Resolution No. 14-65 CITY OF TIGARD, OREGON
TIGARD CITY COUNCIL
RESOLUTION NO. 14-6-5-
A RESOLUTION TO AMEND THE PARK SYSTEM MASTER PLAN TO INCLUDE PROJECTS
NECESSARY TO MEET THE CITY'S LEVEL OF SERVICE STANDARDS IN RIVER TERRACE Gca--
WHEREAS,the City of Tigard annexed the River Terrace area west of Bull Mountain in 2011 and 2012;and
WHEREAS,the City of Tigard has an existing Park System Master Plan that does not include the River Terrace
area,and
WHEREAS, the City of Tigard has completed a Park System Master Plan Addendum specific to the River
Terrace area, contributing to the city's broader goal of completing the River Terrace Community Plan and
meeting Metro requirements for public facility planning,and
WHEREAS, public park and trail projects have been identified as part of the Park System Master Plan
Addendum consistent with the city's level of service standards,and
WHEREAS, these projects are appropriate and necessary additions to the City of Tigard Park System Master
Plan,and
WHEREAS, the City of Tigard may desire to use park system development charges to fund part or all of these
projects,and
WHEREAS, the City of Tigard may desire to adopt additional fees and/or charges to fund part or all of these
projects,and
WHEREAS,a comprehensive funding strategy for all public facility projects in River Terrace will be developed
as part of the River Terrace Community Plan.This strategy will include a list of projects to complete in the near
term and recommended funding sources.
NOW,THEREFORE,BE IT RESOLVED by the Tigard City Council that:
SECTION 1: The River Terrace Park System Master Plan Addendum (Exhibit A) is hereby adopted as part
of the City of Tigard Park System Master Plan.
SECTION 2: The projects identified in the River Terrace Park System Master Plan Addendum shall be eligible
for funding from park system development charges (SDCs) as allowed under Section 3.24.060 of the Tigard
Municipal Code.
SECTION 3: This resolution is effective immediately upon passage.
PASSED: This f�` day of 12"Ce ni 6eiL 2014.
RESOLUTION NO. 14-6,5--
Page
SPage 1
wj�4
Mayor t of Tigard
ATTEST:
City Recorder-City of Tigard
RESOLUTION NO. 14- 6 s
Page 2
f
TIGARD
City of Tigard
DECEMBER 2014
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Park System Master Plan Addendum
Iver Terra.ce
City of Tigard
Park System
Master Plan Addendum
December 2014
ACKNOWLEDGEMENTS
We would like to thank the many citizens,staff,and community groups who provided extensive
input into the development of this Plan. Special thanks are due to the members of the River
Terrace Technical Advisory Committee and Stakeholder Working Group.
CITY STAFF
Kenny Asher,Community Development Director
Tom McGuire,Assistant Community Development Director
Susan P Shanks,Project Manager and Senior Planner
Steve Martin,Parks and Facilities Manager
Michael Stone,City Engineer
Marissa Grass,Associate Planner
This addendum was completed by Otak, Inc. of Portland OR,Project Manager—Derek
Chisholm
�rnr:.
TABLE OF CONTENTS
I. INTRODUCTION................................................................................1
11. EXISTING PARK SYSTEM .................................................................2
III. PUBLIC INVOLVEMENT ..................................................................2
I V. NEEDS ANALYSIS...............................................................................3
Typesof Parks...........................................................................................................................3
Levelof Service.........................................................................................................................4
V. RECOMMENDATIONS .........................................................................6
ParkSystem Plan......................................................................................................................6
ParkLocations...........................................................................................................................8
ParkDesign Guidelines.......................................................................................................12
CostEstimates.........................................................................................................................13
Potential Strategies for acquiring and Developing Parks.....................................19
Tigard Park System Master Plan Addendum
I. INTRODUCTION
In 2008 and 2009,the City of Tigard updated the community's Park System Master Plan,
hereafter referred to as the Park Plan. The Park Plan is the document that guides park,
recreation,open space,and trail development in the city. It was presented to the Park and
Recreation Advisory Board and the Tigard City Council in June of 2009. The City Council
adopted it on July 14,2009.
Since the adoption of the Park Plan in 2009,the West Bull Mountain Concept Plan (WBMCP)
was completed and adopted by Washington County and the city. The area now known as River
Terrace (and formerly known as West Bull Mountain) was also annexed to the city. This
addendum provides an update to the Park Plan specific to the River Terrace study area and
contributes to the city's broader goal of completing a River Terrace Community Plan.
Figure 1: River Terrace Study Area (outlined in yellow)
41
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The WBMCP included a parks and open space framework that provides the basis for parks
planning in River Terrace. This addendum refines the WBMCP framework while staying true to
the original vision by providing local and regional trails,protected open space,and a robust
neighborhood and community park system. The 300 Foot Trail in the WBMCP is now referred
to as the River Terrace Trail.
1
Tigard Park System Master Plan Addendum
I I. EXISTING PARK SYSTEM
The Park Plan outlines the need to acquire and construct new parks,preserve open spaces,
enhance water quality,and provide recreational opportunities. A full inventory of city facilities
and future projects may be found in the Park Plan.
On November 2,2010,Tigard voters passed a$17 million general obligation bond to fund the
purchase of real property for parks and to fund a limited amount of park improvements. Most
of the bond proceeds have been used to buy park land and open space. In the summer of 2013
alone,the city broke ground on four projects that were funded in full or in part by revenue from
the parks bond.
Projects included:
• A new section of the Fanno Creek Trail (Main St. to Grant Ave.)
• Improvements at East Butte Heritage Park,including a playground,shelter,restroom,
walking paths and a sidewalk along 103rd Ave.
• A new bridge in Jack Park,connecting a newly purchased property adjacent to the
existing park.
• Parking,bike racks and landscaping at the Fanno Creek House on Hall Blvd.
In 2013,the city also completed the design for Dirksen Nature Park. This park project was
identified as a high priority in the Parks Plan and in the Notice of City Measure Election
provided to voters regarding the parks bond. The existing ball field will be re-oriented with a
soccer field overlay. A restroom,interpretive shelter,and restoration plantings will also be
installed.
Additionally,the Sunrise property,located near the River Terrace study area,was purchased as a
future community park. This currently undeveloped parcel is located on the north side of Bull
Mountain,at 150th Avenue and Sunrise Lane. The Sunrise Conceptual Master Plan—based on
community meetings, stakeholder discussions and detailed site analysis—includes a soccer field,
t-ball field,sports court,playground,restroom,shelter,overlook,pathways and parking for
approximately 30 cars. The design will provide connections to Mistletoe Drive Trail to the
north and the Cach Natural Area to the west. The 20-acre Sunrise property purchase marks one
of the larger acquisitions made possible through the passage of the parks bond.
III. PUBLIC INVOLVEMENT
Throughout the development of this Park Plan addendum,the city worked to create a plan for
River Terrace that reflects community values and has community support. A variety of public
involvement opportunities were made available to encourage participation in the decision
making process,including several community open houses and monthly stakeholder working
group and technical advisory committee meetings. The city sent out email notices for meetings
and updates on milestones,and also maintained a webpage on the project,which included all
meeting materials.
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Tigard Park System Master Plan Addendum
I V. NEEDS ANALYSIS
This section describes the types of parks included in the Park Plan. It also includes an
assessment of park needs in the River Terrace study area,with the understanding that individual
sites will require site-specific studies and designs to determine what will ultimately meet the
community's needs and address individual site opportunities and constraints.
Types of Parks
Community Parks
Community parks provide a variety of active and passive recreational opportunities for all age
groups and are generally larger in size and serve a wider base of residents than neighborhood
parks. Community parks often include facilities for organized individual, family,and group
activities. Community parks also provide opportunities for environmental education and
community social activities.
Tigard's existing community parks are the 75-acre Cook Park and the 30-acre Summerlake Park.
Community parks are the signature facilities in Tigard that promote community identity while
also providing local park services to nearby residents.
Neighborhood Parks
Neighborhood parks are the foundation of the parks and recreation system,as they provide
accessible recreation and social opportunities for nearby residents. When developed to meet
neighborhood recreation needs, school sites may serve as neighborhood parks.
Tigard's existing neighborhood parks are Jack Park,Elizabeth Price Park,Bonita Park,
Northview Park,and Woodard Park.
Tot Lots/Pocket Parks
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.
Tigard's existing pocket parks are Liberty Park and Main Street Park. These sites do not contain
any park amenities,but they do provide green space and help to beautify the Tigard town center.
Linear Parks
Linear parks offer opportunities for trail-oriented outdoor recreation along built or natural
corridors. They can also connect residents to major community destinations and provide active
and passive recreation facilities to meet neighborhood needs. This is especially important in
areas not adequately served by traditional neighborhood parks. Linear parks can vary greatly in
width and length,with size often depending upon the intended uses and any adjacent natural
resource areas that may require protection.
Tigard's existing linear parks are Commercial Park,Englewood Park,and Fanno Creek.
3
Tigard Park System Master Plan addendum
Trails
Trails provide outdoor recreation along built or natural corridors. They also provide circulation
and access through Tigard. They connect streets,reducing out-of-direction travel for
pedestrians,bicyclists,and other non-motorized users. They are also used to get to schools,
parks,employment,and shopping. Trails provide connections at varying levels from connecting
neighborhoods to accessing the regional trail system.
Tigard has an extensive network of existing trails including sections of the Fanno Creek Trail,
Tualatin River Trail,Summer Creek Trail,and Pathfinder Genesis Trail.
Open Space
Open space land is publicly or privately-owned,undeveloped or minimally developed,and
intended for either active or passive outdoor recreation. Open space land may include facilities
that support nature-and trail-oriented recreation. It may also be undeveloped and primarily set
aside for the protection of natural resources,such as fish and wildlife habitat. This type of land
often includes wetlands or steep hillsides as well as land intentionally left undeveloped to protect
surrounding land uses or manage stormwater. Open space land is sometimes referred to as
greenspace or a greenway. Greenways are often linear in nature. There are many greenways
along streams and drainageways in Tigard.
Level of Service
During the WBMCP planning process,the City of Tigard,Washington County,and Tualatin
Hills Park&Recreation District(THPRD)were all considered potential park and recreation
providers.
As a result, the WBMCP created a hybrid standard using Level of Service (LOS) standards from
both Tigard and THPRD.
Table 1 shows the WBMCP hybrid standards and the city's current standards. For this Park
Plan addendum, the city's current standards will be used to assess park and recreation needs in
River Terrace since it is within Tigard's city limits and the city applies these standards on a
citywide basis.
4
Tigard Park System Master Plan Addendum
Table 1: Comparison of Park Standards
Park Type WBMCP Hybrid Standard City of Tigard
Standard
Community 3.0 acres / 1,000 3.0 acres / 1,000
Neighborhood 2.0 acres / 1,000 1.5 acre / 1,000
Tot Lot/Pocket 0.5 acre/ 1,000' No standard
Linear Contributes to Core Standard 10 acres / 1,000 1.25 acre / 1,000
Trail No Standard 0.26 miles / 1,0002
Open Space No Standard 4.25 / 1,000
Standards formatted as number of acres per thousand residents.
-From the 2012 Tigard Park System Development Charge(SDC)update.
Table 2 shows the total number of households and new residents anticipated in River Terrace
once it is fully built out. These estimates are used to determine the park and recreation needs for
River Terrace upon build out. This addendum does not identify park or recreation needs
elsewhere in the city.
Table 2: Build-out Assumptions for River Terrace
Land Use Zone Number of Households
R-4.5 218
R-7 1,225
R-12 674
R-25 470
Total Households 2,587
Total Population' 6,415
t Based on assumed 2.48 persons per household.
As shown in Table 2 above,2,587 households are anticipated based on the number of dwelling
units allowed by zoning,which equates to roughly 6,415 new residents. Table 3 shows the
estimated needs for new parks and trails based on these estimates. The largest acreage demand
is for Community Parks (19.25 acres).
5
Tigard Park System Master Plan Addendum
Table 3: Park Needs for River Terrace
Park Type City Standard Park Need
Community 3.0 acres / 1,000 19.25 acres
Neighborhood 1.5 acre / 1,000 9.62 acres
Tot Lot/Pocket No standard NA
Linear 1.25 acre / 1,000 8.02 acres
Trail 0.26 miles / 1,000 1.67 miles
Open Space 4.25 / 1,000 27.26 acres
Core Standard' 10.0 acres / 1,000 64.2 acres
I All park types,with the exception of trails,contribute toward meeting the core park
standard of 10 acres per 1,000 residents regardless of whether they have their own
standard or not.
As shown in Table 3 above,the city's core standard is 10 acres of park land for every 1,000
residents. This standard provides an overall measure of park and recreation levels of service,
regardless of the mix of facility types. This standard is met when the total of all parks,including
those that have no specific standard(e.g. tot lots,pocket parks,and open space areas),meets or
exceeds 10 acres per 1,000. Trails not otherwise located within other park types,such as linear
parks,do not count toward meeting the core park standard as they are measured by length,not
area.
V. RECOMMENDATIONS
This section includes a recommended park system plan for the River Terrace study area,
including a framework for siting parks and trails throughout the area. It also includes design
guidelines,park amenity descriptions,cost estimates,and implementation strategies related to
land acquisition and park development.
Park System Plan
The city is committed to meeting all adopted park and trail standards within the River Terrace
study area. The following recommendations provide a starting point for describing and showing
how these standards can be met. However,given that these standards can be met in many
different ways,it is expected that the size and number of parks that are eventually built in River
Terrace may vary from what is presented in this addendum.
The parks envisioned for River Terrace include the following:
Community Parks
River Terrace shall be served by at least two Community Parks,one in the north and one in the
south,as shown on Figure 2. The combined size of the recommended Community Parks is
19.25 acres,which meets the city standard.
6
Tigard Park System Master Plan Addendum
Neighborhood Parks
River Terrace shall include approximately six Neighborhood Parks,distributed evenly with one
for each of the six neighborhood areas that were identified in the WBMCP as shown on Figure 3.
Each neighborhood area is roughly one-half mile across and about 85 acres in size. The
combined size of the recommended Neighborhood Parks is 9.62 acres,which meets the city
standard.
Tot Lots/Pocket Parks
Tot lots and/or pocket parks may be provided in association with private development.
Linear Parks
River Terrace shall include linear parks in appropriate areas to an extent that meets the city
standard. Linear parks shall be co-located with all planned trails where practicable.
Trails
River Terrace shall include a major trail system designed to connect to nearby regional trails,
such as the Westside Trail,and to South Copper Mountain trails in the north. The proposed
River Terrace Trail shall extend through the heart of River Terrace from Scholls Ferry Road in
the north to 150`h Avenue. River Terrace shall also include connecting trails in the south,one
connecting with the Tonquin Trail in Sherwood and the other connecting the school site with
150''Avenue. Figure 4 shows the recommended River Terrace trail system. The combined
length of these trails is 3.01 miles,which exceeds the city's standard by 1.34 miles.
Open Space
In addition to parks and trails,an additional 65 acres of open space,largely along stream
corridors and wetlands,shall be protected from development. These areas provide open space
that contributes to meeting the city's Core Standard.
Core Standard
By providing the parks and trails as recommended above,the city will meet and/or exceed its
standards for specific park types and trails as well as the Core Standard of 10 acres/1,000
residents. Table 4 below provides a summary of these recommendations.
7
Tigard Park System Master Plan Addendum
Table 4: Park Recommendations for River Terrace
Park Type Park Need Recommendation
Community 19.25 acres 19.25 acres minimum(Locations
and exact sizes TBD)
Neighborhood 9.62 acres 9.62 acres minimum
(Locations and exact sizes TBD)
Tot Lot/Pocket No Standard May be provided by development
Linear 8.02 acres 8.02 acres minimum(Locations and
exact sizes TBD)
Trail 1.67 miles 3.01 miles proposed
Open Space 27.26 acres 65 acres under natural resource
protection
Core Standard' 65.82 acres 101.89 acres
I All park types,with the exception of trails,contribute toward meeting the core park standard of 10 acres
per 1,000 residents regardless of whether they have their own standard or not.
Park Locations
Unlike the WBMCP,this addendum does not provide specific locations for community and
neighborhood parks,as it is problematic to identify specific properties as park sites in advance
of acquisition. Owners of such properties may not wish to sell and/or their asking price may
be too high. As a result,park locations for River Terrace will be determined at the time of
development or at the time of acquisition by the city.
Due to the amount of acreage needed for the community parks,securing the land for these
parks is a priority. However,the city will not be able to make any potential community park
sites public until purchase agreements have been finalized. As for other parks and trails,it is
expected that the location and development of neighborhood parks,linear parks and trails will
be done through negotiations with landowners and developers on an ongoing basis as
development occurs. It is envisioned that Neighborhood Parks will be evenly distributed
throughout River Terrace with at least one park for each of the neighborhoods identified in the
WBMCP planning process.
8
Tigard Park System Master Plan Addendum
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1
Tigard Park System Master Plan Addendum
Figure 4: River Terrace Trails
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and locations are subject to
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11
Tigard Park System Master Plan Addendum
Park Design Guidelines
The city's design guidelines address development for each park type in Tigard. The guidelines
provide direction regarding the types of amenities and facilities that should be provided in parks,
as well as other supporting facilities to be considered. They are located in Appendix B of the
Park Plan,and are not repeated here.
The following design recommendations supplement the adopted design guidelines of the city.
These were developed during the WBMCP process and have been confirmed in the River
Terrace community planning process.
Trails
• Coordinate and design the River Terrace Trail to seamlessly integrate with the main N-S
Collector Street while maintaining its identity as a trail.
• Coordinate and design the River Terrace Trail to connect with the Westside Trail. This
regional trail is east of River Terrace and aligned along an electric transmission corridor
owned by PGE and BPA.
• Provide trail connections between individual developments,park land,and the citywide trail
system whenever possible.
• Ensure safe roadway crossings where trails intersect with roadways. Ensure safe trail travel
where trails cross driveways.
• Coordinate trail development with roadway development where appropriate.
• Develop trail access standards as needed.
• Where trails are proposed on land not owned by the city,work with property developers and
owners to provide access for the public through easements or other dedications of land.
• Develop a trail signage plan and implement new signs throughout the system. The signage
plan should include standards for kiosks with system maps,trailhead signs indicating
distance and difficulty and trail signs posted along the route.
Parks
• Ensure safe roadway crossings where residents will access parks.
• Look for opportunities to create an off-leash dog area.
• Consider use of some park types in combination with protected natural areas,stormwater
quality/quantity facilities and pump station locations. There are many examples in nearby
communities.
o At Winkelman Park in Beaverton,there are stormwater swales at the south end of the
soccer field slope and also near the dog park.
o In Clackamas County,the design for Sunnyside Village Green Park includes a
stormwater detention pond. During the summer months,the dry depression area
formed by the pond serves as an open grass play area and amphitheater. In extreme
storm events in the winter,water slowly fills the depression providing needed storage.
To create interest during the winter,berms are also designed into the depression. These
berms in the bottom turn into islands as the water level rises. The staggered elevations
results in one island being submerged as another island appears.
12
Tigard Park System Master Plan Addendum
These design guidelines are not created with the intent to apply a cookie-cutter approach to park
planning and design. All parks, trails,and open spaces should be developed to respond to the
unique needs and character of the park/trail environment and nearby residents. A strong
community involvement process,involving neighbors,special interest and cultural groups and
maintenance staff,will help to determine the best design for a particular park.
Cost Estimates
Below are the assumptions used to develop cost estimates for park and trail development in River
Terrace.
• Estimates include typical park programs and facilities. Individual park master plans to be
developed in the future to reflect the desires of the community and specific site
opportunities and constraints.
• The cost estimate for the River Terrace Trail is not included in the parks cost estimate. The
costs associated with this trail are included in the River Terrace Transportation System Plan
Addendum.
• Costs for trails located within parks are part of the costs shown for those parks.
• Costs for stream crossings by trails have been factored into the trail estimates.
• Costs for site grading,site preparation,planning,designing,permitting,and project
administration have been factored into all trail and park estimates.
• Costs for frontage improvements have been factored into the community park construction
estimates.
• Costs for irrigation have been included for some parks and include the materials and
installation for a minimal irrigation system designed to irrigate large areas of open space with
the minimal number of irrigation heads.
• Acquisition for areas required for stormwater management within park facilities to be
negotiated in the future by Clean Water Services (CWS)and/or the City of Tigard.
• Tot lots and pocket parks are typically considered a developer responsibility and are not
included in the parks cost estimate.
Table 5 shows the cost estimates for the recommended River Terrace park and trail system plan.
They are primarily derived from cost estimates and assumptions contained in the 2009 West Bull
Mountain Parks Cost Estimate and from the information provided in Table 6 for specific park
elements. They have been updated,as appropriate,based on recent data from park purchases
and development in the City of Tigard.
13
Tigard Park System Master Plan Addendum
Table 5: Park Cost Estimates for River Terrace
Planning,
Total Land Design,
Construction TOTAL
Park Type Acreage/ Acquisition Costs Permitting, COSTS
Mileage Costs Admin
35%
Community 19.25 acres $7,508,000 $6,212,000 $2,174,000 $15,894,000
Neighborhood 9.62 acres $3,752,000 $2,204,000 $771,000 $6,727,000
i
Linear 8.02 acres $3,128,000 $169,000 $59,000 $3,356,000
Trail 0.73 miles' $690,000 $566,000 $198,000 $1,454,000
TOTAL COSTS $15,078,000 $9,151,000 $3,202,000 $27,431,000
1 There are 3.01 miles of recommended trails in River Terrace,but only 0.73 miles of trail are included in this table
for cost estimating purposes. The costs associated with the River Terrace Trail,which accounts for the remaining
2.28 miles of recommended trail,are included in the River Terrace Transportation System Plan Addendum
Table 6: Park Element Cost Estimates for River Terrace
Park Description Cost Estimate Supporting Images
Element
Parking Lot Dedicated,off $100,000
street,20 stalls per
ball field,$3,000 per
stall
Restroom Two unisex stalls, $150,000
concrete
3-
14
Tigard Park System Master Plan Addendum
Park
Element Description Cost Estimate Supporting Images
Paved Path 8'wide asphalt $30,000/ acre or
$36.00/ linear foot
1 �
v n L
Play Equipment,swing Small-$25,000
Elements sets, seating,safety Medium-$60,000
surfacing Large-$100,000 *�
Site Bench and setting'
Furnishing
,a4
Picnic Areas and structures Small-$25,000
Shelter with pre-fabricated Medium-$60,000
construction Large-$100,000
For the WBMCP cost estimating,the cost for benches was shown as$2,000 in the list of assumptions,but only
$500 per bench when the costs for specific parks were calculated.
15
Tigard Park System Master Plan Addendum
Park Description Cost Estimate opp4j,orting Images
Element
Off-leash 1-2 acre,minimal $80,000/ acre
DogArea improvements, non-irrigated
fenced
1- �' 1
}
Basketball 40'x 70'asphalt 535,000
Court ,
I
Tennis Standard doubles, $5O,uriO
Court with fencing
Sports Min. 2 acres,buffers, Soccer-$250,000
Fields &under-drain. Football- $200,000
Soccer-200'x 335' Softball - $300,000
Football- 160'x 360' Baseball- $450,000
Softball-270'x 270'
Baseball-350'x 350'
16
Tigard Park System Master Plan addendum
Park Description Cost Estimate Supporting Images
Element
Water Small - $150,000
Feature Medium-$500,000
Large-$1,000,000
amphi- Small-$200,000
theater Medium-$500,000
Large- $1,000,000
Interpretive 4'x 8'with graphics $5,000/ sign
Signage - —
Non-paved 8'wide gravel or $20,000/ acre or
Path similar $24/ linear foot
Trailheads 500 sq. ft. seating, $50,000
signage,small
shelter
1,
Tigard Park System Master Plan Addendum
Park Description Cost Estimate Supporting Images
Element
Community Paved Plaza— $150,000
Commons/ 10,000 sq. ft.
View Points
r
Community 10'x 10'plots,4' $75,000/ acre
Garden chain link fence,
hose bibs } �,
a�
Natural 50'wide,includes $100/ linear foot
Vegetation new plantings (Restore-$45,000/
Buffer acre)
Unstructured Grading,drainage, $75,000 /acre—
Open Space planting areas irrigated
$35,000/ acre— --
non-irrigated
18
Tigard Park System Master Plan Addendum
Potential Strategies for Acquiring and Developing Parks
With more than 452 acres of parks,greenways and natural areas,the City of Tigard provides a
variety of options for recreation,while protecting the area's natural beauty and providing
valuable wildlife habitat. River Terrace,on the other hand,currently has no parks,nor does it
have any land dedicated to park use. City standards dictate the types of facilities needed (e.g.
neighborhood park,community park,etc.),but the city currently does not have the kinds of
regulatory tools or incentives in place to ensure the development of the trail and park system
envisioned in River Terrace.
This section explores implementation mechanisms for the acquisition of park land and the
development of park and recreation facilities. In general,there are two primary means of park
land acquisition: outright purchase of land by local government and code provisions that require
dedication of land by development. Additional means are discussed in Table 7 below.
Table 7: Comparison of Park Land Acquisition Approaches
Approach Description Pros Cons
Fee Simple City purchases land Straightforward,local Can have high costs.
Acquisition of from current owners. control of land May not occur before
Undeveloped Land selection. platting of land.
Requires funds"in
hand."
Mandatory Code requires Little to no cost to Developer selects
Dedication of Land developer to set aside city. park site.
land. Challenges in
determining what is
proportionate.
Fee-in-Lieu Code allows Allows city to select Need to collect funds
(of Mandatory developer to pay fee- sites using funds first or establish
Dedication) in-lieu of setting from development borrowing
aside land. projects. mechanism. Still
requires a means for
the city to protect a
portion of private
property for later
park development.
19
Tigard Park System Master Plan Addendum
Approach Description Pros Cons
Developer Provides Developer plans, No cost to city. Requires
Turnkey Park designs,and coordination and
constructs park. development of a
new approval
process. May not be
supported by
development
community and may
be legal issues.
Purchase of City does not Less expensive than Limited applicability
Easements purchase land,only fee-simple and limited benefit
an easement. Often acquisition. for land owner.
used for trails. Possible management
requirements related
to monitoring.
Purchase of City preserves land Often voluntary only.
Development Rights by restricting future Can have high costs.
development while
continuing existing
use. Often used for
farms and forestry.
Outright Donation Property owners Little to no cost to Unlikely to occur in
donate land to the city. the necessary
city. Often locations and sizes.
undevelopable land.
Transfer of Transfers Resources can be Can be complicated
Development Rights development protected without program to establish.
allowance away from huge capital No worthy
lands planned for expenditures. Can be precedents in region.
parks. built into Planned Not permitted in
Development current zoning
process. districts.
In addition to the park land acquisition approaches described above,the following approaches
to acquiring and developing parks may be appropriate in River Terrace. Peter Harnik directs the
Trust for Public Land's Center for City Park Excellence and is the author of Urban Green.
Innovative Parks for Resurgent Cities. In his book,Hamik describes 14 ways to provide innovative
parks. Of these 14 ways, the following three are applicable to River Terrace:
20
Tigard Park System Master Plan Addendum
1. Make double use of stormwater facilities. Stormwater facilities can be well designed and
integrated with open space plans. With significant need
for stormwater management in River Terrace,this
approach may be applicable. During the WBMCP,it
was assumed that parks and storm facilities would be
co-located. Harnik cites High Point in Seattle as a good
example.
2. Use urban renewal. This is more a funding mechanism than an instrument to acquire
property. However,within an urban renewal area,creative land banking,parcel aggregation,
and other changes can help to ensure adequate park land. Portland's Pearl District is cited as
an example of this method.
3. Benefit from boulevards. Harnik points out how wide boulevards with landscaped centers
and edges can provide many of the same benefits as a park. Boston's Commonwealth
Avenue is a great example of this. The River Terrace Trail could use design concepts such
as this.
In the next section,two case studies explore how other jurisdictions are acquiring park land and
developing parks. The first case is from Portland,and is meant to provide some guidance on the
procedures related to land acquisition. The second case is from Canby,and focuses on their
Parkland Dedication Ordinance.
Case Study: Citi- of Portland
Fee Simple Acquisition
In 1903,John Charles Olmsted delivered the Report of the Park Board,Portland, Oregon. Olmsted
urged the integration of natural areas in a comprehensive park system. He recommended
acquisition of the wooded hills west of the Willamette River for a park with a wild,woodland
character. In 1948,4,200 acres were formally dedicated as Forest Park.
In more recent years,natural area acquisition has been guided by Metro's Greenspaces Master
Plan,other Metro and city plans,and local target area acquisition plans. Between 1990 and 2005,
Portland Parks and Recreation added 750 acres of natural area to its management portfolio,
primarily from its 1995 bond measure. Currently,the City of Portland utilizes a Capital Project
Request Criteria and Rating System. This rating system enables the city to fairly evaluate
recommended park purchases. The criteria are as follows:
• Legal Compliance Max 5 points
• ADA Compliance Max 10 points
• Public Support Max 10 points
• Conforms to city or PP&R Plans Max 10 points
• Improves Level of Service Max 10 points
• Equity Max 15 points
• Human Health and Safety Max 15 points
• Protects Capital Assets or Facilities Max 15 points
• Environmental Quality Max 10 points
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Tigard Park System Master Plan Addendum
• Project Financing/ Business Opportunity Max 10 points
• Maintenance Financing Max 5 points
• Effect on Operating Budget Max 10 points
Once Portland has evaluated the merits of a specific purchase,it funds these purchases with
instruments similar to those employed in Tigard. These include: the city's general fund,system
development charges,special levies,grants,donations,and funds from partners such as the
Portland Development Commission.
Case Study: City of Canbj;
Mandatory Dedication
Chapter 3 of Canby's 2002 Park and Open Space Acquisition Plan contains an Acquisition
Framework. This framework for land acquisition establishes priorities for future acquisition of
park land in Canby. It also provides direction for the evaluation and acquisition of land. The
City of Canby has also adopted a Dedication Ordinance,which enables them to provide park
land through the development review process. Canby's Parkland Dedication Ordinance allows for
land exactions from development projects and the payment of fee-in-lieu. The main parks
acquired through the ordinance are neighborhood parks.
Canby Municipal Code
16.120.020 Minimum standard for park, open space and recreation land
A. Parkland Dedication. All new residential, commercial and industrial developments shall be
required to provide park, open space and recreation sites to serve existing and future residents and
employees of those developments...
3. Calculation of Land Required The total requirement of park, open space and recreational land
shall be 0.01 of an acre perperson based on the city standard of 10 acres of land per 1,000
residents This standard represents the land-to-population ratio the City of Canby requires for city
parks, and may be adjusted periodically through amendments to the Parks and Recreation Master
Plan....
Canby added this tool to its previous capital project and acquisition approach,which is similar to
what is used today in Tigard. Mandatory dedications and fee-in-lieu of dedications have greatly
improved Canby's ability to acquire park land and protect open space. The dedication ordinance
sets forth specific criteria to help the City of Canby decide whether to accept a specific site.
Canby requires an environmental assessment of the proposed land prior to any park land
dedication. If the land is deemed to be unsuitable,the developer pays a fee-in-lieu of dedication.
Fees gathered in this manner are later used to acquire park land through outright purchase. Fee-
in-lieu of dedication is a common way for communities to acquire park and open space and have
stood up to court challenge. The courts generally accept fee-in-lieu of dedication if the fee is
deemed not to put an undue burden on the developer.
Canby also allows partial credit for land dedicated to trails within the 100-year floodplain.
22
CITY OF TIGARD,OREGON
TIGARD CITY COUNCIL
RESOLUTION NO. 14-6,:�-
A RESOLUTION TO AMEND THE PARK SYSTEM MASTER PLAN TO INCLUDE PROJECTS
NECESSARY TO MEET THE CITY'S LEVEL OF SERVICE STANDARDS IN RIVER TERRACE G4,
S e Ci ' d annexed the River Terrace area west of Bull Mountain WHEREAS,the City of Tigard o tam m 2011 and 2012;and
WHEREAS,the City of Tigard has an existing Park System Master Plan that does not include the River Terrace
area,and
WHEREAS, the City of Tigard has completed a Park System Master Plan Addendum specific to the River
Terrace area, contributing to the city's broader goal of completing the River Terrace Community Plan and
meeting Metro requirements for public facility planning,and
WHEREAS, public park and trail projects have been identified as part of the Park System Master Plan
Addendum consistent with the city's level of service standards,and
WHEREAS, these projects are appropriate and necessary additions to the City of Tigard Park System Master
Plan,and
WHEREAS,the City of Tigard may desire to use park system development charges to fund part or all of these
projects,and
WHEREAS, the City of Tigard may desire to adopt additional fees and/or charges to fund part or all of these
projects,and
WHEREAS,a comprehensive funding strategy for all public facility projects in River Terrace will be developed
as part of the River Terrace Community Plan.This strategy will include a list of projects to complete in the near
term and recommended funding sources.
NOW,THEREFORE,BE IT RESOLVED by the Tigard City Council that:
SECTION 1: The River Terrace Park System Master Plan Addendum (Exhibit A) is hereby adopted as part
of the City of Tigard Park System Master Plan.
SECTION 2: The projects identified in the River Terrace Park System Master Plan Addendum shall be eligible
for funding from park system development charges (SDCs) as allowed under Section 3.24.060 of the Tigard
Municipal Code.
SECTION 3: This resolution is effective immediately upon passage.
PASSED: This 161V t�— day of ae?'M le 2014.
RESOLUTION NO. 14-6'S'
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