CITY OF TIGARD EXPECTED SERVICE AREA

CITY OF TIGARD EXPECTED SERVICE AREA City overview / Background Incorporated in 1961, the has experienced rapid growth over the years. This growth can be attributed to many factors, primarily the close proximity to Portland and easy access to major transportation facilities such as Hwy 99W, Hwy 217, and I-5. At incorporation, the city had a population of 1,084 residents. Almost fifty years later, Tigard has grown to become Oregon s 11 th largest city with 47,150 residents in 2008. Along with population growth, Tigard s land area has increased to 7,570 acres and the economy grown to 37,861 jobs. The present employment to population ratio is approximately 0.8 jobs per resident. Approximately 61% of land within Tigard is comprehensively planned to accommodate residential uses, ranging from low-density single-family homes to high-density multi-family dwellings. Commercially designated uses compromise approximately 10% of the City s land use area, and Industrial uses around 9%. Almost 9% of the City is planned for mixed-use, which allows for various combinations of commercial, industrial, and residential uses. The remainder of the City is planned for open space and institutional uses, at 8% and 3% respectively. The 2008 Buildable Lands Inventory (BLI) included only 7% of the total land area of Tigard. The majority of land included was residential, primarily low and medium density. Approximately 87% of residential lots were less than one acre in size, and over half of all residential lots were less than 10,000 square feet in size. No Community Commercial or Neighborhood Commercial was identified. While new development is not limited to properties included in the BLI, the low percentage of BLI properties and their small size point to the likelihood of increased pressure to redevelop properties, to increase density, and to look to mixed use areas to absorb more residential development. Such pressure would be reinforced by Tigard s unique position as the only Washington County city landlocked by urbanized land uses, including the unincorporated residential development in the vicinity of Bull Mountain, which prevents the annexation of undeveloped rural lands. As a result, the extension of municipal services to growth areas 63 and 64, though probable, is not a certainty. The s current aspirations are to provide functional, multi-modal transportation connections between Tigard and the Metro Region, as well as local and sub-regional centers and corridors including the Washington Square Regional Center, the Downtown Tigard Town Center, the Tigard Triangle, and the Hwy 99W corridor. These connections are critical to integrate the urban functions found in these areas to create a synergy of urban density land uses that move Tigard towards a complete community. Concurrent with that, the City is committed to the protection and maintenance of the single family pattern of its existing neighborhoods. Such aspirations are reflected in the 2040 Metro Growth Concept and Tigard s ongoing long range planning and redevelopment activities. Urban Reserves Findings 1

Tigard aspires to absorb another 17,504 additional dwelling units and 31,845 additional jobs within the existing city limits. Assuming 2.48 persons per household, approximately 43,410 additional residents will reside in such housing. The distribution of the new dwelling units is as follows: 3,476 dwelling units (Tigard Buildable Lands Analysis, January 2008) 2,500 dwelling units (Tigard Downtown 2058 Redevelopment Aspiration) 3,008 dwelling units (Tigard Triangle Aspiration: 470 acres x 16% 1 x 40 units/acre) 5,000 dwelling units (99W Corridor Aspiration: 200 acres x 50% 2 x 50 units/acre) 3,520 dwelling units (Washington Square Aspiration: 550 acres x 16% 2 x 40 units/acre) 17,504 total additional dwelling units Similarly, the City aspires to increase employment density in its employment areas and maintain a balanced jobs housing ratio of 1.7 jobs per household, with a minimum of 1 job per household added. This outcome can best be achieved when new urban land is annexed as part of a community that already possesses a healthy jobs/household balance, such as Tigard. Furthermore, Tigard is making land use and policy decision to increase employment density on existing employment lands, though precise numbers are hard to predict due to economic uncertainties. As such, Tigard would respond to provide appropriate new employment lands for economic development if conditions warrant. Urban Reserve Candidate Area The candidate urban reserve area that Tigard is proposing is approximately 888 acres in size, and located in Southeast Washington County, westerly of Tigard and north of the Tualatin River National Wildlife Refuge. The current planning designations for these lands are Exclusive Farm Use on the southerly portions of the candidate area, and Agriculture and Forest Use along Scholls Ferry Road to the north. The candidate area is noncontiguous to the, with the unincorporated urbanized areas of Bull Mountain forming a barrier between Tigard City Limits and this growth area, preventing near term annexation by the City. Annexation of several unincorporated properties or County right of way will be necessary to enable the extension of city services to this area. In the long term, Tigard expects the annexation of its full urban services area and the proposed candidate lands for the following reasons: The probable annexation of the unincorporated but urbanized Bull Mountain area by the City of Tigard, lands which are contiguous to the candidate area and presently within the Urban Growth Boundary and the Tigard Urban Planning Area, due to the City s ability to provide the full range of urban services to this community over the long term. 1 5 year trend (2003-07) shows 16% of new development not captured by Tigard Buildable Lands Inventory 2 Assumes 50% redevelopment of property with High Capacity Transit development along 99W Urban Reserves Findings 2

The County and its cities have committed through the recently completed urbanization forum process to not undertake any further unincorporated development. Tigard is the closest City with the capacity to provide these services. The City recognizes that new population and job growth cannot be accommodated by infill and redevelopment alone, and new lands will be needed to be added to the Urban Growth Boundary. Tigard is the logical provider of services to the candidate area. The location of existing and significant north-south and east-west transportation facilities alongside the candidate area, and its reasonable proximity to high capacity transit along the Hwy 99W corridor, reduces the burden of transportation costs necessary for Tigard and other supporting service districts to develop and service this area, and future residents to travel to and from Tigard and the broader region. The anticipated expansion of Beaverton and King City along the Northern and Southern edges of the candidate area will provide the opportunity for the three cities to cooperate in providing key services such as water service and transportation. Approximately 248 acres of Tigard s expected service area has been included in Washington County s West Bull Mountain Concept Planning Area, otherwise known as the Rural Element (WBM-R). Despite its current location outside of the Urban Growth Boundary, Washington County included this area as part of the ongoing concept planning process for Areas 63 and 64 based on the existing road layout and advantages of master planning both 63 and 64 as one contiguous and interconnected community. This portion of the candidate area is bordered by SW Roy Rogers Road to the west, SW Beef Bend Road to the south, Area 63 and 64 to the North, and SW 150 th to the east (Figure 1). Small farms and rural residential parcels are the predominant land use. The remainder is approximately 640 acres in size and bounded by Scholls Ferry Road (Oregon Route 210) to the North, Vandermost Road to the West, the Tualatin River National Wildlife Refuge to the South, Area 64 to the northwest, and West Bull Mountain Planning Area to the Southeast (across Roy Rogers Road). Land uses are comprised primarily of small farms, a vineyard, nurseries, and forested lands. Topography of the site is varied with an elevation change of approximately 120 feet from highest to lowest point. Areas of relatively flat and moderately sloped agricultural and forest land are separated by steep slopes and unnamed stream corridors that drain into the Tualatin River to the South and East. Regional access to these lands occurs through three major roads contiguous or bisecting the area: SW Scholl s Ferry Road, SW Beef Bend Road, and Roy Rogers Road, all of which are classified as arterials in Washington County s 2020 Transportation Plan. Other points of access include SW Bull Mountain Road, a collector street; and SW Vandermost Road, a local street, as classified in the Washington County 2020 Transportation Plan. Public Transit does not service the area at this time. Pre-Qualified Concept Plan Figures 1 and 2 show those areas proposed for an Urban Reserve designation by the. As discussed above, Washington County has already initiated concept planning for approximately 248 acres of Tigard s expected service area which is marked as the West Bull Mountain Planning Area Rural Element on Figure 1. Urban Reserves Findings 3

At this time, Tigard has not concept planned the remaining 640 acres west of Roy Rogers Road as such an action would be premature and potentially misleading to landowners and other stakeholders. Furthermore, given the geographic and legal constraints that presently prevent Tigard from annexing these lands in the near future, and the City s inward looking aspirations for the near future, it is likely that significant time will elapse before this noncontiguous area is considered for inclusion in the UGB. Geographical constraints will not change, but other facts such as environmental regulations, community preferences, demographics, and market demand are subject to considerable adjustment over time. As a result any concept planning should wait until that time to ensure accuracy and prevent undue market influence on landowner expectations. Future concept planning for the area will be consistent with the following assumptions: Tigard will be the primary service provider for urban services including water, parks, and police services. Washington County Clean Water Services and Tualatin Valley Fire & Rescue will continue to service the area, in coordination and/or partnership with the. Future land use designations will support the comprehensive development of Area 63, 64, and the 888 acres of candidate lands into a complete community consistent with the 2040 Growth Concept or successor Metro policies. Such land uses would likely include housing and transportation choices, employment areas, commercial and civic services, access to nature and recreational facilities, and a sense of place and community. Residential land uses are anticipated to be the dominant land use, and built at an average density of 10 to 12 units an acre. Such densities will include a mixture of housing types, densities, and levels of affordability consistent with market demand, sub-regional need, and the Metropolitan Housing Rule. Given the existing topography, natural resource constraints, and need for commercial and civic services, the City anticipates that up to 5,000 residential units can be achieved across the 888 acres of candidate lands. Existing topography limits the development of this area into large scale industrial or employment centers. As a result commercial land uses will likely consist of neighborhood commercial centers and modest amounts of employment land along SW Scholls Ferry Road and/or Roy Rogers Road. Low Impact Design strategies and the location of parks and open space will be used to protect slopes, streams, wetlands, and other natural features on the property, and to avoid conflicts with adjacent non-urban land uses and natural features. Urban Reserve Factor Findings The urban reserve factors identified in OAR 660-27-0050 were considered by the in selecting the potential candidate urban reserve areas. This section addresses each factor and presents findings of fact for the non-concept planned areas westerly of SW Roy Rogers Road. Please refer to Pre-qualified Concept Plan 11 for findings related to the 248 acres presently being concept planned as part of the West Bull Mountain - Rural Element. (1) Urban Reserve Factors: When identifying and selecting land for designation as urban reserves under this division, Metro shall base its decision on consideration of whether land proposed for designation as urban reserves, alone or in conjunction with the land inside the UGB: Urban Reserves Findings 4

a. Can be developed at urban densities in a way that makes efficient use of existing and future public and private infrastructure developments; As discussed above, the candidate area is adjacent to the existing Urban Growth Boundary and within 1/4 mile of existing unincorporated urban development that Tigard expects to annex and service when appropriate and necessary. Areas of relatively flat and moderately sloped agricultural and forest land suitable for development are directly adjacent to existing roads in the area, with steeper slopes and natural resource corridors bisecting the site in a manner that does not constrain site access or the location of parks and open space in those areas. Given the topography of the site, resource constraints, and need for commercial and civil land uses to compliment housing, the City anticipates approximately half the lands will be available for residential development at average densities of 10-12 units an acre. Adjacent lands are also expected to experience urban growth as Tigard, Beaverton, and King City grow to the west along Bull Mountain Road, Scholls Ferry Road, and Beef Bend Road. All three of these roads are identified as arterials in the Washington County 2020 Transportation Plan, with Scholls Ferry Road also identified as a Major Arterial in the 2035 Regional Transportation Plan. The expected service area is also within reasonable proximity to a high capacity transit corridor planned for Hwy 99W. As a result, future investments on any of these roads will have system wide benefits for both the local and broader region. At present the candidate area does not have an identified provider of potable water. The anticipated provider is the Tigard Water Service Area (TWSA) from the east, which presently serves approximately two-thirds of the, and all of Durham, King City, and unincorporated Bull Mountain. The is the water provider for the TWSA, and recently entered into a water partnership agreement with Lake Oswego to jointly upgrade and expand the existing system while securing long-term water rights from the Clackamas River. In addition, Tigard also has an agreement for access to future finished water from Wilsonville s Willamette River treatment plant should even more water be needed. Alternatively, the City of Beaverton may be willing and able to provide water from the north should concept planning reveal that to be a superior solution. Sanitary and storm sewer services will most likely be provided through Clean Water Services (CWS), which presently services approximately 500,000 customers throughout the Tualatin River Watershed. Additional infrastructure necessary to service the area, such as transmission lines or treatment plants, will be located and constructed by CWS in coordination with the Cities of Tigard, Beaverton, and King City. b. Includes sufficient development capacity to support a healthy economy; The candidate area is expected to develop with predominantly residential and civic uses in a manner that will support Tigard s aspirations of to be a complete community with a jobs-to-housing balance of 1.7 jobs for every household. The location of housing in the candidate area will also support Urban Reserves Findings 5

regional and sub-regional industrial and employment centers in Hillsboro and Beaverton to the North, and Tualatin to the southeast. Commercial services and employment areas are anticipated along Scholls Ferry Road, Roy Rogers Road, and Beef Bend Road in order to make use of existing and future roads and high capacity transit corridors. c. Can be efficiently and cost-effectively served with public school and other urban-level public facilities and services by appropriate and financially capable service providers; The candidate area is currently served by three school districts: Beaverton, Tigard-Tualatin, and Hillsboro. The Tigard-Tualatin School District owns an 18.6 acre parcel in Area 63, but has yet to undertake a needs assessment to determine how to develop the site. Provision of public education to future residents will be provided by one or more of these districts, subject to a needs and capacity analysis at the time of concept planning. Parks are expected to be provided and managed by Parks Division. A division of the Public Works Department, the Parks Division presently manages over 300 acres of parks, greenways, and natural areas. Fire protection and emergency medical services would be provided by Tualatin Valley Fire & Rescue which presently serves nine cities and portions of three counties. As development reaches particular thresholds, the location of an additional fire station would be located and constructed in coordination with the Cities of Tigard, Beaverton, King City, and Washington County. This new station is planned for somewhere near the intersection of Roy Rogers and Beef Bend Road. Additional utilities such as electricity, gas, and communication services will be provided by the private sector. d. Can be designed to be walkable and served with a well-connected system of streets, bikeways, recreation trails and public transit by appropriate service providers; The interior of the candidate urban reserve area has minimal road infrastructure and any future development will require the development of an entirely new local circulation network. Improvements to this area will be designed as part of a complete circulation plan that connects the various land uses in the interior with the arterial roads along the edges. Transportation improvements are expected to include upgrades to existing roads, construction of new roads with bike lanes and sidewalks, and accommodation of public transit in coordination with Tri-Met. Natural resource corridors that cross the property, and the adjacency of the Tualatin River National Wildlife Refuge, may provide preferred locations for recreational trails that tie into a regional network. Urban Reserves Findings 6

e. Can be designed to preserve and enhance natural ecological systems; Natural resources on the property are principally associated with unnamed streams that drain the property towards the south and west, and the proximity of the Tualatin River and the Tualatin River National Wildlife Refuge to the south. Future concept planning will inventory existing areas and functions deemed appropriate for preservation and enhancement as part of development. Such strategies could include the location of park and open space areas along natural resource corridors, low impact development techniques, buffer areas, and minimizing or avoiding road crossings in natural resource corridors. f. Includes sufficient land suitable for a range of housing types; As previously discussed under criterion a, it is reasonable to expect that up to half of the candidate area will be available for residential land uses at 10-12 units an acre, with the remainder going towards open space and buffer areas, parks, employment areas, and sundry civic uses as determined at the time of concept planning. Precise configurations and densities are subject to future resource inventories and concept planning, but it is anticipated that higher density housing types, including mixed use typologies, will be located closer to SW Scholls Ferry and SW Roy Rogers Road. g. Can be developed in a way that preserves important natural landscape features included in urban reserves; and The location of resources corridors on the candidate area is such that development can be clustered between these natural landscape features, with major access points located along existing roads that will minimize the need for additional intrusions across resource corridors. Clean Water Service regulations, Goal 5 regulatory programs, parkland aspirations, and Low Impact Design strategies during concept planning will allow for protection and integration of important natural landscape features into the urbanized candidate area. h. Can be designed to avoid or minimize adverse effects on farm and forest practices and on important natural landscape features on nearby resource land, including land designated as rural reserves. Development within the candidate area can be designed to avoid impacts to agriculture lands to the west, and the Tualatin River National Wildlife Refuge to the south, through the use of land use buffers. SW Vandermost Road to the west serves as both a logical boundary for the candidate area, but also a hard buffer between urbanized land uses and agricultural lands to the west. Limiting Impacts on the wildlife refuge to the south can occur through site planning strategies such as the placement of parks and open space along the southern boundary of the candidate area. Specific strategies will be developed during future concept planning as further resource inventories are taken during future concept planning. Urban Reserves Findings 7

Summary In summary, the candidate urban reserve lands being proposed are consistent with both local growth aspirations and the necessary criteria to place land in an urban reserves status. These lands are well served by existing or proximate infrastructure and urban services, and would enable the logical and efficient extension of services from Tigard into an area with sufficient capacity to accommodate approximately 5,000 housing units, new employment areas, and civic functions and services. Urban Reserves Findings 8