nei"``l h ds ::�� ,�,,�.�,;:, ,y�f; water within (or outside) its borders with the capacity to meet the existing demand by local residents. In 2005, the City of Tigard distributed over 2.2 billion gallons of water to nearly 50,000 individuals in the Tigard Water Service Area, including residents of King City, Durham, Tigard, and Bull Mountain. On average, water demand from residents within the Water Service Area ranged from approximately 6 million gallons a day • (during winter months) to a high of over 13 million gallons per day (during the summer). Tigard's only sources of groundwater in operation Figure 1-5:Aquifer Storage Recovery Well Diagram within its city limits include a groundwater well and two aquifer storage recovery (ASR) wells (one on Bull Mountain and one near Canterbury Lane),which serve Surface Water Source (Bull Run-Trask/Tualatin) as a seasonal water supply during warm weather months. f In 2001, the City of Tigard obtained a limited license s\~`QniectlondiainYwi::tc from the Oregon Water R esource Department for a � ::. ., ^>-t�`}'` -ASR1PnoductionVl/ellr. testing program to store 400 million gallons in an " .tea - SY 7fYrf�CO "e ?. aquifer (a geologic formation containing or conducting storage groundwater) on Bull Mountain. Potable water is injected into an ASR well during winter months, and then the same water is pumped into the water distribution system to meet summer demands. A permanent ASR permit may only be obtained following successful completion of the ASR testing program. • Natural Resources Page 1-20 Draft— Tigard 2007 • • 4 . G R O U N D W A T E R • The estimated maximum combined production capacity of City groundwater and Aquifer Storage Facility (ASR)wells (once the second ASR well is operating at full capacity)is roughly 4.5 million gallons per day. For a summary of the performance capacities for ASR and groundwater wells in the City of Tigard, refer to Tables 1-6 and 1-7.The additional water required to meet local demand must be acquired from outside sources. Table 1-6: Tigard Aquifer Storage Recovery(ASR)Wells Normal Total Normal Recovery Site Wells Recharge Storage (Withdrawal)Rate Well#GR-588 & 0.87 million 120 MG 1.0 MGD for 102 days ASR 1 C-46639, gallons per Wells#13&#70 day(MGD) ASR 2 Well#L-68044 1.87 MGD 160 MG 2.5 MGD for 93 days Source:Public Works Department,2006 Critical Groundwater Areas On Cooper Mountain and Bull Mountain in the southwestern portion of the City, groundwater isolated in volcanic rock (i.e. Columbia River Basalt)has formed a natural aquifer. Due to heavy pumping and the slow rate of recharge, a Critical Groundwater Area (CGWA) was declared in 1973 on Table 1-7: Tigard Ground Water Wells • Cooper Mountain-Bull Mountain which Site Well Numbers Normal Operation Water Right covers a total of 41.37 square miles and Well#GR-587 most of the City west of Fanno Creek. Well#2 0.66 MGD 806.38 acre-ft Well#21 As shown on Map 1-4, all the City's groundwater and ASR wells are located Well#3 Well#51 no equipment is 565.75 acre-ft within the Cooper Mountain-Bull in operation Mountain Critical Groundwater Area. Well#4 Well#67 no equipment is 456.10 acre-ft Between 1960 and 1970, water levels in operation declined 70 to 80 feet in the Tigard well Source:Public Works Department,2006 field. Oregon law states that when the pumping of groundwater exceeds the long-term natural replenishment of the underground water reservoir, the Water Resources Commission may act to declare the source a critical area and restrict water use. On May 17, 1974, the state ordered the Tigard Water District to restrict its withdrawals to 1,060 acre feet per year during 1974, 1975 and 1976. Groundwater within the Cooper Mountain and Bull Mountain CGWA is restricted to single family domestic and stock water purposes on tracts not less than 10 acres in area and is limited to that which can be beneficially used and not exceeding one acre-foot (325,850 gallons) per year.' Due to the slow rate of recharge within the Cooper Mountain-Bull Mountain CGWA, the City does not anticipate removal of critical groundwater status. 4 http://www.co.washington.or.us/deptmts/wtr_mstr/groundwater/gwla.html • Natural Resources Page 1-21 Draft—Tigard 2007 • • 4 . G R O U N D W A T E R • In 1992, two basalt aquifers directly south of the Cooper-Bull Mountain CGWA (outside the Tigard Plan Area) were designated by the Water Resources Commission as "Groundwater Limited Areas" (GWLA), including Chehalem Mountain GWLA, and Sherwood-Wilsonville GWLA. Restrictions on groundwater withdrawal have been established for these GWLAs in order to stabilize water levels. K E Y F I N D I N G S • Groundwater provides important ecological and public health benefits serving numerous functions including household use (drinking, etc.), irrigation and discharge to streams and wetlands during dry months. • Impervious surfaces and impermeable soils may restrict the natural recharge of groundwater aquifers. • Groundwater sources within the City of Tigard lack the capacity to meet the existing demand by residents. • Groundwater wells currently in operation are limited to one traditional well and two aquifer storage recovery (ASR)wells. These local groundwater wells serve as important supplementary sources of water during dry months. The City currently has no other groundwater wells in operation within its borders. • The ASR wells are operating under a limited license from the Oregon Water Resource Department. A permanent ASR permit may only be obtained following completion of the ASR testing program. To date, all ASR programs within the State are operating under limited licenses. The City has plans to apply • for the final licenses once it becomes eligible. • The Critical Groundwater Area on Cooper Mountain and Bull Mountain declared by the State in 1973 restricts the withdrawal of groundwater on the western half of the City. The City's ground well and ASR wells are located within this Critical Groundwater Area. • The City relies on external wholesale sources of water to currently provide over 2.2 billion gallons of water to nearly 50,000 individuals in the Tigard Water Service Area. Presently, agreements are in place with the Portland Water Bureau, the City of Lake Oswego, the Joint Water Commission and the Tualatin Valley Water District. • Natural Resources Page 1-22 Draft—Tigard 2007 • • 5 . MINERALS 411 This section addresses Tigard's geology comprising the naturally occurring underlying sediments, rocks and aggregate deposits. "Minerals" includes soil, coal, clay, stone, sand, gravel, metallic ore and any other solid material or substance excavated for commercial,industrial or construction use from natural deposits (Oregon Revised Statutes 517.750(7)). These mineral resources contribute to the suitability of the ground for vegetation growth (including agriculture), supporting built structures, storing and conveying groundwater, and mining. The types of geologic formations beneath the surface significantly influence the stability of the ground and the permeability of the soil affecting the amount of stormwater runoff and risk of flooding, erosion and landslides. Tigard is situated within the southeast portion of the Tualatin Plain, which is a shallow trough extending west to the Coast Range, the Tualatin Mountains to the north and the Chehalem Mountains to the south. The Cooper Mountain-Bull Mountain ridge, along Tigard's western edge, is surrounded by the Tualatin Plain. Under the State Goal 5 rule for inventorying aggregate resources, a site is generally considered to be significant if materials deposits meet Oregon Department of Transportation specifications for base rock and the estimated amount is more than 2 million tons. State Goal 5 administrative rules focus on coordinating the extraction of mineral and aggregate resources with the State Department of Geology and Mineral Industries. 11111 • Natural Resources Page 1-23 Draft— Tigard 2007 • • 5 . MINERALS • I N V E N T O R Y phcabileyrules,statutes and>plans tha '` A. GEOLOGY impact nuneral wi't••the City include 1, !9, :.: ... , rival r r r The geologic structure of the Tigard area is characterized re iim e id hi g Ga , f � by layers of different types of rock including older atural esou ces' .ceruc ; Columbia River basalt interspersed with sedimentary Are : Op n Space ' formations, subsequent tectonic folding resulting in : j .regan�Admizis rraati e ule 66 Boring Lava flows from volcanic vents and alluvial �' ," � deposition. Most surface geologic formations in the area , oc for Complying ith G6al were deposited by Ice Age (Pleistocene) Floods, known ,? ed s e o crxitrustrativeRule . 0-e2 �� ` as the Missoula Floods,which brought flood waters from a oc .u and Reagt irements�fG ' glacial lakes in Montana carrying deposits from Idaho and Y% a � & '�. Washington down through the Columbia River Gorge :4 Metro U angGrowth i4lan etneri .F and into the Willamette Valley. Refer to Map 1-5 forfr%� afplanri1; aar £to Tigard's surface geology. The source of this map and the following definitions o f geologic types on U. S. � � , „ �=: 7 1 1 1; msy Geological Survey data including the 1991 Geologic Map s s>. of Oregon.' As shown in Table 1-8, the geologic formation covering the largest surface area (i.e.. 68.8%) of the City is lacustrine and fluvial sedimentary rocks, which includes Willamette Silt and Lacustrine Sand and Gravel. • Willamette Silt is relatively weak and moderately compressible. It is intrinsically unstable, especially when moist. Lacustrine Sand and Gravel comprises unconsolidated sand, gravel, silt and clay. The gravel deposit, concentrated in the southeast near Durham, will support heavy loads with only minor settling. The sand deposits stretch along the south of Durham Road from 92nd west past Pacific Highway. Alluvial deposits cover 18% of the City and are found within the Table 1-8: City of Tigard Geologic Formations floodplains of the Tualatin River, Cover Type Acres %of City Fanno Creek and their major Lacustrine&fluvial sedimentary rocks (Qs) 5,157.0 68.8% tributaries. This material consists Alluvial deposits(Qal) 1,352.7 18.0% of silty clay, clayey silt, fine sand, Columbia River Basalt(Tc) 413.8 5.50% organic clay and peat. The deposits Upland Silt(QTs) 201.8 2.7/o are frequently characterized by a Troutdale Formation (Ts) 186.0 2.5% q Y Y Boring Lava (QTba) 188.7 2.5% water table at or near the surface Total 7,500.0 100.0% for much of the year. Streamside Source:US Geological Survey,2003 locations face the problem of bank erosion from undercutting. This unconsolidated formation is characterized by poor bearing strength. Columbia River Basalt underlies much of the entire City but it only protrudes through soil level on Bull Mountain and Little Bull Mountain (5.5% of the City). The unweathered rock is blocky, jointed and dense, 5 Walker,G.W.,and MacLeod,N.S., Geologic Map of Oregon,U.S. Geological Survey, 1991. • Natural Resources Page 1-24 Draft—Tigard 2007 II • 5 . M I N E R A L S III varying in color from brawn to black or dark gray. Columbia River Basalt aquifers are formed due to the structures low vertical permeability and high lateral permeability. The top 20 to 200 feet has decomposed in places to a red or brown clayey soil. Columbia River Basalt is generally stable. Sedimentary rocks, also referred to as Upland Silt, are a massive, structureless yellow-brown to buff sandy silt and clayey silt. It was deposited over the Helvetia Formation and Columbia River Basalt and occupies 2.7% of the City along the top of Bull Mountain - Little Bull Mountain. Although stable when dry, Upland Silt is unconsolidated and is unstable when moist. It also has low permeability. The Troutdale Formation is a semi-consolidated silt, clay and sand overlying the Columbia Basin Basalt in the northeast corner (2.5%) of the City. Thickness is probably in the range of 100 - 300 feet. Engineering characteristics of this formation appear to vary considerably depending upon the site. Boring Lava also covers 2.5% of the City overlaying portions of the Troutdale Formation. Weathering has occurred as deep as 46 feet below the surface of the basalt, leaving large residual boulders and a red clayey soil. Boring lava is relatively stable with the possible exception of lava tubes. Sedimentary rocks, also referred to as Upland Silt, are a massive, structureless yellow-brown to buff sandy silt and clayey silt. It was deposited over the Helvetia Formation and Columbia River Basalt and occupies the top of Bull Mountain - Little Bull Mountain (2.7% of the City). Although stable when dry, Upland Silt is unconsolidated and is unstable when moist. It also has low permeability. • Nearly 87% of Tigard's surface geology is comprised of formations covering the low-lying plains which were deposited during the Pleistocene floods. The lacustrine and fluvial sedimentary rocks were deposited during the initial waves of Pleistocene floods followed by subsequent waves depositing alluvium composed of unconsolidated sand, silt, clay and gravel. Many of these deposits have low permeability, resulting in poorly drained conditions.' B. AGGREGATE RESOURCES Aggregate resources comprise concentrations of naturally occurring materials commonly used in construction of roads and buildings, such as stone, rock, sand and gravel. The only aggregate resource site within the City is the gravel deposit located near the City's southeast border,which contains coarse-bedded bouldery pebble and cobble gravel mixed with silt and medium to coarse sand. The 1983 Tigard Comprehensive Plan noted that the gravel deposit on this site was over 75 feet thick and at the "present extraction rate, the remaining supply will last until 2005-2010." The former Durham Quarry site, at the intersection of SW Bridgeport Road and SW 72'd Avenue, was owned by Washington County since the early 1950s and used as a gravel pit to extract materials for road construction. In the early 1990s, quarrying activities were abandoned and site was vacated until it was sold to 6 Lower Tualatin Watershed Analysis,Washington County Soil and Water Conservation District,Hawksworth,J.T.,Aug 2001.www.trwc.org III Natural Resources Page 1-25 Draft—Tigard 2007 • • 5 . M I N E R A L S • Opus Northwest in 2002. This location is now the site of the Bridgeport Village commercial development, which was built upon remaining resources. C. SOILS AND OTHER MINERALS The soils covering the Tigard area are derived from the underlying geological "parent" material. As described earlier, much of the Tigard area is underlain by unconsolidated geological deposits. The physical qualities of soil contribute to ground stability,water infiltration and suitability for vegetation. Soils which are less permeable, or have high water tables allow more water to flow over the surface. A large proportion of Tigard has high water tables and has less permeable soils. With greater amounts of flowing water, the velocity of flows increase and erosion may result. Soil data developed by the National Cooperative Soil Survey is the most widely used and detailed source for soil geographic data (refer to the Soils Map in Appendix 4). A summary of data related to soil conditions within the City of Tigard is presented in Table 1-9. The drainage class assigned to each soil type is based on the soil composition and roughly indicates the degree, frequency, and duration of wetness, which are factors in rating soils for various uses. There are seven natural drainage classes; excessively, somewhat excessively, well, moderately well, somewhat poorly, poorly and very poorly drained. No soils in Tigard are classified as excessively or somewhat excessively drained, and only 6 percent of soils in Tigard are "well" drained, meaning that water is removed from the soil readily but not rapidly. The largest proportion of Tigard soils (covering 48% of the City) are classified as "moderately well" drained. Water is removed slowly from the remaining soils (42.73%) classified as "somewhat poorly" and "poorly" drained, 28%and 14.5%respectively. The permeability of the soil significantly affects site drainage by permitting or restricting the seepage of water underground. Permeability depends on the soil's structure, porosity, and texture. The permeability of roughly half of Tigard's soils are considered to be moderate to moderately slow, while the other half has slow to very slow permeability. Soil features also affect the amount of run off and the risk of erosion; however, the degree to which each soil type contributes to these events depends also on the steepness of the slope. • Natural Resources Page 1-26 Draft Tigard 2007 • • 5 . M I N E R A L S • Table 1-9:City of Tigard Soils 9 Area %of City Erosion Infiltration Rate Soil Classification (acres) Area Drainage Class Permeability Potential' (in/hr)' Aloha silt loam 1716 22.88% Somewhat Moderately 2-3 .15-.05 Poorly Drained Slow Briedwell silt loam 29 0.39% Well Drained Moderate 1-3 .30-.15 Briedwell stony silt loam 23 0.31% Well Drained Moderate 1-3 .30-.15 Cascade silt loam 349 4.65% Somewhat Slow 2-5 .15-.05 Poorly Drained Chehalis silt loam 37 0.49% Well Drained Moderate - - Chehalis silty clay loam 25 0.33% Somewhat Moderate - - Poorly Drained Cornelius&Kinton silt barns 1425 19.00% Moderately Slow - - Well Drained Cornelius silt loam 1 0.01% Moderately Slow - - Well Drained Cornelius Variant silt loam 57 0.76% Somewhat Moderately 3 .05-.01 Poorly Drained Slow Cove clay 34 0.45% Poorly Drained Very Slow 3-5 .05-.01 Cove silty clay loam 327 4.36% Poorly Drained Very Slow 3-5 .05-.01 Dayton silt loam 18 0.24% Poorly Drained Very Slow 3-5 .05-.01 IIIDelena silt loam 45 0.60% Poorly Drained Very Slow 3-5 .05.01 Helvetia silt loam 106 1.41% Moderately Moderately 1-4 .15-.05 Well Drained Slow Hillsboro loam 289 3.85% Well Drained Moderate 2-5 .30-.15 Huberly silt loam 355 4.73% Poorly Drained Slow 3-5 .05-.01 McBee silty clay loam 149 1.99% Moderately Moderate 1-4 .15-.05 Well Drained Quatama loam 1147 15.29% Moderately Moderately 1-4 .15-.05 Well Drained Slow Salem silt loam 0.09 0.00% Well Drained Moderate - - Saum silt loam 9 0.12% Poorly Drained Moderately 2-4 .30-.15 Slow Verboort silty clay loam 134 1.79% Poorly Drained Very Slow 3-5 .05-.01 Wapato silty clay loam 161 2.15% Poorly Drained Moderately 1-4 .05-.01 Slow Woodburn silt loam 779 10.39% Moderately Slow 3-5 .15-.05 Well Drained Xerochrepts-Rock outcrop 8 0.11% Well Drained Variable 2-5 .15-.01 Moderate to Xerochrepts&Haploxerolls 38 0.51% Well Drained Moderately - - Slow 1 From Fanno Creek Watershed Management Plan,Clean Water Services,June 1997 Source:Community Development Department.2006 III Natural Resources Page 1-27 Draft-Tigard 2007 • • 5 . M I N E R A L S • K E Y F I N D IN GS • The composition of minerals below the earth's surface determine the suitability of the ground for vegetation growth (including agriculture), supporting built structures, storing and conveying groundwater, and mining. • The relative stability and permeability of the soil depends on the types of soil and underlying geologic formations. Geologic hazards exist when certain combinations of slope, soils or bedrock and moisture render land unstable. • Nearly 70% of the City's surface geology is the result of Pleistocene flood deposits which settled on the valley floor,and many of these deposits have low permeability,producing poor drainage conditions. • In the early 1990s, the only aggregate resource site within the City, the former Durham gravel quarry near the southeast corner of the City,was abandoned and later sold for development in 2002. • Only 6% of soils in the City are classified as "well" drained; 48% of Tigard's soils are classified as "moderately well" drained. • Nearly 43% of Tigard's soils are classified as "somewhat poorly" and "poorly"drained. • Roughly half of Tigard's soils are considered to have moderate to moderately slow permeability, while the other half has slow to very slow permeability. • Soil qualities along with the degree of slope affect the amount of run off, structural stability and the risk • of erosion. • Besides soils and aggregate resources, there are no other known mineral resources in the Tigard area. 11111 Natural Resources Page 1-28 Draft— Tigard 2007 • • 6 . HAZARD S • Natural features provide a community with valuable resources, but under certain conditions, these resources may also present a hazard. While a river or creek primarily provides functional and aesthetic value, this same resource could quickly threaten property and people during heavy rains unless careful planning has documented the flooding risk and prepared for such an event. As development continues in Tigard and the available buildable land—and easy-to-develop sites - declines,land-use planning plays a key role in assessing and reducing risk to people and property. Hazards planning involves several levels of government, including federal (FEMA, National Flood Insurance Program)and the state of Oregon. • Goal 7:Areas Subject to Natural Hazards o Local governments shall adopt comprehensive plans (inventories, policies and implementing measures)to reduce risk to people and properV from natural hazards o Natural hazards for putposes of this goal are:floods(coastal and riverinc), landslides, earthquakes and related hazards, tsunamis, coastal erosion, and wildfires. Local governments may identify and plan for other natural hazards. Of the six state hazards, four apply to the City of Tigard: floods, landslides, earthquakes, and wildfires. Because of these hazards' scale, planning requires regional and countywide coordination. Locally, Washington County coordinated and produced the Washington County Natural Hazards Mitigation Action Plan; the City of Tigard Public Works Department currently is preparing a City of Tigard Natural Hazards Mitigation Plan Addendum for 2007. • An understanding of both the underlying natural conditions and past history of events provides critical information for future development planning. The following section reviews available data for each of the four topics, most of which has been obtained from other agencies due to its scale and complexity. • Earthquakes. This section focuses on Tigard's risk from earthquakes. • Wildfire. This section reviews the risk from wildfire, or any fire occurring on wildlands that requires response by firefighters. • Landslides. This section discusses landslides, the lateral or downhill movements of rock, debris, or soil mass. • Floods.This section focuses on floods and flood risks. • Natural Resources Page 1-29 Draft— Tigard 2007 • III Al 6 . H A Z A R D S • INVENTORY :.;:_,.. .,. x." ; .� $1,• •licablef,rules; statutes and plans:that , lmpa ' h� rds witl inthe City"include`�� A. EARTHQUAKES • 1 ty4' s; -. Z �Z -,:-/4 ashlh: an County Natural a and � ' Living in Mt. Hood's shadow provides a daily reminder �'.,j allon ction Plari;4,� R ; that this is earthquake country.Just off the Oregon Coast on ui1 hn' Codes •lies the Cascadia Subduction Zone, where two major � .f Tigard Municipal Co' Chap . geologic plates come together: Juan de Fuca and North ', ¢ ' and°E° 0 ,1eC 28w r 021�and�8 041 f��1 x'28 ��'�., r America. A few years ago, the state ranked Hurd e•.ng.Forestland Urb�-'ter , nationally for future earthquake damage estimates x f j fro c-1-1.0:11..f.4,ct of$199 .1: according to the Washington County Natural Hazards R =0,%, � 1 O Miti tion Action Plan Coun NHMA Plan ro ected • x 1 , 41 ga ( ry ), p j ,tz,na Co losses in the Cascadia region -- which includes �� 51 0 , �;;., � Washington and Oregon -- could exceed $12 billion, • e onalPlaiTttle, 30,000 destroyed buildings, and 8,000 lives lost in the 005 Flood Inssriance- tst� a event of a magnitude 8.5 Cascadia Subduction Zone F ood Insurance;Rate Maps ' , earthquake (Washington County Mitigation Plan,p. 9-1). 9 *age ter SezvicesDesign Cos rion�Standards3 1%*', '''3.--4* .� .7,- � „ .w ; : While this fault could cause alarge-magnitude earthquake that would affect the Tigard area, Tigard would more likely be subject to more frequent shallow earthquakes, or crustal fault earthquakes. According to the Washington County NHMA plan, most crustal • fault earthquakes rate less than a magnitude 4 but can produce magnitudes up to 7 and cause extensive damage. The Washington County NHMA plan identified four faults within Washington County: Tualatin- Sherwood, Oatfield, Costco, and Gales Creek faults. In addition,DOGAMI confirmed the nearby Portland Hills Fault as an active fault in May 2001,which could bring a magnitude 6.5 or larger earthquake Figure 1-8: Pacific Northwest (Washington County Plan,pp. 9-2, 9-3). Geology l Due to the scale and complexity of earthquake data, the City of Tigard r fa fi. < , :` relies on earthquake data from other sources. The following section ' �" �: f * ti . a^a i'i A references state data (DOGAMI), the Washington County Natural Hazards ;y .Y iw Mitigation Action Plan information (Chapter 9), and the forthcoming City , `.. of Tigard Addendum. e i % ` " ' = - . Y ao de P6rilan . Earthquake Mapping and the Historical Record �m 4 �. The Portland metropolitan region has encountered seventeen �, f f q "a em�� earthquakes of an estimated magnitude of four an d greater, with major �, e. f ;, ; earthquakes in 1877 (magnitude 5.3), 1962 (magnitude 5.2), and 1993 s �3 � , (magnitude 5.6) (Washington County NHMA Plan, p. 9-1). In addition, ; • .14#.7.9.34: -, �sI i earthquakes originated from both the North Plains and Mt. Angel faults � lvolanoes _ Cl4LtFORHIA in the 1990s. � A MSNBC • Natural Resources Page 1-30 Draft— Tigard 2007 • • 6 . H A Z A R D S • Map 1-6 identifies Tigard's earthquake hazards based upon an assessment by DOGAMI, which examined slope, soils, and bedrock characteristics. The map shows four earthquake hazard zones,with A representing the greatest hazard and affecting 58% of the City, and B affecting 21% of the City. These areas include developed residential and commercial areas, as well as the Washington Square Regional Center. The City Hall government complex lies in both zones A and B. The remaining areas are subject to minimal hazards, primarily the sloped areas of Bull Mountain and Little Bull Mountain. Minimizing Risk In the event of an earthquake, the built environment — buildings, infrastructure — will absorb the quake's energy. According to DOGAMI, falling buildings pose the biggest injury risk during an earthquake. Wood- frame homes tend to withstand earthquakes better than unreinforced brick buildings (www.oregongeology.com).The majority of Tigard's residential buildings are wood-frame construction. In the mid-1990s, the Oregon Building Codes Division revised and upgraded its construction standards for new buildings regarding seismic events, including three seismic zones. In 1994,western Oregon—including Washington County - was placed in Zone 3, the second-highest hazard code, in response to new geologic evidence of past earthquakes. The City of Tigard's Municipal Code Chapter 16.12.020 requires all new commercial, industrial, and multifamily structures to conform to Oregon Structural Specialty Code requirements for Seismic Zone 3, while single-family construction must conform to the Oregon One and Two Family Dwelling Specialty Code for Seismic Category Dl. • The City of Tigard's Public Works Department is conducting a preliminary analysis of the potential earthquake impact on Tigard's built environment, as well as the most vulnerable critical facilities and infrastructure.The results will be included in the 2007 Natural Hazards Addendum. B. WILDFIRE The term wildfire conjures an image of sparsely populated and heavily wooded or brush areas; however,it is also a risk in developed areas. Wildfire, or any fire occurring on wildlands that requires response by firefighters, is characterized in the Washington County Natural Hazards Mitigation Action Plan (County NHMA Plan) by an increased fire risk in the urban interface zone. The County NHMA plan defines the interface as the urban-rural fringe where homes and other structures are built into a densely forested or natural landscape. The increasing number of houses being built in the urban interface zone has produced a significant increase in threats to life and property from fires, and has pushed existing fire protection systems beyond original or current design and capability. Oftentimes, property owners in the interface are not aware of the problems and threats they face so many have done very little to manage or offset fire hazards or risks on their own property. In response to the increasing risk of wildfire in the urban / rural interface zone statewide, the Oregon Forestland-Urban Interface Fire Protection Act of 1997 was passed to enlist the aid of property owners in reducing the risk of wildfire. The Act works to reduce the threat of loss of property from wildfire by requiring every county in the state to first identify the boundaries for the urban interface zone, then to classify the risk of fire from low to extreme in order to determine the size of fuel break that will be required • Natural Resources Page 1-31 Draft— Tigard 2007 • • 6 . HAZARDS • around each structure. The Oregon Department of Forestry will then mail each affected property owner a certification card to be returned to the Department within two years. Property owners are to return the cards once they are in compliance with the fuel-reduction standards described in OAR 629-044-1050 through 629-044-1085. This way, in the event of a wildfire certified property owners will be relieved of the act's fire cost-recovery liability if a wildfire originates on their property. The Oregon Department of Forestry writes that the goal of the Act "is to turn fire-vulnerable urban and suburban properties into less- volatile zones where firefighters may more safely and effectively defend homes from wildfires." Wildfire Mapping and the Historical Record Tualatin Valley Fire and Rescue reports that the City of Tigard had 159 brush and grass fires from 2001 until present. The County NHMA Plan reports that Washington County has not been impacted by historic wildfire events; however, wildfire has caused substantial destruction to nearby Oregon communities. An Oregon Department of Forestry study found approximately 122,982 acres of wildland/urban interface in Washington County. The conditions conducive to significant wildfires include hot, dry, and windy weather; the inability of fire protection forces to contain or suppress the fire;the occurrence of multiple fires that overwhelm committed resources; and a large fuel load (dense vegetation). Map 1-7 was generated using data from Washington County GIS and identifies Tigard's wildfire hazards based upon fuels, weather, and topography, as defined by ORS 629-044-0240.The map identifies more than 30% of all land in Tigard as vulnerable to wildfire.The wildfire hazard zone exists primarily at the perimeter of the city, as this is where the urban interface zone • also exists. Minimizing Risk Although the Oregon Forestland-Urban Interface Fire Protection Act of 1997 has not been fully implemented in Washington County, the County has completed the urban / rural zone mapping including for Tigard.The next step for the County will be to classify the risk of wildfire from low to extreme. The City of Tigard works with Tualatin Valley Fire and Rescue to mitigate the effects of wildfire. The City's Municipal Code includes code previsions aimed at controlling vegetation before becoming a fire hazard (Tigard Code Section 8.04.110 Weeds and Noxious Growth). Tualatin Valley Fire and Rescue is responsible for all fire prevention and education, including counseling for juvenile fire-setters, teaching fire prevention in schools, conducting CPR classes, teaching proper use of fire extinguishers, coordinating educational programs with other agencies,administering the smoke alarm program,and answering citizens' questions. The Oregon Department of Environmental Quality (DEQ) controls both backyard and agricultural burning; however,Tigard is within the DEQ permanent burn-ban area in an effort to reduce the risk of wildfire as a result of backyard burning. The Oregon Department of Forestry provides a landowner guide describing the 1997 act's fuel-reduction standards, concepts and alternatives. This is a good resource for residents to learn more about how to protect their property from wildfire including pruning tips, the basics of thinning, and suggestions for firewood pile location. • Natural Resources Page 1-32 Draft— Tigard 2007 • • 6 . HAZARDS • The City of Tigard's Public Works Department's 2007 Natural Hazards Addendum will also discuss the potential wildfire impact on Tigard's built environment, as well as identify the most vulnerable critical facilities and infrastructure in the event of a wildfire. C. STEEP SLOPES / LANDSLIDES Landslides are one of the most widespread hazards in Figure 1-7: Landslide Potential of the the United States and cause 25 to 50 fatalities on Conterminous United States average each year. Landslides, the lateral or downhill movements of rock, debris, or soil mass, pose a serious threat in Oregon. They are typically triggered by periods of heavy rainfall or rapid snowmelt; • however, earthquakes, volcanic activity, and 1 y excavations may also trigger landslides. Landslides are classified by the rate at which they move, either fast or \� slow. Both have the ability to cause significant ; yS Y-..�'� `� -1�,. property damage, but slow-moving landslides are less • ` • ,�y likely to cause significant human injuries. 1 . _ __t • \J di" � Different types of landslides include slides, rock falls, ` „, • and flows. Slides move in contact with the underlying surface, are generally slow moving, and can be deep. Landslide potential of the conterminous United States:Red areas have very high potential, Rock falls are blocks of material that come loose on yii01a areas have high potential,and green areas have moderate poterrtiai Landslides can and do occur in the black areas,but fie poten i is lee.Map not to scale.Sourcex the steep slopes; they are fast moving with a generally National Atlas and the USES small volume of material. Flows are plastic or liquid movements in which land mass beaks up and usually increases in volume as it flows. Rainfall-initiated landslides tend to be smaller, while earthquake induced landslides may be quite large. All soil types can be affected by natural landslide triggering conditions. The most common type of landslide in Washington County is slides caused by erosion. The Washington County Natural Hazards Mitigation Action Plan (County NHMA Plan) reports that although landslides are a natural geologic process, the incidence of landslides and their impacts on people can be exacerbated by human activities. Such human activities include grading for road construction and development, excavation, drainage and groundwater alterations, and changes in vegetation. The County NHMA Plan gives three examples of development-related actions that can put people at an increased risk of a landslide: 1) creating steeper slopes, 2) development on or adjacent to existing landslide source:uscs development on gentle slopes. The effects of landslides are often more widespread than the physical area they inhabit. Landslides can affect utility services, transportation systems, and critical lifelines as identified in the County NHMA Plan. Disruption of infrastructure, roads, and critical facilities may also create a lingering effect on the economy. The loss of electricity has the most widespread impact on other utilities and on the whole community. Natural gas pipes may also be at risk from landslide movements as small as an inch or two. Roads and • Natural Resources Page 1-33 Draft— Tigard 2007 • • 6 . H A Z A R D S • bridges are subject to closure during landslide events, the impact of which can be amplified if the closed road or bridge is a critical lifeline to hospitals and other emergency facilities. Steep Slopes / Landslide Mapping and the Historical Record Landslide events within the City have not significantly impacted residents or caused major property damage in the past; however,landslides have had an impact in Washington County. In 1996,for example, there were 39 landslides within Washington County. The 1996 landslide events were caused by heavy rain on snow at higher elevations and caused several fatalities in Oregon. The effect of the 1996 landslides on Washington County is detailed in the County NHMA. The two state agencies involved in mapping debris flow, or fast moving landslides, are the Oregon Department of Forestry (ODF) and the Department of Geology and Mineral Industries (DOGAMI). The ODF's flow maps include locations subject to naturally occurring debris flows and include the initiation sites and projected paths. Using a 25% or greater threshold to identify potential unstable slopes the Public Works Draft Natural Hazards Addendum estimates 286.2 acres of land in Tigard are at risk of a landslide. The landslide hazard threatens 4.3 miles of critical streets in Tigard; potentially landslides could inhibit traffic flow, cause damage to roads, as well as damage buildings. The geographic extent of the landslide hazard is illustrated using percent slope, soil type, and bedrock type. The landslide hazard is depicted on Map 1-8, and shows that landslides would affect less than 3%of the City's land area. Minimizing Risk • The National Landslides Hazard program (LHP) is part of the US Geological Survey (USGS) and researches, reports, and responds to landslide emergencies and disasters. The National Landslide Information Center provides a toll-free line for landslide related questions, publishes USGS landslide materials, and staffs national meetings and presentations. In the LHP 5-year plan (2006-2010) the LHP anticipates working closely with Oregon, California, Hawaii, and other states during the next five years. The LHP also anticipates working with NOAA on a new landslide hazard alert system to be launched in the next five years. The debris flow warning system was created with collaboration between ODF, DOGAMI, the Oregon Department of Transportation, local law enforcement, NOAA Weather Radio, and local media. The ODF meteorologists initiate a chain of communication that warns residents, motorists, and appropriate organizations when a storm is forecasted that may trigger debris flow. At the state level, Oregon Senate Bill 12 (1999) addresses problems caused by rapidly moving landslides or debris flows in response to the 1996 landslide events. The bill limits activity in high-risk sites, allows for road closure when the risk for landslides is high, and establishes a Task Force on Landslides and Public Safety. The ODF is currently administering the deferral of certain forest activities in locations susceptible to landslides. Senate Bill 12 directs the Oregon Department of Land Conservation and Development to assist local governments in implementing the bill. Existing mitigation activities are implemented by city, county, regional, state, or federal agencies and organizations. The Tigard Municipal Code addresses erosion specifically in Chapter 16.28, stating that • Natural Resources Page 1-34 Draft—Tigard 2007 • 6 . HAZARDS • "temporary and permanent measures for all construction projects shall be required to lessen the adverse effects of erosion and sedimentation". The City regulates development on steep slopes in the Community Development Code Section 18.775.070. Any proposed development on either steep slopes (slopes of 25% or greater) or unstable ground must obtain a sensitive lands permit, and approval is granted based on findings that: 1.The extent and nature of the proposed land form alteration or development will not create site disturbances to an extent greater than that required for the use; 2. The proposed land form alteration or development will not result in erosion, stream sedimentation, ground instability, or other adverse on-site and off-site effects or hazards to life or property; 3.The structures are appropriately sited and designed to ensure structural stability and proper drainage of foundation and crawl space areas for development with any of the following soil conditions: wet/high water table; high shrink-swell capability; compressible/organic; and shallow depth-to-bedrock;and 4. Where natural vegetation has been removed due to land form alteration or development, the areas not covered by structures or impervious surfaces will be replanted to prevent erosion in accordance with Chapter 18.745,Landscaping and Screening. The City also maintains a buildable lands map including a steep slopes layer pointing to areas within the city that have slopes greater than 25%. The map is available online in the GIS section of the City website, or by contacting the Long Range Planning Department. IllThe City of Tigard Public Works Departments will perform a quantitative risk assessment for landslides when the data and resources become available. C. FLOODS Floods are Oregon's most frequently occurring natural disaster. They are influenced by a number of factors, including the amount and intensity of precipitation, geography and geology, and development activity. The City of Tigard cannot control precipitation or the community's soil type (See Map 1-9), but can control development activity that contributes to, and is affected by, flooding. The last major flood event in 1996 inundated 2.2%of the land area in Tigard. The City is at risk from two types of flooding riverine and urban. Riverine flooding is when streams overflow their banks and inundate low-lying areas.This is a natural process that adds sediment and nutrients to fertile floodplain areas. It usually results from prolonged periods of precipitation over a wide geographic area. Most areas are generally flooded by low velocity sheets of water. Urban flooding occurs as land is converted to impervious surfaces and hydrologic systems are changed. Precipitation is collected and transmitted to streams at a much faster rate, causing floodwaters that rise rapidly and peak with violent force. During urban flooding, storm drains can back up and cause localized flooding of streets and basements. • Natural Resources Page 1-35 Draft—Tigard 2007 • 6 . HAZARDS • The City has experienced a number of flood events in recent history and coordinates with several agencies to mitigate the risk of flooding. The Federal Emergency Management Agency (FEMA) coordinates the effort to reduce the community's risk to flooding by mapping the Figure 1-8: 1996 Flood, Burnham at Ash 100-year floodplain. The 100-year floodplain includes six streams and 7.9% of all land area in Tigard. Oregon state law then ,' :°y regulates development within the 100-year floodplain and Tigard „ complies through adoption of Metro's Functional Plan Title 3. s , The Sensitive Lands chapter of the Tigard Community .r Development Code implements Title 3 through the Clean Water ',./,;;;,; ' Services Design and Construction Standards. ` ` Floods can have a devastating impact on almost every aspect of the community, including private property damage, public infrastructure damage, and economic loss from business interruption. It is important for the City to be aware of flooding impacts and assess its level of risk.The City has been proactive in mitigating flood hazards by purchasing floodplain property. As of June 2006, Tigard owned 34% of the 100-year floodplain. The City has also assessed potential impacts to private property from a flood event and the City of Tigard Natural Hazards Mitigation Plan Addendum,due to be completed in Spring 2007,will assess and outline the risk to critical facilities in the community. Historical Flood Events • Before flood control systems were in place, widespread flooding Figure 1-9: 1996 Flood, 121st at occurred throughout the Tualatin Basin on a regular basis. Human Fanno Creek Bridge activities within the Tualatin Basin have significantly changed the --� hydrology of the watershed: dams and flood control systems have been constructed, citizens have altered wetlands and floodplains, _ and urbanization has recently occurred at a steady pace. To : ;�.: .. . evaluate historical flood events, consideration must be given to the 1111 " ` u' impacts of these activities. Flood events in 1964 and 1996 were 71 - - _ the most damaging in the modern flood control era. Below are the most significant flood events that have occurred in Tigard in4 recent years: om • December 1964 • January 1972 • January 1973 • January 1974 • November/December 1977 • December 1981 • January 1982 • January 1991 • November 1995 • February 1996 1111 Natural Resources Page 1-36 Draft— Tigard 2007 • • 6 . HAZARDS • 100-Year Floodplain The Oregon Natural Hazard Technical Resource Guide defines a floodplain as a land area adjacent to a river, stream, lake, estuary, or other water body that is subject to flooding. These areas, if left undisturbed, act to store excess flood water. The 100-year floodplain is an area of land that has a one percent chance of being inundated by flood waters in any year. Map 1-12 illustrates the 100-year floodplain and 1996 flood inundation areas within the City of Tigard. Currently, there are 595 acres within the 100-year floodplain (7.9% of all land within the City) and the 1996 flood covered 167 acres (2.2%of all land within the City). The 100-year floodplain includes a number of streams in the community: Tualatin River, Fanno Creek, Red Rock Creek, Summer Creek, Ash Creek, and Hiteon Creek. Of the streams that fall within the 100-year floodplain,Table 1-10 shows the anticipated peak discharge for several flood events. Mitigation Strategies The Federal Emergency Table 1-10:Flood Discharge Analysis Management Agency (FEMA) Drainage Peak Flood Discharge(cubic feet per second) coordinates the effort to Location Area(sq mi) _ 10-year 50-year 100-year 500-year reduce a community's risk of Tualatin River flooding and to mitigate the at RR Bridge 686.0 15,200 22,700 27,000 37,800 impacts from flooding. Fanno Creek 41) Through a 2005 Flood at Mouth 32.0 2,950 3,850 4,250 5,150 Insurance Study (FIS) for the at Tiedeman Ave 24.0 2,750 3,500 3,850 4,700 at Dakota St 17.0 1,900 2,450 2,700 3,250 City of Tigard, FEMA Ash Creek established a base flood at Mouth 4.1 750 950 1,000 1,250 elevation that is recorded on Summer Creek the Flood Insurance Rate at Mouth 6.2 1,050 1,300 1,450 1,750 Map (FIRM) and equals the at 135th Ave 4.0 800 1,000 1,100 1,350 100-year floodplain. The 100- Source:FEMA Flood Insurance Study,February 18,2005 year floodplain is used to administer the National Flood Insurance Program (NFIP) and acts as the flood hazard area in regulating development activities and reducing impacts from flood events. Regulation of the 100-year floodplain in the State of Oregon is directed by Oregon law and overseen by the Department of Land Conservation and Development (DLCD). In order to comply with state law, the City has adopted Metro's Functional Plan Title 3 regulations and implements the regulations through the Sensitive Lands Chapter of the Community Development Code. The Sensitive Lands Chapter outlines the development activities allowed within the floodplain and includes the Clean Water Services (CWS) Design and Construction Standards. The Design and Construction Standards is a unified program to address Title 3 and is intended to protect the beneficial uses of water in the Tualatin Basin. The Oregon Division of State Lands (DSL), jointly with the U.S. Army Corps of Engineers, requires a permit for development within the waters of the United States. Any disturbance to a water body and its • Natural Resources Page 1-37 Draft— Tigard 2007 • • 6 . H A Z A R D S • associated floodplain is covered through this process. The City of Tigard is required to sign off on any permits issued by DSL. Additionally, the CWS 1997 Fanno Creek Management Plan inventoried all drainage structures, evaluated their adequacy of capacity, and recommended City infrastructure improvements to reduce flooding. The Fanno Plan divided the recommended projects by priority, with the highest being the replacement of bridges and culverts determined to have inadequate openings to pass the 100-year flood. Three bridges spanning Fanno Creek and one culvert on Summer Creek were rated as high priority. Medium priority projects are replacing inadequate culverts along tributary streams. The Fanno Plan recommended that culvert replacements should be evaluated for the need of fish passage as required by the Endangered Species Act. A number of low priority projects were recommended, with two bridge replacements on Ash Creek included. Funding for these projects is available through the Storm Sewer Fund that results from the collection of system development charges. The City has also been purchasing property located within the 100-year floodplain for the protection of the resource and reduction of flood hazard (See Map 1-11). As of June 2006, the City owned 203 acres of the 100-year floodplain (34.1% of the total floodplain area). Potential Impacts The potential impacts from a flood event can affect both private and public property. Private property owners in or near the floodplain can have their homes/businesses damaged in a flood event, while public • property such as roads and bridges can be damaged. Private property owners in Tigard can limit their financial losses by purchasing flood insurance through the National Flood Insurance Program (NFIP). Table 1-11 shows the potential impact from a 100-year flood event and/or the repeat of the 1996 event. The table includes only tax lots that have a building value greater than zero in the Washington County Assessor database and also intersect the floodplain or 1996 event. The building may or may not physically reside within the floodplain and tax exempt businesses are not included as they are not required to report building value.The table simply gives an estimate of potential financial impacts from a flood event. A good indicator of City efforts to Table 1-11: Potential Flood Impacts (Private Property) minimize flood hazard is to review Impact Area Lots Acres Value' repetitive loss claims. Within the City FEMA 100-year 371 473.0 $ 228,863,100 of Tigard there has only been one 1996 Flood 34 74.2 $ 31,322,220 property that has filed repetitive loss Both 382 475.1 $ 231,045,080 claims. The property has flood Building Value from Washington County Assessor Database insurance and has filed two claims Source:Washington County Assessor,City of Tigard,2006 total. Potential impacts to public infrastructure are difficult to quantify, but are very important to consider in a flood event. Bridges and roads located in the floodplain are subject to failure and destruction as well as becoming impassable for community residents. More importantly, emergency response crews may need to alter routes and cause significant delays in responding to events. Additional infrastructure that can be • Natural Resources Page 1-38 Draft— Tigard 2007 • • 6 Al . HAZARDS • damaged includes stormwater infrastructure, sanitary sewer infrastructure, water lines, and parks and recreation facilities. The City of Tigard Natural Hazards Mitigation Plan Addendum will be analyzing risk to critical facilities and structures and is scheduled to be complete in Spring 2007. K E Y F I N D I N G S • The Cascadia Subduction Zone could potentially cause a 8+ magnitude earthquake,affecting Tigard. • Tigard is subject to more frequent shallow earthquakes (crustal fault earthquakes). These events typically do not exceed magnitude 4,but could go up to magnitude 7. • There are four faults in Washington County and the Portland Hills Fault in Portland. Tigard is near the Portland Hills Fault; additional maps are needed to determine locations of the four Washington County faults. • Earthquake hazards are determined based upon an analysis of soil type, fault locations, slope and bedrock characteristics. • Fifty-eight percent of the City is subject to the greatest hazard level, with an additional 21% falling into the next hazard level. These areas include developed residential and commercial areas, as well as the Washington Square Regional Center. The City Hall government complex lies in both zones A and B. • Wood-frame homes tend to withstand earthquakes better than unreinforced brick buildings. The majority of Tigard's residential buildings are wood-frame construction. • • In the mid-1990s, the Oregon Building Codes Division revised and upgraded its construction standards for new buildings regarding seismic events. In 1994, western Oregon — including Washington County-was placed in Zone 3,the second-highest hazard code for seismic risk. • The City of Tigard's Municipal Code Chapter 16.12.020 requires all new commercial, industrial, and multifamily structures to conform to Oregon Structural Specialty Code requirements for Seismic Zone 3, while single-family construction must conform to the Oregon One and Two Family Dwelling Specialty Code for Seismic Category Dl. • Washington County and the City of Tigard Public Works department perform hazards planning for earthquakes. • The City of Tigard's Public Works Department is conducting a preliminary analysis of the potential earthquake impact on Tigard's built environment, as well as the most vulnerable critical facilities and infrastructure.The results will be included in the 2007 Natural Hazards Addendum. • Wildfire is defined as any fire occurring on wildlands that requires suppression response. • There is an increased risk of wildfire in the urban interface zone where homes and other structures coexist with densely forested or natural areas. • The increasing number of homes being built in the urban interface zone is increasing the threat of wildfire in Tigard. • Property owners are commonly uninformed about wildfire protection practices. • In order to reduce the risk of urban interface wildfires, the State of Oregon passed the Forestland- Urban Interface Fire Protection Act of 1997 to engage property owners in reducing conditions conducive to significant wildfire.The act has yet to be fully implemented in Washington County. • The City of Tigard had 159 brush and grass fires from 2001 until present. • Natural Resources Page 1-39 Draft— Tigard 2007 • I 6 . HAZARDS • • Washington County has not been impacted by historic wildfire events; however, an Oregon Department of Forestry study found approximately 122,982 acres of wildland/urban interface in Washington County. • More than 30%of all land in Tigard is vulnerable to wildfire. • The City of Tigard works with the Tualatin Valley Fire and Rescue to mitigate the effects of wildfire. The Tualatin Valley Fire and Rescue Department works to provide fire prevention and education to Tigard residents and businesses. • Tigard is within the Oregon Department of Environmental Quality's permanent burn ban area, so backyard burning is not allowed anywhere within Tigard. • The City of Tigard 2007 Natural Hazards Addendum will address the potential impact of wildfire on Tigard's built environment and identify critical facilities and infrastructure vulnerable to wildfire. • Landslides are one of the most widespread hazards in the United States, and are typically triggered by periods of heavy rainfall or rapid snowmelt. • Slow moving landslides are less likely to cause significant human injuries. • The most common type of landslide in Washington County are slides caused by erosion. • The incidence of landslides and their impacts on people can be exacerbated by human activities. • Landslides can affect utility services, transportation systems, and critical lifelines as identified in the County NHMA Plan. The loss of electricity has the most widespread impact on other utilities and on the whole community. • Landslide events within the City have not historically had significant impacts on residents or caused major property damage, however, they have had an impact in Washington County. In 1996 there • were 39 landslides within Washington County. • The two state agencies involved in mapping debris flow are the Oregon Department of Forestry (ODF) and the Department of Geology and Mineral Industries (DOGAMI). • Estimates of areas vulnerable to landslides include 286.2 acres of land in Tigard, and 4.3 miles of critical streets in Tigard. Map 11 shows that landslides would affect less than 3% of the City's land area. • The Tigard Municipal Code addresses landslide prevention in Chapter 16.28 and in the Community Development Code 18.775.070. Development on steep slopes (25% or greater) requires a sensitive lands permit. • Oregon Senate Bill 12 addresses landslides and debris flow, in an effort to both prevent and handle landslide emergencies. • The debris flow warning system is in conjunction with multiple local, state, and national departments and organizations. An update is currently being coordinated by the National Landslides Hazard Program (LHP) and NOAA. • The LHP anticipates working closely with the state of Oregon in the next five years. • The City of Tigard Public Works Departments will perform a quantitative risk assessment for landslides when the data and resources become available. • Floods are Oregon's most frequently occurring natural disaster. • The last major flood event in 1996 inundated 2.2% of the land area in Tigard. • The City is at risk from two types of flooding: riverine and urban. • The 100-year floodplain includes six streams and 7.9% of all land area in Tigard. • Natural Resources Page 1-40 Draft— Tigard 2007 •, • 6 . HAZARD S 4111 • The Federal Emergency Management Agency (FEMA) coordinates the effort to reduce the community's risk to flooding by mapping the 100-year floodplain. • Oregon state law regulates development within the 100-year floodplain and Tigard complies through adoption of Metro's Functional Plan Title 3. • The Sensitive Lands chapter of the Tigard Community Development Code implements Title 3 through the Clean Water Services Design and Construction Standards. • Floods can have a devastating impact on almost every aspect of the community, including private property damage,public infrastructure damage,and economic loss from business interruption. • As of June 2006,Tigard owned 34%of the 100-year floodplain. • Human activities within the Tualatin Basin have significantly changed the hydrology of the watershed. • • Natural Resources Page 1-41 Draft— Tigard 2007 • • A P P E N D I X A 11111 GOAL 5 STANDARD INVENTORY PROCESS Procedures for inventorying the certain resources addressed in this section follow guidelines mandated by Oregon Planning Goal 5. Oregon Administrative Rules (OAS) 660-016 and 660-023 outline procedures and requirements for complying with Goal 5 establishing the following five-step planning process to ensure the adequacy of resource inventories: STEP 1 :..Conduct'an'inventory of the natural resource and determine the relative significance ,. STEP 2 `'Identify conflicting land uses on or near each resource::site , Conduct an economic,social,"environmental and energy(ESEE)-analysis ofysignificant sites. Decide whether to allow,limit or prohibit conflicting-use"site ' ST'E;P 5 ;Implem"ent program toachieve:Goal 5'for significant resource.sites`. Oregon Administrative Rule 660-023 provides an alternative "safe harbor" approach for protecting certain significant resources (including wetlands and riparian corridors) in lieu of the standard five-step Goal 5 process. Following completion of Step 1 (inventory and significance determination), jurisdictions may skip the analysis steps and adopt a standardized protection program under the "safe harbor" provision. The specific methodologies utilized in inventorying Tigard's natural resources are summarized in the following report. 11111 Natural Resources Page 1-42 Draft— Tigard 2007 • • • Z w E it :✓ b til H Q nSummary of 1994 Wetland Assessment ratings for Aquatic Resource Units z co b H 0.1 AQUATIC Unit 1 Unit 2 Unit 3 Unit 4 Unit 5 Unit 6 Unit 7 Unit 8 Unit 9 Unit 10 Unit 11 i9e,' RESOURCE Upper Ash Lower Ash Upper Summer Deny Dell Red Rock Middle Lower Tualatin Short Pinebrook UNIT Creek Creek Fanno Creek&2 Creek& Creek Fanno Fanno Ck& River Tributaries Creek&4 Creek Tribs. part of Creek Lower Ball to Tualatin Ponds eti FUNCTION Fanno Ck Creek River &VALUES • Wildlife Habitat `ro= , Soma-,, ' ix 1 ( ;t1 ialt& , ome r tr -r 54 8 , 16,th ,ah0=r- -MSRma ��r:tht>t; �.;specles llvil4I 'tl n0110:1, 1 iii f:111::ti es : 1� 1 , e�ies tlI61im, i tair=t, ,speoles ; .!'::•?. t..: <a �r a...:, a'•t•.•:;cn:. }...,, a r., hey •. ; i � .. ++. ?As:;\.t 1 Potor all Y P 4 4nti 'Poten II Y 4 2Pgt etntial YPCV41,al otetlalY • "Poentl 7 �i (a._ o b a i P o s.,3y„lit' Fish Habitat Contribute ,,Gpntnbute Cpntrib a Gonnbute q Q nti to • , bte ,- , ersa t 1iv r` +'milt" 1 9jt= 1 tr R v t~ �I �1�' l_` 1 I s �I 1' MK 'K tot: ; I 144 lets 1 r.O�Arr p t 431 to cfg Water Quality p co y lnTiiiiri, 10-„T lim. '. ItoThri i• ,r , 1• olto� Ior,,e its I 41-i !ii qi-.."tiiltY , r n �.�. reePY'c ', k.Rrrovllde j'44v,604, , ?a ;•alt"i.� 01,it.t4i, , 4YYxy 11 l .cwrdt 1--1-rnx,40,-~ !I f= tf, Frifril4roisr, 1 I-1-!-'c7`1tir"� i'ixwirr Potential°,to -+' Hydrological Control W «iritrnil c•OYA.tri`l i (d fci NI. ..yocgrai !I orsirat clii(417i1i I ,rar tio0i li-41 f, '01'4 •41 d Y1i411 .prOvi tO,rf Education Not Not pee tia 4 ,, `tq , Not Not I"�Ki at7_t:, Not AM Not %Potential„ appropriate appropriate =�usE appropriate appropriate appropriate appropriate s�'' Pot tial to, Not i tit,rr (At't= , 1 Not Not t -. atsix ' Not fla:+,iritel i Not P tial tp Recreation rov de�� appropriate u•• a••', !p l „';; appropriate appropriate cY.r.. appropriate. oft:, appropriate provlde�� Aesthetic Quality ,'1rrtlM Pte stlnHYr 1.-14 x�r�r r j at pirtel pleasing �1' qtr , i it:„%l it �F,t r-V4r� i ;?t. 1>7r: pleasing. ...•. ,.:: ..; ,. .•��y�+.'.a,�k w`•id�•':'•arta�•r>.� `c;R`>"�. � �; � �� xcb aY.i.A x .r:u� c: •.� . Sensitivity to Secondary Potentially Po)enUaliy Potentially, N Potentially :Poteptielly0 Ppptentiall ,1.otentially dtetnttiall *,;'Potentiail ?4Popp rdi9 ;Potentially effects sensitive , ,sensitive : :;sensitive,, ,;',sensitive ;?sensitive,, s�ensi v_e, - sensib ,e As—, tttl e4, p site e� ••sitli : sensitive • + j I i am4:1:r'ri Some ;;r tQlti' t dX� (c411 t:� ∎ is acr_� , r':t` 0 'ci t (cf:1A i ,>'Some Enhancement Potential :rl'Tiro t potential ' tYO• pfr)41,Cl t U �7 t -i t•1 --1(1.1. , eilkit ''in r.n .:t :Fl •' potential` Approximate Acres 8 acres 25 acres 32 acres 75 acres 9 acres 23 acres 54 acres 40 acres 24 acres 6 acres 2 acres Cj Source:City of Tigard,Local Wetland Inventory 1994 A I A �. N O SI* O V • • A P P E N D I X C 111 OREGON NATURAL HERITAGE PROGRAM Listed Species Potentially Found Within the Lower Tualatin Watershed Fungi Federal ODFW ONHP Scientific Name Common name status status schedule Amanita novinupta fungus ... ... 3 Vascular plants Scientific Name Common name status status schedule Cimicifuga elate' tall bugbane SC C 1 Delphinium leucophaeum* white rock larkspur SC LE 1 Erigeron decumbens var.decumbens Willamette daisy PE LE 1 Horkelia congesta ssp.congesta shaggy horkela SC C 1 Lupinus sulphurous ssp.kincaidii IGncaid's lupine PT LT 1 Montia diffuse branching montia .. 4 Sidalcea campestris meadow sidalcea C 4 Sidalcea nelsoniana Nelson's sidalcea LT LT 1 Insects Federal ODFW ONHP Scientific Name Common name status status schedule Acupalpus punctulatus marsh ground beetle ... ... 3 Fish Federal ODFW ONHP Scientific Name Common name status status schedule Lampetra tridentata Pacific lamprey SC SV 3 Oncorhynchus clarki darks coastal cutthroat trout SV 3 Oncorhynchus kisutch coho salmon C SC 1 Oncorhynchus mykiss" steelhead trout FT SW 1 Amphibians Federal ODFW ONHP Scientific Name Common name status status schedule Bufo boreas western toad SV 3 Rana aurora aurora' northern red-legged frog SC SV 3 Rana pretiosa Oregon spotted frog C SC 1 Reptiles Federal ODFW ONHP Scientific Name Common name status status schedule III Chrysemys pitta painted turtle ... SC 2 Clemmys marmorata marmorata' Northwest pond turtle SC SC 2 Contia tenuis sharptail snake SV 4 Birds Federal ODFW ONHP Scientific Name Common name status status schedule Brenta canadensls leucopareia Aleutian Canada goose(wintering) LT LE 1 Brenta canadensls occldentalis dusky Canada goose(wintering) ... 4 Chordeiles minor common nighthawk(SC in WV) SC 4 Contopus cooperi dive-sided flycatcher SC SV 3 Empidonax traillii brewsteri little willow flycatcher SC SV 3 Eremophila alpestris strigata streaked homed lark SC 3 Hallaeetus leucocephalus* bald eagle LT LT 1 Icteria virens yellow-breasted chat(SC in WV) SC 4 Melanerpes forfcivorous acorn woodpecker ... 3 Pooecetes gramineus affinis Oregon vesper sparrow SC 3 Progne subis purple martin SC 3 Sialia mexicana western bluebird ... SV 4 Stumella neglecta western meadowlark ... SC 4 Mammals Federal ODFW ONHP Scientific Name Common name status status schedule Arborimus albipes white-footed vole SC SV 3 Corynorhinus townsendii townsendir Pacific western big-eared bat SC SC 2 Lasionycteris noctivagans silver-haired bat SU 3 Myotis evotis long-eared bat SC SU 4 Myotis thysanodes fringed bat SC SV 3 Myotis volans long-legged bat SC SU 3 Sciurus griseus western gray squirrel ... SU 3 "Confirmed by ONHP to be(or to have been)present within the Lower Tualatin Watershed. STATUS:LE=Listed Endangered,LT=Listed Threatened,PE=Proposed Endangered,PT=Proposed Threatened,C=Candidate Species,SC=Special Concern,SV=Sensitive Vulnerable,SP=Sensitive Peripheral,SU=Sensitive Undetermined. ONHP SCHEDULE:1=Threatened or endangered throughout range,2=Threatened,endangered or extirpated from Oregon,but secure or abundant,3=Review,4=Watch. • Natural Resources Page 1-44 Draft— Tigard 2007 • • A P P E N D I X D • DATA SOURCES -METADATA Tigard Streams The map of City of Tigard streams (shown on Map 1-1) is based on data surveyed and collected in the field by Clean Water Services in 2000 and 2001. The data was developed using a combination of digitally available stream centerlines from Metro's Regional Land Information System (RLIS) based on photo interpretation and other mapping data as well as surveyed streams from Pacific Water Resources. The data originated in Oregon State Plane coordinate system (North, North American Datum of 1983/1991) and were combined with global positioning system (GPS) locations of the Rapid Stream Assessment Technique data collected in the summer of 2000. Tigard Soils The U.S. Department of Agriculture and Natural Resources Conservation Service maintain a Soil Survey Geographic (SSURGO) database which includes data on Washington County, Oregon. This data developed by the National Cooperative Soil Survey is the most widely used and detailed source for soil geographic data. The information was prepared by digitizing maps,by compiling information onto a planimetric correct base and digitizing, or by revising digitized maps using remotely sensed and other information. The data comprises a detailed, field verified, inventory of soils and miscellaneous areas that normally occur in a repeatable pattern on the landscape and that can be cartographically shown at the scale mapped. • • Natural Resources Page 1-45 Draft— Tigard 2007 • I • • • : , • . • • • w * 1 * .. •••• • • • .. - • •••• •• ..... •••• . . • • •• -. ••-- . „ • •• ...... . ........... . .. .. . , ....... . . . ... • • • ••• • . . . .. . .. .. .. • r,* •• S • '••••••••: ••.. • • . . • • • . . • • • • • • • • • . :. • • • fiq • •.. : ••• 4.• • • ., •••; • • . . . . 4 • •4•11P • • • • • • ; , • • 11.11:0" ; • • • I 1 •:: I.1 • • • • • E N V I R O N M E N T A L Q U A L I T Y • - _ _ / I , : 1 DEFINITION: Managing ,p.•., „�., .. j- -} ,, r :�,. ' ' t' ,. the effects of N,W;_- s `= t. human impacts on ''`'- . , • . ri - - .1-• air , water and land p `.�"= ,}. -r , 1"' I,- - resources , including energy . _� �.t�;E; �.�:., . w:-: • -- .. -'; • CHAPTER 2: AIR RESOURCES (GOAL 6) PAGE 2-3 WATER RESOURCES (GOAL 6) PAGE 2-9 LAND RESOURCES (GC)AL 6) PAGE 2-16 ENERGY (GOAL 13) PAGE 2-22 Key City Departments: Contact: Community Development Darren Wyss,Associate Range Planner Public Works darren@tigard-or.gov • • • E N V I R O N M E N T A L Q U A L I T Y 11111 Environmental Quality addresses the air we breathe, the water in our streams and lakes, the amount of waste entering the ground,and the amount of energy we consume. The collective actions of the City and its 45,500 residents and businesses can affect the quality of these resources. The City and region have developed systems to manage development's impacts in order to maintain and improve resource quality. This includes protecting the environment's ability to support a certain amount of development without detrimental effects (carrying capacity), avoiding degradation, and implementing conservation measures. These principles are based on Oregon Statewide Planning Goals 6 and 13: • Goal 6: Air,Water and Land Resources Quality o To maintain and improve the quality of the air, water and land resources of the state. • Goal 13: Energy Conservation o To conserve energy. The City must ensure that future development, when combined with the existing development, efficiently maintains a level of resource quality that does not threaten or violate applicable rules, statutes,or standards. This report establishes a baseline of existing conditions in 2006, using maps, data and a review of existing plans, statutes and standards. It is designed to update the original 1983 sections "Air, Water and Land Resource Quality" and "Energy" in the existing Vol. 1 of the Comprehensive Plan. This report will aid the City as it updates its Comprehensive Plan policies and plans for future development. ODAT A S U M M A R Y Four resources are considered in this report: Land, Air, Water and Energy. Although presented independently, the resources contribute to an interconnected system with a limited carrying capacity. Additionally, the resources cross jurisdictional boundaries, requiring regional collaboration and planning efforts. • Air. This section focuses on air quality trends and the current and potential pollutant impacts from land use, businesses,residents,and City government. • Water. This section focuses on water quality trends, point and non-point pollution, stormwater maintenance, and riparian restoration efforts. • Land.This section focuses on solid wastes,including recycling,disposal and hazardous sites and facilities. • Energy. This section focuses on energy supply and conservation, including alternative forms,efficiency standards,and City government efforts. 1111 Environmental Quality Page 2-2 Draft—Tigard 2007 • • 1 . A I R R E S O U R C E S Q U A L I T Y • Clean air is essential for a healthy environment and to provide the opportunity for citizens to enjoy a healthy lifestyle. To ensure access to clean air, the federal Clean Air Act was created as the primary regulatory framework for national, state and local efforts to protect air quality. Under the Clean Air Act, the Environmental Protection Agency (EPA) is responsible for setting standards, known as National Ambient Air Quality Standards (NAAQS), for pollutants considered harmful to people and the environment. These standards are set at levels that are meant to protect the health of the most sensitive population groups, including the elderly, children and people with respiratory diseases. Air quality planning is focused on meeting the NAAQS and setting deadlines for meeting these standards. The Oregon Department of Environmental Quality (DEQ) is responsible for protecting Oregon's air quality by issuing permits, developing programs, and monitoring air pollution to ensure communities meet the NAAQS and to protect Oregon's pristine views. Air pollutants identified in the 2005 DEQ Air Quality Report as the greatest concern in Oregon are: • Ground-level ozone, commonly known as smog • Fine particulate matter (mostly from wood smoke, other combustion sources,cars and dust) • Hazardous air pollutants (also called Air Toxics) • Carbon monoxide (mostly from motor vehicles) As air quality does not know political boundaries, regional efforts were established to monitor and plan for pollutants. The City of Tigard is part of the Portland Area Airshed (PAA), which is defined by the Metro • service boundary. The DEQ is responsible for ensuring the PAA meets the national standards and developing the necessary plans to continue compliance. Currently, the PAA meets all NAAQS standards (three-year averages are used to determine attainment/non-attainment of the standards: eight-hour ozone, particulate matter, and carbon monoxide). However, DEQ is required to develop maintenance plans for carbon monoxide and ozone to ensure continued compliance. Some elements of the plans are the Motor Vehicle Inspection program, the Employee Commute Options (ECO) program, and the Industrial Emission Management program. At the local level, the City can also have an impact on air quality. Land use plans can help reduce the number of automobile trips taken by residents and also ensure that industries requiring DEQ permits do not negatively impact the community. Promoting the planting of trees can take advantage of the natural ability of vegetation to convert carbon dioxide to oxygen and also screen noise pollution. The City's Environmental Performance Standards (Tigard Municipal Code, Chapter 18.725) address noise, visible emissions, odors, glare and heat that may cause problems for residents. The City can also develop organizational policies to reduce air pollution. For example, the City has purchased eight hybrid vehicles and rewards employees for using alternative transportation modes through participation in the ECO Incentive Program and the CareFree Commuter Challenge. III Environmental Quality Page 2-3 Draft— Tigard 2007 • S 1 . A I R R E S O U R C E S Q U A L I T Y • I N V E N T O R Y A. AIR QUALITY TRENDS A , hcab1e<rules statu es and `a that j <:unicactaikresources • ahtyxwtt • DEQ monitoring of air quality for NAAQS attainment is Ci include � i based on the Portland Airshed Area (PAA) and t >-:_' " �- s ; ;4y4 attainment trends are reported annually. The latest data ' x £ ,Federal CI are found in the 2005 DEQ Air Quality Report and are • i summarized here: �� '' . Quality ' ;.4 • The Portland Airshed Area is in compliance with e, •z I n x rk of 4° Oxe r a: f s r. the NAAQS. g - e• s a �� •� � • The 24-hour particulate matter level in 2005 was �, �` Y 0 o n a arb a s a - • ' a CP ' roughly 33/o of the allowable limit and has only ;, � ��aric�ma exceeded the standard once (in 1991) since 1985. 7 e ovals; • The eight-hour average carbon monoxide level in -i .. 2005 was roughly 33% of the allowable limit and W'8'.�IV1 tro ohtan has been decreasing steadily since hovering : P 6 : , ,,,�' 4Ti d�Tr p a . .®. '�� around the standard in the late 1980s. More 1 4- ys, y $. En onrnen �!s n ••: a stringent emission standards and better s ' �, f X a . va • technology contributed to this decrease. `� � °- "'//r � y `1;1;Oregon' :OW R d �: • • The eight-hour average ozone level was roughly ;;4",,N .4y� ' ;.;.,�,-�,E'm � ��C p ( �a tiara ,> ,� .� x 80% of the allowable limit and has remained - 'y,.. y-(. � '-� q, 1 1%-.Ti rcl-rive ears a c R o rce steady over the past seven years. It has not (�}�' 's;' �.,�.�i' s . Managementt Plan exceeded the standard since 1998. ?" ``" `Y '.F " �`i°" £��W i;.. xts, „.f:s The DEQ also reports an Air Quality Index (AQI) on an hourly basis for 30 cities distributed regionally across the state. The AQI is computed using the 24-hour average for particulate matter and the eight-hour average for ozone.The AQI is posted under the following descriptors: Good • Pollution is less than half of the National Ambient Air Quality Standard (NAAQS) for any of the pollutants measured. Moderate • Unusually sensitive people should limit prolonged outdoor exertion. Unhealthy for Sensitive Groups(UFSG) • Ozone - Active children, adults, and people with respiratory disease such as asthma should limit prolonged outdoor exertion. • Particulate— People with heart and lung disease, older adults and children should reduce prolonged or heavy exertion. • Environmental Quality Page 2-4 Draft— Tigard 2007 • • 1 . A I R R E S O U R C E S Q U A L I T Y Cf.IP • Unhealthy • Ozone -Active children and adults and people with respiratory disease such as asthma should avoid prolonged outdoor exertion. Everyone else, especially children, should limit prolonged or heavy exertion. • Particulate - People with heart or lung disease, older adults and children should avoid prolonged or heavy exertion. Everyone else should reduce prolonged or heavy exertion. Very Unhealthy • Ozone -Active children and adults and people with respiratory disease such as asthma should avoid all outdoor exertion. Everyone else,especially children, should limit outdoor exertion. • Particulate - People with heart or lung disease, older adults and children should avoid all physical activity outdoors. Everyone else should avoid prolonged or heavy exertion. An AQI is not computed for the City of Tigard, but three jurisdictions within the PAA are part of the reporting. Results from 2005 are shown in Table 2-1. Table 2-1: 2005 Reported AQI Days Good Moderate UFSG Unhealthy No AQI Beaverton 329 35 0 0 1 Hillsboro 269 50 5 0 41 Portland 213 55 0 0 0 Source:DEQ Air Quality Report,2006 • B. INDUSTRIAL/COMMERCIAL POLLUTANTS DEQ is responsible for issuing Air Contaminant Discharge Permits (ACDP) to regulate minor sources of contaminant emissions. The permits are issued based on the type and amount of emissions, which also determines the length of the permit. The ACDP covers a wide range of businesses, from auto body repair shops to lumber mills. There are currently six businesses operating with an ACDP in the City of Tigard. DEQ also issues Title V Operating Permits (Title V) for major industrial sources of pollution. Title V applies to a business that has the potential to emit 100 tons of any criteria pollutant, 10 tons of a single hazardous pollutant, or 25 tons of any combination of hazardous pollutants. Title V does not tighten emission standards, but places a greater responsibility on the business for monitoring, reporting, and certifying compliance with the conditions of the permit. There are currently no Title V permit holders in Tigard. Before DEQ issues an ACDP or Title V permit, they are required by law to obtain a Land Use Statement of Compatibility (LUSC) from the City to verify the land use is in compliance with the Comprehensive Plan. 11111 Environmental Quality Page 2-5 Draft—Tigard 2007 • • 1 . A I R R E S O U R C E S QUALITY • C. TRANSPORTATION POLLUTANTS Motor vehicles are now the primary source of air pollution in Oregon (2005 DEQ Air Quality Report) with ozone, carbon monoxide,and carbon dioxide the major pollutants associated with them.Although the PAA is in compliance with Clean Air Act standards, air quality can continue to be improved by either reducing motor vehicle trips or their pollution emissions. No data exists on the amount of pollution generated from motor vehicle trips taken by Tigard residents, but data is collected for the Portland metro area on per capita Daily Vehicle Miles Traveled (DVMT). For example, each resident drove an average of 20.7 miles a day in the year 2004 (Metro Regional Government). The DVMT has not fluctuated much since 1990, with a low of 18.8 and a high of 21.7 DVMT, but the population has increased over that period. For Tigard, this translates into a 67% increase in total miles traveled by residents from 1990 to 2004 (Table 2-2). This increase can be readily seen with the increasing congestion along 99W,which has a direct impact upon the community's air quality. The City has several options for encouraging residents to Table 2-2: Miles Traveled by Tigard Residents decrease their DVMT. The Tigard Comprehensive Plan Tigard Miles and Transportation System Plan, as well as the Metro Metro DVMT Population Traveled Functional Plan and Regional Transportation Plan 1990 18.8 29,435 553,378 address these options, which also encourage energy 2004 20.7 44,650 924,255 conservation: Source:Metro,Tigard Community Development Department, 2006 • • Establishing mixed-use zones to encourage working,living, and shopping in the same neighborhood • Land use patterns that provide alternative transportation opportunities • Providing opportunities for increased density along public transit lines • Developing a public transit system that is reliable, connected,and efficient • Building a bicycle and pedestrian network that is connected, safe,and accessible • Connecting streets to provide additional travel options To improve air quality through reducing vehicle emissions, DEQ has implemented the Vehicle Inspection Program (VIP) as part of the maintenance plan for the Portland metro region. The program administers emissions tests for gasoline-powered vehicles that are 1975 and newer and diesel vehicles with a gross vehicular weight of 8500 pounds or less that are 1975 or newer.The test ensures a vehicle's emission system is functioning and is required to renew a vehicle's registration.Tigard residents participate in the VIP. Other options for residents to decrease vehicle emissions are to take advantage of the hybrid vehicle choices currently on the market, participate in carshare programs, carpool, or use alternative fuels that produce less pollution. Alternative fuels available include biodiesel and ethanol. A popular carshare program, Flexcar, has 130 vehicles in the Portland Metro area.None are located in or near Tigard and the closest Flexcar vehicle is located at 141st and Millikan Way in Beaverton. • Environmental Quality Page 2-6 Draft— Tigard 2007 • , 1 . A I R R E S O U R C E S Q U A L I T Y • D. HOUSEHOLD POLLUTANTS Household activities also contribute to the overall air quality of the community. The primary sources of household pollutants in Tigard include wood burning fireplaces, and lawn and garden equipment. Wood burning fireplaces and stoves used for heating homes have a big impact on the amount of fine particulate matter in the air. There is no data to gauge the impact from this activity on overall air quality in Tigard, but health risks increase within neighborhoods as more homes are heated with wood. This is especially true when wind patterns contribute to the smoke hovering around ground level. Currently, the installation of new fireplaces must be permitted and inspected by the City. The DEQ Wood Burning Program also works with Oregon communities to solve and prevent air pollution problems caused by residential wood burning. DEQ provides information about burning wood cleanly and helps local counties prepare and implement strategies to reduce pollution from wood smoke. Gasoline-powered lawn and garden equipment emit ozone, carbon monoxide and carbon dioxide. Equipment with a two-stroke engine is especially troublesome to air quality, but there is no data to gauge the impact. Exploring options to gasoline-powered equipment can allow homeowners to improve air quality in the community. Backyard burning of yard debris has the same air quality impacts as wood burning fireplaces and stoves, but the activity is illegal in the City of Tigard. Outdoor recreational burning, such as a firepit or outdoor II) fireplace,is legal in the City and affects air quality with the release of small particulate matter. There are currently no policies or regulations addressing household pollutants in the City. Most jurisdictions are using education to address the impacts of household activities on air quality in hopes of minimizing the impact on overall community air quality. E. NOISE AND LIGHT POLLUTANTS DEQ defines noise as a pollutant that is transmitted through the air. Noise control standards have been adopted in Oregon for various noise-generating activities and these standards protect the public from the known adverse health effects of noise, as well as protecting public welfare. In 1991 budget cuts eliminated the noise program at DEQ and enforcement of the standards is now the responsibility of local enforcement officials. Sections 7.40.130 through 7.40.210 of the Tigard Municipal Code establish noise regulations for the community. From February 2001(when the last major change to the code occurred) to May 2006, a total of 48 noise related code enforcement cases were closed by the Code Enforcement Officer. Cases ranged from yard equipment to construction activity to commercial heating and air conditioning equipment. Light pollution is also a concern of the community and Tigard's Environmental Performance Standards address this issue. The standard does not permit direct or sky-reflected glare to be visible at the lot line. This includes sources such as floodlights and high temperature processes such as welding. • Environmental Quality Page 2-7 Draft— Tigard 2007 • • 1 . A I R R E S O U R C E S QUALITY • F. LOCAL GOVERNMENT EFFORTS The City has taken steps to voluntarily save energy and improve air quality in the community. Eight hybrid vehicles have been purchased for the City fleet and one more is scheduled for purchase in fiscal year 2006- 07. Hybrid vehicle pollutant emissions are lower than conventional motor vehicles. An analysis of purchasing more hybrid vehicles or possibly alternative fuels is scheduled, both of which could reduce air quality impacts from the City fleet. The City is also a member of the Westside Transportation Alliance (WTA). The WTA provides information on alternative transportation options and organizes the month long CareFree Commuter Challenge every summer. City employees are eligible to participate in the challenge and anyone who reaches an established goal of using alternative options is included in a random prize drawing. The City is required by DEQ to participate in the Employee Commute Options (ECO) program, as are all employers within the Portland region with 100 or more employees. The City offers incentives to employees who use alternative transportation modes 50% of the time over an eight-week period and this satisfies compliance with the ECO program. In the year 2005, an average of 5% of City employees participated in the incentive program each month. K E Y F I N D I N G S • The air pollutants of greatest concern in Oregon are: • • Ground-level ozone, commonly known as smog • Fine particulate matter (mostly from wood smoke,other combustion sources,cars and dust) • Hazardous air pollutants (also called Air Toxics) • Carbon monoxide (mostly from motor vehicles) • The City of Tigard is part of the Portland Area Airshed, which is currently in compliance with the Clean Air Act requirements. • DEQ has issued six active Air Contaminant Discharge Permits (ACDP) within the City to regulate minor sources of contaminant emissions. • Motor vehicles are now the primary source of air pollution in Oregon and the number of miles driven daily by Tigard residents has increased 67% since 1990. • Options available to the City for reducing vehicle miles traveled: • Mixed-use zones that encourage working,living,and shopping in the same neighborhood • Land use patterns that provide alternative transportation opportunities • Providing opportunities for increased density along public transit lines • Developing a public transit system that is reliable, connected,and efficient • Building a bicycle and pedestrian network that is connected, safe,and accessible • Connecting streets to provide additional travel options • Options available for decreasing motor vehicle emissions include alternative fuels and vehicles. • The primary sources of household pollutants in Tigard include wood burning fireplaces, and lawn and garden equipment. • The City regulates noise and light pollution through Environmental Performance Standards. • The City can improve air quality for the community by continuing to participate in alternative transportation programs and by purchasing alternative vehicles • Environmental Quality Page 2-8 Draft—Tigard 2007 • • 2 . W A T E R R E S O U R C E S QUALITY III The quality of the water in our streams, rivers, lakes, and wetlands is important to the health and welfare of the community, as well as the fish and wildlife that rely on clean water for habitat. To limit harmful impacts from human activities on water quality, the Clean Water Act (CWA) was enacted. It regulates the discharge of pollutants into waterways through National Pollutant Discharge Elimination System (NPDES) permits. In the State of Oregon, the Department of Environmental Quality (DEQ) has been charged with establishing standards, regulating, and monitoring Oregon's waters for compliance with the CWA and NPDES. Large municipalities typically have NPDES permits for their wastewater treatment facilities and for stormwater runoff, called a Municipal Separate Storm Sewer System (MS4) permit. In urban Washington County, which includes the City of Tigard, the permits have been combined and are held by Clean Water Services (CWS). The combined permit was issued for the entire Tualatin River watershed,which promotes a regional effort to improving water quality,and requires CWS to submit a Stormwater Management Plan and a Wastewater Management Plan to DEQ. The plans outline the best management practices that CWS, its member cities, and Washington County will employ to reduce pollutant discharges, regulate temperature, and comply with any Total Maximum Daily Load (TMDL) levels that have been established. The City of Tigard is a co-implementer of the permits and associated plans through an Intergovernmental Agreement (IGA)with CWS. The IGA outlines the functions the City must perform that are critical to the operation, maintenance, and management of stormwater and wastewater facilities and to ensure compliance with the CWA. III Clean Water Services has also developed a Surface Water Management Program, primarily addressing non- point source pollution, to protect and enhance water quality outside of the permits required by the CWA. The Healthy Streams Plan, a public education program, and drainage improvements are among the activities undertaken to improve the Tualatin River watershed. In addition to collaborating with CWS to comply with the Clean Water Act, the City has shown its commitment to improving water quality in the community through a number of actions. A full-time Surface Water Quality Coordinator is on staff to implement the Healthy Streams Plan. The Coordinator manages projects that target riparian restoration and is a member of the Tualatin Basin Public Awareness Committee that promotes Naturescaping and provides awareness about the effects of pet and waterfowl waste on water quality. The Community Development Code contains a chapter devoted to the protection of Sensitive Lands, which includes wetlands, drainageways, and the 100-year floodplain. The Sensitive Lands chapter promotes the function of these resources through implementing CWS Design and Construction Standards and Metro's Functional Plan. The Citywide Sewer Extension Program connects neighborhoods that currently rely on septic systems to the City's wastewater system. The City can also take steps to improve water quality through the land use planning process. Run-off and pollutants from new development can be reduced by strict erosion control standards, decreasing the amount of impervious surface on a site, promoting low impact development, and encouraging green building techniques. IIII Environmental Quality Page 2-9 Draft—Tigard 2007 • • 2 . WATER R E S O U R C E S Q U A L I T Y (11) • I N V E N T O R Y A. WATER QUALITY TRENDS Applicab�e`rulc'` ``• an impactdwater e� � "`•-;in ` r, x Water quality monitoring has been ongoing in the ;��Ci inclu•e ;� Tualatin River basin since the early 1970s. Data from the long-term monitoring stations indicate that water quality 1. o " -F,„*Igs is generally improving, despite continued urbanization in K O re s g g0��"4 ri%�. the watershed (Healthy Streams Plan, 2005). This �< °Quah f . improvement can be attributed to regulation, better ft3. or , ® .4, -0 4,% • . �' • 9 k �k erosion and run-off control, and the removal of f numerous small sewage treatment plants when ¢. x r ` wastewater flows were diverted to the Durham T . . . x•15 = . �.. 0®. Wastewater Treatment Facility. To assess water quality Cl �� p �; Af�'*'1y ti�� o • 1 t'is1� trends, Clean Water Services monitors temperature, ons c v dissolved oxygen, pH, dissolved and suspended solids, ,74 Tigar, ammonia and nitrates, phosphorous and algal growth, '17.'X . � is; "` }:4 1 . and bacteria at various sites. The City of Tigard sits at the lower end of the Tualatin River watershed and the lower end of the Fanno • Creek watershed, which drains 85% of the City. Water quality monitoring results for Fanno Creek and tributaries can be seen in Table 2-3.The target numbers were developed for the Healthy Streams Plan. Table 2-3:Water Quality Indicators from Monitoring Stations in Tigard Temperature Dissolved Oxygen Suspended Solids Phosphorous Bacteria (Celcius) (mg/L) pH (mq/L) Nitrates(mg/L) (mg/L) (cfu/100 ml) Result 1 Target Result I Target Result I Target Result I Target Result Result Result Fanno Cr @ Durham Rd 10-Jan-06 9.8 n/a 9.8 n/a 7.1 6.5-8.5 56 10 0.69 0.2 740 11-Jul-06 18.5 10-17.8 6.1 >6.5 7.7 6.5-8.5 6 6 0.69 0.17 n/a Summer Cr @ 121st Ave 18-Jan-05 7.4 n/a 10.3 n/a 7.4 6.5-8.5 28 10 0.6 0.11 300 26-Jul-05 22.8 10-17.8 4.5 >6.5 7.7 6.5-8.5 n/a 6 0.08 0.43 14000 Ash Cr in Metzger Park 10-Jan-06 9.9 n/a 10.4 n/a 7.1 6.5-8.5 42 10 1.84 0.22 3100 11-Jul-06 16.8 10-17.8 7.8 >6.5 7.8 6.5-8.5 12 6 0.26 0.2 n/a Deny Dell Cr @ Walnut St 10-Jan-06' 10.2 n/a 10.1 n/a 7.3 6.5-8.5 42 10 2.19 0.18 720 11-Jul-06 15.3 10-17.8 7.6 >6.5 7.7 6.5-8.5 8 6 1.44 0.15 n/a source:Clean water services.zoos The State DEQ also monitors water quality in Fanno Creek and the Tualatin River. The results are reported in the annual Oregon Water Quality Index (OWQI) summary report. Each monitoring station is given a numerical OWQI score (See Table 2-4) that is reported as a 10-year average. Both the Tualatin River and Fanno Creek were classified as having poor water quality in the 2005 report, meaning they received a 10- year average OWQI between 60 and 79. This barely misses the lowest ranking of very poor,which is a score below 60. Both water bodies received a very poor ranking based on the 10-year average reported in 1995. • Environmental Quality Page 2-10 Draft- Tigard 2007 • ! 2 . W A T E R R E S O U R C E S QUALITY • Better stormwater management, connecting residents to the wastewater system, and education about non- point source pollution helped improve water quality in the Fanno Creek watershed. The issuance of TMDLs in 1988 and improvements to wetland function is attributed to the increased OWQI for the Tualatin River. In addition to the OWQI score, the Clean Water Act established a process for developing a list of Table 2-4: Oregon Water Quality Index Scores(OWQI) 303d water bodies. A 303d water body is not Average OWQI meeting ambient standards set by DEQ and must Monitoring Site 1986-1995 1996-2005 implement a water quality management program Fanno Cr @ Bonita Rd 55 61 to outline the steps needed to meet the standards. Tualatin River @ Boones Ferry Rd 37 60 In 1998, several water bodies in Tigard were Source:Oregon Department of Environmental Quality,2006 classified as 303d, which led CWS to formulate new TMDLs for each standard that was exceeded by the listed water body. The TMDLs were approved in August 2001 by DEQ, which led to all water bodies in Tigard being removed from the 303d list in 2002. Although removed from the list because of an approved management program, they are still water quality limited. The Tualatin River (iron and manganese) and Fanno Creek (dieldrin) will be re-listed as 303d water bodies when the 2004/06 report is approved. The re-listing will require new TMDLs to be established for each. B. POINT SOURCE POLLUTION Point source pollution is defined as having a concentrated outlet that can be monitored and measured. The • predominance of point source water pollution is wastewater discharge from sewage treatment plants or industrial processes, and stormwater discharge into water bodies. This type of pollution is easily recognized because of a pipe or other means of visible transference to a water body. Attempts to reduce the negative impacts on water quality are taken through regulation and permitting requirements administered by DEQ. In the City of Tigard, CWS operates the Durham Wastewater Treatment Facility,which releases the treated wastewater into the Tualatin River. The facility is operating under the basin-wide NPDES permit and is in compliance with Clean Water Act regulations. The City has an IGA with Clean Water Services to perform management and maintenance tasks on City-owned wastewater infrastructure to ensure continued compliance with the regulations. The Durham Wastewater Treatment Facility has the only NPDES permit issued in Tigard. Stormwater management and discharge is more complicated as it walks the line between point source and non-point source pollution. It can be classified as point source because of the network of catch basins, pipes, and outfalls that can be followed to the point of release into a water body. However, the pollution being transmitted is predominately from non-point sources such as fertilizer and pesticide run-off, parking lot run-off (oil, anti-freeze, gasoline), and pet waste. See the Non-Point Source and Stormwater Management sections below for more information. • Environmental Quality Page 2-11 Draft— Tigard 2007 • • 2 . W A T E R R E S O U R C E S QUALITY • C. NON-POINT SOURCE POLLUTION "Most people believe that the largest source of water pollution comes from a pipe, such as from factories and sewage treatment plants. But the fact is, the largest source of water pollution in Oregon's rivers, lakes and streams comes not from a pipe - but from surface water runoff. This type of pollution is called "non- point source" pollution because it comes from a wide variety of sources, not from a single discharge pipe" (Oregon DEQ). Non-point source is defined in Oregon Administrative Rule 340-41-006(17) as diffused or unconfined sources of pollution where wastes can either enter into, or be conveyed by, the movement of water to public waters. This type of pollution cannot be traced back to a single origin, making it problematic to control or regulate. When it rains, water washes over driveways, roofs, agricultural lands, streets, lawns, construction sites, and logging operations picking up soil, garbage and toxics. The amount of pollution carried by rainwater, snowmelt and irrigation water flowing into streams and lakes, and through the soil into groundwater is much larger than pollution from industry. The primary types of non-point source pollution are: • Sediment from wind and water erosion of soils • Nutrients from fertilizers and animal wastes • Bacteria from animal wastes and septic systems • Pesticides • Toxics from manufactured and refined products like oil,paints, and anti-freeze • The State of Oregon attempts to reduce sediment pollution through permit requirements for new developments. DEQ, in accordance with the Clean Water Act, requires a 1200-C Construction Stormwater General Permit (12-C) for construction activities that disturb one or more acres. The issued permit involves submitting an Erosion and Sediment Control Plan for the project. CWS and the City of Tigard act as permit agents after DEQ issues the 12-C. As with all non-point source pollution, it is difficult to quantify the contribution of fertilizer and pesticide run-off to diminished water quality. However, access to and how each is applied is largely unregulated and no training or education on their use is required for most purchases. This means public education and outreach, currently undertaken by CWS, is necessary to reduce the amount of these pollutants entering the water system. Bacteria from animal wastes are problematic in the Fanno Creek basin. Water quality tests administered by Clean Water Services found high concentrations of canine waste in the creek. This non-point source has been identified as a priority for public education and outreach, and must be addressed by pet owners on a personal basis to improve water quality in the basin. Bacteria from human waste, primarily from septic systems, are not nearly as problematic. However, the City is currently implementing a Citywide Sewer Extension Program to connect neighborhoods still using septic systems to the wastewater system. This program is proactive in helping to reduce future problems from non-functioning or failed septic systems. • Environmental Quality Page 2-12 Draft— Tigard 2007 • • 2 . W A T E R R E S O U R C E S Q U A L I T Y (!c) • Toxics pollutants such as oil and anti-freeze are primarily introduced to water sources from motor vehicle run-off on impervious surfaces. Residents can reduce their impact by ensuring their vehicles are in good working condition and reducing their number of trips. Other toxic products like paint must be properly disposed of and outreach to residents is important to keep the toxics out of the community's wetlands, streams, and lakes. The outreach will give them the information needed to ensure their actions to not decrease water quality in the City. D. STORMWATER MANAGEMENT Stormwater is a key factor in stream health as the management of quality and quantity influences the ability of a stream to absorb changes in water quality and hydrology. Clean Water Services holds the basin-wide MS4 permit for stormwater management and has also adopted the Stormwater Management Plan for the Tualatin River watershed. The City of Tigard implements the plan through an IGA with Clean Water Services and some primary requirements are: • Monthly street cleaning schedule • Catch basin cleaning • Line cleaning and repair • Water quality tract/facility maintenance Clean Water Services has required stormwater to be pretreated before it is discharged into any surface waters since 1991. However, highly urbanized older developments that lack these pretreatment facilities • often experience a "first flush" of pollutants during the early autumn rains. The City of Tigard currently maintains 79 stormwater detention and water quality facilities (see Table 2-5). The numbers of private facilities are not tracked by the City and are generally on commercial properties, while City maintained facilities are predominately on residential properties. Table 2-5:Tigard Water Quality Facilities Water quality ponds and swales are intended to detain run-off Type Number Acres for filtration of pollutants and to copy a more natural, slower Pond (wet or dry) 40 16.0 release into streams. Filter systems are generally used in Swale 23 12.1 developments that cannot accommodate a swale or pond, and Filter System 5 n/a can be easily cleaned and maintained. Detention tanks and pipes Detention tank 1 n/a provide little removal of pollutants, unless combined with other Detention pipe 10 n/a facilities, but reduce the immediate transfer of stormwater to a Total 79 28.1 stream. This helps to prevent channel scouring and erosion. Source:City of Tigard Public Works,2006 One of the greatest impacts on stormwater quality is the amount of impervious surface in a watershed. Impervious surfaces collect pollutants and toxins that easily run-off into the system and also increase the peak flow of storm events. Reducing the impervious surface coverage will encourage natural filtration of pollutants and help reduce the problems associated with scouring and erosion of stream channels from storm events. Additionally,green street concepts can provide a framework for improving stormwater quality through alternative designs and management principles. Burnham Street in downtown Tigard is scheduled to implement some green street concepts and act as a pilot project to assess the feasibility of future green street projects. • Environmental Quality Page 2-13 Draft— Tigard 2007 • • 2 . WATER R E S O U R C E S Q U A L I T Y • E. STREAM AND RIPARIAN RESTORATION The CWS Healthy Streams Plan identifies stream channel and riparian restoration as activities that can contribute to improved water quality. Restoring native riparian vegetation is critical to water quality because of its ability to filter nutrients and provide shade, structure, and food sources to streams. Retrofitting or repairing stormwater outfalls and culverts are important to overall system function by reducing pollutant discharge and channel erosion. Clean Water Services has taken the lead on Fanno Creek projects in the City of Tigard, while the City is responsible for managing the tributaries to Fanno Creek. The City identifies projects and goals for restoration activities during the 5-year Community Investment Program. The currently scheduled projects for the City of Tigard are shown in Table 2-6. These projects will enhance previous efforts that include the planting of approximately 30,000 native trees over the past six years as part of stream restoration and enhancement Table 2-6: CIP Projects and Goals projects. Additionally, over the last six years the City has planted an average of 50 street Culvert trees per year, 25 trees each Arbor Day, and Fiscal Year Tree Planting Replacement Outfall Retrofit 250 trees in parks, water quality sites, and 2006/2007 6,770 3 1 other areas. These efforts outside of the 2007/2008 10,154 3 1 riparian area help improve water quality 2008/2009 13,539 3 1 through interception and evapotranspiration 2009/2010 16,924 3 2 that reduces the amount of run-off entering 2010/2011 20,309 3 2 streams. Total 67,696 15 7 IIISource:City of Tigard Public Works,2006 Clean Water Services has also been involved in restoration projects that intend to restore the function of wetlands and floodplains in the City. Re- meandering channels and placing large woody debris in them encourages over bank flow. This allows pollutants to be filtered out of the water system by the floodplain and associated wetlands. The latest project took place on Fanno Creek in Englewood Park during the summer of 2006. The importance of wetland and floodplain function has been acknowledged by the City and resulted in the Sensitive Lands chapter of the Community Development Code. The chapter regulates development activity in areas identified as sensitive to reduce negative impacts to surface water bodies in the community. K E Y F I N D I N G S • The Federal Clean Water Act regulates the release of pollutants into waterways through the NPDES permit. • Clean Water Services holds the NPDES permits for wastewater and stormwater in the Tualatin River watershed and submits plans to Oregon DEQ outlining best management practices. • The City of Tigard implements the NPDES permits through and IGA with Clean Water Services. The IGA outlines the functions the City must perform to ensure compliance. • Clean Water Services has a number of programs, including the Healthy Streams Plan, which addresses non-point source pollution in the watershed. • Environmental Quality Page 2-14 Draft—Tigard 2007 • • 2 . W A T E R R E S O U R C E S Q U A L I T Y • • The City is devoted to improving water quality through the Sensitive Lands chapter of the Community Development Code and the Citywide Sewer Extension Program. • Water quality in the Tualatin River basin has been generally improving since the 1970s, despite continued urbanization in the watershed. • DEQ has characterized Fanno Creek and the Tualatin River as having poor water quality within the City of Tigard, and both will soon be added to the updated 303d list for the Tualatin Basin. • Point source pollution is predominately wastewater and stormwater discharge and is easily monitored and measured. • Non-point source is the largest source of water pollution in Oregon. • Run-off from impervious surfaces,pet waste,and erosion are problematic non-point sources. • Stormwater management is important to improving water quality in the City of Tigard and the City manages its system through the IGA with Clean Water Services. • The City maintains 79 water quality facilities that intend to remove pollutants and detain stormwater to reduce channel erosion. • Reducing impervious surfaces and using green street concepts can help improve stormwater quality. • Stream channel and riparian restoration activities can contribute to the reduction of water pollution. • The City has planted 30,000 native trees as part of stream restoration projects in the past six years. • The City has set a goal of planting 67,696 trees in the next five years. • Trees outside of the riparian zone can help improve water quality through interception and evapotranspiration. • Proper wetland and floodplain function can remove pollutants from the surface water system in the • community. • Environmental Quality Page 2-15 Draft— Tigard 2007 • • 3 . LAND R E S O U R C E S Q U A L I T Y 1111 Development activity inevitably leads to the production of waste. From the construction process through occupancy, by-products of human activity must be collected and properly disposed of to protect the health and welfare of the community and its resources. To accomplish this, the State of Oregon has created rules and statutes that provide direction for the reduction and efficient removal of waste. The Department of Environmental Quality (DEQ) has been charged with ensuring compliance with the rules and statutes, as well as preparing and adopting the Oregon State Integrated Resource & Solid Waste Management Plan. A significant outcome of the Plan was the creation of wastesheds (an area of the state that shares a common solid waste disposal system) and the requirement that local plans be developed for the wasteshed. The City of Tigard is a member of the Metro wasteshed and the local plan is the Regional Solid Waste Management Plan (RSWMP). The RSWMP is developed and administered by Metro and is currently being updated to address issues until 2015. The updated RSWMP will provide a framework for coordinating solid waste programs within the region, establishes direction for the system (reduction and recovery), identifies roles and responsibilities, and fulfills the state requirement that the Metro wasteshed have a waste reduction plan. The plan also addresses the impacts of future population growth on solid waste management and strives to minimize these impacts on land resources quality. The City participates in the process and implements the plan through the Washington County Cooperative,which includes a number of cities in the county. This regional collaboration is important to reducing the amount of waste generated and entering landfills. At the local level, the City is responsible for regulating and managing solid waste and recycling collection • services within the city limits, and reviewing collection rates and service standards. Garbage and recycling collection services are provided by private haulers who operate within established franchise boundaries.The City enters into franchise agreements with the private haulers for the removal of solid waste generated from residential, commercial, and industrial customers. Currently, Pride Disposal Company and Waste Management have franchise boundaries that overlap Tigard and they have agreements for service with the City(see Map 2-1). Additionally, Clean Water Services (CWS) operates the Durham Wastewater Treatment Facility within the city limits. CWS is responsible for the collection and disposal of waste that results from the treatment process. III Environmental Quality Page 2-16 Draft—Tigard 2007 • • 3 . LAND R E S O U R C E S QUALITY • I N V E N T O R Y A. SOLID WASTE .. ....; is Applicable rules, statutes;:and plar that r- im ac "Ian esources4`qualityw thin th The RSWMP meets the state requirements for local solid ;�:�; ;�; ,� � �'�,,e.,s,�""��,.�=j;�•"- ;�� -' Ci include ; waste planning and gives the Portland Metro region s w direction for meeting future solid waste needs. This = ." etro Re ona1Solid.Waste includes the collection, transfer, and disposal of solid � :., ••_:� -t-s ." � wastes, as well as identifying (local facilities ocal and age ent 2 re on Revts • Statute 4 Solid" a regional transfer stations). The plan also establishes waste reduction goals and outlines educational programs to meet the goals. Or ••n 'evise. tatute 459a�euse.ands`. ecy The City directly implements the plan through franchise 4 Qregoni dmi trativ`e Rule'.340-083 to a agreements with private haulers (Pride Disposal 340'0 :fr °i s Company and Waste Management). is collected S Tigar unieipal Code 11 04° ` A ent Garbage i �� g )' ;av f- -`'q! ;' ' rb�rsn,��,psa=';, -'!,'.;psi, r1 ,;6. Ore on "r=„,,-"_ 466: r RevzsedStatute 465'x'. : on a weekly basis and transported outside of the city ,�'�'°�-azardous �a L�cstatclHazardous;`>-� fN` limits to transfer stations for s o processing and disposal. �.�� a� Schedules, rates, and container sizes are established in the 0 ateixa s franchise agreement. £7 Oregon A•moos” ative",9;Rule 340-100 to r tip....., :;., � ,< .fir,.-:%di I 040 i4;'•M.'"¢y,.tr,x�'��,P �' ;r�::�'`,:':,,<,reid�Y"y",,`f}''n,�f •4 There are currently no collection or processing 8. D ;Q" of selz d Nazar"dour Waste Plan ":: ocessin facilities " � •;..• .,�, 9r . 'Administrative Rule;3401,=490: gin inside the city limits. Pride Disposal Company operates a 411.1.1',",,414.4 local transfer limits 139 <Rec and>Waste Red ict on ansfer station just south of the city ( 80 Sherwood-Tualatin Rd., Sherwood, OR 503-625-6177) that is available for use by the general public. Per capita, solid waste generation in the Metro region has been increasing at a rate of 3.2% over the last ten years. This data on solid waste collected is tracked and reported by the private haulers and is used by Metro to track regional trends and to assess the regional progress in achieving goals set in the RSWMP. B. RECYCLING To encourage recycling in the Metro region, the wasteshed has set target goals for increasing the waste reduction rate. Waste reduction refers to prevention (reuse, backyard composting) and recovery (recycling, composting, and energy recovery). The region currently has a 59%waste reduction rate and has established a target of 64%by the end of 2009. The RSWMP has several targeted areas for increasing waste recycling in the region. They include programs for commercially generated organics, the building industry, hazardous waste, waste recovery, and collection services. All are vital to the regional effort,but the City is directly involved in only the collection services. • Environmental Quality Page 2-17 Draft— Tigard 2007 • • 3 . LAND R E S O U R C E S Q U A L I T Y • Through the franchise agreements, recycling services are provided by private haulers (Pride Disposal Company and Waste Management) operating within the city limits.The services are available to commercial and residential customers. Materials that can be recycled curbside include: Newspaper Ferrous scrap metal Non-ferrous scrap metal Used motor oil Magazines Mixed scrap paper Corrugated cardboard Kraft paper Aluminum Milk cartons Empty aerosol cans Container glass High-grade office paper Tin cans Phone books • Plastic bottles Yard debris • Environmental Quality Page 2-18 Draft— Tigard 2007 • • 3 . LAND R E S O U R C E S Q U A L I T Y • Both private haulers offer 90-gallon co-mingle recycling containers that are collected weekly, glass bins that are collected monthly, and yard debris collection every other week. The schedules and container types are outlined in the franchise agreements. All materials collected curbside for recycling are transported outside of the city limits for processing.There are no facilities for collection or processing within Tigard. Pride Disposal Company operates a local recycling transfer station just south of the city limits (13980 Sherwood-Tualatin Rd., Sherwood, OR 503-625-6177) and Grimm's Yard Debris Composting facility (18850 SW Chipole Rd., Tualatin, OR 503-692-3756) is located south of the city limits on Highway 99W. Both are open to the general public. The most recent data on recycled materials collected within the city limits is for the year 2005. Residential customers (Pride Disposal and Waste Management data) had a recovery rate of 53.5%, while commercial customers (Waste Management-only data)achieved a recovery rate of 22.7%. Two of the target areas that Metro has identified as having significant room for improvement are the construction and business sectors. Currently, neither is required to recycle in the Metro region, except in the City of Portland. They are encouraged through education, assistance, and business recognition programs, but the City of Portland has implemented a program that requires businesses to recycle at least 50% of their wastes. No such programs exist in the Metro region for construction and demolition debris, but the State of California has a law requiring cities to promote the recovery of these materials. The cities enact ordinances • on an individual basis, but generally require a deposit on projects meeting specified criteria. Upon successfully recovering 50% of debris materials, the deposit is returned. The cities rely on waste recovery facilities to verify the amount of material recovered. The City of Tigard distributes educational information about recycling through the Solid Waste and Recycling Program Coordinator with the goal of reducing solid waste leaving the community. C. HAZARDOUS WASTE Hazardous waste is defined in OAR 340-101-0033 and OAR 340-102-0011. Materials included in the definition range from household cleaning products to commercial pesticides to industrial wastes. The DEQ regulates hazardous waste in Oregon and it administers permitting, collection, disposal, and cleanup programs, as well as educational programs to reduce risks associated with hazardous wastes. Examples of these risks include fire, poisoning, environmental contamination, and injury to disposal system workers. It is the goal of DEQ to ensure the provision of services that address and reduce the highest risks first. Currently, DEQ has approved 92 permits in the City for hazardous waste generation. The permits range from retail paint stores to autobody shops to light manufacturers. There are also a total of 59 permits that have been issued for underground storage tanks for storing petroleum-based fuel products.The majority has been issued to gas stations, but a few permits are held by businesses to refuel a motor vehicle fleet. DEQ also oversees the cleanup of hazardous sites; Table 2-7 shows the current status and number of properties identified as environmental cleanup sites within Tigard. As of August 7, 2006, there have been 27 sites • Environmental Quality Page 2-19 Draft— Tigard 2007 • 3 . LAND R E S O U R C E S Q U A L I T Y • identified with almost half (13) needing no further state action. For complete definitions of site status see Appendix A. Table 2-7: DEQ Environmental Cleanup Sites in Tigard Proper planning for facilities and procedures to Number of dispose of hazardous waste can only provide a Site Status' Sites certain level of protection against the risks. The No Further State Action Required 13 other important component is education. Remedial Investigation 3 Businesses that use or produce hazardous waste, State Expanded Preliminary Assessment and the companies that collect, store, and dispose Recommended (XPA) 3 of the waste are regulated by law. This process is Site Screening Recommended (EV) 2 effective in minimizing the risks from this sector. However, household products are not as easily Independent Cleanup Program 1 regulated and this is why education is important. No Further Action (Conditional) 1 The DEQ Household Hazardous Waste Partial No Further Action 1 Management Plan and the Metro RSWMP both Preliminary Assessment Equivalent provide direction and programs for educational Recommended (PAE) 1 activities. They include information on alternative Remedial Action 1 products, proper handling, and the locations of Site Investigation Recommended (SI) 1 disposal sites, which helps reduce household risk. 1 For status definitions please see Appendix A Without proper disposal, household hazardous Source:Oregon DEQ,August 7th,2006 waste cause soil or water contamination. IIIThe DEQ Household Hazardous Waste Management Plan also provides funding for counties to administer collection events or develop permanent facilities. In the Metro wasteshed, two household hazardous waste facilities exist. They are located at the Metro Central transfer station (6161 NW 61st Ave, Portland) and Metro South transfer station (2001 Washington St., Oregon City). Additionally, Metro hosts a free household hazardous waste collection event throughout the summer months. The event moves weekly and has historically been located in Tigard at least once a year. The City also recognizes the importance of keeping household hazardous waste out of landfills and partnered with Pride Disposal and Total Reclaim to plan the E-Waste Collection Event in September 2006. The event provided the opportunity for residents dispose of computers, monitors, printers, hard drives, cables, modems, keyboards, fax machines,microwaves,and TVs up to 36 inches. Over 300 cars helped save over 450 computer monitors and TVs as well as 39 pallets of other electronic waste from entering the landfill. Printed circuit boards were recycled as copper, silver,gold, antimony, chromium, zinc, tin, and lead. Plastic shells of computer equipment were sent to a reprocessing plant to be grinded up and made into new plastics and the cathode ray tubes in monitors and TVs were sent to a secondary smelter to be processed. Currently, there are no permanent hazardous waste collection, storage, or disposal facilities within the city limits.All hazardous waste is transported outside of Tigard for processing and disposal. D. WASTEWATER SLUDGE • Environmental Quality Page 2-20 Draft— Tigard 2007 • I 3 . LAND R E S O U R C E S Q U A L I T Y • Clean Water Services recycles more than 31 dry tons of safe, nutrient-rich organic material from the millions of gallons of wastewater treated each day at their four facilities (the Durham facility is located in Tigard). The material, known as Biosolids, is produced from the solids that settle out during primary and secondary treatment. The solids are routed to digesters and undergo anaerobic bacterial digestion for a month, are dewatered, and transported outside of the city limits to be used as a soil amendment for local farms and rangeland in Eastern Oregon. K E Y F I N D I N G S • The City is a member of the Metro wasteshed and the local plan is the Regional Solid Waste Management Plan (RSWMP), which complies with DEQ requirements. The plan provides a framework for coordinating solid waste programs within the region, establishes direction for the system (reduction and recovery), and identifies roles and responsibilities. • The City is responsible for regulating and managing solid waste and recycling collection services through franchise agreements with private haulers, and reviewing collection rates and service standards. • Clean Water Services (CWS) operates the Durham Wastewater Treatment Facility within the city limits and is responsible for the collection and disposal of waste that results from the treatment process. • There are currently no solid waste or recycling debris collection or processing facilities inside the city limits. • • Per capita, generation of solid waste has increased annually by 3.2% over the last ten years in the Metro region. • The recycling of solid waste conserves limited natural resources and energy. The recovery rate for residential recycling is close to targets set by the RSWMP, but commercial recovery rates are well below the target. • Target areas that Metro has identified as having significant room for improvement are the construction and business sectors, both of which have been regulated by other jurisdictions to improve recovery rates. • The DEQ regulates hazardous waste in Oregon and they administer permitting, collection, disposal, and cleanup programs, as well as educational programs to reduce risks associated with hazardous wastes. • Household hazardous waste is not easily regulated and is an educational priority for DEQ and Metro. • Currently, there are no permanent hazardous waste collection, storage, or disposal facilities within the city limits.All hazardous waste is transported outside of Tigard for processing and disposal. • Environmental Quality Page 2-21 Draft—Tigard 2007 • • 4 . ENERGY C O N S E R V A T I O N (it III Our way of life is powered by energy. Fr om the construction process to home heating to getting around the community, affordable and reliable energy sources are counted upon to sustain our needs. Energy, defined as electricity, natural gas, renewable resources, home heating oil, and transportation fuel, also drives the economy and has a significant impact on the environment. These roles are important to consider when planning for future sources,distribution,conservation efforts,land use and development. The City of Tigard currently has no energy resources and no future plans to develop any generation or supply facilities. The Oregon Department of Energy (DOE) has taken the statewide lead by planning to ensure an adequate, affordable, and clean energy supply is available for Oregonians. The DOE produces the Oregon Energy Plan on a biennial basis, which assesses energy demand and supply in the state, issues affecting energy, and presents an action plan to meet the goals of the plan. Energy conditions and future issues identified by the 2005-2007 Oregon Energy Plan include: • Unstable energy pricing and supply will continue to affect communities as it did in 2002 when Oregonians spent 50% more per unit of energy to heat their homes than in 1998. • World oil production may peak in the next decade and begin a long-term decline. Coupled with a growth in worldwide demand,peak oil will maintain or increase already high oil prices. • Natural gas supplies from North America are declining, while prices have doubled in the past five years. Importing from overseas is an expensive option as it requires the gas to be liquefied, transport tankers, and regasification plants. Worldwide competition for the gas is also expected to increase. 1111 To address these issues, the Oregon Energy Plan recommends conservation efforts for households, businesses, industry, and transportation, as well as developing clean and renewable energy resources. These efforts can provide insulation from, and reduce the community's vulnerability to, volatile pricing and supplies. They are also consistent with State Goal 13 for maximizing the conservation of all forms of energy. Building efficiency standards, the Leadership in Energy and Environmental Design (LEED) rating system, and weatherization programs are options for promoting energy conservation in buildings. Metro's Regional Transportation Plan (RTP) is required to address energy conservation, efficiency, and alternative transportation options under state and federal law. Options include driving less, buying fuel-efficient vehicles, or using alternative fuels. Local jurisdictions also have the ability to affect energy conservation efforts through developing efficient land use plans that promote compact, mixed use communities that reduce automobile trips. They can also lead by example by becoming more energy efficient as an organization or challenge residents to reach energy conservation goals set by the community. III Environmental Quality Page 2-22 Draft—Tigard 2007 • • 4 . ENERGY C O N S E R V A T I O N • I N V E N T O R Y Applicable rules;statutes-and plansthat;; A. ENERGY GENERATION & SUPPLY impact;.land: eso i¢rces`'qual ty`with yithc The City of Tigard currently does not supply energy for '. --, >,.- t . f -`< " P any generating ;..ri : : : :... ;. -F , :_:;. ::,; the community, or own and operate an ,1 ;,7:0 e on Re sell tatu e'.4` r,;' v1 �.;.. .�`t Energy,,;..;:-, . facilities. Private corporations " . rpo s supply the energy needed �" ''°"��r Coris�,atioziPro am��Ene"r.. .:�,-,.�.<�;. �Nf ` to meet the demand of the community. The private Facilities,: "`'i';,, , e corporations own and operate the appropriate supply :;;:;2r."?,;-;.Oregon "dmtrisrattve NRile330iarid 345 ,,.•d„-."" yr r':�::,,,,,•.s ,'i.„>:;'°`.Pq.�4'N'�..,� resources, which may require easements or the use of -3gN Ore E eoi—pjan-° x -; LL,H °_;` `' J.`' City-owned rights-of-way. 4 £Qie en Administrative`'Rule 660` 'g :a fs 5:a-.=:17 e"on'Thnsportatio Pl'athnn Rifle a ?° ,as 6.,; gtrt unet:ai'ial-<plaz k:. .".0 Electricity ''';�'`f�' -�,i i' Portland General Electric (PGE) provides electric , ; R` onalxTi~ans ortatiiin'Pan '. r;p Tigard residents (residential and commercial). e' .. ' services to Ti r r i ";"$�� t � K ' �„s- �;'T'itle�l8.;Ti ct-iVlui?ici ai Cade°: �. � ,�. ,��- '��:�:.,.w,,.. 1P..<;,: . .... , ...,, .gin.,. They do not have any generating facilities within the City, °'9 ;Ti°ggaiclgfo:s i`o tafi oni,:§Si texrn=Plan-� ��.;�::a�,f.Da:�,' a;'w'.:zti;•�,-..��,�.,,,,,;rte,.K.';;Y.�:.z-.;” •."..<�,'"ems'�' but do have five substations and high voltage power lines 1;0TigardfFiveYearStrategic=Resouice'�";'• `°`s„ within the city limits. PGE is responsible for the #`; �=d�; aria meAt )an = <:t'M- ` tY p ,� S��x,�, �. operation, maintenance, and repair of its facilities.is acilities. While =' the majority of electricity supplied in the state is generated from hydro (44%) or coal (42%), PGE also purchases power generated from wind and geothermal sources. Customers can choose a "green" option • and pay a slightly different rate for only renewable sources (which includes hydro) or for 100% wind generated power. Natural Gas Natural gas is supplied by Northwest Natural Gas. There are no processing or storage facilities within the city ;` <, ; Ener Definitions: ' limits, but a number of gas main lines cross the City for Hydro er gyfd ved from water,sources,`r° such as damsa � � servicing the customer base. Northwest Natural is responsible for the operation, maintenance, and repair of Geotherina ;scnergy derived from the'" inernal.hea :ofhe`eartl% ` their facilities. They also offer conservation services to �._.�,,- . -. both residential and commercial customers. Residential - customers can request a free energy audit or take advantage of weatherization incentives. Commercial customers are charged for an energy audit. Alternatives City of Tigard residents also have the alternative to generate their own energy. Solar-generated power and wood heating are the two most common options available to the community. Solar power panels have the capacity to supply enough energy for a single home or business and require a building permit prior to installation. No data exists on the number of residents employing the solar power option. Burning wood for heat is another viable option that has been widely used in the past. Again, there is no data on the number of residents using wood burning stoves, fireplaces, or furnaces. The major problem with the use of • Environmental Quality Page 2-23 Draft— Tigard 2007 • • 4 . ENERGY C O N S E R V A T I O N (IP • wood as heat is the potential impact on air quality. See the Comprehensive Plan section Air Quality Resources for more information. The State of Oregon encourages energy conservation and renewable energy development through incentive programs. The Business Energy Tax Credit and State Energy Loan Program encourage large-scale renewable systems. These incentives have brought manufacturers of renewable source equipment to Oregon and also supported private sector facilities such as the large solar installation at Kettle Foods in Salem. The State's Residential Energy Tax Credit can also be used to purchase energy-efficient appliances to reduce the energy demand of the community. The Oregon Energy Trust also provides information, technical assistance, and monetary incentives for both residential and business owners who invest in energy conservation activities. Transportation Fuel The largest consumption of energy in the state is by the transportation sector (38% of energy use in Oregon and two-thirds of all oil used in the U.S. is for transportation). Gasoline and diesel are the primary fuels and are distributed by private corporations, primarily through retail stations. High usage of this energy source has impacts on supply,pricing, and air quality (see the Comprehensive Plan section "Air Quality Resources" for more information). Several alternatives have been developed to offset the demand and effects of gasoline and diesel, but supplies are limited and there is currently no data in regards to the availability in the community. They include ethanol, biodiesel, compressed or liquefied natural gas, propane, and electricity. State tax credits and energy loans are offered for most alternative fueled vehicles available on the market. This is in line with the federal policy that directs states to adopt alternative fuels to reduce dependence on • foreign oil or to improve air quality. B. LAND USE PLANNING & EFFICIENCY The impact of land use planning on the conservation of electricity or natural gas is limited. Building size, bulk, and surface area can affect the energy efficiency of a structure, but the geographic location within the City will not greatly affect the usage of either energy source. However, the specific on-site location and orientation of a structure may provide the opportunity to take advantage of solar radiation. The impacts could include the need for less artificial lighting, an increase in the ambient air temperature inside the structure, and the opportunity to harness the solar radiation for on-site power generation. The City currently provides some flexibility, with set-back adjustments and variances during the land use planning process that could take advantage of the benefits of solar radiation. In addition to the on-site location and orientation of a structure, the building design can have an impact on energy conservation. Currently, Oregonians spend 15% of their total energy use on their homes (2005-2007 Oregon Energy Plan). A number of energy-efficient building materials and appliances are available for contractors' use and can greatly reduce the amount of energy needed to operate the structure. The City of Tigard promotes energy efficient designs through the current Oregon Residential Specialty Code,which has a chapter devoted to energy efficiency standards. The Code has been adopted by the City and is implemented by the Building Department. • Environmental Quality Page 2-24 Draft— Tigard 2007 • • 4 . ENERGY C O N S E R V A T I O N • The greatest impact on energy conservation from land use planning is through helping to reduce the number of automobile trips taken by residents. By providing transportation options and encouraging good neighborhood design, the City can help decrease the amount of gasoline and diesel fuel that is consumed while driving. A few examples of land use planning strategies used to facilitate this decrease are: • Establishing mixed-use zones to encourage working,living,and shopping in the same neighborhood • Providing opportunities for increased density along public transit lines • Developing a public transit system that is reliable, connected,and efficient • Building a bicycle and pedestrian network that is connected, safe,and accessible • Connecting streets for efficiency and reducing congestion • Re-use of vacant land and those uses which are not energy efficient C. LOCAL GOVERNMENT EFFORTS The City of Tigard is promoting a set of organizational values that embrace sustainability, resource management and conservation. These efforts help set an example for the entire community to follow. Currently, the City is developing a Five Year Strategic Resource Management Plan that outlines a number of goals, objectives, and tasks that will help the City become more energy efficient. Included in the plan are educational activities, developing templates to include conservation efforts when planning the Community Investment Plan or Capital Maintenance Projects, creating a process for evaluating efforts, and analyzing maintenance and purchasing policies for vehicles and equipment. The Public Works Department is also • investigating the costs of purchasing power through the PGE Green Energy Program, which uses only renewable energy resources. Currently, the City's two greatest energy expenditures are for street lighting and water transfer pumps. Energy conservation efforts already undertaken by the City include: • The purchase of 8 hybrid vehicles with one more scheduled to be Table 2-8: PGE Greenest Cities' purchased in fiscal year 2006-07 1 Lake Oswego • A scheduled cost/benefit analysis of the hybrid vehicles and 2 Portland alternative fuels such as biodiesel and ethanol 3 West Linn • Participation in the DEQ Employee Commute Options program 4 Brightwood that encourages employees to use alternative forms of 5 Beaverton transportation to commute to work (see the Comprehensive Plan 6 Government Camp section "Air Quality Resources" for more information) 7 Sherwood • Participation in the Westside Transportation Alliance, which 8 Tualatin provides information on and challenges organizations to utilize g Hillsboro alternative transportation options (see the Comprehensive Plan 10 Oregon City section"Air Quality Resources" for more information) 1 Ranked by percent of renewable • The use of energy-efficiency audits on City owned buildings customers in each city Source:Portland General Electric,2006 A number of other local jurisdictions have also undertaken efforts to conserve energy that the City can evaluate as potential options. Some examples include: • Environmental Quality Page 2-25 Draft— Tigard 2007 • • 4 . ENERGY C O N S E R V A T I O N • • The City Council of Corvallis challenged residents and businesses to sign up for renewable energy to reach a goal of 15% participation. They also increased the City's purchase of renewable energy to 7% and the City is recognized as a U.S. EPA's first west coast Green Power Community. (Table 2-8 shows how Tigard residents compare to other cities in purchasing renewable energy). • The City of Portland adopted a policy of incorporating green building principles and practices into new construction or major retrofits of public buildings. The efforts must reach the "Certified" level of the Portland LEED Green Building Rating System and are encouraged to reach the highest rating (Silver,Gold,or Platinum)possible. • The City of Portland adopted a renewable-fuel standard to begin in July 2007. All diesel fuel purchases must contain at least a 5% biodiesel blend and gasoline purchases must contain at least 10%ethanol. K E Y F I N D I N G S • The Oregon Department of Energy (DOE) publishes a biennial report that provides general information and quantitative data which can assist the City in making energy related decisions. • Transportation is the largest use of energy in the State at 38%. A considerable reduction in energy use can be made with individuals altering their habits related to the use of motor vehicles. • The City has no energy generation or supply facilities and therefore the community's energy supply and pricing is controlled by forces beyond its direct influence. • Unstable energy pricing and supply will continue to affect communities as it did in 2002, when • Oregonians spent 50%more per unit of energy to heat their homes than in 1998. • World oil production may peak in the next decade and begin a long-term decline. Coupled with a growth in worldwide demand,peak oil will maintain or increase already high oil prices. • Natural gas supplies from North America are declining, while prices have doubled in the past five years. Importing from overseas is an expensive option as it requires the gas to be liquefied, transport tankers, and regasification plants.Worldwide competition for the gas is also expected to increase. • The DOE recommends conservation efforts for households, businesses, industry, and transportation, as well as developing clean and renewable energy resources for insulation from and to reduce the community's vulnerability to volatile pricing and supplies. • A number of alternative fuel options exist for motor vehicles, but supplies and availability are limited. • Local jurisdictions have the ability to affect energy conservation efforts by reducing automobile trips through developing efficient land use plans that promote compact,mixed use communities. • The City can lead by example by becoming more energy efficient as an organization or challenge residents to reach energy conservation goals set by the community. • Large energy uses which the City has control over include street lighting, water transfer pumps, heating and cooling of municipal buildings,and the motor vehicle pool. • Solar-generated power and wood heating are the two most common options available to the community for producing their own energy. Wood heating can be problematic to air quality due to the release of fine particulate matter. • The City currently provides some flexibility,with set-back adjustments and variances during the land use planning process that could take advantage of solar radiation. • Environmental Quality Page 2-26 Draft— Tigard 2007 • • 4 . E N E R G Y C O N S E R V A T I O N (1.1.1.1.;) • • Weatherization, energy efficient building materials and appliances,and alternative energy sources can all reduce energy consumption in buildings. • The following land use planning strategies can result in a more energy-efficient community: • Establishing mixed-use zones to encourage working, living, and shopping in the same neighborhood • Providing opportunities for increased density along public transit lines • Developing a public transit system that is reliable, connected, and efficient • Building a bicycle and pedestrian network that is connected, safe,and accessible • Connecting streets for efficiency and reducing congestion • Re-use of vacant land and those uses which are not energy efficient III III Environmental Quality Page 2-27 Draft—Tigard 2007 •... .. .. .. .. ...... ... ... „ ... .. ....... •••••• • •• .... •. .... ....... ••• • • .. • I I ^ ^• •""" •" •••• • •• •••• •••• .. • ......... • .. .. , ...... .. .. .. •. „. -. ... .. .• :•: •: • * • • COMMUNITY flit _ _ _____ __,_______ -, , , III \ , -- \ ' ' ' !/ 1 1- ` . , I i I \ i r , � / -J ' DEFINITION: The basic - . , : :„,, .° ;#rte. structure around which i- 4 • -' '-. _ daily life happens ; _•......_ __L.:. . - , where people live , A<< work , and shop . � " _ - � t .74, ' - ' 1., ' ' / t'- Tai • CHAPTER 3: HOUSING (GOAL 10) PAGE 3-4 ECONOMY (GOAL 9) PAGE 3-16 HISTORIC RESOURCES (GOAL 5) PAGE 3-27 Key City Departments: Contact: • Community Development Beth St. Amand, Sr. Planner Finance beth @tigard-or.gov Sean Family,Associate Planner sean @tigard-or.gov • • COMMUNITY tilt • In this chapter,the Tigard 2007 shifts its attention from the natural environment to the built environment. The places where citizens live,work and shop form the basic structure around which daily life happens; this is where community begins.A community provides its residents with economic opportunities,housing options that reflect local incomes,and places to purchase needed goods such as food. How a City plans its land uses affects each of these functions and the eventual shape of the City. Additionally,the shape of the City is also influenced by its past. Historical structures provide a link to a community's beginnings,even as a community evolves to meet the changing needs of its residents. Conserving these guideposts offers a historic reminder and a continuous context for a community. The Statewide Land Use Planning Goals address housing and economy as two specific land-use elements affecting the quality of life for both citizens and the community,and include historic areas as well: Goal 10: Housing.To provide for the housing needs of citizens of the state. Goal 9: Economic Development.To provide adequate opportunities throughout the state for a variety of economic activities vital to the health,welfare, and prosperity of Oregon's citizens. Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces. To protect natural resources and conserve scenic and historic areas and open space. In Tigard, the definition of community extends beyond the city limits.As the city is part of the Portland metropolitan region, conditions region wide affect both the local housing market and economy.Any discussion of these elements must also consider the relationship to the larger community. following chapter will examine the City's housing supply, the current economy, and historic resources. • The However, these elements only represent part of the community story;it must also consider the people who choose to make their home here, or work within its borders. In 2006,approximately 46,300 people made their home here,which is approximately 9% of the total Washington County population. Census 2000 data offers additional insight into the Tigard population. (A detailed analysis is available in the Tigard Community Profile, 2006 Edition,portions of which are excerpted here.) Tigard's average annual growth rate since 2000 has been 1.53%,which is similar to Beaverton and slightly behind Washington County as a whole. Both Tualatin and Sherwood have experienced higher levels of growth. About 9% of Tigard citizens identify themselves as having a Hispanic or Latino ethnicity,the majority with a Mexican heritage. These numbers are slightly less than Washington County's Hispanic or Latino population (11.2%) and the U.S. total of 12.5%.The majority of Tigard residents identify themselves as white (85.4%),with Asians comprising about 6% of the population. Regarding age,25-to-34-year-olds and 35-to-44-year-olds are the two age groups with the greatest percentage of Tigard residents. This is consistent with Washington County.When compared with the state, the age group breakdowns show Tigard residents are slightly younger. In 2000, the median age of a Tigard resident was 34.5 years,which was slightly higher than Washington County (33.0),but lower than the State (36.3) and the US (35.3). Of Tigard residents 25 and older, 91%have received a high school diploma and 44%of residents have completed a college degree program. 11111 Community: Housing Page 3-2 Draft— Tigard 2007 • • COMMUNITY Within Tigard, families account for two-thirds of households and 85% of them are married couples,33.5% • of which have children under the age of 18. In non-family households, 26.7% of residents live alone,7.8% of them 65 years of age or older.The average household size in Tigard is 2.48. In 1999,median income for Tigard households was $51,581. Comparing the median household income to other jurisdictions,Tigard residents earn slightly less than Washington County as a whole, but$10,000 more per year than Portland households and all Oregon households. Tualatin,Sherwood,and Lake Oswego have higher community median household incomes,while Beaverton residents earn slightly less. In 2000,the number of Tigard residents living in poverty increased in all categories,except individuals 65 years and older. Families with related children under 5 years of age saw the greatest increase in poverty. D A T A S U M M A R Y Building upon this demographic profile, the Community chapter covers three topics: • Housing.This section examines the City's existing and future housing supply. • Economy. This section takes a close look at the local and regional economy. • Historic Resources. Although part of Goal 5 (Natural Resources), this section is included here as Tigard's historical areas consist of structures. • 411 Community: Housing Page 3-3 Draft— Tigard 2007 • • ft 1 . H O U S I N G • When it comes to housing,one size does not fit all. Each person seeking a new place to call home must find a suitable match between price, location, housing type and lifestyle, which can be a daunting task. In Oregon, the state planning goals aim to broaden the available selection: Each jurisdiction, including Tigard, must provide the opportunity for different "sizes" of housing to fit residents' varied needs, considering available land,price ranges,rent levels and housing type. Providing this opportunity rests upon available residential land. In the Portland metropolitan region, only land included in the Metro Urban Growth Boundary (UGB), an invisible line that separates rural areas from suburban, can be developed at residential densities requiring Statewide Planning Goal 10 urban services. "To provide for the housing At the local level, each state and regional jurisdiction must needs of citizens of the state." inventory its buildable land, which is defined as vacant and re- Buildable lands for residential use shall be inventoried and plans shall encourage the developable land suitable for residential use, to determine availability of adequate numbers of needed housing capacity. Tigard maintains a buildable lands inventory housing units at price ranges and rent levels (BLI} that tracks available residential land. Two policies — state which are commensurate with the financial and Metro—help determine housing capacities on buildable land: capabilities of Oregon households and allow the state Metropolitan Housing Rule and Metro's Urban Growth forflexibility of housing location, type and Management Functional Plan. Both focus on increasing housing density. capacity in order to use land within the UGB efficiently. • • Metropolitan Housing Rule The Metropolitan Housing Rule (OAR 660-007/Division 7) established regional residential density and mix standards for communities within the Metro UGB. It set minimum residential density standards for new construction by jurisdiction. Tigard must provide for an overall density of 10 or more dwelling units per net buildable acre, as well as designate sufficient buildable land to provide the opportunity for at least 50 percent of new residential units to be attached single-family housing or multiple-family housing. • Urban Growth Management Functional Plan Metro implements Goal 10 through Title 1. To meet Title 1, each jurisdiction was required to determine its housing capacity and adopt a minimum density requirement. Tigard adopted the 80% of minimum density requirement for development in 1998, which means that a development must build 80% of the maximum units allowed through zoning. The City has a housing capacity number of 6,308 additional dwelling units.This number shows Tigard's zoned capacity for additional dwelling units. It is an estimate based on the minimum number of dwelling units allowed in each residential zoning district, based on minimum density requirements. The City of Tigard maintains an up-to-date buildable lands inventory, a permit tracking system for development, as well as complying with Metro's Functional Plan. The City is responsible for monitoring residential development. All of these tools aid the City in monitoring its progress toward the above goals, and determining if the opportunity remains for current and future residents to have diverse housing choices, even as Tigard's borders become land-locked. • Community: Housing Page 3-4 Draft—Tigard 2007 • • 1 . H O U S I N G • Affordable Housing Metro also addresses affordable housing in Title 7. Title 7 includes voluntary affordable housing production goals and other affordable housing strategies.Tigard has adopted by ordinance affordable housing strategies, submitted a progress report to Metro that complies with Title 7, and completed the mandatory three-year reporting requirement. • • Community: Housing Page 3-5 Draft— Tigard 2007 • • it 1 . H O U S I N G • I N V E N T O R Y �plie b t a tesari ,p4arWs t a4- . A. HOUSING SUPPLY un.a' , ous ry the,Ci .clu• (c ,,, ,„,.:::: :„,f:,:-.,-, ,,Ar,----, ,d.9,:-.4,, ,,t.--,,,iii,.--,..;;;, Almost three-quarters of Tigard is zoned residential o '42,00c07,11,11.4174411:1611..1 i ,i' (68.6%). There are 19,468 single-family and multi-family '" ': " i(110,75,1;zik z 0 09 7/ `-,- � , X housing units in Tigard, with an additional 55 mobile ,� '° r homes and 14 manufactured homes (Census 2000) able A' � �,� �, r. ( } (T �s � �� .A. ��es,�l�and � ��> 3-1). Eighty-one percent were built after 1970, with 1 : . �' 0 evelo en :• , approximately 4,500 units built in each decade since. ; �� s fA Relnonal ?lan< � The current decade is consistent with this building level, with 2,160 units built thus far. The majority of residential land is zoned R-4.5 and R-7,which are low- and medium-density designations. This is consistent with the City's overall residential density for new construction: since 1994, the overall density of residential construction has been 6.8 dwelling units/acre. Most new housing built since 1994 has been single-family attached or detached (82%), with 18% built as multi-family units. During the last five years, new development has followed a similar trend, with single- family products as the dominant housing type and breaking down as follows: single-family detached (65%), single-family attached Table 3-1: Total Housing Units Built in Tigard-July 1,2006 • (20%), and multi-family Single- (15%) (Table 3-2on Single- Family page 3-7). Since 2000, Year Family Attached Multi-Family Demolitions Total the average single- 2000(April 1)1 17,369 family house has been 2000(after April 1) 147 6 104 24 233 2,415 square feet, with 2001 196 92 0 15 273 the last three years 2002 138 49 29 25 191 exceeding 2,500 square 2003 228 66 42 40 296 feet for the first time 2004 226 41 0 26 241 2005 185 116 since 1996 (Table 3-3 108 29 380 2006(July 1) 100 0 19 14 105 on page 3-7). The Subtotal 1,220 369 302 173 1,719 average lot size has Walnut Island Annex(2000) 380 been 6,058, with lot Total 19,468 sizes varying by year. 1 From 2000 US Census Source:Community Development Department,2006 • Community: Housing Page 3-6 Draft— Tigard 2007 • • It 1 . H O U S I N G • B. RECENT DEVELOPMENT TRENDS Over the last twelve years, the majority of new development occurred in the City's west quadrant (Map 3-1) in previously undeveloped areas. Additional residential development also occurred on larger vacant parcels in the southern quadrant. Table 3-2: New Residential Construction Since 1994 Single Family Multi Family Total When vacant sites or Dwelling Density Dwelling Density Dwelling Density underdeveloped sites (i.e., an Year Units _(DU/Acre) Units (DU/Acre) Units (DU/Acre) oversized lot with a single 2005 301 8.1 108 26.6 409 10.0 home) develop or re-develop 2004 267 6.9 0 0.0 267 6.9 within the City's existing 2003 294 7.1 42 15.3 336 7.6 built-up area, it is called infill 2002 187 7.1 29 34.5 216 8.0 development. In the 2006 2001 288 8.6 0 0.0 288 8.6 Community Attitudes Survey, 2000 202 6.1 112 17.6 314 8.0 City residents recognized this 1999 244 6.3 0 0.0 244 6.3 potential trend and ranked 1998 200 4.7 8 100.0 208 4.8 new development's 1997 298 5.1 4 100.0 302 5.2 compatibility with existing 1996 316 4.6 126 25.0 442 6.1 development (including lot 1995 335 5.0 0 0.0 335 5.0 size) as a major neighborhood 1994 320 5.0 298 15.4 618 7.4 livability component. A brief Total 3,252 5.9 727 18.9 3,979 6.8 11111 analysis of recent infill Source:Community Development Department,2006 development shows the following: • Development has been built to current zoning. The City's residential zoning implements the residential densities planned for in the current Comprehensive Plan. No new development from 2000-2006 required upzoning or downzoning. • Minimum density requirements. In Table 3-3:Tigard New Single Family Development,2000-2005' addition, new projects must meet Year Building Size Lot Size minimum density requirements (Metro 2000 2,319 7,261 Title 1), which require the project to 2001 2,214 5,071 build 80% of the maximum units 2002 2,371 6,134 allowed on the site. Development built 2003 2,520 6, 37 2004 2,563 6,3337 prior to 1998 was not subject to this 2005 2,502 5,379 requirement and could be built at lower Average 2,415 6,058 densities than the zoning allowed. 1 Includes both single-family and single-family attached Source:Community Development Department,2006 • Demolitions of existing structures. The City can track infill development through a demolition permit analysis. Over the last six years, residential demolitions averaged 27 per year. Tracking the geographical location, number and zone of these demolitions can indicate if a particular area is experiencing more development pressures; • Community: Housing Page 3-7 Draft- Tigard 2007 • • let 1 . H O U S I N G III however,it does not capture the entire picture as some homes are retained during redevelopment. A spatial analysis of demolitions from 2000-2006 shows that they were widely spread throughout the City and preceded new development. These homes were located on larger lots which were under built for the existing zone, and in some cases, the lots were combined with adjacent lots to build a subdivision. This situation was also true for cases where the existing homes were retained and the lots developed from the remaining acreage. In summary, recent development has occurred at a level consistent with the City's current Comprehensive Plan and zoning ordinance. As land prices continue to rise within the City limits and with the opportunities for western expansion limited, the market will increasingly look to infill for needed housing. As the available land within the City decreases,pressure may increase in particular areas. The City could institute tracking measures or perform an analysis to identify a particular site or area's probability of experiencing infill or redevelopment prior to its occurrence. In redevelopment, the lot typically exceeds 50 % of the property's value, significantly exceeding the building's value, according to the American Planning Association's Zoning Practice (June 2005). A land value to building value ratio analysis could indicate particularly vulnerable areas. Other factors — such as age of structure, average square footage, and lot size—can all indicate a property or areas that may be more vulnerable to infill,where neighborhood compatibility and design measures may be appropriate. These actions can all be considered as the City develops its policies and action measures. • C. HOUSING AFFORDABILITY The majority of Tigard residents own their homes (58%), with 41% paying rent (2000 Census). which has stayed constant since the 1990 Census. Historically, the rate rose from 51% in 1980 and 45 % in 1970. Tigard's current ownership rate is slightly more than Tualatin (55%) and Beaverton (48%), but slightly less than Washington County and Portland. Lake Oswego, King City, and Sherwood all have occupancy levels over 70%. Over the last five years, Portland region housing prices have rapidly escalated. In June 2006, the Oregon Employment Department reported that house sale prices in the Portland metropolitan area increased almost 20 percent from 2004-2005, with an overall 52% increase over the Table 3-4: Ratio of Wages to Housing Prices, Portland Metropolitan Area last five years. To maintain Ratio of House 2005 Private 2005 Median affordability, wages would need Price to Wages Sector Wage House Price to increase as well. However, data Portland Area 6.8 41,623 282,900 from OED shows that wages Source:Oregon Labor Market Information System,June 2006 remained flat or grew slowly during this period, 11 % statewide. For the Portland metropolitan area, residents making the average wage would need to pay almost seven times their annual income to purchase the median value home.The housing becomes more unaffordable as the ratio gets higher (Table 3-4). In Tigard, housing prices increased consistently with the region: the 2005 median house price was $269,900, up 18% from 2004, and 46% from 2000 (2006, Washington County Assessor Property Codes). Figure 3-1 III Community: Housing Page 3-8 Draft—Tigard 2007 • • 1 . H O U S I N G 111 shows the historical price trends in Tigard. In 2000, the median Tigard household income was $51,581; however, as that figure is six years Table 3-5: Buying a Home in Tigard old, this section instead uses the 2003 2005 2005 2006 2006 median income for Washington Median Priced County of $54,001 (2003 Census Home $269,900 $269,900 $315,000 $315,000 data). Using these figures, for a Mortgage type2 median household to purchase a 2005 30-Year 30-Year 30-Year 30-Year median-priced home with a 30-year, 6.5% mortgage with $0 down - and Down Payment $0 $53,980 $0 $63,000 assuming no monthly debt - would (20%) (20%) require an annual income of Debt $0 $0 $0 $0 $102,030, almost twice the current median income (Table 3-5). Monthly Payment3 The standard definition of $1,705 $1,365 $1,991 $1,593 "affordable"housing is housing that Required Annual costs a household no more than 30% Gross Income $102,030 $87,408 $119,079 $102,013 of its gross income for rent and Median Gross utilities.A Tigard resident making the Income $54,001 $54,001 $54,001 $54,001 $54,001 median income could spend 1 Through July 2006 no more than$1350/month on 2 At 6.50%Interest housing costs.Judging by the above 3 Without Taxes&Insurance • table, housing for a Tigard household Source:http://www.mortgage-calc.com/mortgage/howmuchafford.html,2006 making the median income would not be considered "affordable" as the monthly payments exceed 30% of gross income. Rental Market When home ownership becomes Figure 3-1: Median Sale Price for Residential Properties in unaffordable, potential buyers enter the rental Tigard, 1978-July 2006 market instead. In a fall 2004 survey of eight market-rate apartment complexes in Tigard, $350,000 rents averaged $705 a month (Tigard Downtown $300,000 Improvement Plan—EconomicAnalysi.r Study, Oct. 2004). Using the same affordability formula, $250,000 this rent would be affordable for households $200,000 making $28,200 or more annually, almost half $150,000 • of the median income. Currently, Tigard has approximately 7,115 rental units. For a full $100'000 listing and map, please see Appendix B. The $5°,00° ' ' ' study also found that the overall occupancy ,�9A`�,�00°,�o�",�a� ,�a�,�o�,,o�.,a � , � �tio tiool'�yo�tioo6 was 93 %, which it found to be less than the optimal 95%. In looking at future needs, the S°'°` Washington r Assessor,2006 study found that in the short-term, there was • Community: Housing Page 3-9 Draft— Tigard 2007 • • lit 1 . H O U S I N G . weak development potential for new apartment complexes. However, with the recent upswing in housing prices,this market demand could easily increase. "Affordable"Housing Although the above sections refer to the affordability of housing, the term "affordable housing" is most often used for subsidized housing or housing reserved for individuals making between 0 and 50 % of the median income. Table 3-6:Affordable Housing in Tigard Organization Accommodation Units Table 3-6 summarizes the Single Family&Duplex Housing 32 number of affordable housing Washington County The Colonies 96 units in Tigard. However, the Housing Authority/State Bonita Villa 96 need is greater than the supply: Housing Division Rent Vouchers 180 According to the Washington State Tax Credits 600 County Department of Greenburg Oaks 84 Housing Services, there are 495 Community Partners for Metzger Park(unincorporated Metzger) 32 Tigard households on the Affordable Housing Village at Washington Square 26 housing waiting list, (CPAH) g wan g Single Family Houses 1 representing 1250 people, Tualatin Valley Housing Hawthorne Villa 119 almost half of whom are under Partners (TVHP) 18 (July 2006 data). Eighty- Source:Community Development Department,2006 seven percent of these 4I1) households make 30% or less of the annual median income ($16,200 or less). This number reflects a 37% decrease since 2002, when 677 households were on the waiting list. This decrease could be attributed to additional affordable housing projects opening within the City: from mid-2001 to mid-2002, the inventory increased from 286 to 505 units. In Title 7,Metro included a voluntary production goal of 319 affordable housing units in Tigard.The Tigard City Council decided against adopting this goal. As Tigard neither provides nor builds affordable housing, this number must reflect actions by other agencies. However, the City does have a number of policies in effect to encourage production: City of Tigard Affordable Housing Strategies, 2002-2006 Land use strategies adopted • An updated and streamlined Table 3-7: Monthly Housing Costs as a Percentage of Income development review process. % of Income Owner Occupied % Renter Occupied% • Reduced parking requirements for Less than 15% 29.3 16.1 affordable housing projects. 15 to 19% 18.5 15.0 • Allowance of accessory dwelling 20 to 24% 17.3 13.2 units,which benefit the elderly and 25 to 29% 11.3 13.3 disabled. 30 to 34% 9.5 9.9 35%or more 13.6 30.6 Non land use strategies implemented Source:2000 U.S.Census • Tax abatement for affordable housing. • A budget set-aside to reduce fees and charges imposed on affordable housing development. IP Community: Housing Page 3-10 Draft— Tigard 2007 • 1 . H O U S I N G • • Support for sale or donation of tax foreclosed and surplus County and City-owned properties to non-profit housing providers. • Financial support for the operation of the Tigard-based Good Neighbor Center homeless shelter. • Identification and pursuit of available grants to finance needed on- and off-site public improvements, such as sidewalks, streets, and storm sewers, serving affordable housing areas or projects. Table 3-8: Household Income Breakdown • Development of the Housing Inspection Program Income Range Percentage to maintain the City's existing housing stock quality. Less than $15,000 8.8% • A Housing Emergency Fund to assist occupants of $15,000 to$24,999 11.6% housing declared to be unsafe or uninhabitable $25,000 to$34,999 11.4% established $35,000 to$49,999 16.3% • The Enhanced Safety Program, administered $50,000 to$74,999 21.7% through the Tigard Police Department, to improve $75,000 to$99,999 14.5% the safety of rental properties. $100,000 or more 15.7% • Membership in the County-wide Housing Source:2000 U.S.Census Advocacy Group. D. VACANT AND SUBSTANDARD HOUSING In 2000, there were 862 units vacant, or 5 % of the total surveyed for the 2000 Census. The Census defines "vacant" as no one living in the unit during the Census. The Table 3-9: Substandard Housing • City of Tigard does not have areas of vacant or blighted No housing units that could provide for a significant No Kitchen Plumbing rehabilitation project;mostly there are isolated cases that are Facilities Facilities addressed through code enforcement. Only a few Tigard Renter Occupied 96 0 dwelling units are considered substandard housing; that is, Owner Occupied 0 15 housing without kitchen or plumbing facilities. Table 3-9 Source:Census 2000 provides details. E. HOUSING FOR SENIORS In 2000, 40% of the City's population ranged in age from 35 to 64 years, with 10% older than 65 years. In 20 years, assuming the population remained the same,Tigard could have at least 40% of its residents age 55 and over. As the baby boomer generation ages, the City will need to consider ways to accommodate an aging population, including housing options and modifications to existing homes, as well as housing's proximity to transit and other facilities such as social services. Currently, three multi-tenant facilities are located within Tigard: Summerfield Retirement Estates independent living facility (capacity: 154); Woodland Heights assisted living (48 units); and Grant Street Elite elderly care (currently under construction). In addition, the City also has Summerfield, a 55+retirement community that includes a diverse selection of housing types. • Community: Housing Page 3-11 Draft— Tigard 2007 S • 1 . HOUSING 111 F. BUILDABLE LANDS Table 3-10:Tigard Buildable Lands, July 1,2006 Zoning Acres Statewide Planning Goal 10 requires a buildable C-C Community Commercial 0 lands inventory. The City tracks buildable lands C-G General Commercial 40.10 through a yearly inventory process. The inventory C-N Neighborhood Commercial 0 excludes land constrained by natural hazards, C-P Professional Commercial 8.12 subject to natural resource protection measures, CBD Central Business District 0.79 and publicly owned land. At the end of June 2006, I-H Heavy Industrial 0 less than 10% of land within the City was I-L Light Industrial 23.46 considered buildable. The majority of available land I-P Industrial Park 42.72 was zoned residential (71.8%),with lower totals for MUC Mixed Use Commercial 2.75 commercial (9:1%), industrial (12.2%), and mixed- MUE Mixed Use Employment 22.12 use (6.9%). MUE-1 Mixed Use Employment 1 8.03 MUE-2 Mixed Use Employment 2 0.72 Commercial Land - Three of the five commercial MUR-1 Mixed Use Residential 1 2.90 districts contain buildable land and 82% of that is MUR-2 Mixed Use Residential 2 0.65 zoned General Commercial. No Community and R-1 30,000 Sq Ft Minimum Lot Size 2.39 Neighborhood Commercial land is available. R-2 20,000 Sq Ft Minimum Lot Size 0.99 R-3.5 10,000 Sq Ft Minimum Lot Size 22.85 Industrial Land - No buildable land remains in the R-4.5 7,500 Sq Ft Minimum Lot Size 186.66 Heavy Industrial district. In Light Industrial, 75% R-7 5,000 Sq Ft Minimum Lot Size 101.10 • (17.64 acres) is located on one property. Likewise, R-12 3,050 Sq Ft Minimum Lot Size 42.50 81% (34.7 acres) of the buildable Industrial Park R-25 1,480 Sq Ft Minimum Lot Size 32.46 land is owned by one individual. R-40 40 Units per Acre 0 Total 541.31 Mixed-Use Land - Mixed use districts all contain Source:Community Development Department,2006 some buildable land, but the majority is zoned Mixed Use Employment (60%). Residential Land- A large portion of the 2005 BLI is zoned low density (54% is R-3.5 or R-4.5) or medium density (26% is R-7). The remaining low density residential land (R-1 and R-2) comprises only 1% of buildable residential land Table 3-11:Tigard Buildable Lands by Zone and Lot Size,July 1,2006 and all is partially Mixed- developed. No land zoned Commercial Industrial Use Residential Total R-40 remains on the Less than 5000 sq ft 5 3 6 43 57 inventory. The majority of 5001 to 10,000 sq ft 9 3 14 195 221 available lots are 1 acre or 10,001 sq ft to 1 acre 21 9 38 220 288 less in size. 1 to 2 acres 4 2 7 75 88 2 to 5 acres 5 2 2 28 37 Table 3-10 breaks the 2005 5 to 10 acres 2 0 0 5 7 BLI down into the planning More than 10 acres 0 3 0 2 5 designations and distributes Total 46 22 67 568 703 the buildable lots based on Source:Community Development Department,2006 • Community: Housing Page 3-12 Draft-Tigard 2047 • • 1 . H O U S I N G • size. Eighty percent of the buildable lots are less than one acre in size and 40% are less than 10,000 square feet. Large lots available for development are scarce with only 49 (7%) lots greater than 2 acres (Table 3- 11). Buildable Lands Capture Rate Staff performed an analysis of how much of new development was predicted by the Buildable Lands Inventory, or "captured." This analysis would indicate whether additional infill development was taking place in established neighborhoods on lands not anticipated to develop or redevelop. The analysis shows that the BLI captured 80% of new development outright, which means that the newly developed land was on the inventory and subsequently deducted. An additional 14.5% occurred on lots where a portion of the lot was on the BLI, but the remaining acreage was not, due to an existing home. Combining these totals shows that 94.5%of new development took place on BLI lots (Map 3-2). The remaining 5.5% represented primarily new homes on minor lot partitions in the R-4.5 zone, a minimal number overall. These larger lots lend themselves to partitioning. The City is not experiencing larger-scale redevelopment in existing neighborhoods on lots considered to be "built out"; that is, built to the existing zoning. As the BLI continues to be depleted, monitoring can reflect any changes in these conditions. A decrease in the capture rate would indicate changing conditions. G. FUTURE HOUSING CAPACITY • Based on the June 2006 Buildable Lands data, if the City developed its remaining residential lands, an additional 2,902 to 3,482 units could be built. This range includes all residential and mixed-use zoning districts. The low number is based on the 80% minimum density requirements in the Community Development Code; the high end is based on the density of new construction in each zoning district that has occurred over the past five years. It also includes a 20% allowance for additional projects that occur on land not included on the Buildable Lands Inventory, the current rate of new residential development on parcels considered already developed. Tigard's Zoned Capacity Title 1 of the Metro Urban Growth Management Functional Plan (Functional Plan) defines the City's housing capacity as 6,308 additional dwelling units. This number is a zoned capacity for achieving additional dwelling units. It is an estimate based on the minimum number of dwelling units allowed in each residential zoning district and was originally based on the City's 1996 boundaries. Units on land outside the City's 1996 boundaries were included in Washington County's capacity numbers,which would include lands annexed to Tigard since 1996. As of April 2006, the City has reached 52% of its zoned capacity number, or 3,288 units, based on the number of new units built in the City's 1996 boundaries. • Community: Housing Page 3-13 Draft— Tigard 2007 • • 1 . HOUSING • Density The Metropolitan Housing Rule requires Tigard to provide for an overall density of ten or more dwelling units per net buildable acre. Tigard's new construction from 1994-2005 averaged 6.8 du/ac from 1994-2006: specifically, 5.9 dwelling units/acre (5.9du/ac) for single-family construction, and 18.9du/ac for multi-family. The City does have minimum density requirements in place; the overall density reflects primary residential zoning districts in the City,which are low to medium-density districts. This lower number also reflects the predominance of single-family residential development in the City in the last decade. Areas such as Washington Square, the Central Business District (Downtown Tigard), and the Tigard Triangle allow for higher density residential projects but have had limited multi-family projects occur. Housing Diversity The Metropolitan Housing Rule also states that the City must allow for the opportunity for at least 50 percent of new residential units to be attached single-family housing or multiple housing units. Again, although the number of buildable lots in the high-density range is limited, the opportunity exists in areas such as Washington Square, the Central Business District (Downtown Tigard), and the Tigard Triangle. As part of the City's zoned capacity calculations for Title 1, these areas were considered, with the Washington Square Regional Center in particular. "' KEY F I N D I N G S • Almost three-quarters of Tigard is zoned residential (68.6%). • There are 19,468 single-family and multi-family housing units in Tigard,with an additional 55 mobile homes and 14 manufactured homes. • Eighty-one percent of housing units were built after 1970. • Most new housing built since 1994 has been single-family attached or detached (82%). • The majority of Tigard residents own their homes (58%),with 41%paying rent (2000 Census). • Over the last five years,Portland region housing prices have rapidly escalated. In Tigard, the 2005 median house price was $269,900,up 18% from 2004,and 46% from 2000. • The 2003 median income for Washington County was $54,001. • For a median household to purchase a 2005 median-priced home with a 30-year,6.5%mortgage with$0 down - and assuming no monthly debt-would require an annual income of$102,030, almost twice the current median income. • In a fall 2004 survey,apartment rents averaged $705 a month,which would be affordable for households making$28,200 or more annually,almost half of the median income.The 93% occupancy rate was lower than the optimal rate (95%), showing weaker demand. However,recent housing price increases could reverse this trend. • Currently,Tigard has approximately 7,115 rental units. • There are 495 Tigard households on the Washington County housing waiting list, representing 1250 people,almost half of which are under 18. Eighty-seven percent of these households make 30%or less of the annual median income ($16,200 or less).The City of Tigard has a voluntary production • Community: Housing Page 3-14 Draft—Tigard 2007 • • 1 . H O U S I N G • goal of 319 affordable housing units,but does not produce or maintain housing units.The need for affordable housing exceeds this number. • A large portion of the 2005 BLI is zoned low density (54%is R-3.5 or R-4.5) or medium density (26%is R-7). No land zoned R-40 remains on the inventory.The majority of available lots are one acre or less in size. • Based on this data,if the City developed its remaining residential buildable lands,an additional 2,902 to 3,482 units could be built. • The City has reached 52% of its Title 1 zoned capacity number of 6,308 units (Metro Tide 1;based on 1996 boundaries). • Since 1994, the overall density of residential construction has been 6.8 du/ac,less than the required 10 du/ac. • Areas such as Washington Square,the Central Business District (Downtown Tigard),and the Tigard Triangle allow for higher density residential projects but have had limited multi-family projects occur. • Recent development has occurred at a level consistent with the City's current Comprehensive Plan and zoning ordinance. As land prices continue to rise within the City limits and with the opportunities for western expansion limited, the market will increasingly look to infill for needed housing. • • Community: Housing Page 3-15 Draft— Tigard 2007 • 2 . E C O N O M Y • Economic activity is the lifeblood of any community, providing jobs, creating wealth and generating tax revenue. Tigard's economy is intertwined with the economy of the region, the nation, and the world. Tigard has benefited from its location in the Portland metropolitan region, known for its high quality of life and educated workforce. Its location at the crossroads of several transportation routes provides a major advantage. As a result, Tigard attracts a diverse portfolio of economic activity, with a wide range of retail, service,and industrial jobs. Tigard is sometimes perceived as a bedroom community for nearby cities. This is not accurate. Tigard businesses provide 37,861 full and part time jobs (State of Oregon Employment Department, 2004). This number is greater than the number of Tigard residents over the age of 16 in the workforce: 25,537 (State of Oregon Employment Department, 2006.) Considering that 70% of Tigard residents work outside the City, thousands of workers from throughout the region are regularly commuting to Tigard jobs (2000 Census.) A recent study found that Tigard was a "hub for innovation" for a city its size. A study of patents and communities by the research firm iPiQ found that in 2005,Tigard had a high percentage of patents granted to individuals and small business (29). The study attributed this to Tigard's lower rents and taxes attracting professionals from Portland and Beaverton. The Department of Land Conservation and Development (DLCD) and Metro have developed policies that address economic opportunity. The statement of Statewide Planning Goal 9 is: 1111 To provide adequate opportunities throughout the state for a variety of economic activities vital to the health, welfare, and pro.pen ty of Oregon's citizens. A major emphasis of the Goal 9 policies is to preserve and protect land for industrial and employment uses. Metro has sought to implement this on a regional basis. A recent update to Title 4 of the Metro Urban Growth Management Functional Plan ("Industrial and Other Employment Areas") requires that localities adopt rules to limit retail development in identified Industrial and Employment areas. Regionally, Tigard participates in Portland Regional Partners for Business, a group of public and private sector economic development professionals in the region who work collaboratively to retain and recruit businesses, and promote the Portland metropolitan region. Tigard is also a member of the Westside Economic Alliance, which focuses on economic issues on Washington County and western Clackamas County. Locally, there are steps that can be taken to assure a continuing strong economy. Unlike some other localities, Tigard does not currently have a formal economic development program, nor does it offer tax breaks or other incentives to entice businesses to locate here. However, other actions can be taken by the City to continue attracting and retaining major employers, such as maintaining a smoothly running transportation system and other essential infrastructure, ensuring an adequate supply of appropriately zoned land, reducing obstacles to redeveloping land, and providing effective city services. Urban Renewal in Downtown Tigard, which was approved by city voters in 2006, also has the potential to attract additional employment and economic activity. • Community: Economy Page 3-16 Draft— Tigard 2007 • ! 2 . E C O N O M Y 11 I N V E N T O R Y . , �,..„ . , ,z ;, , „ .,...,;.. ..-... III The`-a it' rules;s atutes a9:,,R4ns thavunpact the City's econom �include� Land Use , X . f',44 f 5 ,, � �� Ore o C o �2 an• ' A total of 2,356 acres (31.4% of Tigard's land area) is ; , y : �< � Qre�s n= • • ntst ratio Rpe 660 _ zoned for commercial and industrial uses. 700 acres are -4 ,, h -'A , zoned for mixed use, which allows various combinations : 3 'I1iv si°-4 .f 3 ,:i4.-'11,7,,,,,,,,t,.han Grp' anagenien x of commercial, industrial, and residential uses. See Table 4 . l3y 4,4a�� 3-12 for comparisons to other communities. = ' K Plan `. ' � j Y4 -; 4 4 'Ttgar• 4 .mmu nary ve opmeht The main Tigard Commercial/Mixed Use areas are � C'de z , Washington Square, the Ti and Triangle and Downtown i 5 Tigar• Center> rban'Renew Tigard. About one-third of the Bridgeport Village ,30:4%-:.,„;,l t ,, � ,' ,. �' �•v¢�nto �.� m row'emen� ��` shopping center is located in.the southeastern corner of ' 'x e - - s ,? , y Tigard. The HWY 99W cordor has a large amount of .-i; p zP � ' Commercial development Industrial zoned properties are -, ;N `lWashm on S iiarRe zonal'Cerite ; generally located along the freight rail line, in between - =`` Fanno Creek and I-5 (See Map 3-3). v"" �*y m �.%��.;;�.s'�a��;'., Many studies performing Fiscal Impact Analyses have demonstrated that Table 3-12:Comparison of Land Area by Zoning Type commercial and industrial properties Tigard Beaverton Hillsboro Gresham Sherwood • Residential 0.69 0.70 0.44 0.70 0.70 consume less in services than they pay in Commercial(inc l. taxes (even in states without a sales tax.) Mixed Use) 0.20 0.19 0.23 0.12 0.07 The American Farmland Trust has compiled Industrial 0.11 0.11 0.33 0.18 0.23 the results from 83 U.S. suburban and rural Source:Community Development Department communities (none in Oregon) to compare the costs of providing public services to residential, commercial/industrial, and farm/forest land uses. Residential uses typically demand $1.15 in services for every $1.00 in revenue. Commercial/Industrial uses demand $0.27 in services for every$1.00 in revenue (source:American Farmland Trust,September 2001). A community's land use mix has an , impact on its economic health and Table 3-13: City of Tigard Assessed Value',August, 2006 ability to provide services. Tigard Commercial Industrial Residential has a diverse mix of uses so one Property Property Property2 sector does not have to shoulder Number of lots 846 103 13,520 Land Value $542,359,300 $67,764,130 $1,624,848,768 the burden of providing services. Building Value $1,229,491,270 $106,753,350 $1,962,943,927 By zoning designation, Tigard's Total Value $1,771,850,570 $174,517,480 $3,587,792,695 land area is 69% residential, 11% Average Value $2,094,386 $1,694,344 $265,369 industrial, 11% commercial, and Assessed Value $1,027,890,610 $115,111,790 $2,539,288,470 9%mixed-use. 1 Does not include Non-assessable property(Property Class 900 to 999) 2 Includes Single Family and Multi Family The Oregon Economic Source:Washington County Assessor,2006 Development Association runs a • Community: Economy Page 3-17 Draft— Tigard 2007 • . 2 , E C O N O M Y • State-wide industrial and commercial land and building inventory,with data for "permit ready" sites in cities and counties throughout Oregon. Owners and/or managers of several Tigard properties have their sites listed at: www.oregonprospector.com. Assessed Property Values 949 properties are zoned for either Commercial or Industrial uses in Tigard (Fable 3-13). The combined assessed value for all Commercial and Industrial zoned properties are approximately $1.1 billion. This accounts for 31% of the aggregate assessed values for all property in Tigard. The average value for a commercial property is $2,094,386 and the average value of an industrial property is $1,694,344. Commercial and Industrial properties are significant sources of property tax revenue (Fable 3-14). The Oregon Business Park alone accounts for 3.8% of the total assessed valuation of Tigard properties. New commercial and industrial projects are also assessed Park SDC charges of$255 per employee. Table 3-14:Top 5 Property Taxpayers in Tigard, 2005 Assessed Percentage of Total Taxpayer Business Valuation Assessed Valuation Pacific Reality Associates Oregon Business Park $149,069,426 3.81% PPR Washington Sq.LLC Washington Sq. Shopping Mall $81,987,770 2.10% EOP-Lincoln, LLC Lincoln Center $71,459,982 1.80% • Verizon-Northwest Utility-Communications $50,038,200 1.28% Calwest Industrial Holdings Property Management $31,848,060 0.81% Source:City of Tigard Finance Department,2006 Businesses Tigard collects annual data on private businesses that pay the Tigard Business Tax. Because it is self- reported, the data has some limitations, but it gives a good picture of the types of businesses located here. According to 2005 Tigard Business Tax information, there were 3,124 private businesses operating in the city limits. Typically, each year, an equal number of businesses (between 300 and 500) pay the tax for the first time, as stop paying (due to going out of business, or moving from the City.) In 2005, considered a "typical year,"462 new businesses paid the business tax,of which 372 renewed the following year. A diverse range of businesses have chosen to locate in Tigard. See Table 3-15 for a list of the top 20 public and private employers. According to the business tax data, contractors represent the largest number of businesses (about 3/4 of which have 10 or fewer employees). From a breakdown of the business tax data, roughly 75% of jobs can be classified as Commercial (Retail, Health, Real Estate, Finance, and Insurance, etc.) and 25% can be classified as Industrial (Wholesale Trade, Manufacturing, Construction and Transportation, etc.) About half of Tigard businesses employ four people or fewer. There are 420 home- based businesses,which employ 640 people. • Community: Economy Page 3-18 Draft—Tigard 2007 • • 2 . E C O N O M Y • Table 3-15:Top 20 Employers in Tigard,2005 Number of Business Name Employees Business Sector 1 Renaissance Credit Services1 1,116 Finance/Banking/Real Estate 2 Tigard-Tualatin School District2 779 Education 3 Meier&Frank3 704 Department Store 4 Nordstrom 461 Department Store 5 Oregon PERS 347 Government Agency 6 Costco Wholesale 341 Wholesaler 7 Providence Health System 303 Medical/Dental 8 Ikon Office Solutions 277 Sales/Manufacturer's Rep 9 City of Tigard 267 Government 10 FLIR Systems Inc. 250 Manufacturer 11 The Cheesecake Factory 250 Restaurant 12 Home Depot 241 Retail 13 North Pacific Group Inc. 238 Wholesaler 14 US BancCorp Equipment Finance 234 Finance/Banking/Real Estate 15 Gerber Legendary Blades 232 Manufacturer 16 Landmark Ford 224 Auto Sales/Service/Lease 17 The Coe Manufacturing Co. 221 Manufacturer 18 Rockwell Collins Aerospace 216 Manufacturer 19 Sears, Roebuck&Co. 206 Department Store 20 University of Phoenix 196 Service Industry 1 Now HSBC 2 Employees working in Tigard • 3 Now Macy's Source:City of Tigard Finance Department,2006 Sales The U.S. Economic Census, which takes place every five years, provides data on industry sales within the City of Tigard. Table 3-16 shows the industries operating in Tigard (the industry description does not align perfectly with the City's business license sector data) and compares 1997 and 2002 Economic Census data. The Wholesale Trade sector (which includes warehouse and distribution firms) generates the highest value of Shipments, Sales & Receipts, roughly twice the amount generated by the next highest, Retail Trade. (The comparisons between 1997 and 2002 are somewhat problematic due to the change in some industry classifications,including Wholesale Trade, Retail Trade,and Manufacturing between the two surveys.) Employment and Payroll Tracking exact employment figures is a challenge, particularly on the local level. There are a number of different government agencies that collect information on employment, each with a slightly different methodology. As a result, there is some inconsistency in data. The State of Oregon tracks full and part time employment that is covered by unemployment insurance, which leaves out the self-employed. The U.S. Economic Census collects information on employees and payroll for private employers in Tigard, although, due to privacy issues, some data is not released. The City of Tigard Finance Department also tracks the number of full-time equivalent jobs for businesses that pay the Business Tax (using different industrial job classifications than the state and Federal governments). The State of Oregon's Employment Department probably has the most reliable data for Tigard. • Community: Economy Page 3-19 Draft— Tigard 2007 • 2 . E C O N O M Y • Table 3-16:Sales Over Time,by Industry in Tigard Number of Shipments,Sales& Businesses Receipts($1000) Industry Description 1997 1 2002 1997 1 2002 Wholesale Trade 246 235 3,212,540 2,915,377 Retail Trade 335 313 1,429,402 1,498,597 Manufacturing 110 107 566,387 539,058 Real Estate,Rental&Leasing 110 127 117,485 250,688 Health Care&Social Assistance 139 154 112,591 235,198 Administrative,Support&Management 117 127 196,685 175,763 Other Services(except public admin) 91 126 48,513 99,519 Accommodation&Food Services 130 151 88,391 93,162 Educational Services 16 18 14,234 14,922 Arts, Entertainment&Recreation 12 17 5,885 9,092 Professional,Scientific&Technical Services 247 298 233,983 not released Information n/a 71 not released not released Source:2002 U.S.Economic Census Tigard has a high jobs-to-population ratio and jobs-to-household ratio (Table 3-17). In 2004,Tigard's ratio of jobs to total population was 0.85, compared to 0.46 for Washington County as a whole. (A 1.0 ratio would indicate an equal number of residents and jobs in the same jurisdiction.) However, as noted before, 70%of Tigard residents commute to jobs outside of the City. Table 3-18 shows 2004 Employment (jjobs covered by unemployment insurance.) By dividing the total 4I) payroll by the number of employees an average wage can be determined. The Management of Companies and Enterprises and the Information sectors have high payroll expenses, relative to the number of employees,which connotes higher paying jobs. The Wholesale Trade and Finance and Insurance sectors also have a high average payroll. The Accommodation and Food Service sector has low average wages, about one-fifth of the amount that Information workers make. Higher paying industries are positive for a local economy, even if the employees do not all live in the city, because they can attract further investment and their employees are a market for local goods and services. Using this data, the average wage for all jobs in Tigard is $40,375. This is below the average for jobs in Washington County as a whole ($45,757), and above the average for the State of Oregon as a whole ($35,620) (2004 Oregon Employment Department). Tigard has about 5.8% of the workforce of Washington/ Multnomah Counties (Region 2 of the Oregon Employment Department.) Table 3-17: Comparison of Various Cities Jobs, Population, and Households Washington Tigard Sherwood Beaverton County Milwaukie (2004) (2005) (2004) (2004) (2000) Total Population 44,650 14,410 79,350 489,785 20,490 Households 18,655 4,253 30,821 183,465 9,049 Jobs 37,861 4,315 49,255 224,216 15,420 Jobs/Population Ratio 0.85 0.30 0.62 0.46 0.75 Jobs/Household Ratio 2.03 1.01 1.60 1.22 1.70 • Source:Oregon Employment Department,City of Sherwood,and City of Milwaukie,2006 Community: Economy Page 3-20 Draft- Tigard 2007 • • 2 , E C O N O M Y • Table 3-18:2004 Tigard Covered Employment by Industry(Ranked by No.of Employees) Avg. Annual Number of Reporting Avg. Industry Employees Companies Total Payroll Payrol Retail Trade 7,138 300 $173,558,151 $24,315 Finance and Insurance 4,195 259 $236,533,752 $56,385 Construction 3,151 273 $147,112,516 $46,688 Manufacturing 3,129 120 $157,115,805 $50,213 Administrative and Waste Services 3,001 172 $85,350,601 $28,441 Professional and Technical Services 2,920 360 $157,614,092 $53,977 Accommodation and Food Services 2,904 160 $42,775,496 $14,730 Wholesale Trade 2,704 354 $179,567,225 $66,408 Total Government 1,751 39 $69,663,218 $39,785 Health Care and Social Assistance 1,670 177 $58,473,561 $35,014 Other Services, Ex. Public Admin 1,366 221 $41,530,286 $30,403 Information 1,194 80 $78,826,482 $66,019 Educational Services 802 32 $29,304,130 $36,539 Transportation and Warehousing 750 36 $20,379,624 $27,173 Real Estate and Rental and Leasing 689 127 $25,552,243 $37,086 Management of Companies and Enterprises 308 28 $20,696,714 $67,197 Arts, Entertainment, and Recreation 160 22 $2,797,798 $17,486 Unclassified &Misc. 22 20 $1,526,232 $69,374 Natural Resources 8 5 $253,714 $31,714 11111 Total 37,861 2,785 $1,528,631,640 $40,375 Source:Oregon Employment Department,2004 A Location Quotient (LQ) is a ratio of employment sectors in a local area compared to a larger area (Table 3-19). It shows sectors where a local area has attracted more employment than the average in the region. A Location Quotient of 1.0 indicates the same share as the region, while a LQ of greater than 1.0 shows a higher than average concentration and lower than 1.0 a lower than average concentration. Tigard Employment sectors with a high LQ, (compared to the Washington/Multnomah County Region) include Retail Trade, Financial Activities, and Construction. All of the sectors with LQ's greater than 1.0, except Retail, have jobs with higher than average wages. These "employment clusters" are important drivers of the local economy and influence business location decisions. A Location Quotient Analysis was also done to compare Tigard employment against the statewide figures. This found Tigard to have a significant concentration of Finance and Insurance employment, an LQ of 3.04, (these jobs have a propensity to locate here 3 times greater than average.) • Community: Economy Page 3-21 Draft- Tigard 2007 • 2 . E C O N O M Y • Table 3-19:Tigard 2004 Employment Compared to Region(Washington and Multnomah Counties) Multnomah/ Tigard Avg. Washington Tigard %of Location Employment Sector Employment Counties Region Quotient Retail Trade 7,138 66,400 10.8% 1.85 Financial Activities 4,884 48,600 10.0% 1.73 Construction 3,151 31,300 10.1% 1.73 Professional and Business Services 6,229 91,100 6.8% 1.18 Wholesale Trade 2,704 39,600 6.8% 1.17 Information 1,194 17,800 6.7% 1.15 Other Services 1,366 23,800 5.7% 0.99 Leisure and Hospitality 3,064 59,200 5.2% 0.89 Government 1,751 51,200 3.4% 0.59 Educational and Health Services 2,472 113,600 2.2% 0.37 Manufacturing 3,129 80,700 3.9% 0.67 Transportation and Warehousing 750 26,400 2.8% 0.49 Natural Resource and Mining 8 600 1.3% 0.23 Total Payroll 37,840 583,900 6.5% Source:Oregon Employment Department,2006 INDUSTRIAL AND EMPLOYMENT AREAS • The Department of Land Conservation and Development, through Goal 9, prioritizes the protection of land for industrial and employment uses. The state has declared an interest in preserving developable industrial land that generates large capital investments, well-paying jobs, and "traded-sector activity" (the production of goods.) Industrial uses have specific requirements, usually requiring large parcels of land and isolation from other uses, due to their offsite impacts - such as noise, traffic, and pollution. This is particularly true for heavy industrial uses, like energy production facilities. However, many light industrial uses generate few, if any, nuisances. Another justification for protecting industrial and employment land is that retail uses are believed to compete for the same land. Both uses prefer locations convenient to major highways. Without intervention, it is assumed that market forces would force out many industrial uses and replace them with retail development.The advantage to preserving industrial land is that industrial/ manufacturing jobs are typically higher paying than service jobs. Also, in the industrial sector, when a product is made and exported, the typical result is an "import" of wealth from around the country and the world.Additionally,manufacturing jobs can often create spin-off jobs in the area. Metro Title 4 Metro has implemented the state's Goal 9 policy on a regional basis through Title 4 of the Urban Growth Management Functional Plan. Title 4 seeks to protect a supply of regional sites for employment in the region by limiting the types and scale of non-industrial uses in designated areas. Title 4 also seeks to encourage "clustering" of industries that work more productively in proximity to each other, and to protect the capacity and efficiency of the region's transportation system. • Community: Economy Page 3-22 Draft—Tigard 2007 • • 2 . E C O N O M Y • Title 4 designates three categories of land that require protection: • Regionally Significant Industrial Areas (RSIAs) are areas near the region's most significant freight transportation facilities that would be difficult to replace in the planning area; • Industrial Areas are areas currently zoned industrial that are convenient to freight transportation routes; and • Employment Areas include a wide range of retail,wholesale, service, non-profit, business headquarters and governmental employment activities that are accommodated in retail, office and flexible building types. These areas are indicated on Metro's Map of Industrial and Other Employment Areas. Tigard has not been assigned any Regionally Significant Industrial Areas, which have the strictest limits. Tigard's designated Industrial and Employment Areas encompass over 500 tax lots with a total area of approximately 1100 acres (See Map 3-4).Tigard will have to update its Community Development Code by 2007 to conform to the Title 4 restrictions on retail uses in the designated Industrial Areas. Conversion of Industrial Land to Commercial Use in Tigard There has been some loss of industrial land to commercial uses in the past 20 years in Tigard. The largest conversion was when the City of Tigard adopted the Washington Square Regional Plan. Twenty-five acres were re-zoned from Industrial Park (IP) to Mixed Use Commercial (MUC) zoning, which does not permit any Industrial uses, and 47 acres were changed from IP to MUE-2 (Mixed Use Employment 2) which restricts Industrial uses to a few categories. • Between 1990 and 1994, the City approved four applications to re-zone land from Industrial to Commercial zoning. Since 1991, there have also been at least five applications for zone changes from Light Industrial to Industrial Park.The IP zone is a "soft"industrial zone in that it allows office uses and only certain industrial uses. While there have not been large numbers of applications to re-zone properties to IP, it is possible that the tight office market in Kruse Way (vacancy rates of 4%, compared to a region wide average of 11.7%) could cause a spillover effect, creating a demand for office development in Tigard's Light Industrial zones near I-5.According to a June 2005 Westside Economic Alliance presentation, the 1-5 Office Market,in general,is strong due to the proximity to top managers' homes, excellent transportation access, and the absence of Multnomah County business taxes. Recent Economic Development The recent expansion of the Washington Square Shopping Mall added 80,000 square feet of retail and 300 jobs to the existing workforce of 1600 (with 400 additional jobs during the holiday season.) There are several new infrastructure projects planned for the Urban Renewal, including new streetscapes, expansion of Fanno Creek Park and the new Commuter Rail station. It is expected that these public investments will spur new private investment in the Downtown area and result in an increase in jobs in the area. • • Community: Economy Page 3-23 Draft— Tigard 2007 • • 2 . E C O N O M Y • FUTURE NEEDS - 2027 In 1997 Metro assigned Tigard a capacity of 17,801 new jobs by the year 2017. Assuming that Tigard's total number of jobs has grown 10% since 1997 (based on Washington County's job growth in the same period), Tigard added approximately 3,800 jobs in the period between 1997 and 2004. This would mean that in seven years, 21% of the assigned capacity has been achieved. There may be sufficient employment capacity in the rezoning of the Tigard Triangle and Washington Square areas, and the future re-zoning of the Urban Renewal Area. It is important to recognize that using state data, Tigard employment may only grow by about 13,000 jobs by 2024. Existing Land Supply The City tracks buildable lands through a yearly inventory process. The purpose of the Buildable Lands Inventory (BLI) is to identify undeveloped land that is available and compatible with development policies and practices. Buildable Lands are vacant parcels or the portions of developed parcels with more than 1/4- acre vacant. No publicly owned parcels or Title 3 Table 3-20:Tigard Buildable Lands Inventory' environmental protection areas are included. Classifying land Zoning Acres as buildable is used for housing and growth projections; it Commercial 86.18 (Mixed Use 37.17) does not mean the land will necessarily be developed. The Industrial 66.18 BLI also does not include properties with low building to Residential 388.95 land value ratios, which is considered a sign that a parcel is Total 541.31 re-developable. 1 Through June,2006 Source:Community Development Department,2006 • Tigard's total land area is 7,496 acres (Table 3-20). Of this, 541 acres have been identified on the 2006 BLI. Approximately 152 of these acres are zoned Commercial and Industrial (See Map 3-5). Most of the remaining buildable parcels are less than one acre in size (Table 3-21). The greatest concentration of buildable land is in the Tigard Triangle. Tigard's supply of buildable Table 3-21: Lot Sizes of Buildable Commercial, Mixed Use and Industrial Industrial land is dwindling, with Land,June 2006 only 66 acres remaining. No Lot Size Commercial Mixed Use Industrial Total buildable Heavy Industrial land is Less than 5000 sq. ft. 5 6 3 14 available. One property makes up 5001 to 10000 sq. ft. 9 14 3 26 75% (17.64 acres) of the buildable 10000 sq.ft.to 1 acre 21 38 9 68 Light Industrial land. Similarly, 80% 1 to 5 acres 7 2 13 5 2 to 5 acres 5 2 2 9 (34.7 acres) of the buildable 5 to 10 acres 2 0 0 2 Industrial Park land is owned by More than 10 acres 0 0 3 3 one individual. Both of these Total 46 67 22 135 properties have significant Source:Community Development Department,2006 constraints. Future Job Growth The state Employment Department makes 10 year employment forecasts for designated regions in Oregon. The region of Washington and Multnomah Counties is expected to have employment growth of an average of 1.6% a year. Different industries are projected to grow at different rates, ranging from a 5% increase in • Community: Economy Page 3-24 Draft— Tigard 2007 • • 2 . E C O N O M Y I III manufacturing jobs, to a 23% increase in Professional and Business Service jobs (see Table 3-22.) Of the employment sectors with high projected growth, Professional and Business Services and Construction jobs also have a higher propensity to locate in Tigard. To determine Tigard's 20 year employment growth, it was assumed that Tigard's growth would mirror the regions. However, unforeseen changes in the economy could result in higher or lower growth scenarios. Economic Opportunity Analysis Figure 3-2: Tigard Projected Commercial and Industrial DLCD developed a methodology to Land Needs-2024 perform an Economic Opportunity Analysis, a process of analyzing trend 160- data to determine the future 140 employment land needs for the planning 120 area. The analysis for Tigard was done E 180 it Land Needed using 2004 as the base year and Q 60 o Land Mailable forecasting to 2024. An estimate was 20 made of the amount of vacant land o , needed to accommodate the forecasted Industrial Commercial employment demand. The employment Source:Community Development Department,2006 sectors had different requirements for land (depending on a typical employee-per-acre ratio.) III This preliminary analysis determined that the additional jobs expected by 2024 would require 220 acres of vacant land, with 141 acres for Industrial uses and 80 acres for Commercial uses. Subtracting Tigard's buildable land supply, there is a deficit of 75 acres of Industrial land (see Figure 3-2). Although Industrial type jobs will likely Table 3-22: Regional Employment Forecast for Washington/Multnomah Counties increase by 2000 jobs, Annual compared to about Change in Percent 11,000 for commercial Employment Sector 2004 2014 Jobs Change jobs, Industrial jobs Professional and Business Services 91,100 117,900 26,800 2.9% typically have a smaller Educational and Health Services 78,800 95,400 16,600 2.1% employee per acre ratio Transportation and Warehousing 26,400 31,300 4,900 1.9% and so require more Leisure and Hospitality 59,200 70,100 10,900 1.8% land. Construction 31,300 36,500 5,200 1.7% Information 17,800 20,600 2,800 1.6% Retail Trade 66,400 75,900 9,500 1.4% There is a sufficient Other Services 23,800 27,200 3,400 1.4% supply of land for Financial Activities 48,600 55,200 6,600 1.4% commercial jobs, which Government 86,000 95,700 9,700 1.1% includes retail, service, Wholesale Trade 39,600 43,900 4,300 1.1% and office jobs. Manufacturing 80,700 84,800 4,100 0.5% Typically these jobs Natural Resources and Mining 600 600 0 0.0% have a denser employee Total 650,300 755,100 104,800 1.6% Source:Oregon Employment Department,2006 per acre ratio. • Community: Economy Page 3-25 Draft-Tigard 2007 • • 2 . E C O N O M Y 11 • By way of comparison, Metro's 2002 Alternatives Analysis Study for the entire region inside the Urban Growth Boundary forecasted an industrial land deficit of 5,684 acres and a commercial land surplus of 759 acres. It is unlikely that Tigard will be able to annex new land suitable for industrial or commercial uses in the future.Tigard will need to look at an appropriate mix of land uses based on the availability of land. K E Y F I N D I N G S • Tigard is home to a wide range of economic activity. • Tigard's location at the crossroads of important transportation corridors Interstate 5, Highway 217, and Highway 99W is a major advantage in attracting economic activity. • Approximately 31% of Tigard's land area is zoned for commercial, industrial, and mixed use purposes. • The major commercial and mixed-use areas of the City are Washington Square, Tigard Triangle, Downtown Tigard, and the 99W corridor. Industrially zoned properties are generally located along the freight rail line,in between Fanno Creek and Interstate 5. • Industrial and Commercial properties provide a significant source of property tax revenue. • Tigard businesses provide 37,861 full and part time jobs • In 2005, 3,124 businesses paid the Tigard business tax. About half of these businesses employ four people or fewer. • There are more jobs in Tigard than people in the workforce living within the city boundaries. 70% • of residents commute outside the city; therefore Tigard is a net attractor of commuters. • In Tigard, the Wholesale Trade sector has the largest amount of sales. The Retail sector has the largest annual aggregate payroll. • Financial Activities, Retail, and Construction are employment sectors with high Location Quotients (propensity to locate)in Tigard. • More specific data could be collected on Tigard businesses from the Business Tax process. • Metro has designated approximately 1100 acres of Industrial and Commercially zoned properties in Tigard as Title 4 Industrial and Employment Areas. Tigard will have to amend its code to limit the development retail and service uses for some I-P zone properties. • There has been no large-scale encroachment of retail/office uses in industrial areas in Tigard. The largest conversion of industrially zoned land occurred with the City's adoption of the Washington Square Plan. • In 1997 Metro assigned Tigard a capacity of 17, 801 new jobs by the year 2017. Between 1997 and 2004,Tigard added approximately 3,800 jobs. • According to the Economic Opportunity Analysis,Tigard's supply of industrially zoned land,will be inadequate (a deficit of 75 acres) to meet the forecasted 2024 job demand. Redevelopment of underutilized property may be necessary. The Analysis forecasts an adequate supply of commercial land. • Tigard has little vacant industrial land available to attract new large scale industrial development. • A recent study found that Tigard was a "hub for innovation" due to a high concentration of patents granted to individuals and small business in 2005. • Tigard does not have a formal city-wide economic development strategy. • Community: Economy Page 3-26 Draft— Tigard 2007 • • IIfi 3 . H I S T O R I C R E S O U R C E S • Each community possesses certain landmarks that not only establish its identity, but also embody the community's history. Although the City of Tigard did not incorporate until 1961, Tigard's history began far before that official date and is recorded in the city's historical structures. Each of these buildings represent an integral part of the community— past, present, and even the future, as new additions to the landscape shape themselves around these key structures. Statewide land-use planning Goal 5 includes the statement to "conserve scenic and historic areas," which requires local governments to adopt programs that will conserve these resources for present and future generations. Local governments are encouraged to maintain a current inventory of historic resources. Because Tigard's historic areas/resources are structures, this section has been included under Community and not Natural Resources. In 1984, the City adopted a Cultural Resource Overlay District to manage significant historic resources. Section 18.740 of the Community Development Code governs the application and removal of the district overlay, the primary purpose of which is to facilitate the protection, enhancement and conservation of landmarks and historic and cultural sites and areas. The overlay requires approval for exterior alterations or new construction, with limited exceptions, and requires director approval prior to demolition. To receive the designation,approval is made through a Type III-Planning Commission procedure. However, a major change in state law governing the designation of properties as historically significant occurred in 1995. That year the state legislature enacted SB 588,which was codified as ORS 197.772. Under • both its terms and the terms of DLCD rules, a local government is required to allow a property owner to remove a historic property designation that was imposed by the local government; in addition, the property owner may refuse to consent to the designation at any time in the process, thus removing the property from consideration for all but the National Register of Historic Places. The property owner does not have to comply with any additional requirements that may be imposed by the local government through its own regulations. The implication of the statute and rule for Tigard's current historic code provisions is that if the property designation does not have owner consent,the provisions are no longer relevant or enforceable. Local conservation efforts can be combined with the National Register of Historic Places (the National Register), a list of cultural resources of national, regional, state, or local significance that is kept by the Department of the Interior's (DOI) National Park Service (NPS). Being listed on the Register does not protect a property from demolition, but it does document and evaluate the property's historic significance based on National Register criteria and makes the property eligible for federal grants when available, including rehabilitation tax credits. In addition, ORS 358.475 through 358.545 allows historic properties to apply for a special classification and assessment as a historic property. ORS defines a historic property as a property that is listed in the National Register of Historic Places, or, if the National Register ceases accepting nominations, that is approved for listing on an Oregon register of historic places;if it is open to the public for sight-seeing at least one day in each calendar year in accordance with rules adopted by the State Historic Preservation Officer; and if the property meets the minimum standards of maintenance established by rule of the State Historic Preservation Officer. • Community: Historic Resources Page 3-27 Draft— Tigard 2007 • III 3 . H I S T O R I C R E S O U R C E S • I N V E N T O R Y Many of the cultural resources associated with the i Applicable,, es, staturesca d."fans tha original development of the Tigard area have not .imp t sto c resources wi the�Ci survived the City's growth during the last forty years. -,include �� > �u ` , ,, - ,. c v.' � ✓�,�� t� Imo. � Fs Sr 3 ,✓/ �,rc� ➢.. Improvements to Pacific Highway also contributed to the demise of the city's resource base. Those resources that �,� ,�� " � survived include a mix of residential, educational, and �x ' • commercial buildings. - ` 2 � ' 5. 3frtO 35: 54 f o 97 7 0 In 1984 the City adopted a Historic Overlay District toy . evel wri` C•• ` manage significant historic resources. Nine resources , h , ;x ; . > have the overlay designation. Two sites, the John F. '` � $ � Tigard House and the Shaver-Bilyeu House, are listed on the National Historic Register. The only property from which the overlay has been removed was the Tigard Feed and Garden Store. The owner (Chamber of Commerce) initiated the removal request. Chapter 18.740 of the Community Development Code requires that if an overlay property receives approval for demolition, a condition of approval will require submittal of a graphic and pictorial history and artifacts to the Washington County Museum. Photos and descriptions of all the sites are available for viewing on the City webpage: www.tigard- or.gov/community/photo gallery/historic sites. A review of the 10 inventory sites also provides a brief • introduction to Tigard history. Table 3-23 gives the address, tax lot number and a short description of each site. K E Y F I N D I N G S • Statewide land-use planning Goal 5 encourages local governments to maintain a current inventory of historic resources. • In 1984, the City adopted a Historic Overlay District to manage significant historic resources. The overlay requires approval for exterior alterations or new construction, with limited exceptions, and requires director approval prior to demolition. Properties with the overlay comprise the City's inventory. To receive or remove the designation, a Type III-Planning Commission procedure is required. • In 1995 ORS 197.772 required local governments to allow a property owner to remove a historic property designation that was imposed by the local government.The implication for Tigard's current historic code provisions is that if the property designation does not have owner consent, the provisions are no longer relevant or enforceable. • Nine resources have the overlay designation. Two sites, the John F. Tigard House and the Shaver- Bilyeu House, are listed on the National Historic Register, only the Tigard house has the HD overlay. • Since the establishment of the HD overlay,only one property has had the overlay removed. • Community: Historic Resources Page 3-28 Draft—Tigard 2007 • • lilt 3 . H I S T O R I C R E S O U R C E S • Table 3-23:City of Tigard Historic Resources Designated Property Address Tax Lot Number Year Designated Durham Elementary 8040 SW Durham St. 2S1 13B 300 1984 School Built in 1920,the school is significant in its association with early Oregon pioneer and businessman Albert Durham. 10310 SW Canterbury Ln. ' 2S1 11 BC 2600,2700 ' 1984 Built in 1880,the house is one of two Tigard sites listed on the National Historic Register.John Tigard John F.Tigard House was the eldest son of Wilson Tigard,the founding father of Tigardville.John operated a coach route from Tigardville to Portland.The house is significant in its association with John and as an example of early frame construction. 121st St.and Katherine St. 2S1 3BB 6500, 10200 I 1984 Ye-Olde Windmill Built in 1909 by Edward Christensen,the water tower stands as a visible testimonial to the surrounding land's original agricultural use and to the Wood-Christensen families who lived and farmed there. 11180 SW Fonner St. I 2S1 3 AC 1700 I 1984 Charles F.Tigard Constructed in 1909,this is the second house occupied by Charles T.Tigard,the 7th son of Tigard's House namesake.Charles established the area's first general store and was involved in other commercial activities. 11180 SW Fonner St. I 2S1 34DD 100/101 I 1986 Tigard Farmhouse and Built in the 1900's,the house is significant due to its association with the Cowgill family. Hal Cowgill,who Windmill purchased the property in 1936,was a long-time employee of Pacific Power and Light.The residence is one of the few bungalow farmhouses with a water tower still intact. 11959 SW Pacific Hwy. I 1S1 35DD 2700 I 1986 • Joy Theater Constructed in 1939,the theater building is significant as an example of the Art Deco/Modern Style. Substantial exterior alteration,approved by the City,occurred in 1992.The basic massing and style of the building was preserved and enhanced by the alterations. 13770 SW Pacific Hwy I 2S1 3DD 60 0 1986 Tigard Grange#148 In continuous use since 1925,the building is an important landmark because it is representative of the efforts of early grange members,including Wilson Tigard. 15020 SW 100th Ave. I 2S1 I1CA 15400 f 1986 Seven Gables Upshaw The residence is significant in its association with the Upshaw family since 1909,when the Rev.William House Loomis Upshaw retired to the house after serving as the minister of a north Portland church and became involved with the production and marketing of apples. 11333 Gaarde Rd. I 2S1 3DC 1700 I 1991 The house was built in 1922 by Hans Gaarde,the son of John Gaarde,who established a blacksmith Gaarde House shop in 1893 across the road from Charles Tigard's store.The house is one of the few remaining examples of the bungalow style with Craftsman detail. Its significance rests primarily on its association as a landmark of the Gaarde family's early presence in Tigard. 16445 SW 92nd Avenue [ 2S1 1300 1993 1 Constructed in 1906,the Shaver-Bilyeu House is the best surviving vernacular Queen Anne Cottage Shaver-Bilyeu House farm residence in the Durham community of Tigard. It is significant culturally due to its association with the Shaver family,who contributed to the formation of the local school district,and to its later association with J.C.Bilyeu,first postmaster of Tigard 1 Listed on the National Historic Registry,but not on the Local Registry Source:Tigard Community Development Department,2007 • Community: Historic Resources Page 3-29 Draft—Tigard 2007 LA I I O. .• • • . y • •4; I.;I 4. , „ :*R. ,. 44.411 14 14.4 „I: • *I * • S IC FACILITIES & PUBLIC SERVICES fr 4;1: ..... . „,, ,,„•,, ,. . , • • ... , ... . . : .1.r.,.ili:ke. ,,._ „:.4.2.i r. • .. ,.. . . . .. . ,,,. : !:..._,.. ._ .. ,. .: . ,. DEFINITION: Coordinating - - - :-, . ,-., ......,. ..,.§.---., , - and delivering ;., . . -.;;:...„ , -,-,..: __. _ __ locating, • ,.... s in a _ .. . -,-,-177-fr„ „H:i.,,..?„,.,- ac f ilities and services 1 ,..-. manner that bes t supports . ,. proposed and prolD0,-)- -., -;4,44,t'-;;; the existing ..,,,-„,;.74--..,.1,-„,.;... ...-- ,,,;itr--. ,, ,...., * ,,_ .:"Jati "— - land uses. ..„.., , -- CHAPTER 4: PUBLIC WATER INFRASTRUCTURE PAGE 4-3 III PUBLIC SAFETY PAGE 4-14 COMMUNITY FACILITIES PAGE 4-20 PARKS, RECREATION, TRAILS AND PAGE 4-28 OPEN SPACE Key City Departments: Contact: Co unity Developmen t Darren Wyss,@tigard-or.gov Associate Planner Public Works d ar r en io Police Library • • IR PUBLIC FACILITIES AND SERVICES III Public Facilities addresses the appropriate coordination, location, and delivery of facilities and services in a manner that best supports the existing and proposed land uses. The collective actions of the City and its 45,500 residents and businesses, as well as future growth and development, can impact public facility quality and capacity. The City and region have developed systems to manage development's impacts in order to maintain and improve infrastructure and service delivery. This includes maintenance and expansion of public and private facilities to support a certain amount of development without detrimental effects and avoiding degradation. These principles are based on Oregon Statewide Planning Goals 8 and 11: • Goal 8: Recreational Needs o To sari fy the recreational needs of the citizens of the state and visitors and, where appropriate, to provide for the siting of necessary recreational facilities including destination resorts • Goal 11: Public Facilities and Services o To plan and develop a timely, orderly, and efficient arrangement of public facilities and services to serve as a framework for urban and rural development The City must ensure that future development, when combined with the existing development, efficiently maintains a level of facilities and services that does not threaten or violate applicable rules, statutes, or standards. This report establishes a baseline of existing conditions in 2006, using maps, data and a review of existing plans, statutes and standards. It is designed to update the original 1983 section "Public Facilities and Services" in the existing Vol. 1 of the Comprehensive Plan. This report will aid the City as it updates its Comprehensive Plan policies and plans for future development. III D A T A S U M M A R Y Three types of facilities are considered in this report: Public Water, Public Safety, Community Facilities, and Parks, Trails, and Open Space. Although presented independently, the conglomeration of the facilities contribute to the community's quality of life. Additionally, some of the facilities and infrastructure cross jurisdictional boundaries are provided by districts and private companies. This requires collaboration in the planning efforts by the various organizations involved. • Public Water Infrastructure. This section focuses on wastewater, stormwater, and drinking water and the current and potential impacts from land use, businesses, residents, and City government. • Public Safety. This section focuses on police and fire protection services and the current and potential impacts from growth and development. • Community Facilities. This section focuses on schools,library,local government facilities, and franchise utilities that are keys to the community's day to day operations and opportunities. • Parks, Recreation, Trails and Open Space. This section focuses on parklands, other parks and open space, recreation programs and facilities, parks maintenance, funding and City park development initiatives. • Public Facilities and Services Page 4-2 Draft— Tigard 2007 • • 1 P U B L I C W A T E R I N F R A S T R U C T U R E IR • Good public water infrastructure is essential for clean drinking water, managing stormwater drainage, and for collecting and treating wastewater. Residents rely on these public services to not only meet their daily needs, but to also protect their health and welfare.The maintenance of these systems preserves their current function for the community, but coordinated planning efforts are also needed to accommodate future growth and development. This planning is critical to ensure that infrastructure expansion is performed in an orderly and logical manner for the efficient use of the land. The City-owned and operated stormwater and wastewater infrastructure are part of systems that rely on regional collaboration and partnerships. This regional approach is led by Clean Water Services (CWS), a public utility committed to protecting water resources in the Tualatin River Watershed. The CWS service boundary encompasses urban Washington County and contains 12 member cities,including Tigard. CWS holds the basin-wide permit required by the Federal Clean Water Act for stormwater and wastewater discharges. To comply with the permits, CWS prepares plans that outline the best management practices for infrastructure design, construction, and maintenance and coordinates the implementation of the plans through Intergovernmental Agreements (IGA)with the member cities. The stormwater plans are important for water quality protection and flood control, while the wastewater plans ensure its proper collection, treatment, and disposal. (More information about storm and wastewater can be found in the Environmental Quality section of the Comprehensive Plan.) In addition to managing storm and wastewater, the City must ensure that the community has clean and safe • potable water for its use. Residents are currently served by two different water providers. The northeast corner of the City (predominately the east side of Highway 217) is served by the Tualatin Valley Water District (TVWD),while the remainder of the City is served by the Tigard Water Division.The Tigard Water Division also provides water to Durham, King City, and unincorporated Bull Mt. The City has no role in the operation or management of the TVWD. The City's Public Works Department houses the Tigard Water Division and is responsible for the planning, maintenance, and expansion of infrastructure, which includes City-owned reservoirs, wells, water lines, pumps, and supply lines. Although the City owns a few wells, nearly 90% of the water supply is purchased from wholesale water providers. This lack of a City-owned supply has been identified as an important issue for the future and three long-term supply feasibility studies are in progress. The studies are in collaboration with neighboring jurisdictions and will evaluate various options for partnerships in securing a long-term supply. Funding for public infrastructure maintenance and expansion is primarily from system development charges and service fees. Wastewater and stormwater infrastructure can also be financed by developers during the construction process. The City's Community Investment Program (CIP) is the primary vehicle through which the various stormwater,wastewater,and water distribution plans are implemented. IP Public Facilities and Services Page 4-3 Draft— Tigard 2007 • • 1/C Z P U B L I C W A T E R I N F R A S T R U C T U R E I N V E N T O R Y 411 Applicable rules sfatutes,;arid:; lane that impact:public water;`u frastruc re wit ;; • the Ci include•°.::.:,'>:';'; % t A. STORMWATER SERVICES ?:- 4 ' 1;; : !w '= ' The City stormwater infrastructure is a mix of natural and 2'`1"eOre on;Revlsei-lr-Statite46$b:��a�er �,�;:�; pi ed systems. As with most urban areas, the reliance on P Y ' !Qiiality,:.44$':5 6';°.-,��.-..�-:':�... �_.<�_ " •„- piped stormwater is crucial to transport the water to the ,3:'�" O"rego%A:dmuustrat�ve Rul 1 �3 3 &f;':; natural systems and move it out of the community. This aligns with the primary objectives of stormwater ,4�' ;,Clean.Water�Services MS4 Storm a er��°=� management services within the City of Tigard; the ' protection of water quality and flood control. To '` ;191— ;:., ater ervtces Design an•.. accomplish these objectives, the City collaborates with ,-�� Coiistrircd•n�Staiiards r'_ °� �`v Clean Water Services (CWS) in the planning and ;,:6,� ,Fa oC Vatersheil M>4 men 'Ian,` '. management of the system. The plans currently used for i r g � "=u- .- )eu 7 :0 of g cICornmuna Develo mint 1`` City efforts are the CWS Stormwater Management Plan £ ty y"' � f% r p � ' Code; - .� .,,..,:-., <£w . .� (SWMP), which addresses water quality protection, and °. Clea i es C l` t�n ' ' ' 8 -Clean Wat = ervtces a1,,Man y ern 3 Y3 Z^+P _f K ,z�='.%R :: fs9:^f� o4 as N 'G Fanno Creek Watershed Management Plan (Fanno Plan), , ��f, which addresses flood control in the City. 9 City o£Tigard aterMaster lnlan, 2l t 0 U/ater,Opet anual.-City of TigardF>; Stormwater Management Plan x The Stormwater Management Plan is submitted by CWS to N, y, s,, ;:; 6 f.`f s,zr'4'ffi'':', s ,,% �jf° ti,L, • the Oregon Department of Environmental Quality z.;�„ 'r;��,.';; '�... . (DEQ) as a requirement of the combined National :: Pollutant Discharge Elimination System (NPDES) and 4 Stormwater�Definitions ` Municipal Separate Storm Sewer System (MS4) permits. `S"tor water =Pre pitation that s'. The SWMP is revised on a five-year cycle and was last „rya s s acciirriilates'�Za'iiatural andJar-coiistructd'�¢;�: updated in spring 2006. It outlines the best management 'storage"and storm?vate%systems during aril practices (BMPs) undertaken by CWS and member cities 'irnrriedi itch following a:storm;even "%; to ensure compliance with the Clean Water Act to the ':Stor7nr waterwmanagement=..Furicti n r maximum extent practicable. BMPs strive to improve the associated'with planni i ,designing,µ y r design, performance, and maintenance of the system. To 'coi stz etin,ma in "taming:finan" g. implement the plan, the City has an inter-governmental re atiri the facilities;; oth constructed- - agreement GA with CWS as a "self-service provider". arid:nat ral that collect store control` " This designation means the City has operation and and%o ;corivey,storriwai er maintenance authority over storm drain stems water Stormwater uali Facili T e is rufn ` tY Y QT,.' . .w.ty:.. �.. quality systems, and roadside ditches under City soft fromi impervious;"surfaces to`removfe ` jurisdiction. The IGA outlines the CWS work program pol lutants:before>releasing;the'waterin a ,: standards that must be followed by the City. Current maintenance programs are shown in Table 4-1. City Stormwater Quantity Facility Reduces°;_ stormwater infrastructure that is subject to the IGA tle • • 1 P U B L I C W A T E R I N F R A S T R U C T U R E 11/C IIIThe Stormwater Management Plan also follows an adaptive management process that allows CWS and its member cities to regularly evaluate the plan strategies. Strategies not performing as well as anticipated can be adjusted and applied to the BMPs. The changes resulting from the adaptive management are documented in annual reports to the State Department of Environmental Quality. Fanno Creek Watershed Management Plan Table 4-1: Scheduled Maintenance of Stormwater System The 1997 Fanno Creek Watershed Management Plan, Program Cycle prepared by CWS for all jurisdictions within the Video Inspection of Pipe Interiors 8 years basin, is the principal plan for drainage in the Roadside Ditching& Inspection 5 years City.The Fanno Plan covers 85% of Tigard (the Line Cleaning& Repair 4 years remaining 15%of the jurisdiction drains directly Manhole/Catch basin Inspection/Cleaning 1 year to the Tualatin River) and has been adopted by Water Quality Facility Inspection/Maintenance Monthly the City. Included in the plan is an inventory of Leaf Pickup Seasonal , drainage structures, an evaluation of their Source:CWS/Tigard IGA,2006 adequacy of capacity, and recommended City infrastructure improvements to reduce flooding. Table 4-2: City Stormwater Infrastructure The Fanno Plan divided the recommended projects by Type Number Size priority, with the highest being the replacement of bridges Stormwater Pipe n/a 113.4 miles and culverts determined to have inadequate openings to Catch Basins 3975 n/a pass the 100-year flood. Three bridges spanning Fanno Outfalls 588 n/a • Creek and one culvert on Summer Creek were rated as Water Quality Facilities high priority. Medium priority projects are replacing Pond (wet or dry) 40 16.0 acres inadequate culverts along tributary streams. The Fanno Swale 23 12.1 acres Plan recommended that culvert replacements should be Filter System 5 n/a evaluated for the need of fish passage as required by the Detention Tank 1 n/a Endangered Species Act. A number of low priority Detention Pipe 10 n/a Source:City of Tigard Public Works,2006 projects were recommended,with two bridge replacements ' on Ash Creek included. Funding for these projects is available through the Storm Sewer Fund that results from the collection of system development charges. Other Policies In addition to the operation and maintenance of the existing stormwater system, the City is responsible for adopting land use policies and regulations that implement statewide planning and land use goals to protect water quality and habitat. These policies and regulations must ensure that the impacts of new development on the stormwater infrastructure (natural and human-made) are minimized. This includes the protection of resources and ecosystem function, reducing the amount of stormwater run-off and impervious surfaces,and minimizing pollutants entering the surface water system from stormwater run-off. One of the greatest impacts on stormwater infrastructure is the amount of impervious surface in a watershed. Impervious surfaces increase run-off into the stormwater system and increase the peak flow of storm events. Reducing the impervious surface coverage will encourage natural filtration and help to reduce the stormwater infrastructure needs, as well as reduce problems associated with scouring and erosion of stream channels from storm events. III Public Facilities and Services Page 4-5 Draft— Tigard 2007 • • 1 . P U B L I C W A T E R I N F R A S T R U C T U R E • Although CWS does not have land use authority, they have been involved in reducing the impacts of stormwater by developing design and construction standards that have been adopted by and are implemented by the City. The standards outline appropriate stormwater infrastructure and design that is needed to accommodate new development. This includes stormwater quality and quantity facilities, and the protection of sensitive areas such as floodplains, wetlands, and riparian corridors. These standards ensure the pretreatment of stormwater before being discharged into any surface water and help to reduce peak flows of community streams. A city engineer performs the task of evaluating the stormwater infrastructure design during the development review process to make sure the standards are met. In addition to the CWS design and construction standards, the City has adopted voluntary habitat friendly development provisions that may be utilized during new development. The provisions seek to protect wildlife habitat that has been identified within the community and includes low impact development practices that are meant to reduce stormwater flow.The primary focuses of the low impact practices include opportunities for reducing impervious surface coverage during development. Funding Funding for the stormwater system is generated from two sources. The first is from System Development Charges (SDCs) that are assessed on new developments that cannot provide their own water quantity and quality facilities. The money is placed in the Storm Sewer Fund, which is managed by CWS and used for capital projects included in plans formulated by CWS. The second, the Surface Water Management Fee, is a monthly charge that is collected on utility bills. The City keeps 75% of this fee for operations and maintenance of the stormwater infrastructure. • B. WASTEWATER SERVICES Wastewater services within Tigard are managed through an agreement between the City and CWS. The agreement assigns the City enforcement of design and construction standards, rules and regulations, and rates and charges governing the use of, and connection to, the wastewater system. In return, CWS acts as the regional wastewater authority that provides, owns, and maintains sewer lines with a diameter of 24 inches or greater (the City owns less than 24-inch lines), as well as pump stations and treatment facilities. CWS is also responsible for the planning of wastewater collection in the Tualatin River basin. The CWS Collection System Master Plan Update (2000) is the current plan for wastewater collection in the Tualatin basin, including the City of Tigard. The primary focus of the plan was to analyze all sanitary sewer lines at least ten inches in diameter and eight inch lines with known capacity problems. Fifteen inch diameter or greater trunk lines required to serve areas without service were also identified. The analysis found that all existing lines within the City of Tigard have adequate capacity to accommodate anticipated growth based on Comprehensive Plan designations. This means that any new lines will be the responsibility of the City as no 24 inch or greater pipes are necessary. An update to the Collection System Master Plan is scheduled for completion in 2007. In order to meet service demands of residents, the City evaluates adequacy of capacity and has also developed the Sanitary Sewer Facility Plan Map. The evaluations are used to prioritize projects and schedule • Public Facilities and Services Page 4-6 Draft— Tigard 2007 • • Z P U B L I C W A T E R I N F R A S T R U C T U R E 411 improvements to the system through the Community Investment Program (CIP). The facility map is continuously revised and shows the locations of all current and proposed lines within the City. The map allows the City to plan for new construction and also identify developed neighborhoods not currently being served by the wastewater system. As of October 2006, there were approximately 12,671 connections to the City's wastewater system. The Neighborhood Sewer Extension Program was established in 1996 by the City to extend public infrastructure to unconnected neighborhoods. This program encourages property owners to retire septic systems and connect to the City sewer system. Currently, 29 neighborhoods (589 properties) have been provided the opportunity to connect through the program. Another 17 neighborhoods have been identified as potential participants in the program. The program does require property owners, upon connection, to reimburse the City for a fair share of the total cost. To encourage participation, the City also established the Neighborhood Sewer Reimbursement District Incentive Program that provides options for limiting the financial burden on the property owner. Both programs have been extended to remain in place until infrastructure can be extended to all of the neighborhoods. The wastewater infrastructure within the City of Tigard is either owned by CWS or the City. CWS owns and operates the Durham Wastewater Treatment Facility. The facility is operating under the basin-wide NPDES permit and is in compliance with Clean Water Act regulations. The City has an IGA with Clean Water Services to perform management and maintenance tasks on City-owned wastewater infrastructure to ensure continued compliance with the regulations. Current maintenance programs outlined in the IGA are shown in Table 4-3 and apply to the 160 miles of wastewater mainline (6 to 21 inches) owned by the City. 111111 In addition to the operation and maintenance of Table 4-3: Scheduled Maintenance of Wastewater System the existing wastewater system, the City is Program Cycle responsible for implementing the CWS design Video Inspection of Pipe Interiors 7 years and construction standards. Land use applicants Line Cleaning and Repair 3 years are required to obtain a Public Facility Permit Manhole Inspection/Rehabilitation 3 years when connecting to City owned wastewater Source:CWS/Tigard IGA,2006 infrastructure and must comply with the design and construction standards as part of the development review process.This function is outlined in the IGA between CWS and Tigard and is carried out by a city engineer. Funding Funding for the wastewater system is generated from three sources. First, developers finance the construction of new sewer lines needed to service their new developments. Secondly, during the building permit process a connection fee is collected by the City. Most of the fee is transferred to CWS, but a portion of the fee is retained by the City for system improvements. Finally, the monthly sewer service fee is collected on the utility bill and a portion is retained by the City for operations and maintenance of the wastewater system. • Public Facilities and Services Page 4-7 Draft— Tigard 2007 • 1 P U B L I C WATER I N F R A S T R U C T U R E 4/t • C. WATER DISTRIBUTION SERVICES The Tigard Water Division provides water to most of the City's residents. It also supplies the City of Durham, King City, and the Bull Mountain area of unincorporated Washington County; which is represented by the Tigard Water District. The northeast corner of the City is supplied water by the Tualatin Valley Water District (TVWD), which operates independently from the Tigard Water Division. This provision by two different entities resulted from Tigard expanding its boundaries through annexation. The service areas are shown on Map 4-1. The TVWD is governed by a five-member Board of Commissioners and operates under the TVWD Water Master Plan/Management Plan (2000). The plan is currently undergoing an update process that will be completed in spring 2007. To implement the plan,TVWD has developed Water System Standards, rules and regulations, and uses a Five-Year Capital Projects Program for direction. TVWD water supply is purchased from the City of Portland under a 10-year contract signed in summer 2006. Additional water comes from the Joint Water Commission OWC), which is a governmental water purveyor created by the cities of Hillsboro,Forest Grove,Beaverton, and the TVWD. As of November 2006, TVWD has approximately 1,920 service connections within the City of Tigard. There are 24 covered reservoirs in the TVWD system that can store 53 million gallons of water. Tigard has no role in the operation or management of TVWD, but has collaborated with them on long-term supply studies and is also capable of sharing water in emergency situations. • The City of Tigard Water Division provides potable water to approximately 55,990 people through approximately 17,300 residential, commercial, and industrial service connections. The Tigard Water District was the original supplier, but the City took over the system in 1994. During the transfer of supply responsibilities, an IGA created oversight for the water system through the Intergovernmental Water Board (IGWB), which consists of a member from Tigard, Durham, King City, Tigard Water District, and one at- large member. The IGWB advises Tigard City Council on issues relating to rate setting and water supply. The IGWB was created as a result of the City supplying water outside of its boundaries. The Water Distribution Hydraulic Study (2000) is the current master plan for the City water supply system. The study provides direction for system improvements and three feasibility studies must be completed before an update is performed: • Joint Water Supply System Analysis with Lake Oswego • Willamette Water Supply Consortium • Joint Water Commission Feasibility Study The three feasibility studies will help to provide direction for the City's long-term supply options. The City owns and operates the water distribution system under license from the Oregon Department of Human Services (DHS) and the Oregon Water Resources Department (ORWD). As a requirement of the license, a sanitary survey is performed every three years by DHS. The latest survey was July 2006 and the • Public Facilities and Services Page 4-8 Draft— Tigard 2007 • • 1 P U B L I C WATER I N F R A S T R U C T U R E IR III City water system passed with marks of good operating Table 4-4:City ry of Tigard Water Storage Reservoirs conditions,good staff, and a well-maintained system. Overflow Capacity Elevation Pressure Current Supply Name (mg) (ft) Zone The City of Tigard does not own a water source capable of High Tor A 1.10 713 713-foot High Tor B 1.00 713 713-foot meeting the current and future demands of its residents. In High Tor C 0.20 713 713-foot order to meet demand, Tigard purchases nearly 90% of its 10 MG 10.00 475 410-foot water from wholesale water providers such as the Portland Reservoir#4 1.00 417 410-foot Water Bureau (PWB). The PWB manages the Bull Run Baylor St.A 1.00 416 410-foot Watershed, a surface water supply, located in the Mount Baylor St. B 1.10 416 410-foot Hood National Forest. Water delivered from the Bull Run Reservoir#2 0.28 413 410-foot system arrives unfiltered. In cases of emergency and/or Reservoir#3A 0.80 412 410-foot high demand, the PWB also maintains groundwater wells Reservoir#3B 2.50 412 410-foot located along the Columbia River. The City signed a 10- Reservoir#1A 1.00 410 410-foot year agreement in summer 2006 to continue purchasing Reservoir#1 B 1.00 410 410-foot water from PWB. In addition, the City purchases water Menlor 3.50 410 410-foot Tigard Water Division,2006 from the City of Lake Oswego,which draws its water from the Clackamas River Basin. During periods of high water demand, the City can supplement its supply with water from City-owned aquifer storage and recovery (ASR) wells and native groundwater wells. Additional supply is available for • purchase from the Joint Water Commission QWC). Water from the JWC is delivered via the City of Beaverton system; making it Tigard's only fluoridated supply. In 2005, the Oregon Departments of Human Services and Environmental Quality conducted a source water assessment on Tigard's groundwater wells. Within the Tigard water service area, 50 sites were identified as potential sources of drinking water contamination if managed improperly. The City also has system inter-ties with Beaverton, Tualatin, and the Lake Grove Water District that allow the City to supply them water under emergency conditions. Current Storage The City of Tigard's water system contains 13 reservoirs with a total combined storage capacity of approximately 24.5 million gallons. Table 4-4 presents a summary of the City's storage reservoirs. The City is also in the planning stages of constructing a three million gallon underground reservoir on a recently purchased piece of property along Bull Mountain Road. The reservoir site may also double as a park in the future. • Public Facilities and Services Page 4-9 Draft— Tigard 2007 • • 1 P U B L I C W A T E R I N F R A S T R U C T U R E 11°St • Table 4-5: City of Tigard Pump Stations Name Horsepower Capacity(gpm) Supply To Canterbury Pump Station 50 1,000 550-foot High Pressure Zone ASR-1 &Reservoirs 50 1,000 Pump Station#2 100 2,000 10 MG Reservoir 150 1,400 High Tor Reservoirs 50 350 SW 132nd Ave Pump Station 50 350 High Tor Reservoirs Transfer Pump Station 200 2,000 High Tor Reservoirs ASR-2 &Reservoir 350 1,736 10 MG Reservoir 25 800 High Tor Pump Station#1 25 800 713-foot High Pressure Zone 25 800 High Tor Pump Station#2 25 800 713-foot High Pressure Zone 25 800 100 1,755 Bonita Road Pump Station 100 1,755 410-foot Pressure Zone 100 1,850 Hunziker Pump Station 30 1,400 410-foot Pressure Zone Source:Tigard Water Division,2006 Current Distribution The City of Tigard's water distribution system contains eight pump stations,which are presented in Table 4- 5.The pump stations help to distribute potable water to residents around the City. The water service area distribution system is also composed of various pipe types in sizes up to 36 inches in diameter. The total length of piping in the service area is approximately 209 miles. The pipe types include cast iron, ductile iron, steel and copper. The majority of the piping in the system is cast and ductile iron piping. Table 4-6 presents a summary of pipe lengths by diameter. Table 4-6: City of Tigard Pipe System Current Demand Pipe Diameter Estimated Length The Water Division has identified a number of differing methods (inches) (miles) for calculating water consumption in the service area. Each has its 4-inch or less 4 pros and cons, but all methods show a decrease in total 6-inch 62 consumption and per capita consumption from the period 2001 to 8-inch 65 2005.Table 4-7 shows total consumption based on the City's Utility 10-inch 2 Billing database. Table 4-8 shows the number of accounts receiving 12-inch 49 water from the City. 16-inch 9 24-inch 7 Using the Utility Billing data and population served by the Tigard 36-inch 1 Water Division, the gallons per capita per day (gpcd) can be Total 209 miles calculated. Table 4-9 shows the results. Source:Tigard Water Division,2006 1111 Public Facilities and Services Page 4-10 Draft— Tigard 2007 • • Z P U B L I C W A T E R I N F R A S T R U C T U R E 11C III Repairs made in water line leaks, rising costs, and the Water Division's Conservation Program have P� g contributed to the decrease in per capita water use. Both the Conservation Program and rising costs could have a continued effect on water demand capacity. Future Demand Table 4-7: Total Water Consumption (MG)-Tigard Service Area The Water Division produced Type of Account 2001 2002 2003 2004 2005 the Water Demand Forecast Commercial 338 343 341 327 316 Report (Sept 2006) that used Industrial 20 26 19 18 15 projected population growth and Irrigation 64 73 74 70 63 anticipated per person water Multi-unit 473 486 444 458 441 demand to forecast future Hydrant 0 0 2 13 3 demand. The data used for the Residential 1,240 1,292 1,315 1,301 1,254 forecast includes: Total (MG) 2,135 2,220 2,195 2,186 2,093 Source:Tigard Water Division,2006 • 10 year period (1996-2005) average dwelling unit per acre density is 6.8 units/acre; • 5 year period (2001-2005)average dwelling unit per acre density is 8.2 units/acre; • State Metropolitan Housing Rule requires Tigard to provide for an overall dwelling unit per acre density of 10 units/acre; • The number of units is multiplied by the average population density of 2.5 persons per unit (Washington County); • Long Range Planning has identified 570 buildable acres within Tigard/Bull Mountain Area; 32 • buildable acres within Durham and 107 buildable acres within King City; Total buildable acres is estimated at 709 acres (build out); • Year 2005 calculated water demand is 110 Table 4-8: Total Number of Accounts-Tigard Service Area gallons per person per Type of Account 2001 2002 2003 2004 2005 day average; Commercial 636 640 644 646 648 Current 5 year (2001- Industrial 14 14 14 14 14 • 2005) average water Irrigation 138 147 152 163 177 Multi-unit 594 596 592 593 595 demand is 120 gallons Hydrant 0 0 12 7 6 per person per day Residential 14454 14713 15087 15363 15715 average. Total 15,836 16,110 16,501 16,786 17,155 Source:Tigard Water Division,2006 The results of the forecast are: • Population growth from 12,053 to 17,725 persons (17,725 population increase would require all available lands built to 10 unit/acre density)within the next 10 years is possible • Water demand per person could range from 110 to 120 gallons per capita per day • Annual water demand could range from 2,732 million gallons to 3,229 million gallons (3,229 MG is based on the max density of 10 unit/acre) • Average Daily Demand could range from 7.5 mgd to 8.8 mgd (8.8 mgd maximum based on 10 unit/acre density and 120 gpcd) 1111 Public Facilities and Services Page 4-11 Draft— Tigard 2007 • • 1 P U B L I C W A T E R I N F R A S T R U C T U R E • • Peak Demand Day estimates range from 15.6 mgd to 18.4 mgd (18.4 mgd maximum based on 10 unit/acre density and 120 gpcd) • 3 Day Peak Demand estimates range from 15.0 mgd to 17.7 mgd (17.7 mgd maximum based on 10 unit/acre density and 120 gpcd) Table 4-9: Per Capita Water Consumption-Tigard Service Area 2001 2002 2003 2004 2005 Population 50,750 51,798 52,846 53,894 54,942 Multi-unit& Residential Consumption (MG) 1,713 1,778 1,759 1,758 1,695 Multi-unit& Residential gpcd1 92 94 91 89 85 Total Consumption of All Uses (MG) 2,135 2,220 2,195 2,186 2,093 Total gpcd 115 117 114 111 104 1 Gallons per Day per Capita Source:Tigard Water Division,2006 Funding The City of Tigard Water System is set up as an enterprise fund. The budget needs no money from the City general funds and operates based solely on revenue the Water System creates. System Development Charges for new construction and connections, and rates for water consumption are the two main sources of • revenue for the budget. K E Y F I N D I N G S • The expansion and maintenance of stormwater, wastewater, and drinking water infrastructure are important factors affecting growth and development. • Objectives of the stormwater system are the protection of water quality and flood control and are addressed through the CWS Stormwater Management Plan and the Fanno Creek Watershed Management Plan. • The City coordinates the expansion, operation, and maintenance of stormwater and wastewater infrastructure through an IGA with CWS as a"self-service provider". • The City has adopted and is implementing the CWS Design and Construction Standards. • Impervious surfaces, undersized bridges and culverts, and inadequate infrastructure contribute to localized flooding. • Voluntary habitat friendly development provisions have been adopted that have the ability to reduce stormwater impacts. • Stormwater and wastewater infrastructure is funded from system development charges, service fees, and private developments. • CWS owns and maintains sewer lines with a diameter of 24 inches or greater, while the City owns and maintains lines less than 24 inches. 1111 Public Facilities and Services Page 4-12 Draft— Tigard 2007 • • 1 P U B L I C W A T E R I N F R A S T R U C T U R E 4IR • • The CWS Collection System Master Plan Update (2000) is the current plan for wastewater collection in y � ( ) P the Tualatin basin, which includes Tigard, and found that existing lines within the City of Tigard have adequate capacity to accommodate anticipated growth. • The Neighborhood Sewer Extension Program extends public infrastructure to unserved neighborhoods. • The Neighborhood Sewer Reimbursement District Incentive Program provides options for limiting the financial burden on property owners who participate in the Extension Program. • City owned wastewater infrastructure must comply with the design and construction standards as part of the development review process. • The Tigard Water Division and the TVWD both supply water to Tigard residents. • The City of Tigard Water Division provides potable water to approximately 55,990 people through approximately 17,300 residential,commercial,and industrial service connections. • The Intergovernmental Water Board provides oversight for the Tigard water system. • The Water Distribution Hydraulic Study (2000) is the current master plan for the City water supply system. • Tigard does not have a long-term water supply and must purchase nearly 90% of its water from wholesale water providers. • Three feasibility studies are in progress and will help to provide direction for the City's long-term supply options. • During periods of high water demand, the City can supplement its supply with water from City- owned aquifer storage and recovery (ASR)wells and native groundwater wells. III • The City has experienced a decrease in total and per capita consumption from 2001 to 2005 due to repairs made in water line leaks, rising costs, and the Water Division's Conservation Program. • Future annual water demand could range from 2,732 to 3,229 million gallons. • The City of Tigard Water System is set up as an enterprise fund, operating solely on revenue the Water System creates. • Public Facilities and Services Page 4-13 Draft—Tigard 2007 • • 2 P U B L I C S A F E T Y • Public safety is a critical component of a livable community. There must be adequate and effective services, as well as the necessary infrastructure, to respond to emergencies in a timely and efficient manner. This not only applies to the current population and built environment within the City, but also to new growth and development. The Tigard Police Department provides police services, while Tualatin Valley Fire & Rescue (I'VFR) provides fire protection and emergency services for the community. Both have an intergovernmental agreement with the Washington County Consolidated Communications Agency (WCCCA) for 911 service and public safety communications. TVFR is a fire district that covers 210 square miles, has a five-member board of directors and is funded through a permanent tax rate on properties within the district. One way for Tigard Police and TVFR to gauge their level of service is by tracking their incident response time. Both are doing a fair job of responding to calls for service, but as development occurs, added traffic volumes and the associated congestion can cause a delay in response time. This is illustrated in the fact that TVFR has found a section of the City that could be better served. For that reason, TVFR has purchased property and is planning a new station that will decrease the response times to those neighborhoods. Since growth and development will impact both fire and police services,Tigard Police and TVFR have the opportunity for review and comment during the land use application process. They evaluate proposed projects to ensure an adequate level of service exists for the development and no impediments will occur to hamper the ability to perform their functions. For TVFR, street design and placement is very important for • access and egress of its equipment. A well connected street network is also essential to improving response times, for both fire and police services. The placement of fire hydrants is mandated during the application process as well as an evaluation of adequate water supply and pressure. In addition to providing a built environment that is accessible for safety equipment, the City has adopted the Oregon statewide minimum fire code and performs inspections on new construction.The fire code outlines the required equipment for various development types and sizes. Homeowners can voluntarily take steps to reduce risk of fire by installing equipment and providing a defensible space around structures that are located in an area at risk for wildfire. • Public Facilities and Services Page 4-14 Draft— Tigard 2007 • 2 P U B L I C S A F E T Y I/C • I N V E N T O R Y A. POLICE SERVICES The Tigard Police Department provides police services to A.p livable rules; statutes and .la s tha 4, the community. As of October 2006, the Police y'��p`cpublic safety Rnxhtiit�ite x 9 ,�k Department employed 49 sworn officers, 15 sworn include. ° y.s;.;�� ;,; .. ,,;i.,y y^�. t � management personnel (Chief,Assistant Chief,Captain,4 y` ��.,. " Y , N :, ,c 774 Lieutenants, and 8 Sergeants), 16 full-time and 4 part-time , ' pa 1 �;ard l�'urucapal C�d ti � 2. aAdi non-sworn personnel. This equates to a force of 1 4 i 30 officers/1000 population. The Police Department e•.n evisedrS to .. 1 s , operates out of City Hall, with an office in each school ••n�se�S e , ;� �� . q�f �Z '�"f�,8.%"'b..v:aM1;�2:s„ X� 9�' 1t • that has a School Resource Officer and a satellite office in `:� :®re•onaAciminist�rati• Rn , ,y : the security area of the Washington Square Mall. ', .. . Tigard Police not only provide protection for approximately 46,000 community residents, but also the estimated 50,000 daily visitors to the Washington Square Mall. Calls for service at the Mall are a significant portion of the daily workload. They also offer a number of programs and information that supports their community policing philosophy. Community policing aims to combine the efforts and resources of police, local government, and community members in a collaborative effort to identify crime and search for • solutions.The services include: Table 4-10: Tigard Police Incident Response Times Fiscal Year Average Response Time • Youth Services Program 2002/2003 3 minutes 52 seconds • Crime Prevention Program 2003/2004 3 minutes 51 seconds • Community Policing 2004/2005 4 minutes 32 seconds • Traffic Control 2005/2006 4 minutes 25 seconds • Citizens Police Academy 2006/2007* 4 minutes 30 seconds 5-year Average 4 minutes 12 seconds Additionally, an intergovernmental agreement(IGA)-is *Through December 2006 maintained for mutual aid, mutual assistance, and Source:Tigard Police Department,2006 interagency cooperation among law enforcement agencies in Washington County. This IGA means that Tigard officers are sometimes dispatched to unincorporated islands within the City, unincorporated Bull Mountain,and the Metzger area. TVFR also broadcasts calls for emergency medical assistance over the police dispatch channels. This policy allows the opportunity for a nearby police officer to respond and provide emergency medical assistance until TVFR can arrive on the scene.Tigard Police vehicles carry an Automated External Defibrillator (AED) that can be used in these situations. Emergency dispatch operations are provided by the Washington County Consolidated Communications Agency (WCCCA). The City has an IGA with WCCCA to provide 911 service and public safety communications for the Police Department.The average response time for Tigard Police has increased over the previous five years and can be seen in Table 4-10. • Public Facilities and Services Page 4-15 Draft— Tigard 2007 0 Z P U B L I C SAFETY llt 111 In order to ensure a level of service adequate to provide protection services for the community, the Police Department is given the opportunity to review and provide comment on land use applications. This is an important process that allows the City to evaluate impacts of growth and development on police services, as it will place increasing demands on the department. In addition, the Police Department is developing a strategic plan that will outline department needs and provide direction for the future. Table 4-11 provides data on Table 4-11:Tigard Police Incident Responses the number of incident 2001 2002 2003 2004 2005 responses by Tigard Police Number of Incidents 45,502 50,403 49,333 53,754 51,062 and Table 4-12 provides a Number of Reports 7,864 7,474 7,621 8,603 8,800 breakdown of crime within Number of Citations n/a n/a 6,815 6,006 6,800 the City by type. Source:Tigard Police Department,2006 Although the crime statistics and incident responses do not show any direct relationship to population increase in the community, the Tigard Police Department has been able to identify areas of high population density and commercial activity as placing the highest demand on police services. Table 4-12:City of Tigard Crime 1997 1998 1999 2000 2001 2002 2003 2004 2005 Part I Crimes Homicide 0 1 1 0 0 0 1 1 0 Rape 11 15 7 14 12 15 22 15 16 Robbery 59 51 43 33 35 43 31 43 30 III Aggravated Assault 56 54 56 49 63 60 43 63 59 Burglary 349 319 342 332 356 297 300 340 309 Larceny 2,433 2,260 1,959 1,882 2,129 1,890 1,821 2,205 1,845 Motor Vehicle Theft 219 229 171 131 187 198 194 193 165 Arson 21 14 12 17 11 15 9 16 16 Part II Crimes Simple Assault 221 260 239 188 198 188 184 185 156 Forgery/Counterfeit 308 273 234 239 268 203 134 246 230 Fraud 171 153 168 186 182 141 198 255 224 Embezzlement 34 48 58 57 65 49 46 35 41 Stolen Property 18 21 35 16 12 2 6 10 7 Vandalism 561 502 475 540 594 618 571 578 656 Weapons Law 27 25 40 30 34 38 31 29 16 Prostitution 0 2 0 0 1 1 1 2 2 Sex Crimes 59 45 43 60 71 60 59 49 71 Drug Laws 95 122 276 167 97 115 113 150 116 Gambling 1 0 0 0 0 0 0 0 0 Offense Against Family 22 21 23 24 28 35 33 50 33 DUI 106 174 155 86 98 178 173 173 211 Liquor Laws 46 43 42 25 27 31 38 29 63 Disorderly Conduct 177 185 176 189 226 176 209 331 297 Kidnapping 7 9 19 23 7 14 5 4 6 All Other 248 211 186 187 177 141 119 203 187 Curfew 52 32 34 11 26 23 17 13 62 Runaway 212 153 167 153 96 95 78 105 82 Total 5,513 5,222 4,961 4,639 5,000 4,626 4,436 5,323 4,900 Source:Tigard Police Department.2006 • Public Facilities and Services Page 4-16 Draft-Tigard 2007 • S 2 . P U B L I C S A F E T Y • B. FIRE PROTECTION SERVICES Fire protection in the City of Tigard is provided by Tualatin Valley Fire & Rescue (TVFR) through an intergovernmental agreement (IGA) with the City. TVFR also has an automatic aid agreement with surrounding fire protection agencies if the need arises in an extreme emergency. The City is served by three fire stations,of which one is located in the City. Station locations, staff,and equipment include: • Station 51 —8935 SW Burnham St,Tigard • 21 personnel, 3 engines, 1 ladder truck, 1 water truck, 1 EMT road rescue unit • Station 35— 17135 SW Pacific Hwy, King City • 12 personnel, 2 engines, 1 EMT road rescue unit • Station 53—8480 SW Scholls Ferry Rd,Beaverton • 12 personnel,2 engines, 1 hazmat unit In addition to TVFR equipment and stations, the dependability of fire protection is also based on the distribution and capacity of the City water supply. This includes the fire hydrants needed to access the necessary water to respond to an incident. Currently, the City owns all fire hydrants within Tigard and there are a sufficient number and distribution to help earn the community an Insurance Services Office (ISO) fire insurance rating of 2.The ISO rating is based on: • How well the fire department receives and dispatches fire alarms (10%) • Fire Department-personnel,equipment, training,etc. (50%) • Water Supply—pressure,hydrants,etc. (40%) IllThe ISO rating ranges from 1 (superb protection) to 10 (no protection). There are no ISO ratings of 1 in Oregon (only 50 nationwide),and 15 communities with an ISO rating of 2. Emergency dispatch operations are provided by the Washington County Consolidated Communications Agency (WCCCA). TVFR has an IGA with WCCCA to provide 911 service and public safety communications for them. When responding to a 911 call,TVFR has set a response time goal of arriving at the incident within 6 minutes, 90% of the time. This goal was not being met in the neighborhoods located on the eastern and northern slopes of Bull Mountain, so TVFR has purchased property to build a new fire station to better serve these neighborhoods. The property is located at Walnut Street and 124th Avenue and TVFR hopes to work with the City to co-develop the new station and an expansion of Jack Park. TVFR incident responses can be seen in Table 4-13. Table 4-13:TVFR Incident Responses in the City of Tigard 2001 2002 2003 2004 2005 20061 EMS 2,645 2,599 2,712 3,041 2,966 2,630 Fire Alarms 599 562 569 579 576 493 Hazardous Materials 103 87 55 48 55 42 Other 270 262 224 241 198 229 Total 3,617 3,510 3,560 3,909 3,795 3,394 1 Through October 23 Source:Tualatin Valley Fire&Rescue,2006 • Public Facilities and Services Page 4-17 Draft— Tigard 2007 • • Z P U B L I C S A F E T Y • In order to ensure a level of service adequate to provide fire protection services for the community, TVFR is given the opportunity to review and provide comment on land use applications. This process allows TVFR to evaluate the impacts of growth and development on fire protection services and provide suggestions to ensure there are no impediments to their ability to respond to incidents. One of the more important development issues relating to fire protection is the design and placement of new streets. Street widths must be adequate for fire equipment access and egress. This may sometimes conflict with development that is promoting a pedestrian-friendly environment through narrower streets. A situation such as this presents an opportunity to offer options to meet TVFR standards and development goals. Also, a more connected street network can help provide better service by having multiple routes to access an incident and meet response time targets. TVFR also is responsible for regulating the placement of fire hydrants during the land use process, thus ensuring adequate water supply access for fire suppression efforts. Appropriate fire detection and suppression equipment installed at the time of development is cost-effective and invaluable in reducing the community's risk to fire. The City has adopted the Oregon statewide minimum fire code (2003 International Fire Code with 2004 Oregon Fire Code Amendments) and performs inspection services for new development. Community residents can take additional measures by following the TVFR Tips for Helping Safeguard Your Home and provide a defensible space around structures that are located in an area at risk for wildfire. K E Y F I N D I N G S • • The Tigard Police Department adheres to a community policing philosophy and provides police protection services, crime prevention programs,and information to the community. • Growth and development will place increasing demands on the Police Department, which currently has an average response time of 4 minutes 30 seconds per call. • WCCCA provides 911 service for the Police Department and TVFR through an IGA. • Tigard Police has an IGA to provide services outside the city limits on occasion. • The Police Department reviews land use applications and provides comments. • Areas of high population density and commercial areas, particularly Washington Square Mall, place high demands on the Tigard Police Department. • A new Strategic Plan for the Police Department is in the development process. • TVFR provides fire protection services for the City through and IGA. • Three TVFR stations serve City residents,with one station located within City boundaries. • A new TVFR station is planned to be built at Walnut Street/12th Avenue. • The dependability of fire protection is based in part on the distribution and capacity of the City water supply. • The City owns all fire hydrants within its boundaries. • The community has an ISO fire insurance rating of 2. • TVFR is given the opportunity to review and provide comment on land use applications. • One of the more important development issues relating to fire protection is the design and placement of new streets. • Public Facilities and Services Page 4-18 Draft— Tigard 2007 • 2 P U B L I C SAFETY 45C • • Street widths must be adequate for fire equipment access and egress, which may conflict with development that is promoting a pedestrian-friendly environment through narrower streets. • A connected street network can help provide better service by having multiple routes to access an incident and meet response time targets. • TVFR is responsible for regulating the placement of fire hydrants during the land use process. • Appropriate fire detection and suppression equipment installed at the time of development is cost- effective and invaluable in reducing the community's risk to fire. • Providing a defensible space around structures located in areas at risk for wildfire is an additional precaution against fire that can be taken by community residents. • • Public Facilities and Services Page 4-19 Draft—Tigard 2007 • • 3 C O M M U N I T Y F A C I L I T I E S 45C III The City of Tigard provides many community services, while special districts and private entities supply a portion of the facilities and services that make the community what it is today. All of these facilities and services must maintain a level of service that is adequate for the current population and, at the same time, must plan for and accommodate future growth and development within Tigard. This is why collaboration during the development process is essential to ensuring the services will be available and funding options will continue to exist with an acceptable level of service. The Tigard Public Library is a new facility that was funded by a community bond measure and opened to the public in 2004. The library offers a wide range of services and programs and acts as a community center for Tigard residents. The library has experienced a significant increase in use since the new facility was opened. Other City-owned facilities are dispersed around the community and house various City personnel and equipment. Two public school districts serve the City of Tigard's school-age children: Tigard-Tualatin and Beaverton. Only Tigard-Tualatin owns property and operates schools within the Tigard city limits. Both districts have seen steady growth over the years and are an important component of reviewing development applications to ensure school capacity is not exceeded. Additionally, this working relationship is important to finding appropriate sites for new school facilities that will limit the impacts to the neighborhood and traffic flow. Natural gas, electricity, and telecommunication services are provided by private utility companies that operate under a franchise agreement with the City. They pay an annual right-of-way fee to the City and • coordinate repairs and extensions of their infrastructure with the City. This prevents uncoordinated utility installations in the public right-of-way,which may result in multiple street cuts and increased public costs to maintain curbs, gutters, streets, and sidewalks. The Tigard Development Code outlines the placement of utilities within the right-of-way, encourages the collocation of wireless equipment, and aims to limit the visual impacts of wireless communication towers. III Public Facilities and Services Page 4-20 Draft— Tigard 2007 • • 4/t 3 . C O M M U N I T Y F A C I L I T I E S ° INVENTORY -;, Ap likable rules, statute ftd • +s t ° A. LIBRARY SERVICES m n' ' ��k im.ac com 4:I ,ifac tx .� City include a The Tigard Public Library is the only public library within 1 �4 ' � the city limits. This new facility, completed in 2004, was 4 , '. ,' y o �:. funded from a bond measure passed b the community in � a"p ':� �' ' � 2002. It has experienced increased use since its completion, f"b ra " � , a and also provides a community center for residents to host 'i 2d f 2,,, meetings and display commissioned art.The library is part of ftT1- ® r• the Washington County Cooperative Library Services • % ; (WCCLS), allowing anyone in Washington County to receive Ci • i' , ,-,...,;,,,„,,,r4,16_,,e i a library card and utilize the programs and materials housed �� '; M° ce Ai e. - in the library. 5;,,:,�Ti% r• • F •• ® ' rtwr g¢�Stratee " • , e 'i , The library's strategic plan, Mapping the Future outlines the i• 6. Ti d u• ci• •d" . goals and objectives until the year 2010. As with all public 4°:` k, 4 x i- - , . >:,, cede 1. „ .t facilities, increased pressure will be placed on services as d growth and development occurs around the communi 'F ` "8 Tid ° ' °"' ° Although library staff has historically done a good job of 1 , ',. 1 8 e o : F , ` „.,,,,-,;:*,;,;;;; r ,.d Ore 1 ed It11 adjusting to increased use, future public discussions about t,: " :,,,,,t,,,,%74,7:,, 40 adding another branch may be warranted if growth and �• ,�., <° usage continue at the current pace. A comparison of usage can be found in Table 4-14. Internet usage has also increased Table 4-14:Tigard Public Library Statistics a great deal since the move to the new facility. In fiscal year Books FY 1996-97 FY 2005-06 2003-04 (the last in the old facility), there were 67,803 94,904 115,223 intemet users and in fiscal year 2005-06 there were 108,133. All Materials 104,266 137,908 Public Computers 8 65 Funding for the Tigard Public Library comes from the City's Cardholders 38,722 32,207' general fund and also from levies passed for support of the Circulation 570,784 850,326 WCCLS. The latest levy passed in November 2006 and will... Children's Programs 255 384 Attendance 10,146 11,990 maintain current service levels for four years.The library levy Adult Programs 91 121 is for 17 cents per$1000 assessed value on a home. Attendance 840 1,678 Open Hours(per week) 65 55 Library Visits 206,803 373,176 1 WCCLS purged the database and removed inactive cards Source:Tigard Public Library,2006 III Draft— Tigard 2007 Public Facilities and Services Page 4-21 • • 3 C O M M U N I T Y F A C I L I T I E S 4°X III B. CITY BUILDINGS AND SERVICES The City of Tigard is responsible for administrative and general government services essential to conducting the business of municipal government and the provision of public facilities and services. To provide these services, the City must have the personnel and facilities. There are currently eight departments (City Administration, Community Development, Engineering, Finance, Municipal Court, Public Works, Library, and Police) that are housed in a number of buildings. Most buildings with employee occupancy are located within the Urban Renewal District and will play an important role in the downtown's future. Table 4-15 Table 4-15: Buildings Owned by the City of Tigard Maximum Building Sq Feet Occupancy Capacity Use City Hall 8,400 31 n/a Administration Permit Center 11,840 56 n/a Community Development Niche 3,240 6 n/a Information Technology Water Building 17,968 37 n/a Public Works Police Department 12,804 67 n/a Police Administration Senior Center 7,718 11 180 Senior Services Library 48,000 25 600 Library Services Public Works Operations 4,320 7 n/a Field Operations Public Works 7,200 12 n/a Public Works Admimistration IIIPublic Works Annex 1,500 8 n/a Public Works Admimistration Facilities Shop 500 3 n/a Fleet Maintenance Canterbury 4,321 0 n/a Storage Police Modular 1,152 4 n/a Motor Cycle Divison City Hall/Police Modular 1,152 0 n/a Storage PD Storage F29 940 0 n/a Evidence PD Storage F28 940 0 n/a Evidence PD Storage F20 940 0 n/a Storage Wind Mill 400 0 n/a Storage 1 This will increase to 65 in June 2007 Source:City of Tigard Public Works,2006 displays City owned buildings,current use,and capacity. Although not all City departments are directly involved in land use planning, their provision of services is affected by growth and development.These impacts on government services must be considered during the land use application process, as well as additional facilities that would be needed to house them. The City's Public Works Department completed a Five-Year Strategic Resource Management Plan in June 2006 that outlines operations and maintenance policies for City resources. Sustainability programs will be evaluated for their ability to extend use of City facilities and for inclusion in the Community Investment Program.This may have an impact on future renovations as it relates to the City Development Code. IIII Public Facilities and Services Page 4-22 Draft— Tigard 2007 • • 3 C O M M U N I T Y F A C I L I T I E S 1/C • C. SCHOOLS Two public school districts serve the City of Tigard's school-age children: Tigard-Tualatin and Beaverton. The school district boundary dates back to 1910, prior to Tigard's incorporation. Later in the century, Tigard and Beaverton established Scholls Ferry Road as the municipal boundary, which differs from the school district boundary. Map 4-2 shows the current boundaries and school locations. Although the school districts provide education,not the City, schools have always been linked strongly with the Tigard community. In both 1993 and 2006 City surveys, Tigard residents named schools, education or school funding as top issues for the community (ranking 6th and 4th, respectively). In addition, the Tigard Beyond Tomorrow visioning process included school district staff and highlighted education in its vision statement: for life-long learning and the responsibility of each citizen to promote and support quality education. The Tigard Beyond Tomorrow "Schools and Education" direction statement also emphasized quality education and stable funding for efficient delivery of services. Throughout the City's history,Tigard has worked with the school districts on community issues, cooperated in the use of facilities, and provided notification of land-use decisions. Most of these efforts focus on TTSD, which owns 23 properties (189 acres) in Tigard as the Beaverton School District does not own any property within Tigard. As a result, both the City and TTSD hold a mutual interest in one another's facility planning. Future population and housing growth have a direct impact upon school capacity, future facility siting and expansion, as well as services provided. Conversely, future school expansion and facility siting • impacts the City's infrastructure and service provision, including roads and associated traffic impacts. State land use goals require coordination between governments and special districts.The City notifies the districts of land-use decisions impacting their direct service area. The City Council also holds periodic joint meetings with the TTSD school board to discuss common issues. Tigard-Tualatin School District For the 2006-07 school year, the Tigard-Tualatin School District enrolled 12,300 students, an increase of 1.4% from the previous year. This is consistent with the average growth over the previous two years. Six elementary schools, two middle schools, and two high schools serve Tigard residents. Table 4-16 shows recent district enrollments by grade level and growth rates. Table 4-16:Tigard-Tualatin School District Enrollment by Grade,2004-2006 School Year Grades K-5 Grades 6-8 Grades 9- 12 Total Yearly Change 2003-2004 5,299 2,829 3,682 11,810 2004-2005 5,362 2,874 3,774 12,010 1.70% 2005-2006 5,474 2,832 3,827 12,133 1.00% 2006-2007 5,669 2,792 3,839 12,300 1.40% Source:TTSD,December 2006 III Public Facilities and Services Page 4-23 Draft— Tigard 2007 • I 3 C O M M U N I T Y F A C I L I T I E S I/C • TTSD also owns the Tigard-Tualatin School District Larry Hibbard Administration Center and the First Student bus property at Hall Blvd. and Burnham St., and operates the Tigard Swim Center. In addition, the district has one charter school (M.I.T.C.H.; housed in Calvin Presbyterian Church); the Cordero School, which serves students from all over Oregon who are wards of the court; and Durham Center, an alternative school for high school juniors and seniors. Table 4-17:TTSD Schools Serving Tigard Residents Elementary Schools Alberta Mary Rider CF Tigard Deer Creek Durham Metzger Templeton Woodward3 Year Built 2005 2004 1997 1989 2004 1965 1979 Capacity 650/6001 650/6001 600 625 650/6001 600 700 Enrollment(Oct 2006) 534 614 607 523 609 558 531 Projected Enrollment4 701 617 824 516 596 606 586 Middle Schools High Schools Alternative Schools Fowler Twality Tigard Tualatin Durham Center Year Built 1974 1960 1953 1992 1919 Capacity 950 1050 1850 2 1900 ' 100 Enrollment(Oct 2006) 913 876 2010 1768 87 Projected Enrollment4 950 1065 2000 1807 n/a 1 Capacity set at 600,but extra rooms for 650 or so to accommodate special programs like Head Start 2 Does not include 16 portable classrooms Ill 3 Includes 4 portable classrooms 4 School Year 2011-12 Source:TTSD,December 2006 Future Capacity and Facilities The Tigard area served by TTSD has few large undeveloped sites for new residential growth, which can influence the district's growth rate. TTSD projects slow, steady growth: a 7% increase by 2011-12. Table 4- 17 includes current and projected enrollments for all schools. According to the district, these Table 4-18:TTSD Students per Housing Unit' projected enrollments are based Grade Level on continued housing growth on K-5th 6th-8th 9th- 12th K- 12th Bull Mountain, and a Portland Detached Single Family 0.283 0.113 0.129 0.525 State University assessment that Multiple Family Homes 0.161 0.059 0.064 0.284 noted growth in kindergarten Market-rate rentals n/a n/a n/a 0.108 enrollments and projected this Income-restricted rentals 0.240 0.091 0.068 0.399 increase to move through the Condominiums 0.076 0.028 0.054 0.158 grades accordingly. Table 4-18 ' Housing Units Built 2000 to 2005 shows the students per new Source:Tigard-Tualatin School District,December 2006 housing unit variables that are used to forecast enrollment. • Public Facilities and Services Page 4-24 Draft— Tigard 2007 • • 3 . COMMUNITY �/ O M M U N I T Y F A C I L I T I E S • Based on growth projections, the district does not have any current plans Table 4-19: Beaverton School District Enrollments, 2003-2006 for capital improvements, although School Year Enrollment Growth Rate funding to create full-day kindergarten 2003-2004 35,329 and/or reduce class size will require 2004'2005 35,739 1.2% additional elementary classroom/ 2005-2006 36,425 2.0% portables. For future facilities, the 2006-2007 37,332 2.5% district has purchased 20 acres on Source:Beaverton School District,2006 unincorporated Bull Mountain that could accommodate a new school or schools. The district is also managing its current properties by selling part of Fowler Woods, but reserving a portion for possible future school facilities. Beaverton School District In the 2006-07 school year, 37,332 students enrolled in the Beaverton School District. The Beaverton School District is one of the fastest growing districts in Oregon: the district adds more than 700 students per year (Beaverton School District newsletter, Fall 2006). Table 4-19 shows the recent enrollments and growth rate. This rapid growth requires additional capacity. In November 2006, district voters passed a$195 million bond measure to construct and upgrade Beaverton School District schools, for which district residents will pay 51 cents per$1,000 of assessed value for 20 years. • Table 4-20: Beaverton Schools Serving Tigard Residents Elementary Schools Middle Schools High Schools Nancy Scholls McKay Ryles Heights Conestoga Whitford Southridge Year Built 1929 1992 1999 1994 1965 1999 Capacity' 406 722 738 1078 843 17842 Enrollment(Oct 2006) 373 640 720 1056 782 2059 Projected Enrollment(Sept 2007) 368 635 718 1060 638 2031 1 Capacity numbers given are for available capacity;defined as the permanent capacity of a school plus the adjusted portable capacity 2 Currently at 115%of capacity Source:Beaverton School District,January 2007 There are no Beaverton school district properties or facilities located in Tigard. Of the six Beaverton schools that Tigard children attend (Table 4-20), the bond includes improvements for one location: Southridge High School will receive $450,000 worth of retrofit to provide additional classroom space. The 2006-2010 Capital Improvement Program Project Plan does not call for any other modifications to these six schools. Future Capacity and Facilities The district projects enrollments based on past enrollment and housing construction. Currently, the district uses the variables found in Table 4-21 for projecting future enrollment based on housing growth. • Public Facilities and Services Page 4.25 Draft— Tigard 2007 • • 3 C O M M U N I T Y F A C I L I T I E S 11°R • Based upon these figures, the school district projects 38,360 students for 2008; 39,476 students in 2010; 42,751 in 2015; and 45,576 students in 2020. Individual school projections will be available in December 2006. Table 4-21: Beaverton Schools: Enrollment Projection Formula Due to expected growth, the 2006 bond Single Single Family also would provide land acquisition funds Family Attached Multi Family for a new high school and possibly a new Elementary School 0.31 0.10 0.10 elementary school in the southwestern area Middle School 0.13 0.05 0.04 of the district, the Scholls Heights/Nancy High School 0.13 0.06 0.05 Ryles attendance areas. The district is Total per household 0.57 0.21 0.19 currently looking at potential sites in Source:Beaverton School District,2006 Beaverton. D. FRANCHISE UTILITIES Telecommunications, electricity, and natural gas service are provided to residents and business owners within the City of Tigard by private utilities. These private utilities enter into franchise agreements with the City as outlined in Chapter 15.06 of the Tigard Municipal Code and pay an annual right-of-way usage fee to the City. The primary utility providers with franchise agreements within the community are listed in Table 4- 22. • Table 4-22:Tigard Franchise Utilities Utility Provider Portland General Electric (PGE) provides electric services to Tigard residents (residential and Electricity commercial). They do not have any generating facilities within the City, but do have five substations and high voltage power lines within the city limits. Natural Gas Natural gas is supplied by Northwest Natural Gas. There are no processing or storage facilities within the city limits, but a number of gas main lines cross the City for servicing the customer base. Telecommunication Verizon and Qwest both provide telephone service to the community. (Telephone Lines) Various telecommunication companies provide wireless service within the city limits. There are Telecommunications currently 17 towers that are located on land leased from either private owners or the City of Tigard. (Wireless) Many of the towers accommodate the equipment of differing providers through lease agreements with the tower owner. Cable Television and Comcast provides cable service in the City of Tigard for television and high speed Internet. Services Source:Community Development Department,2006 Public Facilities and Services Page 4-26 Draft— Tigard 2007 • 3 . C O M M U N I T Y F A C I L I T I E S 41/t • The services provided by these private companies and the associated infrastructure are essential to the community. As growth and development occurs within the community, the City must ensure that these services are available and coordinate their extension during the development process.This coordination,and cooperation between the various entities, helps to avoid conflict with current and planned infrastructure in the right-of-way. Additionally, uncoordinated utility installations in the public right-of-way may result in multiple street cuts and increased public costs to maintain curbs,gutters, streets,and sidewalks. The placement of utilities in the public right-of-way is regulated by the Tigard Community Development Code. During the development review process, a city engineer approves plans showing the location of utilities. New development is typically required to place utilities underground unless they are already in existence above ground, or where the action would not be feasible. In certain cases,where undergrounding is not feasible and the utility crosses a public right-of-way, an in-lieu of fee may be assessed and placed into a fund that is used to move existing utilities underground elsewhere in the City. The City has also recognized the demand for wireless communication services and adopted regulations for the facilities necessary to provide them. The infrastructure needed to support the services has a visual impact upon the community and collocation efforts are encouraged by the City to minimize that impact. Collocation is the practice of placing the communication equipment of two or more companies on one structure (wireless tower). Applicants for wireless telecommunication facilities are required to demonstrate that all other providers within the City were contacted to evaluate possible collocation efforts. OKEY F I N D I N G S • Two public school districts serve the City of Tigard's school-age children: Tigard-Tualatin and Beaverton.The school district boundary dates back to 1910,prior to Tigard's incorporation. • In both 1993 and 2006 city surveys,Tigard residents named schools, education or school funding as top issues for the community (ranking 6th and 4th,respectively). • TTSD,which owns 23 properties (189 acres)in Tigard.The Beaverton School District does not own any property within Tigard. • The City and TTSD hold a mutual interest in one another's facility planning. Future population and housing growth have a direct impact upon school capacity, future facility siting and expansion, and state land use goals require coordination on land use decisions. The City notifies the districts of land-use decisions impacting their direct service area. • 1TSD estimates slow steady growth: 4.6% rate by 2010,with no additional schools planned for City limits. • Beaverton is experiencing rapid growth and is looking for land for a future school in the southwestern quadrant,which includes schools attended by Tigard residents. • Additional enrollment projections are expected in December 2006. • The Tigard Public Library is the only public library within the city limits. It is a new facility, completed in 2004,that was funded from a bond measure passed by the community in 2002. • The new library has experienced increased use since its completion and as growth and development occur in the community,additional pressure will be put on the services offered. • The library is valued as a community center for public meetings and other events. • Public Facilities and Services Page 4-27 Draft— Tigard 2007 • • 3 C O M M U N I T Y F A C I L I T I E S 41R • • Although not all City departments are directly involved in land use planning, their provision of services is affected by growth and development. These impacts on government services must be considered during the land use application process, as well as additional facilities that would be needed to house them. • City sustainability programs will be evaluated for inclusion in the Community Investment Program and may have an impact on future building renovations as it relates to the City Development Code. • Telecommunications, electricity, and natural gas service are provided to residents and business owners within the City of Tigard by private utilities. These private utilities enter into franchise agreements with the City as outlined in Chapter 15.06 of the Tigard Municipal Code and pay an annual right-of-way usage fee to the City. • As growth and development occurs within the community, the City must ensure that private utility services are available and coordinate their extension during the development process. • Uncoordinated utility installations in the public right-of-way may result in multiple street cuts and increased public costs to maintain curbs,gutters, streets,and sidewalks. • The placement of utilities in the public right-of-way is regulated by the Tigard Community Development Code. New development is typically required to place utilities underground unless they are already in existence above ground,or where the action would not be feasible. • Applicants for wireless telecommunication facilities are required to demonstrate that all other providers within the City were contacted to evaluate possible collocation efforts in order to try and minimize the visual impact upon the City. • • Public Facilities and Services Page 4-28 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D OPEN S P A C E • The City of Tigard provides park services consisting of parks, trails, and open space to the area within the City limits. These public lands and facilities are highly appreciated by Tigard's residents and are major quality of life amenities. They become especially important as the City begins to approach full development. The Tigard park system includes 169 acres of City parkland and 182 acres of greenway and other preservation-oriented sites. These figures equate to 3.7 acres of developed area and 4.0 acres of natural area per thousand residents. Most of this park and greenway land is located within the floodplain. In addition to parks and open spaces, Tigard has developed a successful trail program, consisting of 9 miles of completed trails. These trails provide both recreation opportunities and transportation links throughout the community. A major source of parkland acquisition and development funds has come from the park System Development Charge (SDC) on new development, first imposed in 1977. The City does not operate a recreation program and is not served by a special park and recreation district. The Tigard Park System Master Plan covers the city proper and the unincorporated Urban Services Area. The plan includes a detailed action element intended to provide operational guidance to the development of the Tigard system. Subsequent to the master plan's adoption in 1999, the City added 19.3 acres of parkland and 24.1 acres of greenway. Because of population increases during the same period, the City's existing level of service to 2006 held steady at 7.7 acres per thousand population. In 2005, the City adopted a new park SDC methodology based on a parks capacity program that addresses selected needs identified in the park system master plan and in the 2004 Bull Mountain Annexation White • Paper on Parks and Open Space. As discussed later, the new SDC study established a much higher or capacity increasing level of service as the City's operational standard. This topic consists of several sections: a) Inventory, b) Parklands, c) Other Parks, Open Space and Recreation Facilities, d) Trails, e) Recreational Programs, f) Parks Maintenance, g) Funding, h) City Park Development Initiatives, and Key Findings. • Public Facilities and Services Page 4-29 Draft— Tigard 2007 • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D 115C OPEN S P A C E • I N V E N T O R Y A. PARKLANDS s,;'.. -'iii tes a:i ;. ...t:t A.pplicablearules `statfes�and.plans�tfiat ,, A s�`..s�"�53.4%:ion!�f, ic"ry'?1'�s`a':';:;, o%., '•'N f f;:°e,;v.'r,�t."'.;�'r•.. pact;the;park-system within:;the;City: Parklands in Tigard are classified in the Park System Master "°include:" 4,1-:, ,11s4 Plan as follows (See Table 4-23 and Map 4-3): z"Y''' y%` u 4,.�£:-,:;:. ( 1 ). #ylz,. �'k,"ti:3 k;:ry %a;;,•f d+i " .. M �.��,�y� .�::s:4;.E�w' ��g�w�'.� .N' HS.`'.k..,.'.t. �,Y'£°,," �.,. '�' .�i :�`'. � a ..'Thu°rart .% �"; ' 5 � is a Plannin 5 Parklands: en l 1 =y aces;Scent anclt-,�iistorieAreas; Pocket Parks (Size range: 2,500 square feet to 3 acres): t- '� e �� ` '" "s:ti' ' ,� ,,�an• �atural�Resou ces Pocket parks provide recreation opportunities for ' 2` etrziwl Qna/ 'ime r P fy residents in areas not adequately served by neighborhood ;��C1ean�Wate� "e ces�I7sign°and : f.,.;;: arks such as town centers or areas of high density� g �' -;��„Cdn�uetto � s ds ` � � � !�� :` development. Pocket parks may include passive or low r _ 4`The�Ti and- .;r`an" "� atr'on:Syslenr�Plan`;"X intensity activities, such as children's play areas,pathways "" Thhe° ig'' d Y? k S�. oMaster"Plan `°0: multi-use paved areas, public art, small scale sports '`'"" facilities, seating,picnic areas, community gardens, multi-purpose performance space,and landscaping. Neighborhood Parks (Size range: 4 to 14 acres): Neighborhood parks are the foundation of the parks and recreation system, providing accessible recreation and social opportunities to nearby residents. When developed to meet neighborhood recreation needs, school sites may serve as neighborhood parks. Neighborhood Parks should include both passive and active • recreation opportunities, such as children's play areas,informal sports areas, picnic facilities,public art, open turf areas,landscaping, community gardens,and pathways. Security lighting may be provided if needed. Community Parks (Size range: Greater Table 4-23: City of Tigard Parks Inventory than 15 acres): Classification Park Name Size Community parks provide a variety of Liberty 0.75 active and passive recreational Pocket Parks (2,500 sq Main Street 0.25 opportunities for all age groups. These ft to 3 acres) Windmill 0.15 parks are generally larger in size and Bonita 5.57 serve a wider base of residents than Neighborhood Parks (4 Jack 5.50 neighborhood parks. Community parks to 14 acres) Northview 3.45 often include developed facilities for Woodard 10.06 organized group activity as well as Community Parks Cook 79.05 facilities for individual and family (Greater than 15 acres) Summerlake 23.80 Y Commercial 0.75 activities. In addition to those amenities Linear Parks (No size Englewood 14.97 provided at neighborhood parks, range) Fanno Creek 31.50 community parks may include sports Natural Areas(No size facilities for team play, group picnic range) Greenspace/Greenway 182.00 areas, skateboard and rollerblade Source:Community Development Department,2006 facilities,natural areas,botanical gardens, amphitheaters, festival space, swimming pools,interpretive facilities,and community centers. Higher quality children's play areas may be provided to create a family play destination. • Public Facilities and Services Page 4-30 Draft— Tigard 2007 • • 4 . P A R K S , R E C R E A T I O N , TRAILS A N D OPEN S P A C E • Linear Parks (Of adequate size to protect natural resources and accommodate intended uses): Linear parks may be developed along built or natural corridors to provide opportunities for trail-oriented outdoor recreation. Linear parks may also provide some active and passive recreation facilities to meet neighborhood needs, especially in areas not adequately served by traditional neighborhood parks. Linear parks connect residences to major community destinations. Linear parks can include paved or soft-surface trails to accommodate jogging, biking, walking, skateboarding, dog walking, horseback riding, canoeing or rollerblading. Active and passive recreation facilities may include small-scale sports facilities, such as basketball hoops,public art,picnic tables,lighting, community gardens, and landscaping. Natural Areas: Greenspace/Greenways (Size should be adequate to protect the resource): A greenspace or greenway is an area of natural quality that protects valuable natural resources and provides wildlife habitat. It also provides opportunities for nature-related outdoor recreation, such as viewing and studying nature and participating in trail activities. Development features that support outdoor recreation and trail-oriented recreation, such as trails, picnic areas, benches, interpretive signs, and native landscaping, may be provided. Trail amenities, such as small scale parking, portable restrooms, bike racks, and trash enclosures,may be included. Trails and Connectors These are public access routes for commuting and trail-oriented recreational activities including sidewalks, • bikeways, multi-use trails, and paths. Width of the trail and right-of-way depends on its intended use and location. A variety of pathway types are needed to accommodate activities such as walking, running, biking, dog walking, rollerblading, skateboarding, and horseback riding. Trails can be located within parks, within linear parks and greenways, or be designed as a part of the citywide transportation system. Waterways can provide trail-like facilities for boating and canoeing. Each type of trail should be designed to safely accommodate users,and meet recognized design standards. Park Needs The Tigard Park System Master Plan identifies 21 underserved neighborhoods inside the City. To meet the park needs of these areas, the plan identifies the need for the creation, renovation, or expansion of 2 pocket parks, 10 lineal parks, 8 neighborhood parks, and 4 community parks. Subsequent to the master plan's adoption, the development of 1 pocket park currently is underway (along Bull Mt Road), 3 neighborhood parks (Northview, Bonita, Woodard) have been completed or expanded, and 2 community parks have been expanded and/or renovated (Cook, Summerlake). This gives a revised estimated need for 1 pocket park, 10 lineal parks, 5 neighborhood parks, and 2 community parks. Although not taken into account or recognized in the parks master plan, 3 of the neighborhoods identified as park deficient are served by school playgrounds, each of which includes some neighborhood-level park facilities, such as playfields and play equipment, but no picnic facilities or natural areas. Among park deficient neighborhoods, clearly a neighborhood with a school playground is better off than a neighborhood with no playground. • Public Facilities and Services Page 4-31 Draft— Tigard 2007 • 4 PARKS , R E C R E A T I O N , TRAILS A N D OPEN S P A C E • As of 2007, based on residential development within a half mile radius of a public park or usable open space, the level of park facilities and development varies widely (See Map 4-4). The area most served by existing City parks and school playgrounds is northwest Tigard, which includes three parks and two school sites, all within close proximity to each other. Other highly served areas are central Tigard and south Tigard around Cook Park and Tigard High School. The area where neighborhood parks needs are greatest is the summit and south slope of the incorporated Bull Mountain area. Other underserved areas are southwest Tigard and the north Triangle and northeast Metzger areas. As the city approaches buildout, the biggest challenges facing the park system are meeting existing park deficiencies and the park and open space needs generated by new development. Significantly, a 1996 survey and evaluation of vacant areas within the City to meet park and open space needs excluded sites smaller than five acres. This was because of the high maintenance costs associated with them and because of the then-current and still existing City policy against the acquisition of small sites. Today,with vacant land acreage diminishing and land costs rising (residential land values increase by 37%in 2006 alone), smaller sites within neighborhoods are attracting renewed attention. An example of this new focus on smaller sites includes the City's 2006 acquisition of a 2.7-acre site on Bull Mountain for a combined neighborhood park and underground reservoir. Another example from 2006 is the City's acceptance,in lieu of park SDC fees, of two small open spaces within the recently approved Dakota Glen subdivision located on North Dakota Street. A third example is the City's current pursuit of a 1.2-acre site located in an east Tigard neighborhood. In addition to the limited supply and high cost of land, the rationale for the City's new approach to parkland • PPY g ty PP p acquisition and development is that small sites within neighborhoods provide close-by recreation opportunities and visual amenities for neighborhood residents and improve the livability of neighborhoods. Small parks also can contribute to neighborhood identity. As another approach to dealing with the problem of inadequate land supplies, the Tigard Park System Master Plan recommends the City pursue joint use agreements with the Tigard-Tualatin School District, Tigard Water District, and other partners to share the cost of land acquisition, facility development, and maintenance. As stated in the parks master plan: Tigard is struggling to maintain its quality of life as the City and the area around it continues to become more densely populated. Vacant land is scarce . . . It will not be possible to meet the community's need for park facilities solely through land acquisition. Emphasis should be placed on alternative methods, such as: developing joint use agreements to develop park facilities on existing publicly-owned land. Partnerships between the City and school district should be on the agenda. In addition, the City . . . should initiate joint use agreements with [Clean Water Services] to ensure effective use of available resources. • Public Facilities and Services Page 4-32 Draft—Tigard 2007 • S 4 . PARKS , R E C R E A T I O N , T R A I L S A N D OPEN S P A C E • B. OTHER PARKS, OPEN SPACE AND RECREATION FACILITIES In addition to City-owned lands and facilities, many non-City-owned lands and facilities serve the park and leisure needs of Tigard residents (See Map 4-5). These include a variety of public and private open spaces located inside or proximate to the City. Those bordering the City include Metzger, Durham, Tualatin Community, and Greenway Parks. • Local schools provide many of the same recreation and leisure opportunities found in neighborhood and community parks. Altogether, the Tigard-Tualatin School District's current inventory of public open space in Tigard includes approximately 109 acres. Residents have access to facilities at six elementary schools, two middle schools, one high school, and three other school district sites. A caveat is that the school district has not had adequate funds to maintain its fields for public use. Additionally, because of the fewer recreation amenities they provide, no local school is identified in the Park System Master Plan as meeting neighborhood recreation needs. • The Wetlands Conservancy owns and manages two wetland properties within the City. These include the 3.5-acre "Hart Wetland", located near Jack Park, and the 1.9 acre "Knez Preserve", located near HWY 217, between Hunziker Road and Park 217 Business Park. This latter site is one of the few known "Tufted Hairgrass" prairies in the Portland Metropolitan area, a plant community in great decline in the Willamette Valley. • The John Tigard House, built in 1880 on Canterbury Lane, is one of two Tigard sites listed on the National Historical Register. It is significant in its association with the son of Tigard's namesake and • as an example of early frame construction. It is owned by the Tigard Historical Association and is open to the public the third Sunday of every month. The land is leased from the Tigard Water District and is the site of the original donation land claim. • Metro owns approximately 27 acres of parkland within Tigard, consisting of two larger and several smaller sites. The land was acquired through an open space and parks bond measure approved by the region's voters in 1995 that enabled acquisitions of natural areas and related lands in the metropolitan area. In 1998 and 2000, Tigard entered into intergovernmental agreements (IGAs) with Metro for City management of Metro-purchased greenspace properties located inside the City. The IGAs obligate the City to manage the properties as natural areas. Before the properties can be opened for formal public use, the City is required to develop site-specific management plans with public involvement. The plans, which are subject to Metro Council approval, are required to set forth the types and levels of public use, the location of trail and other improvements, and specific management and maintenance standards. The City has developed such a plan for one Metro-owned property to date. • Metzger Park is a 7-acre park located in unincorporated Metzger at the corner of Hall and Hemlock. The park, which includes an indoor rental facility, is maintained by Washington County Facilities Management. The existing park was improved in the mid-1970s through the formation of a local improvement and maintenance district • Greenway Park is a mile-long lineal park located in Beaverton immediately upstream of Tigard's Englewood Park and continuing to Hall Boulevard. Like Englewood, Greenway Park is located along the Beaverton portion of the Fanno Creek Trail and provides opportunities for trail-oriented • Public Facilities and Services Page 4-33 Draft— Tigard 2007 4 . P A R K S , R E C R E A T I O N , TRAILS A N D OPEN S P A C E 115C 410 active and passive outdoor recreation. In addition to the trail,which includes two large loops along its route,park improvements include play structures,basketball courts,and open playfields. • The Tualatin River Pedestrian Bridge, scheduled for completion in 2007, spans the Tualatin River between the cities of Tualatin and Durham. The 250-foot long, 12-foot wide bridge is part of a three-city strategy to construct a pedestrian bridge over the Tualatin River that will interconnect the trail systems and major parks of the adjoining cities of Tigard, Tualatin, and Durham. Tigard contributed some half a million dollars toward the $1.6 million cost of the bridge. In 2006, the City completed a trail extending from Cook Park that will serve as a connecting approach to the bridge for Tigard residents. • The new bridge and trail will provide pedestrian access to the large-acre Durham and Tualatin Community Parks, both of which border the Tualatin River. The some 55-acre Durham Park primarily is a natural area with few facilities. The 27-acre Tualatin Community Park includes both natural areas and facilities. Notable among the latter are an award-winning skate park, tennis and basketball courts,and three sports fields. • In 2006, some 16 years after it was first conceived and 13 years after its official establishment by the federal government, the Tualatin River National Wildlife Refuge took its place among the most important publicly accessible natural areas in metropolitan Portland. June 2006 marked the completion of the first phase of visitor use facilities and the Refuge's official opening to the public. Located west of Tigard along both sides of the Tualatin River, the Tualatin River National Wildlife Refuge is notable as one of only ten urban refuges in the National Wildlife Refuge System. The first land acquisition • for the Refuge occurred in 1992. Today, 1,580 acres of an eventual 3,060 acre Refuge are in public ownership and managed by the US Fish and Wildlife Service. The Refuge consists of floodplain and wetland habitats. Each year, thousands of migrating waterfowl use these habits. Threatened and sensitive species that frequent the Refuge include peregrine falcon, bald eagle, western pond turtle, dusky Canada goose,northern red-legged frog, and winter steelhead. The Tualatin River National Wildlife Refuge is important to the Tigard community because it enhances the quality of life for Tigard-area residents. The western portion of the refuge is located opposite Beef Bend Road and has natural drainage linkages to the Bull Mountain area. As a wild place, the refuge will preserve precious habitat and open space along the western edge of the Tigard urban area.The refuge also provides a range of close-to-home recreational, educational, and volunteer opportunities for Tigard-area residents. In the future, Refuge-related recreational activities could include pedestrian and bicycle linkages between the Refuge and the proposed Westside Trail. The refuge also will economically benefit the City. Many Refuge visitors who live outside the city will spend their recreational money in the local economy. • Public Facilities and Services Page 4-34 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , TRAILS A N D OPEN S P A C E • C. TRAILS Completed sections of the Tigard trail network have become a prominent attraction for community residents (See Map 4-6). These trails are not only very popular recreational amenities by themselves, but also serve a significant number of transportation oriented trips, i.e., commuting, shopping, etc. Tigard's trails function as conduits between various destinations and as recreation destinations in and of themselves. Unlike many other park providers, the City does not have a plan or document that specifically deals with trail locations and development within the community. The main planning document focusing on trails is the Tigard Park System Master Plan. A shortcoming of the master plan's treatment of trails is that it is limited to a half page of text,plus the depiction of an interconnected network of four trails in the Parks Master Plan Map. The four trails identified in the parks master plan include the Fanno Creek, Pathfinder-Genesis, Summer Creek, Krueger Creek, and Tualatin River Trails. In 2001, the Washington Square Master Plan identified a loop trail around the Washington Square area linking at both ends to separate points of the Fanno Creek Trail. The Washington Square Loop Trail later was incorporated into the Metro Regional Trails Map. The lower or southern portion of this trail is located within Tigard. These five trails make up the official City trail system and are intended to be multi-model and shared use, serving walkers and bicyclists. • Tigard's official trails are in various stages of completion. The Tualatin River and Fanno Creek Trails, identified in the 1984 Comprehensive Plan as the "backbone" of the City's trail system, are approximately 85% and 60% completed, respectively. At the other end of the scale, the Powerline Trail on Bull Mountain exists only as a line on the City trail map, with no sections designed or installed. Although only recently defined as a City-recognized trail, a segment of the Washington Square Loop Trail (HWY 217-Hall Boulevard) is programmed for 2008 construction. Altogether, approximately nine miles of trail have been completed within the City since its incorporation. Returning to the subject of a trail system master plan, or, more specifically, the need to create a plan and schedule of actions to address the City's long range trail needs, examples of questions typically addressed in a trail master plan are: • What are the gaps in the trail system and the steps necessary to close them? • What are the long range improvements desired for each trail? • What is the appropriate surface for the trail system? • Does the trail system need trail heads and where should they be located? What facilities should they include? Examples of potential Tigard-specific trail questions include: • No segments of the Summer or Krueger Creek trails have been completed or scheduled for construction. These are examples of trails "on paper" only. [An exception in the case of the Summer Creek Trail is that the City has completed trail sections internal to Summer Creek Park] Is the installation of all or portions of these trails feasible in terms of the physical and other constraints • Public Facilities and Services Page 4-35 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D 45C OPEN S P A C E • associated with each corridor? Do community and stakeholder groups support the installation of all or portions of these trails? • What options are available for the Bonita Road/Durham Road segment of the Fanno Creek Trail? This segment includes multiple owners and developments located, in the case of some properties, within 25-feet and closer to the top of Fanno Creek bank. Cooperative efforts by Metro over a four-year period to acquire right-of-way for a continuous streamside trail within this portion of the trail corridor have achieved limited success. • Can the Durham Road/Tigard City limits segment of the Fanno Creek trail realistically be accomplished,given this corridor's extreme physical constraints,i.e. elevated rail bed, sewerage plant development, meandering creek, and deep gullies? The question regarding this particular problem segment, or "trouble bubble", is timely because the City of Durham has budgeted (its 2006 local share Greenspaces Bond Measure) funds to complete the inter-connecting Durham portion of this segment. • The Pathfinder/Genesis trail consists of paved and unpaved sections. Many of the paved sections are in poor condition. The same is even more true of the unpaved sections, which generally are narrow and overgrown and not ADA accessible. What upgrades are appropriate for this trail given the corridor's high natural resource value? • Is it possible to complete the inter-connection of the existing SW 85th Avenue, Tualatin River, and City of Durham Trails to create a loop trail within the south Tigard-Durham area? Some three- fourths of this proposed loop currently is in place. Difficulties to closing the missing link include an elevated rail corridor,extensive wetlands, and needed right-of-way owned by other public entities • • Does Commuter Rail, which includes the construction of an unpaved service road along much the rail corridor,provide an opportunity for an integrated trail-with-rail project or series of projects? • The 2006 Tigard Downtown Implementation Strategy advances the concept of a rail-to-trail project generally located between Tiedeman and Main. According to the strategy, "The railroad right-of- way on the north side of Tigard Street will be abandoned in conjunction with the Commuter Rail Project, providing a 35-foot right of way for a potential trail corridor." How should this trail, together with the remaining unused land within the corridor, be designed in order to be consistent with the design ideas contained in the Tigard Downtown Improvement Plan? • Are there other trail possibilities in the community, besides the five trails identified in the Park System and Washington Square Master Plans and those not listed above? State,regional, and adjacent community trail plans and documents form the framework for the planning and implementation of the Tigard trails system. The next section will focus on this larger context. Oregon Trails Plan In 2005, the State adopted Oregon Trails 2005-2014:A Statewide Action Plan. This plan, consisting of goals, objectives, and strategies, is the state's official plan for recreational trail management for the ten year period to 2014. It serves as state-wide and regional information and planning tool to assist Oregon recreation providers in providing trail opportunities and promoting access to Oregon's trails and waterways. The following are the top three regional trails issues identified within the Northwest Trails Planning Region, defined as including Washington County and thirteen other counties: 1111 Public Facilities and Services Page 4-36 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S 115t A N D OPEN S P A C E • A. Need for trail connectivity within the region providing access from urban to rural trails, connections between public facilities, parks and open space, and connections from state and regional trails to community trails. B. Need for additional non-motorized trails (for all user types)—especially in close proximity to where people live. C. Need for additional funding for non-motorized trail acquisition and development. For all intents and purposes, these state-identified issues are consistent with Tigard local and Metro regional trail issues and priorities. Regional Trail System In 1992, Metro established a regional network of interconnected trails and corridors in the Greenspaces Master Plan. Existing trails planned and developed in the region were the foundation for the proposed regional system. The regional trails are intended to provide access to most communities within the metropolitan area and selected connection points to adjacent counties. As with the Tigard trail plan, the regional trail plan has not been fully implemented and there remain many uncompleted sections. The Tigard trail system is part of this larger, interconnected regional trail network and includes portions of four regional trails. The four are the Fanno Creek, West Side (or Powerline), and Tualatin River Regional Trails, plus the Washington Square Loop Trail. The Fanno Creek Regional Trail extends from Willamette Park in Portland to the Tualatin River pedestrian bridge. The West Side Trial is another major north-south connector and extends from Forest Park to the Tualatin River under the BPA powerline. The Tualatin • River Regional Trail is designated as a water-based trail. Water-based trails are on rivers that are navigable by small craft. These trails provide water-based recreational opportunities, offering connections that might not be feasible on land-based trails. They include trail-like facilities for boating and canoeing. SW Trails Group The SW Trails Group, a standing committee of the SW Neighborhoods of Portland, developed a SW Urban Trails Plan that was adopted by the Portland City Council in 2000. The plan proposes five east-west and two north-south trails. Trail 3, the Willamette River to Fanno Creek Greenway Trail connects with the Fanno Creek Trail in Garden Home. Trail 5, which also begins at the Willamette River, approaches the Washington County line at Dickinson Street. The SW Trails Group has requested that this trail connect to the Regional trail circling Washington Square, specifically at Metzger Park. SW Trails has identified an on- and off-street tentative route proposed to be considered for the Tigard trail plan. It generally follows easily walked streets to get SW Portland area walkers to Metzger Park and the Washington Square Loop Trail. Tigard Neighborhood Trail System In addition to the official, City-wide trail network, another important opportunity for trail connections within the community are neighborhood trails. These trails are the most difficult type of trail to identify, monitor, and preserve. They primarily are informal, soft surface trails, which appear on public and private property throughout the City. Neighborhood trails can connect neighborhoods to the City trail network or provide recreational opportunities separate from the City system. 411 Public Facilities and Services Page 4-37 Draft– Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D OPEN S P A C E • The 2002 Tigard Transportation System Plan, or TSP, contains a set of goals and policies to guide transportation system development in Tigard. Several of these policies pertain specifically to neighborhood pedestrian needs. For instance, Goal 2, Policy 5 states that bicycle and pedestrian plans shall be developed to link to recreational trails. Strategy 7, "Pedestrian Corridors that Connect Neighborhoods," puts priority on linking neighborhoods together with pedestrian facilities. This is described as including walkways at the end of cul-de-sacs and direct connections between neighborhoods to avoid "walled" communities. In the case of new development, through the use of code provision requiring hard surface bicycle and pedestrian connections on public easements or rights of way every 330 feet, City development staff has been fully implementing the TSP provisions regarding block links and pedestrian connectivity. Impact studies are used to provide for future trails by requiring dedication of easements through plats that are on trail routes proposed in the park plan. The City has been less proactive in addressing gaps in the pedestrian system within older neighborhoods. Many of the subdivisions developed in Tigard in the sixties and seventies did not provide sidewalks or pedestrian connections between neighborhoods. These historic gaps in the pedestrian walking system become more important as land development and activity grow, creating increased demands for an integrated pedestrian system. Suggestions for filling in these missing links include conducting an inventory of potential hard and soft surface trail connections within neighborhoods. The City could accomplish this by working with various • trail user and neighborhood groups to identify existing neighborhood trails. These same groups could be asked to make suggestions for projects that would help create better linkages into and within neighborhoods. A number of site-specific needs already have been identified and catalogued in the Metzger area by the Tigard-Bull Mountain Trails Friends group. The City's newly established sidewalk in-fill program provides $200,000 annually for sidewalk improvements. This program, combined with a neighborhood trail program, which includes benefits to property owners who would allow public use of some portion of their property for trail purposes, could provide the additional connections needed to form a truly integrated system for non-motorized circulation throughout the City. The Lake Oswego Neighborhood Pathway Program, which began in 2002 and involves a number of different groups within the community, could potentially serve as a model for a similar program in Tigard. Willing Seller Policy In the past, the City has followed a de facto or unofficial policy of not condemning land for trail right-of- way. This unofficial policy has led to significant gaps in the trail system. In particular, the City has reached the point of progress where in-filling gaps in the Fanno Creek trail cannot be achieved because of unwilling sellers. Most of the Fanno Creek properties in question are industrially-zoned. In a riparian corridor that is reaching build-out, the City has few choices about where to look for trail development. IP Public Facilities and Services Page 4-38 Draft— Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S IR A N D OPEN S P A C E III D. RECREATIONAL PROGRAMS As noted, the City does not operate a recreation program and is not served by a special park and recreation district. In consequence of this, residents, especially adults, have limited opportunities to participate in recreation programs. Opportunities that are available to City residents are listed in Table 4-24. Table 4-24:Tigard Recreation Opportunities Program Description Tigard-Tualatin School The School District sponsors organized sports for school-aged residents. District This includes varsity sports programs at both high schools. Sponsors youth programs including Drug Abuse Resistance Education (DARE) for 4th and 5th grade students, Gang Resistance Education and Tigard Youth Association Training (GREAT) for 7th grade students, Peer Court, Kids Day/Bicycle Rodeo, and two-week summer camps. The non-profit organization also offers scholarships for youth participation in sports programs sponsored by the school district. Twality and Fowler Middle After-school programs including activities of interest to their particular group Schools of students. In the past,these have included sports,hip-hop dance,crochet, and robotics. PAL also operates weekday after-school programs at Twality and Fowler Middle Schools. PAL is a non-profit organization that provides educational and recreational programs to youth of the Tigard Area. PAL strives to Police Activities League connect law enforcement and youth in a positive way. Members may take • (PAL) advantage of a wide range of educational, athletic, and arts and crafts programs. Activities also include a learning or homework help center. The local PAL is operated independently with support and direction from the Tigard Police. Participants are provided transportation home at the end of day; Youth sports leagues operating in Tigard include: Tigard Basketball Association, Tigard Junior Baseball, Tigard Little League, Tigard-Tualatin Youth sports leagues Babe Ruth, Tigard Youth Football, and Southside Soccer Club. Atfalati, a non-profit group, was organized in the late 1990's to support these team sports. A few adult soccer and other sports leagues use City-owned playfields. Adult Leagues None of these are Tigard-based groups, but some presumably include Tigard-area residents among their team members. The Center, owned and operated by the School District and located on the Tigard Swim Center Tigard High School campus, offers early morning, noon, and evening adult lap swim times, adult water exercise classes, public preschool swim programs,high school swim team,and rental to other athletic clubs. Source:Community Development Department,2007 Tigard residents, including those located within the Beaverton School District, are not included in the Tualatin Hills Park & Recreation District, but may elect to pay out-of-district fees to participate in its programs and use its facilities. However, in-district residents receive first priority when registering for classes or programs and out-of-district use is subject to available capacity. III Public Facilities and Services Page 4-39 Draft— Tigard 2007 0 • 4 . PARKS , R E C R E A T I O N , T R A I L S IR A N D O P E N S P A C E • In 2000, a ballot measure sponsored by a non-profit group to form a recreation district (the Atfalati Recreation District)within the area served by the Tigard-Tualatin School District was defeated at the polls. In 2006, the Park and Recreation Advisory Board adopted as two of its goals the establishment of a small City recreation program in FY 2007-2008 and consideration of recommending a local tax levy election to be conducted in November 2008 to provide funds to begin a comprehensive recreation program in Tigard. Table 4-25: Private Environmental and Special Purpose Groups in Tigard Organization Description A community-based organization, established in 1989, working to protect and restore Oregon's Tualatin River system. The Riverkeepers build watershed stewardship through public education, access to nature, citizen involvement and advocacy. The Riverkeepers are responsible for the 162-page Exploring the Tualatin River Basin, published by the Oregon Tualatin State University Press. This is a guide to the wildlife, ecology, and history of the Tualatin Riverkeepers River Basin. In 2000,the City contributed to the cost of the field guide's first-year publication. In subsequent years the City has provided partial funding for the Riverkeeper's Trips and Tours Program, Construction Erosion Guide, Access Guide Signs, and volunteer restoration events at Bonita Park. In 2006,the Riverkeepers provided major advocacy on behalf of a City $2.5 million Metropolitan Transportation Improvement Program grant request to finance the "green"redesign of the southern half of Main Street. Formed in 1991, volunteers are dedicated to the protection, restoration and enhancement of III Fans of Fanno Fanno Creek and its tributaries. In 2004,the Fans supported the City's successful request for Creek state grant funds to finance the construction of the Tualatin River Trail segment between Cook Park and the Tualatin River pedestrian bridge. A community-based volunteer organization supporting the Tualatin River National Wildlife Friends of the Refuge. It is dedicated to the protection and restoration of the Refuge for the benefit of fish Refuge(FOR) and wildlife and for public education and recreation. In 2006, the City contributed to the cost of a FOR-organized refuge grand opening event. Tigard Dog Parks A volunteer group, now consisting of some 55 people, that monitors compliance with rules for Committee use of Tigard's three dog parks and assists with day to day and annual maintenance. In 2001, the committee contributed$1,000 toward the cost of constructing Potso Dog Park. This task force grew out of a 2001 Mayor's Youth Forum proposal for the construction of a Tigard Skate Park skate park in Tigard. The task force was instrumental in raising private donations to partially Task Force finance a proposed facility. This skate park, scheduled for 2007 construction, will be named after the late Mayor Jim Griffith, who was an avid supporter of Tigard youth and a strong advocate of the park. The group was formed in 2006 with goals to promote the use of the trail system, cooperate Friends of Tigard- with unincorporated Bull Mountain on trail development, and create an up-to-date trails map. Bull Mountain Trails This group recently endorsed a Metro-sponsored Westside Trail federal transportation grant proposal. The trail includes Tigard and unincorporated Bull Mountain portions. Source:Community Development Department,2007 11111 Public Facilities and Services Page 4-40 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D OPEN S P A C E • Private Environmental and Special Purpose Groups In addition to the organizations that provide youth-oriented sports and recreation activities, several other groups based in or near Tigard offer a range of recreation-related educational and volunteer opportunities for local residents of all ages (Table 425). Three of these groups, the Tualatin Riverkeepers, Fans of Fanno Creek, and Friends of the Refuge, are private environmental or natural resource groups. Two, the dog and skate park groups named below, are loosely affiliated with the City, but are not official City-sponsored citizen groups. The focus of the private Friends of Tigard-Bull Mountain Trails is the bicycle/pedestrian trail network. The City interacts with each of these groups to different degrees and many local residents belong to or support one or more of these groups. E. MAINTENANCE The City of Tigard's park system facilities range from high-maintenance, intensive-use areas to lower- maintenance wetlands and habitat areas. At present, all facilities are well maintained. Although most maintenance is provided by the City itself, some sports fields are maintained by the Atfalati Recreation Association and some other facilities and grounds are maintained by private contractors. Problems found during an evaluation of existing facilities conducted in the late 1990's as part of the park system master planning effort were: • Flood damage to trails,including broken asphalt, silting,and mud deposits; • • Drainage problems on sports fields; • Lack of Americans with Disabilities Act(ADA) accessibility; • Safety hazards in children's play areas;and • Lack of access to parks by public transportation. Since that time, the above noted problems have been addressed as follows: • A regular trail replacement plan repairs and resurfaces trails; • Drainage on the sports fields has been improved; • Implementation of an intensive, in-house field renovation program has improved the playability of sports fields; • Regular ADA upgrades are improving accessibility in the parks. In 2000, the City underwent an ADA assessment of all facilities, including park facilities. This study guides regular ADA improvements. All new facilities meet current ADA requirements when constructed; • Play areas have been put on a routine schedule of replacements and improvements. Currently, only a few remaining playgrounds do not meet present standards for safety. These playgrounds have been placed on a replacement schedule. The City also keeps several Certified Playground Inspectors on the park crew. In the period since 1999, park crew size has increased from 7 to 9 field personnel. The City also has added a City Arborist and a Park Manager,who primarily deals with planning issues. • Public Facilities and Services Page 441 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , TRAILS IR A N D O P E N S P A C E III F. FUNDING As mentioned earlier, the City's main funding source for parks is a park system development charge (SDC). This charge is imposed on both new residential and, since 1996, non-residential development. The fee structure is updated annually using an index formula based on land and construction cost increases. In January 2005, Council adopted a new SDC methodology and fee structure based on a parks capacity program that addresses selected needs identified in the 1999 Tigard Park System Master Plan and 2004 Bull Mountain Annexation White Paper on Parks and Open Spaces. The reason for including the unincorporated Bull Mountain Area is that the City is designated the ultimate park provider for this area. Under this methodology, the current (2007) residential fee for a single family development is $4,812 per unit. The current non-residential fee is $327 per employee. The "improvements-driven" approach used to develop the updated park SDC methodology equates to a standard of service in the 20 acres per thousand population range, as compared with an existing standard of 7.7 per thousand. A key feature of the new SDC study, titled the Parks and Recreation System Development Charges Methodology Update, is that it assumes deficiencies in the City's current level of service. Under state SDC statutes, improvement fee SDC revenues must be used only for growth needs and may not be used to remedy deficiencies now existing. For this reason, the parks SDC methodology requires that only a set percentage of a capital project be funded with SDC revenue. The remaining portion of the project cost must be funded though another source. The City has been using General Fund revenues and grants to fund the non-SDC portion of projects. However, because of declining balances in the General Fund, this is not a feasible long • term funding solution. Until the City obtains a stable non-SDC revenue source, the Park SDCs collected cannot be fully used in developing an expanded parks program within the City. Due to this lack of alternative funding, the 5-year Parks Community Investment Plan identifies no SDC- funded projects during the 3-year period FY 07/08-09/10. Due to the lack of projects, the City's Five Year Financial Forecast projects a high park SDC fund balance of$8.5 million by 2011. As suggested, another major problem with the parks SDC methodology is that many of the projects identified on the facilities improvement list are located in the Bull Mountain Urban Services Area. Specifically, $12.5 million, or 47%, of the aggregate cost of projects included are located within this area. Because it derives no park SDC revenue from new development in the Urban Services Area unless the landowner annexes to the City, Tigard currently has a limited incentive to provide park improvements within this extraterritorial area As a potential means to raise non-SDC funds, the Park and Recreation Advisory Board has adopted as another of its 2006-07 goals the consideration of a general obligation bond measure election to be conducted in November 2008 to purchase and develop parks and greenways. This is a companion to the board's proposed and previously mentioned local tax levy election to fund a comprehensive recreation program in Tigard. Ill Public Facilities and Services Page 4-42 Draft—Tigard 2007 • • 4 . PARRS , R E C R E A T I O N ) TRAILS A N D IR OPEN S P A C E • A new, one-time source of non-SDC matching funds is the Metro Natural Areas Bond Measure, approved by the regional electorate in November 2006. The bond measure provides $44 million to cities, counties and park districts for projects that protect and improve natural areas, water quality and access to nature. Tigard's local share of bond measure funds is $1.4 million. The bond measure also provides $168 million for Metro to purchase properties located within identified large-acre target areas. Portions of two of these, the Fanno Creek and Westside Trail corridors, are located in Tigard. This presents an opportunity for the City to work with Metro to identify available sites within Tigard that qualify for regional bond measure funding. An additional potential strategy to help meet Tigard's needs for park and facility improvements could include expanding the City's current park's donation program by establishing a parks foundation. This type of foundation, a public-private partnership, could bring new resources to the park system. Examples from across the nation show that such foundations can be effective in generating additional funds for parks. Within the Portland metropolitan area, at least three park providers have established parks foundations to assist with fundraising, land acquisitions, and special projects. Foundations also can help to heighten public awareness for important park issues and protection of the environment. Typical park foundation projects include finding corporate partners to provide contributions for park maintenance and improvements, leveraging grant opportunities,and working with local citizens to coordinate donation and legacy programs. Another way of engaging the park finance issue, as noted earlier in reference to the Tigard Park System Master Plan, would be partnerships with schools. This could be a cost effective way to take advantage of • complementary facilities in areas that are park deficient and where there is little opportunity to acquire vacant land to meet park and recreation needs. As alluded to earlier, three of the neighborhoods identified as park deficient in the parks master plan are proximate to elementary schools. The schools include Metzger, C F. Tigard, and Templeton Elementary Schools. So far, the City has not developed a partnership plan with the school district for the renovation and joint use of these or any other school's playgrounds to accommodate increasing populations and meet neighborhood park needs. At the same time, the City has been proactive in working with the Tigard Water District regarding the use of reservoir properties for open space. The earlier-mentioned acquisition of a property on Bull Mountain for a combined neighborhood park and underground reservoir is illustrative. Other opportunities under consideration involve the Canterbury and Menlor Reservoir sites. A successful non-monetary funding source the City currently employs to maintain and improve parks, trails, and open spaces is to work cooperatively with the private non-profits, such as the Tualatin Riverkeepers, Fans of Fanno Creek, Friends of Trees, and local citizen volunteers. Every year, through their engagement in such activities as planting and maintaining trees, restoring natural areas, removing non-native species, and participating in Adopt-a-Path and Adopt-a-Stream Programs, volunteers contribute thousands of hours to improving and maintaining Tigard's park system. III Public Facilities and Services Page 4-43 Draft— Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S IR A N D OPEN S P A C E 110 G. CITY PARK DEVELOPMENT INITIATIVES Since 2000, the City of Tigard has employed three new ideas and practical approaches to create more active park acreage in the Tigard community. These ideas and approaches have included the first use of a new state program linking livability with the economy and two locally developed approaches involving industrial land for parks. The first creative financing device was the first-ever use of a twenty-year old Oregon Public Works Loan Program to fund a park project, in this instance, a $2.3 million, 28-acre Cook Park expansion. The two other devices were legislative changes to the Tigard Community Development Code that maximize the use of available land. These included amending the code to make industrial upland available for parks as a temporary use and to make industrial flood land available for permanent park use. The two code amendments were key to the creation of Potso and Bonita Parks. Oregon Public Works Fund In the late 1990's, a comprehensive master plan for the expansion and renovation of Cook Park was developed by a citizen task force working with a park planning consultant. At the time, completion of Cook Park was the City of Tigard's highest priority parks and recreation goal. The Council-"accepted" master plan recommended a phased approach to the plan's implementation using existing revenues. Following this course, completing the park would have taken some ten years. To facilitate an earlier completion date, the City Finance Director researched and developed a creative funding strategy that would allow the City to • complete the park expansion in one early phase. This strategy was to seek a low-interest loan for the master plan's construction cost through the Oregon Economic Community Development Department (OECDD). In 1985, the Oregon Legislature created the Special Public Works Fund Program to provide financial assistance to eligible public entities for the purpose of studying, designing, and building infrastructure. In 2001, the Finance Director was instrumental in obtaining a $2.3 million OECDD Special Public Works Fund Program loan for Cook Park's expansion. The loan was secured by current and future park SDCs collected by the City. It was made a year after lobby efforts were successful in expanding the list of eligible activities to include parks. The OECDD loan enabled the City to complete the construction of the Cook Park master plan in one phase ending in 2003, many years earlier than had been anticipated, at a cost savings of$471,000 in project construction costs in addition to a substantial savings on the cost of borrowing. The Tigard loan is significant as the first-ever park project financed though the now twenty-year-old Oregon Special Public Works Fund and, also, as the state's first instance of linking parks and open space funding with the economy. Additional cost savings were realized when the city applied for and received a then-maximum $250,000 Oregon Local Government Park and Recreation Grant for Cook Park construction. Another funding source was a generous bequest from Christine Tupling, a local citizen to whom parks were an important and lasting legacy. Park maintenance cost savings were realized by expanding and upgrading the park's irrigation system to utilize recycled waste water available from a nearby sewage treatment plant. 1111 Public Facilities and Services Page 4-44 Draft—Tigard 2007 0 • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D IX OPEN SPACE • Industrial Land Amendments In spite of long-standing local zoning restrictions and restrictive state and regional industrial land policies designed to protect the state and region's industrial land base, in 2000, Tigard developed and adopted innovative code changes to authorize recreational uses within industrial zoning districts. The objective was to provide access to industrial properties for active recreational uses under circumstances that were consistent with local, regional, and state land use laws. The impetus for the changes were potentially available opportunities to help remedy the problem of the high cost and dwindling supply of land suitable for active park development. These opportunities included land that was not available to other industrial users because it was held for future use or not suitable for industrial development. In one instance, the code changes allowed industrial floodplain to be used for outdoor recreation, provided the recreational use does not otherwise preclude the development of the upland portion of an industrial property. The second, and coincidental, part of the industrial land amendments allows industrial upland, or land located outside flood and wetland areas, to be used conditionally for recreation. This amendment mainly makes available land held for future use or expansion, where the owner has no interest in selling or leasing and, also, where a low impact park use may be compatible or mix well with existing industrial activities. As with the first, the goal of this second amendment was to make additional land available to meet the outdoor recreation needs of the community, without interfering with, or overwhelming, industrial uses. Land developed for an outdoor recreational use on buildable industrial land would not be removed from the • City's industrial land inventory,but would continue to be available for conversion to industrial use as market conditions or expansion plans dictate. By making finer distinctions in classifying industrial land based on its ability to be used, the amendments enabled the City to make more land available for parks without constricting land for companies to grow. The first use made of the industrial land amendments was to tackle what was, at the time, an increasingly volatile community concern about lack of space for dog owners. In 2002, the new flexibility enabled the City to locate a suitable site for a first-class dog park, called Potso Dog Park. The site was within an industrial area, away from neighborhoods and limited park properties. This park, together with two smaller, newly-created dog parks located in other quadrants of the City, helped to reduce tensions between dog owners and non-dog owners. The second use made of the amendments relates to the City's creation of a much-needed outdoor recreation space (Bonita Park) in a low-income and minority area without parks. The space is 5.5 acres of industrial floodplain deeded to the City as greenway in 1989 as a condition of City development approval of an industrial subdivision. This occurred at a time when local governments could more easily require a property owner or developer to dedicate land for greenway or other public purpose. The primary funding source for constructing and equipping this facility were Community Development Block Grant (CDBG) funds. The CDBG is a federal program designed to benefit low and moderate income people. The park project was eligible for CDBG funding because the primary users of the park had low and moderate incomes. • Public Facilities and Services Page 4-45 Draft— Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , TRAILS A N D OPEN S P A C E • A Bonita Road pedestrian-activated crossing light serving the park was installed in summer 2003. Park construction was started in the fall of 2003. A park dedication ceremony took place in June 2004. Also completed was a split-rail, cedar fence around a (Native American) heritage plant area. Collaboration with the private, non-profit Friends of Trees, continuing to spring 2005, resulted in the planting of 1,300 native trees and shrubs,mainly in the park's riparian zone. K E Y F I N D IN G S • The system of adding parks and related land and facilities in the City has kept up with growth in the seven years since the Park System Master Plan's adoption in 1999. • Many areas of the City are park deficient. • The land supply available for parks and open space is becoming smaller and more expensive. • Given the current density in Tigard, sufficient land for neighborhood parks is unavailable to meet the needs of underserved residential and non-residential areas. • Many non-City-owned lands and facilities serve the park and leisure needs of Tigard residents. • The City lacks a trail master plan to guide the development of the trail system and facilitate progress toward its completion. • The City has regulations in place that effectively provided for block links and pedestrian connectivity in new neighborhoods. At the same time, the City has not been proactive in addressing gaps in the off-street pedestrian system within older neighborhoods. • The SW Trails Group has identified a trail route within Northeast Tigard that includes on and off • street segments and inter-connects with the City of Portland-adopted SW Communities trail network. The group proposes that this route be considered for adoption into the Tigard trail plan. • In the past, the City has followed a de facto policy of not condemning land for trails. This willing property approach has led to significant missing links in the trail system. • The City does not operate a recreation program and is not served by a special park and recreation district. In consequence of this, residents have limited opportunities to participate in recreation programs. This deficiency includes ethno-specific activities appealing to Tigard's growing minority populations. • Overall, City parklands are well maintained. Maintenance problems identified in the 1999 Tigard Park System Master Plan have been,or are being, addressed. • The new Park SDC methodology sets a per-project percentage limit on the use of SDC funds. Some 63% of the cost of park improvements is assigned to non-SDC funding sources. At this time, the City does not have a stable source of revenue that can be used as the companion funding source for capital projects. • Many of the projects identified in the Parks SDC parks capacity program are located in the Bull Mt Urban Services Area. • Tigard does not have a parks foundation. Such foundations provide local governments with important additional programs to finance park and open space projects. • The City has been proactive in working with the Tigard Water District in regard to the use of reservoir properties for open space. At the same time, the City has not developed a partnership plan with the school district for the renovation and joint use of school playgrounds to meet neighborhood park needs. • Public Facilities and Services Page 4-46 Draft—Tigard 2007 • • 4 . PARKS , R E C R E A T I O N , T R A I L S A N D O P E N S P A C E • • Volunteers annually contribute thousands of hours to Tigard's park system and are a non-monetary funding source for park maintenance and improvements. • In recent years, the City has developed and employed innovative methods to create more active park acreage to serve community needs. This has included making use of a state infrastructure loan program to expand Cook Park and making certain types of industrially zoned properties available for park uses. • • Public Facilities and Services Page 4-47 Draft— Tigard 2007 • . h 1 ; ') 1.:1H1 •*. • • • . . . .. .... . . • I I I ) I . . • • I• . : • • • •. P.• • • .• • • .P1 • •. I. • .• . • I • • • : • • . . • : • .• KI:V• • • • : • •. • . . . •• • `CP. • • . • • 1 • I • • I • : • ; > 91111112 • I ' . I • • • • TRANSPORTATION liNi • r---\ - . �--, 1 ' r / 1` . -- r- ' 1 , < �, \ ' J/ `\ 1i r-' 'i 1 ■ DF,FINITION: Facilities : . _ _ - _ nfa' T:IG � •iF that support the - .-: .. , -, � ,_lc il movement of people - - = '_ "` and goods . : ; o CHAPTER 5: • VEHICLES 5-4 MOTOR V EHICLES TRANSIT PAGE 5-11 BICYCLES PAGE 5-19 PEDESTRIANS PAGE 5-23 MOVEMENT OF GOODS PAGE 5-27 TRANSPORTATION DELA.ND MGM T. PAGE 5-31 Key City Departments: Contact: Community Development Duane Roberts,Associate Planner • duane@tigard-or.gov • I TRANSPORTATION 1121 In the City of Tigard, transportation has played a major role in shaping the community. From the first railroad tracks that established Tigard Ville,to the development of Highway 99W straight through its center, Tigard's commercial areas developed along primary routes,and residential followed nearby. Today mobility, or lack thereof due to heavy traffic, continues to define Tigard and the daily experience of its residents and businesses as they move from point A to point B. In addition to 99W, the City also has two other highways within its borders: Highway 217 and Interstate 5. The railroad still exists, but now passengers will return to its cars with the 2008 opening of Commuter Rail, one of the few U.S. suburban-to- suburban commuter rail lines. This complements two Transit Centers within the City that provide regional bus service. In addition, the regional Fanno Creek Trail provides an alternative route for bicyclists and pedestrians to travel along the creek. The effectiveness and performance of all of these transportation options impact land uses, current and future,as well as transportation facility planning. The state recognizes the close relationship between transportation Statewide Planning Goal 12 and land use. Future land uses increase population and travel. "To provide and encourage a There must be transportation capacity to support those uses. safe, convenient and economic Conversely, Goal 12 requires multi-faceted transportation transportation system." planning to conform to local and regional comprehensive plans. The state Transportation Planning Rule (660-012-0000) also clearly states that the rule's purpose is to "direct transportation planning in coordination with land-use planning." The state also sponsors specific programs, such as the Transportation and Growth Management Program (TGM). The TGM program provides • support to jurisdictions to meet Goal 12 and the Transportation Planning Rule (TPR), including grants to plan for both land use and transportation to create livable, transportation-efficient communities. The TPR provides administrative rules that support Goal 12's goal of providing and encouraging a safe, convenient and economic transportation system. The term transportation system refers to facilities that support the movement of people and goods; it includes facilities that accommodate motorized and non- motorized travel. The TPR includes requirements for governmental coordination and for the creation of Transportation System Plans (TSP). All jurisdictions — from the state, to metropolitan planning organizations, counties and cities—must prepare and adopt their own TSP. Once completed, the cities and counties adopt the TSP as part of their comprehensive plan. Each level of government addresses facilities under their jurisdiction; for example, local TSPs must meet local needs but must be consistent with the regional TSP and adopted elements of the state TSP, including the 1999 Oregon Highway Plan. State and regional TSPs must also meet certain federal requirements.The TPR also requires coordination between agencies and special districts. At the regional level, Metro maintains the Regional Transportation Plan (RTP) to guide transportation investments in the Portland metropolitan region. The 2000 Regional Transportation Plan update incorporated the 2040 Growth Concept, the region's long-range land-use plan. The updated plan's policies placed a "new emphasis on transportation alternatives for travel to work, shopping and recreation," according to Metro. In 2003, the RTP was updated to address federal planning requirements; a major update is now under way with completion expected in 2007. Metro's goal for this planning effort is to produce a "more streamlined • Transportation Page 5-2 Draft—Tigard 2007 • • TRANSPORTATION MI _ 410 plan that better advances regional policies,public priorities and local efforts to implement the 2040 Growth Concept." Locally, the Tigard Transportation System Plan (adopted January 2002) guides the City's transportation investments, aids the City's land-use choices, provides coordination with regional and neighboring agencies, and addresses existing and future needs. Unlike other sections of the City's existing Comprehensive Plan, the transportation section was updated in 2002,based on the City's TSP. D A T A S U M M A R Y This topic report uses the City's existing 2002 Transportation System Plan as its foundation. It summarizes the key policies and findings from the 2002 TSP. Where new information has become available, either through the City's work or its regional partners, the report includes the updated information and highlights any key differences with the current TSP. The report is divided into six sections, based upon Chapters 5-9 of the TSP (Other Modes becomes Movement of Goods here): • Motor Vehicles and Street System. This section focuses on motor vehicles, including the City's street classification system and state highway designations. III • Transit.This section focuses on bus service within the City and commuter rail. • Bicycles.This section focuses on bicycle facilities in the City. • Pedestrians. This section covers pedestrian facilities and connectivity. • Movement of Goods. This section addresses facilities to transport goods by truck, rail, air, water and pipeline. • Transportation Demand Management. This section reviews strategies to remove single- occupant vehicle trips from the roadway network, and works in tandem with the Environmental Quality (Vol. 2). IIII Transportation Page 5-3 Draft- Tigard 2007 • • 1 . MOTOR V E H I C L E S NOI • By far, motor vehicles represent the dominant mode of travel through and within Tigard. Because of Tigard's central location, much of the City's transportation system has regional significance: Two regional shopping centers, employment areas, and five state highways draw thousands of non-Tigard residents through the City each day. At the same time, the City transportation system must also provide local access and service for residents and connections to neighborhoods. Managing the City's road system requires balancing local control and needs against regional and state facilities and priorities. The City's Transportation System Plan must reflect the Regional Transportation Plan (RTP) and applicable state policies for motor vehicles. The 1999 Oregon Highway Plan (OHP), part of the state TSP, sets long-range policy and investment strategies for the Oregon Department of Transportation (ODOT) and the state highway system. The OHP policies apply to state highways within the City's borders, as classified in the OHP. The OHP Land Use/Transportation Policy 1B focuses specifically on highways and adjacent development, and guides how ODOT works collaboratively with local governments to link land use and transportation in plan development and project work. The 2004 Regional Transportation Plan focuses on transportation investments to support the 2040 Growth Concept. In Tigard, the 2040 Growth Concept includes the Washington Square Regional Center, a Town Center (Downtown), the I-5 employment area (includes Tigard Triangle), and the 99W mixed-use corridor. According to the 2004 RTP, street design in regional centers accommodates auto and freight movement while encouraging other modes of transportation. Town centers have strong connections to regional centers, and street design emphasizes other modes of transportation. Employment areas have a network of • strong street connections that tie in to the freeway system. Corridors emphasize access and making high- quality transportation improvements for other modes (transit,pedestrian, bike),and mixed-use. The 2004 RTP policies regarding the motor vehicle system (Policy 13.0) focus on connections between centers and industrial areas, as well as mobility. Objectives support this policy by emphasizing the provision of an adequate arterial system, local streets, and connections. It also includes an acceptable level of service system (Table 1.2, p. 1-33 in RTP), and proposes a congestion management system. The RTP also designates Highway 99W between Highway 217 and Tualatin Road as an "Area of Special Concern" due to existing development patterns, heavy demand, and economic constraints that limit adding capacity. As a result, the RTP provides alternative performance measures for these areas. The City must also coordinate with Washington County's Transportation System Plan. County arterials are impacted by Tigard land use and transportation decisions. The City's TSP focuses on seven primary goals: livability, balanced transportation system, safety, performance, accessibility, goods movement and coordination. This section focuses on performance and accessibility.As referenced in the chapter Introduction, the TSP was adopted in 2002;however, much of the data was collected in 1999 or earlier. The sections below cite the 2002 TSP data and note where new data is, or will be,available. • Transportation Page 5-4 Draft- Tigard 2007 • • 1 . MOTOR VEHICLES INN III I N V E N T O R Y Street Classification `'Applicable t les--statutes and;pl'AnOhatt . A. Functional :.,.,:1 mpactmoto -vehicles., ty x ~ �� wrthin�tlie'"Ci yam,.. o " . � `C Tigard s 2002 Transportation System Plan established `' 4�0,0 f, functional street classifications for the roadway system. > � � � � > tat ' • ePlannul . j u y ' ': . These classifications form the backbone of the -<:., �� fr'y��. 4.,�,��%��4-. ,�,-' %f:: �,,. 2'. gcfn-�.Adrpv stra• ekRue transportation system. Traffic volumes, roadway size, a y r%` `, r, ; >.;�v� 6GC1 � .�'I i� portauan Planet ' urban design and land use designation are all tied to � ` .e "'', _ ' , * �, <' � 9�;f3r�gdn � � 2v�Plane� functional classification; i.e. form follows function. For �' -,�, > �ti� �� > �' 4 :� 1 �cra , esi Standards t example, a local route serving primarily a neighborhood y i t4, 4 ;' r ; " would have characteristics that support and reinforce this ' .i § � ° p Z . t,. . „rtrition P, function. - ,, ; ,>/,' 0�`;z, I ' •f r0 e# t 0(/*1ent The street classifications were based upon the current s �94 r; A"" '7,4 , Comprehensive Plan land use designations. If the current Comprehensive P g Fes,. mp a lan designations were ,4;, ;% :411, '" ift'- ..;-0„ >.,,,-- ;'-:<,; ':., . Cii :if:T� ': Yd Trans.or(ation S°stem Plan vFuucuon. >F to change, the related ty ,, - p.. ,y,.:;: ; ., e elated trans ortati n --�' �� '' ��=�-„ %- A• ``' et9=Classtt".tca�on=S. stem:= ,..�°.-: classifications would need to be v""' %`-a�` s s��F� ,� *:%° ' � �t, � �'� l� "' I ' Ftee'ways" -'l`hes a« u a. ra e" e'< hest�level'of re • examined. The TSP states that the "�;"- ° ; :I >I ,.', y" �;w y cop ecuv t r aU,l a 1 "urtsdt 'orl "%`' `;rq t1 streets is directly t and sery sew a "demand for tr ctly related '��' :� ' � ��%�! rr��'� 7� � � .�� _ ��:'->%� �� Arsenals ;- $.:;or ,,� Tliesekffaah• inter • e -san�.��u. r�the to the land use." The TSP "9 ' ,q ; 4 g `... t SP ��..�,� �� a �� 4..:�," • sy tern These str e, a a . ,c.a mm rctal,residential� emphasizes making connections with � x3y � � f;== t %�� >� incliastrialand-m u .. . • `bs.rli tiafficuieu-o the existing arterial and collector ,,� : ��,,x�r��y "log ' r ° system to preserve :collecfo s rjeical,stre c c•n t iliis a5. 'y,ieatuure Le Y p s e future mobility it r' 'S ,;, %3;N f„ ,:w,u ' .t:A. and access as the community builds :^us4� �ly multiple es ,xy� EF;r 5 y" , Collectors.:=,i neseastre-ts'provvf;s e tl access.and`circulation :: - out to its Comprehensive Plan land-use r x: <: -f''. " y",Ali';,,, ` : .4 .- ligi, > "'p wittiul andFbetiveen`'A °i a :and 0 • 1 . M O T O R V E H I C L E S ION III classifications: freeways, arterials, collectors,neighborhood routes,and local. The TSP assigns design characteristics according to classification, and includes street cross-sections. This information is used when constructing or modifying new facilities. B. State Highways As noted above, the City of Tigard must balance local control and needs against regional and state facilities and priorities. Of particular interest to Tigard is the 1999 Oregon Highway Plan,with five highways within the City's borders (217 and 99W). This document, part of the state TSP, sets long-range policy and investment strategies for ODOT and the state highway system. The OHP focuses primarily on making the highway system safer and more efficient. The OHP investment policy emphasizes safety and preservation of the existing infrastructure as top funding priorities, above adding new facilities. The second priority focuses on projects that improve infrastructure conditions, or add new facilities or capacity to address critical safety problems,congestion or economic development. The OHP Land Use/Transportation Policy 1B focuses specifically on highways and adjacent development. The policy is not an administrative rule;it guides how ODOT works collaboratively with local governments to link land use and transportation in plan development and project work. The Land Use/Transportation Policy focuses on local and state coordination to emphasize development patterns that maintain state highways for regional and intercity mobility and safety, foster compact development patterns that are less • dependent on state highways, encourage transportation alternatives, and enhance livability and economic competitiveness. It also recognizes that in some communities, the highway is also the main street, and attempts to balance this function with through traffic. Policy 1B established three special designations to foster compact development: Special Transportation Areas, Commercial Centers and Urban Business Areas. The City has received a Transportation and Growth Management grant from the state to produce a Tigard 99W Improvement and Management Plan to better accommodate trip demand on 99W. The plan will develop concept-level plans for transportation improvements in the project area and identify a package of additional interventions and improvements that can best meet future needs in the corridor. It will be completed by mid-2007. In addition, the I-5 to 99W Connector Project is under way and developing a recommended location for the connector.The planning process has not included Tigard,but its neighboring jurisdictions to the south. The final recommendation is expected in winter 2007. The 1999 Oregon Highway Plan classifies all state highways into five categories based upon function: Interstate, Statewide, Regional, District and Local Interest Roads. This system guides ODOT priorities for system investment and management (Policy 1A).Table 5-1 lists the classifications for Tigard-area highways. According to the OHP, Interstate Highways provide connections to major cities, regions and states; in urban areas, they also provide for regional trips.The main objective is mobility; the management objective is for safe and efficient high-speed continuous flow operation in urban and rural areas. In Tigard, Interstate 5 provides all of these connections. III Transportation Page 5-6 Draft- Tigard 2007 • • 1 . MOTOR V E H I C L E S • Table 5-1:Highway Designations in Tigard Statewide Highways focus on ODOT Highway mobility in regions and urban Highway Route Name Classification Tigard providing connections to Number (State/Local) (OHP) Classification Metro Classification areas, p g 1-5 Pacific Interstate Freeway Freeway larger urban areas or other major Regional Boulevard(2040),Regional OR 99W Pacific ' Statewide Arterial Street(2040),Major Arterial,Principal areas not directly served by the west Arterial(freeway) interstate system. The primary Beaverton- Freeway(2040),Principal Arterial management objective is to OR 217 Tigard Hwy. Statewide Freeway (freeway) provide safe and efficient high- OR 210 Scholls/Scholls District Arterial Regional Boulevard(2040),Regional speed continuous flow operation. Ferry Rd. Street(2040),Major Arterial B Tuerton Community Boulevard(2040),Community The OHP notes that in Hall Blvd. Tualatin District Arterial Street(2040).Minor Arterial constrained and urban areas, Hwy/Hall Blvd. Sauce:Community Development Departmerd.2008 interruptions to flow should be minimal. The plan does make an exception for local access as a priority in Special Transportation Areas only. Both 217 and 99W fall into this category; however, meeting the objective for safe and efficient high- speed continuous flow operation is difficult at best for both roadways. Highway 99W, in particular, has numerous access drives and traffic lights throughout its length in Tigard. District Highways function as county or city arterials or collectors. These facilities provide connections between small urbanized areas, rural centers, and urban hubs, as well as local access and traffic. For urban and urbanizing areas, the management objective is to provide moderate to low-speed operation for traffic flow and for pedestrian and bicycle Table 5-2: Design Features for Highway 99W and Hall Boulevard • movements. Both Hall Blvd. and Scholls Ferry fall into this category ODOT Highway Design Manual City of Tigard TSP and speeds are posted accordingly. Sidewalks 6 feet.Can be exceeded without design 10 feet. exception. All highways included in the state Planter Strip None required;if provided should be 4 to 5 feet. classification system fall under 8 feet. ODOT jurisdiction. As a result, all Shoulder 6 feet.Combined shoulder/bike lane. None. must be designed according to the ODOT Highway Design Manual Parking None. None. standards, which address sidewalks, Bike Lane None—combined with shoulder. 5 to 6 feet. planter strips, shoulders, lane width, median width, and street trees. In Lane Width 12 feet. 12 feet. some cases, these standards differ Median 15 or 16 feet depending on design from the Tigard's TSP, as identified 12 feet. Width/TWLTL speed. during the Tigard Downtown Improvement Plan process. Table 5-2, A design exception is required for street excerpted from the "Future Street Trees trees on urban streets with a design Yes. speed greater than 35 miles per hour. Transportation System Analysis and Recommendations" memo (June 30, Source:'Future Transportation System Analysis and Recommendations'memo(June 30,2005, Q , Kittleson&Associates),prepared as part of the Tigard Downtown Improvement Plan. 2005, Kittleson & Associates) shows the differences, focusing on 99W and Hall Blvd. III Transportation Page 5-7 Draft-Tigard 2007 • • 1 . M O T O R V E H I C L E S • Special Districts As noted in the overview, the OHP includes three district designations which provide special ways of managing ODOT highway facilities. Designations may change the applicable Oregon Department of Transportation design standards, mobility standards and access management spacing standards within the designated segment. Special Transportation Areas provide access to community activities, businesses, and residences and accommodate pedestrian movement along and across the highway. Local access and alternative modes are as important as traffic movement and direct property access is limited. STAs can be applied on highway segments with a downtown, business district, or community center straddles the state highway. During the City's Tigard Downtown Improvement Plan, both Hall Blvd. and 99W were evaluated for STA applicability and neither qualified (based on the TDIP plan boundaries). A portion of an existing STA lies in the City within the Washington Square Regional Center. Hall Blvd. is designated an STA from Scholls Ferry eastward to Hemlock Street, a portion of which is located in the City. The Commercial Center designation can apply to segments adjacent to existing or future commercial centers with 400,000 square feet or more gross leasable area. It affects design of the buildings and limits highway access, and encourages a high level of regional accessibility. The Urban Business Area is limited to highway segments where vehicle accessibility is important to the economic viability of an existing or future commercial area.The main criteria are the need for local access exceeds the need for mobility. The City does not have any Commercial Centers or Urban Business Areas within its borders. C. Traffic Volumes • Traffic congestion ranks as Tigard citizens' number-one issue. In the three recent surveys, Tigard residents named traffic congestion as the top community issue. In addition, one in two residents mentioned traffic as what they like least about living in Tigard (2006 Community Attitudes Survey). Tracking traffic volumes allows the City to identify problematic intersections and recognize trends over time. The 2001 Transportation System Plan conducted traffic counts in 1997 and again in 1999, and compared the information to 1994 data. The TSP concluded that on a typical day, OR 99W is the most heavily traveled street in Tigard (TSP,p. 3-5).The City generated 35,000 PM-hour vehicle trips. Both 99W and Scholls Ferry generated over 50,000 trips a day. Half of the trips on 99W were attributed to regional through-traffic. In a graph that tracked traffic volumes over 1994, 1997 and 1999, 10 out of 12 intersections generated more traffic in 1999;one stayed the same and one dropped slightly. The TSP stated that"in general,intersection level of service in Tigard has either remained the same or degraded slightly over the past three years.As regional growth has occurred, traffic volumes around the City have increased" (TSP,p. 3-23).The TSP also noted that time of day affects traffic volumes.There was more traffic in downtown at midday than at the south City limits,and traffic tended to increase over the course of the day near retail areas. For employment areas, traffic peaked in the morning and evening hours. The TSP estimated that it would take a driver between five and 20 minutes to travel through Tigard. • Transportation Page 5-8 Draft- Tigard 2007 • • 1 , MOTOR V E H I C L E S • Table 5-3:State Highway Traffic Volumes in Tigard 2000 2003 Highway Milepoint Volumes Year Volumes Year % Change 1-5 2002 2005 1-5 @ 99W 293.51 102,200 103,200 104,700 105,100 1.84% S. of Haines Rd. 293 105,700 106,900 108,600 107,700 0.75% S. of 217 291.8 150,200 150,400 151,600 153,600 2.13% 99W 2002 2005 99W N of 1-5 7.04 22,600 21,900 22,900 22,200 1.37% 99W @ N. City Limits 7.61 59,200 58,800 59,000 52,900 -10.03% 99W @ 217 8.55 49,700 50,000 50,500 50,000 0.00% 99W SW of Main St 9:47 54,000 45,000 45,800 43,200 -4.00%. 99W @ Walnut 9:69 58,100 42,900 44,000 46,200 7.69% 99W @Durham 11.5 39,500 44,900 47,100 43,200 -3.79% Hall Blvd.1 2003 2005 Hall @ North City Limits (Pfaffle) 4.68 14,000 12,000 12,390 3.25% Hall N. of 99W 4.96 12,200 10,500 10,800 2.86% Hall S. of 99W 4.98 12,600 11,700 12,000 2.56% Hall @ Burnham 5.54 17,900 14,000 14,400 2.86% Hall N. of Bonita 6.32 19,800 16,000 16,400 2.50% • Hall @ Durham Hwy 217 7.85 12,000 10,000 10,300 3.00% 2002 2005 217 @ Scholls 4.57 109,400 112,900 108,600 108,700 -3.72% 217 NW of 99W 5.6 112,800 116,000 111,500 114,100 -1.64% 217 SE of 99W 6.2 94,200 96,200 92,700 99,200 3.12% 217 N. of 1-5 7.04 92,500 93,800 95,900 103,700 10.55% Years listed reflect more recent counts Sources:2005 Transportation Volume Tables,August 2006,ODOT;2000 Transportation Volume Tables,July 2001,ODOT Table 5-3 shows Oregon Department of Transportation traffic counts on state highways within Tigard for 2002/2003 and 2005. The table supports the TSP data that the highest traffic volumes on 99W occur near 217 and I-5. Table 5-3 also shows that while traffic increased on Hall Blvd. and I-5, 99W and 217 showed mixed results. One possibility is that drivers are choosing different entry points onto I-5: while 99W at I-5 showed a 10% decrease, 217 north of I-5 showed a 10% increase. The decreases on 99W could also reflect drivers choosing collectors as alternative routes. Additional analysis examining traffic volumes on collectors should be conducted to provide more insight on recent trends, which may require additional neighborhood traffic management strategies. Future Improvements The TSP concluded that in the future,nearly half of the study intersections fail even with funded roadway improvements.The resulting congestion would hinder the projected land use scenario.The TSP Task Force chose to follow a strategy of improvements that would pragmatically add capacity to all modes,developing a balanced system, and would outline the long-term configuration of streets to allow development to • Transportation Page 5-9 Draft- Tigard 2007 • • 1 . MOTOR V E H I C L E S • accommodate future needs.The proposed improvements listed in the TSP address regional circulation enhancements, connectivity/circulation improvements within Tigard,and traffic operational improvements. For regional circulation, the TSP concluded that the most significant changes in future traffic volume resulted from improvements to regional highways (8-33),including 217, 99W and I-5.The connectivity improvements focused in the four primary areas with significant existing problems:Washington Square, Tigard Triangle,Western Tigard, and East-West Circulation Capacity. K E Y F I N D I N G S • Two regional shopping centers,employment areas,and five state highways draw thousands of non- Tigard residents through the City each day. 99W generates over 50,000 trips a day. • The 2002 TSP attributed half of the trips on 99W to regional through-traffic. • Managing the City's road system requires balancing local control and needs against regional and state facilities and priorities. The City does not have control over state facilities. • The Oregon Highway Plan includes three district designations to provide special ways of managing ODOT highway facilities. help local communities work with ODOT on state highways. Neither Hall Blvd. and 99W qualify for the Special Transportation Areas designation; a portion of an existing STA lies within the Washington Square Regional Center. The City does not have any OHP designated Commercial Centers or Urban Business Areas. • Demand for streets is directly related to the land use.Tigard's street classifications are based upon • the current Comprehensive Plan land-use designations. If the current land-use designations change, the related transportation classifications would need to be examined. • It is not possible to have a citywide neo-traditional street grid (i.e., connected linear streets on short blocks) due to past land use decisions, topography and environmental features.The City has five street classifications. • Traffic congestion ranks as Tigard citizens'number-one issue. • The 2001 Transportation System Plan conducted traffic counts in 1997 and again in 1999 and concluded that intersection level of service in Tigard either remained the same or degraded slightly. As regional growth has occurred,traffic volumes around the City have increased. • The TSP estimated that it would take a driver between five and 20 minutes to travel through Tigard. • ODOT traffic counts on state highways within Tigard for 2002/2003 and 2005 show that while traffic increased on Hall Blvd. and I-5, 99W and 217 showed mixed results. Additional analysis examining traffic volumes on collectors should be conducted to provide more insight on recent trends,including if drivers are choosing collectors as alternative routes. • For regional circulation, the TSP concluded that the most significant changes in future traffic volume resulted from improvements to regional highways (8-33),including 217, 99W and I-5. • Transportation Page 5-10 Draft- Tigard 2007 • • 2 . TRANSIT MI • This section focuses on City bus and commuter rail transit. It summarizes current local service and existing and future transit needs and concludes with a list of key findings. Most of the information contained in the section is derived from the Tigard Transportation System Plan (TSP), adopted in 2002. More current information is included, if available. The TSP was developed over a two-year period and serves as a Comprehensive Plan associated document. The TSP includes a number of Goals and Policies related to transit. The methodology used to develop recommended implementation measures combined citizen and staff input. Transit is provided to the general population of the City by TriMet. Tigard's special needs population is served by TriMet in addition to other transit providers. Regional Transit Policies Regional Public Transportation Policies included in the Regional Transportation Plan are listed below. These policies and objectives inform and direct the region's planning and investment in the regional public transportation system. Tigard's policies are required to conform to these regional objectives. Put another way, the regional policies are broad statements that provide the framework for Tigard's and other member jurisdiction's local transit planning efforts. Policy 14.0. Regional Public Transportation System Provide an appropriate level, quality and range of public transportation options to serve this region and support implementation of the 2040 Growth Concept. Policy 14.1. Public Transportation Awareness and Education Expand the amount of information available about public transportation to allow more people to use the system. Ill Policy 14.2. Public Transportation Safety and Environmental Impacts Continue efforts to make public transportation an environmentally friendly and safe form of motorized transportation. Policy 14.3. Regional Public Transportation Performance Provide transit service that is fast, reliable and has competitive travel times compared to the automobile. Policy 14.4. Special Needs Public Transportation Provide an appropriate level, quality and range of public transportation options to serve the variety of special needs individuals in this region and support the implementation of the 2040 Growth Concept. 14.4 Special Needs Public Transportation Provide a seamless and coordinated public transportation system for the special needs population. 14.7 Special Needs Public Transportation Encourage the location of elderly and disabled facilities in areas with existing transportation services and pedestrian amenities. • Transportation Page 5-11 Draft-Tigard 2007 • • 2 . TRANSIT • Tigard Transportation System Plan Tigard's Transportation System Plan (TSP), adopted in 2002, includes a set of goals and policies to guide transportation system development in Tigard. These goals and policies are consistent with regional policies and represent the criteria that all transit improvements in Tigard should be compared against to determine if they conform to the intended vision of the City. A few of these policies pertain specifically to transit needs: Goal 2—Balanced Transportation System Policy 2: The City shall coordinate with TriMet, and/or any other transit providers serving Tigard, to improve transit service to Tigard. Fixed route transit will primarily use arterial and collector streets in Tigard. Development adjacent to transit routes will provide direct pedestrian accessibility. Policy 7: Tigard will participate in vehicle trip reduction strategies developed regionally targeted to achieve non-single occupant vehicle levels outlined in Table 1.3 of the Regional Transportation Plan. Policy 8: Tigard will support the development of a commuter rail system as part of the regional transit network. Goal 5—Accessibility Policy 1: Design and construct transportation facilities to meet the requirements of the Americans with Disabilities Act. The Tigard TSP also contains ten strategies related to bus transit facilities in the City. These strategies provide the City with priorities in identifying local needs to TriMet. These strategies include additional: peak • service hours of operation; express routes; improved user amenities; access to City employment; shopping, and activity and service centers;better transit coverage;and park-and ride-lots. TriMet Transit Investment Plan TriMet's Transit Investment Plan lays out the agency's strategies and programs to meet regional transportation and livability goals through focused investments in service, capital projects and customer information. The plan is a rolling five-year plan that is updated annually. The plan is based on long-term goals and strategies developed by Metro,including the RTP. • Transportation Page 5-12 Draft- Tigard 2007 III • 2 . TRANSIT • I N V E N T O R Y The TSP calls for a balanced and accessible ` ` i� t.,-'�; %. ;= '=p �, % rues,,statutesand: lan transportation system, without defining these terms in • C `transi �Yannug,"ki�� yl ' , ,� quantitative terms. Transit ridership presently accounts k .,. ,� , ,1`� . ;=- r _ for approximately 6% of Tigard PM trips. Altogether, . ;° ,s - rtatio Lanni •,V. 4,555 weekday boardings took place within the City ' ' -;ti �':'J' y p �' � � xe . Transportation Plan' ,, during fall 2005. According to 2005 data, most transit - - ri �`t,, t t i : , • �ranS brtatlon ridership generated in Tigard is to Portland (53%), with lii'' ° ,it.e�on��jj,u t ' p ns ,� .: C��,�y Trar�p�, 17% of trips staying within Tigard and 16% destined for " *'v� . . � �j x Beaverton. {New and additional data on ridership will { p ransportat>o Sys/ • be provided by TriMet.} .; ': % - ; .5-,1 .,,.:,. . ,' y... 0' , . Currently, ten fixed bus routes operate within the City. These routes are summarized in Table 5-4. Frequent routes provide the backbone of the transit system and are intended to provide high quality service operating at intervals of 15 minutes all day. Route 12 and Routes 76 and 78 combine provide frequent service on HWY 99W and Greenburg Road, respectively. Additionally, three express routes provide service to Tigard residents (12E, 92X, and 95X). These routes, by definition, include a limited number of stops. Coming from Portland, route 95X stops only at the Tigard Cinemas before it begins making regular stops at Walnut/HWY 99W. Also coming from Portland, route 92X does not stop before reaching the Progress Park& Ride station,where it begins making regular stops. Other routes have stops approximately every 200 • feet within Tigard. Existing transit headways on the non-frequent bus routes inside the City average 30 minutes during peak commute Table 5-4:Current Tigard Transit Service,zoos periods. Two transit centers are Weekday Saturday Sunday Peak hour Efficiency Line Frequency Frequency Frequency only/ Start Time End Time (BRNH) located within the City: 12 15 15 15 N 4:40 AM 12:30 AM 35 Downtown and Washington 76 30 30 60 N 5:30 AM 10:30 PM 32 Square. The transit centers are 78 30 30 60 N 6:00 AM 12 00 AM 26 the stops 45 20/60 60 60 N 5:30 AM 9:30 PM 19 he most active transit sto P 64X 30 Y 5:45 PM 6:30 PM 32 Tigard. Map 5-2 depicts the 38 30 Y 6:00 AM 7:30 PM 14 center's locations, along with 94 15 Y 6:00 AM 7:00 PM 21 current transit routes in Tigard 95 Y 6:00 AM 6:00 PM 17 43 30/60 60 60 N 7:00 AM 8:15 PM 15 by bus line. 56 30 30 30 N 5:30 AM 12:30 AM 27 1 BRNH•Boarding rides per vehicle hoer A. TRANSIT NEEDS se�,ce'TriMet 2006 According the Tigard TSP, one of Tigard's greatest transit needs in the future will be improving transit service to the southwest portion of the City, including the area west of 1215` Street, where much new development has occurred. Other underserved areas are Gaarde Road, McDonald Street, and Durham Road. Rapidly increasing employment and housing creates a much greater opportunity to add productive public transit routing in Tigard, serving these and other areas of the City not currently served by transit. As detailed below, in addition to new and reconfigured service, other City transit-related needs include pedestrian and park-and-ride improvements that increase access to transit. • Transportation Page 5-13 Draft- Tigard 2007 • • 2 . TRANSIT MI • A long term need identified by the Community Development Department is for high capacity transit service, i.e., light rail or a street car line, on HWY 99W. Significantly, the need for high capacity transit on this corridor is not identified in the current RTP. One of the City's priorities for the Metro RTP update process underway in 2007 is the addition of HWY 99W fixed rail transit service to the RTP transit system plan map. This is the necessary first step in making this project eligible for state and federal funding. The HWY 99W corridor is identified in the 2007 TriMet Investment Plan for future "high capacity transit", which TriMet defines as either a streetcar or a high capacity bus line. TriMet's identification of a potential rail project further supports the case for its inclusion in the revised RTP. Tigard/TriMet MOU In late 2002, the City adopted the Local Service Transit Action Plan. The plan addresses local needs for improved transit services. This includes identifying priorities for new bus routes based on the needs of low income households, seniors, and youth. It also includes identifying the need for transit amenity improvements, especially sidewalks leading to bus stops. The Local Service Transit Action Plan was used to identify the City's transit concerns and priorities to TriMet. As an outgrowth of this plan, in 2003, Tigard became the first suburban city selected by TriMet as a target for local service and pedestrian improvements. The three basic goals of the partnership are: • Improve local coverage (by providing new and reconfigured service), • Improve access to transit (by providing pedestrian and park-and-ride improvements),and • Maximize transit ridership. These goals carry out nearly all the TSP transit strategies, as illustrated by the following recap of progress • achieved during the past three years under the 2004 Tigard/TriMet MOU. B. COMMUTER RAIL Washington County Commuter Rail is Tigard's top TSP priority for transit improvements. Commuter Rail will use self-propelled railcars to serve the 14.7-mile stretch between Beaverton, Tigard, Tualatin, and Wilsonville. The $117 million project will include five stations along the Interstate 5/Highway 217 corridor and have weekday service every 30 minutes during the morning and afternoon rush hours. The Tigard Transit Center is one of five stations along its route. The Tigard station will have 120 park-and- ride spaces and connect with five TriMet bus lines. The transit project is the first commuter rail in Oregon and one of the few suburban-to-suburban commuter rail projects in the nation. The line will use self- propelled diesel trains to carry passengers between Beaverton,Tigard,Tualatin,and Wilsonville. In late October 2006, a ground-breaking ceremony, attended by both Oregon US Senators and many other VIPs, was held at the Tigard Transit Center. According the US Deputy Transportation Secretary, who spoke at the ceremony, Commuter Rail "puts the metro area on the leading edge of commuter transportation in the United States." • Transportation Page 5-14 Draft- Tigard 2007 • • 2 . TRANSIT • The first phase of Commuter Rail construction, completed in November, involved the removal and installation of track, ties,and ballast along the existing 14-mile line between Beaverton and Wilsonville. The second phase of construction, beginning in 2007, will include intersection and rail station construction, installation of a modern signal system, and the construction of secondary tracks to allow Commuter Rail and freight trains to pass one another. The launch date for service is September 2008. Estimated overall ridership is ---and--- at the Tigard station. In addition to the new Downtown rail station and new transit option available for local residents, another Commuter Rail component, the Washington Square Station,is of significance to Tigard. Washington Square Station While this station is to be located in the City of Beaverton, Commuter Rail will provide access to the Washington Square Mall within the City of Tigard.The Washington Square Station will be served by Line 76 —Beaverton/Tualatin and Line 78 —Beaverton/Lake Oswego. Line 76 is a priority for frequent service in the 2006 TriMet Transit Investment Plan. The Hall Boulevard location was selected over the earlier Scholls Ferry Road location, given its better bus and pedestrian connections to more destinations. TriMet has pledged to continue to partner with both Beaverton and Tigard to plan the station area and,in particular, to develop a safe and convenient pedestrian connection from the regional center mall, across Highway to 217 to the commuter rail station. Priority service improvements identified in the City/TriMet MOU currently are revenue dependent and are • on hold until funding can be identified. Illustrative of the current funding problem faced by Transit is that in the 12-month period ending in April, TriMet reduced system-wide hours in which buses and trains were in service by 4 per cent. As another part of the picture,in TriMet's 2007 Transit Investment Plan,Fred Hansen points out that ". . . we will not be able to expand service this year because of the continued slow down in the economy. In addition, the high cost of diesel fuel is stretching our already limited resources." The picture regarding local service improvements is as bleak as might be implied by recent events, however, in addition to Commuter Rail startup, three Tigard-specific service improvements are included in the TriMet Transit Investment Plan. Their inclusion is important because it represents an agency commitment to provide the improvements whenever the revenue picture improves and financial resources are available. The three improvements in question are as follows: 1. Frequent Service on Line 76 between Beaverton-Tigard-Tualatin,including potential routing on Hall Boulevard north of HWY 99W. This is planned to be the next Frequent Service Line. The proposed service would provide a direct connection between Tigard and the Kruse Way employment areas. Line 78 would continue to serve Greenburg Road should Line 76 be rerouted to Hall. 2. Local connections by rerouting Line 38 along Meadows and SW Bonita Road to the Tigard Transit Center and extending another line to cover SW 72nd Avenue and Sequoia Parkway. The Line 38 improvement can be implemented without increasing costs to operate the route; however, SW 72nd Avenue would lose service. Extending another line between SW 72nd Avenue and the Tigard Transit Center would increase operating costs. • Transportation Page 5-15 Draft- Tigard 2007 • • 2 . T R A N S I T MI III 3. Service to the Barrows Road area. This would require an extension of an existing Line (potentially Line 92) and a corresponding increase in operating costs. The provision of this service is tied to the proposed extension of Murray Boulevard from Scholls Ferry to Barrows Road. Significant to note is that this long-planned road project recently has transitioned to design and construction. The impetus for this transition was a City of Beaverton land use decision making the extension of Murray Boulevard a condition of approval for the Progress Quarry Regional Center development. Road funding is proposed as a public-private partnership, with ODOT contributing approximately $1 million for project design. Excavation and grading currently are underway and will be completed in November 2007. Full project completion is set for September 2008. C. BUS STOP IMPROVEMENTS The following bus stop improvements were accomplished or initiated by TriMet in 2006. 1. A bus shelter was installed on Main and Scoffins westbound. This stop accounts for an average of 383 weekly boarding rides. This and the other shelter on Main will be removed when new, streetscape designed shelters are installed. 2. TriMet is working with ODOT to receive permits to install four shelters along HWY 99W: a. HWY 99W and Royal Villa Dr.—427 weekly boarding rides b. HWY 99W and Royalty Parkway—335 weekly boarding rides c. HWY 99W and 64th—305 weekly boarding rides d. 11619 HWY 99W— 161 weekly boarding rides 1111 3. TriMet installed solar lighting in nine shelters along HWY 99W and one on Main St.: a. HWY 99W and Durham (NB)—725 weekly boarding rides b. HWY 99W and 74th—718 weekly boarding rides c. Main and HWY 99W—707 weekly boarding rides d. HWY 99W and McDonald—630 weekly boarding rides e. HWY 99W and Walnut—570 weekly boarding rides f. HWY 99W and Durham (SB)—505 weekly boarding rides g. HWY 99W and Hall—452 weekly boarding rides h. HWY 99W and 72nd (EB)—345 weekly boarding rides i. HWY 99W and 72nd (WB)—292 weekly boarding rides D. SPECIAL NEEDS TRANSIT This section addresses steps taken to address Goal 5, Accessibility, in the Tigard TSP. The term TriMet uses to address the population in needed of accessible facilities is "transportation disadvantaged." Programs operating within Tigard to meet the needs of the special needs or transportation disadvantaged group are outlined below. TriMet estimates that 17% of the people residing within its service area are transportation disadvantaged. This population includes the moderately or severely functionally handicapped and the able-bodied elderly without driver's licenses. Applying this figure to Tigard's current population gives an estimate of 4,800 local residents in need of these services. • Transportation Page 5-16 Draft-Tigard 2007 0 • 2 . TRANSIT • According to TriMet's 2007 Transit Investment Plan, the agency recognizes that mobility is an important quality-of-life issue for seniors and individuals with disabilities. Transportation provides independence, community connections, and access to life-sustaining activities. In response to the needs of the transportation disadvantaged, the agency provides accessible fixed-route service and, along with other organizations, operates special para-transit programs within Tigard along with, depending on the service, various other communities. • Fixed Route Service: All TriMet fixed route buses are ADA accessible. This means they either have a lift or a ramp. The low-floor buses have ramps and all others have lifts. Ramps are faster to deploy and easier for riders in mobility devices. Every TriMet bus has priority seating near the front for seniors and passengers with disabilities. • LIFT services are door-to-door para-transit provided by TriMet to those who, because of a disability, cannot use or access fixed route transit. Services are provided to all areas of the Tri Met service area. System-wide, some 4,000 rides are provided per day. Two week's lead time is required to schedule a ride. • The TriMet-managed Medical Transportation Program dispatches eligible rides to the lowest cost, most appropriate providers through an intergovernmental agreement with the state of Oregon. These rides may be fixed route, or on a medically needed alternative, such as LIFT bus, taxi, or ambulance depending on the needs of the individual. The costs for MTP are fully funded through the State of Oregon Medical Assistance Program. • Dial-a-Ride is a county-wide, door to door service for seniors and people with disabilities operated by the Oregon Trail Chapter of the American Red Cross. Dial-a-Ride operates in the same areas as III LIFT as well as areas beyond the LIFT boundary. It is similar in that riders must call and reserve a ride. The programs have different restrictions on how late the ride can be reserved,where they'll go, and fares. The main difference between the two programs is that Dial-a-Ride is a medical appointment program, whereas the LIFT program serves any point within the TriMet service area. Another difference is that, unlike the LIFT program, Dial-a-Ride provides same-day service, if needed. Dial-a-Ride depends on volunteers who donate their time as drivers, escorts and dispatchers. Riders must register with Red Cross through Ride Connection prior to receiving service. There is no charge for Red Cross transportation services. All donations are voluntary. Riders who receive Medicaid benefits support Red Cross transportation services through that program. The vehicles used in the program range from station wagons to mini-buses seating 12 riders. Half of the fleet accommodates clients in wheelchairs. • King City Community Shuttle is a limited fixed route shuttle operated by Ride Connection for the King City area that also offers door-to-door service for seniors with disabilities. The shuttle operates Monday through Friday from 9:00am to 4:00pm. The great majority of riders hail the shuttle as it approaches them along a circuitous route within King City. It also serves customers living in Summerfield Clubhouse Estates, an age restricted neighborhood, and three local area mobile home parks upon request. Customers can also contact the Ride Connection Service Center in advance to arrange door-to-door service. Destinations for the shuttle include King City Plaza, King City Town Hall, Crown Center, the Safeway and Albertson's grocery stores, and TriMet stops on HWY 99W. IIII Transportation Page 5-17 Draft-Tigard 2007 • • 2 . TRANSIT • Two special transit programs, both provided by TriMet, that serve low income and employer needs, respectively,include Jobs Access and Transportation Demand Management(1DM). • Jobs Access is a federally-funded program that provides on-demand service for low-income (150% of poverty level) people to workforce training sites and places of employment. TriMet administers all funds in the urban metro area for Jobs Access. Ride Connection is the service provider for the Tigard area. It provides roughly 100 (one-way) rides per month to Tigard residents. Most of these rides are to and from workforce training sites. Few commuter rides are provided. • Transportation Demand Management is another program operated by TriMet. A few years ago some 21 Tigard businesses participated in this program. Program services include carpool match, vanpool programs, pass subsidies, emergency ride home services, and encouraging employee biking and walking to work. Employee shuttles from transit centers are promoted as another strategy, but no Tigard employers use this strategy at this time. For more information on TDM, please see the Transportation Demand Management section of this chapter. Community Development Code Following the adoption of the Tigard TSP, the Tigard Community Development Code (CDC) was not revised to incorporate any of its provisions. This is because the CDC already included transit-oriented provisions with regard to Commercial Zoning Districts and Community Plan Area Standards. Additionally, subdivision developments previous to the TSP were required to provide sidewalks,which supports pedestrian access to transit stops. • K E Y F I N D I N G S • Regional Public Transportation policies and objectives inform and direct the region's planning and investment in the regional public transportation system. • The Tigard Transportation System Plan, or TSP, was adopted in 2002 and serves as a Comprehensive Plan associated document • The Tigard TSP contains eleven strategies for the implementation of future transit facilities in Tigard. • Transit service is provided to local residents by TriMet. Currently, ten fixed bus routes operate within the City. • In late 2004, the City adopted the Local Service Transit Action Plan. The plan addresses local needs for improved transit services and amenities. In 2003, as an outgrowth of this plan, Tigard became the first suburban city selected by TriMet as a target for local service and pedestrian improvements. • One of Tigard's greatest transit needs is improving transit service to the southwest portion of the City where substantial new development has occurred. Other unserved areas are Gaarde Road, McDonald Street,and Durham Road. • Washington County Commuter Rail is Tigard's top TSP priority for transit improvements. The Tigard Transit Center is one of five stations along its route. • Several programs and services operate within Tigard to meet the needs of the transportation disadvantaged. • Transportation Page 5-18 Draft- Tigard 2007 • 3 . BICYCLES • This section f o cu ses on Bicycle Transportation and three sections: overview, inventory, ke y findings. Bicycle transportation planning in Tigard is subject to compliance with the Oregon Transportation Planning Rule and the Oregon Transportation Plan (OTP, 2006), Metro Regional Transportation Plan (RTP, 2004), and the City of Tigard Transportation System Plan (TSP, 2002). Metro currently is working to update the RTP. The revised RTP, called 2035 RTP,is expected to be approved in November 2007. The Oregon Transportation Planning Rule 660-12-045 sets forth that: . . . on-site facilities shall be provided which accommodate safe and convenient pedestrian and bicycle access from within new subdivisions, multi-family developments, planned developments, shopping centers, and commercial districts to adjacent residential areas and transit stops, and to neighborhood activity centers within one-half mile of the development. . . `safe and convenient' is defined by bicycle and pedestrian routes, facilities and improvements which: a) are reasonably free from hazards, particularly types or levels of automobile traffic which would interfere with or discourage pedestrian or cycle travel for short trips; b) provide a reasonably direct route of travel between destinations such as between a transit stop and a store; and c) meet travel needs of cyclists and pedestrians considering destination and length of trip; and considering that the optimum trip length of pedestrians is generally 1/4 to 1/2 mile. It follows that`bikeways' shall be required along arterials and major collectors. • The 2004 Regional Transportation Plan sets forth regional policies pertaining to transportation. The Regional policies addressing bicycle transportation include the following. Policy 3.0 Urban Form: Facilitate implementation of the 2040 Growth Concept with specific strategies that address mobility and accessibility needs and use transportation investments to leverage the 2040 Growth Concept. Policy 6.0 Transportation and Safety Education: Improve the safety of the transportation system. Encourage bicyclists,motorists and pedestrians to share the road safely. Policy 7.0 The Natural Environment: Protect the region's natural environment Policy 9.0 Clean Air: Protect and enhance air quality so that as growth occurs, human health and visibility of the cascades and the Coast Range from within the region is maintained. Policy 10.0 Energy efficiency: Design transportation systems that promote efficient use of energy. Policy 16.0 Regional Bike System Connectivity Policy 16.1 Regional Bicycle system mode share and Accessibility Policy 19.0 Regional Transportation Demand Management: Enhance mobility and support the use of alternative transportation modes by improving regional accessibility to public transportation, carpooling, telecommuting,bicycling and walking options. • Transportation Page 5-19 Draft- Tigard 2007 • S 3 . BICYCLES SIN • The Tigard TSP contains a set of goals and policies to guide transportation system development in Tigard. The following policies relate specifically to bicycle needs: Goal 2--Balanced Transportation System Policy 3: Bicycle lanes must be constructed on all arterials and collectors within Tigard (with construction or reconstruction projects). All schools, parks, public facilities, and retail areas shall have direct access to a bikeway. Policy 5: Bicycle and pedestrian plans shall be developed which link to recreational trials. Policy 6: Local streets shall be designed to encourage a reduction in trip length by providing connectivity and limiting out-of-direction travel. Provide connectivity to activity centers and destinations with a priority for bicycle and pedestrian connections. Goal 3-- Safety Policy 3: Safe and secure pedestrian and bikeways shall be designed between parks and other activity centers in Tigard. The TSP contains ten strategies for the implementation of future bicycle facilities in Tigard. These strategies provide the City with priorities in directing its funds toward bicycle projects. 1. Fill in gaps in the network where some bikeways exist, 2. Connect key bicycle corridors to schools,parks, and activity centers (public facilities, etc.), 3. Develop bicycle network on flat routes, 4. Develop a bike sign program-focus on low volume streets, • 5. Bicycle corridors that connect to major recreational facilities, 6. Develop maintenance program to clean bike lanes, 7. Bicycle corridors that commuters might use, 8. Bicycle corridors that connect neighborhoods, 9. Construct all bikeways to City of Tigard/Washington County standards, 10. Bicycle corridors that access commercial areas. • Transportation Page 5-20 Draft- Tigard 2007 • • 3 . BICYCLES NI • I N V E N T O R Y .lica• e r es statute and plans ,. l im.ac c a the Ci ..441140,61:4F.':;;.t The TSP identifies two primary categories of bicycle xs �` � � _, ' a �3 A ��+�t p °i wl =, facilities: route facilities and parking facilities. Bicycle � � . rn ortati� r ways are categorized as bike lanes, bicycle 99 � � gran-.�� ,% accommodation, or off street bike paths/multi-use trails. •. s•aratx• a� . Bicycle lanes, areas within the street right-of-way f � � � � ;� arm`.: � ; / designated specifically for bicycle use, are the most . . A , , , common route facilities in Tigard. "Bicycle x a - �"� ' � '� s accommodation" refers to bicycles and autos sharing the Ore so ,Tran ,or albon P a -w z same travel lanes. Multi-use paths generally are off-street " � ..,'t ,'s•- ` r , ..,h " . routes shared with other non-motorized modes of transportation. Parking for bicycles is required in the Tigard Community Development Code(see Section 18.765) for new land use applications. The main bikeway issue identified in the TSP is the lack of continuity and connectivity. The lack of facilities, or gaps, cause significant problems to bicyclists in Tigard, and lack of connectivity severely limits the utility of bicycles as a safe and convenient travel mode. Map 5-3, showing existing facilities, illustrates this point. In addition to the lack of on-street bike lanes, off-street paved trails, and bicycle racks; additional obstacles to bicycle use in Tigard includes bad weather, the need to ride on high traffic streets, hostile drivers, risk of 410 injury,and the lack of shower facilities at most destinations. The Transportation Planning Rule requires that bicycle facilities be provided on all arterial and collector streets. In order to meet this requirement, the TSP specifically recommends against attempting to retrofit bike lanes on every existing arterial and collector street. According to the TSP, this would create redundant facilities, high costs, and significant right-of-way impacts. Instead, the TSP recommends an alternative design or framework of selected bicycle lanes through Tigard. This recommended framework is depicted in the Bicycle Master Plan. To implement the plan, the TSP identifies a list of 24 Bicycle Project Priorities. As of late 2006, none of these had been completed. One of the 24, Burnham Street, is scheduled for 2007 construction as part of the full reconstruction of that street. One reason for the lack of new bicycle facilities is the lack of a specific funding source for constructing new bike paths. However, recently the sidewalk set aside was renamed the Pedestrian and Bike Path set aside and increased from $100,000 to $200,000 per year. • Transportation Page 5-21 Draft- Tigard 2007 • • 3 . BICYCLES ONI • K E Y F I N D IN GS • The Metro 2004 Regional Transportation Plan identifies bicycling as an alternative mode of transportation that can alleviate regional transportation demand, improve regional air quality, and promote efficient use of energy resources. • The Oregon Transportation Planning Rule requires bikeways along arterials and major collectors. • The Tigard Transportation System Plan identifies only three streets within the City of Tigard as having continuous bikeways. • Lack of facilities, or gaps, cause significant problems for bicyclists in Tigard and severely limit the use of this mode of transportation within the City. • The TSP recommends a framework of selected bicycle lanes through the City as a practical approach to meeting the Transportation Planning Rule relating to the provision of bicycle lanes. • Of 24 Bicycle Project Priorities identified in the TSP only one, Burnham Street, is scheduled for 2007 construction. None of the remaining 23 have been completed or scheduled for construction. • Additional obstacles to bicycle use in Tigard can include bad weather, the need to ride on high traffic streets, hostile drivers, risk of injury, and the lack of shower facilities at most destinations • • Transportation Page 5-22 Draft- Tigard 2007 • • 4 . P E D E S T R I A N S • This section focuses on pedestrian transportation and includes three sections: overview, inventory, and key findings. In recent years, as population, CO' emissions, and fuel costs all have continued to rise, the need for pedestrian facilities has become increasingly more apparent. Walking is the most basic and reliable form of transportation and in neighborhoods with good pedestrian facilities, walking can account for a significant number of trips. Metro reports that in neighborhoods with good sidewalks and access to transit, for example, more than 20 percent of all travel is by walking. By way of comparison, according to the 2000 Census, 7.2% of Tigard's workforce residents travel to work by walking to their place of work or to a transit bus stop. Transportation planning in Tigard is subject to compliance with the Oregon Transportation Planning Rule and the Oregon Transportation Plan (OTP, 2006); Metro Regional Transportation Plan (RTP, 2004), and the City of Tigard Transportation System Plan (TSP, 2002). Significantly, all of these framework documents promote walking as an option for short trips. To describe this policy framework in more detail, the Oregon Transportation Planning Rule 660-12-045(3) states that"sidewalks shall be required along arterials, collectors and most local streets in urban areas, except that sidewalks are not required along controlled access roadways, such as freeways." The 2004 Regional Transportation Plan, along with establishing a goal of creating "a transportation system that makes walking safe, convenient and accessible to all" addresses the need for continuous sidewalks and safe pedestrian • crossings, sets forth a series of policies deriving from the goal. Policy 3.0: Urban Form: Facilitate implementation of the 2040 Growth Concept with specific strategies that address mobility and accessibility needs and use transportation investments to leverage the 2040 Growth Concept. Policy 6.0: Transportation and Safety Education: Improve the safety of the transportation system. Encourage bicyclists,motorists and pedestrians to share the road safely. Policy 7.0: The Natural Environment: Protect the region's natural environment. Policy 9.0 Clean Air: Protect and enhance air quality so that as growth occurs, human health and visibility of the cascades and the Coast Range from within the region is maintained. Policy 10.0: Energy efficiency:Design transportation systems that promote efficient use of energy. Policy 17.0: Regional Pedestrian System Policies: Design the pedestrian environment to be safe, direct,convenient,attractive, and accessible for all users. Policy 17.1: Regional Pedestrian Mode Share: Increase walking for short trips and improve pedestrian access to the region's public transportation system through pedestrian improvements and changes in land use patterns,designs and densities. Policy 17.2: Regional Pedestrian Access and Connectivity: Provide direct pedestrian access, appropriate to existing and planned land uses, street design classification and public transportation, as a part of all transportation projects. Policy 19.0: Regional Transportation Demand Management: Enhance mobility and support the use of alternative transportation modes by improving regional accessibility to public transportation, carpooling, telecommuting,bicycling and walking options. • Transportation Page 5-23 Draft- Tigard 2007 i • 4 . P E D E S T R I A N S • The Tigard TSP also includes a list of goals and policies intended to guide transportation system development in Tigard. The following are the policies and goals pertaining to pedestrian needs: Goal 1 -Livability Policy 2: Encourage pedestrian accessibility by providing safe, secure, and desirable pedestrian routes. Goal 2—Balanced Transportation System Policy 1: Develop and implement public street standards that recognize the multi-purpose nature of the street right-of-way for utility,pedestrian,bicycle, transit,truck and auto use. Policy 4: Sidewalks must be constructed on all streets within Tigard (with construction or reconstruction projects). All schools, parks, public facilities and retail areas shall have direct access to a sidewalk. Policy 5: Bicycle and pedestrian plans shall be developed which link to regional trails. Policy 6: Local streets shall be designed to encourage a reduction in trip length by providing connectivity and limiting out-of-direction travel. Provide connectivity to activity centers and destinations with a priority for bicycle and pedestrian connections. Goal 3—Safety Policy 3: Safe and secure pedestrian and bicycle ways shall be designed between parks and other activity centers in Tigard. Policy 4: Safe and secure routes to schools shall be designated for each school and any new residential project shall identify the safe path to school for children. The TSP also contains a list of strategies to implement the goals and policies. • 1. Fill in gaps in the network where some sidewalks exist; 2. Connect key pedestrian corridors to schools,parks,recreational uses,and activity centers; 3. Coordination of land use approval process to provide sidewalks and links to existing sidewalks; 4. Improved crossings; 5. Pedestrian corridors that connect to major recreational uses; 6. Pedestrian corridors that connect to major transit locations; 7. Pedestrian corridors that connect neighborhoods; 8. Reconstruct all existing substandard sidewalks to City of Tigard standards; 9. Pedestrian corridors that commuters might use. 1111 Transportation Page 5-24 Draft- Tigard 2007 • • 4 . P E D E S T R I A N S • I N V E N T O R Y Ap hca rules sfatutes and pla a rr;x;Carc-ft4c6,,v,,e ter' s„, a✓� „0 4,The Tigard TSP identifies sidewalk continuity and un connectivity as key local pedestrian issues. The limited 1#include " , k � � r � � number of existing sidewalks along arterial and collector roadways acts to deter pedestrian use In many older tr., •a r • �✓,F .%ryy 1 K � �'�' '9^ �/*i residential subdivisions there are significant sidewalk gaps as 1)24 ;, a p'• a nS well as poor or no street lighting. These poor pedestrian • � conditions along arterials, collectors, and older local streets "x' gori •'+rtati. •1` cause safe problems for both pedestrians and vehicles tY P P � �zx using these substandard streets. ? s'.1 a • . County fan •• *IP At the same time, pedestrian conditions in newer € • spo • '�es* subdivisions generally are much more walking-friendly. 9 � < Through the use of code provisions requiring hard surface bicycle and pedestrian connections on public easements or rights of way, Tigard's newer or post 1980-era subdivisions were all developed with sidewalks. With regard to the existing network, of which the newer subdivisions form a part, the TSP points out that, if there is a sidewalk available, there will be sufficient capacity. In other words, "it is more important that a continuous sidewalk be available than that it be of a certain size or type.” 411 Overall,the TSP identifies sidewalks on arterials and collectors and connectivity to key activity centers as the most important pedestrian needs in Tigard. It notes that the lack of safe, well lighted arterial and collector streets can act as barriers to pedestrian movement. The same is true of off-street trails. A safe and interconnected system affords the opportunity to consider the walking mode of travel, especially for trips less than one mile in length. In terms of distance, according to research on this subject,people normall y are willing to walk up to one-fourth mile to any destination. The need for a safe and interconnected system becomes more important as the City's population gradually ages over time in common with national demographic trends. This shift increases the important of walking as an alternative to driving and as a healthy outdoor recreation activity. Land use actions that promote walking include reduced commercial and multi-family parking requirements imposed by Metro, increased mixed use development occurring within the City,and code changes allowing neighborhood commercial development. A key component of the pedestrian system is an interconnected system of off-street trails. As noted in the Public Facilities Chapter of this report,Tigard's trails function as conduits between various destinations an d as recreation destinations in and of themselves. Altogether, approximately nine miles of trail have been completed within the City since its incorporation. This is substantial,but represents only a small percentage, approximately one-fourth,of the mapped trail system. In addition to an action plan, the TSP also addresses complementing land development actions,gaps in the pedestrian system, parks and trails development, safety, and coordination with Metro's regional 2040 plan. Land use actions impact the pedestrian system. The TSP highli ghts the importance of connecting new pedestrian facilities with existing facilities in as direct a manner as possible. It also emphasizes the need for • Transportation Page 5-25 Draft- Tigard 2007 • • 4 . P E D E S T R I A N S 1111 residential development to consider the route that children will use to walk to school. In order to address historic gaps in the existing pedestrian system, the TSP recommends the City consider an annual walkway fund to help infill gaps. Because the City Parks and Recreation Department and Metro Greenspaces program are responsible for the majority of off-street trail opportunities in the City, the TSP recommends the two agencies coordinate to provide an integrated off-street walking system in Tigard. In 2003, the City created a sidewalk set aside in the Capital Investment Program that annually provided $100,000 for sidewalk. Recently that set aside has been renamed the Pedestrian and Bike Path set aside and increased to $200,000 per year. Several sidewalk improvements have been completed using this and grant funding sources. In 2006 a second Metro Greenspaces bond measure was passed by the regional electorate. The bond measure's list of regional projects includes three trail corridors partially located inside Tigard. This provides a basis for local-regional cooperation regarding an integrated off-street system, as recommended by the TSP. As of 2006, the City has a GIS inventory of trails, but only a partial GIS inventory of sidewalks,as depicted in Map 5-4. K E Y F I N D I N G S • State,regional, and City policies all encourage the provision of sidewalks in order to facilitate walking as a transportation mode. • City's arterials and collectors and older neighborhoods are substandard and provide deficient 11111 pedestrian connections to services and transit. • Poor pedestrian conditions cause safety problems for both pedestrians and vehicles. • Sidewalks are required of all new development and roadway projects. • The TSP identifies sidewalks on arterials and collectors as the City's most important pedestrian need in Tigard. • In 2003, the City created a fund to infill gaps in the pedestrian system. • The 2006 Metro Greenspaces bond measure provides funds for trail improvements. • As of 2006, the City has a GIS inventory of trails, but only a partial GIS inventory of sidewalks • Transportation Page 5-26 Draft- Tigard 2007 • • 5 . M O V E M E N T O F GOODS • Goods and services are transported regionally by truck, rail, air, water and pipeline. Nationally, 78% of domestic tonnage is carried by truck, 16% by rail,and 6%by water. In terms of revenue, trucks account for 88% of revenue nationwide, rail 6%, air 5%, and water 1%. Within Tigard, goods and services are transported by truck,rail, and pipeline locally,but by water and air at the regional level. The Metro Regional Transportation Plan identifies national and international freight movement as significant contributors to the regional economy, and it is expected that freight movement will play an even larger role in the future. Metro's 2002 Commodity Flow Forecast estimates tonnage moved on the regional freight transportation system will double by 2030,with 60% of the tonnage moved by truck.The regional economy has historically, and continues to be, closely tied to the transportation and distribution sectors. Manufacturing,wholesale trade, and retail trade are the local business sectors that generate the most money in terms of shipments, sales,and receipts. The region's relative number of jobs in transportation and wholesale trade exceeds the national average; more than 60 percent of all jobs are associated with transportation-dependent businesses such as manufacturing,warehousing, and distribution. In Tigard, manufacturers employ the third highest number of employees among all business types, 2,504 people. Only one statewide goal relates to the movement of goods: section 8 of the Oregon Statewide Planning Goal #12. This subsection requires local jurisdictions "to facilitate the flow of goods and services so as to strengthen the local and regional economy." The statewide goal is replicated in the corresponding Metro • regional policy that requires member jurisdictions to "provide efficient, cost-effective and safe movement of freight in and through the region" and to "protect and enhance public and private investments in the freight network." The Tigard Transportation System Plan (TSP) Advisory Committee created a set of goals and policies to guide transportation system development in Tigard. Several of these policies pertain to the movement of goods: Goal 2: Multi-Modal Policy 1: Develop and implement public street standards that recognize the multi-purpose nature of the street right-of-way for utility,pedestrian,bicycle, transit, truck,and auto use. Goal 6: Goods Movement Policy 1: Design arterial routes, highway access and adjacent land uses in ways that facilitate the efficient movement of goods and services. Policy 2: Require safe routing of hazardous materials consistent with federal and state guidelines. 11111 Transportation Page 5-27 Draft- Tigard 2007 • • leel 5 . M O V E M E N T O F GOODS IIIII I N V E N T O R Y iA leab1e rules,`statutes`and".1`anstiat:;=,F A. TRUCKS pp > :: ;_ />::.- P,, . ' " ; mgactl e° nav A:i0:,C goods wxthW ` ,s t a -,� ,mss: �;•x%'Fr. „y,.y,-,a.�x��' �• ,,�,;�: .the:Ci nc:11 c:;:%°° `, ` ; ,.� �-; •ry g'> 5%ip`_ji.:,� s. „r/:.i,;��%'�: :. '7j:9, w,9„ �.✓�.,:,. :yl''J Principal truck routes in Tigard, as identified in the `; F =�_ - <Oq ,Mi4kO �' - Washin on County .'', .. �, gt ty TSP include Interstate 5, HWY 217, f `” °ty• `£ : 1 °lYletraz-Re ana��'ran �atzors#Plan=', . HWY 99W and some arterial streets. The local network ~` ` " "•,••�,,,, .g dam,: w� �:�� 2��,S�:ettiin;;,8�cf:,�e0,�e n=S�tateui`e� s routes serving areas within 0` . °`"` provides connections with truck route ;� � �""�� ". `�� ` � ..�� "�y` p g Pl -.{{:��..Gaal2# i'2° -�-'F� .,.=::° �r s "" -:✓ter ;,~ -n.,..'` „b?`-P y„M, and outside of Tigard, making efficient truck movement =; 3 '1" fi i 0, rtat` S rt <pjat and the delivery f raw materials, goods, services ands, "."_..�`�, �' ^- rY g � �� •_V�as�irigton�Ct�unty;,'�'fan ,�r�dtian” -: •• Zy x;.456. finished products possible. These routes generally are F' F �'F r ": P p g Y �,c�.,� .S €em,Plrin,.>. >: da+� �":!r%,�.1�sx„�M1u�, ,;.��'w'1',.f-:T:,,f,��,9F;>°.A.'.K yi 1� ".. found in and serve areas where there are concentrations of - ``" =ro,.ofs"°" 'O'`''m° " r ` 5 Ot� QHT tlrtatzvtr`P ti' .� ,,msµ.. �,�.�•.rs?�. � �•�A.;, °�r, ��; ;;�;� p' commercial and/or industrial land uses. In general, trucks ,.7;. . ,; %", g �r��.�G ,.,�`The•C1��1�6�`bxvay�.t�la � - �,. make up about 2 to 5 percent of the overall traffic at a ;z. N;, p=,:_5:.: `;;, et; .„; �.,�,t', majority of intersections in Tigard. Efficient truck movement plays a vital role in supporting Tigard's economic base. Well planned truck routes can provide for the economical movement of raw materials, finished products and services. Trucks moving from industrial areas to regional highways or traveling through Tigard are different than trucks making local deliveries. The transportation system should be planned to accommodate this goods movement need. The establishment of through truck routes provides for this efficient movement, while at the same time • maintaining neighborhood livability, public safety, and minimizing maintenance costs of the roadway system. Through-truck routes are designated to ensure that any future improvements on these roads provide for the safe and efficient movement of trucks. The Tigard Transportation System Plan indicates the objective of route designations is to ensure these routes are "truck friendly”, i.e., 12 foot travel lanes,longer access spacing, 35 foot (or larger) curb returns and pavement design that accommodates a larger share of trucks. Washington County's through-truck route designations include existing, proposed and interim through-truck routes. Truck routes in Tigard and Washington County are intended to connect to the regional freight system. The Regional Transportation System Plan identifies the following routes in the regional freight system in Tigard. All are consistent with the City transportation system map. • I-5, ORE 217, and ORE 99W Main Roadway Route • 72nd Avenue south of ORE 217 Road Connector • Hunziker Street east of Hall Boulevard Road Connector • Schools Ferry Road from east of Nimbus to ORE 217 Road Connector The Tigard Transportation System Plan, adopted in 2002, identifies key differences between the City truck plan, on the one hand, and the truck routes identified in Washington County TSP and the Metro Regional Transportation Plan,on the other.These discrepancies continue to exist and include the following: Ill Transportation Page 5-28 Draft- Tigard 2007 • • gas 5 . M O V E M E N T O F GOODS • • Hall Boulevard, south of Hunziker Street, and Durham Road, east of Hall Boulevard, are identified as truck routes in the Washington County, but not identified in the TSP. On the other hand, Hunziker Street and 72"d Avenue, south of ORE 217, are included in the TSP and Regional Freight System plan,but not the County plan. • Scholls Ferry Road west of Nimbus and east of ORE 217 to Hall Boulevard and Hall Boulevard from ORE 217 to Hunziker are identified as truck routes in the City and Washington County Plans,but are not so identified in the Metro RTP. The Tigard TSP identifies other streets in Tigard that, due to their adjacent land uses, should be converted to "truck friendly" streets. Local industrial streets, such as Tech Center Drive and Wall Street, are examples of streets where the local industrial street cross-section should apply. In the future, the TSP proposes that other streets that provide connections to the through truck routes will need to be upgraded to these standards. B. RAILROADS Railroad tracks traverse the Tigard Planning Area from its northern to its southeast boundaries. The track originates north of North Dakota Street and separates south of Bonita Road, where one track crosses the Tualatin River into Tualatin, and the other turns east into Lake Oswego/Milwaukee and Southeast Portland. North of Tigard, both tracks extend into Beaverton and Hillsboro. Currently, the tracks are operated by one • company, the Portland & Western Railroad, a sister company of Willamette & Pacific Railroad and subsidiary of Genesee&Wyoming Incorporated. C. AIR There are no airports within the Tigard Planning area.Tigard is served by two airports,both operated by the Port of Portland. The Portland International Airport is located in Northeast Portland on the Columbia River. The Portland International Airport is a major transportation and freight facility, which serves Oregon and Southwest Washington. Annually, the Portland Airport serves 13 million passengers and handles more than a quarter million tons of air cargo. Tigard also is served by the Portland-Hillsboro airport, a general aviation facility located in the central portion of the City. The airport sits on 900 acres with two runways and more than 220,000 operations annually. The Port of Portland master plan for this facility was most recently updated in September 2005. This plan indicates that there is no cargo service or plans for cargo service in the future at this facility. • Transportation Page 5-29 Draft- Tigard 2007 • • OM 5 . M O V E M E N T O F G O O D S • D. WATER The Tualatin River is located along the southern border of Tigard. It is used primarily for recreational purposes. As such there are no local policies related to this mode of transportation in Tigard. Although water is not an important means of goods transportation locally,regionally,water transportation is significant.The Port of Portland operates four main marine terminals and is the third largest export tonnage facility on the West Coast. Portland facilities handled more than 11,000,000 short tons of cargo in 2001. Top exports are wheat, soda ash, potash, and hay, while top imports are automobiles, petroleum products, steel and limestone.The Port of Portland is the second largest exporter of wheat in the United States. E. PIPELINE There are high pressure natural gas feeder lines owned and operated by Northwest Natural Gas Company along several routes in Tigard. K E Y F I N D I N G S • P Tonnage regional g e moved on the re 'onal frei ht transportation system is expected to double by the Ill year 2030. • Principal truck routes in Tigard include I-5, ORE 217, ORE 99W and some arterial Streets. • The transportation system should be planned to accommodate trucks moving from industrial areas to regional highways or traveling through Tigard. • Some discrepancies exist between the Tigard TSP proposed truck routes, and the routes proposed in the Washington County Transportation Plan and the Regional Transportation Plan. • Western& Pacific Railroad owns and operates the railroad track traversing Tigard. ■ Portland International Airport and Hillsboro Airport serve the Tigard community and both are operated by the Port of Portland. ■ Water is not a transportation mode within the City; however, goods destined for Tigard or goods exported out of Tigard may travel by water through one of the Port of Portland's four marine terminals. • Northwest Natural Gas Company owns and operates several high pressure natural gas feeder lines. • Transportation Page 5-30 Draft- Tigard 2007 . • 6 . T R A N S P O R T A T I O N DEMAND MANAGEMENT 1 III Transportation Demand Management (I'DM) is defined in the City of Tigard Transportation System Plan (TSP) as any action that removes single-occupant vehicle trips from the roadway network during peak travel demand periods, such as carpooling, walking, car sharing, and the use of transit. At first glance, it appears the goal of transportation demand management would be to relieve congestion. While TDM can reduce the number of vehicle miles traveled per capita, transportation demand management legislation resulted from increased concern for air quality. In an effort to comply with the federal Clean Air Act, the Oregon Legislature passed a law to help protect Portland-area residents from the effects of harmful emissions. The Oregon Administrative Rule 340-242 established the Employee Commute Options (ECO); the ECO program and Oregon's air quality legislation are discussed in the Air Resources Quality section of the Environmental Quality chapter. The Oregon Transportation Planning Rule covers transportation demand management based on the transportation benefits of TDM. OAR 660-012-000 states that in addition to implementing Statewide Planning Goal 12, the purpose of the Transportation Planning Division of the Department of Land Conservation and Development is to "encourage and support the availability of a variety of transportation choices for moving people that balance vehicular use with other transportation modes, including walking, bicycling and transit in order to avoid principal reliance upon any one mode of transportation." Reducing dependence on the automobile is a theme that is woven throughout the Transportation Planning Rule requirements. OAR 660-012-0020(f) requires Transportation System Plans to include a plan for transportation demand management in urban areas with a population greater than 25,000 persons. Both the Tigard Transportation System Plan and the Metro Regional Transportation Plan contain sections specifically • addressing transportation demand management. The Oregon Transportation Plan (OTP) reports that"although the number of vehicle miles traveled (VMT) per person in urban areas has remained steady since 2001 and trends towards stabilizing rates of VMT per capita appear solidly in place," the total vehicle miles traveled per capita is expected to increase approximately 1.35 percent annually over the lifetime of the plan (24 years). Currently, traffic on major roads in urban areas is growing about four times faster than the number of roadway lane-miles statewide, making transportation demand management increasingly important. Specific policies relating to Transportation Demand Management include Policy 1.2 Equity, Efficiency and Travel Choices, Strategy 1.2.1 that includes, support for transportation demand management programs. Transportation demand management is also incorporated into the Oregon Public Transportation Plan and the Oregon Highway Plan. The Metro Regional Transportation Plan (RTP) Policy 19.0 Regional Transportation Demand Management calls for Metro to "enhance mobility and support the use of alternative transportation modes by improving regional accessibility to public transportation, carpooling, telecommuting, bicycling and walking options." The eight objectives contained in this policy focus on reducing the number of single-occupant vehicle trips. As state, regional, and county policy all call for encouraging and promoting transportation demand management, the TSP calls for the City to support TDM as well. Transportation demand management is implemented at the regional level, so the Tigard TSP Task Force Goal 2, Policy 7 makes clear that the City will support transportation demand management policies implemented by Metro and the Oregon III Transportation Page 5-31 Draft- Tigard 2007 • • 6 . T R A N S P O R T A T I O N D E M A N D MANAGEMENT • Department of Environmental Quality (DEQ): Tigard will participate in vehicle trip reduction strategies developed regionally (by DEQ and Metro). The TSPs recommended plan for Tigard includes more low cost, uncontroversial measures than it does infrastructure improvements, including policies to support continued efforts by other agencies such as DEQ and Metro, and to encourage the development of mixed use districts. The City's options for encouraging residents to reduce the number of vehicle miles traveled per capita are discussed in the Air Resources Quality section of the Environmental Quality chapter. Infrastructure improvements recommended in the TSP to facilitate the implementation of transportation demand management policies include the development of high-speed communication citywide, and the construction of a park-and-ride facility. • • Transportation Page 5-32 Draft- Tigard 2007 • • 6 . T R A N S P O R T A T I O N DEMAND MANAGEMENT • I N V E N T O R Y . • . „�, I(. statutes ands.lans. L Due to the significant number of Tigard residents who � < . auo� •e � work outside of the City, transportation demand management makes more sense at the regional level that it ' � does at the local level. As an employer, the City of Tigard Cr E�� ,� a on �` �' currently offers the ECO program to all employees. The . �� City of Tigard is also a member of the Westside Transportation Alliance, an association of businesses and 4 16. public agencies in Washington County that offers fliat 00414.1t workplace services and programs that help employees fi0� commute to work by transit, carpool,vanpool,walking and �. y biking. ym � � ' The Tigard Transportation System Plan Table 10-1 lists 16 . . 91. f, ,� possible strategies for transportation demand management published by the Oregon Department of Environmental Quality. The table also gives a short description of each strategy, and the calculated potential reduction in individual vehicle trips to work. Some strategies include telecommuting, a compressed work week, transit pass subsidy, vanpools, gifts and awards for employees using alternative modes of transportation, a walking program, and company cars for business travel. Strategies discussed in the TSP are ranked in order from focusing programs on high demand districts • to providing business association support for TDM coordination. A complete prioritized list is available in Table 5-5. On one hand, the TSP reports that transportation demand management policies must go well beyond the low-cost uncontroversial TDM measures that are commonly used if transportation demand management is to have a significant impact on reducing overall number of vehicle miles traveled. The TSP suggests policies that include parking and congestion pricing, improved services for alternative modes, and other market based measures to enhance the effectiveness of transportation demand management. The TSP reports, on the other hand,that employee trip reduction programs can be effective in relieving local congestion. The regional transportation plan discusses the need to continually update and include new strategies for regional demand management. One strategy suggested for consideration in the 2007 RTP is the Location Efficient Mortgage (LEM), a mortgage product that takes into consideration the amount of money that is saved by a potential homebuyer if the house is located in a "location efficient" neighborhood. Location efficient neighborhoods are defined by Metro as pedestrian-friendly areas with easy access to public transit, shopping,employment and schools. The 2004 RTP reports that the Transportation Demand Management subcommittee is in the process of developing a three-to-five year strategic plan that clearly articulates a new vision for the Regional Travel Options (RTO) program. The Regional Travel Options program partners with public and private agencies and organizations to promote and support transportation alternatives, such as bicycling,ridesharing,walking and car sharing.The subcommittee makes recommendations to the Transportation Policy Alternatives • Transportation Page 5-33 Draft- Tigard 2007 • • 6 . T R A N S P O R T A T I O N D E M A N D M A N A G E M E N T 1111 Table 5-5:Transportation Demand Management Strategies Strategy Descnptton Potential Trip Reduction Employees perform regular work duties at home or at a work center closer to home,rather than 82-91%(Full Time) Telecommutirg commuting from home to work.This can be full time or on selected work days.This can require computer equipment to be most effective. 14-36%(1-2 day/wk) 7-9%(9 day/80 hr) Compressed Work Schedule where employees work their regular scheduled number of hours in fewer days per 16-18%(4/40) Week week(for example,a 40 hour week in 4 days or 36 hours in 3 days) 32-36%(3/36) 19-32%(full subsidy,high Transit Pass For employees who take transit to work on a regular basis,the employer pays for all or part of transit service) Subsidy the cost of a monthly transit pass. 2-3%(half subsidy,medium transit service) 8-20%(high transit service An employer that has been subsidizing parking(free parking)discontinues the subsidy and available) charges at employees for parking.An amount equivalent to the previous subsidy is then Cash Out Employee provided to each employee,who then can decide which mode of travel to use(with subsidy 5-9%(medium transit services Parking available) above the cost of a monthly transit pass,those employees would realize monetary gain for using transit). 2-4%(low transit services available) Reduced Parking Parking costs charged to employees are reduced for high occupancy vehicles(HOV)such as 1-3% carpools and vanpools. 21-34%(full subsidy of cost, Cost for HOVs Parking costs charged to employees are reduced for high occupancy vehides(HOV)such as high alt.modes) carpools and vanpools. 2-4%(half subsidy of cost,medium alt.modes) 21-34%(full subsidy of cost, Alternative Mode For employees that commute to work by modes other than driving alone,the employer provides high alt.modes) 1111 a monetary bonus to the employee.Most often,the bonus is provided monthly in the employee's Subsidy paycheck. 2-4%(half subsidy of cost,medium alt.modes) Provide services at the worksite that are frequently used by the employees of that worksite. On Site Services 1-2% Examples include cafes,restaurants,dry deaners,day care and bank machines. Bicycle Program Bicycle Program Provides support services to those employees that bicycle to work.Examples 0-10% include:safe/secure bicycle storage,shower facilities and subsidy of commute bicycle purchase. On-site Rideshare Employees who are interested in carpooling or vanpooling provide information to a Matching for HOVs transportation coordinator regarding their work hours,availability of a vehicle and place of 1-2% residence.The coordinator then matches employees who can reasonably rideshare together. 15-25%(company provided van Provide Vanpools Employees that live near each other are organized into a vanpool for their trip with fee) Provide Vanpools to work.The employer may subsidize the cost of operation and maintaining the van. Ploy Y P9 30-40%(company subsidized van) Gift/Awards for Employees are offered the opportunity to receive a gift or an award for using modes other than Alternative Mode 0-3% driving alone.Use Provide Buspools Employees that live near each other or along a specified route are organized into a buspoot for 3-11% their trip to work Walking Program Provide support services for those who walk to work.This could include buying walking shoes or 0-3% providing showers. Company Cars for Employees are allowed to use company cars for business-related travel during the day. 0-1% Business Travel Guaranteed Ride A company owned or leased vehicle or taxi fare is provided in the case of an emergency for 1-3% Home Program employees that use alternative modes. Time off with Pay far Employees are offered time off with pay as an incentive to use alternative modes(rather than Alternative Mode 1-2% Use monetary,bonus,gift or awards) Source:City of Tigard Transportation system Plan,2002 • Transportation Page 5-34 Draft- Tigard 2007 • • 6 . T R A N S P O R T A T I O N D E M A N D IINI MANAGEMENT III Committee (TPAC) and has a mission to reduce the need to drive by advocating for carpools and vanpools, transit, walking, biking and telecommuting in the region, and by developing funding and policy recommendations to TPAC to implement the RTO program. K E Y F I N D I N G S • Transportation Demand Management (TDM) is the general term used to describe any action that removes single-occupant vehicle trips from the roadway network during peak travel demand. • The ECO program and Oregon's air quality legislation are discussed in the Air Resources Quality section of the Environmental Quality chapter, as TDM resulted from air quality concerns. • OAR 660-012-000 states that in addition to implementing Statewide Planning Goal 12, the purpose of the Transportation Planning Division of the Department of Land Conservation and Development is to encourage and support the availability of a variety of transportation choices that balance vehicular use with other transportation modes. • The Oregon Transportation Plan (OTP) reports that the total vehicle miles traveled per capita is expected to increase approximately 1.35 percent annually over the lifetime of the OTP. • Currently, traffic on major roads in urban areas is growing about four times faster than the III number of roadway lane-miles statewide, making transportation demand management increasingly important in the future. • As state, regional, and county policy all call for encouraging and promoting transportation demand management,the TSP calls for the City to support TDM as well. • The TSP's recommended plan for Tigard includes more policy than it does infrastructure improvements. • The Transportation System Plan Table 10-1 lists sixteen possible strategies for transportation demand management published by the Oregon Department of Environmental Quality. • The TSP reports that transportation demand management policies must go well beyond the low-cost uncontroversial TDM measures that are commonly used if transportation demand management is to have a significant impact on reducing overall number of vehicle miles traveled. • According to the TSP, employee trip reduction programs can be effective in relieving local congestion. • The regional transportation plan discusses the need to continually update and include new strategies for regional demand management. One strategy suggested for consideration in the RTP is the Location Efficient Mortgage (LEM). • The City of Tigard is a member of the Westside Transportation Alliance, an association of businesses and public agencies in Washington County that offers workplace services and programs that help employees commute to work by transit, carpool, vanpool, walking and biking. As an employer, the City of Tigard currently offers the ECO program to all employees. • Transportation Page 5-35 Draft-Tigard 2007 S S • • • • • • •••• • • . . • . , • . • .. .• , .......... •••• • •• 1111111:1..:„.. „ ••• • • •• . •• •• •• ••• •• ...... • • .. ..... • •• ...•. • , :44-.7. .......... . . . „ kr) • • •. . . • • tr may f i a .T' � ^ G Q' ,, , s -" fix. . :"` ,.` ■ :. ' .-,. , .• Ott*:: „�'t'r)%o 2 M/% COMMISSION AUTHORITY ,. ,,-rf C 2.08.100 gives the Planning Commission 'r .lC. -- " g'e following authority: • • • Authority to make rules governing itself �I I --a_ Authorit y jto make recornrnendatiofo to crounciLl . • r4egardif9r �� `��.:�' f V°', Comprehens a Ptri.eihi,related o j `. - , 1ranoportration planning ■ , Zoning (includi ) ccc md zoning trnnp4 • , Housing ,tn1 titration --'--4.-,,,,:..:. , Solar access , Growth mgulation mr o] provioion a public Ogivit , Promotiono development a o regulation c industrial mac] economic activity 1 • • t Main Roles- �� irk Pwo l t r • - c ■ The Planning Commission hasftwo main r roles: :_,P ovi e r'ealtirttrm�' ndat�ion coac�C for- :._ _o o motive n or mIgt Ing to plla nnung b. ,nnd0 mdyam • , ilahQ quasi��aoc �0 d�W a decisio� PIEgislative Recommendations- ! ■ The Planning Commission has the k authority to make recommendations to the Council regarding amendments to Thhe,Cormporehensiue P:IFan;:and relatied # s- ,The Commani D eve opmenh Cooa tx 2,63900060% CDC _gble 1.6 3911 1 2 • S andards for Legislative Decisions- 4. • Amendments to the Comprehensive Plan must be consistent with: • Statewide Land Use Planning Goals • Any applicable statute •'®ther 121ioies of comprehens e Plarr root be ng�,, , amen•ev 3 ,„ tC • 1'Amen a menus � +DC o° consistent WIRk In° Come, piE De-spite modinnient Tor consistency° ti Planning co mistision fn`s a wide range Cori discretion Co what too recommend consider o o ky ls' ues 4' ; - -gislative Proceedings- • ■ Broad in scope • Create new or revised regulations Gemnverally, lia;rge}tr:ants:Ortarge=nul> l e~r. ®'f: eon� m acted tic ■ xam o,le-.sa CO0e Amen o men% Com oxehc°nsive P_d© Change6 3 0 • plements of Due Process- . • Opportunity to present and rebut evidence • Right to decision based on record, . ,PAPP,Pled IN aliqqqatke firidffigs, , __,_ .- :"4-11R1it:137:1'n:CP4AW'tbdr'atkt,,,,-• HEARINGS PROCEDURES ..,--- , eneral Background- il • Source - Fasano vs. Washington County 1972 -•_Rartiesx-to-qu-acsi-iiudjkalpr.Needirtg entitled ' .7e-,::Kti .6r6viedltal Agit 4rCoes- ;t--- 7i. " j StIndar3S TOTO - C c '' , 3 @onciuct of heaeng ,mcfrarg cie@idons '`i I , mcludng decision t) wkoIng 4 • • - -I uasi-Judicial Decisions- , ...,, • • The Planning Commission decides certain applications related to land division or ...., dooloprnent. CDC -;-- ,, .,--, ,.-- ''',7-A ,';0-r.=:-..,..,k' :*::',:`, .".,,.;,..",,',';',,,,,;',f7.:,'-itt,':', ' . • -''': -7- ' -,,,,,,:„.;,..,„,,H.--,..,:„11.:..:':.:- .A.'...::'! 4:-.:3:::, ".',-.7)-174ica'.-:1' •: '-' ki. / storic-'deoignnton" • , Planned deve_oomedm ,C)undludicild text End amap Emencimnt -C uasi-Judicial Proceedings- . • . Generally few parties affecting .:... small tracts of land and applying _ __.4. 1, -,,,.4117.fL:4 -4:-:..:;41,..!"•::A.„.__."-;-,.q... ,:-:,_,Tt-.-;::-.4-,7:',-..:,,;;,:y:.,:',,::_?;.:'-t- ''''' '- ..'',.'_-,::!5:' ' . .71.;t-ciOici-r•I':4'-'474*,..P .-1141:S.;:::V.• '4,-':',:'''' - .. ,, .. . L xa a oJets. °,, Con dllaondi UM 0 Suio, 0 Mgon0 Zone Chame , 5 • • -r uasi-Judicial Standards- ■ • Must decide whether the application meets t applicable standards ■ tNgist taip,prove if it _meets thas{standards k` 7 gylMoose . nditiontiff p 0 0 tp ,.-n...?-- ©mum thnt do gppkinti1on wl meet t Q ;IOpportunity to Present and ..k Rebut Evidence: r • • Every party has the right to present : and to rebut all evidence by other 4 _T4partes _ Hearing-s bo'y ma �h k _1� -0 ` t f: o re�sent ation t ■ II - . . 14Q,p4iijv,i , ..4_ (ill 6 • • Opportunity to Present and Rebut Evidence (continued): P : • To rebut: II L • must know what evidence is • have :opportunity to speak or sulYrnit�wtte ri mate�ri}ail .7--::,,,,f-,s o 'PUNIC hamin'is closed�o Si mat rla[l may o o used • without op nIng 1 , - R `AI` r portunity to Present and but Evidence (continued): • • Questions of staff which do not generate 0. new evidence are permitted after hearing closure " Mpl w�e`rarenve pregernted atc earing`�in sup°ort cIgp011atIon give--s automatic . aight too whidnaan 'o anyone who uastsI p< °m IV iti-vii , 7 • • t , ° -:r ea ri n s- L f -.. 1 II ■ A hearing is required for any legislative or quasi-judicial matter (except administrative decisions) cM Cha 'tor 18 ��9� c'®intains 'proc dura1l� _ ^.(ruLe ftr. drQmg°-fin ::t: :., - .. i egollatuive ° a tngj dm governe o by CDC ■ n6.390.060 03900060 . Qaad2adoc a0 i n oo s am Oubicd to IDC 11303SCOSO aid. 0 E L 7076 3 1. pi -Hearing Process/Order of Hearing- ■ Staff presentation • Applicant -_s Tih°ose4r rsuup�;poir�t a . — MI12-cal, , a4 k 44..E a. Those opooseo • ,4 ,,,- - MbuinnE1 bl Appi nt Qapplie-anT hns tudo, so h e-ntitlecl ap go MCI 4 8 • • -Planning Commission Role at 7* .-'T Hearing- • Ask questions • Deliberate • .. 'Make decision ;, . X44 :„ ', " _ _. E .,ini t+ruMiontto skaff! � � ♦ i , • , : . ._„ : .,;.-,.,,,,,,!.,,..;??::::-,,,,,::::,,,,:,:....,-..,---%Ft _artlik, . _,,, 41. t 74440- "i" ',:it . -yam Til, _� - .: .,.. . ,::'7.4':';-,..,71i,A.::" 'Lid,. . w 4_. C \,. pi THE RECORD • • All evidence placed k� I- ice' v. before hearings body �,? A E. Record Jis4docurnent to .%4l-i reviev kil- bent r ; ik•_ _ oefon close ©I ` .� .' . 4 11 t . a hMelngo EM o o �' _ , • an crzq uest recd - ramaM ©Min TOT 7 days 9 • • i p nce in Land Use Cases: 610.). 6.) ei Evidence is located in the record ''idle,iotfhppb; Iis of the jkind�oftievide-'nce j /� .i ich-re-ason�able Nrson� ml :� .n `"" j r� -"- con o of own banune-m? R �;_.,.; - Ev1d.enm mast o° crekda and sa o st►ania0 UNCOVER A GREAT g 'ii ' 1111Tidence in Land Use Cases ntinued): • Findings needed as to why evidence believed to be sufficient t 'If sdo�ubt re�l�ia 11�i4, f Rev.iid�eYntcei bt t�t ,i } ® ` record - :r ..� • <:, r 10 • partial Tribunal : rr�,a • Hearing body acts as judge or arbitrator • Must be free of personal interest or bias f.Y�k1.9 f .fi:yelP'4-b ,A Y 7 431 A • rden of Proof: it • Proponent has burden Greater the change, g,reater.thre- blirde;n `~ • Qpp:kAhes to5 kt SUbmptt ]o.strantk1 evi o amt that o 0 o osafl comp[l° 5 VJUn each apo ov6p criteria • 11 • • --- INN DINGS 121 4 =WW■D Decision must be supported • by findings which are in turn, based on record &Three ersgntiai-rwpiiremorpforifintirrgs97,' ArtlaanggV4Sgt bisbaZGC1 re@orcl '-'fzz;- , Tntts and not mndadons mann ,nddres‘s rdaant @riterk NA11_, It 1>OINN STATEMENT NEEDED TO SUPPORT •JCISION • The City must include in its decision a statement that explains the criteria, states the facts, and justifies the decision based ,t3-14hrefiaqts. ORS 221,.173.. . De®pfr r'efecr'b'boM Stt se@tion d tEe FKut.Gd stiGmet inni the entilre • stnt©ment ins Mnengsw 12 •r • � Statement Format: ' ■ There are many ways the required statement can be formatted � ' v �10tao ;Iicable.criterion • s rild.E o asad0[VA mde section), frobwe o bv snanois of a_f mate ■ acct Qty time f beoag)o a N ,tHowe o by a cconcciludan emrAghong how the TIcts Iemonstrat than the @rite[rflon At TG -All Is Not Lost- , ■ LUBA will uphold a decision that has inadequate findings if qtr tyhe evi ltri e;s icile tir s " '° th�at`tfrio�n has �` : been — ©It 13 • • -Address Every Standard &kid ,, Criterion- • - i • Every code standard/criterion It applicable to an application should a. be addressed with one or more i C / Iffitirribt'(b-fit#dirig- Icain atICIrresS:',Petal° , 71 ''' '' . "1.' '-'',.,.4' ...7.- '-k, = . '2. 1,.;',"&",)10 a'ii''Ona4t0 ,P:chirdi Orc 0 ItekE61"'' 111M LA an reve P g (iGthgon h no • supplogGid by ffIrdnigs gitrwsqm -How Detailed of Findings?- 111 • • Every code standard/criterion applicable to an application should be addressed with one or mor e_findings .,.,a.,,f ind.,ing,. can -,... t- ... . -a-titife-s-c,Otore th,atro. f-n-fe stainilatidiati,-',',-- -.A - .,... ...,-;.,,•.4,-,--., ,0'.;,„;,-',7';;...L....,,,„.'',-, :-:t,...4'.t;,,,, ..,=.,....:.:,;.,..:t--.4".„.1:'.1,-,::::-.-”,I.-, ,,=';''''' .!4,riterir,-,...,:..-;;,. .:;.,--,:.;.:;, ., „.. E - LUBA an rrs'yerse V g clWsl'on h not sabbc, ariozd. bY fftirkho md,d(rtatarig . _ „. gbp..kgbh conart „ 14 • • P..,,,..1, .: r -How Detailed of Findings?- • In an ideal world, every land use decision would • have a complete set of findings addressing in detail, every single possibly applicable criterion • Iin reality, that is a waste of time and paw `�UB , s ted,p te d o � d,If ppea xpechec , - *,(nom'f o r plete e`of f WO add er gimh criterion ' ... . Bn most ogcs, specific RnclOnQs aS tO dAlee u oOn IN timgcs art ct n1 ed MOB i1 AM a onroversial on to addre-stsed bv conclusory Findings in Controversial Cases- ■ • In controversial cases, the following findings should be considered: ,Fhndil,n gas ss rega�rdiiiRg ,�k , M} cre`Ibilit �o1f w jtnes�ses., r . f • f('I:�a�.N..-c�I(.�ILf(7I�• ^.; '4`.`JI I�{I�� (\�1'/(,��/p(7��(.7.��IR'(`'`..�I�I I b. ,LL LL LL U�.l LL U LL a s =It LL O V V LL q 1cf LL exerts a� � on Andy • , RneIngs addre4sing Argument ument or facts :. dogree o mrith bv the deedon° r ker •t.It , ' , • •� :i t 15 • • p dopting Findings- �` .. x • • The hearing body must formally adopt Iv findings: F *The motion rto approve or ideny;rn i refer ,, t® findlrings�th' �t ate (beang adopted f', U n Q 1Wdg Y m otlon,It to gdopt the Q ?MidMgs 4)m pared `l' stir AS ENTICeak At Pi th© he ng nt is doff ombial Ns fig o r(2 mo'ion Alle appro ino aCk r iij aki2 applieration fib' ,The from spe@ifi© the statement or gdootion ho the bettu ig ■ • pl CONDITIONS OF APPROVAL ,... ...., s ■ Conditions of approval may be ,® ,©- imposed: ;i ♦ When ;aauthor1ized_ by code- ` ` z " ' 1 appli•aton coudbe;MW - yt~ . -:. V @on o itions kitiniposecl iii ,n mum @omp_i ru AppArAbh allot , E too_ antics ggmGd tpth© @ondition 16 • S ,IlP -Drafting Conditions- • Staff will normally draft conditions • Planning Commission or City Council may add conditions in the same way that funding acre added or ar ;egde ‘41.00'. le\ 9 iming of Conditions Compliance- ' • Condition should specify when the condition must be satisfied: ♦ By,b�u i Id i�ngp�errn�ut�iss�uance yy ;M��»b}n±''siRti `�,.,. ... Id?!� �r.a .'•..',w�k a+ .a.'pt i � t�«.-. Y, By4ertlf140--ocoupa tic _ r3y iM p_gt Sapp gad - - 0n .n1 ongobng oasis o ., . 17 • • rConditions Should Be Thorough- K.a • ■ Conditions should be drafted to ensure full ongoing compliance ■ For example, if a front-facing entrance is required by code and the plans don't Show one, con ditions.�ar . geeded�as �oll{or `" — r ' "t' Amend plan=b nfe ofbu ail.7 _ `"_ pemit , G C a b 2 i ., , Construction o r toot-Wm c-r Z ■ Eg shown cQ amended plus ffajukral y o o To certificate Cf ( S k. , WiloaVin f n o GiAmEigi2 Ei1Tign@tionall !E CU QOW an ongoi ] bmitll , 1,,r -i,A` v ,, .nditions Should Ensure All Applicable :., ° _. f; iteria Are Complied With- • For every standard or criterion that is not otherwise assured of • compliance, a condition of approval should be imposed to ensure compliance • ■-1Conditions tl at assure co m pluance wih dditeruaic sdOrrds mut bey•supp ted b ev dtencemdfndtir ge tha op (race -�.� ' i" a . ition s fea;ble , . ---"�`.. .'A ' ie: h , + '7Complia conctions kMobjectively deermi W, otherwise a ngo fn 5r n o wcutl ci mgbr-o w determi e ■ compl0am2 M t al al Ta s n@gMgul9W specifi•a00t adder criterion a gyrate o a o n cff approva0 NO )1-)pro at shout o1 con raIR Cdr[Dfrc9 ECOgrOal Ccia fh2 o ode• wilt be WE nT1 Gi]6WCt10G -oJo amorchng to t 2 approved cite rAR 18 • 0 TH ICAL ISSUES h a • `` Y • Ex Parte contacts • Site visits I. a Co°niflioths of„interest, ., '' Bias , - • 1 ti g [ C 0 0 [ Ex Parte Contacts: `? -„....... ,t, opii, ■ What are they? i , ,,... - • Contacts by a party on �� } Y P tY �a fact ,ins r ss�u�elunnder .` s` v circa urns ances`'Wh�Sh dro sr u�%',; ,I�' ,. � 'Kok 4LL W V Vu V\h t�U�O OY�III l.G�} `oY� r - dm o roceedd�g -. 3,; E.a Shoup be diocouraged In - oo U 19 • • pt Parte Contacts (continued): , i ' • What should you do? Nil` • If it occurs, put it on -‘ ,.: -4rie�®rid at rie�xt meeting .'• "De--Seri o Sbst�a :o `` ,:. �;: J Announce antere-�ste ans To p;:r, rebut su o star© © ��o© ©1 • SITE VISITS .•_ ■ The site and any information gained which does not appear in record must be put in record a> ,,,c%Key is eta:arna e a td�iscltp`su�rfe p �! G1+ '7e.a}° ._ ..5 �:. 3 I . I 1■ j ' ------- iii_____„________ ________ .. 20 • • CONFLICTS OF INTEREST `A • When as public official, you have an Actual or Potential financial interest in the matter before you � L. �,-t� � ub -:ra ; 'a.. S yy . gr, tual & Potential Conflicts: • Actual is defined as one that would be to private pecuniary benefit of the public Official, relative Qr businesses wit which dffcial{is assn°cat�ed .. 1otent a de - tbudgo 21 • • IItual & Potential Conflicts ntinued}: r What should you do? • K • Must publicly announce potential and ,Tactu4l conRfljcts of interest i Rn-cased of gaugV-rrW erefrao l from " t ■ o c pang In de o ate ono © or Ong on Issue =RSONAL BIAS --. '''-'- :Exists when official prevented from • rendering a fair judgment in a matter because of an acquaintance or relationship with someone or something involved in theme~ case- :-,� .� ` • Mere even o pearnnte d o of nt IgI 4ias • you must dIsdom the Hate ofr boas aln-41:11 dy.� dik • tU? whQMer or not In your oponoo it _ . :5,-',4t: I 4 22 • • s4QPi f © G Ojy r at i. Jt�__J J1.1 JJ ', .k .. "--'�� lri 1L 6T \YJ I , 1? Introduction : • ORS 197.763 requires local governments to give detailed notice an' II® ; �certaliin pr®ceduraI µ . o �rements'a clam,i. o dt[ - it, - Q _ � M MUCH mug ✓ gaol ei g he arrI g . '- oTi- ue ris, t o oadr&s-ceo on 23 • NOTICE OF HEARING • Nature of application • Proposed use or use which could be authorized _=L�t of cr tLe�ri�a applicable-V0Prdt]On 44: • e c'? 41:4 M1 ■ 4,172 tice of Hearing (continued): ■ • Warning that failure to raise an issue precludes LUBA appeal based on that issue k ■ Gen°e�.rail �e ,p,laination of iproced4 lire f(o,r ti rrel ct rin*g taCnd present orn of iigh too reque-�st contolnaance ff nem ■ e° denm su bmitte a 24 • 0 DISTRIBUTION OF NOTICE - w ,.,,,,,,,,, • To all property owners within 100' -,' — ,:. or:Giity gzepdg,..to '500' , --„, 7© VidighbbiKOOCi'Citailizabiffl whoze ,:, r. 0 oundArlm ilnducle propernf N MANd At [Icaol 20 dm pilaf to heaFInga Orr La (Jaw oefore 1= itT two held 1 STAFF REPORT , Pa II U ' • Must be available 7 days NZ I prior to hearing ip - - 4r4"',A ='`' '''' ‘,''''flo''.?kr,,,$'4 Z.'''4'...44'' . • %.,r..•,. .•• ''. :"L : '•-i''''-?;',•4": 1''''• '7'.:-; - '' ' ,.. , • • -1-/ 25 • • TATEMENT BY CHAIR is At beginning of hearing: q I ■ Must enumerate applicable criteria r DIr irefrarticipant►s 'to ddre s to imony &'` r evidence M a o o Iti o Ile criteda v State thAt bikve t r6oft En Issue with • sufficient specificity o auuow o o(�g� ., ;: preclade-�sado ° gIto BA CONTINUANCES 0_,.,,..., 74. a • Any party can request if additional evidence in support of application is _received.after notice is given E 5";, -;,11:,-;.'-'.,-.-,..*:,-,,-..--ti ' x' -_ stir ,� -t` s^ of ,€ ik MI 26 • • LEAVING RECORD OPEN , . • • Unless continuance granted, any party can request record remain open for at least 7 days after hearing • If rieftr,rs-sue,:rarsed - Mby have to reopren;.. ..., hegrIng to-gilan crtb utter;• z°-, ,] 4,, ht ' ' blares Mil. IICOMPLIANCE • t(f... ..., • Failure to comply with .k, ORS 197.763 constitutes ., ... : ,,,,,,Iplfoeqdul'a eri-or-W.&wii P.,:i: r i 1. --resuk Iff reversal] or remand' ff .,' ,g .: - - ' error caned 0 rejudm tp , f, : ..ip,, r- petitionert nIqh . -, 27 • • : 120 DAY RULE • • Local government has 120 days from date of application to make final land use decisions ,'AppIie.i topmost" qu'as``i c co�i©a[ � QIc atolons t D oe-S Mt app_v o Co nixeh n sive Plan ■ text ©rap ngnges z os CDC text V t F a[xtnd e is ■ Ore VV�r Sif7E/ =,.V., ._ III ffect of 120 Day Rule- o o n 0 • • Applicant can seek writ of mandamus from - Circuit Court a ; l y -WiliA rt,wiR(O r d e r:applircation appeove€1 usua[I( o con o°ions) rg gpp:oant it h entitle tu dap o rova0 Crt9 pzco2rGd b refund. fees and deoosit 28 • • plAKINGS - CONSTITUTIONAL BASES • Fifth Amendment, U.S. Constitution i • Article I, Section 18 of the Oregon Constitution a 1Both require governments to !pay four • prop°eO ftey.-have taken ', < > -- O 1, , r f °C � 0I®m Qo � tlo )n AG• guIatory Takngs • EXraCtl00ns , ' — TAKINGS - IN THE LAND USE CONTEXT • • Regulatory takings _LS k ,fthhotto_,• Exactions „ ,tero",,vb . . . '�r ..4-A '-','',A.' 7,-,s1::'' • _ t ' ' - -F ; err. 1 40 C A 1 - 4 J 29 • • 14/11 µ= egulatory Takings- ■ A land use regulation that deprives the property II owner of all reasonable use of the property • Ballot Measure 37 (adopted by voters at 2004 general election) i �.r�ov�i�des that an owner-�f read propertyyrnayntsee ��u st compengation;;:_for the. , reduction it fair-r arket.value.of. .property t =' ; 6 results from ge enactment cf oust oaig-40n o ui c restrictive 11in1 ulationo The gove.rrOn body responsia Tour enacting avg MMlation hts rti ° choice • too Y.4: Pceiv 1=compeTwace aaJ catinm b AppV t GCMia OP MO S%%j o remove Co'Viail nCdx�° kind uto rr uk o r Exactions- _ , t • Requirements to dedicate property or to allow others on property is an exaction • Requirement to build improvements is an , exaction under Oregon law .S'etbMa ks height if it ya�tson , des o n''�` . ,:: 4 . = o am I 14r alationg dm wot :t_ exactio - ,:�. '', ':r . .= • 30 • Rules Governing Exactio s- (Nollan/Dolan Rules) • Government may exact property at time of land use approval • • If ex i© ujNy , '61-opibrilfbnir 11 cohnn) gnd drectly relgozd TO Eh kfAI-5ACT cl the daya[160ment on A matter of pubic • NareZt, CCOMp2hSntrIOR ET the ameolon ex€Iee 0 s the Tough paIDDOrtfOridEY stmidnrdo compQnsntion maIrrzei 414. 4, • ,f 4;;;• -.1"; ' ''.'t)1•!1„ et0' '• - •,4 . 1 31 • • ()i.5-26x_i 73_9E a(Aj\ `Q_ Z!j • • MEMORANDUM T I GARD TO: Chair Jodie Inman and Members of the Planning Commission and Members of the Vision Task Force FROM: Beth St. Amand, Senior Planner and Ron Bunch, Long-Range Planning Manager RE: Bringing Together the Tigard Comprehensive Plan and the Tigard Beyond Tomorrow Vision DATE: January 18, 2007 INTRODUCTION On January 29, 2007, the Planning Commission will hold a joint meeting with the Tigard Beyond Tomorrow Vision Task Force. This meeting provides the opportunity for both groups to discuss the transition of"Tigard Beyond Tomorrow Visioning" into the ongoing process of updating and maintaining the City's Comprehensive Plan. The City's Planning Commission has been appointed as the Comprehensive Plan Steering Committee. Bringing the two efforts together will create a synergy of vision and policy. It is intended that development of the Comprehensive Plan and its updates incorporate Tigard Beyond Tomorrow's accomplishments and carry forward the Task Force's work. The following summarizes ways this will be done. BACKGROUND / DISCUSSION The Comprehensive Plan and Tigard Beyond Tomorrow Vision - Similarities and Differences Comprehensive Planning, both the actual development of the Plan and its ongoing review, is similar to the process engaged in to develop the "Tigard Beyond Tomorrow Vision." Both involve envisioning a positive future for Tigard. Over the last 10 years, TBT has been instrumental in identifying action themes and needed projects, and focusing public support to implement them. Attachment A provides a brief history of the Task Force's successful action themes. 1 • • Comprehensive Planning and the Tigard Beyond Tomorrow Vision are complimentary to one-another. However, there are differences in how the Comprehensive Plan is used and implemented. Each jurisdiction in Oregon is required by the state to adopt a Comprehensive Plan and each Plan must comply with Statewide Planning Goals, numerous state laws and administrative rules. In addition, jurisdictions in the Portland Metropolitan region must comply with a state requirement that their Plans implement Metro's rules. Therefore when elected officials adopt Comprehensive Plan goals and policies they attain a type of legal status. Plan goals and policies are very useful in this way. They provide the lawful basis for jurisdictions to address a wide variety of issues involving land use planning; public facility plans; natural resources protections;intergovernmental agreements, etc. The Comprehensive Plan collects the City's vision,goals, policies and action measures into one, key document that provides a consistent and clear policy framework for the community, Council and staff. Other major initiatives such as the Community Investment Program and the City budget build upon the Comprehensive Plan. How the Comprehensive Plan Addresses the Major Themes and Principles of Tigard Beyond Tomorrow's Vision? Tigard Beyond Tomorrow reflects the community's collective vision and values. To honor this work and establish these important values, the Vision forms the foundation for the Comprehensive Plan. The adjacent figure demonstrates how the six major goals of Tigard Beyond Tomorrow—public safety, urban and public services, community character and quality of life, schools and education, growth and growth management, transportation and traffic— correlate directly to the seven Comprehensive Plan topics. Comp Community Growth Public Schools Transport Urban& Character and Safety ation and Public The TBT primary and topic goals Plan &Quality Growth Traffic Services will provide the foundation for Chapter of Life Manage ment Comprehensive Plan goals and 1.Citizen p p p Involvement policies. In addition, the individual 2.Natural Features strategies and actions will influence (Resources, Hazards) the action measures proposed in the 3.Environmental (21 Plan. Through a citizen-driven Quality 4.Community: Q process, the public and the Planning Economic Commission will develop the Plan Housinpment and 9 using the Vision, the current State 5.Public Facilities 0 a and Services of the City 2006 fact base and (includes Parks) public input. 6.Transportation El 7.Future Growth E 0 Citizen Involvement and and Development Opportunities for an Ongoing Role of the TBT 2 • • The Tigard Beyond Tomorrow Vision Task Force has an important role to play in the Comprehensive Plan's development. Because of this group's history and in-depth knowledge, their participation and insight is essential as the community converts the vision into the Comprehensive Plan. TBT members and other citizens will have ongoing opportunities to participate in furthering the vision and making the Comprehensive Plan useful and relevant. Completion of the Comprehensive Plan is expected in early 2008. Phases I and II have been completed,which involved background research including a citywide telephone survey and summary of the Tigard Beyond Tomorrow 10-Year Visioning process; the plan's Fact Base (State of the City 2006) is now being finalized. The remaining phases include Phase III and Phase IV: developing goals, policies and action measures, as well as determining the City's preferred approach to growth management. Both phases require active, engaged public participation to create a plan that will be supported by the community and adopted by the City Council. Participation by Vision Task Force members is an important part of this process. Involvement opportunities include the following: • Apply for vacant Planning Commission positions • Attend Open Houses to learn more about each topic and provide comments • Participate in "Interest" Groups. Focus groups that convene on specific topics to provide citizen feedback on draft goals, policies, action measures. Membership open. • Work sessions: TBT members are invited to participate with the Planning Commission at its Comprehensive Plan Policy Work Sessions. • Public hearings: Provide input at public hearings when the updated Plan is considered for adoption. • Yearly Review. After adoption the Plan will require monitoring, evaluation and update to ensure its ongoing usefulness. How are we doing? Is our community achieving our goals and applying our values? If not, then a review of the Comprehensive Plan section would be warranted to find other ways to maintain/realize the values and goals. • Newslist. Sign up for regular e-mail updates and keep posted on all events. CONCLUSION Tigard Beyond Tomorrow has been an important part of the Tigard community for the past 10 years. The Comprehensive Plan update process takes the vision one step further by formalizing these efforts as the City's goals and policies. By converting the vision into goals, policies and action measures, the vision will continue to guide the shape of the City and its daily business, but with the added impact of the Comprehensive Plan. Most importantly, the Comprehensive Plan collects the City's vision,goals, policies and action measures into one, 3 • • key document that provides a consistent and clear policy framework for the community, Council and staff. The January 29th meeting provides an opportunity for both the Vision Task Force and the Planning Commission to focus on the accomplishments of the Vision Task Force and discuss the Comprehensive Plan process. It also provides a forum for the Vision Task Force to provide its unique insight on additional issues or work items that they would like to see addressed in the Plan update. For example,Vision Task Force members at their November 30, 2006, meeting identified a number of items they thought important to address. This is included in Attachment B (Item #2). It is hoped that the Vision Task Force will continue to lend its services to the community by working with the Planning Commission and others to update the City's Comprehensive Plan. Copy: Loreen Mills,Risk Manager Liz Newton,Assistant City Manager File:kpin/planning commission/Jan 29 2007/TBT 1 07.doc 4 • • Attachment A VISION TASK FORCE ACTION THEMES 1999-2006 1999 • Develop & Adopt Washington Square Regional Plan — addressing growth, traffic and open space issues 2000 • Library Space &Increase Programming • Annex Walnut Island • Greenway, Open Space/Natural Areas and Parks 2002 • Library Building Bond Measure • Communication With Citizens — more effective • Dog Parks • Water Conservation • Youth Focus • Skate Park • Schools • Tigard Youth Advisory Council 2004 • Access to Pathways, Sidewalks, Streets and Mass Transit • Community Appearance • Better Two-Way Communication Between Citizens & City • Community Center/Gathering Place • Transportation Congestion — Focused on 99W • Park&Recreational Opportunities 2005 • Community Appearance • Better Two-Way Communication Between Citizens and City • Downtown Plan& Financing Mechanism • Community Center/Gathering Place 2006 • Downtown Redevelopment • Open Spaces and Park Land • Transportation and Traffic — Focused on new financing options and 99W issues • • Attachment B VISION TASK FORCE MEETING NOTES-NOVEMBER 30,2006 1. Vision Themes and Accomplishments Liz Newton & Loreen Mills shared highlights of the last 10 years of"visioning" accomplishments and the "themes" or the energy focus for several years with the Vision Task Force. (See attached lists) 2. Task Force Desired Results Vision Task Force Members shared their thoughts about those areas that they did not accomplish as much as they would have liked. Those were: • Public safety • Sidewalks and streets connectivity and safety • Street lighting—99W and others • Blinking yellow turn lights—do more of this (e.g., at the Tigard Library) • Graffiti cleanup—program attention and funding needed • City communication—how do you know who the "right person"is to get things done • Downtown issues - attract folks to the area, get them out of their cars & hold downtown events often • Community Center Building—create a gathering area for the community 3. Change For Next 10 Years of Tigard Visioning Liz and Loreen shared that the Vision Task Force had been the "keeper" of the community vision for the last 10 years and the accomplishments show the effectiveness of visioning efforts. As with all processes, from time to time it is important to consider new ways to bring attention to the community-wide vision. 2006 marked the beginning of the City's Comprehensive Plan Update. The Comp Plan is a guide for Tigard's planning, actions and investments for the next several years. This process must also reflect the community's values and vision as well as action plans to guide the City Council in decisions about community livability, land use,provision of public facilities and services. With this change in the process, the Vision Task Force won't have to be the "keeper" of the citywide vision anymore; that task will go to the Planning Commission. Ron Bunch &Beth St. Amand presented information focusing on (see attached presentation): • the Comp Plan Update process • how the City has changed since the last Comp Plan Update in 1983 • using the Vision Task Force's work, vision and values as foundation for the updated process • results of the 2006 Community Attitudes Survey; and • how once the Vision Task Force is disbanded, members can continue to have an impact on the vision process 4. Meeting with Planning Commission to be determined in January/February for Vision Task Force to share their vision insights and challenges with the Commission as they take over the "keeper of the vision" role for the City. Loreen\I:\LRPLN\Planning Commission\Jan 29 2007\TBT 1 07 Attachment B.doc • • • MEMORANDUM T I GARD TO: Planning Commission FROM: Duane Roberts,Associate Planner RE: Compehensive Plan Revisons DATE: January 17, 2007 The Parks and Open Space topic report was reviewed and discussed by Planning Commission at its November 6th meeting. This memo deals with the comments and suggestions received at the meeting and how each has been addressed in a revised report. Within the topic report, additions are highlighted in yellow. Planning Commission Comments Mention parks located outside the boundaries of the Ciy that provide recreational opportunities for Tigard residents. Information has been added on the three parks located along the City's border. The three include Greenway, Durham, and Community Parks. Discuss partnerships with the school and water district as a way to meet park needs. Two paragraphs dealing with partnerships and joint use have been added to the report. A 2.3-acre propery located behind Clearview and below Hillshire was required to be dedicated to the City as open space, but was never transferred to the City. According to the Final Order approving the subdivision within which the parcel in question is located, the developer was given the option of dedicating the land to the City or to the homeowners. The developer elected to fulfill this condition by dedicating the parcel to the homeowners association, rather than the City. • 1 . Parks , Recreation , Trails and Open Space O V E R V I E W The City of Tigard provides park services consisting of parks, trails, and open space to the area within the City limits. These public lands and facilities are highly appreciated by Tigard's residents and are major quality of life amenities. They become especially important as the City begins to approach full development. The Tigard park system includes 169 acres of City parkland and 182 acres of greenway and other preservation-oriented sites. These figures equate to 3.7 acres of developed area and 4.0 acres of natural area per thousand residents. Most of this park and greenway land is located within the floodplain. In addition to parks and open spaces,Tigard has developed a successful trail program, consisting of 9 miles of completed trails. These trails provide both recreation opportunities and transportation links throughout the community. A major source of parkland acquisition and development funds has come from the park System Development Charge (SDC) on new development, first imposed in 1977. The City does not operate a recreation program and is not served by a special park and recreation district. The Tigard Park System Master Plan covers the city proper and the unincorporated Urban Services Area. The plan includes a detailed action element intended to provide operational guidance to the development of the Tigard system. Subsequent to the master plan's adoption in 1999, the City added 19.3 acres of parkland and 24.1 acres of greenway. Because of population increases during the same period, the City's existing level of service to 2006 held steady at 7.7 acres per thousand population. In 2005, the City adopted a new park SDC methodology based on a parks capacity program that addresses selected needs identified in the park system master plan and in the 2004 Bull Mountain Annexation White Paper on Parks and Open Space. As discussed later, the new SDC study established a much higher or capacity increasing level of service as the City's operational standard. This topic consists of several sections: a) Inventory, b) Parklands, c) Other Parks and Open Space and Recreation Facilities, d) Trails, e) Recreational Programs, f) Parks Maintenance,g) Funding, h) City Park Development Initiatives,i) Summary of Major Issues, and j) Key Findings. Public Facilities&Services 1 • 1 . Parks and Open Space I N V E N T O R Y PARKLANDS (See Map 1-4"Parks & Open Spaces") Parklands in Tigard are classified in the Park System Master Plan as follows: Parklands: Pocket Parks (Size range: 2,500 square feet to 3 acres): Pocket parks provide recreation opportunities for residents in areas not adequately served by neighborhood parks, such as town centers or areas of high density development. Pocket parks may include passive or low intensity activities, such as children's play areas, pathways, multi-use paved areas, public art, small scale sports facilities, seating,picnic areas, community gardens, multi-purpose performance space, and landscaping. Neighborhood Parks (Size range: 4 to 14 acres): Neighborhood parks are the foundation of the parks and recreation system, providing accessible recreation and social opportunities to nearby residents. When developed to meet neighborhood recreation needs, school sites may serve as neighborhood parks. Neighborhood Parks should include both passive and active recreation opportunities, such as children's play areas,informal sports areas, picnic facilities, public art, open turf areas, landscaping, community gardens, and pathways. Security lighting may be provided if needed. Community Parks (Size range: Greater than 15 acres): Community parks provide a variety of active and passive recreational opportunities for all age groups. These parks are generally larger in size and serve a wider base of residents than neighborhood parks. Community parks often include developed facilities for organized group activity as well as facilities for individual and family activities. In addition to those amenities provided at neighborhood parks, community parks may include sports facilities for team play,group picnic areas, skateboard and rollerblade facilities, natural areas, botanical gardens, amphitheaters, festival space, swimming pools,interpretive facilities, and community centers. Higher quality children's play areas may be provided to create a family play destination. Linear Parks (Of adequate size to protect natural resources and accommodate intended uses): Linear parks may be developed along built or natural corridors to provide opportunities for trail-oriented outdoor recreation. Linear parks may also provide some active and passive recreation facilities to meet neighborhood needs, especially in areas not adequately served by traditional neighborhood parks. Linear parks connect residences to major community destinations. Linear parks can include paved or soft-surface trails to accommodate jogging, biking,walking, skateboarding, dog walking, horseback riding, canoeing or rollerblading. Active and passive recreation facilities may include small-scale sports facilities, such as basketball hoops, public art, picnic tables, lighting, community gardens, and landscaping. Natural Areas: Greenspace/Greenways (Size should be adequate to protect the resource): A.greenspace or greenway is an area of natural quality that protects valuable natural resources and provides wildlife habitat. It also provides opportunities for nature-related outdoor recreation, such as viewing and studying nature and participating in trail activities. Development features that support outdoor recreation and trail-oriented recreation, such as trails, picnic areas,benches,interpretive signs, and native landscaping, Public Facilities&Services 2 may be provided. Trail amenitisuch as small scale parking,portable res ooms, bike racks, and trash enclosures, may be included. Trails and Connectors These are public access routes for commuting and trail-oriented recreational activities, including sidewalks, bikeways, multi-use trails, and paths. Width of the trail and right-of-way depends on its intended use and location. A variety of pathway types are needed to accommodate activities such as walking,running, biking, dog walking,rollerblading, skateboarding, and horseback riding. Trails can be located within parks, within linear parks and greenways, or be designed as a part of the citywide transportation system. Waterways can provide trail-like facilities for boating and canoeing. Each type of trail should be designed to safely accommodate users, and meet recognized design standards. Table 1- Parks Inventory, City of Tigard Classification Size Pocket Parks 2,500 square feet to 3 acres Liberty 0.75 Main Street 0.25 Windmill 0.15 Total Neighborhood Parks 4 to 14 acres Bonita 5.57 Jack 5.50 Northview 3.45 Woodard 10.06 Community Parks Greater than 15 acres Cook 79.05 Summerlake 23.80 Linear Parks No size range Commercial 0.75 Englewood 14.97 Fanno Creek 31.50 Natural Areas No size range Greenspace/Greenway 182 Park Needs The Tigard Park System Master Plan identifies 21 underserved neighborhoods inside the City. To meet the park needs of these areas, the plan identifies the need for the creation, renovation, or expansion of 2 pocket parks, 10 lineal parks, 8 neighborhood parks, and 4 community parks. Subsequent to the master plan's adoption, the development of 1 pocket park currently is underway (along Bull Mt Road), 3 neighborhood parks (Northview,Bonita,Woodard) have been completed or expanded, and 2 community parks have been expanded and/or renovated (Cook, Summerlake). This gives a revised estimated need for 1 pocket park, 10 lineal parks, 5 neighborhood parks, and 2 community parks. Although not taken into account or recognized in the parks master plan, 3 of the neighborhoods identified as park deficient are served by school playgrounds, each of which includes some neighborhood-level park facilities, such as playfields and play equipment, but no picnic facilities or natural areas. Among park deficient neighborhoods, clearly a neighborhood with a school playground is better off than a neighborhood with no playground. Public Facilities&Services 3 As of 2007, based on residentiakelopment within a half mile radius of public park or usable open space, the level of park facilities and development varies widely. The area most served by existing City parks and school playgrounds is northwest Tigard,which includes three parks and two school sites, all within close proximity to each other. Other highly served areas are central Tigard and south Tigard around Cook Park and Tigard High School. The area where neighborhood parks needs are greatest is the summit and south slope of the incorporated Bull Mountain area. Other underserved areas are southwest Tigard and the north Triangle and northeast Metzger areas. As the city approaches buildout, the biggest challenges facing the park system are meeting existing park deficiencies and the park and open space needs generated by new development. Significantly, a 1996 survey and evaluation of vacant areas within the City to meet park and open space needs excluded sites smaller than five acres. This was because of the high maintenance costs associated with them and because of the then-current and still existing City policy against the acquisition of small sites. Today,with vacant land acreage diminishing and land costs rising (residential land values increase by 37%in 2006 alone), smaller sites within neighborhoods are attracting renewed attention. An example of this new focus on smaller sites includes the City's 2006 acquisition of a 2.7-acre site on Bull Mountain for a combined neighborhood park and underground reservoir. Another example from 2006 is the City's acceptance,in lieu of park SDC fees, of two small open spaces within the recently approved Dakota Glen subdivision located on North Dakota Street. A third example is the City's current pursuit of a 1.2-acre site located in an east Tigard neighborhood. In addition to the limited supply and high cost of land, the rationale for the City's new approach to parkland acquisition and development is that small sites within neighborhoods provide close-by recreation opportunities and visual amenities for neighborhood residents and improve the livability of neighborhoods. Small parks also can contribute to neighborhood identity. As another approach to dealing with the problem of inadequate land supplies, the Tigard Park System Master Plan recommends the City pursue joint use agreements with the Tigard-Tualatin School District, Tigard Water District, and other partners to share the cost of land acquisition, facility development, and maintenance. As stated in the parks master plan: Tigard is struggling to maintain its quality of life as the City and the area around it continues to become more densely populated. Vacant land is scarce . . . It will not be possible to meet the community's need for park facilities solely through land acquisition. Emphasis should be placed on alternative methods, such as: developing joint use agreements to develop park facilities on existing publicly-owned land. Partnerships between the City and school district should be on the agenda. In addition, the City . . . should initiate joint use agreements with [Clean Water Services] to ensure effective use of available resources. Non-City-Owned Recreation Facilities In addition to City-owned lands and facilities, many non-City-owned lands and facilities serve the park and leisure needs of Tigard residents. These include a variety of public and private open spaces located inside or proximate to the City. Those bordering the City include Metzger, Durham,Tualatin Community, and Greenway Parks. • Local schools provide many of the same recreation and leisure opportunities found in neighborhood and community parks. Altogether, the Tigard-Tualatin School District's current inventory of public open space in Tigard includes approximately 109 acres. Residents have access to facilities at six elementary schools, two middle schools, one high school, and three other school district sites. A caveat is that the school district has not had adequate funds to maintain its fields for Public Facilities&Services 4 public use. Additionally, ecause of the fewer recreation amenities they provide, no local school is identified in the Park System Master Plan as meeting neighborhood recreation needs. • The Wetlands Conservancy owns and manages two wetland properties within the City. These include the 3.5-acre "Hart Wetland",located near Jack Park, and the 1.9 acre "Knez Preserve", located near HWY 217, between Hunziker Road and Park 217 Business Park. This latter site is one of the few known tufted hairgrass prairies in the Portland Metropolitan area, a plant community in great decline in the Willamette Valley. • The John Tigard House, built in 1880 on Canterbury Lane, is one of two Tigard sites listed on the National Historical Register. It is significant in its association with the son of Tigard's namesake and as an example of early frame construction. It is owned by the Tigard Historical Association and is open to the public the third Sunday of every month. The land is leased from the Tigard Water District and is the site of the original donation land claim. • Metro owns approximately 27 acres of parkland within Tigard, consisting of two larger and several smaller sites. The land was acquired through an open space and parks bond measure approved by the region's voters in 1995 that enabled acquisitions of natural areas and related lands in the metropolitan area. In 1998 and 2000,Tigard entered into intergovernmental agreements (IGAs) with Metro for City management of Metro-purchased greenspace properties located inside the City. The IGAs obligate the City to manage the properties as natural areas. Before the properties can be opened for formal public use, the City is required to develop site-specific management plans with public involvement. The plans,which are subject to Metro Council approval, are required to set forth the types and levels of public use, the location of trail and other improvements, and specific management and maintenance standards. The City has developed such a plan for one Metro-owned property to date. • Metzger Park is a 7-acre park located in unincorporated Metzger at the corner of Hall and Hemlock. The park,which includes an indoor rental facility, is maintained by Washington County Facilities Management. The existing park was improved in the mid-1970s through the formation of a local improvement and maintenance district • Greenway Park is a mile-long lineal park located in Beaverton immediately upstream of Tigard's Englewood Park and continuing to Hall Boulevard. Like Englewood, Greenway Park is located along the Beaverton portion of the Fanno Creek Trail and provides opportunities for trail-oriented active and passive outdoor recreation. In addition to the trail,which includes two large loops along its route, park improvements include play structures, basketball courts, and open playfields. • The Tualatin River Pedestrian Bridge, scheduled for completion in 2007, spans the Tualatin River between the cities of Tualatin and Durham. The 250-foot long, 12-foot wide bridge is part of a three-city strategy to construct a pedestrian bridge over the Tualatin River that will interconnect the trail systems and major parks of the adjoining cities of Tigard,Tualatin, and Durham. Tigard contributed some half a million dollars toward the 51.6 million cost of the bridge. In 2006, the City completed a trail extending from Cook Park that will serve as a connecting approach to the bridge for Tigard residents. • The new bridge and trail will provide pedestrian access to the large-acre Durham and Tualatin Community Parks, both of which border the Tualatin River. The some 55-acre Durham Park primarily is a natural area with few facilities. The 27-acre Tualatin Community Park includes both natural areas and facilities. Notable among the later are an award-winning skate park, tennis and basketball courts, and three sports fields. • In 2006, some 16 years after it was first conceived and 13 years after its official establishment by the federal government, the Tualatin River National Wildlife Refuge took its place among the most important publicly accessible natural areas in metropolitan Portland. June 2006 marked the completion of the first phase of visitor use facilities and the Refuge's official opening to the public. Located west of Tigard along both sides of the Tualatin River, the Tualatin River National Wildlife Refuge is notable as one of only ten urban refuges in the National Wildlife Refuge System. The first Public Facilities&Services 5 land acquisition for the efuge occurred in 1992. Today, 1,580 acres• of an eventual 3,060 acre Refuge are in public ownership and managed by the US Fish and Wildlife Service. The Refuge consists of floodplain and wetland habitats. Each year, thousands of migrating waterfowl use these habits. Threatened and sensitive species that frequent the Refuge include peregrine falcon, bald eagle,western pond turtle, dusky Canada goose, northern red-legged frog, and winter steelhead. The Tualatin River National Wildlife Refuge is important to the Tigard community because it enhances the quality of life for Tigard-area residents. The western portion of the refuge is located opposite Beef Bend Road and has natural drainage linkages to the Bull Mountain area. As a wild place, the refuge will preserve precious habitat and open space along the western edge of the Tigard urban area. The refuge also provides a range of close-to-home recreational, educational,and volunteer opportunities for Tigard-area residents. In future, Refuge-related recreational activities could include pedestrian and bicycle linkages between the Refuge and the proposed Westside Trail. The refuge also will economically benefit the City. Many Refuge visitors who live outside the city will spend their recreational money in the local economy. TRAILS Completed sections of the Tigard trail network have become a prominent attraction for community residents. These trails are not only very popular recreational amenities by themselves, but also serve a significant number of transportation oriented trips, i.e., commuting, shopping, etc. Tigard's trails function as conduits between various destinations and as recreation destinations in and of themselves Unlike many other park providers, the City does not have a plan or document that specifically deals with trail locations and development within the community. The main planning document focusing on trails is the Tigard Park System Master Plan. A shortcoming of the master plan's treatment of trails is that it is limited to a half page of text, plus the depiction of an interconnected network of four trails in the Parks Master Plan Map. The four trails identified in the parks master plan include the Fanno Creek,Pathfinder-Genesis, Summer Creek, Krueger Creek, and Tualatin River Trails. In 2001, the Washington Square Master Plan identified a loop trail around the Washington Square area linking at both ends to separate points of the Fanno Creek Trail. The Washington Square Loop Trail later was incorporated into the Metro Regional Trails Map. The lower or southern portion of this trail is located within Tigard. These five official trails in the City trail system are intended to be multi-model and shared use, serving walkers and bicyclists. Tigard's official trails are in various stages of completion. The Tualatin River and Fanno Creek Trails,identified in the 1984 Comprehensive Plan as the "backbone" of the City's trail system, are approximately 85% and 60% completed, respectively. At the other end of the scale, the Powerline Trail on Bull Mountain exists only as a line on the City trail map,with no sections designed or installed. Although only recently defined as a City-recognized trail, a segment of the Washington Square Loop Trail (HWY 217-Hall Boulevard) is programmed for 2008 construction. Altogether, approximately nine miles of trail have been completed within the City since its incorporation. Returning to the subject of a trail system master plan, or, more specifically, the need to create a plan and schedule o actions to address the City's long range trail needs, examples of questions typically addressed in a trail master plan are: • What are the gaps in the trail system and the steps necessary to close them? • What are the long range improvements desired for each trail? • What is the appropriate surface for the trail system? • Does the trail system need trail heads and where should they be located? What facilities should they include? Public Facilities&Services 6 Examples of potential Tigard-sp ific trail questions include: • • No segments of the Summer or Krueger Creek trails have been completed or scheduled for construction. These are examples of trails "on paper" only. [A qualification in the case of the Summer Creek Trail is that the City has completed trail sections internal to Summer Creek Park.] Is the installation of all or portions of these trails feasible in terms of the physical and other constraints associated with each corridor? Do community and stakeholder groups support the installation of all or portions of these trails? • What options are available for the Bonita Road/Durham Road segment of the Fanno Creek Trail? This segment includes multiple owners and developments located, in the case of some properties,within 25-feet and closer to the top of bank? Cooperative efforts by Metro over a four-year period to acquire right-of-way for a continuous streamside trail within this portion of the trail corridor have achieved limited success. • Can the Durham Road/Tigard City limits segment of the trail realistically be accomplished, given this corridor's extreme physical constrains,i.e., elevated rail bed, sewerage plant development, meandering creek and deep gullies.? The question regarding this particular problem segment, or"trouble bubble",is timely because the City of Durham has budgeted (its 2006 local share Greenspaces Bond Measure) funds to complete the inter-connecting Durham portion of this segment. • The Pathfinder/Genesis trail consists of paved and unpaved sections. Many of the paved sections are in poor condition. The same is even truer of the unpaved sections,which generally are narrow and overgrown and not ADA accessible. What upgrades are appropriate for this trail given the corridor's high natural resource value? • Is it possible to complete the inter-connection of the existing SW 85th Avenue,Tualatin River,and City of Durham Trails to create a loop trail within the south Tigard-Durham area? Some three- fourths of this proposed loop currently is in place. Difficulties to closing the missing link include an elevated rail corridor, extensive wetlands, and needed right-of-way owned by other public entities. • Does Commuter Rail,which includes the construction of an unpaved service road along much the rail corridor, provide an opportunity for an integrated trail-with-rail project or series of projects? • The 2006 Tigard Downtown Implementation Strategy advances the concept of a rail-to-trail project generally located between Tiedeman and Main. According to the strategy, "The railroad right-of- way on the north side of Tigard Street will be abandoned in conjunction with the Commuter Rail Project, providing a 35-foot ROW for a potential trail corridor." How should this trail, together with the remaining unused land within the corridor, be designed to be consistent with the design ideas contained in the Tigard Downtown Improvement Plan? • Are there other trail possibilities in the community,besides the five trials identified in the Park System and Washington Square Master Plans and those mention above? State,regional, and adjacent community trail plans and documents form the framework for the planning and implementation of the Tigard trails system. The next section will focus on this larger context. Oregon Trails Plan In 2005, the State adopted Oregon Trails 2005-2014:A Statewide Action Plan. This plan, consisting of goals, objectives, and strategies,is the state's official plan for recreational trail management for the ten year period to 2014. It serves as a state-wide and regional information and planning tool to assist Oregon recreation providers in providing trail opportunities and promoting access to Oregon's trails and waterways. The following are the top three regional trails issues identified within the Northwest Trails Planning Region, defined as including Washington County and thirteen other counties: A. Need for trail connectivity within the region providing access from urban to rural trails, connections between public facilities, parks and open space, and connections from state and regional trails to community trails. B. Need for additional non-motorized trails (for all user types)—especially in close proximity to where people live. Public Facilities&Services 7 C. Need for additional fun g for non-motorized trail acquisition an development. For all intents and purposes, these state-identified issues are consistent with Tigard local and Metro regional trail issues and priorities. Regional Trail System In 1992, Metro established a regional network of interconnected trails and corridors in the Greenspaces Master Plan. Existing trails planned and developed in the region were the foundation for the proposed regional system. The regional trails are intended to provide access to most communities within the metropolitan area and selected connection points to adjacent counties. As with the Tigard trail plan, the regional trail plan has not been fully implemented and there remain many uncompleted sections. The Tigard trail system is part of this larger,interconnected regional trail network and includes portions of four regional trails. The four are the Fanno Creek,West Side (or Powerline), and Tualatin River Regional Trails, plus the Washington Square Loop Trail. The Fanno Creek Regional Trail extends from Willamette Park in Portland to the Tualatin River pedestrian bridge. The West Side Trial is another major north-south connector and extends from Forest Park to the Tualatin River under the BPA powerline. The Tualatin River Regional Trail is designated as a water-based trail. Water-based trails are on rivers that are navigable by small craft. These trails provide water-based recreational opportunities, offering connections that might not be feasible on land-based trails. They include trail-like facilities for boating and canoeing. SW Trails Group The SW Trails Group, a standing committee of the SW Neighborhoods of Portland, developed a SW Urban Trails Plan that was adopted by the Portland City Council in 2000. The plan proposes five east-west and two north-south trails. Trail 3, the Willamette River to Fanno Creek Greenway Trail connects with the Fanno Creek Trail in Garden Home. Trail 5, which also begins at the Willamette River, approaches the Washington County line at Dickinson Street. The SW Trails Group has requested that this trail connect to the Regional trail circling Washington Square, specifically at Metzger Park. SW Trails has identified an on- and off-street tentative route proposed to be considered for the Tigard trail plan. It generally follows easily walked streets to get SW Portland area walkers to Metzger Park and the Washington Square Loop Trail. Tigard Neighborhood Trail System In addition to the official, City-wide trail network, another important opportunity for trail connections within the community are neighborhood trails. These trails are the most difficult type of trail to identify, monitor, and preserve. They primarily are informal, soft surface trails,which appear on public and private property throughout the City. Neighborhood trails can connect neighborhoods to the City trail network or provide recreational opportunities separate from the City system. The 2002 Tigard Transportation System Plan, or TSP, contains a set of goals and policies to guide transportation system development in Tigard. Several of these policies pertain specifically to neighborhood pedestrian needs. For instance, Goal 2, Policy 5 states that bicycle and pedestrian plans shall be developed to link to recreational trails. Strategy 7, "Pedestrian Corridors that Connect Neighborhoods," puts priority on linking neighborhoods together with pedestrian facilities. This is described as including walkways at the end of cul-de-sacs and direct connections between neighborhoods to avoid "walled" communities. In the case of new development, through the use of code provision requiring hard surface bicycle and pedestrian connections on public easements or rights of way every 330 feet, City development staff have been fully implementing the TSP provisions regarding block links and pedestrian connectivity. Impact studies are used to provide for future trails by requiring dedication of easements through plats that are on trail routes proposed in the park plan. Public Facilities&Services 8 The City has been less proactiveTn addressing gaps in the pedestrian system• within older neighborhoods. Many of the subdivisions developed in Tigard in the sixties and seventies did not provide sidewalks or pedestrian connections between neighborhoods. These historic gaps in the pedestrian walking system become more important as land development and activity grow, creating increased demands for an integrated pedestrian system. Suggestions for filling in these missing links include conducting an inventory of potential hard and soft surface trail connections within neighborhoods. The City could accomplish this by working with various trail user and neighborhood groups to identify existing neighborhood trails. These same groups could be asked to make suggestions for projects that would help create better linkages into and within neighborhoods. A number of site-specific needs already have been identified and catalogued in the Metzger area by the Tigard-Bull Mountain Trails Friends group. The City's newly established sidewalk in-fill program provides $100,000 annually for sidewalk improvements. This program, combined with a neighborhood trail program,which includes benefits to property owners who would allow public use of some portion of their property for trail purposes, could provide the additional connections needed to form a truly integrated system for non-motorized circulation throughout the City. The Lake Oswego Neighborhood Pathway Program,which began in 2002 and involves a number of different groups within the community,potentially could provide a model for a Tigard neighborhood program. Willing Seller Policy In the past, the City has followed a de facto or unofficial policy of not condemning land for trail right-of- way. This unofficial policy has led to significant gaps in the trail system. In particular, the City has reached the point of progress where in-filling gaps in the Fanno Creek trail cannot be achieved because of unwilling sellers. Most of the Fanno Creek properties in question are industrially-zoned. In a riparian corridor that is reaching build-out, the City has few choices about where to look for trail development. RECREATION As noted, the City does not operate a recreation program and is not served by a special park and recreation district. In consequence of this,residents, especially adults, have limited opportunities to participate in recreation programs. Opportunities that are available to City residents include the following. • The School District sponsors organized sports for school-aged residents. • Tigard Youth Association, a non-profit organization, sponsors youth programs including Drug Abuse Resistance Education (DARE) for 4th and 5th grade students, Gang Resistance Education and Training (GREAT) for 7th grade students,Peer Court, Kids Day/Bicycle Rodeo, and two-week summer camps. The association also offers scholarships for youth participation in sports programs sponsored by the school district. • The Twality and Fowler Middle Schools operate after-school programs that include activities of interest to their particular group of students. In the past, these have included sports, hip-hop dance, crochet, and robotics. The Tigard-area Police Activities League, or PAL, also operates weekday after-school programs at the same two Tigard middle schools. PAL is a non-profit organization that provides educational and recreational programs to youth of the Tigard Area. PAL strives to connect law enforcement and youth in a positive way. Members may take advantage of a wide range of educational, athletic, and arts and crafts programs. Activities also include a learning or homework help center. The local PAL is operated independently with support and direction from the Tigard Police. Participants are provided transportation home at the end of day; Public Facilities&Services 9 • Youth sports leagues o erating in Tigard include: Tigard Basketball Association, Tigard Junior Baseball, Tigard Little League,Tigard-Tualatin Babe Ruth,Tigard Youth Football, and Southside Soccer Club. Atfalati, a non-profit group,was organized in the late 1990's to support these team sports. • A few adult soccer and other sports leagues use City-owned playfields. None of these are Tigard- based groups,but some presumably include Tigard-area residents among their team members. • The Tigard Swim Center, owned and operated by the School District and located on the Tigard High School campus, offers early morning, noon, and evening adult lap swim times, as well as adult water exercise classes, normally four per quarter. Tigard residents,including those located within the Beaverton School District, are not included in the Tualatin Hills Park& Recreation District,but may elect to pay out-of-district fees to participate in its programs and use its facilities. In-district residents receive first priority when registering for classes or programs. Out-of-district registration or use is subject to available capacity. In 2000, a ballot measure sponsored by a non-profit group to form a recreation district (the Atfalati Recreation District) within the area served by the Tigard-Tualatin School District was defeated at the polls. In 2006, the Park and Recreation Advisory Board adopted as two of its goals the establishment of a small City recreation program in FY 2007-2008•and consideration of recommending a local tax levy election to be conducted in November 2008 to provide funds to begin a comprehensive recreation program in Tigard. Private Environmental and Special Purpose Groups In addition to the above-named organizations that provide youth-oriented sports and recreation activities, several other groups based in or near Tigard offer a range of recreation-related educational and volunteer opportunities for local residents of all ages. Three of these groups, the Tualatin Riverkeepers, Fans of Fanno Creek, and Friends of the Refuge, are private environmental or natural resource groups. Two, the dog and skate park groups named below,are loosely affiliated with the City, but are not official City- sponsored citizen groups. The focus of the private Friends of Tigard-Bull Mountain Trails is the bicycle/pedestrian trail network. The City interacts with each of these groups to different degrees and many local residents belong to or support one or more of these groups. • The Tualatin Riverkeepers, established in 1989,is a community-based organization working to protect and restore Oregon's Tualatin River system. The Riverkeepers build watershed stewardship through public education, access to nature, citizen involvement and advocacy. The Riverkeepers are responsible for the 162-page Exploring the Tualatin River Basin,published by the Oregon State University Press. This is a guide to the wildlife, ecology, and history of the Tualatin River Basin. In 2000, the City contributed to the cost of the field guide's first-year publication. In subsequent years the City has provided partial funding for the Riverkeeper's Trips and Tours Program, Construction Erosion Guide,Access Guide Signs, and volunteer restoration events at Bonita Park. In 2006, the Riverkeepers provided major advocacy on behalf of a City $2.5 million Metropolitan Transportation Improvement Program grant request to finance the "green" redesign of the southern half of Main Street. • The Fans of Fanno Creek, formed in 1991, are volunteers dedicated to the protection,restoration and enhancement of Fanno Creek and its tributaries. In 2004, the Fans supported the City's successful request for state grant funds to finance the construction of the Tualatin River Trail segment between Cook Park and the Tualatin River pedestrian bridge. • The Friends of the Refuge (FOR) is a community-based volunteer organization supporting the Tualatin River National Wildlife Refuge. It is dedicated to the protection and restoration of the Refuge for the benefit of fish and wildlife and for public education and recreation. In 2006, the City contributed to the cost of a FOR-organized refuge grand opening event. Public Facilities&Services 10 • The Tigard Dog Parks ommittee is a volunteer group, now costing of some 55 people, that monitors compliance with rules for use of Tigard's three dog parks and assists with day to day and annual maintenance. In 2001, the committee contributed $1,000 toward the cost of constructing Potso Dog Park. • The Tigard Skate Park Task Force grew out of a 2001 Mayor's Youth Forum proposal for the construction of a skate park in Tigard. The task force was instrumental in raising private donations to partially finance a proposed facility. This skate park, scheduled for 2007 construction,will be named after the late Mayor Jim Griffith,who was an avid supporter of Tigard youth and a strong advocate of the park. • The Friends of Tigard-Bull Mountain Trails was formed in 2006. The group's goals are to promote the use of the trail system, cooperate with unincorporated Bull Mountain on trail development, and create an up-to-date trails map. This group recently endorsed a Metro-sponsored Westside Trail federal transportation grant proposal. The trail includes Tigard and unincorporated Bull Mountain portions. FUNDING: MAINTENANCE AND CAPITAL IMPROVEMENTS Maintenance As discussed, the City of Tigard's park system facilities range from high-maintenance,intensive-use areas to lower- maintenance wetlands and habitat areas. At present, all facilities are well maintained. Although most maintenance is provided by the City itself, some sports fields are maintained by the Atfalati Recreation Association and some other facilities and grounds are maintained by private contractors. Problems found during an evaluation of existing facilities conducted in the late 1990's as part of the park system master planning effort were: • Flood damage to trails, including broken asphalt, silting, and mud deposits; • Drainage problems on sports fields; • Lack of Americans with Disabilities Act (ADA) accessibility; • Safety hazards in children's play areas; and • Lack of access to parks by public transportation. Since that time, the above noted problems have been addressed as follows: • A regular trail replacement plan repairs and resurfaces trails; • Drainage on the sports fields has been improved; • Implementation of an intensive,in-house field renovation program has improved the playability of sports fields; • Regular ADA upgrades are improving accessibility in the parks. In 2000, the City underwent an ADA assessment of all facilities,including park facilities. This study guides regular ADA improvements. All new facilities meet current ADA requirements when constructed; • Play areas have been put on a routine schedule of replacements and improvements. Currently, only a few remaining playgrounds do not meet present standards for safety. These playgrounds have been placed on a replacement schedule. The City also keeps several Certified Playground Inspectors on the park crew. In the period since 1999,park crew size has increased from 7 to 9 field personnel. The City also has added a City Arborist and a Park Manager,who primarily deals with planning issues. Funding Public Facilities&Services 11 • As mentioned earlier, the City'•in funding source for parks is a park system development charge (SDC). This charge is imposed on both new residential and, since 1996, non-residential development. The fee structure is updated annually using an index formula based on land and construction cost increases. In January 2005, Council adopted a new SDC methodology and fee structure based on a parks capacity program that addresses selected needs identified in the 1999 Tigard Park System Master Plan and 2004 Bull Mountain Annexation White Paper on Parks and Open Spaces. The reason for including the unincorporated Bull Mountain Area is that the City is designated the ultimate park provider for this area. Under this methodology, the current (2007) residential fee for a single family development is $4,812 per unit. The current non-residential fee is $327 per employee. The "improvements-driven" approach used to develop the updated park SDC methodology equates to a standard of service in the 20 acres per thousand population range, as compared with an existing standard of 7.7 per thousand. A key feature of the new SDC study, tided the Parks and Recreation System Development Charges Methodology Update,is that it assumes deficiencies in the City's current level of service. Under state SDC statutes, improvement fee SDC revenues must be used only for growth needs and may not be used to remedy deficiencies now existing. For this reason, the parks SDC methodology requires that only a set percentage of a capital project be funded with SDC revenue. The remaining portion of the project cost must be funded though another source. The City has been using General Fund revenues and grants to fund the non-SDC portion of projects. However, because of declining balances in the General Fund, this is not a feasible long term funding solution. Until the City obtains a stable non-SDC revenue source, the Park SDCs collected cannot be fully used in developing an expanded parks program within the City. Due to this lack of alternative funding, the 5-year Parks Community Investment Plan, identifies no SDC- funded projects during the 3-year period FY 07/08-09/10. Due to the lack of projects, the City's Five Year Financial Forecast projects a high park SDC fund balance of$8.5 million by 2011. As suggested, another major problem with the parks SDC methodology is that many of the projects identified on the facilities improvement list are located in the Bull Mountain Urban Services Area. Specifically, $12.5 million, or 47%, of the aggregate cost of projects included are located within this area. Because it derives no park SDC revenue from new development in the Urban Services Area unless the landowner annexes to the City,Tigard currently has a limited incentive to provide park improvements within this extraterritorial area As a potential means to raise non-SDC funds, the Park and Recreation Advisory Board has adopted as another of its 2006-7 goals the consideration of a general obligation bond measure election to be conducted in November 2008 to purchase and develop parks and greenways. This is a companion to the board's proposed and previously mentioned local tax levy election to fund a comprehensive recreation program in Tigard. A new, one-time source of non-SDC matching funds is the Metro Natural Areas Bond Measure, approved by the regional electorate in November 2006. The bond measure provides S44 million to cities, counties and park districts for projects that protect and improve natural areas, water quality and access to nature. Tigard's local share of bond measure funds is S1.4 million. The bond measure also provides S168 million for Metro to purchase properties located within identified large-acre target areas. Portions of two of these, the Fanno Creek and Westside Trail corridors, are located in Tigard. This presents an opportunity for the City to work with Metro to identify available sites within the corridors that qualify for regional bond measure funding. Public Facilities&Services 12 • Another potential strategy to he meet Tigard's needs for park and facilityprovements could include expanding the City's current park's donation program by establishing a parks foundation. A parks foundation, a public-private partnership, could bring new resources to the park system. Examples from across the nation show that such foundations can be effective in generating additional funds for parks. Within the Portland metropolitan area, a least three park providers have established parks foundations to assist with fund raising, land acquisitions, and special projects. An additional role played by foundations is to heighten public awareness for important park issues and protection of the environment. Typical park foundation projects include finding corporate partners to provide contributions for park maintenance and improvements, leveraging grant opportunities, and working with local citizens to coordinate donation and legacy programs. As another way of engaging the park finance issue, as noted earlier in reference to the Tigard Park System Master Plan, partnerships with schools could be a cost effective way to take advantage of complimentary facilities in areas that are park deficient and where there is little opportunity to acquire vacant land to meet park and recreation needs. As alluded to earlier, three of the neighborhoods identified as park deficient in the parks master plan have elementary schools. The schools include Metzger, C F. Tigard, and Templeton Elementary Schools. So far, the City has not developed a partnership plan with the school district for the renovation and joint use of these or any other school's playgrounds to accommodate increased populations and meet neighborhood park needs. At the same time, the City has been proactive in working with the Tigard Water District regarding the use of reservoir properties for open space. The earlier-mentioned acquisition of a Bull Mountain property for a combined neighborhood park and underground reservoir is illustrative. Other opportunities under consideration involve the Canterbury and Menlor Reservoir sites. A successful non-monetary funding source the City currently employs to maintain and improve parks,trails, and open spaces is working cooperatively with private non-profits, such as the Tualatin Riverkeepers, Fans of Fanno Creek, Friends of Trees, and local citizen volunteers. Every year, through their engagement in such activities as planting and maintaining trees, restoring natural areas, non-native species removal, and Adopt-a-Path and Adopt-a-Stream Programs,volunteers contribute thousands of hours to Tigard's park system. City Park Development Initiatives Since 2000, the City of Tigard has employed three new ideas and practical approaches to create more active park acreage in the Tigard community. These ideas and approaches have included the first use of a new state program linking livability with the economy and two locally developed approaches involving industrial land for parks. The first creative financing device was the first-ever use of a twenty-year old Oregon Public Works Loan Program to fund a park project,in this instance, a $2.3 million, 28-acre Cook Park expansion. The two other devices were legislative changes to the Tigard Community Development Code that maximize the use of available land. These included amending the code to make industrial upland available for parks as a temporary use and to make industrial flood land available for permanent park use. The two code amendments were key to the creation of Potso and Bonita Parks. Oregon Public Works Fund In the late 1990's, a comprehensive master plan for the expansion and renovation of Cook Park was developed by a citizen task force working with a park planning consultant. At the time, completion of Cook Park was the City of Tigard's highest priority parks and recreation goal. The Council-"accepted" master plan recommended a phased approach to the plan's implementation using existing revenues. Following this course, completing the park would have taken some ten years. To facilitate an earlier completion date, the City Finance Director researched and developed a creative funding strategy that would allow the city to complete the park expansion in one early phase. Public Facilities&Services 13 • • This strategy was to seek a low-interest loan for the master plan's construction cost through the Oregon Economic Community Development Department (OECDD). In 1985, the Oregon Legislature created the Special Public Works Fund Program to provide financial assistance to eligible public entities for the purpose of studying, designing, and building infrastructure. In 2001, the Finance Director was instrumental in obtaining a $2.3 million OECDD Special Public Works Fund Program loan for Cook Park's expansion. The loan was secured by current and future park SDCs collected by the city. It was made a year after lobby efforts were successful in expanding the list of eligible activities to include parks. The OECDD loan enabled the City to complete the construction of the Cook Park master plan in one phase ending in 2003,many years earlier than had been anticipated, at a cost savings of$471,000 in project construction costs in addition to a substantial savings on the cost of borrowing. The Tigard loan is significant as the first-ever park project financed though the now twenty-year-old Oregon Special Public Works Fund and, also, as the state's first instance of linking parks and open space funding with the economy. Additional cost savings were realized when the city applied for and received a then-maximum $250,000 Oregon Local Government Park and Recreation Grant for Cook Park construction. Another funding source was a generous bequest from Christine Tupling, a local citizen to whom parks were an important and lasting legacy. Park maintenance cost savings were realized by expanding and upgrading the park's irrigation system to utilize recycled waste water available from a nearby sewage treatment plant. Industrial Land Amendments In spite of long-standing local zoning restrictions and restrictive state and regional industrial land policies designed to protect the state and region's industrial land base,in 2000,Tigard developed and adopted innovative code changes to authorize recreational uses within industrial zoning districts. The objective was to provide access to industrial properties for active recreational uses under circumstances that were consistent with local,regional, and state land use laws. The impetus for the changes were potentially available opportunities to help remedy the problem of the high cost and dwindling supply of land suitable for active park development. These opportunities included land that was not available to other industrial users because it was held for future use or not suitable for industrial development. In one instance, the code changes allowed industrial floodplain to be used for outdoor recreation,provided the recreational use does not otherwise preclude the development of the upland portion of an industrial property. The second, and coincidental,part of the industrial land amendments allows industrial upland, or land located outside flood and wetland areas, to be used conditionally for recreation. This amendment mainly makes available land held for future use or expansion,where the owner has no interest in selling or leasing and, also,where a low impact park use may be compatible or mix well with existing industrial activities. As with the first, the goal of this second amendment was to make additional land available to meet the outdoor recreation needs of the community,without interfering with or ovenvhelming industrial uses. Land developed for an outdoor recreational use on buildable industrial land would not be removed from the city's industrial land inventory,but would continue to be available for conversion to industrial use as market conditions or expansion plans dictate. By making finer distinctions in classifying industrial land based on its ability to be used, the amendments enabled the City to make more land available for parks without constricting land for companies to grow. The first use made of the industrial land amendments was to tackle what was,at the time, an increasingly volatile community concern about lack of space for dog owners. In 2002, the new flexibility enabled the City to locate a suitable site for a first-class dog park, called Potso Dog Park. The site was within an Public Facilities&Services 14 industrial area, away from neighSrhoods and limited park properties. This park, together with two smaller, newly-created dog parks located in other quadrants of the city, helped to reduce tensions between dog owners and non-dog owners. The second use made of the amendments relates to the City's creation of a much-needed outdoor recreation space (Bonita Park) in a low-income and minority area without parks. The space is 5.5 acres of industrial floodplain deeded to the city as greenway in 1989 as a condition of City development approval of an industrial subdivision. This occurred at a time when local governments could more easily require a property owner or developer to dedicate land for greenway or other public purpose. The primary funding source for constructing and equipping this facility were Community Development Block Grant (CDBG) funds. The CDBG is a federal program designed to benefit low and moderate income people. The park project was eligible for CDBG funding because the primary users of the park had low and moderate incomes. A Bonita Road pedestrian-activated crossing light serving the park was installed in summer 2003. Park construction was started in the fall of 2003. A park dedication ceremony took place in June 2004. Also completed was a split-rail, cedar fence around a (Native American) heritage plant area. Collaboration with the private, non-profit Friends of Trees, continuing to spring 2005,resulted in the planting of 1,300 native trees and shrubs, mainly in the park's riparian zone. Public Facilities&Services 15 ~ + • KEY FINDINGS • The system of adding parks and related land and facilities in the City has kept up with growth in the seven years since the Park System Master Plan's adoption in 1999. • Many areas of the City are park deficient. • The land supply available for parks and open space is smaller and more expensive. • Given the current density in Tigard, sufficient land for neighborhood parks is unavailable to meet the needs of underserved residential and non-residential areas. • Many non-City-owned lands and facilities serve the park and leisure needs of Tigard residents. • The City lacks a trail master plan to guide the development of the trail system and facilitate progress toward its completion. • The City has regulations in place that effectively provided for block links and pedestrian connectivity in new neighborhoods. At the same time, the City has not been proactive in addressing gaps in the off-street pedestrian system within older neighborhoods. • The SW Trails Group has identified a trail route within Northeast Tigard that includes on and off street segments and inter-connects with the City of Portland-adopted SW Communities trail network. The group proposes that this route be considered for adoption into the Tigard trail plan. • In the past, the City has followed a de facto policy of not condemning land for trails. This willing property approach has led to significant missing links in the trail system. • The City does not operate a recreation program and is not served by a special park and recreation district. In consequence of this,residents have limited opportunities to participate in recreation programs. This deficiency includes ethno-specific activities appealing to Tigard's growing minority populations. • Overall, City parklands are well maintained. Maintenance problems identified in the 1999 Tigard Park System Master Plan have been, or are being, addressed. • The new Park SDC methodology sets a per-project percentage limit on the use of SDC funds. Some 63% of the cost of park improvements is assigned to non-SDC funding sources. At this time, the City does not have a stable source of revenue that can be used as the companion funding source for capital projects. • Many of the projects identified in the Parks SDC parks capacity program are located in the Bull Mt Urban Services Area. • Tigard does not have a parks foundation. Such foundations provide local governments engaged in park and open space efforts with an important additional program they can use to finance parks and open space projects. • The City has been proactive in working with the Tigard Water District in regard to the use of reservoir properties for open space. At the same time, the City has not developed a partnership plan with the school district for the renovation and joint use of school playgrounds to meet neighborhood park needs. • Volunteers annually contribute thousands of hours to Tigard's park system and are a non-monetary funding source for park maintenance and improvements. • In recent years, the City has developed and employed innovative methods to create more active park acreage to serve community needs. This has included making use of a state infrastructure loan program to expand Cook Park and making certain types of industrially zoned properties available for park uses. Public Facilities&Services 16 • 4 Planning January 2007 • . • The Nile ti. . . By Arthur C. Nelson, FAICP, and Robert E. Lang , The U.S. onsider the following.On Octo- ber 16,2006,America reached a milestone:Its population passed the 300 million mark. is alone among the It took us until 1915 to reach our first 100 million, 53 years (to 1968) to reach 200 industrialized nations in million,and 39 years to hit 300 million.The census indicates that the nation should reach 400 million by 2043,but the census routinely experiencing substantial growth• under-projects; its 1996 projections had the U.S.reaching 300 million in 2011,not 2006. Extrapolation of Woods&Poole Economics' If current trends continue, the 20l reach 0 projections indicate 2037,that the U.S. , will reach 400 million by 2037, about seven years ahead of the census schedule and just 31 years after reaching 300 million. United Kingdom and France What do the next 100 million people mean for America's built environment? will add fewer than 10 percent to Impact on decade, the nation has counted about 0.4 housing units of all kinds(including vacant and second homes) per person.their populations between now commodate the next 100 million residents,the nation will have to add about 40 million new housing units to its current inventory of 125 and 2040, while Germany, Italy, million and replace another 30 million homes that are likely to be damaged or torn down in the next three decades. and Japan will lose population. That means the next 100 million residents will usher in 70 million housing units,or about two million annually.That is similar to the pace of housing Only India with a current the past decade.construction that has occurred over However, about two-thirds of the housing built during this time was single-family detached population of about 1.1 billion units. Will this trend continue as the nation adds another 100 million people?This appears unlikely for three reasons. will add 100 million people First,the population is aging.Last October, when the population reached 300 million,about 12 percent ofAmericans were 65 or older.This group will account for 41 million of the next 100 more quickly than million Americans. In contrast,young people (age 19 and under)will account for only 19 mil- lion of the next 100 million Americans,down the U.S. from their 29 percent share in 2006. American Planning Association 5 `il' The group aged 20 to 64 will account for ;: v1a le e46.f the remaining 40 million of the next 100 mil <Y, `i ?: ' p�4°Q lion Americans, whereas it accounted for 59 .rt°��l 9 percent of the population in 2006.We suspect _,;4-: G' ; X10.•.a n .1,i fi ��c• P P P P • _ i that the housing preferences of older,childless ` #c• households will be different from those of other households. r R� 'I Second,household types are becoming more ,, ' ''", ,.,1 4 A ; 41k;:":;......".4:: 6, diverse. In 1970, just after the population ',.'- s'. : -4: ♦�. reached 200 million, about 44 percent of all r �� 'y' •-.t:,, �r:= =�. › households had children and only 17 percent of ,.-r-;•"-----------• '' '- s ` sr?= ti=.:a e0 them were single-person households.The 1960s �.•-- = •`K and 1970s saw the suburbanizing of America mss - g ...=„ and the spread of suburban-style planning and ;_ �:- zoning,which separated land uses and favored single-family,often large-lot residential devel- . t:•••, 11*-----7-'" � opment over mixed land uses,mixed housing types,and higher densities. This was the period when child raising domi- R�� _,,T i'ZEM nated household concerns.Thus,it makes sense ' �" �nl+, g�sf k- ', £-� that communities catering to households with ! `!+ -- x;-:t children fashioned appropriate land uses. r~"",_ ,w, , #' Times have changed, however. In 2006, _ i .. M_ r ' 4 ^ :_ roughly 35 percent of all households had r-w4a S:1,.• — 4 I A. • ' ::e- a children,while another 26 percent were single- '-7-f., person households. By the time the next 100 ( ' - , x o million people can be counted,only about 27 _ _�-^ ' _ �. I W i -- . --tf-- percent of households will have children,and - single-person households will remain at about y _ r-1 ;_ - x 26 percent.In other words,among the next 100 -mot million Americans, only about three million, • 6/ t=''• ;`., F ' or 12 percent,will have children. . ' << ;F' _c, There will be more children and more house- :� �! 1 = holds with children as the U.S.adds another 100 r .:�, 1*��:,<> \-------- � -_�',-�.;, • x.. 1�y million people,but the net change in associated ="' = housing demand will be small.In contrast,88 ti 4' I yP i r^ I 7. percent of the net change in households will be ate;,- x- 90 weld:. ' `-a ;-_Q� t - '1 .0 attributable to those without children.Single- ,-'or ,'` person households will account for about 38 Ji-ii t, ,;c, I '44....4:44,1 �,i percent of the net change. '':i r 1j y '0fI . 144 : � ■!G!� - o Third, housing preferences appear to be f. _-,�.,� . , ,r ih 1 changing.Aging,empty-nester,and single-per- -- S ,j - 4d'� �II 3 "I j. �!` .,g! :%•v,- - �. „, .1 ! II -\\\ ( son households will dominate America's future tt .. 1 - housing markets. It seems unlikely that their housing preferences will conform to the child- !i i friendly zoning template that has dominated .. •- 111115111 r~ America's suburbs for two generations. is y' .,,_d �' -! Two other influences are emerging that may ' '.s ` " �i - affect preferences. Americans are living longer, :' C i..:-.,A..;1: Y :14 and life insurance actuarial tables now extend past ' `'=; �F °j .. ,;so; 100 years.Only a third of a typical adults life is •1 -?+� • Off.��,s.3,o,: a , _C.Ipt, likely to be spent rearing children,which means - :° `� .,.. - adults may live 50 or more years without caring 1 �� '`� for children. In addition,a growing number of j , , :rte. _•` >n g s' zw families are raising their children in decidedly urban tr.-----a-Ti,' -� 1. settings—not most of them,but perhaps enough ° to have a significant effect on planning. �: ' I r All this adds up to the potential for important ■ x changes in housing demand that planners need • 6 Planning January 2007 • to anticipate.An article by Arthur C. Nelson mate residential and nonresidential construction people and associated jobs are likely to locate in in the Autumn 2006 issue of the Journal of the will come to about$30 trillion and that public existing second tier(1950-2000)suburbs. American Planning Association suggests that infrastructure will add another$5 trillion for a However,much of the$20 trillion in subur- because of changing demographics and shift- total of$35 trillion,give or take a trillion dol- ban development need not come at the expense ing housing preferences,the current supply of tars.The construction volume alone will reshape of existing neighborhoods.Such development single-family detached houses on lots of more America's built environment—and could lead can probably occur in areas already developed than 7,000 square feet may already exceed to important planning opportunities. for commercial uses. Suburban strip centers, the demand projected for the next decade. In shopping malls, big boxes,warehouses,office other words, the demand for attached, small Reshaping the built environment buildings,and industrial complexes offer several lot,cluster,and other high-density options ap- To review:As the U.S.marches toward a popu- advantages,including: pears likely to outpace the demand for detached lation of 400 million,Americans' household •Direct access to four-lane highways, with houses on large lots. profile will change.A much smaller percentage the potential for light rail or bus rapid transit of households will have children,and far more service. Don't count on telecommuters will be single-person households.The suburban •Expandable infrastructure. We estimate that when the U.S. population planning template designed to meet the needs of •Single ownership of large tracts of land.Land reached 300 million it had about 87 billion square a society dominated by child-rearing households assembly is perhaps the single biggest obstacle feet of retail,office,warehouse,public,and other will not be in synch with a society dominated by to central city redevelopment because the land space for structures that were not permanent childless and single-person households. is often divided into relatively small parcels residences. The next 100 million Americans Up to 35 million of the 40 million new with multiple owners.The backlash to the U.S. will require an additional 30 billion square feet housing units needed to meet the demand of Supreme Court's 2005 Kelo decision will make of space—partly to serve them and partly to the next 100 million people will likely be built land assembly for redevelopment more difficult. accommodate the 60 million new jobs they will for childless occupants.That group is already Suburbs can largely avoid this problem as they generate,assuming that current trends hold. helping to fuel the resurgence of in-town living, facilitate the redevelopment of existing com- Some may argue that telecommuting,Internet high demand in many transportation oriented mercial centers and strips. retailing,and other technology-based innova- developments, unprecedented demand for •More acceptance(and less NIMBYism).Tens tions will reduce demand for nonresidential central city and close-in suburban infill and of thousands of strip commercial and big box space,but this seems unlikely.While Internet redevelopment,and greater stability ofhousing centers are dead (vacant) or dying (declining sales have exploded in recent years,they have prices closer in than in more distant suburbs. rents). They threaten adjacent and nearby done so at the expense of over-the-phone catalog We know,too,that the volume of new non- neighborhoods with blight. sales. In-store sales have remained relatively residential development in the next few decades •Current zoning,already in place for commer- constant for the past several years. will exceed all such development that now ex- cial and even mixed uses,may further assuage For its part, telecommuting may be the ists.About 100 billion square feet of space will NIMBY concerns. single biggest disappointment in transportation be constructed.Of that,about 70 percent will Planners can encourage this acceptance by planning.While no truly accurate figures exist involve the reuse or redevelopment of existing engaging commercial property owners and on the extent of telecommuting, census data space—mostly in the suburbs. tenants in processes(such as charrettes)aimed suggest that telecommuters account for only For planners,the combination of changing at creating redevelopment that will protect four to six percent of all workers—figures that demographics with associated demand for established neighborhoods,fulfill commercial have changed little for a generation.One reason greater variety in housing types and density,plus development needs,and sustain the local eco- is self-evident: Unless they are housebound, redevelopment of the already built environment, nomic and fiscal base. engaged in raising children,or lack mobility, will present an unprecedented opportunity to people prefer to leave the house. Otherwise, reshape the U.S.,especially the suburbs. Toward a new template they get"cabin fever." Central cities and first tier(pre-1950)suburbs With 400 million people,the U.S.will likely be We surmise that the next 100 million people are likely to see historically high levels ofdevel- a very different nation than the one with 300 will require more than 30 billion new square feet opment,but they will house only one-third of million.Demographics will drive many of the of space.We estimate that the average nonresi- the nation's next 100 million people—maybe changes,but many also can be designed.New dential structure lasts about 50 years,ranging less.Two-thirds or more of the next 100 million residential construction will equal nearly 60 from 10 to 20 years for big box stores and strip percent of all current existing units. Further, commercial centers to 100 years or more for l∎ t• s o u r r is s the volume of new nonresidential construc- durably built institutional structures. That tion will exceed all the nonresidential space means roughly 20 percent of all nonresidential Reading. See "Leadership in a New Era," by that exists now. structures are rebuilt or replaced—or become Arthur Nelson, in the Autumn 2006 issue of The nation as a whole met the needs of the vacant—every decade(compounded). By the the Journal oftheAmericanP lanningAssociation. last 100 million people by using a planning and time the next 100 million Americans show Elsewhere in this issue of Planning "America zoning template that is now outdated.Meeting up, at least 70 billion square feet of existing 2040:The Rise of the Megapolitans"describes the needs of the next 100 million will require a nonresidential space will have been rebuilt or how the nation is becoming increasingly defined new planning and zoning template,the outline replaced. In all,more than 100 billion square by megapolitan dusters. of which has been suggested here. feet of nonresidential space will be constructed Numbers.Woods&Poole Economics is a private Arthur C.Nelson and Robert Lang are codirectors of as America adds the next 100 million people. firm that provides economic and demographic the Metropolitan Institute at Virginia Tech in Alexan- What will all this development cost?We esti- projections.See www.woodsandpoole.com. dria,Virginia. e • American Planning Association 7 A 2040. .. ,... _,.....„., _ . YYY -.:ç3' -' •.r .,i d t _r•1 I , , -.,....-- -.. . .." a . -.„..,..,_ ._,..... ; • -•=._k_.,.... ::-.„-,.:Is. ..,.,,r -.,-i ...,,...,„:„• of the • g P The U.S. is on track to add another 100 million residents by about 2040. . Where will all these people live? By Robert E. Lang and Arthur C. Nelson, FAICP he answer is in super regions that combine at least two,and often several,metropolitan areas.We call these regions"megapolitan areas"or"megas"for short. Many of us sense that a large-scale metropolitan convergence is under way because we see metro areas that were once distinct places now merging into enormous urban complexes. Dallas and Fort Worth converged in the 1960s, as Washington and Baltimore did two decades later.Today, regions with multiple cities,like Phoenix and Tucson,Tampa and Orlando,and San Antonio and Austin,are exhibiting the same pattern,only on a more massive scale. To drivers on Interstate 85,the entire North Carolina Piedmont New housing at the edge of the Florida Everglades.Photo courtesy Weitzer Communities. 8 Planning January 2007 • 1111=11.1.11111.11611.11.1MEMMIN. extending from Raleigh to Charlotte seems like '__ _- " _ _ .z '___r* __ one continuous suburb.Development in the now r::- ._ ---,.:_-----;-= = °,;r = '-r" _-,-. - -_ full integrated Dallas-Fort Worth metroplex "`T r "''"T -r" `; - spills north along I-35 and will eventually reach Sri _ �" -- ' t` " '''- re-.- �;• Oklahoma City. - tl ;yy _t rn v -t 1 'i2.� _ We have developed the megapolitan concept i'-,•,,,-;•-.• in part to depict where the next 100 million - , •Americans will live. The analysis found 20 _ a' 's r emerging megapolitan areas that are based on the = _- x U.S.Census Bureau's definition of a combined Y-:--ti_ rt`- ' ' :�. � -..-=----. �3_ statistical area,or CSA.The 15 most populous Tao Condominiums, _ Ta -° _ metros are in megapolitan areas,as are 36 of the a luxury housing _ _ _ _ �- nation's 50 top metropolitan areas. ro ect,is bein built __ cam `'= American Planning Association 9 �; �:,._,•: _ _ _ , �, •- •` � megapolitans in the Texas Triangle megaregton. ' r i ' x� Y '; Likewise, the Willamette Valley is one of two a; N-1,)-7.,;,t-}4' ,� t.s,i,t„t,, >"�i Y�t„I: r a f r- .rte v i (, -s r'v i _ s we -_ • °`f^ r, ;..C.' � : <�* ;"'42 .":'Yn'.i. •, . _ _: megapolitan(along with the Puget Sound)that . `� - &': f r � r� � '`s ��, r form the Cascadia megaregion. `�' ' -�O,fe.t •JF+- nom„ .,,,,,-.4..1--,,, $r .'�.: :--e. r s. A r_! ..Y.:.3:,-;.---.7`. i,� ._'�,,. r E More than six out of every 10 Americans,•'�% .R _ -” - _ 1 — - •:,,t •yFf+ °"""' ;, �.; or 181 million people,lived in the nation's 20 :::;.;.-..:---r"-- _-- - ;, _ -..=-_. megapolitan areas in 2005.Yet megas account for ='t • .- - . ,y- -:,` -' only a tenth of the nation's land area This yields ` --. - '" - 'ar ;.;`,-° - ,-- :' ^� a density over 500 people per square mile,or the ''•--' "'= -=:'*.-- "- •,-- bottom threshold of what the Census Bureau ....------.----;';f;_• ;1_ ---,;:c , ...,5:'-7 , -,---_ defines as"urbanized areas. Megapolitan popu- . •-�� . _ :'-ss? - - � �� , '--, •- _ lation density reaches about half that of Japan _.t=,v, � " _ - _ _ "---3.5' _ _ " and exceeds the figure for the European Union i.••••/?.'r;; =A.--. ..7"----"-1:-"•-•""' :- i (both of which are expected to lose more than 15 million people by mid-century).The rise of " °�.� �~� `` - a• _ -.ti~ megapolitans reftites the notion that Americans K.--_:-_,------,-.."-: .i.,..,..._:=3i r -Y _ ,,- - --- -':" : live in mostly wide open spaces when compared • - . ._ -..y- .. - •= w to Europe and Japan.While decentralization `� may have occurred at the metropolitan scale,a r- _ j ^i, ..> -- •:-.; yj --_' =a _.____ _ - _` settlement concentration is under way for the -_r` % _"'�" --.I.�...!+►,:..;::..F.-1',a2 -..;— • ..-! - '- --. -- ` - =s: - '.-`'±_"--- :. = U.S.as a whole. - t,�: .. .- -._'I, i. - - - _ Another 60 million residents could pour e �_j,• ? ';'. into this relatively limited megapolitan land _ c_ -•- --:�--- -==,-�- -----c-------'�.:�==- =-- ---= - area by 2040. In other words,America is on 1�� n`•,�� .��;_ �Y >\-� •:•••-•:1 -y �.____.,"__;_,- s-':-.___!_...a track to see significant density gains.This does :-;;---.7-:.-t.,,-a;:; _ 1 -". :.- 1 ,- - _ 'a:- not mean the end of suburbia,or even large-lot _ _ subdivisions at the metropolitan fringe.But it _� u= �`�-°°e°= ' -'`a . ..- does hint that more people will locate in already ,,;��+s S-`± °i --- a.•..'._ _ .��_� °- -+r.-'�. -. built-up places. t s- :r�r• - `��`'� 3 F....A% -'`3�`- °. y This isnot anew trend.Just over a century ago, ,r�, • "'"' "^`5'`m ' v=ir.;; r.- \ % -, the U.S.officially closed its original settlement �_ .' frontier.By the 1920s,over halfthe population•�L lived in urban areas.The 2000 census found x • k '. . y�; .,-�.F' - - ,=• that over half the nation's land fell in what it _ a '. °'V` ' '� T . ' awkwardly labeled"core-based statistical areas" - _ -- •-• < _- . - ~• _-_ . (metropolitan and micropolitan areas). The - _ ra, _ ,._,`' 'y_r- emergence of megas continues this pattern.By —_ • r`^ _` �'� °a=� ;-";`; ^ ,�:: •'•4-_- __ 2040,two of every three Americans will live in _ — ~—�' _ 20 megapolitan areas,or just 10 megaregions. • —t .� r•�,• ' �� :.. i`:-� �`--t Megapolitan areas represent an even greater __-3 \� _ _a: \`� _; ,Y _; concentration of the nation's wealth and pro- -:,.`` { 14;._,......3......-- r te-� `�� ? ductive capacity.The 10 most affluent major . • - . �� 4 _ _ . -�.' -� `� T metropolitan areas lie in megas,as do most of _ o ' . : _ = v – ��; the nation's busiest air and sea ports.The megas `, are the key zones by which the U.S.integrates ��_� -_ _ •.„, ems_= i>.` "` into the global economy. It is almost impos- - -=s-_L_ - _'''t -- a �3._..� sible to fly overseas without first stopping in a• 'w'____ — megapolitan area .= ' ° - Megas account for nearly 70 percent of U.S. `-, = ' - — II. : ----" gross domestic product.Within their space lie i ''-----mow a i , > t --7--------- :-: ! T _ the nation's leading office markets and its high ;� I ' y _� — • 4R.,-.-.1 _'• - \ • '- c tech heartlands,including Boston's Route 128, ` "' ''`" v-__,ti = the Bay Area's Silicon Valley,Northern Virginias Dulles Toll Road,and Austin's Silicon Prairie. Phoenix(above)and Tucson—more than 100 miles away—will merge together to And the megapolitan economic dominance create a megapolitan,the authors say.By 2040 two of every three Americans will live in should only intensify by 2040. one of20 megapolitan. Sun Belt vs.Frost Belt While megapolitan as a whole will boom,some I0 Planning January 2007 • • - ` '. . . ;`,41 ..i '� -1 I II•A 1 --- .- _„ '.• ,t§T : fin.,, g. t. tea. t.__; t tj?•d "EM.'. ' t f ct a.e`,4*).' �' . hY a . / l x i. \ ` \\ '' y4, ' 4'a 5 i n, ', ' r. k,1+y��, � e 8 - • ■• • a ' 'ii. zc •a r �� = R a Wave of the future?As Victoria Gardens,being `' •� ,. built in Rancho Cucamonga,California, • -"' i i: attached housing is pan of the plan.Above i',•-..;:•f � . j 1 1 interior of the Lewis Famiy Playhouse .; L , s• ' atVictoria Gardens Cuhural Center. . -- s --,_; a ice\ .Z =- r .._,•;-$, .�-�-r—- - ��`- 'Y". •,etr'_•,a s, ` '-"'L"t9`'SG:=K-:�--- :r-�,:ti .,Y1i--.L ,t ., C.nf_ .-� 9 s., ros. ✓°�#� - _i",. >-a,a ' cam„ - r. , -``lli: i _= Iii :!' II T41 e. i I . . ii I ..; i`z = - ','11_ _. The Santiago Street Lofts(above and right)in Santa Ana,California,is a transit-oriented redevelopment project involving 20 buildings.Each contains a retail/office ground floor and a two-story residence above. i_ - Megapolitan Areas and Megaregions Anchor Metro(s) 2005 Population individual ones may see more modest growth. s . Megas in the Northeast and Great Lakes will add population at the slowest rate. However, ' P4 ;._�° '� some of these places are already so big that _ r even slow growth will result in millions more r '- t residents.The Mid-Atlantic megapolitan area ' { anchored by the converging New York and * -I- r ir,e . ,ice r -' Philadelphia metropolitan areas, could jump r • - . from 34 million residents today to over 40 mil- = ;, _ ;: a r, _ lion by 2040.The region should easily retain its status as the nation's largest megapolitan area s S. t -, . By contrast,the Northeast's southern section, F }" or the Chesapeake megapolitan area will see C_ z� J} wa f yp - much faster growth, although it will add two .ia million fewer residents. s :,t e; , a Overall, the four megapolitan areas that ;' r r comprise the Great Lakes megaregion will have the slowest growth over the next few decades. t However, only one megapolitan—the Steel . Corridor running from Cleveland to Pitts- ::'..';',..,:it. burgh—will increase by less than 10 percent • :r ;7:-.8-,nr 1 ,tT..i( __ , _r'F..?' -.11.--'3'.1.:`,_..1., ,),' - by 2040.The Ohio Valley(anchored by Co- wl ;07:-` l-.-`•`1:.tl, '._'�:T ,a- ',c',' ';r.a lumbus and Cincinnati) and Lakefront (with i-=-x) `` a ', r - .E . ..::'> > Chicago as its center) are projected to almost - ) -rte " '.c match the national growth rate over the next -,..,;,c., t7 L r I ,, 1 rIs ° 1 7 y '`i 7. 1`.;.! �, 'x.10:,.'.t -)4;-.'3;,,O,'‘...3 three decades. • • • American Planning Association 11 Megapolitan America-September 2006 Americans are clustering together 'Cancel into super regions-- sautr and are likely to T , ,, , " _- continue doing so Plmaand moo. .g• ..;' ,_,_YrSJ. �r ?# �, as the population +1` : �`. increases. - },, Ronson otor Cei ?ii aA Fiona A ; .: Ralsge ...� talc � r '� San Francisco;it Dam e v . gA t7 � Y Fri 1 „t.tom.......—...�r weds` San Diego Dabs ..,o! ssmrna Int it `�� • • it . . <.<.�.. ° San � :''(I t'•. °tea$'e s7rlards ^4'C . . * 'it C' \ Y Trgys Mona ` :r4.. t• - • But the really big gains will come in the Sun 2000, the U.S.center of population reached Coast growth boomeranged east and helped Belt.The highest flyer of all should be the Sun southern Missouri,and by 2040 it should be to transform the sleepy cities of Las Vegas Corridor,home to the rapidly merging Phoe- in Oklahoma. and Phoenix into mini L.A.s.The old South, nix and Tucson metropolitan areas.The Sun That means that by mid-century the center which declined after the Civil War,rose again Corridor could actually double in population of U.S.population will lie near the geographic after World War II thanks to air conditioning, by 2040. midpoint of the nation. The U.S. popula- the interstate highways,and northern industries • Following the Sun Corridor are several other tion will be evenly divided between East and seeking cheaper land and labor. Sun Belt megapolitans that will add over 70 West. The West's settlement was expected in the percent more people in the coming decades. One twist not anticipated by Francis Walker 19th century—even demanded under the The list includes the Front Range, anchored and other 19th-century demographers is how principle of manifest destiny—but the rush by metropolitan Denver, both Florida mega- far south the center of population will drift southward is more recent. Population trends politans, and the Texas Corridor and Greater by the middle of the 21st century.If the more begun over 60 years ago will continue to draw Megaplex.Not far behind these booming megas northern balanced settlement pattern that the center of U.S.population along the path of will be the Georgia and Carolina Piedmont.It's began in 1800 held steady to 2040,the center the now defunct U.S. Route 66.The Mother interesting to note that Southern California,the of U.S.population could very well have wound Road,made famous by 1930s dust bowl refugees quintessential Sun Belt metropolis,is projected up in Kansas,or near the geographic center of heading to California,makes a beeline from the to add residents at the same pace as the national the Lower 48 states. Midwest to the Southwest.Apparently,so will growth rate—but no faster. In the 1840s,the main U.S.settlement push many Americans. was north and west—reflecting a decade that The new center point saw the California gold rush, travel on the Build out vs.sprawl out In 1870,U.S.census director Francis Walker Oregon Trail,and the acquisition of vast new Any discussion of megapolitans must take invented what he called the center-of-popula- southern lands after the Mexican–American account of land scarcity. Consider Florida's tion statistic to give Americans a vivid sense War.A century later,Los Angeles,once a small megapolitan Treasure Coast. The Everglades of how fast the West was being settled. In town compared to San Francisco, emerged have been so invaded by urban growth that this that year,the population center was in Ohio; as the West's dominant city. In the second area can no longer push west. in 1790, it was just outside Baltimore. In half of the 20th century, some of the West BrowardCounry,,which is pan of the Treasure 12 Nanning January 2007 41/ • , Coast,has been one of the fastest growing areas in Anaheim,and transit-oriented development suburb that promotes diverse housing and in the U.S.over the past few decades.County in downtown Fullerton. shopping options,nearby exurbs such as Frisco officials estimate that less than 10 percent of its This development pattern is likely to continue and McKinney eagerly cater to households still land area is available for future development. as the Southern California megapolitan area seeking elbow room.In the Greater Metroplex, In response,the county upzoned much of the squeezes millions of new residents into the urban where everything is bigger,a regional preference remaining open space.Broward expects its last space that exists today.Southern California,once for more space should keep adding new exurban greenfield subdivision to be built in the next the poster child for sprawl,is being remade into rings north of Dallas until development reaches few years.After that, the county will become a vast quasi-urban complex that mixes densities Oklahoma. one large infill project. and land uses in a way that resembles neither The same is true throughout much of the traditional cities nor suburbs. Beyond the megas:boom and bust Treasure Coast. Given that the region could In contrast to these areas are places like the Twenty years ago,Planning ran a notable article add over 70 percent more people by 2040,there Greater Metroplex and the Carolina Piedmont, by Frank and Deborah Popper titled"The Great remains only one option—denser growth.This where growth potential is virtually unlimited Plains:From Dust to Dust"(December 1987), is already happening.Miami now has a forest and greenfields could be developed all the way which chronicled that region's decades-long of high-rise residences along its waterfront,and to mid-century.Will that happen? population decline.The Poppers promoted the towers are under construction in booming sub- We argue elsewhere in this issue that changing idea of a"Buffalo Commons"that would shift urbs like Sunrise and Coral Springs in western market and demographic realities will greatly those parts of the plains suffering the steepest Broward County. population loss to a more sustainable South Florida has significant re- • economy based on buffalo ranching Types Descriptions Examples serves of grayfield space in the form _ and ecotourism. The article sparked :';.,'` =i'>•,..;N:.7„..1—:2• considerable controversy,but much of of old malls and warehouse districts. ,_- T: % sy -t predicted has come - �;t� what the Poppers Given the region's land constraints, 2,. pp p new construction in this redeveloped -':- _ to pass. space will be much denser and could ' : • _ A little noticed dimension of the _3 ."- ., '- Poppers'analysis was the finding that include more mixed uses than prevail - <s=Tr ` ' -• pQ Y g ing patterns.By 2040,the Treasure . - _ , _. . _ �_•,:- even as the U.S.boomed overall,vast -4-- •- •_w ':-:t• .. •..1:�..;;; -• .:;:,= : areas could face decline.In fact,much Coast will be transformed into an .; _ _ -: •+.:�:.:, .--. ';_, _. -;: r.,r r. . '' = ' ',-<= ;:�?:;= "•, -- of the American West beyond the Great urban archipelago,where new cities :a' 't ',En...r, "- -14g'..:-,:-=3..,!.:,!5.:....,..;.!--........-;-F r� e ' ; '4�•,;; - �:5f,,T .' :-, Plains still remains wide open.In 2000, arise among a sea of older low-rise _ _ __ -> ; _ _ - _ .,_,,: T- Q subdivisions. ''` ` ' - • • ., - ~. --- USA Today reported that nearly half the ent is already the =: �,," <<s�. - t.. country west of the 100th meridian Denser development y -`.' ''-`= i rY j '. �`' '-`` `° - �`='.''= had fewer than six residents per square norm in Southern California.One of - - - ?=r�; -�;=- ��4:�-^,-ti Vii; � '°; -,�' '"' p q ::v"_,� :2z define the recent - - - - •;,-: mile—the statistic used to defin th the more hod debated topics in rece - - _ :��=_ i. discussions of sprawl is the finding that _ . ._ ._ - - - . .. ;''- . . :=::;.--: 19th century settlement frontier.Most Los Angeles has the highest population of this space will probably remain fron- density ofthe census's"urbanized areas"—exceed- reduce the amount of exurban development in tier in 2040,including patches of the Southwest ing even NewYork in this measure.San Diego,a the coming decades—even in places where no between the megapolitans. region now merging with L.A.,is not far behind. barriers to such growth exist.Still,some outward What will the nation look like with 400 The reality is that Southern California is nearly momentum could well remain, especially in million people?Its metropolitan space will be out of developable land. places that can still easily accommodate such transformed by denser development,but most The area called the Inland Empire—east growth. places beyond the megas will look the same as of coastal L.A.—still booms with greenfield The middle section of the Greater Metroplex, they do today.The image of a nation paved over growth,but even in this once wide open space, between Dallas and Oklahoma City,is one place from coast to coast is false.If anything,parts of lot sizes have shrunk to postage stamps.New where land availability and local tastes may the Great Plains and northern Rockies could be projects,such as Dos Lagos in the city of Co- continue to fuel exurban expansion.Of course, even less populated than they are now rona,feature detached single-family houses on some places within this zone,such as north Dal- By mid-century, most Americans will still lots so small that driveways must be shared. las,will not see the transformations that sweep take comfort in the notion that elbow room At Victoria Gardens, a mixed use project in denser and more built-out megapolitan areas remains in some remote corner of the nation, one of the last remaining undeveloped patches along the coasts.However, the once low-den- if not in their own backyards.The unfinished of Rancho Cucamonga, attached residences sity suburb of Plano,Texas,already has denser business of settling the remaining frontier are common. In even more built-out Orange transit-oriented development at its station on lands—the great national project of previous County,there are now mixed use lofts in Santa the Dallas Area Rapid Transit system. generations—may serve as a giant release valve _ Ana,high rises near the entrance to Disneyland As Plano remakes itself into a more mature in the collective consciousness of 21st-century Americans who never fully warm to the idea of I; ` o ll l being more built up than Old Europe. Robert Lang and Arthur C.Nelson are codirectors of the Glossary.Learn more about the concept of megaregions—and about a similar concept,multicity Metropolitan Institute at Virginia Tech in Alexandria, regions—in Smart Growth in a Changing World, an upcoming book by APA's Planners Press Virginia.They thank the Lincoln Institute of Land (edited by Jonathan Barnett). Policy for its support.