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Approved Minutes - 2023-04-18 C s CITY COUNCIL REGULAR MEETING + MINUTES I April 18, 2023 °J o� 1. CALL TO ORDER Mayor Buck called the regular City Council meeting to order at 3:02 p.m. on April 18, 2023. The meeting was held both virtually via video conferencing and in person in the Council Chamber at City Hall, 380 A Avenue. 2. ROLL CALL Present: Mayor Buck and Councilors Wendland, Mboup, Rapf, Afghan, and Corrigan. Councilor Verdick was excused. Staff Present: Martha Bennett, City Manager; Ellen Osoinach, City Attorney; Kari Linder, City Recorder; Madison Thesing, Assistant to the City Manager; Don Johnson, Fire Chief; Erik Olson, Long Range Planning Manager Others Present: Andrew Parish, Senior Planner, MIG; Brendan Buckley, Senior Project Manager, Johnson Economics (both via video conferencing) 3. PLEDGE OF ALLEGIANCE Mayor Buck led the Council in the Pledge of Allegiance. 4. EXECUTIVE SESSION: The Lake Oswego City Council will meet under authority of ORS 192.660(2)(d) Conduct deliberations with persons designated to carry on labor negotiations; and (f) Consider records that are exempt by law from public inspection. Attorney Osoinach reviewed the statutory basis for entering executive session and outlined the parameters. The City Council met in executive session beginning at 3:05 p.m. and ending at 4:17 p.m. The Council reconvened in open session at 4:24 p.m. City Council Regular Meeting Minutes Page 1 of 15 April 18, 2023 5. PUBLIC COMMENT Mayor Buck reviewed the format for public comment and noted that the first speaker expected was not present. • Dan Swanson Mr.Swanson declared his opposition to placing pickleball courts near his Westlake home, located only two blocks from the proposed site. He compared the lower noise levels generated by tennis players there to those of pickleball players. Though the noise of only two pickleball players may not be problematic, the prospect of six courts and doubles teams will not be appropriate for a neighborhood with homes as close as 50 to 200 feet away. With the sport's rapid growth, he anticipates an increase in neighborhood traffic and related safety issues for children and others. Potential loss of property value is a great concern to homeowners in the area. In his view, a traffic study might project volume similar to a retail business, e.g., a CVS or Starbucks. Clearly, the Westlake zoning does not allow such uses. This is the wrong place at the wrong time. Mayor Buck noted that both a traffic study and noise study would be conducted. He advised that a special Council meeting was scheduled for May 9, specifically to consider these completed studies. People interested are invited to attend, he indicated. • Keith Greene A longtime Lake Oswego resident who has lived in his Westlake home for 29 years, Mr. Greene stated that his front door is situated about 275 feet from the current tennis courts there. On a March visit to his son's home in Scottsdale, Arizona, he had the opportunity to observe activity at a nearby pickleball complex. In three visits on varying days and times of day, he had seen maximum use of all 10 courts, with additional people waiting to play. Given the high popularity of the sport, he anticipates the same at Westlake courts; he extrapolated those six courts to have 24 players in action, with 12 to 18 waiting, from 6:00 a.m. to 10:00 p.m. every day. This would bring significant change to his neighborhood's character, including increased noise and traffic. The key difference between the Scottsdale complex and the one proposed for Westlake is that the Scottsdale complex is located nowhere near residences. Numerous communities have found that converting tennis courts in neighborhoods for pickleball is not a viable solution; the company hired to conduct the sound study here has been quoted in publications as not recommending it, he noted.West Linn has had problems similar to Lake Oswego's and is now exploring alternatives. He encouraged Council to seek a different location. A parks bond measure may be needed to fund and identify an appropriate location, perhaps in collaboration with West Linn Parks and Recreation; that could also address the cost objection. Consideration of the Westlake Park site offers only a Band-aid solution to the problem already faced at George Rogers Park. • Stan Sasaki Mr. Sasaki, a 30-year resident near Westlake Park, reported that he has observed a demographic change in the tennis players there over the last five to 10 years: a much higher percentage of Asians as compared to the 8% Census data. Sometimes the accompanying family members appear to represent multigenerational households. Following Council's January decision, he has encouraged players at the Westlake courts to provide input at neighborhood meetings; however, he has seen reluctance on the part of the Asian community to engage in these and other meetings. He attributes this both to language barriers and to cultural differences that preclude challenging City Council Regular Meeting Minutes Page 2 of 15 April 18, 2023 government authority or bringing attention to oneself. In terms of inclusion as a public policy goal, the Asian tennis community is notably underrepresented. In effect, closure of the Westlake courts has been precipitated by the change in City Council membership; first-generation immigrants, Asians and otherwise, are unlikely to be U.S. citizens, hence they cannot vote even on local matters. Other than this inclusion issue, Council's decision to convert George Rogers courts back to tennis offers the displaced Westlake tennis players that alternative. This can hardly be considered comparable to nearby courts where players may find others who speak their language or understand their culture. It fails any common-sense equity test to ask emerging-community members to travel across town to an unfamiliar neighborhood. Most of all, it asks community members to live in one neighborhood but to play in another. This is a fundamental of the racist deeds and covenants still on the books that prohibit people of certain races except as servants. In meeting with two managers involved in the City's diversity, equity, and inclusion (DEI) program, he learned, essentially, that equity and inclusion issues are not a consideration in the Westlake permit application process. While recognizing that DEI goals are aspirational, he asked that Council re-evaluate its related decisions through an inclusionary and equity lens. • Harlan Levy Mr. Levy asked Council to review printouts of three articles (Public Comment — Harlan Levy) sourced through a Facebook page ["Pickleball Sound Mitigation"]. These discussed recent controversies in three North American cities involving placement of pickleball complexes in neighborhoods. A chart from the same source was included, showing a partial list of lawsuits filed by affected neighborhoods and homeowner associations in the three cities. He noted that many similar situations can be found elsewhere. As noted in his earlier comments, he reminded Council that the issue is limited neither to Lake Oswego nor to Westlake Park neighbors who object. Rather, pickleball complexes in neighborhoods is a serious problem around the U.S. and is simply an incompatible use for neighborhood parks. Council was encouraged to seek an alternate location that is compatible, with more courts for pickleball. He thanked Council for scheduling the May 9 meeting, and promised to continue sharing information as he finds it. Mayor Buck clarified that the special Council meeting on May 9 was not a public hearing, but rather a discussion, to include input from the public. • Lisa Yu Ms. Yu noted that she has resided for many years near Westlake Park, where the back of her home faces the tennis courts. Prior to the birth of her first child about 20 years ago, she relocated her law practice to an office in her home. Working about 9:00 to 6:00 each day in her second-floor office, she faces the park, with its sights and sounds of baseball games, sports camps, soccer, and concerts. On warm summer evenings, she opens windows to improve air circulation on the second floor. She asserted that use of the pickleball courts from 7:00 a.m. to 10:00 p.m. will be devastating for her, as an attorney working from a home office. The nature of her practice entails many client meetings on Zoom, and therefore she cannot transition quickly to a new business model, where she would have to establish a new client base paying fees to support leased office space. Her home office is an extremely important priority, and sounds from the park are not disruptive. Unlike the problematic noise of pickleball play, sounds from the park are generally pleasant. She anticipates that the pickleball courts in proximity to her house will be a significant distraction for her practice. She does not know if it will be feasible to continue operating her City- registered business there. City Council Regular Meeting Minutes Page 3 of 15 April 18, 2023 • Taylor Drake Mr. Drake reported that nearly 100 people attended a public meeting of the Westlake Neighborhood Association (NA) held the prior evening; only one person, a representative of the Lake Oswego Pickleball Club, expressed support for converting the Westlake tennis courts to a six-court pickleball complex. Among many questions heard were: (1) Why would the City be pursuing this project, knowing that the acoustical fencing will not mitigate sound effectively? Based on the consulting sound engineer's website, conversion of tennis courts to pickleball is not advisable; effective mitigation will be extremely expensive. (2) Why does a progressive city like Lake Oswego not have a noise ordinance, including enforceable standards? (3) Why would the City pursue this, when numerous other cities are closing their pickleball courts, particularly those converted from tennis. (4) Why are Westlake homeowners being sacrificed in order to save the City a small amount of money? A proper facility would solve the problem at a cost of $1 million, but Westlake homeowners' net loss will be many multiples of that amount. This lacks fairness and equity. (5) Why is the obvious lack of adequate parking not recognized? The existing Westlake parking lot overflows onto Bunick Drive with one soccer or baseball game, and adding the 30 to 50 cars associated with pickleball play will be a disaster. (6) Why is it not anticipated that the added demand for parking will result in significantly more vehicles parked on both sides of Bunick? At such times, the street is barely passable for a single vehicle, and drivers must be very cautious, with children and other pedestrians crossing there. (7)Why is the City's aquatics center not being configured to fully meet pickleball demand? As found at the Westlake NA meeting, when the studies are available for discussion at the May 9 meeting, three points should become equally obvious to those at this Council meeting: The square peg does not fit the round hole; the problems at George Rogers Park will only be amplified at Westlake; moving this problem is not solving it. 6. CONSENT AGENDA 6.1 Approval of Meeting Minutes January 21, 2023, Draft Special Meeting Minutes February 7, 2023, Draft Regular Meeting Minutes 6.2 Resolution 23-15, A Resolution of the City Council of the City of Lake Oswego Authorizing the City Manager to Execute an Amendment to the Intergovernmental Grant Agreement with the Clackamas Health, Housing, and Human Services Department's Social Services Division for Fiscal Year 2022-2023. END CONSENT AGENDA Councilor Wendland moved to adopt the Consent Agenda. Councilor Rapf seconded the motion. A voice vote was held, and the motion passed,with Mayor Buck and Councilors Wendland, Mboup, Rapf, Afghan, and Corrigan voting `aye'. (6-0) 7. ITEMS REMOVED FROM CONSENT AGENDA No items were removed from the Consent Agenda. City Council Regular Meeting Minutes Page 4 of 15 April 18, 2023 8. COUNCIL BUSINESS 8.1 Ordinance 2925, An Ordinance Annexing to the City of Lake Oswego One Parcel, Consisting of 0.98 Acres at 13237 Knaus Road; Declaring City of Lake Oswego Zoning Pursuant to LOC 50.01.004.5(a-c); and Removing the Territory from Certain Districts (AN 23-0003). Mayor Buck noted that Councilors Corrigan and Afghan had been absent at the related public hearing, and asked Ms. Osoinach to clarify the matter. Directing her remarks only to Councilors Afghan and Corrigan, she advised that they might participate or vote on either this ordinance or on Ordinance 2921 if they wished. However, they would need to clarify for the record that they had reviewed all exhibits and videos attendant to those items, and then make declarations to affirm their reviews, as well as declarations of any ex parte contacts, bias or conflict of interest, i.e., as if they had participated in the original hearing. Alternatively, they could pass if they did not wish to vote on the two ordinances. Councilor Afghan stated that he had reviewed all materials, including video of the pertinent Council meeting. He was satisfied with the decisions made by City Council and wished to pass on participating in the voting. Councilor Corrigan expressed her satisfaction with Council's decision and stated that she would pass, as well. Councilor Wendland moved to enact Ordinance 2925. Councilor Mboup seconded the motion. A voice vote was held, and the motion passed,with Mayor Buck and Councilors Wendland, Mboup, and Rapf voting 'aye' and Councilors Afghan and Corrigan abstaining (4-0-2). 8.2 Ordinance 2921, An Ordinance of the City Council of the City of Lake Oswego Amending the Lake Oswego Comprehensive Plan Map and Zoning Map to Change the Designation for a 0.79 Acre Parcel from R-5, Medium Density Residential to R-7.5, Low Density Residential at 1710 South Shore Blvd. (21 E10CC05000, 21 E10CC05100, 21 E10CC05200 and 21 E10CC05300); and Adopting Findings (LU 22- 0058). Councilor Rapf moved to adopt Ordinance 2921. Councilor Mboup seconded the motion. A voice vote was held, and the motion passed,with Mayor Buck and Councilors Wendland, Mboup, and Rapf voting 'aye' and Councilors Afghan and Corrigan abstaining (4-0-2). 8.3 2023 Legislative Session Update Ms. Thesing updated Council on the 2023 session of the Oregon State Legislature, highlighting Lake Oswego's key initiatives, as identified by Council in relation to legislative priorities (Council Report, Attachment 1, p 3-4). In tracking related bills, staff was gratified at the number of those supporting City priorities that have now been assigned for a second committee review; this may involve more in-depth review of budgetary considerations or rule-making. She discussed the committees' responsibilities to meet firm deadlines, which places pressure on local governments to be heard on important issues, such as the 1-205 tolling project. Especially with the housing- production bill, there is a need for public hearings and work sessions to enable better feedback and involvement with legislative committees. Specific update topics for Council at this time are: City Council Regular Meeting Minutes Page 5 of 15 April 18, 2023 (1) tolling, addressing status of the City's related request; (2) review of housing bills and an April 14 letter advocating for greater partnership with local governments through certain bill refinements; in support of production goal-setting, Lake Oswego's success with increased housing (over 1,000 units produced in the last five years) should be shared and showcased. With Council's approval, the letter could provide the Mayor a greater voice with some partners at the state level, e.g., Vice Chair Mark Gamba of the House Committee on Housing and Homelessness; and (3) review of the City's advocacy efforts for sustainability, as led by Sustainability Program Manager Amanda Watson. Recognizing the range of potential tolling impacts, staff had also sent the Mayor's letter to leaders across Clackamas County and in Marion County. As tolling was not a 2023 legislative priority, this is essentially a grassroots effort advocating for more public comment and a public hearing to bring forward concerns about tolling. Also, public comment on the environmental analysis, presented to Council earlier by the Oregon Department of Transportation, is due April 21. In alignment with Clackamas County staff, the City's report of public comment is being prepared by City Engineer Erica Rooney and Senior Associate Engineer Will Farley. Mayor Buck affirmed the tolling update, adding that Lake Oswego's Clackamas County representatives in the Legislature are very concerned about the lack of response seen from their colleagues. He participated in a meeting in Salem with a Joint Committee on Transportation leader who reported on the status of proposed toll-related bills; this was followed soon after by conflicting information. City and County staff, however, have coordinated very effectively on this high City priority. Moving to the package of housing bills, Ms. Thesing advised that most had either been passed or moved on to assigned second committees. Being followed most closely by staff are HB 3414 (concerning variances) and HB 1051 (potential expansion of the Urban Growth Boundary(UGB)). Ongoing comment from Ms. Bennett and City Planning staff have supported efforts to improve the bills. Together with coordination help from the League of Oregon Cities, the local governments are working hard to explain and reinforce enactment of the bills. Increased housing production being a priority, staff has noted that Lake Oswego residents do not have a high level of awareness of methods that have afforded over 1,000 new housing units in the past five years. The April 14 letter is a means of conveying that achievement. With Council's endorsement today, staff intends to utilize the Mayor's voice at the State, where advocacy for the cities can be heightened. The City will rely on existing strong relationships;for example, Mark Gamba is Vice Chair of the House Committee on Housing and Homelessness, as well as a past Milwaukie City Council member. Councilor Wendland touted the letter's excellence, including its comprehensive list of projects that have increased the housing inventory over the past five to10 years. In his view, the City did it the right way by targeting a broad scope of audiences and their needs. Mayor Buck concurred. Ms. Thesing recognized the roles of Planning team members and Ms. Bennett, who identified all the related code changes made. Thirdly, Ms. Thesing highlighted the work of Sustainability Program Manager Amanda Watson in tracking legislation related to cities' climate-action goals. Specifically, these are ones that would allow cities to advance their own goals ahead of State regulations. Cities hope these bills would allow them to move forward voluntarily with certain opportunities, including additional grant programs funding. Staff would continue to keep Council updated via email. In closing, Ms. Thesing reminded Council of the Legislative Town Hall scheduled for April 23, 1:00-2:00 p.m. in the Council Chamber. State Senate President Rob Wagner, Representative City Council Regular Meeting Minutes Page 6 of 15 April 18, 2023 Daniel Nguyen, and Representative Jules Walters would join Mayor Buck in addressing top issues across the region. 9. STUDY SESSIONS 9.1 Emergency Medical Services Update Chief Johnson advised that the study session would be based on 2023 Council Goals, continuing his presentation as heard by Council in February. Today's topic would address the City's Emergency Medical Services (EMS) system, as discussed in the Council Report. With accompanying slides (Presentation - Emergency Medical Services Update), he noted that operation of these services in Oregon are rooted in the Oregon Revised Statutes (ORS), with an essential focus on ambulance service and equitable delivery of emergency medical service. Four key EMS components statewide were outlined, with Chief Johnson citing data at both the state level and for the ambulance service area pertinent to Lake Oswego. (1)Ambulance Service Areas. These are defined service areas throughout the state, serviced by specified providers. Clackamas County, encompassing about 244 square miles, is served by American Medical Response (AMR). They are contractually required to deliver a paramedic on scene within seven minutes and 59 seconds of the call 90% of the time. With about 70% of Lake Oswego calls being for emergency medical service, this city and others provide paramedic response under AMR subcontracts. Related State compliance requirements were outlined. (2) Paramedic. The City currently has 46 paramedics on staff, along with three emergency medical technicians (EMTs). Paramedics complete a training requirement of 14 to 20 months, plus a field training program; they also complete a minimum of 48 hours' recertification annually, as required by the State. Their skillset was outlined, including intubation of an airway, performing a tracheotomy, and administering intravenous medication. In addition, new technologies are employed through recertification learning, typically about 70 hours a year. (3) Oregon EMT. The less-rigorous standards for EMT certification (Presentation, p 4/10) were outlined, including: a four-to-six-month training period, lesser recertification requirements, limited assessment and treatment of patients, administration only of the patient's personal medications. For some years, Lake Oswego has set a higher standard in requiring the paramedic certification within two years. In the past several years, Fire Department leaders identified that the paramedic qualification was a barrier to diversity. Accordingly, for about four years, EMTs have been hired with the understanding that they will have two years to achieve paramedic certification. This has resulted in a pool of recruits that better reflects the community's diversity. (4) Ambulance Licensing. As required of all Clackamas County dispatch centers, the City's team achieved dispatch accreditation equating to a "gold standard" of care. This was achieved within about one year, through the efforts of both former and current department leadership. It offers patients the best opportunity to survive, from time of initial call to arrival at the hospital. Discussing additional slides, Chief Johnson differentiated Basic Life Support(BLS) (p 6/10)from Advanced Life Support (ALS) (p 7/10). Of approximately 3,500 medical calls received annually, about 20% are determined to be BLS, i.e., within the EMT scope, which excludes cardiac monitoring. About 80% are deemed ALS, where a cardiac monitor may be placed by a paramedic. Among advances over the past couple of years is a move to similar protocols by a consortium of Tualatin Valley, Lake Oswego, and Clackamas County operations. Standardized equipment across departments has also proven beneficial. For ALS, he reiterated involvement of paramedic- level skills, e.g., diagnosis with use of cardiac monitoring, complex splinting. The department annually receives 15 to 20 calls involving cardiac arrest, of which 25-plus% to 50% will be saved. City Council Regular Meeting Minutes Page 7 of 15 April 18, 2023 An example of such a success was described, where City police and fire staff worked collaboratively. Over an extended period, paramedics administered 28 medications; the patient was able to walk out of the hospital three days later. In accordance with ORS, medical direction for the City's applicable ambulance service area is provided by Dr. Ritu Sahni. He provides direction for BLS and ALS, as well as for the Lake Oswego Communications Center (LOCOM) and Police. Operating under Dr. Sahni's medical license, Fire staff obtains medications. Along with two other doctors in the county, he also develops protocols, i.e., training and delivery, provided for paramedics on a regular basis. Quality improvement is a priority. Dr. Sahni or another doctor conducts annual skills evaluation on all applicable staff, including LOCOM and Police, to ensure ongoing improvement. Dispatch being a key element, about 25% of the 3,500 annual incoming calls are reviewed subsequently; of these, a 95% accuracy level must be maintained to ensure dispatch center accreditation. With Dr. Sahni's and EMC staff participation, a step-by-step review of calls is ongoing. Ultimately, communication with the applicable firefighters enables them to know how effectively they did their job. The department will have a record that encompasses times of dispatch and arrival at the scene, through administration of medications and caretaking enroute to the hospital. Transmission of these reports to the hospital ensures optimum patient care upon arrival. Moving to precepts of the EMS Strategic Plan, Chief Johnson noted that about four years earlier, he and several Clackamas County colleagues had been reviewing the ambulance service area criteria. In doing so, they found a shared concern: the primary focus on meeting the seven-minute and 59-second time standard throughout the county. However, patient outcomes over a 20-year period had not necessarily been examined. A quality-of-service assessment was therefore identified as an important need. This is now reflected in the County's strategic plan, with less focus on time standards and emphasis on key performance indicators that measure patient health. Integration of the Medical Priority Dispatch System (MPDS), the triage system used by LOCOM, has presented an opportunity to prioritize calls for higher-level work by AMR. A large majority of calls therefore remain available for the City's responders to handle. The result is more effective management of overall demand on the system. AMR, he noted, has been an excellent partner. In addition to Clackamas and Multnomah counties, they were recently awarded the ambulance service area agreement for Washington County. Through an extensive Cambridge Consulting study beginning early in 2022, Clackamas County developed a tiered-response approach; among other benefits, this could distinguish BLS from ALS calls. It would reserve the dispatch of paramedics to calls where their skills are most needed. In their report, Cambridge Consulting offered 21 recommendations for the County, of which several are key for Lake Oswego. (1)A virtual consolidation of the county's dispatch centers (C-COM serving many areas in the county, LOCOM, and AMR's own dispatch center). Now fully integrated, all can dispatch resources on behalf of one another. (2)A pilot study for some transport services by the City itself. Though AMR has not agreed to forego that element of the service it currently provides, they have agreed to release about 40 hours of transport a week, designated only for transport. This will enable Lake Oswego to plan and test the viability of operating one ambulance that responds only within this community. About a year is anticipated for the study. (3) Analyzing the performance metrics. This is to ensure that the right elements are being measured, with patient outcomes as the basis, rather than meeting a time standard. With reduced use of lights and sirens for calls related to BLS, the department anticipates about 20% less danger to the community from that travel. Mayor Buck expressed sincere appreciation to the Chief for the department's responsiveness to community needs. That has been achieved through his collaborative work with the City Council Regular Meeting Minutes Page 8 of 15 April 18, 2023 firefighter/paramedics and management team, making Lake Oswego a safer place. He inquired about AMR staffing of ambulances, and the Chief indicated that it typically consists of an EMT and a paramedic. Based on the nature of the call, e.g., cardiac arrest, transport may be handled by a firefighter(s), while two or three paramedics work on life-preserving measures for the patient. Councilor Rapf commended Chief Johnson for his continued forward-thinking approach in leading the Fire Department. Considering the extent of news about opioids such as Fentanyl and overdoses, he asked about the Department's response. About seven years earlier, an opioid- reversal drug was placed in the hands of every police officer, and the firefighters have carried it much longer. In order to preserve a life, the Department goal is to reach the scene and administer the anti-opioid drug as quickly as possible. In some other cities, that is not the case. Lake Oswego's behavioral health specialist now contacts the patient afterward, which allows the City to deal with the aftermath much more effectively. There is still room for growth and for an expanded role with the County. Councilor Wendland applauded the Chief's efforts and direction in transforming the Department effectively. He asked about opportunities expected in the next five to 10 years, so that current and future City Councils can be considering ways to support them. With emergency medical calls being 70% of the total, emergency medicine is an important focus, Chief Johnson emphasized. While fire response will remain an ongoing priority, the Department must ensure that it continues to evolve as a group by taking advantage of their leadership roles within the County. He highlighted the County's excellent EMS system, with its collaboration and flow of ideas from all levels. This, he reiterated, is expected to reduce the number of lights-and-siren responses. Other initiatives should be explored, such as: (1) a proactive program to do follow-up checking on vulnerable residents who may recently have been released from a hospital or (2) mobile integrated health to enable forward-thinking approaches. Community paramedicine has a place here. These and other measures would help Lake Oswegans to be safer, while reducing stress on the entire system, as opposed to simply responding to a fall. In response to questions from Councilor Wendland, the Chief advised how the proposed ambulance test limited to Lake Oswego calls could work. He went on to clarify the prospect, sometime far into the future, of the City dealing with the ambulances, instead of AMR. Operational efficiencies could be realized with the ambulances dispatched where needed, as with other Department fire equipment, etc. Councilor Mboup requested clarification of the staffing.With an ambulance, the Chief confirmed that one paramedic was required, accompanied either by an EMT or by one or more other paramedics. All Department paramedics would concurrently have EMT qualifications, as well. Having personally observed two call responses within the past couple of years, Councilor Mboup expressed his very positive impressions of the team's skills and effectiveness. He also asked about the extent of drug use and overdoses in the community. The problem certainly is present, though perhaps not as prevalent as in some other communities, the Chief noted. Overdose calls are recorded in a database that helps to identify "hot spot" areas in the County, where resources may be focused. While recognizing this as a larger societal problem that must be solved, he sees the Department's role as responding quickly and saving a life. He expressed 100% confidence in every paramedic on the team. In addition, he has opined that this department comprises the kindest group of people he has worked in over 40 years' experience. Mayor Buck asked if Fire Department staff's perceptions of their role had shifted over time. Perhaps they had considered themselves first to be firefighters, and later, as firefighters who also provided some medical support. Has it now transitioned to seeing themselves as paramedics who also are firefighters? The Chief opined that their perception of the role is transitioning to a City Council Regular Meeting Minutes Page 9 of 15 April 18, 2023 paramedic who fights fire. With decreased numbers of fires, they recognize the paramedic work as the largest portion of the job now, while readiness on the fire aspects must still be maintained. Mayor Buck thanked the Chief for his focus on diversifying the Department workforce by implementing revised hiring practices. He asked about any financial assistance that the City provides toward obtaining the paramedic certification. In a couple of instances over the past 18 months, education assistance has been provided; this also was offered in earlier years, the Chief indicated. If the schooling conflicts with work hours at the Department, staffing may need to be backfilled. The schooling is provided in Clackamas County, which allows them to return to the station at night, with overtime paid as necessary. The program is fulltime for 14 to 18 months, with payment of regular wage throughout.While disruptive to their lives, he is convinced of the benefits to the City. Mayor Buck inquired about any training for Department responders to help identify signs of elder abuse. All receive such training on an annual basis, the Chief advised. The Department recently became the first in Oregon to implement a strangulation protocol, he added, noting the strong predictive value of a strangulation as related to death rate. They have training in related aspects of emergencies, integrated with Police. Councilor Wendland noted the additional training on water rescue because of the community's setting among bodies of water. He also asked about the Department's plans for dealing with anticipated climate change effects, such as wildfires. Responding first on water rescue, the Chief described the Fire Department's boat and dive teams, both of which can be deployed effectively in rescue calls when dispatched for water emergencies in rivers or lakes. Those rescues, typically not on Oswego Lake, total about 55 per year. Next, he highlighted the number of responses made to wildfires and the apparatus used in those calls. There also may be several bodies recovered in a season involving the dive team. As a source of pride, he reported that 100% of firefighters have completed wildfire training. In about six deployments in 2022, City firefighters served in areas ranging from northern California to locations across the state of Oregon. In terms of prevention, wildland inspections will soon resume; these are expected to be a long-term proposition for the team. Mayor Buck expressed Council's support for the Chief and Department in advancing community safety. 9.2 Housing Needs Analysis Update and Housing Production Strategy(House Bill 2003) PP 22-0005 Mr. Olson introduced Mr. Parish and Mr. Buckley, members of the City's consultant team on this topic. Both had contributed to the draft documents for the Housing Needs Analysis work that will be the primary focus of this study session: the Housing Capacity Analysis and the Buildable Lands Inventory. These drafts would reflect input from other parties, and Council would be asked today to provide additional input. After subsequent revisions to the drafts, these would be brought forward to a public hearing, to be followed by adoption into the City's Comprehensive Plan (Council Report— Executive Summary (p 2/63). Referring to accompanying slides (Presentation Housing Needs Analysis and Housing Production Strategy), he outlined the presentation format and then reviewed public engagement activities in recent weeks. Most recently, an online open house had been implemented; Council members were encouraged to communicate the related access information as necessary. Mr. Parish explained his role in preparing the reports with Mr. Olson. As required by the State (Presentation, p 6/32), cities prepare a periodic analysis of their current and future housing needs; they then determine the available land supply, both within city limits and certain planning boundaries. Based on comparison of both, deficiencies and other issues are identified, as well as potential strategies to address them. The team anticipates having a full draft of the residential City Council Regular Meeting Minutes Page 10 of 15 April 18, 2023 needs analysis by early summer. They will then move on to more precise analysis of the realities "on the ground" and strategies to address the findings in the earlier analytical work (Presentation, p 7/32). Mr. Buckley advised that he would review the demand side of this housing analysis over the next 20 years and how a growth forecast was determined (Presentation, p 9/32). Considerable Census data from 2020 was the most important source contributing to the Housing Needs Analysis. Among many other sources, the key in this population forecast is a survey encompassing all cities within Metro, including Lake Oswego. In accordance with State statute, that provides the projected population 20 years from today. Given the challenges, the team is working hard to project the Metro numbers and housing types that will be seen over the next 20 years. As to methodology, likely measures could include current inventory and needs, among various other factors (Presentation, p 10/32). However, today's housing stock, should not be presumed to meet the needs applicable over that time; affordability and housing choice may also factor in. After the 20- year housing need is established, it is distributed in terms of tenure, unit type, and income growth (Presentation, p 11-12/32). He described the basis of the forecast data found in the current draft: 400 new residents (about 1% growth) and 1,817 households (about 10%). This is attributed to their forecast of declining average household size, from 2.4 to 2.16 persons. Ms. Bennett raised concerns about Metro's allocation among the 25 cities and unincorporated areas in the regional population forecast. She questioned how those allocations were determined, particularly because Lake Oswego's forecast appeared to be understated. How was the City to develop a meaningful Housing Needs Analysis, based on such data? In ensuing discussion, she recognized mixed effects:fewer housing units to be needed, but the continued crisis of insufficient housing available at various income levels. Mr. Buckley acknowledged the very small population growth, and described contributing factors, e.g., the fact that it dates from around 2018. He understands that Metro will be generating a broader-level population forecast for the region; reallocation among the cities may follow. Whatever is prescribed through the State-mandated process,jurisdictions are required to use it. He agreed that the City's increase is very modest, but that it was not binding on the community in any way. Though in one sense a lower growth forecast may afford the City more flexibility, he and his colleagues have advised examination of all planning and policy work for housing, regardless of this forecast. Going through that process will provide an opportunity to review all other housing goals and policies, and will enable the community to consider how it wishes to meet its goals. At the Mayor's request, Mr. Buckley and staff agreed to provide Council with population-increase data for all Metro jurisdictions. Next, he discussed a series of slides (Presentation, p 12-17/32) to illustrate various factors impacting the higher number of households than population growth expected over the 20-year period: income growth, commuting trends, current housing conditions, 20-year housing forecast. This data shows that the City needs to meet both the needs of some current residents who are paying over 30% of their income for housing, and is in addition to housing needs of the new households. Councilor Rapf inquired about the source of the household-segment and income- level data, which appear contradictory to reality. Mr. Buckley clarified that the definitions are set county-wide each year by the State, based on the county's median income estimate. The average household size is based on the actual Clackamas County median of four persons, as compared to the 2.4 of Lake Oswego. These numbers did not make sense for this city nor any other city in Oregon, Councilor Rapf contended. Referencing a final slide (Presentation, p 18/32), Mr. Buckley observed that the private real estate market would continue to meet the housing needs of some income groups, such as new single-family homes for higher Middle Income to Upper Income households. It would be the lower-income households that may need other housing types, City Council Regular Meeting Minutes Page 11 of 15 April 18, 2023 perhaps with some public or nonprofit subsidy assistance that makes the units affordable. Going into the next stage of the process, it is important to note that some of those segments will require strategizing and extra help not needed by others. Thanking the team, Councilor Mboup expressed concerns about the questionable population forecast and its effects. Ms. Bennett noted that the Portland State University estimate had been low as compared to Census data, hence a possible factor in the Metro forecast. Council could, however, find that the lower forecast offers more flexibility in deciding how much population can be absorbed and in what housing types; this will allow more creativity in designing solutions that are appropriate for the community. Councilor Mboup recognized the population trend as positive and the report as a useful tool for planning work. Mayor Buck inquired about other ways the population forecast is used, and Ms. Bennett advised that it is also used in planning related to water, sewer, Stormwater Master Plan, and Parks Master Plan. The lower forecast concerns her in terms of sizing infrastructure properly. A similar problem has been faced in other cities, e.g., Wilsonville, where their actual growth experience has far exceeded the regional forecast. Such communities will be helpful partners in addressing this, she opined. Regarding the current shortage of low-income housing being faced in Lake Oswego, her experience has been that Metro is usually very accurate in forecasting at the regional level; it is at neighborhood and jurisdictional levels that more variables are found. It will be important for the City to consult with Metro planners for guidance on how to address that. Also, staff must work with the State to ensure that City planning numbers are realistic for aspects such as water, transportation or Parks Master Plan. Councilor Wendland raised two concerns: (1) The forecast of 2018 preceded the significant population losses seen in Portland and Oregon as a whole; the 2018 data is likely not a reliable basis for planning now. (2) The extent of households deemed eligible for public assistance appears to include all in the Middle Income category. Mr. Olson reviewed the applicable slide (p 17/32), indicating that this segment would not necessarily require a "subsidy" as such. Instead, their needs might be met with alternate housing types, e.g., townhouses. He next addressed Mayor Buck's question about how the full ownership/rental breakdown was set: it was based on the breakdown of income groups and estimated housing-cost pressures. That suggests there might be more renters if more appropriate housing was available or, conversely, that there might be a higher ownership rate with more entry-level buying opportunities, etc. Councilor Wendland expressed a further concern about home-ownership data: Are the many seniors now with paid-off homes but reduced income being considered? Mr. Olson acknowledged that, with today's high market prices for housing, there are many people who may have a lesser or paid-off mortgage; in fact, he believes this segment may comprise a majority of the Lake Oswego housing deemed "affordable". Mayor Buck requested clarification of Figure 5.2 (Council Report, p 14/63), specifically the cumulative 21.7% shown for full-ownership housing in the three lowest income categories. After brief discussion, Mr. Buckley advised that the findings indicate a need for more affordable housing, especially at lower income levels. Considering cost of living, the need may be more acute in Lake Oswego than in other parts of the Metro area. Mr. Parish next addressed the land base of Lake Oswego and how it might be used to address the community's housing need. Reviewing the four steps involved (Presentation, p 21/32), he discussed key considerations for the City. Step 1: Identify Residential Land (p 22-24). Land being reviewed includes portions outside the city limits but within the UGB as they are considered part of the City's planning purview. Prospective areas for residential use may include those with either a residential or mixed-use Comprehensive Plan designation. Areas with some employment or civic uses may also exclude residential development. Lands owned by HOAs or the City are typically excluded, with certain exceptions, as are those considered strictly commercial or City Council Regular Meeting Minutes Page 12 of 15 April 18, 2023 industrial. Step 2: Development Constraints (p 25/32). No development is allowed in areas with a slope exceeding 25%, and areas in a flood plain are generally presumed not developable. Certain City conservation areas have been reviewed with staff to identify portions that would be developable, also shown on this map. For purposes of the analysis, lots with less than $20,000 of improvement value are considered vacant. Lots categorized as partially vacant are intended to represent large lots, perhaps including some acreage, that might be expected to provide more housing; this might be achieved with sub-division or flag lots. Since Lake Oswego has that kind of development in various areas, the team developed assumptions about the potential number of new single-family lots. Based on underlying zoning, potential lot sizes and home values were calculated. A map shows the outcome of the calculations (p 27/32), indicating partially-vacant lots of larger size where future infill could be feasible; developed lots and a few vacant lots are also seen. To this point, the team has encountered responses from Planning Commission members and other forum participants expressing doubt about viability of infill in some areas highlighted as such. Step 4: Net Buildable Area (p 28/32). As the team proceeds with next steps, the net buildable area will be projected. Set-asides of 20%for new streets and infrastructure will be made, and zoning considerations have been applied in estimating the likely number of units in given zones. Initial results, (p 29-30/32) considering only raw land, show about 1,400 units of capacity. A next step will be to estimate and compare the number of multi-family dwellings, single-family dwellings, and townhomes. A couple of other categories are being studied, as well. Additional capacity is projected with the remaining 70 Marylhurst units, additional Middle Housing capacity estimated at 410 units, and redevelopment on multi-family and mixed-use land to be determined. In all, total unit capacity is currently estimated at 1,876 units. The opportunity for redevelopment in the latter category was highlighted, including some possible office properties that might be developed for future housing, such as unused parking lots. These lower-value lots may be more likely than others to redevelop with multi-family units, subject to zoning. Additional considerations such as income stratification and housing types remain to remain to be studied, he concluded. Councilor Mboup inquired about sensitive lands in the context of constraints on development. He expressed his conviction that the City would always be a good steward of those lands. Councilor Wendland conveyed doubt about development possibilities for the City, despite the infill and conversions of existing houses that are seen. Only small lots appear available, other than in Foothills. Additionally, areas such as Birdshill would not accommodate a $50 million project. His believes various builders will approach individual property owners with offers to buy. The issue will become: How can the City legislate or implement policy to require that? Reminding Council members of the five additional types of housing now allowed throughout the city, Mr. Olson recognized the uncertainty about the location and market for middle housing. In relation to capacity, the zoning theoretically could accommodate significantly more units throughout all single-family neighborhoods. The State has offered jurisdictions many different approaches to consider, depending on their goals. Some options are focused on specific affordable-housing incentives, while others may offer options for locations on the urban/rural fringe, for example. In the case of Lake Oswego, there is clearly no large site available for development of affordable housing. Creative approaches will be needed, and numerous ones can help to reach the goals. Once the discussion of housing-production strategies begins, it will be apparent that certain incentives can be promoted to set desired targets. Middle housing outcomes, he reiterated, are difficult to predict, but there are many effective ways to achieve the goals. City Council Regular Meeting Minutes Page 13 of 15 April 18, 2023 Mayor Buck pointed out a map that shows a large amount of unidentified capacity. He suggested the need to identify where the market will move in terms of middle housing, for purposes of planning infrastructure and capacity expansion. Other areas, such as those unlikely to redevelop soon, should not be a focus for achieving increased density. Instead, areas should be identified where there is new middle housing currently being added; examples may be the downtown area and the town centers, and neighborhoods surrounding the Lake Grove town center. Once identified, middle housing can be encouraged or planned for such areas. They can also be considered in conjunction with other Comprehensive Plan elements and sustainability goals. Ms. Bennett reiterated her view that the report represents good news. With a difference of only 100 units between forecast demand and forecast need, flexibility can be allowed in the choice of tools employed. Radical change should not be required to reach the goal. Despite the small growth projection, Mayor Buck noted that Council's goal is to plan for growth and change, and a map that identifies where it is desired will help to find best locations for services and infrastructure. Mr. Olson suggested this may be explored more deeply as the work proceeds. With capacity determined, middle housing and optimum locations can be identified. Councilor Wendland recognized the challenges of finding private land for redevelopment, but does not believe it is the role of City Council members to seek out potential sellers or donors. It is unfortunate that the community is largely built out, but the situation is better than being required to build a larger number of units. Councilor Afghan observed that, as the Planning Commission liaison, he had reviewed the full report. He commended Mr. Olson and his team, MIG, and all Commissioners for their great success in condensing the voluminous report into a format that enables Council discussion and understanding. He concurs with the City Manager that the report conveys good news in that the City will not be unduly constrained. The conclusion, he predicts, will call for both single-and multi- family dwellings. The single-family development will continue because it makes financial sense for developers. The question will be how to foster multi-family middle/affordable housing development with the general contractors and developers. To succeed in this, the City must create an incentive(s) for them to do so. Multi-million-dollar houses are coming in, but what strategies can effectively bring affordable and middle housing to the community? Much of this will come in the next phase of the process, Mayor Buck indicated. Councilor Afghan concurred. Much as Council may challenge the data leading to the conclusion, he considers it clear that the two types of housing are needed in the city. Mr. Olson reminded Council that House Bill 2003 not only required cities to produce the Housing Needs Analysis and Housing Production Strategy reports, but established a six-year cycle in which cities revisit these documents. If some data does not appear satisfactory at that point, there may be an opportunity to make corrections. Additionally, there is some potential for a different approach to making projections, perhaps sourced more from the State. An alternative to the Metro projection would be welcome in six years, he added. Mayor Buck expressed special appreciation to the Housing Production Strategy Task Force for previewing the foregoing presentation and offering feedback. Suggestions included (1) providing a better understanding of the demographics of the commuter workforce and (2) incorporating community racial demographics into the Housing Needs Analysis, so as to better understand the impact housing policy choices will have on efforts to create a more racially-diverse community. Mr. Olson added that the Task Force also wished to learn more about some of the unincorporated areas in terms of their residents. This would enable better matching with the Buildable Lands Inventory, which encompasses the entire UGB area. Finally, Mayor Buck asked how population City Council Regular Meeting Minutes Page 14 of 15 April 18, 2023 growth was defined for the city, i.e., if it was limited to population gained through annexations. Mr. Buckley advised that this has been a subject of discussion with Metro about clarifying elements of their forecasts. They are awaiting a response from Metro. Ms. Bennett acknowledged that it is a confusing matter, but that it does help to understand that the source is the urban growth report of 2018. The study session ended with the Mayor's thanks to Mr. Parish and Mr. Buckley for their participation. 10. INFORMATION FROM COUNCIL Mayor Buck provided updates on his attendance at recent activities of several groups: (1)Sustainability Advisory Board meeting on April 17: Discussion of progress and plans regarding gas-powered lawn equipment usage and the need to provide that information to City Council. (2)Youth Leadership Council (YLC) participation in the Sustainability Resource Fair over April 15 weekend. YLC members offered a bingo activity for young children and a contest promoting sustainability. Recognition of Lake Oswego Sustainability Network for coordinating the Fair. (3) Lake Oswego-Tigard Water Partnership meeting on April 17. With Councilor Corrigan, learned about EPA's nationwide lead and copper testing program. Findings indicating no lead pipes in Lake Oswego and Tigard. Several related background items confirming high water quality. (4) Clackamas County Coordinating Committee meeting. Discussion of Statewide Transportation Improvement Program and four-year cycle for State transportation funding. Lake Oswego listed as one of local governments to receive project funding (for traffic lights on Highway 43). 11. REPORTS OF OFFICERS No reports were provided. 12. ADJOURNMENT Mayor Buck adjourned the meeting at 7:05 p.m. Respectfully submitted, Kari Linder, City Recorder Approved by the City Council on June 6, 2023. Joseph Buck, Mayor City Council Regular Meeting Minutes Page 15 of 15 April 18, 2023