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12/13/1978 - Packet 1 AGENDA CITY OF TIGARD NEIGHBORHOOD PLANNING ORGANIZATION (NPO #7) December 13, 1978 - 7 : 30 P.M. Fowler Junior High - Lecture Room 10865 S .W. Walnut St. - Tigard, Oregon 1. Open Meeting (7 : 30 P.M. ) . 2 . Roll Call : 3. Approval of Previous Minutes : 4 . Public Hearing (8 : 00 P.M. ) : 5. 1 14EIGHBORHOOD PLANNING ORGANIZATION (NPO #7) : Review of the Neighborhood Planning Organization (NPO #7) Plan for the Summer Creek neighborhood 6 . Other Business: 7 . Adjournment : i r NPO #7 MINUTES November 15 , 1978 Bonnie Owens ' Home Roll Call: Present: Bonnie Owens, Bill Richey, Jim Penick, Joann Grund, Belmont Williams Yvonne Larson, Phil Mullard & Ken Weaver Absent: Gerald Anderson, Alan Paterson Lynn Scroggins The policy statements formulated at last week 's meeting were reviewed. Phil Mullard moved that Policy No. 18 as formulated at the previous meeting be eliminated from our plan. Bill Penick & Yvonne Larson seconded the motion. After brief discussion the motion carried unanimously. After discussion concerning the commercial residential boundary in the plan, Phil Mullard moved that we limit the commercial-residential designated boundary to the natural property line designated as S .W. 125th, be redesignated under medium-density zone classification. Joann Grund seconded the motion. Motion carried unanimously. Joann Grund moved that a new Policy 18 be put into the plan stating as follows: It is the intent that the commercial retail uses not be extended any further to the West than 125th along Scholls Ferry Road so that there will not be any future strip development. Phil seconded the motion. Motion carried unanimously. It was pointed that the motion concerning the extension of a boundary as urban medium-density along Southern & Western boundary of Meats property was an improper motion at our previous meeting. Jim Penick moved that the improper motion be struck. Motion was seconded and carried. Phil moved that the urban medium land use designation be extended to southern and western boundary of Meats property (refer to legal description) with recommendation that duplexes be placed on Westerly side of extension of S.W. North Dakota Street (this extension at this time not in existence) . Motion was seconded and carried unanimously. Business continued with the reading and approval of the rest of the plan, with minor changes as follows: On page 8, add after zone in the first paragraph on that page, "or a residential-commercial zone. " On page 7, change "two" to "three" in the first sentence on page 7. Policy 21 changed - (I hope Ken has notes on this as Bonnie ' s notes showed only that it was changed. ) i Phil Mullard moved that the plan be adopted with the foregoing changes , addition or corrections. Bill seconded the motion and the motion carried. After brief discussion concerning the need for a secretary for NPO #7, Bonnie nominated Yvonne Larson as Secretary. Phil moved that the nominations be closed and seconded the nomination. Motion carried. It was moved and seconded and passed that the meeting be adjourned Meeting adjourned. TIGARD MMUNITY PLA't4 NEIGHBORHOOD PLANNING ORGANIZATIO`1 NPO 1#7 DRAFT PLAN (Submitted to the Tigard City Planning Commission on 11/21/73) This section describes the intentions of the Neighborhood Planning Organization_ and the City of Tigard with respect to the future develop- ment of the Neighborhood. It is a "policies plan" , providing guide lines . for development in the form of policy statements. These policies, the accompanying text, and the plan map are to be consulted jointly when evaluating development proposals_ These proposals include zone change requests, subdivision proposals, changes in the street system, or any proposal requiring public agency review. This plan is a means of guiding development in order to achieve desired purposes or goals. This section therefore begins with the statement of goals provided in the city-wide Tigard Community Plan . These goals provide the basis and describe the broad purposes of . the Neighborhood planning effort and have been included in this plan in their entirety. The Neighborhood is a portion of the larger Tigard Community and these goals serve to relate this part to the whole. GOALS FROM THE TIGARD COl'MIUNITY PLAN 1. The city intends to limit the ultimate population of the planning. area. The comprehensive plan provides for a maximum population of around 115, 000 people. There are four categories of residential density, ranging from a suburban density of 2 families per acre to a high in selected areas of up to 40 families per acre. This range of residential densities is intended to provide a variety of living environments that will accommodate the housing needs of different family size and income. The density of population influences the character of residential areas and determines the demand for public facilities and services in different parts of the city. The c; tizens of the community should know the density of development that is planned for different parts of the city as it affects their own neighborhoods. City officials need to know the demands for different public facilities and services in different parts of the city. 2. The comprehensive plan recognizes the established character of existing neighborhoods and seeks to preserve and enhance existing `: neighborhood values. Future development proposals should be sensitive to the concern of citizens for their oc:� immediate environment as well as to the well being of the city as a whole . 3. The comprehensive plan takes advantage of the natural features that give Tigard a distinctive character and quality. These include topographic features such as Bull Mountain, Little Bull Mountain and Fanno Creek. Fanno Creek and its tributary streams provide natural drainage ways and make possible a system of greenways connecting various parts of the city. The comprehensive plan recognizes the potential of greenways in enhancing the livability of the community. The implementation of a greenway system is a major element of the Tigard Comprehensive Plan. 4. Heavy traffic is noisy, smelly; and dangerous. It conflicts with residential values and with many of the other activities within the city. Therefore, major traffic routes need to be designed and located in a manner that will minimize these inherent conflicts at the same time allowing motorists to reach their destinations quickly safely. The comprehensive plan provides for improvements in the traffic system?. It designates streets and highways by category, and it sets standards for their design. she major street pattern indicated in the comprehensive plan will give notice as to how the city. intends to route major traffic volumes in the future. S. Convenience is a major objective in locating shopping facilities and other businesses. At the same time, their location should not conflict with residential areas or create unnecessary traffic congestion. Tigard does not have a "central business district" in the sense that a very large proportion of its stores and other businesses are concentrated in the central location. The compre- hensive plan seeks a distribution of neighborhood and community shopping centers in locations that are easily accessible to the areas they serve . These shopping centers will be designed in a manner that will minimize land use and traffic conflicts. 6. There is still an abundance of vacant land in the Tigard area that has potential for industrial development and the comprehensive plan is designed to encourage its use for this purpose. An objective of the plan is to create employment opportunities within the community for those persons who live there. The plan also recognizes the importance of a balanced tax base in supporting necessary community facilities and services. Regulations set for industrial development will insure high standards that are in the interest of industry and the city as a whole. 7. The location of schools and parks affects the livability of Tigard's residential neighborhoods. Youngsters in the elementary grades should be able to walk to school and should not have to cross busy streets . Where possible, parks and schools should be developed on adjacent sites, tied to the greenway system. While the patterns of existing ideal development and topography do not always permit an _ ideal arrangement of schools and parks, the comprehensive plan will assist the community to approach this objective. -2- S OSIDENTIAL DEVELOPMENT • t The Neighborhood Plan proposes two basic categories of residential � development: single 'family homes and apartments. Tn addition. to provide flexibility for innovative and/or efficiency residential development an accommodating policy provision is included. � URBAN LOW-DENSITY RESIDENTIAL DEVELOPMENT ; 1 The area on the plan map designated Urban Low-Density Residential is intended for single family residential. development_ This designation, is used in the Tigard Community Plan and the first four }policies related .to ; this designation are taken directly from this city-wide plan , These - policies establish density and improvement guidelines for the Neighborhood. POLICY 1. The maximum overall density of development will be four dwelling - units of 12 persons per gross acre. This amounts to a standard of 7500 square feet of land per dwellling unit allowing for streets and other open space. Some areas will have a lower density owing to topography, existing development patterns, or the desire of individuals to own a larger lot. POLICY 2 . Residential subdivisions will be developed with paved streets, curbs and gutters, street lights, and walkways, according to city or county standards. All utilities will be placed underground. POLICY 3. Development will coincide with the provision of public, streets, water and sewerage facilities. These facilities shall be (a) capable of adequately serving all intervening. properties as well as the proposed development and (b) designed to meet city or county standards. POLICY 4 . Planned unit developrdent will be encouraged on tracts large enough to accommodate ten or more dwellings. Planned unit development will permit a degree of flexibility in design that will enable a higher quality of development in accordance with zoning standards, PROBLEM: Should any mixing of housing types occur to include duplexes and apartments in the single family area? The Tigard Community Plan allows limited mixing of housing types in the urban low density residential areas. The committee concluded that some mixing which would permit limited amounts of efficiency housing was appropriate when sensitively designed into the larger residential develop- ments planned for the area west of 121st ("sensitively designed into" means mixing a variety of housing types rather than clustering one type, _ ' ie. , duplexes or apartments into an area) . The area east of 121st and adjacent Dakota and Tigard Streets was viewed as having a large lot res- idential character which would not be compatible with the more efficient - land development techniques, "but should be developed as existing minor ._ land partitions; small acreage subdivision; building codes; and required access provisions will allow" . -3- GPOLICY 5. In recognoon of the need to combat esing housing costs by facilitating efficient development patterns, "efficiency housing" methods such as attached single family homes and minimum lot sizes of 5, 000 square feet are deemed appropriate west of 121st when they are included as a portion of a larger single family development. The intent of this policy is to provide the opportunity for home ownership not to expand the amount of rental housing provided for in the urban medium density areas. POLICY 6. The single family character of the area designated on the plan. map as urban low-density residential is viewed as a positive asset to be retained.' Projects proposed *for this area must be judged according to affects upon this character. POLICY 7. Within the urban low-density residential area, allow duplexes on lots less appropriate for single family homes to inclue locations at street intersections, adjacent major thoroughfares, and as buffers betu-ween multi-family and single family areas. (1) PROBLEM: The development of residential subdivisions often-result in the loss of desirable natural amenities in order to provide the standardized plotting and street patterns required by the zoning and subidivision codes. POLICY 8. Men developments are proposed in the urban low-density area for sites which include identified natural features worthy of preser- vation, the planned development concept shall be utilized if the . Planning Commission determines it the best method for preservation. The planned unit development (P.U.D. ) allows deviation from the normal zoning standards, when it can be demonstrated a more desirable develop- ment will result. An example is the reduction of individual lot size. to enable the creation of park area. The P.U.D. is often capable of producing a more desirable living environment and it is therefore recommended that the larder vacant parcels be developed as P .U.D. 's (1� The Tigard Zoning Ordinance requires duplexes to be considered for approval by the Planning Commission- in a public . hearing. . Conditions can be placed upon the approval to insure compatibility with the surrounding homes and in addition, the ordinance requires that landscape and architectural plans be submitted and approved by the Site Development Plan and Design Review Board. These approvals insure compatibility with the existing Neighborhood. -4- - 'One P.U.D. method empOes a clustering of houses0to groups of 3 to 7 with the land between the clusters devoted to public open space. Developing land with a P.U.D. concept is one method of acquiring a park site by allowing a higher density on the adjacent land. This method of open-space acquisition is known as density trade--off and it is used as an incentive for developers to donate park space. The trade-off invo!v:-s allowing the number of dwelling units which could be constructed on the park site to increase the density on the remainder of the parcel. As an example, if 20 acres are to be developed in the urban low-density area the total number of houses permitted is 80. If the developer is requested to donate 3 acres for a park, 80 houses would still be permitted, but on 17 acres. Although the density has been increased, recreation space . has been provided and the public benefited. It is important to note this sytem works for proportionally small trade-- offs, but creates problems as the trade-offs get larger. For instance, if the sable 20 acres were divided in half with ten acres for park and ten acres for housing, the development would no longer be single family but multi-family. Therefore, while trade-offs can be used to benefit the Neighborhood, the intent of the plan must not be violated by permitting multi-family densities on parcels designated for single family use in an effort to acquire public open spaced URBAN ttEDI UM-DENSITY RESIDENTIAL This land use category provides for multi-family residential development. It corresponds to the same category provided in the ligard. eomm.unity Plan and the following six policies are taken directly from the Community Plan. These policies establish density and improvement•gui.de•- lines for the Neighborhood. POLICY 9. * The maximum overall density of development will be 12 dwelling units or 29 persons per gross acre. This amounts to a standard of 2500square feet of land per dwelling unit allowing for streets and other open space. Some areas will have a lower density owing to topography or existing development patterns_ POLICY 10 . Urban medium-density residential areas will be developed with paved streets, curbs and gutters , and walkways, according to city or. county standards. All utilities will be placed underground. POLICY 11. Development will coincide with the provision of public streets, water and sewerage facilities. These facilities shall be (a) capable of adequately serving all intervening properties as We1i as the proposed development, and (b) designed to meet city or county standards. .POLICY 12. Planned unit development will be encouraged on tracts large enough to accommodate ten or more dwellings. Planned unit development will permit a degree of flexibility in design that will enable a higher quality of development in accordance with zoning standards. • E -5- • POLICY 13.• Site plarWill provide for adequate0en space to (a) protect adjacent properties, and (b) provide ample yard space for residents and play space for youngsters. POLTCY 14 . High design standards will be established for -signing and appearance, including the landscaping of setback areas and the designation of access points. PROBLE:d: Unfortunately, some apartments have had a detrimental affect on the Neighborhood. Land not covered by building is given to .the automobile as parking, at the expense of landscaping and usable open space for residents. As provided in Policy 9, the maximum permitted density is -12 dwelling. units per acre. This density is well below the 19 to 38 units per acre allowed when the Neighborhood' s existing apartments were constructed. The result of these higher densities was a site with a two or three story building surrounded by a parking lot with little or no room left for landscaping or on-site recreation space. To remedy this situation, the Tigard Zoning Ordinance has been amended to conform with the Tigard Community Plan. The A-�2 apartment zone now restricts density to a maximlam of 12 units per gross acre and requires landscaping and on--site recreation space. PROBLEM: Mary existing apartments are poorly sited in relation to adjoining development.. In some cases apartments have been located where they conflict with single family homes or where they become part of a commercial development_ Multi-family development is a living environment and its "Livability" is a primary concern of this plan. Apartment projects offering a desirable living environment have the lowest vacancy rates, the lowest turn-over of tenants are capable of higher rent schedules for their owners. This type of apartment is desirable to the community because they can be better maintained, the residents are more permanent member of the cormmunity and the structures maintain a higher taxable value over their life span. Therefore, each apartment project must be evaluated according to the kind of living environment produced . The impacts upon surrounding land use, especially' single ' family homes, ` must be considered. Large buildings should not tower over single family ~ hoses, causing windows, balconies and patios to look into the windows of adjacent homes or apartments® POLICY 15 . Apartments should be located to produce an optimum living environment for the occupants . Development criteria should include: ' A. Buffering by means of landscaping, fencing and distance from commercial areas and major traffic carriers- such as Pacific Highway. r B. On-site recreation space as well as pedestrian and bicycle I access to parks, schools, and convenience shopping. C. The siting of buildings to minimize the visual effects of parking areas and to increase the availability of privacy. 1 POLICY 16. Apartments should be located to produce the least adverse affects upon single family areas. Development criteria should include: i A. Buffering by means of landscaping, fencing and distance. . s B. Compatibility of design recognizing the conflicts of mass and height between apartment buildings and houses. COALMERCIAL DEVELOPMENT The Plan proposes two categories of commercial development for the Neighborhood, all to be located along Scholls Ferry Road. These are Retail-Commercial and Commercial Professional . The Retail category is intended to accommodate a range of retail and service commercial uses, and commercial professional uses. The urban medium-density allows office type uses as a conditions use under the A-2 zone category that implements that urban medium-density land use designation. POLICY 17. Development shall coincide with the provision of public streets, water and sewerage facilities. These facilities shall be �! (a) capable of *adequately serving all intervening properties as well as the proposed development , and (b) designed to meet city or county standards. The only area planned for Retail-Commercial planned development in the Neighborhood is at the intersection of 121st Avenue and Scholls Ferry Road. This neighborhood shopping center is necessary to meet the needs of the residential community for basic goods and services such as as groceries, drugs, banking, etc. The area west of the shopping center and south of Scholls Ferry Road is designated for a mixture of apartments and commercial-professional uses. These uses are generally compatible and permit the sharing of parking and other facilities. This land is best developed as a Planned Unit Develo.-ment but could also develop under the standards of the Multi- Family (A-2) Zone and Commercial-Professional (C-P) Zone, or a Commercial-Residential Zone. POLICY 18. It is the intent that Commercial-Professional uses not be extended any further to the I9est than the Westerly boundary of the Cunningham-Olsen property along Scholls Ferry Road so that there will not be any future strip development . -7- STREETS When the N.P.O. had completed a preliminary land use plan it was turned over to a counsultin� traffic engineer, Carl Buttke to test the street system to determine if it could handle the proposed land use and to propose appropriate improvement standards. In this report (included as an addendum) , Mr. Buttke makes the following conclusions about future street improvements . It is concluded from the assignment of future traffic that the proposed street system will be adequate to accommodate the proposed land uses and resulting traffic. The recommended number of traffic lanes on the proposed collector street system is also shown on Figure 3. Generally, all streets will function adequately as two lane roadways with left turn lanes at major intersections or major driveways at the commercial area. The only exception would be on 121st Avenue immediately south of Scholls Ferry Road. It is recommended that 121st Avenue be provided with two northbound lanes (one right turn and one left turn lane) and two southbound lanes to the major east-west col- lector street on the south side of the commercial area. The right southbound lane should be marked as a right turn lane for the commercial area access and the east-west collector street. . It is not possible within the scope of this assignment to determine the lane requirements for Scholls Ferry Road. However, it will be necessary to develop Scholls Ferry Road to at least a four lane roadway with left turn lanes in the median area. The City of Beaverton had indicated a need for a six-lane road- way with left turn lanes . As the area develops , it will be necessary to install traffic signals at the following locations as indicated on Figure 3: Scholls Ferry Road and 121st Avenue Scholls Ferry Road and 135th Avenue 121st Avenue and Walnut Street Street Classification Streets on the Plan are designated according to the following classification system. ARTERIAL. STREETS Purpose : to carry high volume traffic flow and to connect major traffic generating areas such as residential neighborhoods , commercial centers , industrial areas and nearby com- munities . 8 Arterial Streets Designated by the Plan: Scholls Ferry Road Scholls Ferry Road -is the jurisdiction of the State Highway Department . Therefore, development abutting Scholls Ferry right-of-way must adhere to the scan- dards and receive approval from the Oregon Department of Transportation. COLLECTOR STREETS Purpose: to collect and distribute traffic between arterial and local streets or directly to traffic destinations . A secondary purpose is to provide access to abutting properties . Collector Standards : Pavement width 44 feet (two 13 foot moving lanes and two 9 ft. parking lanes . 26 ft . of pavement at intersections and crosswalks) Right-of-way width 60 foot minimum Moving lanes 2 Volume 1,500. -, 6,000 vehicles per day Driving speed 20 - 35 miles per hour Collector Streets Designated by the Plan: S.W. 135th S .W. Walnut Street S .W. 121st LOCAL STREETS Purpose : to provide access to properties abutting the street Local Standards : New Streets Right-of-way 50 - 60 ft. (50 foot minimum) Pavement width 32 - 36 feet Moving lanes 2 Volume 0 - 1500 vehicles per day Driving speed 10 - 25 miles per hours 9 Cul-de-sacs 40 ft. radius turn- around and 400 ft . maximum length Existing Streets Improvements to existing local streets in the residential portion of the neighborhood will be made upon existing rights-of-way whenever . possible. This will avoid the taking of land- scaped front yards of homes built near these rights-of-way. Local Streets Designated by the Pian All remaining streets not specified for arterial or collector status . BIKE PATOIS Bike paths are to be required where possible and are to align with existing paths . TRAFFIC AND TRANSPORTATION POLICY 19 . It is intended that the collector that extends W from 121st and the extension of N. Dakota Street that joins with the extension of Spring-wood Drive, should not be a major bypass that would carry cross community traffic across from Scholis to the Tigard Community, to the area of Greenburg Road. This should be implemented by stop-signs and the maintenance of existing off--set intersection. POLICY 20. Access onto Scholls Ferry Road shall be limited to the major collectors indicated on the approved NPO 7#7 Plan map with an approved access for the commercial development to be located at 121st/Scholls Ferry Road, and the existing right-of-way at tax Lots 600, 500, and 400. POLICY 21. New major subdivisions or planned unit development of 5 acres or 60 units or larger shall provide at least two (2) separate accesses from the development to collector streets . Those accesses shall be approved by the City Planning Com-nission so as . to insure adequate ingress/egress to the subdivision for emergency service vehicles . POLICY 22 . Where "dead end" streets are created with street plug, future development will comply in alignment and construction standard of the street to be continued . 10