urm building workgroup meeting #2 - portland, oregon
TRANSCRIPT
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City of PortlandUnreinforced Masonry (URM) Building Workgroup
Welcome!URM Building Workgroup Meeting 2
February 6, 20203:00 PM to 7:00 PM
Vancouver Avenue First Baptist Church3138 North Vancouver Avenue
Portland, Oregon 97227
City of PortlandURM Building Workgroup
Welcome
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Steve Wessing Photo 2017
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City of PortlandURM Building Workgroup
Meeting Goals
Note: This meeting is being audio recorded
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1) Discuss potential Workgroup recommendations (Scope, Umbrella Question, and/or Workplan)
2) Understand the current code: Overview3) Understand the past processes and resiliency: Overview4) Understand the historical context of racist planning in
Portland: Overview5) Elect Chairs and/or Co‐chairs6) Hear from the public7) Next Steps
City of PortlandURM Building Workgroup
Agenda Review
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Time Task Speaker
3:00Welcome, Meeting Goals, Agenda Review, Housekeeping, and Scope of Process Discussion
Our HostFacilitator
3:30 Current Code: Overview BDS
4:00 Break/Activity: Talk to the Member You Know Least Well All
4:15 Prior Planning Processes and City Resiliency: Overview PBEM
5:00Working Dinner (Sit next to Member You Think Has a Different Point of View and Talk)
All
5:30 Historical Context of Racist Planning in Portland: Overview BPS
6:15 Public Comment Public
6:25Group Direction on Scope: What Further Information do You Need Before You Make a Recommendation?
Facilitator
6:45 Elect Chairs and/or Co‐Chairs Facilitator
6:55 Next Steps Facilitator
7:00 Adjourn All
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City of PortlandURM Building Workgroup
Reminders:Commitments for Community (Highlights)
• Speak respectfully, briefly, and non‐repetitively;
• Allow people to say what is true for them without reprisal;
• Generate and explore all options on the merits … with a goal of understanding … other Workgroup members;
• Consult regularly with their interest group(s) and provide their input;
• Work toward fair, practical, and durable recommendations that reflect the diverse interests of the entire Workgroup and the public;
• When communicating with others, accurately summarize the process, … presenting a full, fair, and balanced view …;
• Not attempt to affect a different outcome outside of the Workgroup process once Workgroup has reached a consensus…;
• Self‐regulate and help other members abide by these commitments.
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City of PortlandURM Building Workgroup
Name
Sub‐committee: For‐profit Non‐profit
Interest Group: Community Design Finance Historic Preservation Investor‐Developer Non‐Profit Multi‐family Places of Worship Tenant Advocate URM Building Owner
Why is this work important to you?
New Members: Introductions & Statements
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How many of you:
Live in N, NE, S, SE, SW, NW?
Own and/or Manage a URM?
Live in a URM?
Believe difficult questions need to be discussed candidly?
Want to increase public safety?
Want to be heard & to hear others?
Want an equitable outcome for all?
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City of PortlandURM Building Workgroup
Housekeeping
• Meeting Evals and Staff Responses
• Cellphone/laptop policy
• New membership List/Abe’s Bio with pagination instructions
• WG comments on Public Comments submitted to the project website and in your packets?
• Comments on Meeting 1 Notes
• Binders with COI forms. Any changes?
• Member sign‐in sheets
• Public Sign‐in Sheets and Materials• Presenter’s Choice on Q&A during or after
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City of PortlandURM Building Workgroup
… recommendations to reduce the life safety risks posed by URM buildings and to reduce displacement following a seismic event. …
develop recommendations that include:
1) financial and policy supports to promote seismic retrofits, recognizing the unique needs of commercial and non‐profit building owners, and
2) standards for participation in voluntary support programs.
It is not required or expected that the Workgroup will recommend mandatory retrofits of URM buildings that are privately owned.
It is expected that support for voluntary retrofits will be scaled to need …
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Council‐approved Bylaws Purpose
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City of PortlandURM Building Workgroup
Purpose/Scope: Setting the Stage
• Based on member interviews, homework, and meeting one comments, etc., and recognizing we haven't heard from everyone
• Received several suggestion to change Council’s purpose/scope
• I want to give you the opportunity to make the recommendations you think the City needs to hear
• I recommend we first talk about the following things so everyone has the same fund of information:
• Current Code
• Prior Processes
• Historical Context of Racist Planning in Portland
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City of PortlandURM Building Workgroup
Purpose/Scope: Setting the Stage
• Then, we will discuss during meeting three and/or four whether you want to make a different purpose/scope recommendation(s) to Council
• At the end of today’s meeting, I will ask what other presentations (e.g. Earthquake Risk, Building Risks, Viability of Finance Options, City Funding, etc.) you would like to make before you decide on a purpose/scope recommendation
• Depending on your decision, we will discuss whether we need to go back to the City Council and what that means for the process.
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City of PortlandURM Building Workgroup
Purpose/Scope: Feedback
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Council Purpose/Scope Some Have Said Considerations
Promote Seismic Retrofits Broaden to Overall Resiliency Would involve other agencies
and other or different
stakeholders
Financial Previously Studied and Not
Viable
Are their viable options that
have not been brought forwardPolicy/Administrative Won’t really move the needle
and could be handled in a more
efficient way
Are their viable options that
have not been brought forward
Commercial and Non‐Profit Add Class 1 and 2 Buildings
Add Soft Story
Perform on the 2018
Resolutions
Would involve other or
different stakeholders
Current City Budget Realities
Council has already required
upgrades be mandated to
Class 1 and 2 URM buildings
City of PortlandURM Building Workgroup
Purpose/Scope: Setting the Stage
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Council Purpose/Scope Some Have Said ConsiderationsVoluntary Make mandatory or nothing will
be done.
Reconsider at least for some
buildings, e.g. public housing
Mandatory retrofits currently
lack political support
Standards for Participation
To What Standard?
Eligibility Prioritization
These could turn into
mandatory standards.
Academic without knowing how
much money is available and
from what sources. Impossible
to quantify need.
Miss opportunity to discuss
and consider some
demonstration projects
List/Inventory: Not in
Resolution but has been
stated by staff.
Make changes to the List. Verify
accuracy. Eliminate the
inventory.
Suggest a process to improve
the inventory.
Other?
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City of PortlandUnreinforced Masonry (URM) Building Workgroup
Current Regulations &Policy Process 2014‐2019
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Amit Kumar, Bureau of Development ServicesJonna Papaefthimiou, Bureau of Emergency Management
February 6, 2020
See Combined Executive Summariesof Prior Studies
City of PortlandURM Building Workgroup 14
Building Code Basics
Any new construction, repair or alteration of a building, is required to conform to State and City Building Codes. The building codes are based on national standards.
• The International Building Code (IBC) is a national model for building codes.
• Oregon Structural Specialty Code (OSSC) is based on the IBC.
• Local jurisdictions can adopt their own codes. The City of Portland Title 24 is an example of a local building code.
• Chapter 24.85 of Title 24 is the Seismic Design Requirements for Existing Buildings
• Building codes are periodically updated to reflect the latest available knowledge and technology
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City of PortlandURM Building Workgroup 15
Seismic Design Basics
Early editions of the building code classified areas of the country into seismic risk zones (Zone 1 through 4) based on the level of seismic risk/activity expected based on research from the United States Geological Survey (USGS).
Seismic Zones ‐ Seismic Zone 1 being the lowest seismic risk and Zone 4 being the highest risk.
City of PortlandURM Building Workgroup
1990
Western Oregon reclassified to higher seismic risk (Seismic Zone 2 to 2B)
2004
Portland updates Title 24.85, including seismic triggers
2018
Portland strengthens seismic triggers as part of the Placarding and Tenant Notification Ordinance
2019
2018 seismic triggers updates removed from Title 24.85 per Ordinance
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Title 24.85, Seismic Design Requirements for Existing Buildings adopted
1993
City task force appointed to address “dangerous” building designation and recommend retrofit policies.
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Portland Seismic Code Timeline
19931990 1996 2004 2018 2019
1993
Further reclassification of W. OR to higher seismic risk (Zone 2B to 3): most
existing buildings designated “dangerous”
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City of PortlandURM Building Workgroup 17
Seismic design standards increased
City of PortlandURM Building Workgroup 18
Key Parts of a URM Building
Parapet
Exterior Wall
Roof
Floor
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City of PortlandURM Building Workgroup 19
URM Building Vulnerability
URM buildings are vulnerable in an earthquake.
1. The parapets can break away
2. The walls can pull apart
3. The roof and floors can collapse
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Parapet
Roof
Floor
Wall
City of PortlandURM Building Workgroup 20
When Seismic Upgrades are Required under Current Code
Seismic upgrades are voluntary except when triggered.
• Triggers are set off when a building owner:• Changes their building’s use or occupancy
• Makes alterations that exceed cost thresholds
• Replaces more than half the roof.
• If owners don’t hit a trigger, no seismic upgrade is required ‐ even for URM buildings.
• These are called “passive” triggers – if the owner does nothing, nothing changes.
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City of PortlandURM Building Workgroup 21
Seismic Triggers: Change of Occupancy or Use
• More than 33% of the building area undergoes a change in occupancy to higher hazard classification
• Increase in occupant load by more than 149 persons
• Occupancy changes to essential facility
City of PortlandURM Building Workgroup 22
Seismic Triggers: Alteration/Repair Costs (specific to URM buildings)
When costs associated with building alterations or repair in a two‐year time period exceeds costs triggers.
Current cost triggers (adjusted annually):
• $62.23/SF for one‐story URM building
• $46.67/SF for two or more stories URM & special hazards URM buildings.
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City of PortlandURM Building Workgroup 23
Elements of Seismic Retrofit
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Retrofit Result:Building Stays intact
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D
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E
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Retrofit Legend:
A. Brace parapets
B. Attach wall to roof
C. In‐plane shear attachments
and roof sheathing, ties
crossties
D. Attach wall to floor
E. Out of plane wall bracing
F. Other upgrades, as required
City of PortlandURM Building Workgroup 24
Trigger: Roof Replacement (URM buildings only)
Removing > 50% of roof area within a 5‐year period requires:
A. Parapet bracing
B. Wall anchorage to
roof
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Retrofit Potential Collapse
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City of PortlandURM Building Workgroup 25
Other Current Seismic Provisions
Seismic Evaluation Requirement:
• When the value of alterations of an existing building exceeds $272,265.00, a standard seismic evaluation is required.
• Evaluation does not trigger seismic upgrade
Phasing of Improvements:
• BDS may approve multi‐year phased program of improvements
Fee Reductions:
• Building permit, plan review and life safety review fees for structural work related to seismic strengthening are waived or reduced
City of PortlandURM Building Workgroup 26
Progress with Title 24.85 Requirements since 1996
97 fully upgraded (6% of total) URM buildings
183 partially upgraded (11% of total) URM buildings
57 upgrade in progress (3% of total) of URM buildings
185 demolished (11% of total) URM buildings
Of these:
5 fully upgraded (10%) City owned URM buildings
6 partially upgraded (12%) City owned URM buildings
1 upgrade in progress (2%) City owned URM building
Note: Data was last updated in March 2019
The City currently owns about 49 URM buildings (including retrofitted buildings) with about 19 of them either public restrooms, park shelters, or small storage buildings
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City of PortlandURM Building Workgroup 27
QUESTIONS?
City of PortlandURM Building Workgroup
Activity, then Break!
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Talk to the Member You Know Least Well
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City of PortlandURM Building Workgroup
Let’s get back to work
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City of PortlandUnreinforced Masonry (URM) Building Workgroup
Policy Process 2014‐2019
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Jonna Papaefthimiou, Bureau of Emergency Management
February 6, 2020
See Combined Executive Summariesof Prior Studies
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City of PortlandURM Building Workgroup 31
Why go back to URMs?
“All three kinds of risk—injury, property damage, and loss of use—are usually greater for URM buildings than for the other buildings in a city or region. While some communities, university systems, owners and others have chosen to deal with the risks of other kinds of existing buildings or to upgrade utility and transportation systems, addressing URM building problems is usually the top priority in any serious effort to provide seismic protection.”
‐ Page 6.
City of PortlandURM Building Workgroup 32
URM Buildings in Portland
Commercial:82%Multifamily: 14%Schools and community centers: 3%Other: 1%
URM Buildings by Use
• About 1,650 URM buildings, 9% of total building stock
• About 7,200 residential units
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City of PortlandURM Building Workgroup 33
URM Building Characteristics
• Average age 90 years
• About 567 historic
buildings
• More than half single-
story
URM Buildings by Height
City of PortlandURM Building Workgroup 34
URM Building Locations
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City of PortlandURM Building Workgroup 35
URM Retrofit Progress to Date
6 % fully retrofitted buildings
11% partially retrofitted
3% in progress
80% still at risk
City of PortlandURM Building Workgroup 36
Council Charge ‐ 2014
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City of PortlandURM Building Workgroup 37
Retrofit Standards Committee (Jan – April 2015)
Panel of architects and engineers advised:
• Make URM retrofits mandatory
• Group buildings into 5 categories by risk
• Set retrofits standards for each group
• Create a 10 – 25 year timeline
• Strengthen existing code to promote more retrofits during remodels and re‐roofing
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Seismic Design Basics
Buildings are designed (or retrofitted) to a standard performance level:
Operational Immediate Occupancy
Life Safety Collapse Prevention
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City of PortlandURM Building Workgroup
2015 Standards Recommendations
Proposed Standard Building Class Immediate Occupancy 1: Critical Buildings + essential facilities
Damage Control 2: Schools, community centers,
high occupancy structures Life Safety 3:Buildings with 4+ stories, 300+
occupants, or 100+ residencesSimplified Life Safety(Bolts Plus)
4: All other URMs
Collapse prevention 5: 1 and 2‐story buildings with 0‐10
occupants.
City of PortlandURM Building Workgroup 40
URM Finance Committee (June – Nov 2015)
Committee of property owners and managers, financial advisors and investors:
• Developed cost estimates from local case studies and data from FEMA.
• Additional cost studies have been completed since.
• Case studies showed big variations in cost.
• Developed list of financial and policy supports to accomplish retrofits.
• Did not identify sources of capital for subsidy programs.
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City of PortlandURM Building Workgroup 41
2015 Financial Supports
• Seismic retrofit loan program
• Credit enhancement
• Interest rate buy‐down
• Grants
• Rebates
• Property tax exemption or abatement
• State tax credit
• Accelerated depreciation
City of PortlandURM Building Workgroup 42
2015 Other Supports
• Transfer of development rights
• Expedited permitting
• Water / storm sewer exemption for nonconforming conditions
• Early adopter incentives
• Post disaster right to rebuild
• Standardized retrofit methods
• Process navigation / support
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City of PortlandURM Building Workgroup 43
Policy Committee (2016‐2017)
Committee of earlier participants plus other stakeholders, like schools:
• Built on work of earlier committees
• Conducted more community outreach:• 20+ community presentations
• 3 public open house events
• Commissioned cost‐benefit analysis:• Cost‐benefit ratios 1:1.4 to 1:1.9.
• Avoided death and injury as greatest benefit (55%).
City of PortlandURM Building Workgroup 30
2017 Proposed Standards
Proposed Standard Building Class
Immediate Occupancy 1: Critical Buildings + essential facilities
Damage Control 2: Schools, community centers, high
occupancy structures
Collapse Risk
Reduction
3: All URM buildings not in 1, 2, or 4
Parapet bracing only 4: 1 and 2‐story buildings with 0‐10
occupants.
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City of PortlandURM Building Workgroup 45
Policy Committee Recommendations (2017)
• Strengthen triggers to promote more retrofits during remodeling / reroofing
• Mandatory retrofits – high standards for public buildings, lower for others
• Tax exemption to offset some retrofit costs
• Public education campaign
• Owner assistance to navigate design, financing and permitting
City of PortlandURM Building Workgroup 32
Council Resolution (2018)
Action Implementation
Mandatory retrofit of schools,
community
centers, critical buildings
Not started
Require roof ties and parapet
bracing for all buildings
Not started
Strengthen triggers for re‐roofing
and remodeling
Implemented, then
repealed
Require placarding and tenant
notification
Implemented, then
repealedNew URM policy committee You! In progress
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City of PortlandURM Building Workgroup 33
Status of Council Resolution
Action Implementation
Property tax exemption Not started
Seismic retrofit revolving loan fund Not started
Staff program to assist URM
owners
Not started
Legislative agenda Introduced bills 2019; didn’t
passAssess City‐owned URM buildings Started; incomplete
Financial plan to retrofit URM
buildings
Not started
City of PortlandUnreinforced Masonry (URM) Building Workgroup
Portland’s Citywide Resilience Efforts
Jonna Papaefthimiou, Bureau of Emergency Management
February 6, 2020
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City of PortlandURM Building Workgroup 49
Response planning
• Business Continuity Plan for the City
• Basic Emergency Operations Plan and supporting annexes:• Earthquake response
• Damage assessment
• Debris management
• Alert and warning
• Mass shelter (Multnomah County)
• Points of Distribution (under development)
• Fuel distribution (under development)
• Plans updated regularly
• Practice at least 2 x year
City of PortlandURM Building Workgroup 50
Long‐term Resilience strategies
• Water Bureau has 50‐year plan to meet Oregon Resilience Plan goals, strengthen water system backbone to provide service
• Bureau of Environmental Services has similar plan
• Bureau of Transportation received funding this year to develop their own resilience plan
• Bureau of Emergency Management develops Natural Hazard Mitigation Plan that serves as citywide planning document.
• Bureau of Development Services working on Emergency Quick Inspections Program (EQUIP) for post‐disaster building re‐occupancy
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City of PortlandURM Building Workgroup 51
Policy efforts
Advocate for • Earthquake early warning system for Oregon
• Funding for statewide efforts (ex. grants to schools, Burnside Bridge retrofit)
• Stronger post‐earthquake building inspection program
• Updated building codes
• Strengthening Columbia River levees
Working to address risks in critical energy infrastructure hub:
• Support DEQ regulation of tanks
• Seek to make owner‐operators responsible for risks
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Community programs
• Largest Neighborhood Emergency Team (NET) program in US
• BEECNs (Basic Earthquake Emergency Communications Node)
• Full‐time outreach staff focused on underserved communities
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City of PortlandURM Building Workgroup
Working Dinner
Let's keep working, but grab food first!
Workgroup Members, then the Public
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City of PortlandURM Building Workgroup
Historical Context of Racist Planning in Portland
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See PDFs of PowerPoint and Lisa Bates’ Article
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City of PortlandURM Building Workgroup
Public Comment Period
• Scheduled for Every Meeting
• Signup Sheets
• Written Testimony Sheets
• Public Record Emails to [email protected]
• To communicate directly with facilitators: Call Sam Imperati (503) 244‐1174
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City of PortlandURM Building Workgroup
The Election
• Ballot Explanation
• Accept Nominations
• Call for Other Nominees
• Finalize Ballot
• Vote
• Results: Tomorrow56
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City of PortlandURM Building Workgroup
Next Steps
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City of PortlandURM Building Workgroup
Meeting Evaluation
Meeting Goals Reminder:
1) Discuss potential Workgroup recommendations (Scope, Umbrella Question, and/or Workplan)
2) Understand the current code: Overview
3) Understand the past processes and resiliency: Overview
4) Understand the historical context of racist planning in Portland: Overview
5) Elect Chairs and/or Co‐chairs6) Hear from the public7) Next Steps
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City of PortlandURM Building Workgroup
Homework and Next Steps
• Homework: We’ll send you a list
• Next Meeting: March 12, 2020 from 3:00 to 7:00 PM
• Tentative Working Agenda:
• Presentations on additional topics requested• Workgroup recommendation on Scope, Umbrella Question and/or Workplan
• Return Name Tents for Future Mixed Up Seating
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City of PortlandURM Building Workgroup
We are adjourned!
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