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04/21/2014 - PacketCompleteness Review for Boards, Commissions and Committee Records CITY OF TIGARD Planning Commission Name of Board, Commission or Committee 04-21-14 Date of Meeting I have verified that to the best of my knowledge, these documents are a complete copy of the official record. Doreen Laughlin Print Name Signature 06-01-15 Date PLANNING COMMISSION AGENDA – APRIL 21, 2014 City of Tigard | 13125 SW Hall Blvd., Tigard, OR 97223 | 503-639-4171 | www.tigard-or.gov | Page 1 of 1 City of Tigard Planning Commission Agenda MEETING DATE: April 21, 2014; 7:00 p.m. MEETING LOCATION: City of Tigard – Town Hall 13125 SW Hall Blvd., Tigard, OR 97223 1. CALL TO ORDER 7:00 p.m. 2. ROLL CALL 7:00 p.m. 3. COMMUNICATIONS 7:02 p.m. 4. CONSIDER MINUTES 7:03 p.m. 5. PUBLIC HEARING – BONAVENTURE (Continued from March 17) PDR2013-00001; CUP2013-00005; VAR2013-00006; LLA2013-00006 7:05 p.m. The applicant requests Conditional Use approval for a group living facility (Senior Housing); Planned Development approval with Concurrent Conceptual and Detailed Plan Approva;) an Adjustment to minimum parking standards, and a Property Line Adjustment to reconfigure two existing tax lots. The project will provide a total of 152 group living units with 71 independent living, 57 assisted living and 24 units for memory care with associated support facilities. As part of the application, the applicant has presented two alternatives for the Planning Commission’s consideration. In alternative “1” the applicant proposes the construction of a bicycle-pedestrian pathway to connect SW 83rd with SW Ross Street. In Alternative “2”, SW 83rd Avenue would be extended to SW Ross Street. LOCATION: 8325 SW Ross Street landscaping. 6. OTHER BUSINESS 8:05 p.m. 7. ADJOURNMENT 8:15 p.m. 1 of 5 City of Tigard Memorandum To: President Rogers and the Tigard Planning Commission From: John Floyd, Associate Planner Re: Bonaventure Senior Living (PDR2013-00001 et. al.) Continued from March 17, 2014 Date: April 14, 2014 On March 17, 2014 the Planning Commission took public testimony and began deliberations on the Bonaventure Senior Living Facility proposed at the northeasterly corner of Hall Boulevard and Ross Street (PDR2013-00001 et. al.). At that hearing the Planning Commission identified three design concerns (adequacy of off-street parking, building height, and extension of 83rd Avenue), and requested additional information on two other topics (capacity of TVF&R to serve and groundwater contamination). In addition, staff requested a continuance to allow time to address access concerns expressed by Oregon Department of Transportation. Responses and recommendations regarding each of these issues are below with supporting documents attached. These conditions are necessary to ensure that changes to building he ight, parking, and access are carried throughout the remainder of the application materials (i.e. urban forestry plan, landscaping plan, etc.). Off-Street Parking In response to Planning Commission feedback, the applicant has revised the site plan to increase the off-street parking space count from 105 to 120 parking spaces.1 This change brings the proposed project into conformance with minimum off-street parking requirements required in 18.765.070 (Minimum and Maximum Off-Street Parking Requirements). This increase was accomplished through a reduction in landscaping and increase in impervious surface from 68% to 71% (80% maximum per Tigard Development Code 18.350.060.C.2), the conversion of 8 standard parking spaces to compact parking spaces, and the removal of a dedicated drop-off/pick-up drive aisle for the memory care wing entrance. 1 See large format plan sheet included with this memorandum, titled “Sheet C6, Preliminary Site Plan/Lot Line Adjustment Plan Alt 2 Rev” and date stamped April 15, 2014. 2 of 5 Should the Planning Commission find the change in parking satisfactory, an additional condition of approval is recommended to ensure changes to the parking area and building design do not result in noncompliance of other sections of the code including landscaping, urban forestry, and design compatibility standards. The text of this new condition is located at the end of this memorandum. Building Height In response to Planning Commission feedback, the applicant has submitted a revised design that reduces the maximum building height from 48 feet to 37 feet (included as Attachment A” of this memorandum). This reduction was accomplished by removing the four story portion above the “core” of the proposed structure and redistributing the living area onto the one and two-story wings proposed in the original application. As revised the structure now has a more uniform height rather than the “stepped-back” design originally proposed, and retains the pitched roof design and general architectural style of the initial proposal. The revised design still requires Planning Commission approval as it exceeds the 30 foot maximum height limit for any primary structure within the R-4.5 zone. Staff recommends approval of the revised design as it meets approval criteria for building height set forth in 18.350.060.C.3 (Detailed Development Plan – Building Height) as discussed on pages 20 and 21 of the staff report. This standard states building height may be increased above the maximum provided the structure is set back from the perimeter a distance of at least 1.5 times the height of the building. As demonstrated in the table below, the applicant has exceeded this standard on all four elevations. Comparable setbacks for “by-right” development are also included for comparison. Site Boundary Minimum Setback Required for 30’ High Single Family Dwellings Minimum Setback Required for 30’ High Multi-family Without PD Minimum Setback Required to approve Bonaventure Proposed Height Adjustment from 30’ to 37’ Proposed North 20’ 50’ 55.5 ft. 60’ South 20’ 50’ 55.5 ft. 60’ East 20’ 50’ 55.5 ft. 125’ West 20’ 50’ 55.5 ft. 60’ Should Planning Commission find the change in building height satisfactory, an additional condition of approval is recommended to ensure changes to the building height do not result in noncompliance of other sections of the Tigard Development Code. The recommended text of this condition is located at the end of this memorandum. 3 of 5 Extension of SW 83rd Ave On March 17 the Planning Commission expressed a desire for a “third option” for the extension of SW 83rd Avenue to address neighborhood concerns. Staff believes the proposed design already represents a third option and middle-ground between a “no-through-street” design option and a “full-build” extension of SW 83rd due to the following design features proposed by the applicant and approved by the City Engineer:  Reducing the existing cross section for SW 83rd from 28 feet at the existing street stub to a narrower 24 feet between Matthew Park and Ross Street. This reduction allows for greater on-site landscaping and cues traffic to slow down as the roadway narrows.  Use of a meandering street alignment with multiple curves to reduce travel speeds.  Use of an offset intersection alignment to reduce travel speeds across the intersection and avoid impacts to trees and historic log home on the adjoining property.  Increased planter strip widths along the eastern side of the roadway, up to 23’ at the widest point, to preserve health of trees on adjoining property and provide additional landscape buffering between the senior living facility and single-family homes to the east. Rather than require the extension of a straight, full -width street the proposed design allows for a reduction in off-site impacts while still providing the required street connectivity discussed in findings contained in pages 14, 26, 53-59, and Exhibit “A” of the staff report. As a result staff continues to recommend approval of Option 2 as proposed as it better achieves the requirements and objectives of the Chapter 18, the Transportation System Plan, an d the desires of ODOT and TVF&R for a secondary access point. In addition, a representative of the Engineering Division will be present at the April 21st meeting to address any questions the Planning Commission may have regarding the project. Tualatin Valley Fire & Rescue Service Capability On March 17 the Planning Commission inquired about the expected number of service calls to this facility by TVF&R. Staff contacted the agency and Deputy Fire Marshall John Wolff confirmed that service would be primarily provided from their station on Burnham Street, approximately 1.2 miles north of the project site, and they anticipated approximately 15 2 calls for service per year based upon similar facilities in the region. In addition to this phone call, Deputy Fire Marshall Wolff confirmed in an email and service provider letter dated April 3, 2014 that TVF&R has the equipment and personnel to service the facility as proposed in the application. Copies of both are included as Attachments “B” and “C” to this memorandum. 4 of 5 Groundwater Contamination On March 17 a Planning Commissioner requested a copy of the DEQ report on this property. In response a copy of the June 21, 2012 “No Further Action” letter from Oregon DEQ is attached to this memorandum as Attachment “D”. DEQ is also expected to issue a Prospective Purchaser’s Agreement with Bonaventure to regulate their development of the site. Vehicular Access to Hall Boulevard As proposed in the application, primary access to the facility is to be provided from Hall Boulevard through a right-in/right-out entrance and associated mid-street median. As discussed on pages 23-24 of the staff report, ODOT and the City area in agreement on the construction of the median. The City and TVF&R would like to see the median constructed using a mountable design that would allow a fire-truck to traverse the median and make a quick and direct left turn directly into the facility, reducing both response times and traffic impacts to the neighborhood. ODOT was initially comfortable with this design during meetings on the project with both staff and the applicant. As mentioned at the hearing on March 17, just a few hours before the hearing ODOT contacted City staff to express a change of position due to new concerns about a mountable median design and their disinclination to approve one as proposed. As Hall Boulevard is an ODOT facility, they have final jurisdictional authority over road design. That said, ODOT has said they willing to consider TVF&R’s emergency response needs and work towards a design solution acceptable to all parties. Staff and the applicant have diligently worked to mediate a design solution acceptable to all parties, but one has not yet been reached due to lengthy planned absences of critical staff at both TVF&R and ODOT that have prevented a four party meeting. That said, there is no reason to believe an acceptable design solution could not be achieved during the construction design phase through conditions of approval 19 and 22 as recommended in the March 17 staff report, and modification of conditions of approval 14 and 29 as proposed at the end of this memorandum. Additional Conditions of Approval Recommended by Staff As discussed above, the following conditions of approval are recommended to ensure the application conforms with all applicable city and agency requirements. New Condition of Approval:  Prior to approval of a site work and building permits, applicant shall submit a revised title sheet (C1), site plan (C6), floor plans (A2.1-A2.4), landscape plan (L5.0), urban forestry plan (L4.0) and supplemental report to address changes in parking and site circulation approved by the Planning Commission and in conformance with Chapters 18.360 5 of 5 (Planned Development), 18.510 (Residential Zones), 18.705 (Access), 18.720 (Design Compatibility Standards), 18.745 (Landscaping Screening), 18.790 (Urban Forestry Plan), 18.795 (Visual Clearance Areas), and 18.810 (Street and Utility Standards). Proposed Modification to Conditions in March 17 Staff Report: 14. Prior to issuance of the site permit, the applicant shall obtain city approval of site plans to provide frontage improvements along Hall Blvd of a newly paved and curbed half- width of at least 24 feet (including a bike lane) and an 8 -foot sidewalk starting about 41 feet from centerline plus planter strip between curb and sidewalk (the sidewalk shall be constructed in the ultimate location for the planned five lane section). A 200-foot long concrete raised median traversable by emergency vehicles shall be provided along the centerline of Hall at the proposed driveway. Street construction shall include street trees, street lights, underground utilities, storm drainage, and all other work necessary for a complete street in accordance with City of Tigard, ODOT, ADA, and other applicable standards. The applicant shall obtain city engineer approval of vehicle access from Hall Boulevard to the Site. 29. Prior to final inspection of the proposed senior living facility, the applicant shall complete construction of frontage improvements along Hall Blvd of a newly paved and curbed half-width of at least 24 feet (including a bike lane) and an 8 -foot sidewalk starting about 41 feet from centerline plus planter strip between curb and sidewalk. A 200-foot long concrete raised median traversable by emergency vehicles shall be provided along the centerline of Hall at the proposed driveway. Street construction shall include street trees, street lights, underground utilities, storm drainage, and all other work necessary for a complete street in accordance with City of Tigard, ODOT, ADA, and other applicable standards. The applicant shall obtain city engineer approval of vehicle access from Hall Boulevard to the Site. 1 of 6 Revised April 21, 2014 City of Tigard Memorandum To: President Rogers and the Tigard Planning Commission From: John Floyd, Associate Planner Re: Bonaventure Senior Living (PDR2013-00001 et. al.) Continued from March 17, 2014 Date: April 14, 2014 Revised April 21, 2014 On March 17, 2014 the Planning Commission took public testimony and began deliberations on the Bonaventure Senior Living Facility proposed at the northeasterly corner of Hall Boulevard and Ross Street (PDR2013-00001 et. al.). At that hearing the Planning Commission identified three design concerns (adequacy of off-street parking, building height, and extension of 83rd Avenue), and requested additional information on two other topics (capacity of TVF&R to serve and groundwater contamination). In addition, staff requested a continuance to allow time to address access concerns expressed by Oregon Department of Transportation. Responses and recommendations regarding each of these issues are below with supporting documents attached. These conditions are necessary to ensure that changes to building he ight, parking, and access are carried throughout the remainder of the application materials (i.e. urban forestry plan, landscaping plan, etc.). Off-Street Parking In response to Planning Commission feedback, the applicant has revised the site plan to increase the off-street parking space count from 105 to 120 parking spaces.1 This change brings the proposed project into conformance with minimum off-street parking requirements required in 18.765.070 (Minimum and Maximum Off-Street Parking Requirements). This increase was accomplished through a reduction in landscaping and increase in impervious surface from 68% to 71% (80% maximum per Tigard Development Code 18.350.060.C.2), the conversion of 8 standard parking spaces to compact parking spaces, and the removal of a dedicated drop-off/pick-up drive aisle for the memory care wing entrance. 1 See large format plan sheet included with this memorandum, titled “Sheet C6, Preliminary Site Plan/Lot Line Adjustment Plan Alt 2 Rev” and date stamped April 15, 2014. 2 of 6 Revised April 21, 2014 Associated with the proposed increase in off-street parking and change in building height (discussed below) is a proposed change in tenant mix that would reduce the off-street parking requirement from 120 to 119 spaces. The changes to the proposed tenant mix are summarized in the table below, along with required parking counts. As a result of these changes, the proposed project would exceed the minimum off-street parking standard by one space. Parking Standard2 Proposed March 17 Revised April 21 Independent 1.0 per room 71 70 Assisted 1.0 per 2.5 beds 57 59 Memory Care 1.0 per 2.5 beds 24 23 Total Units 152 152 Required Parking 120 spaces 119 Should the Planning Commission find the change in parking satisfactory, an additional condition of approval is recommended to ensure changes to the parking area and building design do not result in noncompliance of other sections of the code including landscaping, urban forestry, and design compatibility standards. The text of this new condition is located at the end of this memorandum. Building Height In response to Planning Commission feedback, the applicant has submitted a revised design that reduces the maximum building height from 48 feet to 37 feet (included as Attachment A” of this memorandum). This reduction was accomplished by removing the four story portion above the “core” of the proposed structure and redistributing the living area onto the one and two-story wings proposed in the original application. As revised the structure now has a more uniform height rather than the “stepped-back” design originally proposed, and retains the pitched roof design and general architectural style of the initial proposal. The revised design still requires Planning Commission approval as it exceeds the 30 foot maximum height limit for any primary structure within the R-4.5 zone. Staff recommends approval of the revised design as it meets approval criteria for building height set forth in 18.350.060.C.3 (Detailed Development Plan – Building Height) as discussed on pages 20 and 21 of the staff report. This standard states building height may be increased above the maximum provided the structure is set back from the perimeter a distance of at least 1.5 times the height of the building. As demonstrated in the table below, the applicant has exceeded this standard on all four elevations. Comparable setbacks for “by-right” development are also included for comparison. 2 TDC 18.765.030.E requires multi-dwelling units with more than 10 required parking spaces to provide an additional 15% of vehicle parking spaces above the minimum required. 3 of 6 Revised April 21, 2014 Site Boundary Minimum Setback Required for 30’ High Single Family Dwellings Minimum Setback Required for 30’ High Multi-family Without PD Minimum Setback Required to approve Bonaventure Proposed Height Adjustment from 30’ to 37’ Proposed setbacks for three story portions of structure3 North 20’ 50’ 55.5 ft. 60’ 78’ South 20’ 50’ 55.5 ft. 60’ East 20’ 50’ 55.5 ft. 125’ 99’ West 20’ 50’ 55.5 ft. 60’ 62’ / 216’ Should Planning Commission find the change in building height satisfactory, an additional condition of approval is recommended to ensure changes to the building height do not result in noncompliance of other sections of the Tigard Development Code. The recommended text of this condition is located at the end of this memorandum. Extension of SW 83rd Ave On March 17 the Planning Commission expressed a desire for a “third option” for the extension of SW 83rd Avenue to address neighborhood concerns. Staff believes the proposed design already represents a third option and middle-ground between a “no-through-street” design option and a “full-build” extension of SW 83rd due to the following design features proposed by the applicant and approved by the City Engineer:  Reducing the existing cross section for SW 83rd from 28 feet at the existing street stub to a narrower 24 feet between Matthew Park and Ross Street. This reduction allows for greater on-site landscaping and cues traffic to slow down as the roadway narrows.  Use of a meandering street alignment with multiple curves to reduce travel speeds.  Use of an offset intersection alignment to reduce travel speeds across the intersection and avoid impacts to trees and historic log home on the adjoining property.  Increased planter strip widths along the eastern side of the roadway, up to 23’ at the widest point, to preserve health of trees on adjoining property and provide additional landscape buffering between the senior living facility and single-family homes to the east. Rather than require the extension of a straight, full -width street the proposed design allows for a reduction in off-site impacts while still providing the required street connectivity discussed in findings contained in pages 14, 26, 53-59, and Exhibit “A” of the staff report. As a result staff 3 Based on site plan submitted April 15, 2014. A condition of approval requires revised floorplans to verify setbacks during building permit review. 4 of 6 Revised April 21, 2014 continues to recommend approval of Option 2 as proposed as it better achieves the requirements and objectives of the Chapter 18, the Transportation System Plan, an d the desires of ODOT and TVF&R for a secondary access point. Should the Planning Commission not find Option 2 to have the desired characteristics necessary to achieve the “3rd option” requested on March 17, staff has identified one additional change that meets city street standards and is acceptable to the applicant, namely the addition of on- street parking within the proposed 24’ pavement width of SW 83rd, as proposed in Option 2. This change would provide additional spillover parking for both the proposed facility and adjoining neighborhood residents, while simultaneously reducing traffic speeds and volumes by further narrowing the travel lane to discourage fast cut-through traffic. A condition of approval has been added at the end of this memorandum to require this change, should the Planning Commission find in favor of it. In addition, a representative of the Engineering Division will be present at the April 21st meeting to address any questions the Planning Commission may have regarding the project. Tualatin Valley Fire & Rescue Service Capability On March 17 the Planning Commission inquired about the expected number of service calls to this facility by TVF&R. Staff contacted the agency and Deputy Fire Marshall John Wolff confirmed that service would be primarily provided from their station on Burnham Street, approximately 1.2 miles north of the project site, and they anticipated approximately 15 2 calls for service per year based upon similar facilities in the region. In addition to this phone call, Deputy Fire Marshall Wolff confirmed in an email and service provider letter dated April 3, 2014 that TVF&R has the equipment and personnel to service the facility as proposed in the application. Copies of both are included as Attachments “B” and “C” to this memorandum. Groundwater Contamination On March 17 a Planning Commissioner requested a copy of the DEQ report on this property. In response a copy of the June 21, 2012 “No Further Action” letter from Oregon DEQ is attached to this memorandum as Attachment “D”. DEQ is also expected to issue a Prospective Purchaser’s Agreement with Bonaventure to regulate their development of the site. Vehicular Access to Hall Boulevard As proposed in the application, primary access to the facility is to be provided from Hall Boulevard through a right-in/right-out entrance and associated mid-street median. As discussed on pages 23-24 of the staff report, ODOT and the City area in agreement on the construction of the median. The City and TVF&R would like to see the median constructed using a mountable design that would allow a fire-truck to traverse the median and make a quick and direct left turn directly into the facility, reducing both response times and traffic impacts to the 5 of 6 Revised April 21, 2014 neighborhood. ODOT was initially comfortable with this design during meetings on the project with both staff and the applicant. As mentioned at the hearing on March 17, just a few hours before the hearing ODOT contacted City staff to express a change of position due to new concerns about a mountable median design and their disinclination to approve one as proposed. As Hall Boulevard is an ODOT facility, they have final jurisdictional authority over road design. That said, ODOT has said they willing to consider TVF&R’s emergency response needs and work towards a design solution acceptable to all parties. Staff and the applicant have diligently worked to mediate a design solution acceptable to all parties, but one has not yet been reached due to lengthy planned absences of critical staff at both TVF&R and ODOT that have prevented a four party meeting. That said, there is no reason to believe an acceptable design solution could not be achieved during the construction design phase through conditions of approval 19 and 22 as recommended in the March 17 staff report, and modification of conditions of approval 14 and 29 as proposed at the end of this memorandum. Additional Conditions of Approval Recommended by Staff As discussed above, the following conditions of approval are recommended to ensure the application conforms with all applicable city and agency requirements. New Condition of Approval:  Prior to approval of a site work and building permits, applicant shall submit a revised title sheet (C1), site plan (C6), floor plans (A2.1-A2.4), landscape plan (L5.0), urban forestry plan (L4.0) and supplemental report to address changes in parking, unit count and site circulation approved by the Planning Commission and in conformance with Chapters 18.360 (Planned Development), 18.510 (Residential Zones), 18.705 (Access), 18.720 (Design Compatibility Standards), 18.745 (Landscaping Screening), 18.790 (Urban Forestry Plan), 18.795 (Visual Clearance Areas), and 18.810 (Stree t and Utility Standards). Proposed Modification to Conditions in March 17 Staff Report: 13. Prior to issuance of the site permit, the applicant shall obtain city approval of site plans (as shown on the Alternative 2 plans) to provide at least an 18-foot paved half-width of Ross St and at least a 24-foot paved width plus transitions for 83rd Ave and Matthew Park St. The sidewalk may be deleted along the east side of 83rd Ave along the property to the east at 8275 SW Ross St. Parking is to be allowed along the west side of 83rd Ave along the subject property where it does not cause issues with sight distance or stree t function. Each of these streets shall include at least a 5-foot sidewalk, 5-foot planter strip, curb, street trees, street lights, underground utilities, storm drainage, and all other 6 of 6 Revised April 21, 2014 work necessary for a complete street in accordance with City of Tigard and other applicable standards. 14. Prior to issuance of the site permit, the applicant shall obtain city approval of site plans to provide frontage improvements along Hall Blvd of a newly paved and curbed half- width of at least 24 feet (including a bike lane) and an 8 -foot sidewalk starting about 41 feet from centerline plus planter strip between curb and sidewalk (the sidewalk shall be constructed in the ultimate location for the planned five lane section). A 200-foot long concrete raised median traversable by emergency vehicles shall be provided along the centerline of Hall at the proposed driveway. Street construction shall include street trees, street lights, underground utilities, storm drainage, and all other work necessary for a complete street in accordance with City of Tigard, ODOT, ADA, and other applicable standards. The applicant shall obtain city engineer approval of vehicle access from Hall Boulevard to the Site. 29. Prior to final inspection of the proposed senior living facility, the applicant shall complete construction of frontage improvements along Hall Blvd of a newly paved and curbed half-width of at least 24 feet (including a bike lane) and an 8 -foot sidewalk starting about 41 feet from centerline plus planter strip between curb and sidewalk. A 200-foot long concrete raised median traversable by emergency vehicles shall be provided along the centerline of Hall at the proposed driveway. Street construction shall include street trees, street lights, underground utilities, storm drainage, and all other work necessary for a complete street in accordance with City of Tigard, ODOT, ADA, and other applicable standards. The applicant shall obtain city engineer approval of vehicle access from Hall Boulevard to the Site. CITY OF TIGARD Respect and Care | Do the Right Thing | Get it Done Bonaventure Senior Living 8325 SW Ross Street (Continued from March 17, 2014) April 21, 2014 Planning Commission Public Hearing CITY OF TIGARD Additional Materials: Memo of April 15, 2014 with: Revised Site Plan & Elevations Documents from TVF&R and DEQ Revised Memo of April 21, 2014 Applicant’s Response to Neighborhood Concerns CITY OF TIGARD Proposed Project: 6 acre Site / Two Lots Group Living (Progressive Senior Care) Independent Living Assisted Living Memory Care Landscaping, Service Facilities, Parking Street & Bike/Ped connections CITY OF TIGARD Consolidated Permit Review Planned Development Review (PDR 2013-00001) Conditional Use Permit (CUP 2013-00005) Adjustment to Parking Standards (VAR 2013-00006) Lot Line Adjustment (LLA 2013-00006) CITY OF TIGARD Requested Exceptions Planned Development Approval & Special Adjustment 1.Waive Requirement to extend SW 83rd (Alternative 1) 2.Increase in maximum building height 3.Exception to spacing standards along an arterial 4.Reduction of minimum parking requirements 5.Increase in the size of the allowed wall sign CITY OF TIGARD Neighborhood Comments (Written & Oral) General preference for Alternative 1 (or Alternative 2 with a gate) due to traffic concerns Concern for traffic levels higher than single-family Inappropriate/incompatible land use Loss of property value Noise/Light impacts associated with service facilities & parking lots Excessive Height / Visual Mass Market saturation CITY OF TIGARD Concern regarding height Concern for Adequacy of Off-Site parking Desire for a 3rd Option for 83rd Avenue extension Concern regarding emergency calls for service Were residents concerns addressed after neighborhood meeting? Planning Commission Feedback on March 17 CITY OF TIGARD Reduced Height by one-story (ten feet) Revised housing mix – reduces minimum required parking Increase in off-street parking (102 to 120 spaces) Letter from TVF&R Applicant’s response to neighborhood comments New Conditions of Approval Option to allow on-street parking along 83rd Ave Emergency Access from Hall Blvd Applicant/Staff Response CITY OF TIGARD CITY OF TIGARD Setbacks – Required & Proposed Site Boundary Minimum Setback Required for 30’ High Single Family Dwellings Minimum Setback Required for 30’ High Multi-family Without PD Minimum Setback Required to approve Proposed Height Adjustment from 30’ to 37’ Proposed setbacks for three story portions of structure North 20’ 50’ 55.5 ft. 78’ South 20’ 50’ 55.5 ft. 60’ East 20’ 50’ 55.5 ft. 99’ West 20’ 50’ 55.5 ft. 62’ / 216’ CITY OF TIGARD Revisions to Housing Mix Parking Standard Proposed March 17 Revised April 21 Independent 1.0 per room 71 70 Assisted 1.0 per 2.5 beds 57 59 Memory Care 1.0 per 2.5 beds 24 23 Total Units 152 152 Required Parking 120 spaces 119 spaces CITY OF TIGARD “Third Alternative” for SW 83rd Ave Alternative No. 2 – Traffic Calming & Tree Protection Roadway narrows from 28’ to 24’ Meandering alignment & offset intersection Expanded landscaping “Skinny Street Standards” Allows parking on one side of 24’ roadway Enhanced traffic calming & spillover parking CITY OF TIGARD Other Agency Input: Tualatin Valley Fire & Rescue verified capacity and willingness to serve Scheduling conflicts at ODOT/TVF&R have prevented a meeting to discuss Hall Blvd Emergency Access All parties believe a mutually acceptable solution can be constructed along Hall Boulevard Recommended Conditions of Approval CITY OF TIGARD Staff Recommendation Alternative 2 complies with Title 18, Tigard Transportation System Plan, Metro Regional Transportation Plan & TVF&R Standards Alternative 1 inconsistent with Title 18, Oregon Highway Plan & Oregon Administrative Rules City Engineer does not sanction Alternative 1 Additional and revised conditions set forth in revised memorandum of April 21, 2014 CITY OF TIGARD Additional Condition to Address Lighting Concern by Neighboring Residents Prior to issuance of site and building permits, applicant shall submit a photometric plan demonstrating that lighting is located or shielded in such a manner as to prevent direct or sky-reflected glare beyond the lot line of the project site. CITY OF TIGARD Approval Process Applicant requests concurrent approval of Concept & Detailed Development Plans Separate approvals by Commission still required Concept Plan Detailed Development Plan & PD Overlay, Conditional Use Permit, Lot Line Adjustment, and Parking Adjustment (if necessary) CITY OF TIGARD Concept Plan: Points of Consideration Satisfaction with site & building design. Satisfaction that project integrates with existing neighborhood. Satisfaction that project identifies methods for promoting walkability in neighborhood/community, and enhances/enables transit ridership. Satisfaction that exceptions requested provide for a superior design solution. 1 of 6 Revised April 21, 2014 City of Tigard Memorandum To: President Rogers and the Tigard Planning Commission From: John Floyd, Associate Planner Re: Bonaventure Senior Living (PDR2013-00001 et. al.) Continued from March 17, 2014 Date: April 14, 2014 Revised April 21, 2014 On March 17, 2014 the Planning Commission took public testimony and began deliberations on the Bonaventure Senior Living Facility proposed at the northeasterly corner of Hall Boulevard and Ross Street (PDR2013-00001 et. al.). At that hearing the Planning Commission identified three design concerns (adequacy of off-street parking, building height, and extension of 83rd Avenue), and requested additional information on two other topics (capacity of TVF&R to serve and groundwater contamination). In addition, staff requested a continuance to allow time to address access concerns expressed by Oregon Department of Transportation. Responses and recommendations regarding each of these issues are below with supporting documents attached. These conditions are necessary to ensure that changes to building he ight, parking, and access are carried throughout the remainder of the application materials (i.e. urban forestry plan, landscaping plan, etc.). Off-Street Parking In response to Planning Commission feedback, the applicant has revised the site plan to increase the off-street parking space count from 105 to 120 parking spaces.1 This change brings the proposed project into conformance with minimum off-street parking requirements required in 18.765.070 (Minimum and Maximum Off-Street Parking Requirements). This increase was accomplished through a reduction in landscaping and increase in impervious surface from 68% to 71% (80% maximum per Tigard Development Code 18.350.060.C.2), the conversion of 8 standard parking spaces to compact parking spaces, and the removal of a dedicated drop-off/pick-up drive aisle for the memory care wing entrance. 1 See large format plan sheet included with this memorandum, titled “Sheet C6, Preliminary Site Plan/Lot Line Adjustment Plan Alt 2 Rev” and date stamped April 15, 2014. 2 of 6 Revised April 21, 2014 Associated with the proposed increase in off-street parking and change in building height (discussed below) is a proposed change in tenant mix that would reduce the off-street parking requirement from 120 to 119 spaces. The changes to the proposed tenant mix are summarized in the table below, along with required parking counts. As a result of these changes, the proposed project would exceed the minimum off-street parking standard by one space. Parking Standard2 Proposed March 17 Revised April 21 Independent 1.0 per room 71 70 Assisted 1.0 per 2.5 beds 57 59 Memory Care 1.0 per 2.5 beds 24 23 Total Units 152 152 Required Parking 120 spaces 119 Should the Planning Commission find the change in parking satisfactory, an additional condition of approval is recommended to ensure changes to the parking area and building design do not result in noncompliance of other sections of the code including landscaping, urban forestry, and design compatibility standards. The text of this new condition is located at the end of this memorandum. Building Height In response to Planning Commission feedback, the applicant has submitted a revised design that reduces the maximum building height from 48 feet to 37 feet (included as Attachment A” of this memorandum). This reduction was accomplished by removing the four story portion above the “core” of the proposed structure and redistributing the living area onto the one and two-story wings proposed in the original application. As revised the structure now has a more uniform height rather than the “stepped-back” design originally proposed, and retains the pitched roof design and general architectural style of the initial proposal. The revised design still requires Planning Commission approval as it exceeds the 30 foot maximum height limit for any primary structure within the R-4.5 zone. Staff recommends approval of the revised design as it meets approval criteria for building height set forth in 18.350.060.C.3 (Detailed Development Plan – Building Height) as discussed on pages 20 and 21 of the staff report. This standard states building height may be increased above the maximum provided the structure is set back from the perimeter a distance of at least 1.5 times the height of the building. As demonstrated in the table below, the applicant has exceeded this standard on all four elevations. Comparable setbacks for “by-right” development are also included for comparison. 2 TDC 18.765.030.E requires multi-dwelling units with more than 10 required parking spaces to provide an additional 15% of vehicle parking spaces above the minimum required. 3 of 6 Revised April 21, 2014 Site Boundary Minimum Setback Required for 30’ High Single Family Dwellings Minimum Setback Required for 30’ High Multi-family Without PD Minimum Setback Required to approve Bonaventure Proposed Height Adjustment from 30’ to 37’ Proposed setbacks for three story portions of structure3 North 20’ 50’ 55.5 ft. 60’ 78’ South 20’ 50’ 55.5 ft. 60’ East 20’ 50’ 55.5 ft. 125’ 99’ West 20’ 50’ 55.5 ft. 60’ 62’ / 216’ Should Planning Commission find the change in building height satisfactory, an additional condition of approval is recommended to ensure changes to the building height do not result in noncompliance of other sections of the Tigard Development Code. The recommended text of this condition is located at the end of this memorandum. Extension of SW 83rd Ave On March 17 the Planning Commission expressed a desire for a “third option” for the extension of SW 83rd Avenue to address neighborhood concerns. Staff believes the proposed design already represents a third option and middle-ground between a “no-through-street” design option and a “full-build” extension of SW 83rd due to the following design features proposed by the applicant and approved by the City Engineer:  Reducing the existing cross section for SW 83rd from 28 feet at the existing street stub to a narrower 24 feet between Matthew Park and Ross Street. This reduction allows for greater on-site landscaping and cues traffic to slow down as the roadway narrows.  Use of a meandering street alignment with multiple curves to reduce travel speeds.  Use of an offset intersection alignment to reduce travel speeds across the intersection and avoid impacts to trees and historic log home on the adjoining property.  Increased planter strip widths along the eastern side of the roadway, up to 23’ at the widest point, to preserve health of trees on adjoining property and provide additional landscape buffering between the senior living facility and single-family homes to the east. Rather than require the extension of a straight, full -width street the proposed design allows for a reduction in off-site impacts while still providing the required street connectivity discussed in findings contained in pages 14, 26, 53-59, and Exhibit “A” of the staff report. As a result staff 3 Based on site plan submitted April 15, 2014. A condition of approval requires revised floorplans to verify setbacks during building permit review. 4 of 6 Revised April 21, 2014 continues to recommend approval of Option 2 as proposed as it better achieves the requirements and objectives of the Chapter 18, the Transportation System Plan, an d the desires of ODOT and TVF&R for a secondary access point. Should the Planning Commission not find Option 2 to have the desired characteristics necessary to achieve the “3rd option” requested on March 17, staff has identified one additional change that meets city street standards and is acceptable to the applicant, namely the addition of on- street parking within the proposed 24’ pavement width of SW 83rd, as proposed in Option 2. This change would provide additional spillover parking for both the proposed facility and adjoining neighborhood residents, while simultaneously reducing traffic speeds and volumes by further narrowing the travel lane to discourage fast cut-through traffic. A condition of approval has been added at the end of this memorandum to require this change, should the Planning Commission find in favor of it. In addition, a representative of the Engineering Division will be present at the April 21st meeting to address any questions the Planning Commission may have regarding the project. Tualatin Valley Fire & Rescue Service Capability On March 17 the Planning Commission inquired about the expected number of service calls to this facility by TVF&R. Staff contacted the agency and Deputy Fire Marshall John Wolff confirmed that service would be primarily provided from their station on Burnham Street, approximately 1.2 miles north of the project site, and they anticipated approximately 15 2 calls for service per year based upon similar facilities in the region. In addition to this phone call, Deputy Fire Marshall Wolff confirmed in an email and service provider letter dated April 3, 2014 that TVF&R has the equipment and personnel to service the facility as proposed in the application. Copies of both are included as Attachments “B” and “C” to this memorandum. Groundwater Contamination On March 17 a Planning Commissioner requested a copy of the DEQ report on this property. In response a copy of the June 21, 2012 “No Further Action” letter from Oregon DEQ is attached to this memorandum as Attachment “D”. DEQ is also expected to issue a Prospective Purchaser’s Agreement with Bonaventure to regulate their development of the site. Vehicular Access to Hall Boulevard As proposed in the application, primary access to the facility is to be provided from Hall Boulevard through a right-in/right-out entrance and associated mid-street median. As discussed on pages 23-24 of the staff report, ODOT and the City area in agreement on the construction of the median. The City and TVF&R would like to see the median constructed using a mountable design that would allow a fire-truck to traverse the median and make a quick and direct left turn directly into the facility, reducing both response times and traffic impacts to the 5 of 6 Revised April 21, 2014 neighborhood. ODOT was initially comfortable with this design during meetings on the project with both staff and the applicant. As mentioned at the hearing on March 17, just a few hours before the hearing ODOT contacted City staff to express a change of position due to new concerns about a mountable median design and their disinclination to approve one as proposed. As Hall Boulevard is an ODOT facility, they have final jurisdictional authority over road design. That said, ODOT has said they willing to consider TVF&R’s emergency response needs and work towards a design solution acceptable to all parties. Staff and the applicant have diligently worked to mediate a design solution acceptable to all parties, but one has not yet been reached due to lengthy planned absences of critical staff at both TVF&R and ODOT that have prevented a four party meeting. That said, there is no reason to believe an acceptable design solution could not be achieved during the construction design phase through conditions of approval 19 and 22 as recommended in the March 17 staff report, and modification of conditions of approval 14 and 29 as proposed at the end of this memorandum. Additional Conditions of Approval Recommended by Staff As discussed above, the following conditions of approval are recommended to ensure the application conforms with all applicable city and agency requirements. New Condition of Approval:  Prior to approval of a site work and building permits, applicant shall submit a revised title sheet (C1), site plan (C6), floor plans (A2.1-A2.4), landscape plan (L5.0), urban forestry plan (L4.0) and supplemental report to address changes in parking, unit count and site circulation approved by the Planning Commission and in conformance with Chapters 18.360 (Planned Development), 18.510 (Residential Zones), 18.705 (Access), 18.720 (Design Compatibility Standards), 18.745 (Landscaping Screening), 18.790 (Urban Forestry Plan), 18.795 (Visual Clearance Areas), and 18.810 (Stree t and Utility Standards). Proposed Modification to Conditions in March 17 Staff Report: 13. Prior to issuance of the site permit, the applicant shall obtain city approval of site plans (as shown on the Alternative 2 plans) to provide at least an 18-foot paved half-width of Ross St and at least a 24-foot paved width plus transitions for 83rd Ave and Matthew Park St. The sidewalk may be deleted along the east side of 83rd Ave along the property to the east at 8275 SW Ross St. Parking is to be allowed along the west side of 83rd Ave along the subject property where it does not cause issues with sight distance or stree t function. Each of these streets shall include at least a 5-foot sidewalk, 5-foot planter strip, curb, street trees, street lights, underground utilities, storm drainage, and all other 6 of 6 Revised April 21, 2014 work necessary for a complete street in accordance with City of Tigard and other applicable standards. 14. Prior to issuance of the site permit, the applicant shall obtain city approval of site plans to provide frontage improvements along Hall Blvd of a newly paved and curbed half- width of at least 24 feet (including a bike lane) and an 8 -foot sidewalk starting about 41 feet from centerline plus planter strip between curb and sidewalk (the sidewalk shall be constructed in the ultimate location for the planned five lane section). A 200-foot long concrete raised median traversable by emergency vehicles shall be provided along the centerline of Hall at the proposed driveway. Street construction shall include street trees, street lights, underground utilities, storm drainage, and all other work necessary for a complete street in accordance with City of Tigard, ODOT, ADA, and other applicable standards. The applicant shall obtain city engineer approval of vehicle access from Hall Boulevard to the Site. 29. Prior to final inspection of the proposed senior living facility, the applicant shall complete construction of frontage improvements along Hall Blvd of a newly paved and curbed half-width of at least 24 feet (including a bike lane) and an 8 -foot sidewalk starting about 41 feet from centerline plus planter strip between curb and sidewalk. A 200-foot long concrete raised median traversable by emergency vehicles shall be provided along the centerline of Hall at the proposed driveway. Street construction shall include street trees, street lights, underground utilities, storm drainage, and all other work necessary for a complete street in accordance with City of Tigard, ODOT, ADA, and other applicable standards. The applicant shall obtain city engineer approval of vehicle access from Hall Boulevard to the Site.