Ordinance 1924COUNCIL BILL No. 888
ORDINANCE No. 1924
AN ORDINANCE AMENDING THE COMPREHENSIVE PLAN MAP AND RECLASSIFYING CERTAIN
PROPERTY LOCATED ADJACENT TO AND ON THE NORTH EAST CORNER OF STATE HIGHWAY
214 AND 99E FROM IC (INDUSTRIAL COMMERCIAL) AND IL (LIGHT INDUSTRIAL) TO
CG (COMMERCIAL GENERAL) AND DECLARING AN EMERGENCY.
WHEREAS, the Woodburn Comprehensive Plan and Map pursuant to said
ordinance has heretofore established certain land uses within the City of
Woodburn's Urban Growth Boundary, and
WHEREAS, the Woodburn City Council has reviewed the record in Com-
prehensive Plan and Zone Change Case No. 85-01 and considered the public
testimony previously presented; now, therefore
THE CITY OF WOODBURN ORDAINS AS FOLLOWS:
Section 1. The involved real property designated as Lot Five, is
described by the map attached to this ordinance and labeled Exhibit "A".
Section 2. The Comprehensive Plan designation of said real pro-
perty is hereby amended from its present Industrial to a Commercial design-
ation.
Section 3. The Zoning designation of said real property is hereby
reclassified from its present IC (Industrial Commercial) and IL (Light
Industrial) to CG (Commercial General).
Section 4. The Comprehensive Plan and Zone reclassifications of said
real property are based upon the staff report related to this property dated
July 10, 1985 and specifically the findings and conclusions contained in the
staff report which is attached thereto as Exhibit "B" and by this reference
incorporated herein.
Section 5. The Comprehensive Plan Zoning amendments are subject to the
conditions as contained in Exhibit "B", attached hereto and incorporated herein,
that the Council finds reasonable.
Page 1 - COUNCIL BILL No. 888
ORDINANCE No. 1924
Section 6. The City Administrator or his designee is hereby directed
to correct the Woodburn Comprehensive Plan and Zoning Map to the classification
herein made.
Section 7. This ordinance being necessary for the immediate preser-
vation of the public peace, health, and safety, an emergency is declared to
exist and this ordinance shall take effect immediately upon passage by the
City Council and approval by the Mayor.
Approved as to form: y
City Attorney Date
Passed by City Council
Submitted to the Mayor
Approved by the Mayor
Filed in the Office of the Recorder
ATTEST:'
ARNE 0..,B RRI'S, Recorder
City of Woodburn, Oregon
Page 2 - COUNCIL BILL No. 888
ORDINANCE'S No. 1924
APPROVED: `
WILLIAM COSTINE, MAYOR
Auqust 12, 1985
Auqust 14, 1985
August 14, 1985
August 14, 1985
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EXHIBIT "A" --
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EXHIBIT "B"
COMPREHENSIVE PLAN PROPOSED AMENDMENTS
TABLE OF CONTENTS
BACKGROUND INFORMATION
Introduction
I Existing Plan Goals & Policies
II Comprehensive Plan Goals & Policies
III History
IV Recommended Alternative Map Amendments
V Applicable State Land Use Goals & Policies
VI Amended Comprehensive Plan Goals & Policies
RESOURCE INFORMATION
I
Traffic Circulation & Access Controls
II
Water, Sewer & Storm Drainage
III
Land Use Inventories
CHAPTER III
I
Findings & Conclusions
CHAPTER IV
Attachment
I
IC Industrial Commercial District
Attachment
II
Conclusions of Law (Proposed Theater Site)
Attachment
III
Notice of Public Hearing
Attachment
IV
Letters of Public Response
Attachment
V
Amended IC Industrial Commercial District
Map
I
Comprehensive Plan Map Land Use Designations
Map
II
Zoning Districts
Map
III
Water, Sewer, Storm Drain
Map
IV
Comprehensive Plan Map Amendments
Map
V
Zoning District Amendments
PAGE(S)
r
CHAPTER 33
IC INDUSTRIAL COMMERCIAL DISTRICT
33.010 Use
33.020 Retail Sales Restricted
33.030 Pollution Authority Approval w
33.040 Conditional Uses
33.050 Height
33.060 Rear and Side Yards
33.070 Front Yards
33.080 Open Storage Yards
33.090 Landscaped Yards
33.100 Site Plan Review Required
AMENDED
ATTACHMENT V
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT PAGE 33.1
Findings of Denial
June 19, 1984
Page 4
6. 1,11e City Council finds that there anise be a public need for the
proposed 1)1;in amendment.
1. The City Council finds that to amend the Comprehensive Plan it
must be shown that the subject parcel. best suits the public need.
8. The City Council finds that to ,justify a comprehensive plan change
it must be shown that the subject parcel cannot be suitably used
as it is presently designated.
C. Applicable Criteria - Zone Change
1. The City Council finds that sections 15 and 16 of the Woodburn
Zoning Ordinance address zone change procedure:;.
2. The City Council rinds thc►t. SPac:if ic•al ly, to support a zona
change the applicant must: (a) Show there is a need for the
use proposed, (b) show that the particular piece of property
In question will meet that need. Section 16.080(6), Woodburn
'Luning Ordinance.
111. CONCLUSIONS OF LAW
1. The City Council concludes that at the present time sufficient
commercially designated land exists to accomodate the retail
needs of the City. The Council bases this conclusion on evidence
in the record and, specifically, on the land use inventory made
part of the record.
2. The City Council concludes that the subject parcel is not located
within one of the three established areas of commercial development
as designated in the Comprehensive Plan.
3. The City Council concludes that the proposed commercial element
of the subject parcel constitutes strip zoning as it is defined in
the Comprehensive Plan.
4. The City Council concludes that a greater amount of "commercial"
designated lands with services exists than "industrial" designated
lands with services. Therefore, commercial development of the subject
parcel would violate the Comprehensive Plan policy of development in
areas of existing facilities first, In that serviced industrial
designated land which is limited in amount, would-be lost to commercial
development when adequate commercial designated land is currently
available for development.
5. The City Council concludes that the development of the subject
parcel as either commercial or industrial would satisfy the economic
element of the Comprehensive Plan. However, since adequate commercial
designated lands are available, commercial developmeit would violate
the policy of protection of industrial lands from encroachment by
commercial uses.
• ATTACHMENT II
(3) The Comprehensive Plan and Zoning Map must be amended to a
Commercial designation rather than its present Industrial
Park designation.
(4) A Commercial designation of the IC zone would lengthen the
Commercial uses adjacent to 99E for approximately 2,000 feet
the Shop -N -Kart store Northward towards the city limits.
(5) A Comprehensive Plan and Zone amendment to Commercial would
remove all the remaining IC designated properties from the
land use map.
(6) An amendment to Commercial would satisfy Mr. Johnson's pro-
posal. (Attachment IV).
(7) The allowance for Commercial Retail uses would necessitate
driveway access onto 99E. This reduces the objective of
utilizing National Way as the primary access point for these
properties.
(8) Frontage to 99E would insure "unsightly" materials would not
be stored on the 99E frontage. However Cahpter 34, Section
34.070 and Chapter 33, Section 33.090 require landscaping and
fencing.
(9) A change to Commercial use would add approximately 25 acres
to the City's Commercial land inventory.
(10) The proposal submitted by the applicant (Attachment IV) would
reflect the broadest number of land uses allowed for any one
designation in the City. A distinction usually under land
use planning practices left to the CG (Commercial General) zone.
(B) Maintain the existing IC zone uses recognizing those properties i.e.
Shop -N -Kart as non -conforming.
(1) Maintains the existing Comprehensive Plan Map designation of IP
(Industrial Park).
(2) Maintains the existing zoning designation IC (Industrial Commercial)
and its land uses.
(3) Restricts the intrusion of Commercial Retail uses into the IC
(Industrial Commercial) zone.
(4) Preserves this area for small lot Industrial developments that
want highway visibility.
(5) Maintains the only IC designated lands left in the City.
(6) Limits the number of potential driveway access points onto 99E.
Restricting access to this highway no more penalizing than for
the Industrial Park users.
(7) Site Plan Review Chapter 11 of the Woodburn Zoning Ordinance can
insure against unsightly development or storage of materials.
10
The focus of discussion of the IC (Industrial Commercial District) is
whether the intent of this zone designation is to compliment Industrial
or Commercial uses. Initially when this zone was incorporated into the
Zoning Ordinance the primary intent was to provide an opportunity for
Industrial manufacturers an opportunity to wholesale products at their
sites. However this zone has within it two commercial activities i.e.
Shop and Kart and Lennon Implement. It is staff's understanding these
uses are non -conforming.
Therefore, the issue of the allowing Commercial land use in an Industrial
zone brings into question the entire existence of the IC zone code in its
present form. Under our Zoning Ordinance it is not permitted to allow
Commercial uses in an Industrial zone. (See Attachment I).
Staff's concerns in regards to Commercial intrusion into the IC zone are
also borne out by John Fregonese the previous Planning Director who add-
ressed this issue in an earlier staff report and is captured in the follow-
ing quotes.
"In staff's opinion, development of this area as Commercial would
be much more detrimental to the City in terms of its transporta-
tion system than if it were to develop as Industrial. The Insti-
tute of Transportation Engineer's informational report "Trip
Generation" states that for a standard Industrial Park trip gene-
ration rates would be 9.4 vehicles/hour/acre between 7:00 and
9:00 a.m. and 10.2 between 4:00 and 6:00 p.m. The same figures
for a new car sales would be 52.5 between 7:00 and 9:00 a.m. and
79.5 between 4:00 and 6:00 p.m. The average traffic generation,
then, for a car sales as compared to an Industrial Park would be
eight times as large. In staff's opinion this would be an unneces-
sary burden to place on the already dangerous and overloaded State
Highway 99E ....
However, the proposed amendment to the plan, adding car lots to
the IP zone as a conditional use, does not appear logical. This
is the only way we could see to allow a zone change promised by
the Council to continue for the specific use requested, while
protecting the area from other Commercial uses. However it does
not seem to fit into the purpose and intent of the zone code for
the Industrial Park ....
However, while we realize that for political reasons the change
may be required, we cannot recommend it as the best course for
the City. We would recommend a complete reversal of the zone
change which was granted, with no provision for car lots ....
(Zone Change #79-5 IC to IP)."
PUBLIC HEARING DISCUSSION: LOT 3 OF MAP I
(A) Review the option of amending the zone designation to reflect some
Retail uses.
(1) Commercial uses are not allowed in the Industrial zone.
(2) The IC (Industrial Commercial) zone specifically prohibits
Commercial uses. (33.020).
STAFF COMMENTS:
(A) It is suggested the zone designation IC (Industrial Commercial)
be amended to IR (Industrial Retail) zone or IS (Industrial Sales)
zone.
The implication by either of the two zones would hopefully imply
that only the sale of Industrial products manufacatured on the
site would be allowed.
This would then lessen the confussion that prevails with the IC
designation which implies either Commercial or Industrial uses
are allowed.
(B) The IC zone identifies a land use designation that provides a tran-
sition between manufacturing and retail sales. The manufacturer now
has the opportunity to utilize a portion of the building site for
retail sales outlet for his manufactured product.
(C) Many of the uses now identified in the IC designation are no longer
allowed. For example, bonding companies, notary public, detective
agencies, motels and hotels.
(D) Optional business's are also eliminated i.e. auto sale lots and car
wash facilities have also been removed.
CONDITIONS OF ZONE DESIGNATIONS:
(A) Only two access points be allowed onto 99E for the IC properties
fronting 99E and National Way.
The reason being to restrict traffic egress and ingress thereby limit-
ing disruptions of vehicular traffic onto 99E.
The two access points should be shared by adjoining property owners
with internal circulation on private property fronting 99E.
(B) By limiting retail sales to manufactureres to a percentage of the
total gross floor area (less than 50%) the manufacturing and not
retail sales remains the dominant use.
D) LOTS 4 OF MAP I
This eleven acre site adjacent to State Highway 214 and Progress Way has
been the focal point of controversy in this area. Presently it is design-
ated as Industrial on the Comprehensive Plan Map. The proposal to amend
the Comprehensive Plan and Zone to Commercial General by the property
owners has failed on two occasions. The rational for denial for the
plan and zone change are substantiated in Attachment II.
In assessing the findings of facat that resulted in denial the Commission
and Council may agree with Planning Staff that the main reason denial was
given was because the proponents proposal conflicts with the Goals and
Policies of the Comprehensive Plan.
Therefore any review for a land use change for this property would most
definately require an amendment to the Goals and Policies of the Compre-
hensive Plan.
12
(C) Modify the IC zone to reflect only those uses identified in
Chapter 33 and delete the "service" uses allowed under Chapter
28, Items C -K.
(1) The broad number of uses allowed under the IC zone would
appear to nullify its intent of being preserved for indus-
trial uses. (See Attachment I, Chapters 33 and 28).
(2) Staff interprets this zone to be a hybred born out of poli-
tical compromise. One.in which there is great difficulty
in justifying its existance or defining its nature from a
land use point of view.
(3) Staff foresees that many of the uses presently allowed will
demand and should be allowed direct access to 99E. (Attach-
ment I, Chapters 33 and 28).
(4) To remove uses as allowed in Chapter 28 and incorporate some
"limited" Retail uses (depending on the type) may result in
a definition of what constitutes an IC zone and whether it
should be identified as a Commercial or Industrial Land Use
Map designation.
(D) A fourth alternative would be to modify the IC zone to reflect some-
thing similar to Mr. Johnson's proposal (Attachment IV) and amend the
Zoning and Comprehensive Plan Map from IC (Industrial Commercial) to
CG (Commercial General) for the existing, but now non -conforming,
Shop -N -Kart.
(1) The zone change to CG for Shop -N -Kart would remove the non-
conforming status.
(2) Amending the uses allowed in the IC zone to something similar
as suggested in alternative "C" above while reviewing Mr.
Johnson's proposal may result in a zone designation that does
not conflict with the "intent" of the IC zone. (Attachment V).
PUBLIC HEARING DISCUSSION: LOTS 3 OF MAP I
(a) Maintain the existing Comprehensive Plan Map designation of
IP (Industrial Park).
(b) Maintain the existing zoning designation IC (Industrial Com-
mercial) and further restrict retail use.
(c) Encourage access from National Way and to discourage access to
99E with some additional uses if they are "Industrial Like" in
the IC zone.
(d) REASONS:
(1) The allowance for Commercial Retail uses would necessitate
driveway access onto 99E thereby reducing the objective of
utilizing National Way as the primary access point for these
properties.
(2) Restrict the intrusion of Commercial Retail uses into the
IC (Industrial Commercial) zone.
(3) Preserve this area for small lot Industrial developments
that wants highway visibility.
(B) Maintain the existing land use and zoning designations.
(1) See Findings of Fact for Denial. (Attachment II).
(2) See Comprehensive Plan Goals and Policies Chapter I,
Section 11 of Discussion Paper.
(C) Amend the Comprehensive Plan Map to Commercial and the Zon-
ing Map to CG (Commercial General).
(D) REASONS:
(1) Same as stated in Advantages (a) -(b).
(2) Justifications can be made to amend specific policies in
the Comprehensive Plan thereby making allowance for a Com-
mercial use in this area.
(3) Specific conditions are necessary so that conflicts with
the Comprehensive Goals and Policies do not occur. Those
being (a) Limited highway access, (b) Vehicular intercon-
nection points with adjacent Commercial uses, and (c)
signalization.
(4) Lot IV is to be used as Commercial only if it can be inter-
connected with the Safeway/Payless complex. The driveway
access (only one onto Highway 214 for the 11 acre parcel)
to lineup with Mt. Jefferson Avenue and one access on
Progress Way. This is sto promote internal rather than
external traffic circulation when shopping in the 11 acre
Payless/Safeway complex.
E) LOT 5 OF MAP I
The five parcels that make up Lot 5 are presently zoned IC (Industrial
Commercial) and IL (Light Industrial) and contain a real estate office,
metal fabrication company and retail store. Because of the proximity of
this property to a corner that contains Commercial uses on the other
three corners and the fact that two of the uses on Lot 5 are already
Commercial it is reasonable to conclude that all coraners of the inter-
section would compliment each other if they all reflected Commercial
uses.
1) ADVANTAGESs
(a) As identified in Attachment I Retail uses are not allowed in an
IC (Industrial Commercial) zone. By amending the land use design-
ation to Commercial General the two existing retail businesses
would convert from non -conforming to permitted outright uses.
(b) The high level of site visibility at the intersection by vehi-
cular traffic makes these parcels attractive for Commercial uses.
(c) The clustering of Commercial uses at the intersection compliments
business in close proximity.
1) ADVANTAGES:
(a) The property, if amended to Commercial use, is adjacent to
an existing Commercial complex.
(b) The 11 acre site provides a large parcel of land that could
accommodate mall development that could be complimentary to
Commercial development to the East.
(c) There is adequate Industrial lands available (336 acres) to
provide for Industrial growth.
DISADVANTAGES:
(a) There are presently Comprehensive Plan Goals and Policies
that conflict with a land use amendment change to Commercial.
(b) The amendment from Industrial to Commercial would..;remove the
only eleven acre Industrial site with the infrastructure in
place i.e. water, sewer, storm drain and streets.
PUBLIC NEARING DISCUSSION: LOTS 4 OF MAP I
(a) Review the option of amending the Land Use Map and Zone design-
ation to Commercial use.
(1) The property, if amended to Commercial use, is adjacent to
an existing Commercial complex.
(2) The 11 acre site proivdes a large parcel of land that could
accommodate mall development that could be complimentary to
the Commercial development to the East.
(3) There is approximately 336 acres of land available for Indus-
trial development.
(4) There are presently Comprehensive Plan Goals and Policies
that conflict with a land use amendment change to Commercial.
(5) The amendment from Industrial to Commercial would remove the
only eleven acre Industrial site with the infrastructure in
place i.e. water, sewer, storm drain and streets.
(6) Specific conditions are necessary so that conflicts with the
Comprehensive Goals and Policies do not occur. Those being
(a) Limited highway access, (b) Vehicular interconnection
points with adjacent Commercial uses, and (c) Signalization.
(7) Justifications can be made to amend specific policies in the
Comprehensive Plan thereby making allowance for a Commercial
use in this area.
(8) If the alternative policies were adopted (VII amended Compre-
hensive Plan Goals and Policies attached) the following would
occur.
(a) The 11 acre site would become part of the Commercial core.
(b) This would not constitute strip development.
(c) The Plan Map Amendment and Comprehensive Plan Goals and
Policies would be in harmony.
(9) See Findings of Fact for Approval. (Attachment 11).
V.. APPLICABLE STATE LAND USE GOALS AND POLICIES
When a City contemplates the revision of its adopted Comprehen-
sive Plan consideration has to be given established State Land
Use Goals and Policies. The reason being that local land use
decisions must maintain compliance with those State Land Use
Laws when revised. Therefore, a local jurisdiction must review
those State laws that are applicable and insure local decisions
are not in variance with those laws.
The Goals which staff has found to be pertinent and should be
considered in this review are as follows:
STATE GOALS AND GUIDELINES
GOAL #2 - LAND USE PLANNING
"All land use plans and implementation
ordinances shall be adopted by the govern-
ing body after public hearing and shall be
reviewed and, as needed, revised on a per-
iodic cycle to take into account changing
public policies and circumstances, in accord
with a schedule set forth in the plan. Oppor-
tunities shall be provided for review and com-
ment by citizens and affected governmental
units during preparation, review and revision
of plans and implementation ordinances."
STAFF COMMENT:
The City through its public notification
process as outlined in Chapters 7 and 16
of the Woodburn Zoning Ordinance insures
that any property owners directly or in-
directly affected by any proposed amend-
ment are provided notification (See
Attachment III).
16
(d) The intersection when improved will be able to accommodate more
vehicular traffic than any other intersection designed for in
our community.
DISADVANTAGES:
(a) The existing Industrial use would become non -conforming. That
is expansion of the existing use would be restricted.
PUBLIC HEARING DISCUSSION: LOTS 5 OF MAP I
(a) Amend the Comprehensive Plan Map to Commercial.
(b) Amend the Zoning Map to CG (Commercial General).
(c) REASONS:
(1) Same as stated in Advantages (a) -(d).
11;
VI . AMENDED COMPREHENSIVE PLAN GOALS & POLICIES
A) COMMERCIAL GOALS, POLICIES & STATEMENTS
The City should at all times have sufficient land to accommodate
the retail needs of the City and the surrounding market area. The
City presently has three four major commercial areas: 99E, I-5
Interchange, and the downtown area and the 214/211/99E "four
courners" intersection area. No new areas should be established.
Volume I, Pg. 24, Item B-1).
Strip zoning should be discouraged as a most unproductive form of
commercial land development. Strip zoning being the use of small
Parcels, less than one acre, with lettle lot depth, less than 150
feet, with each parcel containing multiple driveway access points.
Whenever possible, the City should encourage or require commercial
developments which are designed to allow pedestrians to shop with-
out relying on the private automobile to go from shop to shop.
Therefore acreage site lots should be encouraged to develop "mall
Type" developments that allow a one stop and shop opportunity.
Commercial developments or commercial development patterns which
require the use of the private automobile shall be discouraged.
(Volume I, Pg. 25, Item B-3).
The second large commercial area which has devloped in the City is
the commercial strip along Highway 99E and the development along the
intersections of State Highway 99E, State Highway 214 and State High-
way 211. The strip zoning along 99E has cuased many problems in the
City of Woodburn as far as traffic flow and traffic safety on the
State Hingway. This is because this type of development is the
least efficient use of commercial land and highway frontage. While
there is little which can be done with the areas which have already
been eveloped, some of this will be redeveloping in the future,
especially North of Lincoln Street. Access control plans policies
sheu4d shall be deve4eped observed and-the-stfeets-sbeu4d-fie-4mpfeved-
When street improvements occur.
The area on State Highway 211 which
development, some 35 acres, will pro
uses for the City. But before it ca
additional right-of-way and widening
greatly increased traffic that this
To insure the smooth flow of traffic
access points onto State Highway 211
Pa. 37, Para. 1).
has been set aside for commercial
vide future expansion for retail
n expand, State Hingway 211 needs
of the highway to accommodate the
commercial development will generate.
by this area only two driveway
shall be allowed. (volume i,
The primary objective is to improve Highway 99E from its South city
limits to the North city limits to accommodate 2 South bound lanes,
two North bound lanes with an accompanying center refuge lane and
bicycle paths. This would grE�atly enhance traffic flows and decrease
the number of vehicular acciftnts.
However, a secondary objective to further enhance traffic flows and
reduce traffic accidents is to 44f4t reduce the number of driveway
access points onto the 99E strip. (Volume I, Pg. 12, Para. 2).
That area North of Shop -N -Kart to Industrial Avenue, which is Indust-
rial Park on the Comprehensive Plan Map, shall be restricted to two
two driveway access points with National Way serving as the main access
with 99E as an alternate. Volume I, Pg. 12).
NOTE: That which is marked out is previous wording and the underlined portion
is the recommended changes in language. is
Over'70 notices were mailed to propdrty
owners in the area affected besides public
notice in the local newspaper. A minimum
of three public hearings are scheduled to
resolve the issues at hand.
GOAL #9 - ECONOMY OF THE STATE
Plans and policies shall contribute to
a stable and healthy economy in all regions
of the state. Plans shall be based on inven-
tories of areas suitable for increased economic
growth and activity after taking into consider-
ation the health of the current economic base;
materials and energy availability; labor market
factors; transportation; current market forces;
availability of renewable and non-renewable
resources; availability of land; and pollution
control requirements."
GOAL #11- PUBLIC SERVICES AND FACILITIES
"To plan and develop a timely, orderly and
efficient arrangement of public facilities
and services to serve as a framework for
urban and rural development." (See Chapter
II Section II).
GOAL #12- TRANSPORTATION
"To provide and encourage a safe, convenient
and economic transportation system.
A transportation plan shall (1) consider all
modes of trans ortation including mass transit,
air, water, pipe ine, rail, highway, bicycle and
pedestrian; (2) be based upon an inventory of
local, regional and state treansportation needs;
(3) consider the differences in social consequences
that would result from utilizing differing com-
binations of transportation modes; (4) avoid prin-
cipal rellance upon any one mode of transportation;
(5) minimize adverse social, economic and environ-
mental impacts and costs; (6) conserve energy; (7)
meet the needs of the transportation disadvantaged
by improving transportation services; (8) facilitate
the flow of goods and services so as to strengthen
the local and regional economy; and (9) conform with
local and regional comprehensive land use plans.
Each plan shall include a provision for transport-
ation as a key facility." (See Chapter II Section
I).
GOAL #14- URBANIZATION
"To provide for an orderly and efficient trans-
ition from rural to urban land use."
CHAPTER 11
RESOURCE INFORMATION
B) INDISTRIAL GOALS, POLICIES & STATEMENTS
Industrial lands should be protected from encroachment by com-
mercial or other uses which will either increase the price of
industrial land or cause traffic generation which will inter-
fere with the normal industrial practices. (Volume I, Pg. 26,
Item C-8).
The Industrial Park area was really the beginning of Woodburn's
industrial expansion in'the 1970's. It has been very successful
and now covers a large amount of land between the Southern Pacific
Railroad and Highway 99E North of State Highway 214. However, as
of the writing of this Plan almost all of the developable land has
either been sold to industries which intend to locate in Woodburn
or is under development. There are approximately.�,17 acres left
which have not been sold to industrial developers. It is expected
that in the next two to three years the remainder of the industrial
land in the Woodburn Industrial Park area will be used for indus-
trial development. This area should be maintained throughout the
planning period as the attractive industrial area it is now.
(Volume I, Pg. 35, Last Para.).
When Highway 99E is improved i.e. widened to five lanes, storm drain,
curbs and sidewalks, the level of service will stabilize at level "C".
The anticipated improvements of Highway 99E should increase the capacity
enabling the highway to accommodate an additional 4,100 vehicles as well
as a potential of 13,000 additional vehicles with a high intensity indus-
trail development on the 30 acres.
II ACCESS CONTROLS*
1. New direct access to arterials should be granted only after con-
sideration is given to the land use and traffic patterns in the
area of development, not just at the specific site. Frontage
roads and access collection points shall be implemented whenever
feasible.
2. Access control techniques will be used to coordinate traffic and
land use patterns and to help minimize the negative impacts of
growth. Area -wide needs should receive precedence over site-
specific needs.
3. To insure a minimization of traffic flow and to promote safety;
the number of access points to arterials shall be kept to a mini-
mum; the cluster development of commercial and industrial acti-
tivities will be encouraged; and the City shall establish minimum
set backs from the pubic right-of-way of arterials for commercial
and industrial uses.
4. Undeveloped lands in which new arterial alignments are planned
should receive special consideration for the use of the various
access control techniques. These lands have both the greatest
need and greatest potential for access control.
* To improve traffic flows on State Highways the above access con-
trol policies have been incorporated into the City's Draft Com-
prehensive Transportation Plan. (Page 42)
21
CHAPTER II
I. TRAFFIC CIRCULATION
The State Highway Division monitors traffic volumes at specific points
along state highways on an annual basis. Traffic volumes on Highway
214, Highway 211 and Highway 99E at points around the four corners area
for 1980, 1982 and 1984 are listed below:
Turning movements at the Highway 99E/Highway 214/Highway 211 intersections
were recorded in July 1984. There were a total of 23,591 vehicles enter-
ing the intersection. For the breakdown of turning movements please see
the attached diagram.
Vehicle trip generation of land use activities is never a precise fore-
cast. At best it is an estimation based on certain assumptions. Trip
generation rates have been estimated by the Institute of Transportation
Engineers for a variety of land use activities. Generation rates are
subject to modifications due to specific site characteristics. Because
it is unknown, at this time, what kinds of commercial and industrial uses
will occur on the properties in question, trip generation rates are gener-
alized to be:
LOW AVE. HIGH
Industrial per acre 14 60
441
Commercial per acre Median= 443 Ave.= 647
Trip generation rates are for the average weekday.
The proposal for the four corners area could potentially add approximately
40 acres of land to the commercial land inventory and 30 acres to the indus-
trial land inventory. Using the average trip generation rates listed above
full commercial development of the 40 acres could generate an additional
25,880 vehicle trips per day. Industries locating on the 30 acres could
generate an average of 1,800 vehicle trips per day. This is a total of
27,680 potential vehicle trips moving in and around the Highway 214/High-
way 99E intersection. This is approximately(4,100 more vehicl.es.than are
currently travelling through this area. The intersection is currently oper-
ating at a level of service "C" approaching level of service "D". (See attached
description of levels of service).
1980
1982
1984
HIGHWAY 214
Just West of
Highway
99E
9,100 ADT
9,300
9,100
HIGHWAY 211
Just East of
Highway
99E
4,300
4,750-='
5,800
HIGHWAY 99E
Just South of
Highway
211/214
14,900
14,800
17,500
Just North of
Highway
211/214
10,100
10,300
11,900
Turning movements at the Highway 99E/Highway 214/Highway 211 intersections
were recorded in July 1984. There were a total of 23,591 vehicles enter-
ing the intersection. For the breakdown of turning movements please see
the attached diagram.
Vehicle trip generation of land use activities is never a precise fore-
cast. At best it is an estimation based on certain assumptions. Trip
generation rates have been estimated by the Institute of Transportation
Engineers for a variety of land use activities. Generation rates are
subject to modifications due to specific site characteristics. Because
it is unknown, at this time, what kinds of commercial and industrial uses
will occur on the properties in question, trip generation rates are gener-
alized to be:
LOW AVE. HIGH
Industrial per acre 14 60
441
Commercial per acre Median= 443 Ave.= 647
Trip generation rates are for the average weekday.
The proposal for the four corners area could potentially add approximately
40 acres of land to the commercial land inventory and 30 acres to the indus-
trial land inventory. Using the average trip generation rates listed above
full commercial development of the 40 acres could generate an additional
25,880 vehicle trips per day. Industries locating on the 30 acres could
generate an average of 1,800 vehicle trips per day. This is a total of
27,680 potential vehicle trips moving in and around the Highway 214/High-
way 99E intersection. This is approximately(4,100 more vehicl.es.than are
currently travelling through this area. The intersection is currently oper-
ating at a level of service "C" approaching level of service "D". (See attached
description of levels of service).
0
t_.
A
Level of
Ser—_
A
B
:C
(Desired
Urban Design
Level)
A
E
(Capacity is
at the divi-
sion between
E & F)
F
LEVELS OF SERVICE. FOR SIGUALI7.ED INTERSECTIOwS
Type of
Traffic Flow
Free Flow
Stable Flow
Comments
No vehicle waits longer
than one red indication.
The number of vehicles
waiting through one red
indication is increased.
Stable Flow Occasionally vehicles
may have to wait through
more than one red
indication.
Approaching
Unstable
Flow
Unstable
Flow
Delays may be substan-
tial during short peri-
ods, but excessive back-
ups do not occur. This
level usually considered
an acceptable goal during
peak hours.
Delay may be great --up to
several signal cycles.
Usually, considered un-
satisfactory, Short peri-
ods of this level may be
tolerated during peak
hours in lieu of the cost
and community disruption
of providing a higher
level of service
Maneuverabi1 it
Turning movements are
easily made, and nearly
all drivers find freedoi
Of operation.
Many drivers begin to fi
somewhat restricted wits
groups of vehicles.
Back ups may develop bei
turning vehicles. tlost
drivers feel somewhat re
tricted, but not objecti
ably so.
Maneuverability is sever
limited during short per
due to temporary back -UD
There are typically long
queues of vehicles tira i t-
ing upstream of the inter
setion. --
Forced' Excessive delay. Nearly Jammed conditions. Back -
always considered unsatis- ups from other locations
factory. May occur only may restrict or prevent
during P.M. peak hours movement of vehicles at
during summer months in the intersection under
recreational areas. consideration.
;j
23
A
OREGON STATE HIGHWAY DIVIS16N
TRAFFIC ENGINEERING SECTION
TWENTY-FOUR HOUR VEHICULAR VOLUME
1,
DATE TP2y../.�'.C.!4/u�
D A Y O F W E E K 7.'�uezfillv..tato. ".•/.............
ACTUAL COUNT (VEH.) ..../4............ HRS.
HOURS COUNTED ..fi.!.`:!'.. lQ. "'...........
PEDESTRIAN COUNT .....f6 .............. HRS.
HOURS COUNTED . A, . ../.Q..
WEATHER .�r..�.Qar: ;o�•%....:.k..........
To-----------
F -_
ON
- S 3,Z4 --
6w
n
0- M
F E-- f/IkiyL :rs /y0-� I
Remarks: .26
--_
j 7I
v i
CITY R COUNTY .( o95�hyr-�*f ............. 1
INTERSECTION OF4S�.kwS:E:.It`??,�
MILE P0SY k.,-.3! �gX.ryo<.... 9f •,,�.C!��,... o:a?�
CLASSIFICATION��..QCIilr$..................
Ped.
!o
No. y
TOTAL VEHICLES
ENTERING
INTERSECTION 2 / 100
NORTH cNreple SOUTH
CATERING FROM /AS `-
EAST a W[ST
To bola Ila-
- - - ---
Sy k
>-Qf-iw►i -"`l6 / -->-
113
STREET OR AVE.
Indicate
North
j
a
-h) 0
0
wW
>\
\ W
tr
3
N
t
4�
(C) STORM DRAIN:
Of the three services the City has to provide storm drainage
is the most difficult to accommodate. Presently the 24"
storm drain running West on State Highway 214 from approxi-
mately 400' West of the 214/99E intersection to the Front
Street/Mill Creek outlet has a limited capacity. It is
therefore doubtfull that Lots 1 and 4 of Map I could tie
into this system. Lot 4 would more likely connect to the
24" storm drain on Progress Way while Lot 1 would connect
to the 99E storm drain. However due to the limited capacity
of that line a retention basin on Lot 1 would be required.
Lot 2 would connect to the nearest creek.outfall, a.consider-
able distance at a high cost for Lot 2.
Lot 3 would connect to the Industrial Park storm drain
system.
The conclusion for storm drain service is that service is
possible but at some cost.
II. WATER, SEWER AND STORM DRAINAGE (MAP III)
The public facility infrastructure (water, sewer, storm drainage
and streets) has a strong influence on an areas ability to acccom-
modate new growth for a limitation of one service such as water,
no matter how adequate the other services, could be a limiting
factor on an areas ability to realize its full growth potential.
It is the Public Works and Planning Staff's opinion that any land
use revisions as those recommended can be accommodated. However
there could be costs incurred by the prospective developers depend-
ing in the level of service that could require facility improve-
ments. The following is a synopsis of the existing public facilities
with general observations as to their ability to provide service to
this area.
(A) WATER:
A 12" water main runs on the South side of State Highway 214
(Mount Hood Avenue) to the 214/99E intersection. A 10" line
crosses Highway 214 continues North on Progress. Way. Another
8" water line crosses State Highway 214 at the Westerly end
of the Safeway/Payless complex and services that area. The
10" main on Progres's Way would also serve Lot 1 and Lot
4 of the properties identified on Map I.
A 12" water line is also located on the West side of 99E from
James Street North to the 214/99E intersection and proceeds
North to Industrial Avenue. This line can adequately serve
all new development on both sides of Highway 99E to Industrial
Avenue. The extension of that 12" line North of the city
limits is proposed for the future.
Presently no water service line exists from the State Highway
214/99E intersection East on the Mollala State Highway 211.
It is anticipated this line would be 12" diameter and adequately
serve both sides of Highway 211 to the Easterly city limits.
It should be noted however that an additional water well and
elevated storage tower will have to be installed in 3 to 4
years in the Industrial Park to improve future service for
this area.
(B) SEWER:
A 12" gravity sewer line comes from McLaren to State Highway
211 which proceeds West on Highway 214 to a lift station on
the South side of 214 just West of the Front Street overpass.
The 8" gravity line on 99E also connects to the 211/214, 12"
gravity line. The waste water is then pumped from the 214/
Front Street lift station through an 18" force main to the
Wastewater Treatment Plant.
All properties in the discussion area can be tied and adequately
serviced by this system.
CHAPTER 111
FINDINGS & CONCLUSIONS
LAND USES DESIGNATED IN PLAN - ACRES
AVAILABLE FOR AVAILABLE FOR
USE DEVELOPMENT DEVELOPMENT
TOTAL PLAN IN 1980 IN 1985
Commercial 430 259 * 172 (63% under one acre
Industrial 671 326 * 335
* Approximation
Available for Development - includes vacant lots and those
under utilized.
THEORETICAL LAND NEEDS TO YEAR 2000
URBAN LAND NEEDS ACTUAL AVAILABLE
IN ACRES IN PLAN
COMMERCIAL 428 430
23,000 persons @
1.86 acre/100
Population
INDUSTRIAL 344 671
23,000 @ 2.30 acre
100 population -
185 units
Within the City's Urban Growth Boundary 430 acres are presently design-
ated for Commercial development while 671 acres are identified for Indus-
trial uses, of that, 335 acres are available for Industrial development
while 172 acres (63% under one acre) are available for Commercial use.
If it is the intention of the Commission/Council to amend the Industrial
designated Lots 4 and 5 of Map I to Commercial such action would reduce
the lands available for.Industrial use from 335 to 315 acres and raise
the Commercial lands inventory from 172 to 192 acres.
It should also be noted a majority of the one acre or less sites are
adjacent to State Highway 99E.
In staff's opinion the improvement of these properties could be a potential
burden along the 99E strip with even more driveway access points. The
impact of this being the rise in accident rates and additional disruption
of traffic flows.
S0�_ Woodburn Comprehensive Plan Vol. I, P9.19, Table 3.
FINDINGS & CONCLUSIONS (CON'T.)
(N) FINDINGS & CONCLUSIONS FOR LOT 1 OF MAP 1
(a) The property has access to the two most traffic generating
highways that can best accommodate anticipated vehicular
traffic.
(b) There is potentially good visibility for store frontage adver-
tising.
(c) The property is adjacent to an already existing hub of commercial
development.
(d) The property adds depth to the commercial hub which allows greater
concentration of commercial businesses.
(e) The parcel size would be conducive for a shopping center/mall
complex.
(f) Mt. Jefferson Avenue would be instrumental as a division line
between the commercial business on the North side of that road
and Commercial Office on the South side. The Commercial Office
on the South side serving as a buffer to the Single Family Resi-
dential District to the South.
(g) The CO zone which allows such uses as doctors and dentists offices
is regarded as a "soft" buffer between the Residential zone to the
South and the Intensive Commercial use that would be allowed on the
North side of Mt. Jefferson Avenue.
(0) FINDINGS & CONCLUSIONS OF LOT 2 OF MAP 1
(a) Provides a large block of land that with highway improvements and with
strict access controls can accommodate a large "mall type" develop-
ment.
(b) Future highway improvements will be made to accommodate the addi-
tional traffic flow on State Highway 211 (2 lanes with a third
refuge lane).
(c) By not amending the land use designation the present land use
designation on the Comprehensive Plan Map is maintained.
(P) FINDINGS & CONCLUSIONS OF LOT 3 OF MAP 1
(a) Maintains the existing Comprehensive Plan Map designation of IP
(Industrial Park).
(b) Maintains the existing zoning designation IC (Industrial Commercial)
and its land uses.
(c) Preserves this area for small lot Industrial developments that want
highway visibility.
(d) Maintains the only IC designated lands left in the City.
(e) Limits the number of potential driveway access points onto 99E.
Restricting access to this highway no more penalizing than for
the Industrial Park users.
(f) Site Plan Review Chapter 11 of the Woodburn Zoning Ordinance can
insure against unsightly development or storage of materials.
FINDINGS & CONCLUSIONS
(A) The City of Woodburn's Comprehensive Plan (Volume I, Pg. 51-52)
calls for periodic review of all land use planning ordinances
and/or amendments to the plan when applicable.
(B) The proposed land use changes (Lots 1,4, & 5 Maps) to Commercial
use would not constitute strip development as defined by the
proposed Goal Amendments (Pg. 14-A 2nd Para.).
(C) All properties (Lots 1,4, & 5 Map I) amended to Commercial are
with the Commercial area described in the amended Goal state-
ment (Pg. 14-A, 1st Para.).
(D) Either Commercial or Industrial designations for thosepropertiesamend to Commercial use (Lots 1,4 & 5 Map I) would satisfy the
City's Economic Goals.
(E) Over half (63%) of the Commercial acreage available for develop-
ment is under one acre in size. The proposed amendments to Com-
mercial insure an adequate number of acreage size properties to
accommodate mall developments. (Chapter II, Pg. 22, Staff Report).
(F) Public facilities in respect to water, sewer and storm drain can
be provided or are in place to the proposed sites. (Chapter II,
Pg. 23, Staff Report).
(G) Public hearings were held in accordance with Chapters 7 and 16 of
the Woodburn Zoning Ordinance and State Goal #2 "Land Use Planning".
(H) The proposed land use amendments will reduce the industrial land
inventory by 20 acres. Ten of those acres (Lot 4 Map III) has
water and sewer services available to the site.
(I) The theoretical land use needs for Industrial, Commercial and Resi-
dential land availability as described in the Comprehensive Plan
are still met with the proposed amendments. (Chapter II, Pg. 22,
Staff Report).
(J) The future State Highway Improvements of 99E/211/214 are so designed
to accommodate the proposed land use designations (Chapter II, Pgs.
16-19, Staff Report, Comprehensive Plan Transportation Element Vol.I).
(K) The City of Woodburn's recently adopted (April 22, 1985) a Transport-
ation Plan that provides for limited State Highway driveway access to
control ingress/egress to insure minimum disruption of traffic flows
on these highways.
(L) The proposed Comprehensive Plan, Zoning Map Amendments to Lots 1, 4
and 5 of Map I would not be in conflict with adjoining land uses.
(M) In the case where CO (Commercial Office) (Lot I of Map I) would be
allowed adjacent to Single Family Residential the Comprehensive Plan
states that such uses can be compatible when adequately buffered and
landscaped. (Vol. I, Pg. 25, Item B-6).
M Lot IV is to be used as Commercial only if it can be inter-
connected with the Safeway/Payless complex. The driveway
access (only one onto Highway 214 for the 11 acre parcel) to
lineup with Mt. Jefferson Avenue and one access on Progress
Way. This is to promote internal rather than external traffic
circulation when shopping in the 11 acre Payless/Safeway complex.
(R) FINDINGS & CONCLUSIONS OF LOT 5 OF MAP 1
(a) As identified in Attachment I Retail uses are not allowed in an
IC (Industrial Commercial) zone. By amending the land use design-
ation to Commercial General the two existing retail businesses
would convert from non -conforming to permitted outright uses.
(b) The high level of site visibility at the intersection by vehicular
traffic makes these parcels attractive for Commercial uses.
(c) The clustering of Commercial uses at the intersection compliments
business in close proximity.
(d) The intersection when improved will be able to accommodate more
vehicular traffic than any other intersection in our community.
30
FINDINGS & CONCLUSIONS (CON'T.)
(g) Maintains existing zoning designation IC (Industrial Commercial)
and further restricts retail use.
(h) Encourages access from National Way and discourage access to 99E
with some additional uses if they are "Industrial Like" in the
IC zone.
(i) The IC zone identifies a land use designation that provides a
transition between manufacturing and retail sales. The manu-
facturer now has the opportunity to utilize a portion of the
building site for retail sales outlet for his manufactured pro-
duct.
(j) Many of the uses now identified in the IC designation are no longer
allowed. For example, bonding companies, notary public, detective
agencies, motels and hotels.
(k) Optional business's are also eliminated i.e. auto sales lots and
car wash facilities have also been removed.
(1) By limiting retail sales to manufactureres to a percentage of the
total gross floor area (20%) the manufacturing and not retail sales
remains the dominant use.
(Q) FINDINGS & CONCLUSIONS OF LOT 4 OF MAP 1
(a) The property, if amended to Commercial use, is adjacent to an
existing Commercial complex.
(b) The 11 acre site provides a large parcel of land that could accommo-
date mall development that could be complimentary to the Commercial
development to the East.
(c) There is approximately 336 acres of land available for Industrial
development.
(d) There are presently Comprehensive Plan Goals and Policies that con-
flict with a land use amendment change to Commercial.
(e) The amendment from Industrial to Commercial would remove the only
eleven acre Industrial site with the infrastructure in place i.e.
water, sewer, storm drain and streets.
(f) Specific conditions are necessary so°that conflicts with the Com-
prehensive Goals and Policies do not occur. Those being (a) Limited
highway access, (b) Vehicular interconnection points with adjacent
Commercial uses, and (c) Signalation.
(g) Justifications can be made to amend specific policies in the Compre-
hensive Plan thereby making allowance for a Commercial use in this
area.
(h) If the alternative policies were adopted (VII amended Comprehensive
Plan Goals and Policies attached) the following would occur.
(1) The 11 acre site would become part of the Commercial core.
(2) This would not constitute strip development.
(3) The Plan Map Amendment and Comprehensive Plan Goals and Policies
would be in harmony.
(i) See Findings of Fact for Approval. (Attachment II).
29
WOODBURN ZONING ORDINANCE
CHAPTER 33
IC INDUSTRIAL COMMERCIAL DISTRICT
33.010. Use
33.020. Retail Sales Prohibited
33.030. Pollution Authority Approval
33.040. Conditional Uses
33.050.
Optional Business
33.060.
Height
33.070.
Rear and Side Yards
33.080.
Front Yards
33.090.
Open Storage Yards
33.100.
Landscaped Yards
33.110. Site Plan Review Required
ATTACHMENT I
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT
Findings of ApIAWal
May 10, 1984
Page 5
(b) The subject parcel is located on a well
arterial with access improved to a major collector street.
(c) The size of the property will
development, which will allow permit mall -type
pedestrians to go from
shop to shop without relying on automobile
transportation.
4. Sewer, water, and storm drainage facilities re available
to the property. :i
5• The proposed change would encourage more immediate
development and would be beneficial to the economy of the
City of Woodburn.
b• A public need exists for a substantial commercial site,
centrally located within the City on major arterial access,
which will permit a mall -type development.
7. A public need exists for a diversity of entertainment
facilities within the community.
8. The subject parcel will meet the need by reason of
its
location and ability to be developeds and by reason of its
designation by Moyer Theatres as the o
within the city limits. nly desirable site
9. The parcel has been designated for indutitriai development for
over 10 years. Industry prefers to develop 'cin the interior
of an industrial park, away from primary public visibility.
Other industrially zoned property remain:; available away
from primary arteries. Therefore, it is unlikely that this
ten acre parcel can be developed as presently designated
within the foretice;rble future.
10. The City Council concludes that tine Comprehensive Plan
amendment complies with Statewide Planning Coal 2 (Land Use
Planning) in that it is consistent with the Woodburn
Comprehensive Plan for the reasons stated above.
11. The City Council concludes that the Comprehensive Plari
amendment complies with Statewide Planning Coal 9 (Economy
of the State) in that it develops and makes productive a
parcel which is designated industrial but is suited for
commercial development for the reasons stated above. Actual
development of the parcel will enhance the economy of
Woodburn, Marion County and the State of Oregon
12. Finally, the City Council concludes that conditions have
changed since the last designation of this parcel, as
follows:
(a) The West Woodburn 100 acre industiral park and the 75
acre North Front Street industrial park have been
annexed to the City, providing an additional
inventory of available industrial land.
ATTACHMENT II
Findings of Approval 16
May 10, 1984
Page 3
(b) Policies for Commercial
Land Dcvrlo ment
The City's policies for commercial land
found on pages 24 and 25 of develo
Comprehensive Plan, Volumc I of pment are
Policy 1 states the Woodburn
at all times, Ir:rve sufficient 1an;l tolaccomaleit it
needs of Y should,
the City and the' surrouncfin; the retail
presently has threemajorcommcrcialarket area. The City
interchange, and the downtown area."
areas; 99 E. I-5
Policy 2 states that "lands for high traffic
should be located on well -improved rr generatin
should F uses
provide the necessarytc�rfals• The uses
to ImClorlate their impact on thefarterialContrstreets.,#ol needed
Policy 3 states that "strip" zonin], should be discouraged as
a most unproductive form of commercial land
Whenever possible, the City should encourage development.
commercial developments which ;rCe or require
pedestrians to shop without re] in, designed to allow
CO go from shop to slro y L "r' Private automobiles
commercial development r Commercial developments or
private automobile sh:rllahecdiscouns rr �h require the use of the
i, c cl .
(c) Policies and Coals for Trans ort:rtion
Woodburn's ];oals and
set forthon Policies re;;arding transportation are
p:►i,cs 29 and
Comprehensive Plan. The '30
of Vo]ume 1 of Woodburn'
City's goal s
iti „
safe, efficient means of circulation withintthe cit. for a
provide for safe transport
through the city." of gout];; or Y. and to
persons moving
The City's
the policies with regard to transportation encourage
orderly development of
accomodate traffic flows and major arterial streets
arteries. Pedestrian andcycle to
the sif;nal.iz rtion of major
arterial and collector streets. �cce..ti i; to 1'e 1)rovided on
4• The City Council finds that the Comprehensive Plan Amendment
must be in compliance with the various elements of the
Comprehensive Plan narrative. These elements are as follows:
(a) the sewer system element, (b) the water system element,
(c) the storm drainage element,
element, (e) the housing(d) the transportation
element, element, and (f) the economic
5• The City Council finds that Woodburn's Comprehensive
has been acknowledged b Plan
Development Commission, Nev rtheless,atlhe Citnservation and
that the plan amendment must comply w Y Council finds
.Statewide Coals and Guidelines. p y itl� the applicable
ATTACHMENT II
EXHIBIT "A"
FINDINGS OF APPROVAL,
I• NATURE OF PROCEEDINGS
On March 22, 1984, tilt- Woodburn ""11111i"9 Commission held a
Public hearing and took to:itlmony on Comprehensive Pian and Zone
Change Case No, 84-01. On April 5, 1984, the Planning Commission
adopted findings of approval in this case.
At the applicants' request a de novo public hearing; was held
before the Woodburn City Council on April 23, 1984, The public
hearing was closed and the Council acted, by motion,
to draft proposed findings of to direct sCaff
apprc>• for its review and discussion
at the Council's May 14, 1984, meeting.
II. FINDINGS OF FACT
acs
1• The facts concerning; this application arc, c.0ntained in the
public testimony heard before the Woodburn City Council on
April 23, 1984, including;, but not limited to,
report witlr attachments which wa:e intrerchrcecl in , t
cShnt
record at the time of the Itearing.
2. .1'1rt 5ubjte't pnre'c•1 c�unlafns :rpl,r•r.
r,im:rtt•ly 10 aeras of
undeveloped real property lying; on the northeast corner of
the intersection of State iiig;hway ?I4 (Mr. Ilood Avenue) and
Progress Way, in the cityOregon. of Woodburn, Marion County,
3. The subject parcel is bordered on the north by a certified
Public accountant's office and a mini -storage facility, on
the west, across Progress Wary, by the Portland General
Electric Woodburn District Center, and on Che east by a
commercial complex, including; Family Federal Savings arta
Loan Associatic,n, Shari's Restaurant, Payless Drug Store and
Safeway Crocery Store.
4. The subject parcel has been cicsig;n:rttd on Woodburn's
Comprehensive Plan Map as Industrial and is zoned IP in
accordance therewith. It has been included by identification
in the Woodburn Industrial Park, and is at the present time
undeveloped.
11
ATTACHMENT II
OODBURN ZONING ORDINANCE
(j) Motor freight terminal offices;
(k) Professional offices for:
(1) Accounting, auditing and bookkeeping services;
(2) Artists, authors, lecturers, etc.;
(3) Engineers and architects;
(4) Non-profit educational and scientific research
agencies;
(5) Lawyers;
(6) Medical and dental laboratories;
(7) Medical, dental and other allied professionnl
Offices and clinics. Optometrists primarily engaged
in the prescribing rather than the selling of eye
glasses are included.
(8) Mortuary.
Sectio 28.020. Conditional Uses. When authorize under the
proced re provided for Conditional Usen In thin O Inance, the
follo wi uses will be permitted in a CO Ointrict:
(a) adio and Television stations and at on;
(b) Ra io and Television transmitter ations, towers and
Pipe to vision pick-up facilities (pr vate);
(c) Tele one And telegraph commun' at ion favi 1 it ies;
(d) Mobile home parks;
(e) [coat, c mpr.r and trailer storage nren or lot when
developed as rescribed in Se ion 22.030(d).
(f) Barber aho n;
(9) Beauty shops
(h) Veter innry c•I ic:s.
Section 28.030. Optional n i nensea. Optional hun i nesnex may be
conducted in n CVth(-r
c s an incidental or necondnry use to n
main use when d nd entered only from within the
building, providlan exterior cli"Pl.,%y or advertisement
except for n namnot ov r two square feet in area, and not
more than one -he fIoo nren of one ntory in clevotec! to
such use or use^uc•h htildinc; he but only one• ntory in
height, then notin oncr-fo rth of the• floor arc•:, thereof
shall be devotedu.^.e or une , nn fol lows:
(a) F:ati 9 Anse• (not drive• -in. rc•:ctaurantr,, c-:�(c•:; (rn,iy
serve1 guar) c atc•r� rn, t,ox 1 unch hrov ids r:c; c of feu
.ho, inincl roorr.n and tc :, room .;
(h)/"c•w de -11 or.:, nc•w :.:t..n,'.: .
Scct,.6n 2C.0.1o. 11eight, Wfl..rc- the
1,ui lc. i tn t c, r ::t r uc•t urs- or
ATTACHMENT I
CHAPTER 28 - CO - COMMERCIAL OF•I'10E DISTRICT
rnCF: 2 R . 1
WOODBURN ZONING ORDINANCE
(c) Any lighting maintained in conjunction with material and
equipment storage areas shall be so oriented as to not shine
on or reflect into abutting properties or streets.
Section 33.100. Landscaped Yards. Any yard provided adjacent to
a street, and the adjacent unimproved right-of-way shall be
landscaped, but in no case shall it be required to landscape more
than 30 feet from the nearest edge of the existing improvement in
the street right-of-way.
Section 33.090. Site Plan Review Re uired. Site Plan Review
shall be required or all buildings, structures, or premises
used, arranged or designed to be used, erected, structurally
altered or enlarged in accordance with the provisions of Chapter
11.
ATTACHMENT I
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT
WOODBURN ZONING ORDINANCE
Section 33.010. Use. Within an IC Industrial Commercial
District no building, structure or premises shall be used,
enlarged, or designed to be used, erected, structurally altered
or enlarged except for one or more of the following uses:
(a) Any use permitted under Section 28.010 (c) through (k);
(b) Industrial uses:
(1) Applicances, office and electrical product
equipment manufacture;
(2) Food, grain, feed and derivative products
processing;
(3) Furniture and fixtures manufacture;
(4) Leather and leather products manufacture;
(5) Metal fabricated products manufacture;
(6) Paper and allied products -assembly;
(7) Printing, publishing and allied industries;
(8) Professional, scientific and controlling equipment
manufacture;
(9) Rubber and allied products manufacturing;
(10) Textile products manufacture;
(11) Textiles and apparel manufacture and fabrication
of textile products;
(12) Textiles and apparels - other facilities;
(13) Tobacco processing;
(14) Transportation equipment and manufacturing.
Section 33.020. Retail Sales Prohibited. Retail sales of goods
to the general public are prohibited in an IC District.
Section 33.030. Pollution Authority Approval. All uses
specified in Section 33.010 and 33.040 or Section 34.020 and
34.030 or Section 35.010 and 35.030 shall obtain approval from
the Oregon State Department of Environmental Quality and/or the
Mid -Willamette Valley Air Pollution Authority before approval by
the City. Such approval shall take into consideration air
quality, heat, glare, light, noise, sewage and vibration.
Section 33.040. Conditional Uses. When authorized under the
procedure provided for Conditional Uses in this Ordinance, the
following uses will be permitted in a IC District:
(a) Chemicals, fertilizers, insecticides, paint and allied
products manufacturing;
(b) Metal fabricated products manufacture;
(c) Machinery manufacturing;
(d) Metal working shops;
(e) Petroleum, petroleum products, provided all storage is
underground;
ATTACHMENT I
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT
FINDINGS OF DENIAL
Findings of Denial
June 19, 19H4
Page 3
Q) Policies for Commercial Land Development
The City's policies for commercial land development are found
on pages 24 and 25 of Volume I of the Woodburn Comprehensive
Plan. Policy I states that "the City should, at all times,
have,sufficient land to accomodate the retail needs of the City
and the surrounding market arca. The City presently has three
major commercial areas: 99E, 1-5 interchange, and the downtown
a rea ,
Policy 2 states that "lands for high traffic generating uses
should be located on well -improved arterials. The uses should
provide the necessary traffic control devices needed to ameliorate
their impact on the arterial streets:.''
Policy 3 states that "strip" zoning should be discouraged as a
most unproductive form of commercial land development. Whenever
possible, the City should encourage or require commercial
developments which are designed to allow pedestrians to shop
without relying on private automobiles to go from shop to shop.
Commercial developments or commercial development patterns
which require the use of the private automobile shall be dis-
couraged.
(c) Policies; and Goats Cor TransporLation
Woodburn's goals and policies regarding transportation are set
forth on pages 29 and 30 of Volume I of Woodburn's Comprehensive
Plan. The City's goal is "to provide for a safe, efficient means
of circulation within the city, and to provide for safe transport
of goods or persons; moving through the city."
The City's policies with regard to transportation encourage the
orderly development of major arterial s:treetN to accomodate
traffic (lows and the signalization of major arteries. Pedestrians
and bicycle access is to be provided on arterial and collector
streets.
4. The City Council finds that the Comprehensive Plan Amendment must
be in compliance with the various elements of the Comprehensive
Plan narrative. These elements are as follows: (a) the sewer
system element, (b) the water system element, (c) the storm
drainage element, (d) the transportation element, (e) the
housing element, and (f) the economic element.
S. The City Council finds that Woodburn's Comprehensive Plan has been
acknowledged by the Land Conservation and Development Commission.
Nevertheless, the City Council finds that the plan amendment must
comply with the applicable Statewide Goals and Guidelines.
ATTACHMENT II
Findings of Deni;cl
June 19, 1984
Page 2
4. The subject parcel has been designated on Woodburn's Comprehensive
flan Map ;Is Industrial and is zoned 11' in accordance therewith.
It has been included by indentification in the Woodburn Industrial
Park, and is at the present time undeveloped.
5. The applicant's request that the City of Woodburn amend its
Comprehensive Plan Map from Industrial to Commercial use and
amend the present Woodburn Zoning Ordinance from lP (Industrial
Park) district to CC (Commercial Ceneral) clistrlc•t.
B. Applicable Criteria - Comprehensive Pian Amendmen;tp
1 Th" City Coune•11 finds that p:rragr:rplr IX ()f Volurnc• I of the• 1981
Comprehensive flan of the City of Woodburn sets forth the
sobstant ive• criteria which rmist he est nbl i :h ed to just f Cy :ui
un( ndnit'rri II, (hc (:��uq,rclrenniv( III;"'. A pl;rri . Il;roy;c• n.rr.l Ill -
Justified by the introduction by petitioners of a Solid body
of evidence tihc,wlnl;: (:r) that the .1111vndmc•rrt is In compl iance
with the goals and policies 0l the Comprehensive flan narrative;
and (b) that the amendment is in compliance with the various
elements of the Comprehensive Plan narrative; and (c) that
the amendment is in compliance with the Statewide Coals and
CuidelInes; and ((I) that there is a plrhl Iv need for the change;
and (e) that the land best suits that public need; and (f)
that the land cannot be suitably used as it is presently designated.
2. The City Council finds that a Comprehensive Plan amendment may
also be justified by a determination that either: (a) a mistake
was made in the drafting of the original plan; or (b) conditions
have changed which would justify a redesignation of a particular
parcel.
3. The Comprehensive Plan lists, on page 51 of Volume 1, six criteria
which must be addressed to justify a comprehensive plan amendment.
These criteria constitute the City's goals and policies and are as
follows:
a) Policies for Tndustr.ial Land Use
Those policies dealing with industrial land Ilse, as set forth on
Pages 25 and 26 of Volume 1 of the Comprehensive Plan narrative,
advocate industry within the city of Woodburn, which will provide
a healthy job market in a location which will provide ease of access
and which will avoid environmental clangers.
Attention is to be given to the visual impact of industrial
development upon arterial streets, by the appropriate use of
buffers. The industrial park concept is favored and attention
is to be given to avoid commercial encroachment on industrial
land, which might either cause the price of industrial lands to
increase or result in traffic generation problems which would
interfere with the use of adjoining industrial land.
ATTACHMENT II
Findings of Dv"ia)
.June 19, 1984
Page 5
6. The City Council ronviudes that the number of vehicle Lrips per
day Lhat would probably be generated by the proposed use, a
movie theater and retail establishments with 662 parking spaces,
Would violate Lhe Comprehensive 1'1.111 which states that Highway 214
should be a limited access highway with low Lraffic generating uses.
The Council further concludes that Lhis additional traffic genera-
tion would require signalization on 214 and Progress Way resulting
In disruption of the traffic flow.
1. The City Council concludes that the applicant, as a matter of law,
must show that under the Comprehensive Plan there is a public
need for the proposed change in uses. Since retail uses are allowed
by land use ordinance to occupy a number of vacant sites already
designated for commercial use and since the record reflects that
adequate commercial sites are available (SSV land "sv invvntory),
Lhe Council further concludes Lhat the applicant diel not carry
the burden of proof in showing public• need.
8. The City Council concludes that although the applicant contended
that the subject parcel provides the best exposure, and that
certain of the intended uses require a large amount of exposure
Lo traffic, no convincing; evidence was introduced to adequately
suhsLantiaty those slatvmvnis.
9. The City Council concludes that the applicant failed to show
that the land cannot be suitably used as it is presently designated.
Specifically, the applicant failed to show that the land in question
could not be suitably used as an industrial use. The Council
concludes, based on the record, that a substantial number of
industrial uses can utilize the applicant's site. These are
identified in the Woodburn Zoning Ordinance, Chapter 34,
Section 34.010 (A) through (C) and Section 34.030, Conditional
Uses (A) through (D).
10. The City Council concludes that the applicant failed to prove
that there was a mistake made in drafting the Comprehensive Plan.
II. The City Council concludes LhaL Lhe "pplicanL failed Lo bear
the burden of showing that conditions in the land use of the area
have changed Lu the extent LhaL a redesig"aLion of Lha property is
necessary.
12. The City Council concludes that the Comprehensive Plan Amendment
violates Statewide Planning Coal 2 (land use planning;) in that it
is inconsistent with the Woodburn Comprehensive Plan for the reasons
stated above.
13. The City Council concludes that the Comprehensive Plan Amendment
violates Statewide Planning Coal 9 (economy of the state) in that it
reduces the supply of industrially designated land avnilable with
adequate services. A1Lhough Lhe proposed development of the site would
possibly be attractive economically for a short time, the Council
concludes that the long-term effect would be to reduce the amount of
available industrial land and to hamper the economy of the area and
the state.
ATTACHMENT II
Findings of Denial
June 19, 1984
Vage 4
6. 'I'lie City Council f inds that there imist be :i pub]. is need for the
proposed plan amendment.
1. The City Council finds that to amend the Comprehensive Plan it
must be shown that the subject parcel best suits the public need.
8. The City Council finds that to justify a comprehensive plan change
it must be shown that the subject parcel cannot be suitably used
as it is presently designated.
C. Applicable Criteria - Zone Change
1. The City Council finds that sections 15 and 16 of the Woodburn
Zoning Ordinance address zone change procedure::.
2. The City Council finds that, spc-(:ifi(-ally, to support a forte
change the applicant must: (a) show there f.s a need for the
use proposed, (b) show that the particular piece of property
In question will meet that need. Section 16.080(b), Woodburn
'Luning Ordinance.
III. CONCLUSIONS OF LAW
1. The City Council concludes that at the present time sufficient
commercially designated land exists to accomodate the retail
needs of the City. The Council bases this conclusion on evidence
in the record and, specifically, on the land use inventory made
part of the record.
2. The City Council concludes that the subject parcel is not located
within one of the three established areas of commercial development
as designated in the Comprehensive Plan.
3. Tile City Council concludes that the proposed commercial element
of the subject parcel constitutes strip zoning as it is defined in
the Comprehensive Plan.
4. Tile City Council concludes that a greater amount of "commercial"
designated lands with services exists than "industrial" designated
lands with services. Therefore, commercial development of the subject
parcel would violate the Comprehensive Plan policy of development in
areas of existing facilities first, in that serviced industrial
designated land which is limited in amount, would be lost to commercial
development when adequate commercial designated land is currently
available for development.
5. The City Council concludes that the development of the subject
parcel as either commercial or industrial would satisfy the economic
element of the Comprehensive Plan. however, since adequate commercial
designated lands are available, commercial development would violate
the policy of protection of industrial lands from encroachment by
commercial uses.
• ATTACHMENT II
LETTERS OF PUBLIC RESPONSE
Due to the number of written responses to the
Public Notice staff has not incorporated them
in this packet.
This information is provided in a separate
package.
ATTACHMENT IV
NOTICE OF PUBLIC HEARING
AFFECTING THIS AREA
KA A D I
® COMMERCIAL
®MULTI -FAMILY
PUBLIC NOTICE
PURPOSE OF HEARING: The Woodburn Planning Commission will hold a public
hearing to review and possibly amend the City's Com-
prehensive Plan and Zoning Districts for properties
identified on the above map as Lots (1),(2),(3),(4)
and (5).O�n1 those properties identified as Lots
1-5 within the "Area of Discussion" will be reviewed
for possible land use amendments.
FILED BY: City of Woodburn DATE OF HEARING: February 28, 1985
TIME: 7:30 P.M. LOCATION: Council Chambers, City Hall
ANY PERSON WISHING TO SPEAK EITHER FOR OR AGAINST THE PROPOSED COMPREHEN-
SIVE PLAN MAP AND LAND USE DESIGNATIONS MAY DO SO IN PERSON OR BY ATTORNEY
AT THE PUBLIC HEARING. ALSO, WRITTEN COMMENT MAY BE FILED WITH THE SECRET-
ARY PRIOR TO THE TIME OF HEARING DATED THIS 15th DAY OF FEBRUARY.
FOR FURTHER INFORMATION CONTACT: Woodburn Planning Department, Public Works
Department, City Hall, 270 Montgomery St.,
Woodburn, Oregon 97071, Phone: 982-5246.
ATTACHMENT III
Section 33.010. Use. Within an IC Industrial Commercial District no
building, structure or premises shall be used, enlarged, or designed
to be used, erected, structurally altered or enlarged except for one
or more of the following uses:
(a) Permitted Outright Uses.
Industrial Uses:
(1) Applicances, office and electrical product equipment
manufacture;
(2) Food, grain, feed and derivative products processing;
(3) Furniture and fixtures manufacture;
(4) Leather and leather products manufacture;
(5) Metal fabricated products manufacture;
(6) Paper and allied products -assembly;
(7) Printing, publishing and allied industries;
(8) Professional, scientific and controlling equipment
manufacture;
(9) Rubber and allied products manufacturing;
(10) Textile products manufacture;
(11) Textiles and apparel manufacture and fabrication of
textile products;
(12) Textiles and apparels - other facilities;
(13) Tobacco processing;
(14) Transportation equipment and manufacturing.
Section 33.020. Retail Sales Restricted. Retail sales of goods from
Industrial manufacturing in 33.010 and 33.040 are restricted to 20% of
the gross floor or lot area for retail sales.
Section 33.030. Pollution Authority Approval. All uses specified in
Section 33.010 and 33.040 shall obtain approval from the Oregon State
Department of Environmental Quality and/or the Mid -Willamette Valley
Air Pollution Authority before approval by the City. Such approval
shall take into consideration air quality, heat, glare, light, sewage
and vibration.
Section 33.040. Condiitonal Uses. When authorized under the procedure
provided for Conditional Uses in this Ordinance, the following uses will
be permitted in a IC District:
(a) Chemicals, fertilizers, insecticides, paint and allied products
(b)
(c)
(d)
(e)
manufacturing;
Metal fabricated products manufacture;
Machinery manufacturing;
Metal working shops;
Petroleum, petroleum products, provided
ground;
all storage is under-
Laboratoray-seed and soil testing, research;
Motor freight terminal offices;
Aircraft maintenance facilities;
Bus storage and maintenance facilities
school);
Freight forwarding facilities;
Loading docks;
ATTACHMENT V
(charter, local, highway,
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT PAGE 33.2
CHAPTER 33
IC INDUSTRIAL COMMERCIAL DISTRICT
33.010 .Use
33.0.20 Retail Sales Restricted
33.030 Pollution Authorit Approval
33.040 Conditional Uses
33.050 Height
33.060 Rear and Side Yards
33.070 Front Yards
33.080 Open Storage Yards
33.090 Landscaped Yards
33.100 Site Plan Review Re uired
AMENDED
ATTACHMENT V
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT
PAGE 33.1
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(1) Wood and lumber products processings,
(m) Farm tractors and equipment;
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manufacture and storage;
Section 33.050. Hefight. . In an IC District, no building or structure shall
exceed 45 feet.
Section 33.060. Rear and Side Yards. There shall be a rear and side yard
on every lot in an IC District, which rear and side yard have a minimum
depth of ten feet. The minimum depth shall be increased one foot for each
additional foot of building height above ten feet, except a rear or side
Yard is not requited adjacent to a railroad right-of-way, siping or spur
track; provided, however, any rear or side yard provided adjacent to a street
shall have a minimum depth of 20 feet.
Section 33.070. Front Yards. There shall be a front
IC District, which front yard on every lot in an
yard shall have a minimum depth of 20 feet.
Section 33.080. Open Storage Yards
(a) All yard areas, exclusive of those required to landscaped as provided
in Section 33.090, may be used for parking, materials, and equipment
storage yards, or areas as may be used for the purposes permitted in
the IC District provided such yard areas is enclosed with a fence or
wall placed at an height of seven feet. Any fence, wall or hedge may
be located on the property line except it may not enclose landscaped
yards, as setforth in Section 33.090.
(b) The surface of such area shall be paved or gravelled and maintained
at all times in a dust -free condition; except, that all automobile
and truck parking and loading areas shall be paved, as provided in
Chapter 10.
(c) Any lighting maintained in conjunction with material and equipment
storage areas shall be so oriented as to not shine on or reflect
into abutting proerties or streets.
Section 33.090. Landscaped Yards. Any yard provided adjacent to a street,
and the adjacent unimproved right-of-way shall be landscaped, but in no
case shall it be required to landscape more than 30 feet from the nearest
edge of the existing improvement in the street right-of-way.
Section 33.100. Site Plan Review Required Site Plan Review shall be
required for all buildings, structures, or premises used, arranged or
designed to be used, erected, structurally altered or enlarged in accord-
ance with the provisions of Chapter 11.
ATTACHMENT V
CHAPTER 33 - IC INDUSTRIAL COMMERCIAL DISTRICT
PAGE 33.3
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