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12-14-1995

Regional Urban Growth Goals and Objectives Regional Urban Growth Goals and Objectives

Metro (Or.)

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RegionalUrban GrowthGoals and ObjectivesAmended and adopted December 14, 1995

Ordinance No. 95-625A

METRO

Metro is the directly elected regional government that serves more than 1.2 million residents in Clackamas,Multnomah and Washington counties and the 24 cities in the Portland metropolitan area.

Metro is responsible for growth management, transportation and land-use planning; solid waste management;

operation of the Metro Washington Park Zoo; regional parks and greenspacesjprograms; and technical service to local

governments. Through the Metropolitan Exposition-Recreation Commission; Metro manages the Oregon

Convention Center, Civic Stadium, the Portland Center for the Performing Arts and the Expo Center-

Metro is governed by an executive officer, elected regionwide, and a seven-member council elected by districts.

Metro also has an auditor who is elected regionwide.

For more information about Metro or to schedule a speaker for a community group, call 797-1510.

Executive OfficerMike Burtoii

AuditorAlexis Dow, CPA

District 4Susan McLain

District 1Ruth McFarland

District 2Don Morissette

District 3Jon Kvistad

District 5Ed Washington

District^Rod Monroe

District 7Patricia McCaig

Printed on 50 percent recycled-content paper,cover is 10 percent post-consumer waste1

text is 15 percent post-consumer waste

RegionalUrban GrowthGoals and ObjectivesAmended and adopted December 14, 1995

Ordinance No. 95-625A

METRO

Regional Urban Growth Goals and Objectives

Table of Contents

Introduction 1

Background Statement 1

Goal I: Regional Planning Process 5

Objective 1: Citizen Participation 5

Objective 2: Metro Policy Advisory Committee 5Objective 3: Applicability of RUGGOs 6Objective 4: Urban Growth Boundary Plan 7Objective 5: Functional Plans 7Objective 6: Regional Framework Plan 8Objective 7: Periodic Review of Comprehensive Plans 9Objective 8: Implementation Roles 9Objective 9: Future Vision 10Objective 10: Performance Measures 11Objective 11: Monitoring and Updating 11

Goal II: Urban Form 12

11.1 NATURAL ENVIRONMENT 12Objective 12: Watershed Management and Regional Water Resources 12Objective 13: Water Supply 13

Objective 14: Air Quality 13Objective 15: Natural Areas, Parks and Wildlife Habitat 14

Objective 16: Protection of Agricultural and Forest Resource Lands 15

11.2 BUILT ENVIRONMENT 15Objective 17: Housing 16

Objective 18: Public Services and Facilities 16

Objective 19: Transportation 17

Objective 20: Economic Opportunity 19

Objective 21: Urban Vitality 20

11.3 GROWTH MANAGEMENT 20Objective 22: Urban/Rural Transition 20

Objective 23: Developed Urban Land 21

Objective 24: Urban Growth Boundary 22

Objective 25: Urban Design 23

Objective 26: Neighbor Cities 24

11.4 METRO 2040 GROWTH CONCEPT 25Exhibit A: Growth Concept Map 36

Exhibit B: Regional Trails Map 37

Glossary 38

Acknowledgements

Metro Policy Advisory Committe

Mayor Gussie McRobert, Gresham, chair

Richard Ares, citizen

Richard Benner, Department of Land

Conservation and DevelopmentPhilip Bogue, Tri-MetMayor Rob Drake, BeavertonBud Farm, Powell Valley Road Water DistrictMayor Bruce Hagensen, Vancouver, Wash.Commissioner Charlie Hales, PortlandCommissioner Judie Hammerstad, Clackamas

County

Commissioner Gretchen Kafoury, PortlandCouncilor Jon Kvistad, MetroPeggy Lynch, citizenCommissioner John Magnano, Clark County,

Wash.Councilor Susan McLain, MetroRobert Mitchell, Tualatin Valley Water DistrictCouncilor Jeannine Murrell, CorneliusCommissioner Linda Peters, Washington CountyChuck Petersen, Oak Lodge Sanitary DistrictCouncilor David Ripma, TroutdaleCommissioner Dan Saltzman, Multnomah

County

Mayor Alice Schlenker, Lake OswegoCouncilor Jean Schreiber, MilwaukieCouncilor Ed Washington, MetroJim Zehren, citizen

Metro Technical Advisory Committee

John Fregonese, Metro, chair

Ben Altman, Cornelius

G. B. Arlington, Tri-Met

Brian Campbell, Port of Portland

Jon Chandler, Home Builders Association of

Metropolitan Portland

Tom Coffee, Lake Oswego

Maggie Collins, Milwaukie

Brent Curtis, Washington County

Richard Faith, Troutdale

Deane Funk, Portland General Electric

Mike Houck, Portland Audubon Society

John Jackson, Unified Sewerage Agency

Patricia Kliewer, citizen, Washington CountyDavid Knowles, PortlandDr. Steven Ladd, Beaverton School DistrictDiane Luther, Northwest Housing AlternativesMary Kyle McCurdy, 1000 Friends of OregonR. Scott Pemble, Multnomah CountyLidwien Rahman, Oregon Department of

Transportation

George Richardson, Northwest Natural GasRichard Ross, GreshamNorm Scott, Clackamas CountyJim Sitzman, Department of Land Conservation

and DevelopmentLorna Stickel, Portland Water BureauMary Tobias, Tualatin Valley Economic Devel-

opment Corporation

Kathleen Todd, citizen, Multnomah CountyDennis Tooley, US West CommunicationsElaine Wilkerson, BeavertonGlory Yankauskas, citizen, Clackamas County

Staff

Growth Management Services Department

John Fregonese, DirectorPaulette AllenDavid Ausherman

Rosemary Furfey

Stuart Todd

Mark Turpel

Sherry Oeser

Office of General Counsel

Larry Shaw

Creative ServicesJanice LarsonSue GemmellCathy ThomasMarlon Warren

Introduction

The Regional Urban Growth Goals and Objec-tives (RUGGOs) have been developed to:

1. Guide efforts to maintain and enhance theecological integrity, economic viability,social equity and overall quality of life of theurban region;

2. Respond to the direction given to Metro bythe legislature through ORS ch 268.380 todevelop land-use goals and objectives for theregion that would replace those adopted bythe Columbia Region Association of Govern-ments;

3. Provide a policy for the development of theelements of Metro's regional framework planand its implementation of individual func-tional plans;

4. Provide a process for coordinating planningin the metropolitan area to maintain metro-politan livability.

The RUGGOs are not directly applicable tolocal plans and local land-use decisions. How-ever, they state regional policy as Metro devel-ops plans for the region with all of its partners.Hence, the RUGGOs are the building blockswith which the local governments, citizens, thebusiness community and other interests canbegin to develop a shared view of the region'sfuture.

The RUGGOs are presented through two princi-pal goals, the first dealing with the planningprocess and the second outlining substantiveconcerns related to urban form. The "subgoals"(in Goal II) and objectives provide clarificationfor the goals. The planning activities reflectpriority actions that need to be taken to refineand clarify the goals and objectives further.

Metro's regional goals and objectives requiredby ORS 268.380(1) are in RUGGOs Goals I andII and Objectives 1-23 only. RUGGOs planningactivities contain implementation ideas forfuture study in various stages of developmentthat may or may not lead to RUGGOs amend-ments, new functional plans, functional planamendments or regional framework plan ele-ments. The regional framework plan, functionalplans and functional plan amendments shall beconsistent with Metro's regional goals andobjectives and the Growth Concept, notRUGGOs planning activities.

Background Statement

Planning for and managing the effects of urbangrowth in this metropolitan region involves 24cities, three counties and more than 130 specialservice districts and school districts, as well asMetro. In addition, the state of Oregon, Tri-Met,the Port of Portland and the Portland AreaBoundary Commission all make decisionswhich affect and respond to regional urbangrowth. Each of these jurisdictions and agencieshas specific duties and powers which applydirectly to the tasks of urban growth manage-ment. In addition, the cities of southwest Wash-ington and Clark County, though governed bydifferent state laws, have made significantcontributions to the greater metropolitan areaand are important to this region. Also, nearbycities within Oregon, but outside the Metroboundary, are important to consider for theimpact that Metro policies may have on theirjurisdictions.

Accordingly, the issues of metropolitan growthare complex and interrelated. Consequently, theplanning and growth management activities ofmany jurisdictions are both affected by anddirectly affect the actions of other jurisdictionsin the region. In this region, as in othersthroughout the country, coordination of planningand management activities is a central issue forurban growth management.

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The Metro Council authorized the developmentof goals and objectives. These goals and objec-tives are the result of substantial discussion anddebate throughout the region for more than twoyears. On a technical and policy basis, jurisdic-tions in the region, as well as the Metro Coun-cil, participated in crafting these statements ofregional intent. Specifically, these goals andobjectives have been analyzed and discussed bythe Metro Technical Advisory Committee,comprised of staff land-use representatives andcitizens from throughout the region; the Trans-portation Policy Advisory Committee, made upof staff transportation representatives andcitizens from the region; the Metro PolicyAdvisory Committee, comprised of electedofficials and citizens from the region; and theJoint Policy Advisory Committee on Transpor-tation, which includes elected officials andcitizens from the region.

Goal I addresses coordination issues in theregion by providing the process that the MetroCouncil will use to address areas and activitiesof metropolitan significance. The process isintended to be responsive to the challenges ofurban growth while respecting the powers andresponsibilities of a wide range of interests,jurisdictions and agencies.

Goal II recognizes that this region is changingas growth occurs, and that change is challeng-ing our assumptions about how urban growthwill affect quality of life. For example:

• Overall, the number of vehicle miles traveledin the region has been increasing at a rate farin excess of the rate of population andemployment growth.

• The greatest growth in traffic and movementis within suburban areas and between dis-tricts in the urban area.

• Areas in the region with good transit serviceand compact land-use s designed to servetransit currently use transit for about 9

percent of trips and walking and biking forabout 31 percent of trips for a total of about40 percent non-auto trips, while in otherareas of the region these modes only accountfor about 10 percent.

• To this point, the region has accommodatedmost forecasted growth on vacant land withinthe urban growth boundary, with redevelop-ment expected to accommodate very little ofthis growth, even though recent statisticssuggest that a significant amount of growth ofjobs and households is occurring on lands wecurrently count as developed.

• Single-family residential construction isoccurring at less-than-maximum planneddensity.

• Rural residential development in rural excep-tion areas is occurring in a manner and at arate that may result in forcing the expansion ofthe urban growth boundary on importantagricultural and forest resource lands in thefuture.

• A recent study of urban infrastructure needs inthe state has found that only about half of thefunding needed in the future to build neededfacilities can be identified.

Add to this list growing citizen concern aboutrising housing costs, vanishing open space,increasing frustration with traffic congestion andthe issues associated with the growth of thisregion are not at all different from those encoun-tered in other West Coast metropolitan areas suchas the Puget Sound region or cities in California.The lesson in these observations is that the"quilt" of 27 separate comprehensive planstogether with the region's urban growth boundaryis not enough to effectively deal with the dynam-ics of regional growth and maintain quality oflife.

The challenge is clear: if the Portland metropoli-tan area is going to be different than other places,and if it is to preserve its vaunted quality of life

as additional people move into the urban area inthe coming years, then a cooperative and partici-patory effort to address the issues of growthmust begin now. Further, that effort needs todeal with the issues accompanying growth -increasing traffic congestion, vanishing openspace, speculative pressure on rural farm lands,rising housing costs, diminishing environmentalquality and demands on infrastructure such asschools, water and sewer treatments plants-in acommon framework. Ignoring vital links be-tween these issues will limit the scope andeffectiveness of our approach to managing urbangrowth.

Goal II provides that broad framework neededto address the issues accompanying urbangrowth.

GOAL I: REGIONAL PLANNING PROCESS

Regional planning in the metro-politan area shall:

Li Fully implement the regional planningfunctions of the 1992 Metro Charter;

I.ii Identify and designate other areas andactivities of metropolitan concern throughparticipatory process involving the MetroPolicy Advisory Committee (MPAC), cities,counties, special districts, school districts,and state and regional agencies such as Tri-Met, the Regional Arts and Culture Counciland the Port of Portland; and

I.iii Occur in a cooperative manner in order toavoid creating duplicative processes, stan-dards and/or governmental roles.

These goals and objectives shall only apply toacknowledged comprehensive plans of citiesand counties when implemented through theregional framework plan, functional plans or theacknowledged urban growth boundary (UGB)plan.

Objective 1. Citizen Participation

Metro shall develop and implement an ongoingprogram for citizen participation in all aspectsof the regional planning program. Such a pro-gram shall be coordinated with local programsfor supporting citizen involvement in planningprocesses and shall not duplicate those pro-grams.

1.1 Metro Committee for Citizen Involvement(Metro CCI). Metro shall establish a MetroCommittee for Citizen Involvement to assistwith the development, implementation andevaluation of its citizen involvementprogram and to advise the MPAC regardingways to best involve citizens in regional

planning activities.

1.2 Notification. Metro shall develop programsfor public notification, especially for (butnot limited to) proposed legislative actions,that ensure a high level of awareness ofpotential consequences as well as opportuni-ties for involvement on the part of affectedcitizens, both inside and outside of itsdistrict boundaries.

Objective 2. Metro Policy AdvisoryCommittee

The 1992 Metro Charter has established theMPAC to:

2.i Assist with the development and reviewof Metro's regional planning activitiespertaining to land-use and growth manage-ment, including review and implementationof these goals and objectives, developmentand implementation of the regional frame-work plan, present and prospective func-tional planning, and management andreview of the region's UGB;

2.ii Serve as a forum for identifying anddiscussing areas and activities of metropoli-tan or subregional concern; and

2.iii Provide an avenue for involving allcities and counties and other interests in thedevelopment and implementation of growthmanagement strategies.

2.1 The MPAC Composition. The initial MPACshall be chosen according to the MetroCharter and, thereafter, according to anychanges approved by majorities of the MPACand the Metro Council. The composition ofthe Committee shall reflect the partnership

that must exist among implementing jurisdic-tions in order to effectively address areas andactivities of metropolitan concern. The votingmembership shall include elected and ap-pointed officials and citizens of Metro, cities,counties and states consistent with section 27of the 1992 Metro Charter.

2.2 Advisory Committees. The Metro Council,or the MPAC consistent with the MPAC by-laws, shall appoint technical advisory com-mittees as the Council or the MPAC deter-mine a need for such bodies.

2.3 Joint Policy Advisory Committee on Trans-portation (JPACT). JPACT, with the MetroCouncil, shall continue to perform the func-tions of the designated Metropolitan PlanningOrganization as required by federal transpor-tation planning regulations. JPACT and theMPAC shall develop a coordinated process,to be approved by the Metro Council, toassure that regional land-use and transporta-tion planning remains consistent with thesegoals and objectives and with each other.

Objective 3. Applicability of RegionalUrban Growth Goals and Objectives

These RUGGOs have been developed pursuantto ORS 268.380(1). Therefore, they compriseneither a comprehensive plan under ORS197.015(5) nor a functional plan under ORS268.390(2). The regional framework plan and allfunctional plans adopted by the Metro Councilshall be consistent with these goals and objec-tives. Metro's management of the UGB shall beguided by standards and procedures which mustbe consistent with these goals and objectives.These goals and objectives shall not applydirectly to site-specific land-use actions, includ-ing amendments of the UGB.

3.1 These RUGGOs shall apply to adopted andacknowledged comprehensive land-useplans as follows:

3.1.1 Components of the regional frame-work plan that are adopted as functionalplans, or other functional plans, shall beconsistent with these goals and objectives,and

3.1.2 The management and periodic reviewof Metro's acknowledged UGB Plan, shallbe consistent with these goals and objec-tives.

3.1.3 The MPAC may identify and proposeissues of regional concern, related to orderived from these goals and objectives, forconsideration by cities and counties at thetime of periodic review of their adopted andacknowledged comprehensive plans.

3.2 These RUGGOs shall apply to Metro land-use, transportation and greenspace activitiesas follows:

3.2.1 The urban growth boundary plans,regional framework plan, functional plansand other land-use activities shall be con-sistent with these goals and objectives.

3.2.2 To the extent that a proposed policy oraction may be compatible with some goalsand objectives and incompatible withothers, consistency with RUGGOs mayinvolve a balancing of applicable goals,subgoals and objectives by the MetroCouncil that considers the relative impactsof a particular action on applicable goalsand objectives.

3.3 Periodic Updates of the RUGGOs. TheMPAC shall consider the regular updates ofthese goals and objectives and recommendbased on a periodic update process adoptedby the Metro Council.

Objective 4. Urban Growth BoundaryPlan

The UGB Plan has two components:

4.1 The acknowledged UGB line; and

4.2 Acknowledged procedures and standardsfor amending the UGB line. Metro's UGBPlan is not a regional comprehensive planbut a provision of the comprehensive plansof the local governments within its bound-aries. The UGB Plan shall be in compliancewith applicable statewide planning goals andlaws and consistent with these goals andobjectives. Amendments to the UGB Planshall demonstrate consistency only with theacknowledged procedures and standards.Changes of Metro's acknowledged UGBPlan may require changes in adopted andacknowledged comprehensive plans.

Objective 5. Functional Plans

Functional plans are limited-purpose plans,consistent with these goals and objectives, thataddress designated areas and activities of metro-politan concern. Functional plans are establishedin state law as the way Metro may recommendor require changes in local plans.

Those functional plans or plan provisionscontaining recommendations for comprehensiveplanning by cities and counties may not be finalland-use decisions. If a provision in a func-tional plan or an action implementing a func-tional plan require changes in an adopted andacknowledged comprehensive plan, then adop-tion of provision or action will be a final land-use decision. If a provision in a functional plan,or Metro action implementing a functional planrequire changes in an adopted and acknowl-edged comprehensive plan, then that provisionor action will be adopted by Metro as a finalland-use action required to be consistent withstatewide planning goals. In addition, regionalframework plan components will be adopted asfunctional plans if they contain recommenda-

tions or requirements for changes in comprehen-sive plans. These functional plans, which areadopted as part of the regional framework plan,will be submitted along with other parts of theregional framework plan to LCDC for acknowl-edgment of their compliance with the statewideplanning goals. Because functional plans are theway Metro recommends or requires local planchanges, most regional framework plan compo-nents will probably be functional plans. Untilregional framework plan components areadopted, existing or new functional plans willcontinue to recommend or require changes incomprehensive plans.

5.1 Existing Functional Plans. Metro shallcontinue to develop, amend and implement,with the assistance of cities, counties,special districts and the state, statutorilyrequired functional plans for air, water andtransportation, as directed by ORS268.390(1) and for solid waste as mandatedby ORS ch 459.

5.2 New Functional Plans. New functional plansshall be proposed from one of two sources:

5.2.1 The MPAC may recommend that theMetro Council designate an area or activityof metropolitan concern for which a func-tional plan should be prepared; or

5.2.2 The Metro Council may propose thepreparation of a functional plan to designatean area or activity of metropolitan concernand refer that proposal to the MPAC.

The matters required by the Charter to beaddressed in the regional framework plan shallconstitute sufficient factual reasons for thedevelopment of a functional plan underORS 268.390.

Upon the Metro Council adopting factualreasons for the development of a new functionalplan, the MPAC shall participate in the prepara-tion of the plan, consistent with these goals andobjectives and the reasons cited by the Metro

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Council. After preparation of the plan andseeking broad public and local governmentconsensus, using existing citizen involvementprocesses established by cities, counties andMetro, the MPAC shall review the plan andmake a recommendation to the Metro Council.The Metro Council may act to resolve conflictsor problems impeding the development of a newfunctional plan and may complete the plan if theMPAC is unable to complete its review in atimely manner.

The Metro Council shall hold a public hearingon the proposed plan and afterwards shall:

5.2.a Adopt the proposed functional plan; or

5.2.b Refer the proposed functional plan tothe MPAC in order to consider amendmentsto the proposed plan prior to adoption; or

5.2.c Amend and adopt the proposed func-tional plan; or

5.2.d Reject the proposed functional plan.

The proposed functional plan shall be adoptedby ordinance and shall include findings ofconsistency with these goals and objectives.

5.3 Functional Plan Implementation andConflict Resolution. Adopted functionalplans shall be regionally coordinatedpolicies, facilities and/or approaches toaddressing a designated area or activity ofmetropolitan concern, to be considered bycities and counties for incorporation in theircomprehensive land-use plans. If a city orcounty determines that a functional planrequirement should not or cannot beincorporated into its comprehensive plan,then Metro shall review any apparentinconsistencies by the following process:

5.3.1 Metro and affected local governmentsshall notify each other of apparent or poten-tial comprehensive plan inconsistencies.

5.3.2 After Metro staff review, the MPACshall consult the affected jurisdictions andattempt to resolve any apparent or potentialinconsistencies.

5.3.3 The MPAC shall conduct a publichearing and make a report to the MetroCouncil regarding instances and reasonswhy a city or county has not adoptedchanges consistent with requirements in aregional functional plan.

5.3.4 The Metro Council shall review theMPAC report and hold a public hearing onany unresolved issues. The Council maydecide to:

5.3.4.a Amend the adopted regional func-tional plan; or

5.3.4.b Initiate proceedings to require acomprehensive plan change; or

5.3.4.C Find there is no inconsistencybetween the comprehensive plan(s) and thefunctional plan.

Objective 6. Regional Framework Plan

The regional framework plan required by the1992 Metro Charter shall be consistent withthese goals and objectives. Provisions of theregional framework plan that establish perfor-mance standards and that recommend or requirechanges in local comprehensive plans shall beadopted as functional plans, and shall meet allrequirements for functional plans contained inthese goals and objectives. The Charter requiresthat all mandatory subjects be addressed in theregional framework plan. It does not require thatall subjects be addressed to recommend orrequire changes in current comprehensive plans.Therefore, most, but not all regional frameworkplan components are likely to be functionalplans because some changes in comprehensiveplans may be needed. All regional framework

plan components will be submitted to LCDC foracknowledgment of their compliance with thestatewide planning goals. Until regional frame-work plan components are adopted, existing ornew regional functional plans will continue torecommend or require changes in comprehen-sive plans.

Objective 7. Periodic Review of Compre-hensive Land-use Plans

At the time of LCDC-initiated periodic reviewfor comprehensive land-use plans in the region,the MPAC:

7.1 Shall assist Metro with the identification ofregional framework plan elements,functional plan provisions or changes infunctional plans adopted since the lastperiodic review for inclusion in periodicreview notices as changes in law; and

7.2 May provide comments during the periodicreview of adopted and acknowledgedcomprehensive plans on issues of regionalconcern.

Objective 8. Implementation Roles

Regional planning and the implementation ofthese RUGGOs shall recognize the inter-rela-tionships between cities, counties, specialdistricts, Metro, regional agencies and the state,and their unique capabilities and roles.

8.1 Metro Role. Metro shall:

8.1.1 Identify and designate areas andactivities of metropolitan concern;

8.1.2 Provide staff and technical resourcesto support the activities of the MPAC withinthe constraints established by Metro Coun-cil;

8.1.3 Serve as a technical resource for cities,counties, school districts and other jurisdic-tions and agencies;

8.1.4 Facilitate a broad-based regionaldiscussion to identify appropriate strategiesfor responding to those issues of metropoli-tan concern;

8.1.5 Adopt functional plans necessary andappropriate for the implementation of theseRUGGOs and the regional framework plan;

8.1.6 Coordinate the efforts of cities, coun-ties, special districts and the state to imple-ment adopted strategies; and

8.1.7 Adopt and review consistent with theMetro Charter and amend a Future Visionfor the region, consistent with Objective 9.

8.2. Role of Cities

8.2.1 Adopt and amend comprehensiveplans to conform to functional plansadopted by Metro;

8.2.2 Identify potential areas and activitiesof metropolitan concern through a broad-based local discussion;

8.2.3 Cooperatively develop strategies forresponding to designated areas and activi-ties of metropolitan concern;

8.2.4 Participate in the review and refine-ment of these goals and objectives.

8.3 Role of Counties

8.3.1 Adopt and amend comprehensiveplans to conform to functional plansadopted by Metro;

8.3.2 Identify potential areas and activitiesof metropolitan concern through a broad-based local discussion;

8.3.3 Cooperatively develop strategies forresponding to designated areas and activi-ties of metropolitan concern;

8.3.4 Participate in the review and refine-ment of these goals and objectives.

8.4 Role of Special Service Districts

Assist Metro, through a broad-based localdiscussion, with the identification of areas andactivities of metropolitan concern and thedevelopment of strategies to address them, andparticipate in the review and refinement of thesegoals and objectives. Special service districtswill conduct their operations in conformancewith acknowledged comprehensive plans affect-ing their service territories

8.5 Role of School Districts

8.5.1 Advise Metro regarding the identifica-tion of areas and activities of school districtconcern;

8.5.2 Cooperatively develop strategies forresponding to designated areas and activi-ties of school district concern;

8.5.3 Participate in the review and refine-ment of these goals and objectives.

8.6 Role of the State of Oregon

8.6.1 Advise Metro regarding the identifica-tion of areas and activities of metropolitanconcern;

8.6.2 Cooperatively develop strategies forresponding to designated areas and activi-ties of metropolitan concern;

8.6.3 Review state plans, regulations,activities and related funding to considerchanges in order to enhance implementationof the regional framework plan and func-tional plans adopted by Metro, and employ

state agencies and programs and regulatorybodies to promote and implement thesegoals and objectives and the regional frame-work plan;

8.6.4 Participate in the review and refine-ment of these goals and objectives.

Objective 9. Future Vision

By Charter, approved by the voters in 1992,Metro must adopt a Future Vision for the metro-politan area. The Future Vision is:

" a conceptual statement that indicatespopulation levels and settlement patterns thatthe region can accommodate within thecarrying capacity of the land, water and airresources of the region, and its educationaland economic resources, and that achieves adesired quality of life. The Future Vision is along-term, visionary outlook for at least a 50-year period...The matters addressed by theFuture Vision include, but are not limited to:(1) use, restoration and preservation ofregional land and natural resources for thebenefit of present and future generations, (2)how and where to accommodate the popula-tion growth for the region while maintaininga desired quality of life for its residents, and(3) how to develop new communities andadditions to the existing urban areas in well-planned ways...The Future Vision is not aregulatory document. It is the intent of thischarter that the Future Vision have no effectthat would allow court or agency review ofit."

The Future Vision (adopted by Ordinance 95-605) was prepared by a broadly representativecommission, appointed by the Metro Council,and will be reviewed and amended as needed,and comprehensively reviewed and, if need be,revised every 15 years. Metro is required by theCharter to describe the relationship of compo-nents of the Regional Framework Plan, and theRegional Framework Plan as a whole, to theFuture Vision.

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Objective 10. Performance Measures

Metro Council, in consultation with MPAC andthe public, will develop performance measuresdesigned for considering RUGGOs objectives.The term "performance measure" means ameasurement aimed at determining whether aplanning activity or "best practice" is meetingthe objective or intent associated with the "bestpractice."

Performance measures for Goal I, RegionalPlanning Process, will use state benchmarks tothe extent possible or be developed by MetroCouncil in consultation with MPAC and theMetro Committee for Citizen Involvement.Performance measures for Goal II, Urban Form,will be derived from state benchmarks or thedetailed technical analysis that underliesMetro's Regional Framework Plan, functionalplans and Growth Concept Map. While perfor-mance measures are intended to be useful inmeasuring progress, the Metro Council intendsto have planning and implementation of policiesas its major work effort, not development ofperformance measures.

(As performance measures are adopted, eitherby resolution or ordinance, they will be includedin an appendix.)

Objective 11. Monitoring and Updating

The RUGGOs, regional framework plan and allMetro functional plans shall be reviewed everyseven years, or at other times as determined bythe Metro Council after consultation with orupon the advice of the MPAC. Any review andamendment process shall involve a broad cross-section of citizen and jurisdictional interests,and shall involve the MPAC consistent withGoal 1: Regional Planning Process. Proposalsfor amendments shall receive broad public andlocal government review prior to final MetroCouncil action.

11.1 Impact of Amendments. At the time ofadoption of amendments to these goals andobjectives, the Metro Council shalldetermine whether amendments to adoptedregional framework plan, functional plans orthe acknowledged regional UGB arenecessary. If amendments to the above arenecessary, the Metro Council shall act onamendments to applicable functional plans.The Council shall request recommendationsfrom the MPAC before taking action. Allamendment proposals will include the dateand method through which they maybecome effective, should they be adopted.Amendments to the acknowledged regionalUGB will be considered under acknowl-edged UGB amendment proceduresincorporated in the Metro Code.

If changes to the regional framework plan orfunctional plans are adopted, affected citiesand counties shall be informed in writing ofthose changes that are advisory in nature,those that recommend changes in comprehen-sive land-use plans and those that requirechanges in comprehensive plans. This noticeshall specify the effective date of particularamendment provisions.

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GOAL II: URBAN FORM

The quality of life and the urban form of ourregion are closely linked. The Growth Conceptis based on the belief that we can continue togrow and enhance the region's livability bymaking the right choices for how we grow. Theregion's growth will be balanced by:

II. i Maintaining a compact urban form, witheasy access to nature;

II. ii Preserving existing stable and distinctneighborhoods by focusing commercial andresidential growth in mixed use centers andcorridors at a pedestrian scale;

II. iii Assuring affordability and maintaininga variety of housing choices with goodaccess to jobs and assuring that market-based preferences are not eliminated byregulation;

II.iv Targeting public investments to rein-force a compact urban form.

11.1: NATURAL ENVIRONMENT

Preservation, use and modification of the naturalenvironment of the region should maintain andenhance environmental quality while striving forstewardship and preservation of a broad range ofnatural resources.

Planning Activities:(Natural Environment)

Planning programs for water resourcesmanagement shall:

Identify the future resource needs and carryingcapacities of the region for designatedbeneficial uses of water resources thatrecognizes the multiple values of rural andurban watersheds.

Monitor regional water quality and quantitytrends vis-a-vis beneficial use standardsadopted by federal, state, regional and localgovernments for specific water resourcesimportant to the region, and use the results tochange water planning activities to accomplishthe watershed management and regionalwater quality objectives.

Integrate urban and rural watershed manage-ment in coordination with local water qualityagencies.

Evaluate the cost-effectiveness of alternativewater resource management practices,including conservation.

Preserve, restore, create and enhance waterbodies to maintain their beneficial uses.

Utilize public and/or private partnerships topromote multi-objective management, educa-tion and stewardship of the region's water-sheds.

A Note on Planning Activites

Planning activities listed in these RegionalUrban Growth Goals and Objectives are notgoals or objectives nor are they regulating.They are included to show what activitiescould be conducted subject to Metro Councilbudgetary considerations.

Objective 12. Watershed Managementand Regional Water Quality

Planning and management of water resourcesshould be coordinated in order to improve thequality and ensure sufficient quantity of surfacewater and groundwater available to the region.

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12.1 Formulate Strategy. Metro will develop along-term regional strategy for comprehen-sive water resources management, created inpartnership with the jurisdictions andagencies charged with planning andmanaging water resources and aquatichabitats . The regional strategy shall meetstate and federal water quality standards andcomplement, but not duplicate, localintegrated watershed plans. It shall:

12.1.1 Manage watersheds to protect,restore and ensure to the maximum extentpracticable the integrity of streams, wetlandsand floodplains, and their multiple biologi-cal, physical and social values;

12.1.2 Comply with state and federal waterquality requirements;

12.1.3 Sustain designated beneficial wateruses;

12.1.4 Promote multi-objective manage-ment of the region's watersheds to themaximum extent practicable; and

12.1.5 Encourage the use of techniquesrelying on natural processes to addressflood control, storm water management,abnormally high winter and low summerstream flows and nonpoint pollution reduc-tion.

Objective 13: Urban Water Supply

The regional planning process shall be used tocoordinate the development of a regional strat-egy and plan to meet future needs for watersupply to accommodate growth.

13.1 A regional strategy and plan for theRegional Framework Plan element linkingdemand management, water supply sourcesand storage shall be developed to addressfuture growth in cooperation with theregion's water providers.

13.2 The regional strategy and plan elementshall be based upon the adopted RegionalWater Supply Plan, which will containintegrated regional strategies for demandmanagement, new water sources andstorage/transmission linkages. Metro shallevaluate their future role in encouragingconservation on a regional basis to promotethe efficient use of water resources anddevelop any necessary regionalplans/programs to address Metro's futurerole in coordination with the region's waterproviders.

Planning Activities:(Urban Water Supply)

• Actively participate as a member of theRegional Water Supply Planning Study(RWSPS) and provide regional growthprojections and other relevant data to ensurecoordination between Region 2040 planningprogram and the RWSPS. The RWSPS will:

• Identify the future resource needs of theregion for municipal and industrial watersupply;

• Identify the transmission and storage needsand capabilities for water supply to accom-modate future growth; and

• Identify water conservation technologies,practices and incentives for demandmanagement as part of the regional watersupply planning activities.

• Adopt Regional Framework Plan elementsfor water supply and storage based on theresults of the RWSPS that provide for thedevelopment of new sources, efficient transferand storage of water, including water conser-vation strategies, which allows for the efficientand economical use of water to meet futuregrowth.

Objective 14: Air Quality

Air quality shall be protected and enhanced sothat as growth occurs, human health and thevisibility of the Cascades and the Coast Rangefrom within the region should be maintained.

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14.1 Strategies for planning and managing airquality in the regional airshed shall beincluded in the State Implementation Planfor the Portland-Vancouver air qualitymaintenance area as required by the federalClean Air Act.

14.2 New regional strategies shall be developedto comply with federal Clean Air Actrequirements and provide capacity for futuregrowth.

14.3 The region, working with the state, shallpursue close collaboration of the Oregon andClark County Air Quality ManagementAreas.

14.4 All functional plans, when taken in theaggregate, shall be consistent with the StateImplementation Plan (SIP) for air quality.

Planning Activities:(Air Quality)

An air quality management plan shall bedeveloped for the regional airshed that:

• Outlines existing and forecast air qualityproblems; identifies prudent and equitablemarket based and regulatory strategies foraddressing present and probable air qualityproblems throughout the region; evaluatesstandards for visibility; and implements an airquality monitoring program to assess compli-ance with local, state and federal air qualityrequirements.

Objective 15. Natural Areas, Parks, Fishand Wildlife Habitat

Sufficient open space in the urban region shallbe acquired or otherwise protected and managedto provide reasonable and convenient access tosites for passive and active recreation. An openspace system capable of sustaining or enhancingnative wildlife and plant populations should beestablished.

15.1 Quantifiable targets for setting asidecertain amounts and types of open spaceshall be identified.

15.2 Corridor Systems-The regional planningprocess shall be used to coordinate thedevelopment of interconnected recreationaland wildlife corridors within the metropoli-tan region.

15.2.1 A region-wide system of trails shouldbe developed to link public and private openspace resources within and between juris-dictions.

15.2.2 A region-wide system of linkedsignificant wildlife habitats should bedeveloped. This system should be pre-served, restored where appropriate, andmanaged to maintain the region'sbiodiversity (number of species and plantsand animals).

15.2.3 A Willamette River Greenway Planfor the region should be implemented by theturn of the century.

Planning Activities:(Natural Areas, Parks, Fish and Wildlife Habitats)

1. Identify areas within the region where openspace deficiencies exist now, or will in thefuture, given adopted land-use plans andgrowth trends, and act to meet those futureneeds. Target acreage should be developed forneighborhood, community and regional parks,as well as for other types of open space inorder to meet local needs while sharingresponsibility for meeting metropolitan openspace demands.

2. Develop multi-jurisdictional tools for planningand financing the protection and maintenanceof open space resources. Particular attentionwill be paid to using the land-use planningand permitting process and to the possibledevelopment of a land-banking program.

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3. Conduct a detailed biological field inventory ofthe region to establish an accurate baseline ofnative wildlife and plant populations. Targetpopulation goals for native species will beestablished through a public process that willinclude an analysis of amounts of habitatnecessary to sustain native populations attarget levels.

4. The natural areas, parks and open spacesidentified on the Growth Concept Map shouldbe acquired, except in extraordinary circum-stances, from willing sellers and be removedfrom any regional inventories ofbuildable land.

5. Populations of native plants and animals willbe inventoried, utilizing tools such as Metro'sGIS and Parks and Greenspaces program,Oregon Natural Heritage Database, Oregon'sGAP Analysis Program and other relevantprograms, to develop strategies to maintain theregion's biodiversity (or biological diversity).

6. Utilizing strategies that are included in OregonDepartment of Fish and Wildlife's WildlifeDiversity Program and working with state andfederal fish and wildlife personnel, develop astrategy to maintain the region's biodiversity

Council may help establish this support,consistent with the Growth Concept.

Objective 16. Protection of Agricultureand Forest Resource Lands

Agricultural and forest resource land outside theUGB shall be protected from urbanization andaccounted for in regional economic and devel-opment plans, consistent with these RUGGOs.

16.1 Rural Resource Lands. Rural resourcelands outside the UGB that have significantresource value should actively be protectedfrom urbanization.

16.2 Urban Expansion. Expansion of the UGBshall occur in urban reserves, establishedconsistent with the Urban/Rural TransitionObjective (objective 22.)

16.3 Farm and Forest Practices. Protect andsupport the ability for farm and forestpractices to continue. The designation andmanagement of rural reserves by the Metro

Planning Activities:(Protection of Agriculture and ForestResouses Lands)

• A regional economic opportunities analysisshall include consideration of the agriculturaland forest products economy associated withlands adjacent to or near the urban area.

11.2: BUILT ENVIRONMENT

Development in the region should occur in acoordinated and balanced fashion as evidencedby:

II.2.i A regional "fair-share" approach tomeeting the housing needs of the urbanpopulation;

II.2.ii The provision of infrastructure andcritical public services concurrent with thepace of urban growth and which supportsthe 2040 Growth Concept;

II.2.iii The continued growth of regionaleconomic opportunity, balanced so as toprovide an equitable distribution of jobs,income, investment and tax capacitythroughout the region and to support otherregional goals and objectives;

II.2.iv The coordination of public invest-ment with local comprehensive and regionalfunctional plans; and

II.2.v The creation of a balanced transporta-tion system, less dependent on the privateautomobile, supported by both the use ofemerging technology and the location ofjobs, housing, commercial activity, parksand open space.

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Objective 17. Housing

The Metro Council shall adopt a "fair share"strategy for meeting the housing needs of theurban population in cities and counties based ona subregional analysis that provides for:

• A diverse range of housing types availablewithin cities and counties inside the UGB;

• Specific goals for low- and moderate-incomeand market-rate housing to ensure that suffi-cient and affordable housing is available tohouseholds of all income levels that live orhave a member working in each jurisdiction;

• Housing densities and costs supportive ofadopted public policy for the development ofthe regional transportation system and desig-nated centers and corridors;

• A balance of jobs and housing within theregion and subregions.

Planning Activities:(Housing)

The Metropolitan Housing Rule (OAR 660,Division 7) has effectively resulted in thepreparation of local comprehensive plans in theurban region that:

• Provide for the sharing of regional housingsupply responsibilities by ensuring thepresence of single-and multiple-family zoningin every jurisdiction; and

• Plan for local residential housing densities thatsupport net residential housing densityassumptions underlying the regional UGB.

Since Metro's Regional Framework Plan hasto address the requirements of statewidplanning Goal 10, the Metro Council shoulddevelop:

1. Strategies to preserve the region's supply ofspecial needs and existing low-and moderate-income housing.

2. Diverse Housing Needs, the diverse housingneeds of the present and projected population

of the region shall be correlated with theavailable and prospective housing supply.Upon identification of unmet housing needs, aregion-wide strategy shall be developed thattakes into account subregional opportunitiesand constraints, and the relationship of marketdynamics to the management of the overallsupply of housing. In addition, that strategyshall address the "fair-share" distribution ofhousing responsibilities among the jurisdic-tions of the region, including the provision ofsupporting social services.

3. Housing Affordability. Multnomah, Clackamas,Clark and Washington Counties have com-pleted Comprehensive Housing AffordabilityStrategies (CHAS) that have demonstrated thelack of affordable housing for certain incomegroups in locations throughout the metropoli-tan area. They also demonstrate the regionalnature of the housing market, therefore, theregional framework plan shall include anelement on housing affordability that includesdevelopment density, housing mix and a menuof alternative actions (zoning tools, programs,financial incentives, etc.) for use by localjurisdictions to address affordable housingneeds. Affordable housing goals shall bedeveloped with each jurisdiction to facilitatetheir participation in meeting regional andsubregional needs for affordable housing.

4. The region is committed to seeking a balanceof jobs and housing in communities andcenters throughout the region. Public policyand investment shall encourage the develop-ment of housing in locations near trade,services and employment that is affordable towage earners In each subregion and jurisdic-tion. The transportation system's ability toprovide accessibility shall also be evaluated,and, if necessary, modifications will be madein transportation policy and the transportationsystem itself to improve accessibility forresidents to jobs and services in proximity toaffordable housing.

Objective 18. Public Services andFacilities

Public services and facilities including but notlimited to public safety, schools, water andsewerage systems, telecommunications andenergy transmission and distribution systems,parks, libraries, historic or cultural facilities, thesolid waste management system, storm water

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management facilities, community centers andtransportation should be planned and developedto:

18.i Minimize public and private costs;

18.ii Maximize service efficiencies andcoordination;

18.iii Result in maintained or enhancedenvironmental quality and the conservationof natural resources;

18.iv Keep pace with growth and achievingplanned service levels;

18.v To produce, transmit and use energyefficiently; and

18.vi Shape and direct growth to meet localand regional objectives.

18.1 Planning Area. The long-term geographicalplanning area for the provision of urbanservices shall be the area described by theadopted and acknowledged UGB and thedesignated urban reserves.

18.2 Forecast Need. Public service and facilitydevelopment shall be planned to accommo-date the rate of urban growth forecast in theadopted regional growth forecast, includinganticipated expansions into urban reserveareas.

18.3 Timing. The region should seek the provi-sion of public facilities and services at thetime of new urban growth.

Planning Activities:(Public Services and Facilities)

Inventory current and projected public facilitiesand services needs throughout the region, asdescribed in adopted and acknowledged publicfacilities plans. Identify opportunities for andbarriers to achieving concurrency in the region.Develop financial tools and techniques toenable cities, counties, school districts, specialdistricts, Metro and the state to secure thefunds necessary to achieve concurrency.Develop tools and strategies to better linkplanning for school, library, recreational andcultural and park facilities to the land-useplanning process.

Objective 19. Transportation

A regional transportation system shall be devel-oped which:

19.i Reduces reliance on a single mode oftransportation through development of abalanced and cost-effective transportationsystem which employs highways, transit,bicycle and pedestrian improvements, andsystem and demand management;

19.ii. Recognizes and protects freightmovement within and through the regionand the road, rail, air, waterway and pipe-line facilities needed to facilitate this move-ment;

19.iii Provides adequate levels of mobilityconsistent with local comprehensive plansand state and regional policies and plans;

19.iv Encourages energy efficiency;

I9.v Supports a balance of jobs and housingas well as the community identity of neigh-boring cities;

19.vi Recognizes financial constraints andprovides public investment guidance forachieving the desired urban form; and

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19.vii Minimizes the environmental impactsof system development, operations andmaintenance.

19.viii Rewards and reinforces pedestrianactivity as a mode of choice.

19.x Identifies and protects intermodaltransfer points

19.1 System Priorities. In developing newregional transportation system infrastructure,the highest priority should be meeting themobility needs of the city center andregional centers, and their suburban arterials,when designated. Such needs, associatedwith ensuring access to jobs, housing,cultural and recreational opportunities andshopping within and among those centers,should be assessed and met through acombination of intensifying land-use s andincreasing transportation system capacity soas to mitigate negative impacts on environ-mental quality and where and how peoplelive, work and play.

19.2. Environmental Considerations. Planningfor the regional transportation system shouldseek to:

19.2.1 Reduce the region's transportation-related energy consumption and air pollu-tion through increased use of transit,telecommuting, zero-emission vehicles, carpools, vanpools, bicycles and walking;

19.2.2 Maintain the region's air and waterquality (see Objective 12: Watershed Man-agement and Regional Water Quality andObjective 14: Air Quality); and

19.2.3 Reduce negative impacts on parks,public open space, wetlands and negativeeffects on communities and neighborhoodsarising from noise, visual impacts andphysical segmentation.

19.3 Transportation Balance. Although thepredominant form of transportation is theprivate automobile, planning for and development of the regional transportation systemshould seek to:

19.3.1 reduce automobile dependency,especially the use of single-occupancyvehicles;

19.3.2 increase the use of transit throughboth expanding transit service and address-ing a broad range of requirements formaking transit competitive with the privateautomobile; and

19.3.3 encourage bicycle and pedestrianmovement through the location and designof land-use s. Adequate facilities for pedes-trians and bicyclists are to be provided andmaintained.

19.3.4 encourage telecommuting as a meansof reducing trips to and from work.

Planning Activities:(Transportation)

1. The Metro Council shall direct the develop-ment and adoption of a new Regional Trans-portation Plan (RTP) as an element of itsRegional Framework Plan that, at a minimum:

• Identifies the role for local transportationsystem improvements and relationshipbetween local, regional and state transporta-tion system improvements in regional transpor-tation plans;

• Clarifies institutional roles, especially for planimplementation, in local, regional and statetransportation plans;

• Includes plans and policies for the inter-regional movement of people and goods byrail, ship, barge and air in regional transporta-tion plans;

• Identifies and addresses needs for freightmovement through a coordinated program oftransportation system improvements and

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actions to affect the location of trip generatingactivities;

• Identifies and incorporates demand manage-ment strategies to ensure that the regionmeets the objectives of the TransportationPlanning Rule for transportation systemfunction and VMT reduction; and

• Includes strategies for improving connectivityand the environment for pedestrian move-ments, particularly within centers, stationcommunities and neighborhoods.

2. Structural barriers to mobility for transportationdisadvantaged populations should be as-sessed in the current and planned regionaltransportation system and addressed througha comprehensive program of transportationand other actions.

a. Supports the implementation of the pattern ofuses in relation to the transportation systemshown on the Growth Concept Map, andachieves the performance measures as maybe included in the appendix and establishedthrough the regional planning process.

b. Identifies and addresses structural barriers tomobility for transportation disadvantagedpopulations.

Objective 20. Economic Opportunity

Metro should support public policy that main-tains a strong economic climate through encour-aging the development of a diverse and suffi-cient supply of jobs, especially family wagejobs, in appropriate locations throughout theregion.

In weighing and balancing various values, goalsand objectives, the values, needs, choices anddesires of consumers should also be taken intoaccount. The values, needs and desires ofconsumers include:

• Low costs for goods and services;

• Convenience, including nearby and easilyaccessible stores; quick, safe, and readilyavailable transportation to all modes;

• A wide and deep selection of goods andservices;

• Quality service;

• Safety and security and

• Comfort, enjoyment and entertainment.

Expansions of the UGB for industrial or com-mercial purposes shall occur in locations consis-tent with these RUGGOs and where an assess-ment of the type, mix and wages of existing andanticipated jobs within subregions justifies suchexpansion. The number and wage level of jobswithin each subregion should be balanced withhousing cost and availability within that subre-gion. Strategies should be developed to coordi-nate the planning and implementation activitiesof this element with Objective 17: Housing andObjective 23: Developed Urban Land.

Planning Activities:(Economic Opportunity)

1. Regional and subregional economic opportuni-ties analyses, as described in OAR 660Division 9, should be conducted to:

• Assess the adequacy and, if necessary,propose modifications to the supply of vacantand redevelopable land inventories designatedfor a broad range of employment activities;

• Identify regional and subregional targetindustries. Economic subregions will bedeveloped which reflect a functional relation-ship between locational characteristics and thelocational requirements of target industries.Enterprises identified for recruitment, retentionand expansion should be basic industries thatbroaden and diversify the region's economicbase while providing jobs that pay at familywage levels or better; and

• Link job development efforts with an active andcomprehensive program of training andeducation to improve the overall quality of theregion's labor force. In particular, new strate-gies to provide labor training and education

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should focus on the needs of economicallydisadvantaged, minority and elderly popula-tions.

2. An assessment shall be made of the potentialfor redevelopment and/or intensification of useof existing commercial and industrial landresources in the region.

3. The Metro Council shall establish an on-goingprogram to compile and analyze data and toprepare maps and reports that describe thegeographic distribution of jobs, income,investment and tax capacity throughout theregion.

4. Emphasize the retention and expansion ofexisting businesses. They already play animportant part in the region and they havereason to redevelop in ways that will increaseemployment and/or productivity

• At each time of LCDC mandated periodicreview, targeted industries should be desig-nated by Metro and strategies should beidentified and implemented to ensure ad-equate public infrastructure, resources andtransportation access necessary for theseindustries. Special attention to industries whichhave agglomerative economies in the regionand industries and companies that sell morethan 25 percent of their end products andservices outside the region shall be givenpriority in any designation .

Objective 21. Urban Vitality

Special attention shall be paid to promotingmixed-use development in existing city andneighborhood centers that have experienceddisinvestment and/or are currently underutilizedand/or populated by a disproportionally highpercentage of people living at or below 80percent of the area median income. In creatingthese designations, Metro shall consider newand existing community plans developed bycommunity residents.

II.3: GROWTH MANAGEMENT

The management of the urban land supply shalloccur in a manner that:

II.3.i Encourages the evolution of an effi-cient urban growth form;

II.3.ii Provides a clear distinction betweenurban and rural lands;

II.3.iii Supports interconnected but distinctcommunities in the urban region;

II.3.iv Recognizes the interrelationshipbetween development of vacant land andredevelopment objectives in all parts of theurban region; and

II.3.iv Is consistent with the 2040 GrowthConcept and helps attain the region's objec-tives.

Objective 22. Urban/Rural Transition

There should be a clear transition between urbanand rural land that makes best use of natural andbuilt landscape features and that recognizes thelikely long-term prospects for regional urbangrowth.

22.1 Boundary Features. The Metro UGBshould be located using natural and builtfeatures, including roads, rivers, creeks,streams, drainage basin boundaries, flood-plains, power lines, major topographicfeatures and historic patterns of land-use orsettlement.

22.2 Sense of Place. Historic, cultural, topo-graphic and biological features of the re-gional landscape that contribute significantlyto this region's identity and "sense of place"shall be identified. Management of the totalurban land supply should occur in a mannerthat supports the preservation of thosefeatures, when designated, as growth occurs.

22.3 Urban Reserves. "Urban reserves areas,"designated pursuant to LCDCs UrbanReserve Rule for purposes of coordinating

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planning and estimating areas for futureurban expansion, shall be consistent withthese goals and objectives and reviewed byMetro at least every 15 years.

22.3.1 Inclusion of land within an urbanreserve area shall generally be based uponthe locational factors of Goal 14. Landsadjacent to the UGB shall be studied forsuitability for inclusion within urbanreserves as measured by factors 3 through 7of Goal 14 and by the requirements of OAR660-04-010.

22.3.2 Lands of lower priority in the LCDCrule priorities may be included in urbanreserves if specific types of land needscannot be reasonably accommodated onhigher priority lands, after options inside theUGB have been considered, such as landneeded to bring jobs and housing into closeproximity to each other.

22.3.3 Lands of lower priority in the LCDCRule priorities may be included in urbanreserves if needed for physical separation ofcommunities inside or outside the UGB topreserve separate community identities.

22.3.4 Expansion of the UGB shall occurconsistent with the Urban/Rural Transition,Developed Urban Land, UGB and NeighborCity Objectives. Where urban land is adja-cent to rural lands outside of an urbanreserve, Metro will work with affected citiesand counties to ensure that urban uses donot significantly affect the use or conditionof the rural land. Where urban land isadjacent to lands within an urban reservethat may someday be included within theUGB, Metro will work with affected citiesand counties to ensure that rural develop-ment does not create obstacles to efficienturbanization in the future.

Planning Activities:(Urban/Rural Transition)

1. Identification of urban reserves adjacent to theUGB shall be accompanied by the develop-ment of a generalized future land-use plan.The planning effort will primarily be concernedwith identifying and protecting future openspace resources and the development ofshort-term strategies needed to preservefuture urbanization potential. Ultimate provid-ers of urban services within those areasshould be designated and charged withincorporating the reserve area(s) in their publicfacility plans in conjunction with the nextperiodic review. Changes in the location of theUGB should occur so as to ensure that plansexist for key public facilities and services.

2. The prospect of creating transportation andother links between the urban economy withinthe Metro UGB and other urban areas in thestate should be investigated as a means forbetter utilizing Oregon's urban land and humanresources. The region, working with the stateand other urban communities in the northernWillamette Valley, should evaluate the opportu-nities for accommodating forecasted urbangrowth in urban areas outside of and notadjacent to the present UGB.

Objective 23.Developed Urban Land

Opportunities for and obstacles to the continueddevelopment and redevelopment of existingurban land shall be identified and activelyaddressed. A combination of regulations andincentives shall be employed to ensure that theprospect of living, working and doing businessin those locations remains attractive to a widerange of households and employers. In coordi-nation with affected agencies, encourage theredevelopment and reuse of lands used in thepast or already used for commercial or industrialpurposes wherever economically viable andenvironmentally sound.

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23.1 Redevelopment and Infill. When Metroexamines whether additional urban land isneeded within the UGB, it shall assessredevelopment and infill potential in theregion. The potential for redevelopment andinfill on existing urban land will be includedas an element when calculating the buildableland supply in the region, where it can bedemonstrated that the infill and redevelop-ment can be reasonably expected to occurduring the next 20 years.

Metro will work with jurisdictions in the regionto determine the extent to which redevelopmentand infill can be relied on to meet the identifiedneed for additional urban land. After this analy-sis and review, Metro will initiate an amendmentof the UGB to meet that portion of the identifiedneed for land not met through commitments forredevelopment and infill.

Planning Activities:(Developed Urban Land))

1. Metro's assessment of redevelopment and infillpotential in the region shall include, but not belimited to:

a. An inventory of parcels where the assessedvalue of improvements is such that it canreasonably be expected to redevelop orintensify in the planning period.

b. An analysis of the difference between compre-hensive plan development densities and actualdevelopment densities for all parcels as a firststep towards determining the efficiency withwhich urban land is being used. In this case,efficiency is a function of land developmentdensities incorporated in local comprehensiveplans.

c. An assessment of the impacts on the cost ofhousing by redevelopment versus expansionof the UGB.

d. An assessment of the impediments to redevel-opment and infill posed by existing urban land-use s or conditions and the capacity of urbanservice providers such as water, sewer,transportation, schools, etc. to serve.

2. Financial incentives to encourage redevelop-ment and infill consistent with adopted andacknowledged comprehensive plans should bepursued to make redevelopment and infillattractive alternatives to raw land conversionfor investors and buyers.

3. Tools will be developed to address regionaleconomic equity issues stemming from the factthat not all jurisdictions will serve as a site foran economic activity center. Such tools mayinclude off-site linkage programs to meethousing or other needs or a program of fiscaltax equity.

4. The success of centers, main streets, stationcommunities and other land classifications willdepend on targeting public investments,encouraging complementary public/privatepartnerships, and committing time andattention to the redesign and redevelopment ofthese areas. Metro shall conduct an analysisof proposed centers and other land classifica-tions identified on the Growth Concept Map,and others in the future, to determine what mixof uses, densities, building design andorientation standards, transit improvements,pedestrian improvements, bicycle improve-ments and other infrastructure changes areneeded for their success. Those with a highprobability for success will be retained on theGrowth Concept Map and targeted for publicinvestment and attention.

5. In addition to targeting public infrastructureand resources to encourage compact urbanland-use s such as those cited above, theregion shall also conduct analyses of industrialand employment areas to identify the ease offreight movement and any improvements thatshould be made to improve, maintain orenhance freight movements and maintain theregion's competitive advantage compared withother regions to move freight quickly andeasily.

Objective 24.Urban Growth Boundary

The regional UGB, a long-term planning tool,shall separate urbanizable from rural land, bebased in aggregate on the region's 20-yearprojected need for urban land and be locatedconsistent with statewide planning goals and

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these RUGGOs and adopted Metro Councilprocedures for UGB amendment. In the loca-tion, amendment and management of the re-gional UGB, Metro shall seek to improve thefunctional value of the boundary.

24.1 Expansion into Urban Reserves. Upondemonstrating a need for additional urbanland, major and legislative UGB amend-ments shall only occur within urban reservesonce adopted, unless urban reserves arefound to be inadequate to accommodate theamount of land needed for one or more ofthe following reasons:

a. Specific types of identified land needscannot be reasonably accommodated onurban reserve lands;

b. Future urban services could not reason-ably be provided to urban reserves due totopographical or other physical constraints;or

c. Maximum efficiency of land-use s withina proposed UGB requires inclusion of lowerpriority lands other than urban reserves inorder to include or provide services to urbanreserves.

24.2 Urban Growth Boundary AmendmentProcess. Criteria for amending the UGBshall be derived from statewide planninggoals 2 and 14, other applicable stateplanning goals and relevant portions of theseRUGGOs.

24.2.1 Major Amendments. Proposals formajor amendment of the UGB shall bemade through a legislative process in con-junction with the development and adoptionof regional forecasts for population andemployment growth. The amendmentprocess will be initiated by a Metro findingof need, and involve local governments,special districts, citizens and other interests.

24.2.2 Locational Adjustments. Locationaladjustments of the UGB shall be brought toMetro by cities, counties and/or propertyowners based on public facility plans inadopted and acknowledged comprehensiveplans.

Objective 25. Urban Design

The identity and functioning of communities inthe region shall be supported through:

25.i The recognition and protection ofcritical open space features in the region;

25.ii Public policies which encouragediversity and excellence in the design anddevelopment of settlement patterns, land-scapes and structures; and

25.iii Ensuring that incentives and regula-tions guiding the development and redevel-opment of the urban area promote a settle-ment pattern which:

25.iiia Link any public incentives to acommensurate public benefit received orexpected and evidence of private needs;

25.iii.b Is pedestrian "friendly," encouragestransit use and reduces auto dependence;

25.iii.c Provides access to neighborhoodand community parks, trails and walkways,and other recreation and cultural areas andpublic facilities;

25.iii.d Reinforces nodal, mixed-use, neigh-borhood oriented design;

25.iii.e Includes concentrated, high density,mixed use urban centers developed inrelation to the region's transit system;

25.iii.f Is responsive to needs for privacy,community, sense of place and personalsafety in an urban setting; and

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25.iii.g Facilitates the development andpreservation of affordable mixed-incomeneighborhoods.

25.1 Pedestrian and transit supportive buildingpatterns will be encouraged in order tominimize the need for auto trips and tocreate a development pattern conducive toface-to-face community interaction.

Planning Activities:(Urban Design)

1. A regional landscape analysis shall beundertaken to inventory and analyze therelationship between the built and naturalenvironments and to identify key open space,topographic, natural resource, cultural andarchitectural features that should be protectedor provided as urban growth occurs.

2. Model guidelines and standards shall bedeveloped that expand the range of toolsavailable to jurisdictions for accommodatingchange in ways compatible with neighbor-hoods and communities while addressing thisobjective.

3. Light-rail transit stops, bus stops, transit routesand transit centers leading to and withincenters shall be planned to encouragepedestrian use and the creation of mixed use,high-density residential development.

Objective 26.Neighbor Cities

Growth in cities outside the Metro UGB,occurring in conjunction with the overallpopulation and employment growth in theregion, should be coordinated with Metro'sgrowth management activities through coopera-tive agreements that provide for:

26.1 Separation. The communities within theMetro UGB, in neighbor cities and in therural areas in between will all benefit frommaintaining the separation between theseplaces as growth occurs. Coordinationbetween neighboring cities, counties and

Metro about the location of rural reservesand policies to maintain separation shouldbe pursued.

26.2 Jobs/Housing Balance. To minimize thegeneration of new automobile trips, a bal-ance of sufficient number of jobs at wagesconsistent with housing prices in communi-ties both within the Metro UGB and inneighboring cities should be pursued.

26.3 Green Corridors. The "green corridor" is atransportation facility through a rural reservethat serves as a link between the metropoli-tan area and a neighbor city that also limitsaccess to the farms and forests of the ruralreserve. The intent is to keep urban to urbanaccessibility high to encourage a balance ofjobs and housing, but limit any adverseeffect on the surrounding rural areas.

Planning Activities:(Neighbor Cities)

1. Metro will work with the state, neighbor citiesand counties to create intergovernmentalagreements that implement neighbor cityobjectives. Metro will seek to link regional andstate investment in public facilities andservices to efforts to implement neighbor cityagreements.

2. Metro will undertake a study of the greencorridor concept to determine what theconsequences might be of initiatives whichenhance urban to urban accessibility in themetropolitan market area.

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11.4: METRO 2040 GROWTHCONCEPT

Description of the Metro 2040 Growth Concept

This Growth Concept states the preferred formof regional growth and development adopted inthe Region 2040 planning process including the2040 Growth Concept Map. This Concept isadopted for the long-term growth managementof the region including a general approach toapproximately where and how much the UGBshould be ultimately expanded, what ranges ofdensity are estimated to accommodate projectedgrowth within the boundary and which areasshould be protected as open space.

This Growth Concept is designed to accommo-date approximately 720,000 additional residentsand 350,000 additional jobs. The total popula-tion served within this concept is approximately1.8 million residents within the Metro boundary.

The basic philosophy of the Growth Concept is:preserve our access to nature and build bettercommunities for the people who live here todayand who will live here in the future. TheGrowth Concept applies Goal II Objectives withthe analysis of the Region 2040 project to guidegrowth for the next 50 years. The GrowthConcept is an integrated set of Objectivessubject to Goal I and Objectives 1-11.

The conceptual description of the preferredurban form of the region in 2040 is in theConcept Map and this text. This Growth Con-cept sets the direction for development ofimplementing policies in Metro's existingfunctional plans and the Charter-required re-gional framework plan. This direction will berefined, as well as implemented, in subsequentfunctional plan amendments and frameworkplan components. Additional planning will bedone to test the Growth Concept and to deter-mine implementation actions. Amendments tothe Growth Concept and some RUGGOs Objec-

tives may be needed to reflect the results ofadditional planning to maintain the consistencyof implementation actions with RUGGOs.

Fundamental to the Growth Concept is a multi-modal transportation system which assuresmobility of people and goods throughout theregion, consistent with Objective 19, Transpor-tation. By coordinating land-use s and thistransportation system, the region embraces itsexisting locational advantage as a relativelyuncongested hub for trade.

The basic principles of the Growth Conceptdirectly apply Growth Management Goals andObjectives in Objectives 21-25. An urban torural transition to reduce sprawl, keeping a cleardistinction between urban and rural lands andbalancing re-development, is needed. Separationof urbanizable land from rural land shall beaccomplished by the UGB for the region's 20-year projected need for urban land. That bound-ary will be expanded into designated urbanreserves areas when a need for additional urbanland is demonstrated. The Metro Council willdetermine the land need for urban reserves..About 22,000 acres of Urban Reserve StudyArea shown on the Concept Map will be studiedbefore urban reserve areas are designated. Thisassumes cooperative agreements with neighbor-ing cities to coordinate planning for the propor-tion of projected growth in the Metro regionexpected to locate within their urban growthboundaries and urban reserve areas.

The Metro UGB would only expand into urbanreserves when need for additional urban land isdemonstrated. Rural reserves are intended toassure that Metro and neighboring cities remainseparate. The result is intended to be a compacturban form for the region coordinated withnearby cities to retain the region's sense ofplace.

Mixed-use urban centers inside the UGB areone key to the Growth Concept. Creating higherdensity centers of employment and housing and

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transit service with compact development, retail,cultural and recreational activities, in a walkableenvironment is intended to provide efficientaccess to goods and services, enhance multi-modal transportation and create vital, attractiveneighborhoods and communities. The GrowthConcept uses interrelated types of centers. TheCentral City is the largest market area, theregion's employment and cultural hub. RegionalCenters serve large market areas outside thecentral city, connected to it by high capacitytransit and highways. Connected to each Re-gional Center, by road and transit, are smallerTown Centers with local shopping and employ-ment opportunities within a local market area.Planning for all of these centers will seek abalance between jobs , housing and uniqueblends of urban amenities so that more transpor-tation trips are likely to remain local and be-come more multi- modal.

In keeping with the jobs/housing balance incenters, a jobs/housing balance by regional sub-areas can and should also be a goal. This wouldaccount for the housing and employment outsidecenters, and direct policy to adjust for betterjobs/housing ratios around the region.

Recognition and protection of open spaces bothinside the UGB and in rural reserves outsideurban reserves are reflected in the GrowthConcept. Open spaces, including importantnatural features and parks, are important to thecapacity of the UGB and the ability of theregion to accommodate housing and employ-ment. Green areas on the Concept Map may bedesignated as regional open space. That wouldremove these lands from the inventory of urbanland available for development. Rural reserves,already designated for farms, forestry, naturalareas or rural-residential use, would remain andbe further protected from development pres-sures.

The Concept Map shows some transportationfacilities to illustrate new concepts, such as"green corridors," and how land-use areas, such

as centers, may be served. Neither the currentregional system nor final alignment choices forfuture facilities are intended to be representedon the Concept Map.

The percentages and density targets used in theGrowth Concept to describe the relationshipbetween centers and areas are estimates basedon modeling analysis of one possible configura-tion of the Growth Concept. Implementationactions that vary from these estimates mayindicate a need to balance other parts of theGrowth Concept to retain the compact urbanform contained in the Growth Concept. Land-use definitions and numerical targets asmapped, are intended as targets and will berefined in the Regional Framework Plan. Eachjurisdiction will certainly adopt a unique mix ofcharacteristics consistent with each locality andthe overall Growth Concept.

Neighbor Cities

The Growth Concept recognizes that neighbor-ing cities surrounding the region's metropolitanarea are likely to grow rapidly. There are severalcities proximate to the Metro region. The MetroCouncil shall pursue discussion of cooperativeefforts with neighboring cities. Full NeighborCity recognition could be achieved with thecompletion of intergovernmental agreementsconcerning the key concepts cited below. Com-munities such as Sandy, Canby, and Newbergwill be affected by the Metro Council's deci-sions about managing the region's growth. Asignificant number of people would be accom-modated in these neighboring cities, and coop-eration between Metro and these communities isnecessary to address common transportation andland-use issues.

There are four key concepts for cooperativeagreements with neighbor cities:

1. There shall be a separation of rural landbetween each neighboring city and themetropolitan area. If the region growstogether, the transportation system would

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suffer and the cities would lose their senseof community identity.

2. There should be a strong balance betweenjobs and housing in the neighbor cities. Themore a city retains a balance of jobs andhouseholds, the more trips will remain local.

3. Each neighboring city should have its ownidentity through its unique mix of commer-cial, retail, cultural and recreationalopportunities which support the concentra-tion of jobs and housing.

4. There should be consideration of a "greencorridor," transportation facility through arural reserve that serves as a link betweenthe metropolitan area and a neighbor citywith limited access to the farms and forestsof the rural reserve. This would keepaccessibility high, which encouragesemployment growth but limits the adverseaffect on the surrounding rural areas. Metrowill seek limitations in access to thesefacilities and will seek intergovernmentalagreements with ODOT, the appropriatecounties and neighbor cities to establishmutually acceptable growth managementstrategies. Metro will link transportationimprovements to neighbor cities tosuccessful implementation of theseintergovernmental agreements.

Cooperative planning between a city outside theregion and Metro could also be initiated on amore limited basis. These cooperative effortscould be completed to minimize the impact ofgrowth on surrounding agriculture and naturalresource lands, maintain a separation between acity and the Metro UGB, minimize the impacton state transportation facilities, match popula-tion growth to rural resource job and local urbanjob growth and coordinate land-use policies."Communities such as North Plains and othercommunities adjacent to the region such asEstacada and Scappoose may find this morelimited approach suitable to their local situation.

Rural Reserves

Some rural lands adjacent to and nearby theregional UGB and not designated as urbanreserves may be designated as rural reserves.This designation is intended as a policy state-ment by Metro to not extend its UGB into theseareas and to support neighboring cities' effortsnot to expand their urban growth boundariesinto these areas. The objectives for rural landplanning in the region will be to maintain therural character of the landscape to support andmaintain our agricultural economy, and to avoidor eliminate conflicts with farm and forestpractices, help meet regional needs for openspace and wildlife habitat, and help to clearlyseparate urban from rural land. This will bepursued by not expanding the UGB into theseareas and supporting rural zoning designations.These rural reserves keep adjacent urban areasseparate. These rural lands are not needed orplanned for development but are more likely toexperience development pressures than are areasfarther away.

These lands will not be developed in urban usesin the foreseeable future, an idea that requiresagreement among local, regional and stateagencies. They are areas outside the presentUGB and along highways that connect theregion to neighboring cities.

New rural commercial or industrial developmentwould be restricted. Some areas would receivepriority status as potential areas for park andopen space acquisition. . Zoning would be forresource protection on farm and forestry land,and very low-density residential (no greateraverage density than one unit for five acres) forexception land.

These rural reserves would support and protectfarm and forestry operations. The reserves alsowould include some purchase of natural areasadjacent to rivers, streams and lakes to makesure the water quality is protected and wildlifehabitat enhanced. Large natural features, such as

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hills and buttes, also would be included as ruralreserves because they buffer developed areasand are poor candidates for compact urbandevelopment.

Rural reserves are designated in areas that aremost threatened by new development, thatseparate communities, or exist as special re-source areas.

Rural reserves also would be retained to sepa-rate cities within the Metro boundary. Cornelius,Hillsboro, Tualatin, Sherwood and Wilsonvilleall have existing areas of rural land that providea break in urban patterns. Urban reserve studyareas that are indicated on the Concept Map arealso separated by rural reserves, such as theDamascus-Pleasant Valley areas from HappyValley.

The primary means of achieving rural reserveswould be through the regional framework planfor areas within the Metro boundary, and volun-tary agreements among Metro, the counties,neighboring cities and the state for those areasoutside the Metro boundary. These agreementswould prohibit extending urban growth into therural reserves and require that state agencyactions are consistent with the rural reservedesignation.

Open Spaces and Trail Corridors

The areas designated open space on the Conceptmap are parks, stream and trail corridors, wet-lands and floodplains, largely undevelopedupland areas and areas of compatible very lowdensity residential development. Many of thesenatural features already have significant land setaside as open space. The Tualatin Mountains,for example, contain major parks such as ForestPark and Tryon Creek State Park and numeroussmaller parks such as Gabriel Park in Portlandand Wilderness Park in West Linn. Other areasare oriented toward wetlands and streams, withFanno Creek in Washington County having oneof the best systems of parks and open space inthe region.

Local jurisdictions are encouraged to establishacres of open space per capita goals based onrates at least as great as current rates, in order tokeep up with current conditions.

Designating these areas as open spaces wouldhave several effects. First, it would remove theseland from the category of urban land that isavailable for development. The capacity of theUGB would have to be calculated without these,and plans to accommodate housing and employ-ment would have to be made without them.Secondly, these natural areas, along with keyrural reserve areas, would receive a high priorityfor purchase as parks and open space, such asMetro's Greenspaces program. Finally, regula-tions could be developed to protect these criticalnatural areas that would not conflict with hous-ing and economic goals, thereby having thebenefit of regulatory protection of critical creekareas, compatible low-density development andtransfer of development rights to other landsbetter suited for development.

About 35,000 acres of land and water insidetoday's UGB are included as open spaces in theGrowth Concept Map. Preservation of theseOpen Spaces could be achieved by a combina-tion of ways. Some areas could be purchased bypublic entities, such as Metro's Greenspacesprogram or local park departments. Others maybe donated by private citizens or by developersof adjacent properties to reduce the impact ofdevelopment. Some could be protected byenvironmental zoning that allows verylow-density residential development through theclustering of housing on portions of the landwhile leaving important features as commonopen space.

Centers

Creating higher density centers of employmentand housing is advantageous for several reasons.These centers provide access to a variety ofgoods and services in a relatively small geo-graphic area, creating an intense businessclimate. Having centers also makes sense from a

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transportation perspective, since most centershave an accessibility level that is conducive totransit, bicycling and walking. Centers also actas social gathering places and communitycenters, where people would find the culturaland recreational activities and "small townatmosphere" they cherish.

The major benefits of centers in the marketplaceare accessibility and the ability to concentrategoods and services in a relatively small area.The problem in developing centers, however, isthat most of the existing centers are alreadydeveloped and any increase in the density mustbe made through redeveloping existing land andbuildings. Emphasizing redevelopment incenters over development of new areas ofundeveloped land is a key strategy in the GrowthConcept. Areas of high unemployment and lowproperty values should be specially consideredto encourage reinvestment and redevelopment.Incentives and tools to facilitate redevelopmentin centers should be identified.

There are three types of centers, distinguishedby size and accessibility. The "central city" isdowntown Portland and is accessible to millionsof people. "Regional centers" are accessible tohundreds of thousands of people and "towncenters" are accessible to tens of thousands.

The Central City

Downtown Portland serves as our major re-gional center and functions quite well as anemployment and cultural hub for the metropoli-tan area. It provides accessibility to the manybusinesses that require access to a large marketarea and also serves as the location for culturaland social functions that draw the region to-gether. It is the center for local, regional, stateand federal governments, financial institutions,commerce, the center for arts and culture, andfor visitors to the region.

In addition, downtown Portland has a highpercentage of travel other than by car-threetimes higher than the next most successful area.

Jobs and housing are readily available there,without the need for a car. Maintaining andimproving upon the strengths of our regionaldowntown shall remain a high priority.

Today, about 20 percent of all employment inthe region is in downtown Portland. Under theGrowth Concept, downtown Portland wouldgrow at about the same rate as the rest of theregion and would remain the location of about20 percent of regional employment. To do this,downtown Portland's 1990 density of 150people per acre would increase to about 250people per acre. Improvements to the transitsystem network, development of a multi-modalstreet system and maintenance of regionalthrough routes (the highway system) wouldprovide additional mobility to and from the citycenter.

Regional Centers

There are nine regional centers, serving fourmarket areas (outside of the Central City marketarea). Hillsboro serves that western portion ofthe region and Gresham the eastern. The CentralCity and Gateway serve most of the Portlandarea as a regional center. Downtown Beavertonand Washington Square serve the east Washing-ton County area, and downtown Oregon City,Clackamas Town Center and Milwaukie to-gether serve Clackamas County and portions ofouter southeast Portland.

These Regional Centers would become thefocus of compact development, redevelopmentand high-quality transit service, multi-modalstreet networks and act as major nodes alongregional through routes. The Growth Conceptestimates that about 3 percent of new householdgrowth and 11 percent of new employmentgrowth would be accommodated in these re-gional centers. From the current 24 people peracre, the Growth Concept would allow of about60 people per acre.

Transit improvements would include light-railconnecting all regional centers to the Central

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City. A dense network of multi-modal arterialand collector streets would tie regional centersto surrounding neighborhoods and other centers.Regional through-routes would be designed toconnect regional centers and ensure that thesecenters are attractive places to conduct business.The relatively small number of centers reflectsnot only the limited market for new develop-ment at this density but also the limited trans-portation funding for the high-quality transit androadway improvements envisioned in theseareas. As such, the nine regional centers shouldbe considered candidates and ultimately thenumber should be reduced or policies estab-lished to phase-in certain regional centers earlierthan others.

Town Centers

Smaller than regional centers and servingpopulations of tens of thousands of people, towncenters are the third type of center with compactdevelopment and transit service. Town centerswould accommodate about 3 percent of newhouseholds and more than 7 percent of newemployment. The 1990 density of an average of23 people per acre would nearly double-to about40 persons per acre, the current densities ofdevelopment along Hawthorne Boulevard and indowntown Hillsboro.

Town centers would provide local shopping,employment and cultural and recreationalopportunities within a local market area. Theyare designed to provide local retail and services,at a minimum. They also would vary greatly incharacter. Some would become traditional towncenters, such as Lake Oswego, Oregon City andForest Grove, while others would change froman auto-oriented development into a morecomplete community, such as Hillsdale. Manywould also have regional specialties, such asoffice centers envisioned for the Cedar Milltown center. Several new town centers aredesignated, such as in Happy Valley and Dam-ascus, to accommodate the retail and serviceneeds of a growing population while reducing

auto travel. Others would combine a town centerwithin a regional center, offering the amenitiesand advantages of each type of center.

Corridors

Corridors are not as dense as centers, but alsoare located along good quality transit lines.They provide a place for densities that aresomewhat higher than today and feature a high-quality pedestrian environment and convenientaccess to transit. Typical new developmentswould include rowhouses, duplexes, and one tothree story office and retail buildings, andaverage about 25 persons per acre. While somecorridors may be continuous, narrow bands ofhigher-intensity development along arterialroads, others may be more 'nodal,' that is, aseries of smaller centers at major intersectionsor other locations along the arterial that havehigh-quality pedestrian environments, goodconnections to adjacent neighborhoods andgood transit service. So long as the averagetarget densities and uses are allowed and en-couraged along the corridor, many differentdevelopment patterns-nodal or linear-may meetthe corridor objective.

Station Communities

Station communities are nodes of developmentcentered around a light-rail or high- capacitytransit station that feature a high-quality pedes-trian environment. They provide for the highestdensity outside centers. The Station communi-ties would encompass an area approximatelyone-half mile from a station stop. The densitiesof new development would average about 45persons per acre. Zoning ordinances now setminimum densities for most Eastside andWestside MAX station communities. An exten-sive station community planning program isnow under way for each of the Westside stationcommunities, and similar work is envisioned forthe proposed South/North line. It is expectedthat the station community planning process willresult in specific strategies and plan changes toimplement the station communities concept.

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Because the Growth Concept calls for manycorridors and station communities throughoutthe region, together they are estimated to ac-commodate 27 percent of the new households ofthe region and nearly 15 percent of new employ-ment.

Main Streets and Neighborhood Centers

During the early decades of this century, mainstreets served by transit and characterized by astrong business and civic community were amajor land-use pattern throughout the region.Examples remain in Hillsboro, Milwaukie,Oregon City and Gresham, as well as theWestmoreland neighborhood and HawthorneBoulevard. Today, these areas are undergoing arevival and provide an efficient and effectiveland-use and transportation alternative. TheGrowth Concept calls for main streets to growfrom 1990 levels of 36 people per acre to about39 per acre. Main streets would accommodatenearly 2 percent of housing growth.

Main streets typically will serve neighborhoodsand may develop a regional specialization —such as antiques, fine dining, entertainment orspecialty clothing — that draws people fromother parts of the region. Main Streets formneighborhood centers as areas that provide theretail and service development at other intersec-tions at the focus of neighborhood areas andaround MAX light rail stations. When severalmain streets occur within a few blocks of oneanother, they may also serve as a dispersed towncenter, such as the main street areas of Belmont,Hawthorne and Division that form a town centerfor inner Southeast Portland.

Neighborhoods

Residential neighborhoods would remain a keycomponent of the Growth Concept and wouldfall into two basic categories. Inner neighbor-hoods include areas such as Portland,Beaverton, Milwaukie and Lake Oswego, andwould include primarily residential areas that

are accessible to employment. Lot sizes wouldbe smaller to accommodate densities increasingfrom 1990 levels of about 11 people per acre toabout 14 per acre. Inner neighborhoods wouldtrade smaller lot sizes for better access to jobsand shopping. They would accommodate about28 percent of new households and 15 percent ofnew employment (some of the employmentwould be home occupations and the balancewould be neighborhood-based employment suchas schools, daycare and some neighborhoodbusinesses).

Outer neighborhoods would be farther awayfrom large employment centers and would havelarger lot sizes and lower densities. Examplesinclude cities such as Forest Grove, Sherwoodand Oregon City, and any additions to the UGB.From 1990 levels of nearly 10 people per acre,outer neighborhoods would increase to about 13per acre. These areas would accommodate about28 percent of new households and 10 percent ofnew employment.

One of the most significant problems in somenewer neighborhoods is the lack of street con-nections, a recent phenomenon that has occurredin the last 25 years. It is one of the primarycauses of increased congestion in new commu-nities. Traditional neighborhoods contained agrid pattern with up to 20 through streets permile. But in new areas, one to two throughstreets per mile is the norm. Combined withlarge-scale single-use zoning and low densities,it is the major cause of increasing auto depen-dency in neighborhoods. To improve localconnectivity throughout the region, all areasshall develop master street plans intended toimprove access for all modes of travel. Theseplans shall include 8 to 20 local street connec-tions per mile, except in cases where fewerconnections are necessitated by constraints suchas natural or constructed features (for examplestreams, wetlands, steep slopes, freeways,airports, etc.)

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Industrial Areas and Employment Areas

The Portland metropolitan area economy isheavily dependant upon wholesale trade and theflow of commodities to national and interna-tional markets. The high quality of our freighttransportation system and, in particular, ourintermodal freight facilities are essential tocontinued growth in trade. The intermodalfacilities (air and marine terminals, freight railyards and common carrier truck terminals) arean area of regional concern, and the regionalframework plan will identify and protect landsneeded to meet their current and projected spacerequirements.

Industrial areas would be set aside primarily forindustrial activities. Other supporting uses,including some retail uses, may be allowed iflimited to sizes and locations intended to servethe primary industrial uses. They includeland-intensive employers, such as those aroundthe Portland International Airport, the HillsboroAirport and some areas along Highway 212/224.Areas of high agglomerative economic poten-tial, such as the Sunset Corridor for electronicsproducts and the Northwest Industrial sanctuaryfor metal products, shall be supported withtransportation planning and infrastructuredevelopment designed to meet their needs.Industrial areas are expected to accommodate10 percent of regional employment and nohouseholds. Retail uses whose market area issubstantially larger than the employment areashall not be considered supporting uses.

Other employment centers would be designatedas employment areas, mixing various types ofemployment and including some residentialdevelopment as well. These employment areaswould provide for about 5 percent of newhouseholds and 14 percent of new employmentwithin the region. Densities would rise substan-tially from 1990 levels of about 11 people peracre to about 20 people per acre. Employmentareas would be expected to include some limitedretail commercial uses primarily to serve theneeds of people working or living in the imme-

diate employment areas, not larger market areasoutside the employment area. Exceptions to thisgeneral policy can be made only for certainareas, indicated in a functional plan.

The siting and development of new industrialareas would consider the proximity of housingfor all income ranges provided by employmentin the projected industrial center, as well asaccessibility to convenient and inexpensive non-auto transportation. The continued developmentof existing industrial areas would include atten-tion to these two issues as well.

Urban Reserves

One important feature of the Growth Concept isthat it would accommodate all 50 years offorecasted growth through a relatively smallamount of urban reserves. Urban reservesconsist of land set aside outside the presentUGB for future growth. The Growth Conceptcontains approximately 22,000 acres of UrbanReserve Study Areas shown on the ConceptMap. Less than the full Study Area may beneeded for urban reserve area designation if theother density goals of the Growth Concept aremet. More than 75 percent of these lands arecurrently zoned for rural housing and the re-mainder are zoned for farm or forestry uses.These areas shall be refined for designation ofurban reserves required by the Growth Concept.

Transportation Facilities

In undertaking the Region 2040 process, theregion has shown a strong commitment todeveloping a regional plan that is based ongreater land-use efficiencies and a truly multi-modal transportation system. However, thetransportation system defined in the GrowthConcept Analysis serves as a theoretical defini-tion (construct) of the transportation systemneeded to serve the land-use s in the GrowthConcept (Recommended Alternative urbanform). The modeled system reflects only one ofmany possible configurations that might be usedto serve future needs, consistent with the policy

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direction called for in the Growth Concept(amendment to RUGGOs).

As such, the Growth Concept (RecommendedAlternative) transportation map provides onlygeneral direction for development of an updatedRegional Transportation Plan (RTP) and doesnot prescribe or limit what the RTP will ulti-mately include in the regional system. Instead,the RTP will build upon the broader land-useand transportation directions that are defined inthe Growth Concept (Recommended Alterna-tive).

The transportation elements needed to create asuccessful growth management policy are thosethat support the Growth Concept. Traditionally,streets have been defined by theirtraffic-carrying potential, and transit serviceaccording to its ability to draw commuters.Other travel modes have not been viewed asimportant elements of the transportation system.The Growth Concept establishes a new frame-work for planning in the region by linking urbanform to transportation. In this new relationship,transportation is viewed as a range of travelmodes and options that reinforce the region'sgrowth management goals.

Within the framework of the Growth Concept isa network of multi-modal corridors and regionalthrough-routes that connect major urban centersand destinations. Through-routes provide forhigh-volume auto and transit travel at a regionalscale, and ensure efficient movement of freight.Within multi-modal corridors, the transportationsystem will provide a broader range of travelmode options, including auto, transit, bicycleand pedestrian networks, that allow choices ofhow to travel in the region. These travel optionswill encourage the use of alternative modes tothe auto, a shift that has clear benefits for theenvironment and the quality of neighborhoodsand urban centers and address the needs of thosewithout access to automobiles.

In addition to the traditional emphasis on roadand transit facilities, the development of net-works for freight travel and intermodal facilities,for bicycle and pedestrian travel and the effi-cient use of capacity on all streets throughaccess management and congestion manage-ment and/or pricing will be part of a successfultransportation system.

While the Concept Map shows only majortransit facilities and corridors, all areas withinthe UGB have transit access. Transit service inthe Growth Concept included both fixed-routeand demand responsive systems. The RTP shallfurther define the type and extent of transitservice available throughout the region.

Intermodal Facilities

The region's continued strength as a nationaland international distribution center is depen-dent upon adequate intermodal facilities andaccess to them. Intermodal facilities includemarine terminals, railroad intermodal points,such as the Union Pacific's Albina Yard, theairports and the Union Station/inter-city busstation area. The RTP will identify these areasand their transportation requirements and willidentify programs to provide adequate freightcapacity.

Truck Routes

Truck routes will be identified and freightmovement will be given priority in terms ofroadway design and operation between areaswith freight dependent uses within the regionand major facilities serving areas locationsoutside the region.

Regional Through-Routes

These are the routes that move people and goodsthrough and around the region, connect regionalcenters to each other and to the Central City, and

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connect the region to the statewide and interstatetransportation system. They include freeways,limited access highways and heavily traveledarterials, and usually function as through-routes.As such, they are important not only because ofthe movement of people, but as one of theregion's major freight systems. Since much ofour regional economy depends on the movementof goods and services, it is essential to keepcongestion on these roads at manageable levels.These major routes frequently serve as transitcorridors but are seldom conducive to bicyclesor pedestrians because of the volume of autoand freight traffic that they carry.

With their heavy traffic and high visibility, theseroutes are attractive to business. However, whenthey serve as a location for auto-oriented busi-nesses, the primary function of these routes, tomove regional and statewide traffic, can beeroded. While they serve as an appropriatelocation for auto-oriented businesses, they arepoor locations for businesses that are designedto serve neighborhoods or sub-regions. Theseare better located on multi-modal arterials. Theyneed the highest levels of access control. Inaddition, it is important that they not becomebarriers to movements across them by otherforms of travel, auto, pedestrian, transit orbicycle. They shall focus on providing access tocenters and neighbor cities, rather than access tothe lands that front them.

Multi-Modal Arterials

These represent most of the region's arterials.They include a variety of design styles andspeeds, and are the backbone for a system ofmulti-modal travel options. Older sections of theregion are better designed for multi-modal travelthan new areas. Although these streets are oftensmaller than suburban arterials, they carry agreat deal of traffic (up to 30,000 vehicles aday), experience heavy bus ridership along theirroutes and are constructed in dense networksthat encourage bicycle and pedestrian travel.

The RTP shall identify these multi-modal streetsand develop a plan to further encourage alterna-tive travel modes within these corridors.

Many new streets, however, are designed toaccommodate heavy auto and freight traffic atthe expense of other travel modes. Multiple,wide lanes, dedicated turning lanes, narrowsidewalks exposed to moving traffic, and widelyspaced intersections and street crossings createan environment that is difficult and dangerous tonegotiate without a car. The RTP shall identifythese potential multi-modal corridors andestablish design standards that encourage othermodes of travel along these routes.

Some multi-modal arterials also carry signifi-cant volumes of freight. The RTP will ensurethat freight mobility on these routes is ad-equately protected by considering freight needswhen identifying multi-modal routes, and inestablishing design standards intended to en-courage alternative modes of passenger travel.

Collectors and Local Streets

These streets become a regional priority when alack of adequate connections forces neighbor-hood traffic onto arterials. New suburban devel-opment increasingly depends on arterial streetsto carry trips to local destinations, since mostnew local streets systems are specifically de-signed with curves and cul-de-sacs to discour-age local through travel by any mode. The RTPshould consider a standard of 8 to 20 throughstreets per mile, applied to both developed anddeveloping areas to reduce local travel onarterials. There should also be establishedstandard bicycle and pedestrian through-routes(via easements, greenways, fire lanes, etc.) inexisting neighborhoods where changes to thestreet system are not a reasonable alternative.

Light Rail

Light-rail transit (LRT) daily travel capacitymeasures in tens of thousands of riders andprovides a critical travel option to major destina-

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tions. The primary function of light rail in theGrowth Concept is to link regional centers andthe Central City, where concentrations of hous-ing and employment reach a level that canjustify the cost of developing a fixed transitsystem. In addition to their role in developingregional centers, LRT lines can also supportsignificant concentrations of housing and em-ployment at individual station areas along theirroutes.

In addition, neighbor cities of sufficient sizeshould also include a transit connection to themetropolitan area to provide a full-range oftransportation alternatives.

"Planned and Existing Light Rail Lines" on theConcept Map represent some locations shownon the current RTP that were selected for initialanalysis. "Proposed Light Rail Alignments"show some appropriate new light rail locationsconsistent with serving the Growth Concept."Potential High Capacity Transit (HCT) lines"highlight locations for some concentrated formof transit, possibly including light rail. Thesefacilities demonstrate the general direction fordevelopment of an updated RTP that will bebased on further study. The Concept Maptransportation facilities do not prescribe or limitthe existing or updated RTP.

Bicycle and Pedestrian Networks

Bicycling and walking should play an importantpart in the regional transportation system espe-cially within neighborhoods and centers and forother shorter trips. They are also essential to thesuccess of an effective transit system. In addi-tion to the arrangement of land-use s and sitedesign, route continuity and the design of rights-of-way in a manner friendly to bicyclists andpedestrians are necessary. The RTP will estab-lish targets that substantially increase the shareof these modes.

Demand Management/Pricing

The land-use s and facilities in the GrowthConcept cannot, by themselves, meet theregion's transportation objectives. DemandManagement (carpooling, parking managementand pricing strategies) and system managementwill be necessary to achieve the transportationsystem operation described in the GrowthConcept. Additional actions will be need toresolve the significant remaining areas of con-gestion and the high VMT/capita which itcauses. The RTP will identify explicit targets forthese programs in various areas of the region.

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2040 Growth ConceptNote: Urban Reserve Study Areas indicate those areas identified for future study inResolution No. 95-2244, from which Urban Reserve Areas may be selected. These studyareas are 6hown here for illustrative purposes only. Designation of Urban ReserveAreas remains contingent upon tke application of LCDC's Urban Reserve Rule to thecharacteristics of land studied by Metro or others.

L E GE NDClark County

Farm and Forest Land• Rural Residential

HI Low Density ResidentialMedium Density Residential

• High Density Residential• Commercial

| General Commercial/City CentT2 Public Facility

Light IndustrialHeavy IndustrialParks &n Open SpaceUrban Reserve Study AreaVancouver City CenterActivity CentersTown CentersRural Reserve

E G E NMetropolitan Region

• Light Rail Stations* Potential Light Rail Stations© International Airports

Regional AirportsTerminalsIntermodal Rail YardsRail Distribution NetworkExclusive Farm Use

Central CityRegional CentersTown CentersInner NeighborhoodsOuter NeighborhoodsEmployment AreasIndustrial AreasCorridorsMain Streets I I I Urban Reserve Study Area

V Proposed Regional Throughways Rural ReservesPotential Regional Throughways Open SpaceGreen Corridors A'' Urban Growth Boundary

• Planned & Existing Light Rail Lines £•--J Neighboring Cities^ Proposed light Rail Alignments B i Public Parks

v Potential HCT Facilities

Metro Regional [__Trails and Greenways^ / Existing Regional Trails• • Proposed Regional Trails

* • Proposed Greenway CorridorsRiver TrailsProposed Inter-Regional TrailsMetro Bond Measure FundedTrails and Greenways

Note: Proposed trail and greenway alignments are conceptual.

zz 7 rI Parks and Open Spaces

Metro Boundary •'**•«' Urban Growth Boundary

REGIONAL PARKS and GREEN SPACES600 NE Grand Ave.Portland, OR 97232-2736

METRO (503)797-1850

Regional Trails and Greenways Map, plot date: June 20, 1996

GLOSSARY

Areas and Activities of Metropolitan Concern.A program, area or activity, having significantimpact upon the orderly and responsibledevelopment of the metropolitan area that canbenefit from a coordinated multi-jurisdictionalresponse.

Beneficial Use Standards. Under Oregon law,specific uses of water within a drainage basindeemed to be important to the ecology of thatbasin as well as to the needs of local communi-ties are designated as "beneficial uses." Hence,"beneficial use standards" are adopted topreserve water quality or quantity necessary tosustain the identified beneficial uses.

Central City. The downtown and adjacent portionsof the city of Portland. See the Growth Conceptmap and text.

Corridors. While some corridors may becontinuous, narrow bands of higher intensitydevelopment along arterial roads, others may bemore "nodal," that is, a series of smaller centersat major intersections or other locations alongthe arterial that have high-quality pedestrianenvironments, good connections to adjacentneighborhoods and good transit service. As longas the average target densities and uses areallowed and encouraged along the corridor,many different development patterns-nodal orlinear-may meet the corridor objective.

Economic Opportunities Analysis. An "economicopportunities analysis" is a strategic assessmentof the likely trends for growth of localeconomies in the state consistent with OAR 660-09-015. Such an analysis is critical for economicplanning and for ensuring that the land supply inan urban area will meet long-term employmentgrowth needs.

Employment Areas. Areas of mixed employmentthat include various types of manufacturing,distribution and warehousing uses, commercialand retail development as well as someresidential development. Retail uses shouldprimarily serve the needs of the people working

or living in the immediate employment area.Exceptions to this general policy can be madeonly for certain areas indicated in a functionalplan.

Exception. An "exception" is taken for land wheneither commitments for use, current uses orother reasons make it impossible to meet therequirements of one or a number of the statewideplanning goals. Hence, lands "excepted" fromstatewide planning goals 3 (Agricultural Lands)and 4 (Forest Lands) have been determined to beunable to comply with the strict resourceprotection requirements of those goals and arethereby able to be used for other than ruralresource production purposes. Lands notexcepted from statewide planning goals 3 and 4are to be used for agricultural or forest productpurposes, and other, adjacent uses must supporttheir continued resource productivity.

Exclusive Farm Use. Land zoned primarily forfarming and restricting many uses that areincompatible with farming, such as ruralhousing. Some portions of rural reserves alsomay be zoned as exclusive farm use.

Fair Share. A proportionate amount by localjurisdiction. Used in the context of affordablehousing in this document. "Fair share" meansthat each city and county within the regionworking with Metro to establish local andregional policies that will provide the opportu-nity within each jurisdiction for accommodatinga portion of the region's need for affordablehousing.

Family Wage Job. A permanent job with an annualincome greater than or equal to the averageannual covered wage in the region. The mostcurrent average annual covered wage informa-tion from the Oregon Employment Divisionshall be used to determine the family wage jobrate for the region or for counties within theregion.

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Fiscal Tax Equity. The process by which inter-jurisdictional fiscal disparities can be addressedthrough a partial redistribution of the revenuegained from economic wealth, particularly theincrement gained through economic growth.

Freight Mobility. The efficient movement of goodsfrom point of origin to destination.

Functional Plan. A limited-purpose multi-jurisdictional plan for an area or activity havingsignificant district-wide impact upon the orderlyand responsible development of the metropolitanarea that serves as a guideline for localcomprehensive plans consistent with ORS268.390.

Growth Concept. A concept for the long-termgrowth management of our region stating thepreferred form of the regional growth anddevelopment, including where and how muchthe UGB should be expanded, what densitiesshould characterize different areas, and whichareas should be protected as open space.

High Capacity Transit. Transit routes that may beeither a road designated for frequent bus serviceor for a light-rail line.

Housing Affordability. The availability of housingsuch that no more than 30 percent (an indexderived from federal, state and local housingagencies) of the monthly income of thehousehold need be spent on shelter.

Industrial Areas. An area set aside for industrialactivities. Supporting commercial and relateduses may be allowed, provided they are intendedto serve the primary industrial users. Residentialdevelopment shall not be considered asupporting use, nor shall retail users whosemarket area is substantially larger than theindustrial area be considered supporting uses.

Infill. New development on a parcel or parcels ofless than one contiguous acre located within theUGB.

Infrastructure. Roads, water systems, sewagesystems, systems for storm drainage, telecom-munications and energy transmission anddistribution systems, bridges, transportationfacilities, parks, schools and public facilities

Metropolitan Housing Rule. A rule (OAR 660,developed to support the functioning of thedeveloped portions of the environment. Areas ofthe undeveloped portions of the environmentsuch as floodplains, riparian and wetland zones,groundwater recharge and discharge areas andGreenspaces that provide important functionsrelated to maintaining the region's air and waterquality, reduce the need for infrastructureexpenses and contribute to the region's quality oflife.

Inner Neighborhoods. Areas in Portland and theolder cities that are primarily residential, close toemployment and shopping areas, and haveslightly smaller lot sizes and higher populationdensities than in outer neighborhoods.

Intermodal. The connection of one type oftransportation mode with another.

Intermodal Facility. A transportation element thataccommodates and interconnects differentmodes of transportation and serves thestatewide, interstate and international movementof people and goods.

Jobs/Housing Balance. The relationship betweenthe number, type, mix and wages of existing andanticipated jobs balanced with housing costs andavailability so that non-auto trips are optimizedin every part of the region.

Key or Critical Public Facilities and Services.Basic facilities that are primarily planned for bylocal government but which also may beprovided by private enterprise and are essentialto the support of more intensive development,including transportation, water supply, sewage,parks, schools and solid waste disposal.

Local Comprehensive Plan. A generalized,coordinated land-use map and policy statementof the governing body of a city or county thatinter-relates all functional and natural systemsand activities related to the use of land,consistent with state law.

Major Amendment. A proposal made to the MetroCouncil for expansion of the UGB of 20 acres ormore, consistent with the provisions of theMetro Code.

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Division 7) adopted by the Land Conservationand Development Commission to assureopportunity for the provision of adequatenumbers of needed housing units and theefficient use of land within the Metro UGB. Thisrule establishes minimum overall net residentialdensities for all cities and counties within theUGB, and specifies that 50 percent of the landset aside for new residential development bezoned for multifamily housing.

Main Streets. Neighborhood shopping areas along amain street or at an intersection, sometimeshaving a unique character that draws peoplefrom outside the area. Northwest 23rd Avenueand Southeast Hawthorne Boulevard are currentexamples of main streets.

Neighborhood Centers. Retail and servicedevelopment that surrounds major MAX stationsand other major intersections, extending out forone-quarter to one-half mile.

Neighboring Cities. Cities such as Sandy, Canbyand Newberg that are outside Metro's jurisdic-tion but will be affected by the growth policiesadopted by the Metro Council or otherjurisdictions, such as North Plains, Estacada orScappoose, which may be affected by Metroactions.

Open Space. Publicly and privately-owned areas ofland, including parks, natural areas and areas ofvery low density development inside the UGB.

Outer Neighborhoods. Areas in the outlying citiesthat are primarily residential, farther fromemployment and shopping areas, and have largerlot sizes and lower population densities thaninner neighborhoods.

Pedestrian Scale. An urban development patternwhere walking is a safe, convenient andinteresting travel mode. It is an area wherewalking is at least as attractive as any othermode to all destinations within the area. Thefollowing elements are not cited as require-ments, but illustrate examples of pedestrianscale: continuous, smooth and wide walkingsurfaces; easily visible from streets andbuildings and safe for walking; minimal pointswhere high-speed automobile traffic and

pedestrians mix; frequent crossings; storefronts,trees, bollards, on-street parking, awnings,outdoor seating, signs, doorways and lightingdesigned to serve those on foot; well integratedinto the transit system and having uses that caterto people on foot.

Persons Per Acre. This is a term expressing theintensity of building development by combiningresidents per net acre and employees per netacre.

Planning Activities. Planning activities cited in theRUGGOs are not regulatory but containimplementation ideas for future study in variousstages of development that may or may not leadto RUGGO amendments new functional plans,functional plan amendments, or regionalframework plan elements. Planning activities forany given year will be subject to MetroExecutive Officer budget recommendations andMetro Council budget adoption.

Regional Centers. Areas of mixed residential andcommercial use that serve hundreds ofthousands of people and are easily accessible bydifferent types of transit. Examples includetraditional centers such as downtown Greshamand new centers such as Clackamas TownCenter.

Rural Reserves. Areas that are a combination ofpublic and private lands outside the UGB, usedprimarily for farms and forestry. They areprotected from development by very low-densityzoning and serve as buffers between urban areas.

State Implementation Plan. A plan for ensuringthat all parts of Oregon remain in compliancewith federal air quality standards.

Stewardship. A planning and managementapproach that considers environmental impactsand public benefits of actions as well as publicand private dollar costs.

Station Communities. That area generally within a1/4- to 1/2-mile radius of light-rail stations orother high-capacity transit that is planned as amulti-modal community of mixed uses andsubstantial pedestrian accessibility improve-ments.

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Subregion. An area of analysis used by Metrocentered on each regional center and used foranalyzing jobs/housing balance.

Town Centers. Areas of mixed residential andcommercial use that serve tens of thousands ofpeople. Examples include the downtowns ofForest Grove and Lake Oswego.

Urban Form. The net result of efforts to preserveenvironmental quality, coordinate the develop-ment of jobs, housing, and public services andfacilities, and interrelate the benefits andconsequences of growth in one part of the regionwith the benefits and consequences of growth inanother. Urban form, therefore, describes anoverall framework within which regional urbangrowth management can occur. Clearly statingobjectives for urban form and pursuing themcomprehensively provides the focal strategy forrising to the challenges posed by the growthtrends present in the region today.

Urban Growth Boundary. A boundary whichidentifies urban and urbanizable lands neededduring the 20-year planning period to be plannedand serviced to support urban developmentdensities, and which separates urban andurbanizable lands from rural land.

Urban Reserve Area. An area adjacent to thepresent UGB defined to be a priority location forany future UGB amendments when needed.Urban reserves are intended to provide cities,counties, other service providers, and both urbanand rural land owners with a greater degree ofcertainty regarding future regional urban form.Whereas the UGB describes an area needed toaccommodate the urban growth forecasted overa 20-year period, the urban reserves plus the areainside the UGB estimate the area capable ofaccommodating the growth expected for 50years.

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