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02/26/2007 - Packet • I TIGARD PLANNING COMMISSION AGENDA 'q • FEBRUARY 26, 2007 7:00 p.m. TIGARD TIGARD CIVIC CENTER—TOWN HALL 13125 SW HALL BOULEVARD TIGARD, OREGON 97223 1. CALL TO ORDER 2. ROLL CALL 3. COMMUNICATIONS AND COMMITTEE REPORTS 4. APPROVE MINUTES 5. JOINT MEETING WITH THE CITY CENTER ADVISORY COMMISSION - Introduction to the Downtown / Consultant Presentation 6. OTHER BUSINESS 7. ADJOURNMENT • 0 Tigard Planning Commission - Roll Call Hearing Date: ----)-(.-- 0-7 Starting Time: -) .. 00 I . COMMISSIONERS: Jodie Inman (President) +/ Tom Anderson Rex Caffall / Margaret Doherty Jeremy Vermilyea David Walsh STAFF PRESENT: Dick Bewersdorff Tom Coffee Gary Pagenstecher ✓ Ron Bunch Cheryl Gaines Emily Eng Duane Roberts Kim McMillan Beth St. Amand Gus Duenas ✓ Phil Nachbar ✓ Sean Farrelly S • CITY OF TIGARD PLANNING COMMISSION Meeting Minutes February 26, 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, Doherty, and Vermilyea Commissioners Absent: Commissioners Caffall and Walsh Staff Present: Ron Bunch,Long Range Planning Manager; Sean Farrelly,Associate Planner; Jerree Lewis, Planning Commission Secretary 3. PLANNING COMMISSION COMMUNICATIONS AND COMMITTEE REPORTS The secretary reviewed the Commission's upcoming calendar. 4. APPROVE MEETING MINUTES There was no quorum, so the minutes were not approved. 5. JOINT MEETING WITH THE CITY CENTER ADVISORY COMMISSION - Introduction to the Downtown / Consultant Presentation Members of the City Center Advisory Commission (CCAC) in attendance: Carolyn Barkley, Roger Potthoff,Alexander Craghead, Carl Switzer,Alice Ellis Gaut. Associate Planner Sean Farrelly advised that this meeting is in response to a request from the CCAC to explore the potential for instituting a particular type of development code in the Downtown, a Form Based Code. This kind of code is graphically based and has been used in several places around the country, although no jurisdiction in Oregon has significantly implemented them. This is an important milestone in the development of a new regulatory framework for the Downtown Tigard Urban Renewal District. The City has hired a consultant team to give PLANNING COMMISSION MEETING MINUTES—February 26,2007—Page 1 • • some background on the principles of good Urban Design for Downtowns, an overview of Form Based Codes, and how design regulations are implemented in Oregon. The presentation tonight's is informational. The next step will be to summarize comments and discussion at the March 5th Planning Commission meeting and formulate a course of action. While this is going on, the City will be starting the public hearing process for updating the Goals, Policies, and Action Measures for the Downtown section of the Comprehensive Plan. This will be the legislative basis for adopting whichever type of development regulations are decided on. The Planning Commission public hearing is on March 19t. Farrelly introduced the consultants, Don Genasci, an architect with Genasci and Associates, and John Spencer, a land use planning specialist with Spencer and Kupper. The consultants gave a PowerPoint presentation (Exhibit A). They explained the characteristics of form based code and reviewed the quality and function of urban design for small downtowns. Form based code helps with understanding the physical results of development in the Downtown. It builds into the existing code a way to see how it all fits together—what the buildings will be like and how cars and pedestrians can be brought together. The presentation consisted of 4 sections: principles for urban design; explanation of form based code; how design review occurs under Oregon's fact based land use code; and implementation of form based code. Planning Manager Ron Bunch stated that staff would like this to be an on-going collaborative process involving both the Planning Commission and the CCAC. The consultants provided local examples of the Albany, Corvallis, and Eugene downtowns. One of the most important things for a quality downtown is pedestrian scale organization rather than automobile organization, e.g., covered sidewalks (awnings), building decoration and large windows, small scale block structure, smaller buildings, and a range of housing density. The consultants were asked how it's possible to marry small block stature,which tends to have a lot of infrastructure components,with sufficient housing and parking. The consultants answered that parking can be tucked under buildings or behind buildings. Another aspect is the question of public vs. private parking. In downtowns, there is typically a public parking role somehow. In a number of metropolitan downtowns, there isn't a parking requirement (no minimum parking, except possibly for housing). With a mix of uses, there generally aren't as many trips and the need for parking goes down. In Hillsboro, the block sizes are approximately 300' x 300' and they have a regulation that requires developing property owners to consolidate parking areas in the central part of the PLANNING COMMISSION MEETING MINUTES—February 26,2007—Page 2 • • blocks. It's a nice idea, but it's difficult to implement. Property owners develop at different times and it's not likely that they will all agree on sharing the parking. Ron Bunch noted that parking has to be taken seriously. As redevelopment occurs and things become more intense for parking,parking structures may be one solution for managing on- street parking. The consultants listed things that are necessary for a successful downtown: a mix of uses designed for a walking community, signage at pedestrian eye level,wider sidewalks, street furniture, trees, public places,possibly a farmer's market, active and managed public realms (gathering places), and a variety of transportation modes. The consultants provided an overview of form based code (FBC) concepts. FBC deals with 3 dimensions —the public space between buildings (the street, the square,including elevations, walls, surface, floor,pavement, furnishings, permeability of buildings, and the experience of someone walking through public streets and public rights-of-way). The emphasis is on the physical form, the 3-dimensionality of development. FBC starts with buildings and spaces rather than with uses. Some of the goals of FBC are to improve the quality of the built environment, provide more community control over the quality and configuration of what is built,provide more certainty and specificity for developers and property owners, and improve the quality of public realm and its buildings. FBC is typically developed through a planning process and then put into regulatory form as to how the buildings would work,given the urban design concept plan. FBC can be integrated into existing development code, through quasi judicial review processes. They are no different, from an adoption point of view, as a set of design standards. They are configured for 3-dimensions and are graphic, as opposed to words on a page. The characteristics and elements of FBC were described. It was advised that one of the goals of FBC is to simplify the review process. It allows for some diversity of design for the architect, but it does restrict buildings from being too large or too small or moving away from the street. A big difference from FBC and regular development codes would be public spaces and street standards. FBC would tie the form of the building to the street setting. The consultants reviewed sample matrices from other cities. It was noted that there are the same limitations with a fact-based code as with a form-based code. The consultants advised that decisions would be made about what's appropriate given certain places within the community. Ron Bunch believes that with fact-based codes, everything has to be based on fact (findings & conclusions have to be made). With traditional codes, the same building forms tend to be repeated over and over because the developer is not given the information about what the community really wants. The developer responds to market conditions. FBC provides more of an impetus toward better architecture and form. PLANNING COMMISSION MEETING MINUTES—February 26,2007—Page 3 • • The consultants noted that Beaverton has a Design Review Board. They have 5 general principles of design and review everything but single family applications. The design criteria were overwhelming so they eventually created a 3-tier system—one had specific quantifiable standards based on facts and land use codes; larger projects or projects in certain areas automatically went to the Design Review Board; and in some cases, only the standards that the developer wanted a variation for were reviewed, rather than the whole project. The 3-tier system streamlined the permitting process and dealt with design in a quantifiable way. FBC is no different in concept and procedure;it's just a different way in how to regulate code in a 3- dimensional way. FBC should be treated the same as any other design-related development regulations. They need to be processed through public hearings and created through a public process. The consultants have not seen anything in Oregon land use requirements that would preclude using FBC. The consultants advised that,if the City wants to pursue FBC or any design- related regulations, the development community needs to be involved in the incorporation of those plans. They will have good ideas about what works and what doesn't. The development community should be invited early in the process. The consultants were asked how FBC has been accepted in other communities and if there are guidelines or ways of stopping it from becoming too restrictive. The oldest example is the FBC done in Seaside, Florida. It's a private development that started with open land, so it's hard to tell yet. Alexandria,Virginia has used FBC for about 4-5 years and they are pleased with it. Becoming too restrictive is always an issue with any kind of design restrictions. There has to be a line between what is necessary and what is clearly unnecessary. For example, restricting color choices is over the line. You don't want to have regulations that stymie development. It's counter-productive and needs to be watched. The consultants noted that some of the earlier codes were written so that the form-based aspect was an election. Developers could choose either a design standard way or a FBC way. Basically, there were 2 separate codes and developers could choose to use either one. The consultants were asked if they were aware of any community where the Planning Commission does design review rather than a Design Review Board or some other architectural component. The consultants answered that it's more typical for a Design Review Board to do the review. Ron Bunch noted that,in his experience,Planning Commissions typically address the large scale policy issues and recommendations to City Council (Comprehensive Plan, standards, etc.); Hearings Officers and Design Review Boards hear the day-to-day things for discretionary review. The Planning Commission will have a follow-up discussion on this issue at the March 5th meeting. The CCAC was invited to attend. 6. OTHER BUSINESS PLANNING COMMISSION MEETING MINUTES—February 26,2007—Page 4 • • None 7. ADJOURNMENT The meeting adjourned at 9:06 p.m. Jerree - 's, Planning Commission Secretary J � ATTEST: President Jodie Inman PLANNING COMMISSION MEETING MINUTES—February 26,2007—Page 5 • 0 E)( . (4 FORM BASED CODE DRAFT#6 Presentation for the City of Tigard INTRODUCTION Section I What constitutes high quality and functional urban design for small downtowns? Principles for high quality downtowns: wr- se`s fir, °� _r Section II How design review occurs under Oregon's fact-based land use process: Procedural aspects that must be observed in the development review process Overview of form based code(FBC)concepts H Why use FBC with current zoning codes and ;�" design standards? % gi -11- Characteristics of form based code ?'s. Elements of FBC _ How FBC Works-Examples of Matrix 0 -- -'°'- Organizing Prindples �"!� •' Mechanics of Implementation , 1 • • Section I What constitutes high quality and functional urban design for small downtowns? �,;�•\ �; ,,,,i Principles for high quality downtowns: �y. \ yt` i�; Pedestrian Scale organization,rather than automobile scale organization-small block structure with active --� t uses(fosters variety and Intensity) `' •z Sufficient housing density In dose proximity(walking distance)to support active street life and retail that lC� provides residents'daily and long term needs *.,'�'�.�i.'1 A balance of work,living,retail and entertainment(a - `� mix of uses)so residents consider the downtown as C.�t 1 -4' a destination for short and long term needs _ _ ` Quality design and construction-is a symbol of local - values ' ' �t ' s l F , r lm, otN n '31 at r 411 Ira' : -7,--.0.4 et ` . 5. �( lml -d 1 , t [a 1 y�s: at I ; is r.: f ri , 4'.4 Ji I l .K iS ,. .M Y i '• ... .. Signage focused on pedestrian scale observation Public places(parks,streets and squares)that encourage ' ,i : ; •public usage \ i1 (,.- An actively and imaginatively managed public realm with ; ii $4:j ' • places that encourage events and public involvement g: .t; Activities and elements that safely bring children,people • . ',j1 .. • of all ages and physical abilities into the new public q ',f ;; �_I spaces J Opportunities for a variety of scales of businesses, I j ', `}. including live/work,street vendors,incubators,artists Plan and build for a balance of community Interests for I •" '* variety of economic and age,constituents z ± I A� t il j ' Y i T# �,T T W v Frail r i r i l :'.,:'':'.,:''v'''.- 11 -A 1'r; - I 2 • Traffic calming principles to ensure that the •° +; automobile is accessible but not intrusive resits) i... Develop A variety of accessible transportation modes i r 1.44 - r, � .. Ensure that buildings support public life in form $ and configuration,letting sunlight into public places and not overshadowing Take the best urban Ideas from history and use them in a way that fits the local context I it II 411) ' I),L ? ; =1 prr t 't Provide for an ongoing public process in a specific place that encourages dialogue between decision makers,residents and stakeholders.The dialogue will examine values,opportunities,issues and aspirations,the bases of a three dimensional plan and form based code How do urban design decisions and developer investment follow principles? Development of form based standards to ensure that Investment is protected by quality design and construction Section II Overview of form based code(FBC)concepts: How design review must occur under Oregon's fact based land use process FBC is a refinement plan/overlay and subject to the statutes Procedural aspects that must be observed by the development review process,in order to provide a dear understanding of what constitutes legally defensible design regulations and procedures under the Oregon land use system. (Oregon's revised statutes in general and specifically ORS 197's) Development of quantifiable regulations(administrative decision)or dear,objective Interpretation of standards by a quasi legal process(Design Commission) (b)The approval or denial of an application,based on discretionary standards designed to regulate the physical characteristics of a use permitted outright,including but not limited to site review and design review,197.195 FBC is no different than design review standards and guidelines now being used in a number of dties including Beaverton,Portland,Bend,Lake Oswego and Hillsboro Are form based land use regulations the best way to expedite the land use/design review process that results in quality buildings and public spaces?yes Can FBC be combined with other types of standards/regulations? Yes 3 • Definition of FBC: A predictable method of regulating the quality and configuration of development directed toward the goal of improving the public realm. This is accomplished by unifying a three dimensional plan and regulations that graphically emphasize improving the economic viability and physical quality of cities. FBC is a land development regulatory tool that emphasizes the physical form of the built environment (public realm). Its end goal is to produce a type of place that addresses relationships among and between buildings and the public realm. It does this without eliminating land use regulations. By understanding what future development will be like,communities can make better decisions about what will be built Goals of Form-Based Code(FBC) Improve the quality of the built environment-(buildings and public places) Improve the certainty of the quality and configuration of what is built(fewer surprises) More community control over the quality and configuration of what is built Transparency for developer(two tier system)acceptance of FBC vs.more ambiguous Design Standards/Commission Greater certainty for developer-Projects can be planned with more knowledge of outcome FBC Improve the quality of public realm and its buildings: Based on visual district standards provided by an area master plan and matrix They are visual and written rules for the form of buildings and public places They emphasize mixed use development and a variety of typologies for divergent needs and densities Based on a public participation process 4 • • Integrate form based codes into a legally defensible design review and land use program that provides economic incentives to developers. Clear and objective standards Place based land use process-tied to local values Provide Findings Time Frames within process Why use FBC with Current Zoning Codes and design standards? Shortfalls of zoning(a blunt instrument for achieving community development goals) Based on land use,rather than the quality of the buildings and the public realm Height-usually maximum only,rather than minimum and maximum Density-units/acre and FAR(floor area ratio) Overly complex and difficult to understand Open to uncertainty-unable to demonstrate the result of zoning Not related to quality Focused on protecting adjacent uses from impediments Leads to homogeneous single use districts Separates and compartmentalizes uses Design standards are difficult to interpret and enforce,because they are ambiguous and usually unrelated to plans or examples 5 • • Characteristics of form based code: FBC is a statement of community development goals. FBC will achieve a more predictable built result than zoning, because it is based on a plan that proposes specific physical qualities/attributes Elements controlled by FBC are those most important to shaping a quality public realm FBC provides physical examples and guidance for Implementation with community support The process of developing a plan offers communities opportunities to consider the physical character of the community Community members will have easier access to FBC,because of its physical descriptions and stated goals of the code Less open to legal challenge,because failure to comply would diminish the good that comes from the community adopting a specific plan and code Elements of FBC: Regulating Plan:providing a coherent strategy based on community intentions to implement the agreed configuration,physical character and quality of future development. The plan will show building sites, street types,build-to lines and design features. Urban Regulations:standards organized by district and building type,presented in the form of a matrix and diagrams that address bulk,height,coverage Public Space/Street Standards:width and dimensions of streets,sidewalks,paths,curb heights, parking requirements etc. Building Form Standards:regulations controlling building and landscape configuration,character and a range of functions,Including walls,windows,fences,roofs and species,sizes,locations of trees and plantings. Administration: dearly defined application and project review process Definitions: glossary to ensure understanding technical terms Annotation: text and illustrations explaining intent of specific code provisions. 6 • • How FBC Works- Examples of Matrices Seaside urban code LOZOCODX-ttIla/ASD( • ' x.11 • CVO• Cam✓, • :loll • .:eV _•It •0.•.O.XI •yOq •R • • • • • • • • • L - v.:::4. B -g- t- jH NCI NC/0 . - _ :sues _ ...:i. .te •r . ._ ,_20 :.:,J .J- _al - -'-t Generic FBC Matrix (RURAL I URBAN DISTRICTS pr�ro +7 `� .,Ili �'''.I—: is f - Oi0OOp0�-O o� i0�� `OISti I- l_� 00 o.�.p 1; a tom • 0 t o 1 l'•° -�• �. °toQp!of" "t - I -'=":c a oo.;I0 •G o • a M l�M! Sin= Ti i[ie"ve I T2 :EiEY-v T3 VIL. T4 811::" 15 u""" 16 Mt" p Dl,= I 7 • FBC Matrix Arlington VA D.BOLAND EA‘ELOPESNADAADS.LOCAL STD sona■ •...LT •■•A.N. • :===== E-1--7.71-7r7514.- ----- . =.4"."*.• "'"`*""' 74--" t.=211.14:gra 741 •_I ""7 2.- t" 1_4( it‘r..-4-5:47.1.16 •"=7.=.- taFF-." Three Dimensional Examples ■ve,T PALM EEAC,MASTER PLAN UPDATE ; Ts • .• . .• • .•• /.7 ..• ‘• / \ //I/ .• .• .•• • :.• 8 • • Landcaster,CA 5.4 BUILDING TYPES AND REGULATING PLANS BUILDING TYPES A taring No a*eo•sm..,Sul..due................,ed...0....,... mt..1.,.1.......1...... 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'rr.;.......r=jr.r,....... r::=.."-.7.,:"..77.:::=:==.'.. •.....•-••--..-..-. ......................... ...-.---- . ....,-.........-. ........................... •"Z.:L..":T.=7..r.'::7.7:-. . =.-....:.=-%..' ............... ?=L. :..":=.....7.=:.7:-.7.".r .,............•-••.--. .,•"-"""`"'?:-." :'::-....“7"'"- •..........7.-.1.................... ._. ”1.7.::,='.'..7====?'"'" ?::7:-........ . :::-....... .........................,.... ................................. 1 ...;-::::::"...":=1.:= 9 • • Organizing Principles: Graphic codes may be organized in several ways(based on which part can fit into the Oregon land use system). Coding by a hierarchy of street types Boulevard Main streets Squares Secondary downtown streets Residential streets Lanes Pedestrian walks Alleys Coding by Location: Town center Neighborhood center Neighborhood general Neighborhood edge Coding by building type: Mixed-use buildings-commercial and housing Loft buildings/workshops Apartment houses,boarding houses,hotels Rowhouses/duplexes(0 lot line houses) Side-yard houses Independent houses Mechanics of Implementation(general): Existing conditions analysis and inventory Develop a participatory plan to ensure an open process;prepare an urban design plan. Develop an urban design plan together with stakeholders,public,Planning Commission and City Council (completed In Tigard) Present urban design plan to participants,stakeholders,Planning Commission and City Council Revise to more nearly fit the chosen vision for the urban design plan Develop FBC matrix(graphics and words)designed to Implement the agreed urban design plan Present the FBC matrix to participants in the urban design process,Planning Commission and City Council for approval. 10 • • Legal Issues: Discretion-manner in which regulations are written: FBC must also contain sufficiently detailed and meaningful standards to alert applicants to what is expected of them,while allowing sufficient discretion in the decision making body to ensure approval of an application. Delegation-manner in which regulations are administered: Local government will need to administer and interpret the FBC. Local government can be advised by an architectural review board or a town architect. However,neither can be a proxy for the decision-making body. 'The determination must be made of the appropriate balance between the degree of prescription required to create the desired physical result and the amount of discretion necessary to find solutions to problems that could not be anticipated when regulations were drafted? The resistance to prescriptive design regulations is practical and political rather than legal. Often Heard Objections to FBC Too prescriptive based on a particular style of architecture Too arbitrary in implementation and subject to abuse Does not allow for creative solutions 11 • • ACI-71i1-c-c,/' 67442'72("6-6i-ern,e4-5-. Afv2-0-/-7,,Jcze 64d4i- kt C // • • • MEMORANDUM T I GARD TO: Planning Commission and City Center Advisory Commission FROM: Sean Farrelly, Associate Planner RE: February 26th Joint Planning Commission/ City Center Advisory Commission Meeting DATE: February 14, 2007 Purpose This memo outlines the existing regulatory framework and the proposals for a new Land Use program for the Downtown Urban Renewal Area. Introduction The City is engaged in developing new Comprehensive Plan goals and policies, plan and zoning map designations, and development code regulations for the Downtown Urban Renewal District. The goal is to provide a land use and urban design program to guide the development of a walkable, vibrant, mixed-use urban village as detailed in the Tigard Downtown Improvement Plan (TDIP). As part of this process, a joint Planning Commission- City Center Advisory Commission meeting has been scheduled for February 26th. A presentation by architecture and urban design consultants will be made at this meeting to outline options for new design regulations for new development in the Downtown Urban Renewal Area. Background/Discussion Current Regulatory Context Currently, most of the Urban Renewal District is zoned Central Business District (CBD) a mixed-use commercial zone, which allows a wide variety of uses, including residential up to R-40 density. 14% of the land area is occupied by nonconforming industrial uses, (six of these properties are specifically permitted to continue as Industrial uses in the Tigard Community Development Code.) There are also a few additional Interim requirements for new development in the CBD zone. • • The section of the district north of Highway 99W is zoned General Commercial and Professional Commercial, which do not permit residential uses. There are also five properties on Hall Boulevard zoned R-4.5 which allows only residential uses. Options for New Regulations The TDIP includes recommendations for updating the Downtown development code, specifically six new mixed-use zoning districts and design regulations for new development. The CCAC has endorsed these six new zones with some modifications and a framework for design guidelines. Comprehensive Plan A necessary first step in the process of changing the Downtown development code is to update the Goals, Policies, and Action Measures for the Downtown chapter of the Comprehensive Plan. The Planning Commission and the CCAC have reviewed a draft of the proposed changes, and their comments have been incorporated. On March 19, 2007, a public hearing with the Planning Commission will be held to consider these proposed changes. If recommended for approval, the City Council will hold a public hearing to make a decision. Land Use Designations/Development Standards New zones will detail permitted land uses and requirements for public facilities, parking, height, floor area ratios, etc. The creation of new zones will require careful drawing of boundaries, consideration of how to treat nonconforming uses, and minimizing the potential for generating Measure 37 claims. Design Regulations The creation of an urban design program will require addressing additional questions. Urban design regulations typically take the form of objective "design standards" and/or discretionary "design guidelines." These regulations seek to codify principles of good urban design, by ensuring that new buildings are of appropriate mass and scale and are designed to create a good pedestrian environment. An issue to be decided is the administrative format of the new regulations. The development review process must conform to Oregon's fact-based land use process. Considering Oregon's land use process, when are "clear and objective" standards (Type II process) required, and when is discretionary design review ( a Design Review Board evaluates an application pursuant to design guidelines) permitted? "Design standards" are clear and objective statements. An example from Beaverton's code: Primary building entrances. Primary entrances, which are the main point(s) of entry where the majority of building users will enter and leave, shall be covered, recessed, or treated with a permanent architectural feature in such a way that weather protection is provided. The • • covered area providing weather protection shall be at least six (6)feet wide and four(4)feet deep. Typically, if an applicant can show that they meet all of the standards, a decision can be made by staff(subject to appeal.) "Design guidelines" are discretionary, and open to interpretation. An example from Beaverton's code: Primary building entrances. Special attention should be given to designing a primary building entrance that is both attractive and functional. Primary entrances should incorporate changes in mass, surface, or finish, to emphasize the entrance. An applicant can choose to demonstrate how their project would meet the design guidelines. The decision would typically be made in a public hearing before a body such as an appointed Design Review Board. Form-based codes The CCAC has also expressed interest in the applicability of"form-based codes." A form-based code is a method of regulating development that is focused on controlling physical form primarily, with a lesser focus on land use. A potential advantage of such a code is that the approval process is often more efficient and understandable, which could accelerate Downtown redevelopment. The interest in "form-based codes" comes from the desire to attain well-designed development in the Downtown area without undue regulatory delay. A crucial question is whether "form-based" codes can fit in the Oregon land use process model. Whatever new land use regulations are created should strike a balance between the community's desire for ensuring high quality design of new development and the needs of developers for timely decision making on their projects. Upcoming Schedule: March 19: Planning Commission Public Hearing: Comprehensive Plan Goals, Policies, and Action Measures April: City Council Public Hearing: Comprehensive Plan Goals, Policies, and Action Measures March-April : CCAC/PC Briefings on proposed Design Guidelines/Standards April-May: CCAC/PC Briefings on Land Use Zones, Development Code Processes June-October: Planning Commission/ City Council public hearings on Zoning, Design Guidelines and Standards DRAFT •DRAFT D DRAFT S P E C I A L A R E A S O F CONCERN 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 (1'DIP).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 6. Performing Arts and Recreation Center 7. Fanno Creek Public Area Special Areas of Concern 1 Downtown • • DRAFT DRAFT DRAFT DRAFT 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. Statewide Goals and Policies 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 (I'PR) 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 RAFT DRAFP DRAFT Regional Planning Requirements 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. (Report Accompanying 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 System 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 DRAFT DRAFT DRAFT • 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 99W. 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 Tomorrow's 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 11.1. Facilitate the Development of an Urban Village 11.1.1 New zoning, design standards and design guidelines shall be developed and used to ensure the quality, attractiveness, and special character of the Downtown as the "heart" of Tigard,while being flexible enough to encourage development. 11.1.2 The Downtown's land use plan shall provide for a mix of complimentary land uses such as: a) Retail,restaurants, entertainment and personal services; b) Medium and high-density residential uses including rental and ownership housing; c) Civic functions (government offices, community services,public plazas,public transit centers, Special Areas of Concern 4 Downtown DRAFT lkIRAFT DRAFill DRAFT etc) d) Professional employment and related office uses e) Natural Resource protection, open spaces and public parks 11.1.3 The City shall not permit new land uses such as warehousing; auto-dependant uses;industrial manufacturing; and industrial service uses that would detract from the goal of a vibrant urban village. 11.1.4 Existing nonconforming uses shall be allowed to continue, subject to a threshold of allowed expansion. 11.1.5 Downtown design, development and provision of service shall emphasize public safety, accessibility, and attractiveness as primary objectives. 11.1.6 New housing in the downtown shall provide for a range of housing types,including ownership, workforce and affordable housing in a high quality living environment. 11.1.7 New zoning and design guidelines on Main Street will emphasize a "traditional Main Street" character. 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. 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. 11.3 Develop Comprehensive Street and Circulation Improvements for Pedestrians,Automobiles, Bicycles and Transit 11.3.1 The Downtown shall be served by a complete array of multi-modal transportation services including auto, transit,bike and pedestrian facilities. 11.3.2 The Downtown shall be Tigard's primary transit center for rail and bus transit service and supporting land uses. 11.3.3 The City in conjunction with TriMet shall plan for and manage transit user parking to ensure the Downtown is not dominated by"park and ride" activity. 11.3.4 Recognizing the critical transportation relationships between the Downtown and surrounding transportation system, especially bus and Commuter Rail, Highway 99W, Highway 217 and Interstate 5, the City shall address the Downtown's transportation needs in its Special Areas of Concern 5 Downtown r • DRAFT DRAFT DRAFT DRAFT Transportation System Plan and identify relevant capital projects and transportation management efforts. 11.3.5 Streetscape and Public Area Design shall focus on creating a pedestrian friendly environment without the visual dominance by automobile-oriented uses. 11.3.6 The City shall require a sufficient but not excessive amount of parking to provide for Downtown land uses.Joint parking arrangements shall be encouraged. 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.A Facilitate the Development of an Urban Village 11.A.1 Develop design guidelines and standards that encourage attractive and inviting downtown commercial and residential architecture with quality design and permanent materials,particularly in the building fronts and streetscape. Also develop appropriate density, height, mass, scale, architectural and site design guidelines. 11.A.2 Utilize form based code principles in ways that are consistent with state planning laws and administrative rules. 11.A.3 Adopt non-conforming use standards appropriate to a downtown in transition. 11.A.4 Develop code measures to mitigate any compatibility issues when new downtown development occurs in close proximity to the Downtown's commuter rail line. 11.A.5 Provide areas in the Downtown where community events, farmer's markets, festivals and cultural activities can be held. 11.A.6 Designate the Downtown area as the preferred location for Tigard's civic land uses. 11.A.7 Promote an awareness of the Downtown's history through measures such as public information, urban design features and preservation of historic places. 11.A.8 Monitor performance of design guidelines, standards and related land use regulations and amend them as necessary. 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.B.2 Develop "green connections" linking parks and greenways with adjacent land uses,public spaces and transit. Special Areas of Concern 6 Downtown DRAFT )RAFT DRAFP DRAFT 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. 11.0 Develop Comprehensive Street and Circulation Improvements for Pedestrians,Automobiles, Bicycles and Transit 11.C.1 Develop a circulation plan that emphasizes connectivity to, from, and within the Downtown in the design and improvement of the area's transportation system,including developing alternative access improvements to Downtown, such as connections across Highway 99W. 11.C.2 Address public safety and land use compatibility issues in the design and management of the Downtown's transportation system. 11.C.3 Investigate assigning different roadway designations within the general area of the Downtown as means to support transportation access to Town Center development such as ODOT'S Special Transportation Area (STA) and Urban Business Area (UBA). 11.C.4 Implement an integrated Downtown pedestrian streetscape and landscape plan. 11.C.5 Acquire property and easements to implement streetscape and landscape plans, and develop needed streets, pathways, entrances to the Commuter Rail park and ride lot, and bikeways. 11.C.6 Express the themes of an urban village and green heart by utilizing the "unifying elements" palette from the Streetscape Design Plan to design streetscape improvements. 11.C.7 Emphasize sustainable practices in street design through innovative landscaping and stormwater management and provision of multimodal infrastructure. 11.C.8 Encourage sustainability features in the design of Downtown buildings. 11.C.9 Encourage the formation of a Downtown Parking and Transportation Management Association. 11.C.10 Incorporate the Downtown's public investment / facility needs into the City's Public Facility Plan and implementing Community Investment Plan. D. Other Action Measures 11.D.1 Develop and implement strategies to address concerns with homeless persons and vagrancy in the Downtown and Fanno Creek Park. 11.D.2 Provide public,including members of the development community,with regular informational updates on Urban Renewal progress and an accounting of funds spent by the City Center Development Agency. Special Areas of Concern 7 Downtown • DRAFT DRAFT DRAFT DRAFT Action Chart: Downtown Action Timeline Who Implements Short Medium Long (City Departments) Term Term Term Ongoing_ Next 5 6 to 10 11+ Years Years Years J. FACILITATE THE DEVELOPMENT OF AN URBAN VILLAGE 11.A 1 Develop Design Guidelines for the X CD-LR,CD-CP Downtown Urban Renewal Area 2 Utilize form based code principles that X CD-LR,CD-CP are consistent with state law 3 Adopt non-conforming use standards X CD-LR,CD-CP 4 Develop code measures to mitigate X CD-LR,CD-CP compatibility issues Provide areas where community events, 5 farmer's markets,or other events can be X X CD-LR,CD-CP held 6 Designate the Downtown area as the X CD-LR preferred location for civic land uses Promote an awareness of the -_- X CD-LR,CD-CP Downtowns history 8 Monitor perf end use eg of lation --. X CD-LR,CD-CP guidelines, land use regulations 11.B DEVELOP AND IMPROVE OPEN SPACE AND INTEGRATE NATURAL FEATURES Acquire property and easements to 1 protect natural resources and provide X X CD-LR, PW public open space areas 2 Develop"green connections" X X CD-LR,CD-E, PW 3 Incorporate public art into the design of X _- X CD-LR,CD-E, PW public spaces. 4 Enhance the landscape and habitat of X -■ X CD-LR,CD-E, PW Fanno Creek 11.0 DEVELOP COMPREHENSIVE STREET AND CIRCULATION IMPROVEMENTS 1 Develop Access and Circulation Plan X CD-E,CD-LR Address public safety and land use 2 compatibility issues in the design and X CD-E,CD-LR management of the transportation system 3 Investigate assigning different roadway X CD E,CD-LR designations 4 Implement an integrated pedestrian X ■ CD-E,CD-LR streetscape and landscape plan Special Areas of Concern 8 Downtown DRAFT t)RAFT DRAFP DRAFT C.Vc==f 11 1n/Uo II �f t . ;© wue.r Acquire property and easements to 5 implement streetscape and landscape X X X CD-E,CD-LR plans,and new streets 6 Use the"unifying elements" palette to X CD E,CD-LR design streetscape improvements Emphasize sustainable practices in street X CD E,CD-LR design Encourage the formation of a Downtown 8 Parking and Transportation Management X CD-LR Association 9 Encourage sustainability features in the X X CD-LR design of Downtown buildings Incorporate the Downtowri's public 10 investments into the City's Public Facility X X CD-E,CD-LR Plan and implementing CIP 11.D OTHER ACTION MEASURES Develop and implement strategies to 1 address concerns with homeless persons X CD-LR and vagrancy in the Downtown and Fanno Creek Park 2 Provide public with regular informational X X CD-LR updates on Urban Renewal progress 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 9 Downtown .• • •-• zoninLt r E:)...:?-1.•:,1 - I •