Ord 2492- 99E Corridor PlanCOUNCIL BILL NO. 2901
ORDINANCE NO. 2492
AN ORDINANCE ADOPTING THE HIGHWAY 99E CORRIDOR PLAN; MAKING TEXT
AMENDMENTS TO THE WOODBURN COMPREHENSIVE PLAN; AMENDING THE
WOODBURN COMPREHENSIVE PLAN MAP; AMENDING THE WOODBURN
TRANSPORTATION SYSTEM PLAN; MAKING TEXT AMENDMENTS TO THE WOODBURN
DEVELOPMENT ORDINANCE; AMENDING THE OFFICIAL ZONING MAP: AND
DIRECTING THE ECONOMIC AND DEVELOPMENT SERVICES DIRECTOR TO
ADMINISTRATIVELY INCORPORATE AND IMPLEMENT THESE ACTIONS
WHEREAS, the City received a grant from the Oregon Transportation and
Growth Management Program to help fund the Highway 99E Corridor Plan ( "the
Plan "); and
WHEREAS, on September 27, 2010, the City Council appointed a Citizens
Advisory Committee (CAC) consisting of 14 members to make
recommendations to the City Council as to the development of the Plan; and
WHEREAS, there was an extensive public outreach in the development of
the Plan, including five CAC meetings, two business and property owner
meetings, three open houses and one joint Planning Commission /City Council
Work Session; and
WHEREAS, on June 14, 2012, the Planning Commission conducted a public
hearing on the Plan and recommended City Council approval; and
WHEREAS, on July 9, 2012, the City Council conducted a public hearing on
the Plan, approved the Plan in concept and directed staff to return with the
documents necessary to formally adopt the Plan as a legislative land use action;
NOW, THEREFORE,
THE CITY OF WOODBURN ORDAINS AS FOLLOWS:
Section 1. The Highway 99E Corridor Plan, affixed to this Ordinance as
Attachment A, is adopted.
Section 2. The text of the Woodburn Comprehensive Plan is amended as
provided in Attachment B, which is affixed hereto.
Section 3. The Woodburn Comprehensive Plan Map is amended to
designate as Commercial all properties within the Mixed Use Village Zone, as
provided in Attachment C, which is affixed hereto.
Pagel - Council Bill No. 2901
Ordinance No. 2492
Section 4. The Woodburn Transportation System Plan is amended as
provided in Attachment D, which is affixed hereto.
Section 5. The text of the Woodburn Development Ordinance ( "the
WDO ") is amended as provided in Attachment E, which is affixed hereto.
Section 6. The Official Zoning Map is amended as provided in
Attachment F, which is affixed hereto.
Section 7. Consistent with Figure 12 of the Plan, affixed to this
Ordinance as Attachment G, the Director of Economic and Development
Services ( "the Director ") shall initiate a future legislative zone change of the
corridor properties shown in Figure 12 to the Mixed Use Village Zone after the
improvement of Highway 99E has been completed.
Section 8. The Director is further directed to administratively implement
and incorporate all modifications to the land use regulations specified in this
Ordinance.
Approved as to form: o /'
N. RoO
Passed by the Council
Submitted to the Mayor
Approved by the Mayor
Filed with the Office of the Recorder
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Attested:
Heather Pierson, Assistant City Recorder
City of Woodburn, Oregon
Page 2- Council Bill No. 2901
Ordinance No. 2492
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The Highway 99E Corridor Plan was prepared by Angelo Planning Group, DKS Associates, SERA
Architects, and Cogan Owens Cogan in partnership with the City of Woodburn and the Oregon
Department of Transportation.
This project is partially funded by a grant from the Transportation and Growth Management (“TGM”)
Program, a joint program of the Oregon Department of Transportation and the Oregon Department of
Land Conservation and Development. This TGM grant is financed, in part, by federal Safe, Accountable,
Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU), local government, and the
State of Oregon funds.
The contents of this document do not necessarily reflect views or policies of the State of Oregon.
Acknowledgements
Special thanks to members of the Citizens Advisory Committee, Technical Advisory Committee, Project
Management Team, Planning Commission, City Council, and the public who participated in the review
and shaping of the Corridor Plan.
Arnoldo Benavidez, Benavidez Tire & Wheel Eric Morris, Woodburn City Councilor
Rob Carney, Woodburn resident Alfredo Paniagua, Los Paniaguitas Produce
Bruce Crane, Historic Woodburn David Paradis, Easy Storage
Neighborhoods Association
Scott Roske, Food Service of America
Gerald Curtis, Shalimar Estates property owner
Darcy Ruef, Al’s Garden Center
Dick Jennings, Woodburn Planning Commission
Janice Webb, Webb Chiropractic
Kelly Long, Long Brothers Building Supply
Ruby Wolfer, West Coast Bank
Mindy Mayer, McDonald’s
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Committee
Dan Brown, P.E., City of Woodburn Public Ann M. Batten, PE, ODOT Region 2 Traffic
Works Director Analyst
Rodger Gutierrez, ODOT Pedestrian & Bicycle
Dan Fricke, ODOT Senior Region 2 Planner
Facility Specialist
Michael "Swede" Hays, ODOT Rail Division
Railroad Compliance Specialist Angela Kargel, ODOT Region Traffic Engineer
Chris Bailey, PEODOT Region 2 Senior Dorothy Upton, ODOT Senior Transportation
,
Preliminary Analyst
Michael Morales, ODOT Region 2 Senior Michael Bufalino, ODOT Freight Mobility
Environmental Project Manager Planner
Steven M. Oulman, AICP, Mid-Willamette Valley Jamie Hollenbeak, P.E., Access Management
Council of Governments Regional
Project Delivery Coordinator
Representative, and Oregon Department of
Joe Gray, ODOT Right of Way Utilities Manager
Land Conservation and Development
Melissa Mallott, ODOT Senior Right of Way
Karen G. Odenthal, Marion County Civil
Agent
Engineering Associate
Dave Sutkowski, ODOT Region 2 Assistant
Lester Sasaki, Marion County Principal Planner
District Manager
Brandon Reich, Marion County Associate
Planner
Jim Hendryx, City of Woodburn Economic & Development Services Director
Naomi Zwerdling, ODOT Senior Region 2 Planner
Pla
Ellen Bandelow Kathy Figley, Mayor
Sharon Corning Dick Pugh, Councilor - Ward 1
Lisa Ellsworth Mel Schmidt, Councilor - Ward 2
Patty Grigorieff Pete McCallum, Councilor - Ward 3
Richard Jennings Jim Cox, Councilor - Ward 4
Claudio Lima Frank Lonergan, Councilor - Ward 5
Charles Piper Eric Morris, Councilor - Ward 6
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I. Introduction .......................................................................................................................................... 1
II. Planning Process, Public and Agency Involvement ............................................................................... 3
Overview ................................................................................................................................................... 3
Project Kick Off and Vision ........................................................................................................................ 3
Background and Existing Conditions ......................................................................................................... 3
Developing and Refining Corridor Concepts.............................................................................................. 3
Selecting a Preferred Alternative .............................................................................................................. 4
Refining the Preferred Alternative ............................................................................................................ 4
Adoption of the Corridor Plan ................................................................................................................... 5
III. Plan Vision, Goals and Guiding Principles ......................................................................................... 5
Vision Statement ....................................................................................................................................... 5
Guiding Principles for the Highway 99E Corridor Plan .............................................................................. 5
IV. Existing Conditions and Opportunities ............................................................................................. 6
Regulatory Framework .............................................................................................................................. 6
Existing Access Conditions ......................................................................................................................... 7
Transportation Conditions ........................................................................................................................ 7
Existing Land Use and Urban Design ......................................................................................................... 8
Corridor Design Tools ................................................................................................................................ 9
V. Corridor Plan Overview ......................................................................................................................... 9
Transportation .......................................................................................................................................... 9
Land Use and Urban Design .................................................................................................................... 11
VI. Mixed Use Village: Urban Design Vision and Redevelopment Potential ....................................... 16
VII. Access Management Strategies ...................................................................................................... 23
Access Management Overview and Benefits .......................................................................................... 23
Existing Access Management Requirements .......................................................................................... 24
Access Management Plan Objectives...................................................................................................... 25
Recommended Actions ............................................................................................................................ 27
Access Management Tools ...................................................................................................................... 28
VIII. Summary of Proposed Implementation Measures ......................................................................... 28
Overview ................................................................................................................................................. 28
City of Woodburn Comprehensive Plan................................................................................................... 28
Woodburn Transportation System Plan .................................................................................................. 29
City of Woodburn Development Ordinance ............................................................................................ 30
Urban Renewal Plan ................................................................................................................................ 34
Marion County ........................................................................................................................................ 34
ODOT ....................................................................................................................................................... 35
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Figures
Figure 1: Highway 99E Corridor Plan Primary and Secondary Study Areas .................................................. 2
Figure 2: Key Corridor Enhancements ........................................................................................................ 12
Figure 3: Roadway Cross-sections for Highway 99E ................................................................................... 13
Figure 4: Highway 99E / Young Street Intersection Short-Term Modification Concept: Turn Restrictions 14
Figure 5: Highway 99E / Young Street Intersection Long-Term Modification Concept: Street Closures with
Street Vacation ........................................................................................................................................... 15
Figure 6: Redevelopment Potential in Young Street Mixed Use District .................................................... 18
Figure 7: Redevelopment Potential South of Lincoln Street in Segment 3 ................................................ 19
Figure 8: Desirable Site Configurations for Redevelopment in Young Street Mixed Use District .............. 20
Figure 9: Desirable Building Façade Treatments in Young Street Mixed Use District ................................ 21
Figure 10: Visual Simulation of Highway 99E and Young Intersection Before and After Mixed Use
Redevelopment and Streetscape Enhancements ....................................................................................... 22
Figure 11: Conflict Point Reduction with Driveway Consolidation ............................................................. 24
Figure 12: Mixed Use Village Boundaries and Phasing ............................................................................... 33
Tables
Table 1: Study Area Access Management Spacing Standards .................................................................... 25
Appendices
Appendix A: Comprehensive Plan Amendments
Appendix B: Transportation System Plan Amendments
Appendix C: Amendments to Woodburn Development Ordinance
Appendix D: Typical Development Footprints and Parking Requirements
Appendix E: Access Management Tools
The following documents were created during the course of the project. Supporting documents
summarize input obtained during public meetings, document background conditions, and describe in
detail alternatives considered but not ultimately adopted. They are currently available on the project
website and will be archived at the City’s Planning Division where they can be viewed upon request.
Technical Memoranda
Technical Memorandum #1: Plan and Policy Review
Technical Memorandum #2: Existing Access Conditions
Technical Memorandum #3: Existing and Future No Build Traffic Conditions
Technical Memorandum #4: Land Use and Urban Design Analysis
Technical Memorandum #5: Opportunity Design Toolbox
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Alternatives Development and Evaluation Reports and Early Corridor Plan Documents
Draft Corridor Plan Design Concepts
Final Corridor Plan Design and Land Use Options Evaluation Report and Traffic Technical Appendix
Corridor Plan Implementation Report
Meeting Summaries
November 17, 2010 CAC Meeting Summary
February 9, 2011 CAC Meeting Summary
May 10, 2011 CAC Meeting Summary
September 7, 2011 CAC Meeting Summary
September 8, 2011 Planning Commission Workshop Summary
December 14, 2011 CAC Meeting Summary
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I.Introduction
Highway 99E is a state highway that runs through the eastern edge of the City of Woodburn. The
highway serves as a major north and south transportation route between Wilsonville and Salem, is one
of the city's main transportation corridors, and provides access to numerous businesses. The City of
Woodburn obtained a grant from the state’s Transportation and Growth Management (TGM) program
to develop a plan for the corridor in order to facilitate the revitalization of the corridor as a viable, safe
and sustainable business district. To this end, the planning process addressed the following issues:
Economic Development;
Motor Vehicle Mobility & Safety;
Pedestrian / Bicycle Access & Safety;
Property Access;
Corridor Aesthetics; and
Neighborhood Connections.
The primary Study Area for the Corridor Plan follows the Highway 99E corridor from the proposed
southern Woodburn Urban Growth Boundary (just south of Belle Passi Road) to the northern Urban
Growth Boundary (near the intersection of Highway 99E and Carl Road, north of Industrial Way), as
shown in Figure 1 on the following page. The primary Study Area focuses on commercial properties
directly adjacent to Highway 99E. A broader secondary Study Area, extending a half-mile on either side
of the highway, was also established in order to include adjacent neighborhoods and explore possible
local street connections.
The Highway 99E Corridor Plan identifies needed transportation improvements, recommends
appropriate land uses, and illustrates the urban design vision for the section of Highway 99E running
through the City of Woodburn. The Corridor Plan also identifies the policies, regulations, and actions
necessary to implement this vision. Implementation measures include amending the City’s
Transportation System Plan (TSP), Comprehensive Plan, and Development Code to implement the land
use, urban design, access management, and transportation improvements associated with the Corridor
Plan. The details of the proposed policy and regulatory amendments are included in a series of
appendices at the end of this report.
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Figure 1: Highway 99E Corridor Plan Primary and Secondary Study Areas
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II. ǡ
Overview
This section summarizes the development of the Highway 99E Corridor Plan and the public and agency
involvement that shaped it. The planning process was steered by a “Project Team” made up of City staff
and a team of consultants, which had responsibility for the project schedule and developing materials
1
for public review and comment. A Technical Advisory Committee (TAC), which included County and
ODOT staff, served as technical reviewers and provided specialized expertise to the project. A Citizen’s
Advisory Committee (CAC) was established to provide business, neighborhood and property owner input
into the planning process. The membership of both the TAC and CAC are listed in the Acknowledgements
section.
Project Kick Off and Vision
At the outset of the Highway 99E Corridor Plan project, the City recruited participation in the project’s
Citizens’ Advisory Committee (CAC) from business and property owners along the full length of the
corridor. At the project kick off meeting on November 17, 2010, the Project Team presented the CAC an
overview of corridor planning, solicited input from CAC members on their vision for the corridor and
their goals for the project, and toured the study area with City staff and members of the CAC. The City
Council also provided input on the vision and guiding principles for the project at their meeting on
December 20, 2010.
Background and Existing Conditions
The Project Team next examined the existing policy and regulatory environment that guides planning in
the corridor, documented existing and future land use and transportation conditions, and introduced
land use and design concepts that exist or could be implemented along the corridor. This information
was shared with the public through the project website and was presented and discussed over the
course of two meetings with the CAC and two meetings with property owners in the corridor and
representatives of the business community. A Planning Commission briefing on the project, which was
open to the public, was held March 24, 2011 to review the goals and principles guiding the project, to
present background information pertinent to planning the future of the corridor, and to explore
transportation and design elements applicable to Highway 99E.
Developing and Refining Corridor Concepts
Input obtained during the first phase of the project from citizens, the business community, and City staff
about issues of concern and desired outcomes regarding corridor aesthetics, traffic and pedestrian
mobility, and safety led to the development of five corridor design concepts. The Highway 99E Draft
Corridor Plan Design Concepts Report (May 3, 2011) presented these five distinct corridor design
concepts, each of which took a different approach to addressing transportation, land use, and urban
1
During the development of the Corridor Plan, project materials developed for all meetings and summaries of the proceedings
were made available through a project website (http://www.woodburn99e.com). These materials are currently available on the
project website and will be archived at the City’s Planning Division at the conclusion of the project where they can be viewed
upon request.
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design elements. The corridor design concepts illustrated how roadway design and an associated
package of land use and urban design measures can influence how the corridor could look and feel to
those who use it in the future. The CAC, the TAC, Planning Commission, and members of the business
community met in four separate meetings during May 2011 to consider the options presented in the
Design Concepts Report and provide guidance on which options to study further.
Input obtained during the May meetings regarding desired design elements in the corridor helped the
Project Team reduce the number of concepts from five to two and to refine the remaining concepts,
entitled Concept 1: “Limited Improvements” and Concept 2: “Mixed Use Village. ” These two concepts
were evaluated in greater detail in the Highway 99E Corridor Plan Design and Land Use Options
Evaluation Report (October 5, 2011).
Selecting a Preferred Alternative
The CAC, TAC, and the Planning Commission had the opportunity to discuss the merits of the two
concepts presented in the Evaluation Report during three separate meetings in early September 2011.
The two concepts and their strengths and weaknesses were also presented to the public through
th
displays in the library and local businesses and during an open house on September 8, 2011. Comment
cards were made available at these venues and members of the public were asked to share their
questions, ideas, and concerns about the two concepts. The concepts were also presented to the City
th
Council on September 24 for their input and recommendations for a preferred alternative.
Feedback received through this public outreach regarding the two concepts is summarized below:
The TAC did not identify any fatal flaws with either concept, and concluded that the Oregon
Department of Transportation (ODOT) could most likely support either alternative.
The CAC was unable to reach consensus on a preferred alternative. Some members preferred
the roadway design of Concept 2 but were unsure whether the land use pattern identified was
appropriate for the community. Others felt that Concept 1, being less costly and having fewer
impacts on existing businesses, was preferable. Most were open to either concept.
Input from comment forms associated with the displays set up in the community in advance of
the open house favored Concept 2, with seven of nine in favor of Concept 2, and the remaining
two not liking either alternative.
Most open house attendees expressed a preference for Concept 2.
Of the Planning Commissioners, three preferred Concept 2; one was in favor of Concept 1.
The City Council, including the four city councilors and mayor, identified Concept 2 as the
preferred alternative that should move forward.
Based on this input, Concept 2 was identified as the Highway 99E Corridor Plan Preferred Alternative.
Refining the Preferred Alternative
Based on public input from the alternatives evaluation stage, the Project Team refined the preferred
alternative and identified specific implementation actions and implementing plan and code
amendments in the Highway 99E Corridor Plan Draft Implementation Report (December 6, 2011). The
Draft Implementation Report was presented to the TAC and CAC in meetings on December 14, 2011.
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Feedback from those meetings led to additional refinements to the implementation measures, which
are reflected in the Corridor Plan.
Adoption of the Corridor Plan
The Corridor Plan was reviewed at a joint Planning Commission and City Council Work Session on March
26, 2012 in preparation for adoption and public hearings. The Planning Commission recommended
approval at a June 14, 2012 public hearing, with some slight modifications. The Planning Commission
recommended: 1) a new policy supporting ODOT coordination with property owners during project
development to consider minimizing impacts to existing development; 2) restricting residential
development on parcels adjacent to industrially zoned land; and 3) a revised graphic for the interim
Young / Cleveland intersection showing right-in/out on Highway 99E (Figure 4). The City Council adopted
the plan, including the Planning Commission’s recommended modifications, on September 10, 2012.
III.ǡ
The following vision and guiding principles for the project were developed by the CAC and City Council,
as described in Section II.
Vision Statement
Highway 99E is a vibrant, safe and sustainable business district easily accessible to shoppers traveling by
car, bike or on foot. The corridor is aesthetically pleasing and provides opportunities for business
interaction with adjacent neighborhoods, the greater Woodburn community, and those travelling on
Highway 99E. All traffic moves efficiently, safely, and at reasonable speeds both within and through the
corridor.
Guiding Principles for the Highway 99E Corridor Plan
The physical environment and viability of businesses along the Highway 99E Corridor is supported and
enhanced by the Corridor Plan recommendations. The project recommendations facilitate the
revitalization of the corridor as a viable, safe, and sustainable business district
Ƭ
Highway 99E is a designated State Regional Highway and Truck Route. Improvement strategies in the
corridor will recognize and support this function for through and freight traffic using the corridor.
Competing Highway 99E transportation needs are balanced through land use and transportation
strategies that guide future development, property access, and improvements within the corridor.
The Corridor Plan provides guidance and recommendations on how the visual appearance of the
Highway 99E Corridor can be improved overtime through land use, design and streetscape strategies
and enhancements.
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Key east-west connections to adjacent residential neighborhoods are identified and methods to improve
access and connectivity between neighborhoods and the Highway 99E Business District are identified.
Ȁ Ƭ
Recommended improvements in the Highway 99E Corridor include pedestrian / bicycle enhancements
that improve safety, reduce potential conflicts, and provide an improved physical environment for these
activities.
Ȁ
Key corridor project improvements and implementation steps clearly describe:
Prioritization
Timing / Phasing
Roles and Responsibilities
Funding Opportunities
Ȁ
The Corridor Plan planning process provided property and business owners along Highway 99E, as well
as other community Stakeholders, the ability to be engaged throughout the process, contribute to the
recommendations, and understand the reasons behind and consequences of the recommendations of
the Highway 99E Corridor Plan.
IV.
Regulatory Framework
Highway 99E is a state highway under the jurisdiction of the ODOT. As such, it is subject to a variety of
state transportation policies and regulations governing access, design, acceptable congestion levels,
vehicle carrying capacity, safety, and other issues.
Land use along Highway 99E is regulated by the City of Woodburn and, in unincorporated areas, Marion
County. The City’s Comprehensive Plan provides policy-level guidance about land use, while the
Woodburn Development Ordinance (WDO) is the regulatory document that implements the goals,
policies, and objectives expressed in the City’s Comprehensive Plan. The City’s Transportation System
Plan (TSP) identifies the transportation facilities and services needed to support the planned land uses
for the next 20 years. The TSP contains goals and policies as well as plans for streets, transit, pedestrian,
2
bicycle, and rail facilities.
2
The relevant documents, policies, and regulations affecting the Highway 99E corridor are summarized in Technical
Memorandum #1: Plan and Policy Review (April 7, 2011). This document is currently available on the project website, and will
be archived at the City’s Planning Division where it can be viewed upon request.
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Existing Access Conditions
There are frequent access points (driveways) along the length of Highway 99E within the study corridor.
In certain areas, the location and number of the accesses exceed what ODOT’s access spacing standards
would allow. This situation is particularly pronounced between Industrial Avenue and Cleveland Street.
When access points are too closely spaced, more vehicles entering and exiting the road translates to
more slow-downs and more opportunities for crashes. Also, pedestrians and cyclists are exposed to
traffic as they cross driveways; the more driveways, the greater chance of conflict between motor
vehicle traffic and pedestrians and cyclists.
The high number of access points on Highway 99E is largely a result of the small commercial parcels that
front on Highway 99E and development patterns that limit connections between adjacent properties.
Many of the driveways are also very wide and poorly defined (i.e. no curb), increasing safety concerns,
especially for pedestrians. While significant improvement can be made, it is not reasonable to expect
that the spacing standards can be achieved given the constraints present. Furthermore, the need for
access to existing development must be carefully weighed when considering the nature and timing of
3
access improvements.
For more information on access management, see Section VII, beginning on page 23.
Transportation Conditions
A review of existing transportation conditions and an evaluation of future traffic in the corridor based on
4
the current zoning and planned transportation improvements identified the following deficiencies:
There is substantial pedestrian activity along Highway 99E; however, pedestrian facilities are
missing or inadequate in some places. Specifically, sidewalk infill is needed to fill gaps along
Highway 99E between Lincoln Street and a point just south of Cleveland Street, and sidewalk
construction is needed along Highway 99E from a point just south of Cleveland Street to the
proposed southern Urban Growth Boundary. In addition, there are frequent obstructions in the
existing sidewalks from objects such as mailboxes and utility poles.
Bicycle facilities are needed along Highway 99E between Lincoln Street and a point just south of
Cleveland Street.
Bicycle and pedestrian crossing enhancements are needed along the Highway 99E corridor to
supplement the existing signalized crossings.
Existing bus stops have no amenities such as shelters and benches.
The segment of Highway 99E surrounding Young Street through Cleveland Street has a history of
frequent crashes.
As a result of the projected increase in traffic on the corridor (from an average of 21,500
vehicles per day in 2009 at the busiest part of the corridor to an average of 23,550 vehicles per
3
Existing access points are documented in Technical Memorandum #2: Existing Access Conditions (March 9, 2011). This
document is currently available on the project website and will be archived at the City’s Planning Division where it can be
viewed upon request.
4
The full analysis of existing and future “No Build” transportation conditions is documented in Technical Memorandum #3:
Existing and Future No Build Traffic Conditions (April 5, 2011). This document is currently available on the project website and
will be archived at the City’s Planning Division where it can be viewed upon request.
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day at the same point, just south of Lincoln, in 2035), a few intersections are projected to have
congestion above the acceptable level in 2035. Even with future planned improvements in
place, the intersections along Highway 99E at Lincoln Street, the Food Services of America
driveway, and Belle Passi Road will fail to meet Oregon Department of Transportation (ODOT)
mobility standards by the year 2035.
In addition to these, other deficiencies and concerns within the corridor were raised by citizens. These
include:
Illumination is needed to improve visibility at night.
The speed limit in the south end of the corridor is too high.
Geometric improvements are needed at the intersection with Young Street / Highway 214 to
improve truck accessibility.
Significant improvements are needed around the Cleveland Street intersection to enhance
safety.
Congestion in the corridor is significantly worse when there are incidents on I-5 or regional
events occurring.
Pedestrian crossing opportunities are needed – it is unsafe as it is.
The highway should be widened to include two through lanes in each direction further south, at
least beyond the Texaco station.
The median island in the south approach of the Highway 214 / 211 / Highway 99E intersection
has caused safety and operational problems for adjacent properties. The need for this island
should be revisited. It is also difficult to see in the dark.
Existing Land Use and Urban Design
Existing land uses along the corridor range from densely developed commercial to undeveloped
5
farmland. The presence and quality of features such as landscaping, lighting, sidewalks, and signage
varies widely throughout the corridor. The newer developments tend to have better site amenities,
while older developments did not have to provide the same site amenities, in large part because these
sites were developed under older, less exacting regulations.
The northern portion of the corridor, north of OR 214 / OR 211 (Mt. Hood / Molalla), includes an
industrial park, a manufactured housing development, and the MacLaren Juvenile Correctional Facility.
The portion of this area that is within city limits is zoned Industrial Park (IP).
Existing land uses in the central core of the study area (from just north of Mt. Hood / Molalla to just
south of Cleveland) include all scales of retail (from big box to strip malls to small shops), small offices,
restaurants (both dine-in and drive-through), and houses of worship. There are many automobile-
serving businesses including auto repair and service shops, tire sales, and car washes. The
overwhelming majority of the parcels in the central core of the study area are zoned General
Commercial (CG). The dominant site development pattern of commercial properties in the corridor
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A detailed description of the existing land use and design patterns along the corridor is provided in Technical Memorandum
#4: Land Use and Urban Design Analysis (April 7, 2011). This document is currently available on the project website and will be
archived at the City’s Planning Division where it can be viewed upon request.
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consists of a single-story building with a surface parking lot in front of it; however, the size and
configuration of the building and the parking lot vary by site.
Large-scale redevelopment opportunities in the central part of the corridor are limited to the area
around the Mt. Hood / Molalla / Highway 99E intersection. There are a number of small to medium-
scale or infill redevelopment opportunities between Mt. Hood / Molalla and Lincoln. Redevelopment
south of Lincoln will face greater challenges due to the number of smaller and shallow parcels in this
area.
South of Cleveland there is substantial vacant and redevelopable land. Comprehensive Plan designations
in this area include Industrial, Commercial, Low-Density Residential, and Medium-Density Residential.
Existing land uses include a variety of commercial/industrial uses such as self-storage, manufactured
home sales, a bank, automobile repair and salvage, and food processing businesses; a small apartment
complex; a manufactured housing development; and farms.
Corridor Design Tools
A variety of tools and strategies can be used throughout the Highway 99E corridor to improve
pedestrian and bicyclist access, comfort and mobility, corridor aesthetics, and safety for all users in the
corridor. These tools and strategies were identified and described in Technical Memorandum #5:
Opportunity Design Toolbox (April 7, 2011). The Toolbox includes Bicycle and Pedestrian Facilities such
as Crossing Treatments, Sidewalks and Bike Lanes, and Connectivity; Streetscape Elements; Gateways;
Signage; Site Development; Access Management; and Redevelopment Opportunities. The tools
described formed the building blocks of the initial corridor design options developed by the Project
Team, and the most suitable tools have been incorporated into the recommendations in the Corridor
Plan.
V.
The corridor was divided into four segments for the purposes of developing land use and transportation
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recommendations. The boundaries of the corridor segments are shown on Figure 2. This section
summarizes the key land use and transportation changes associated with the Corridor Plan. These are
also illustrated graphically in Figure 2: Key Corridor Enhancements on page 12.
Transportation
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The Corridor Plan proposes no physical streetscape changes to Highway 99E north of Lincoln (Segments
1 and 2). South of Lincoln (in Segments 3 and 4), the highway would be widened to accommodate bike
lanes, sidewalks, street trees, and room for amenities such as street lights and enhanced transit stops,
bringing the highway up to the City’s adopted Major Arterial standards. While motor vehicle and freight
mobility remains the highway’s primary purpose, the landscaping and wider sidewalks would help make
6
See Draft Corridor Plan Design Concepts (May 2011) for further explanation of how the corridor was divided into segments.
Fundamentally, the four segments reflect differences in existing land use and transportation conditions and, as anticipated in
earlier stages of this project, now reflect different land use, urban design, and transportation solutions.
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the highway safer and more attractive for pedestrians. The existing 80-foot right-of-way would need to
expand to approximately 100 feet in Segment 3 (from Lincoln to south of Cleveland) to accommodate
these physical streetscape improvements. South of Cleveland (in Segment 4), the roadway would be
widened from the existing two-lane highway to add a continuous two-way left turn lane, wider
shoulders (also serving as buffered bike lanes), and sidewalks (separated from the travel lanes by a
landscaped buffer or vegetated stormwater swale). Here, these improvements would likely fit within the
existing right-of-way. The proposed cross-sections for each segment of the highway are shown in Figure
7
3: Roadway Cross-sections for Highway 99E on page 13.
The other key modification proposed for the roadway system is a recommended change to street
connections and circulation surrounding the Young Street and Cleveland Street intersections. Currently,
the intersections of Birds Eye and Highway 214 and of Silverton and Highway 99E are located very close
to other intersections and intersect at odd angles, creating a dangerous situation for drivers. This area
has a history of crashes due to these issues.
The Plan proposes to restrict turn movements at these intersections in the short-term, and close them
8
completely and vacating the public street right-of-way in the long term (conceptual illustrations of the
short-term modifications are shown in Figure 4 on page 14; long term conceptual alignments are shown
on Figure 5 on page 15). Consistent with the City’s adopted TSP, a new traffic signal is planned at
9
Cleveland Street and Highway 99E (this is shown on Figure 5). No changes are proposed to the existing
Bird’s Eye Avenue railroad crossing. The intersection of George Street and OR 214 is also recommended
for closure in the long term, once a suitable connection is made at the eastern end of George Street. It
is important to note that the solutions illustrated on pages 14 and 15 are conceptual in nature and are
intended to express a short and long term way forward to improve conditions at this intersection.
Further refinement will take place in close consultation with the business and property owners affected
as engineering designs are produced, prior to any changes being made. The specific needs of the
businesses in the area for vehicle access (including trucks) will be taken into consideration during the
engineering design stage.
The proposed turn restrictions and eventual street closures would enhance safety in the area by
reducing vehicle turning conflicts. In addition, vacation of the street right-of-way that would no longer
be needed after closure of the streets would create an opportunity for lot consolidation (i.e. the
opportunity for a single property owner or developer to acquire a group of properties and bring them
under common ownership), adding approximately 27,000 square feet of developable commercial land at
this highly visible corner location.
7
ODOT Rail Division has advised that a two-way center turn lane on Highway 99E should not approach any closer than 325 feet
to the existing railroad track on either side of the crossing. This is because it is important for drivers to focus on the crossing
and be alert for signals without the added distraction of turn movements, jockeying for position, and potential sideswipe
collisions in the immediate approaches to a crossing. Two-way turn lane traffic is difficult to control and presents a temptation
to motorists to drive around lowered crossing gates.
8
Note that vacation of right-of-way may require action by both the City and ODOT.
9
Prior to installation in this location, a new signal must meet ODOT traffic warrants, have Region 2 Traffic Manager support,
and obtain State Traffic Engineer Office approval.
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Additional transportation improvements are identified in Appendix B and summarized briefly below:
Measures to improve safety and convenience for pedestrians crossing Highway 99E, such as
enhancements at signalized intersections and mid-block protected crossings.
Signal timing and intersection improvements to accommodate the expected changes in traffic
flow due to closing the Silverton Avenue intersection and the increased traffic generation
potential from the new Mixed Use area.
Improvements to connectivity through new street connections and bicycle / pedestrian
accessways.
Adoption of access management policies for the corridor to improve safety for vehicles, bicycles,
and pedestrians. (Recommendations related to access management are addressed in Section
VII beginning on page 23.)
Land Use and Urban Design
The centerpiece of the land use and design features of the Corridor Plan is a new “Mixed Use Village”
centered at the intersection of Young Street and Highway 99E. The mixed use area is intended to
provide an activity node on Highway 99E and a sense of connection to Downtown Woodburn. The new
Mixed Use Village will be implemented through a new zoning designation with a slightly different mix of
uses and different set of site design standards than exists today under the existing General Commercial
zoning. Over time, through new development and redevelopment, the new zone will create a more
pedestrian-oriented, walkable streetscape with buildings close to the sidewalk and parking lots situated
to the rear or side of buildings. The proposed new zone is described in more detail in Section VIII
beginning on page 30.
The proposed new zone will be implemented in phases, beginning with an area near the Young Street
intersection (“Phase 1”), where a gateway treatment and other public investments could help spur
redevelopment. The new zone will be applied throughout the remainder of Segment 3 when
10
improvements to Highway 99E are programmed. The exception is for properties currently outside city
limits, where the new zone will be applied upon annexation into the city. This phasing approach is
illustrated on Figure 2.
Conceptual illustrations of potential redevelopment in the Mixed Use Village are provided in Section IV.
These illustrations are intended to show what future development could look like within the Mixed Use
Village; they are aspirational rather than regulatory.
Outside of the Mixed Use Village, the land use regulations would remain largely unchanged, although
modifications related to access management, special street setbacks, and frontage improvements would
apply throughout the corridor. These recommendations are summarized in Section VI.
10
Rezoning is recommended to occur for Phase 2 through a legislative action by the City once funding for the detailed
engineering design of the improvements to Highway 99E in Segment 3 is committed.
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Figure 2: Key Corridor Enhancements
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12
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50
Figure 3: Roadway Cross-sections for Highway 99E
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13
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VI.ǣ
The area in the vicinity of the Young Street and Highway 99E intersection was identified early in the
process as having the most potential for achieving the land use vision for future development and
redevelopment in the corridor, as articulated by this Plan. Young Street is a main corridor leading into
downtown and its intersection with 99E includes vacant and underutilized land where urban renewal
funding could potentially provide public investment to help spur redevelopment. Parcels in the vicinity
of this key intersection have the potential to support a commercial environment that is inviting to
pedestrians and bicyclists. The proposed Mixed Use Village, proposed for transitioning in phases (see
Figure 2), is intended to create a more pedestrian-friendly commercial area with opportunities for mixed
use and multi-family residential development. Successful pedestrian-oriented shopping districts are
optimized when they are no longer than a quarter-mile long (1,200’), which is the equivalent of about
three to four linear city blocks. This is the distance that people are generally willing to walk if there are
compelling things to draw them along the street, like interesting shops, comfortable sidewalks and
landscaping, and a landmark destination. Using the Young Street / Highway 99E intersection as the hub
of the mixed use district, the future land use and transportation investments should be strategically
phased to radiate out from this location. The district can grow to the north and south over time when
the roadway is improved to help provide an enhanced pedestrian environment and streetscape.
The appropriate width of the commercial zoning in the Highway 99E corridor was discussed at length
during the planning process. Commercially zoned properties fronting Highway 99E are relatively shallow
in some parts of the corridor, particularly around Young Street. While a conceptual site analysis,
described below, showed that even properties with depths of less than 250 feet have the potential to
redevelop under existing (and proposed) commercial standards, some concerns remain that shallow
11
commercial zoning could inhibit redevelopment.To address these concerns, three areas with
particularly shallow zoning have been identified for limited expansion of commercial zoning. The
properties that abut these areas are currently zoned for residential use. The change will affect four tax
lots, with a total area of 1.3 acres. (See Section VIII, Summary of Proposed Implementation Measures.)
Figure 6 shows the potential for new mixed use development in the area identified as the first phase of
12
the Mixed Use Village. Figure 7 does the same for the area just south of Lincoln where the mixed use
zoning would be applied in Phase 2. The intent of these diagrams is to illustrate how the area could
11
Note that in evaluating the type and scale of commercial development that would be appropriate to this area, the project
team considered existing Woodburn Comprehensive Plan policy language that does not support “big box” retail development
on Highway 99E, discourages strip commercial development and supports efficient use of commercial land.
12
Figure 6 illustrates street trees on both approaches to the rail crossing. As roadside trees mature, theymay obscure
motorists’ view of all flashing light signals at rail crossings. For greater safety, a motorist needs a full, unobstructed view of all
flashing light signal - both front lights and back lights, within the safe stopping distance approach to the crossing. For this
reason, ODOT Rail Division opposes tree landscaping on both sides of Highway 99E out to a minimum distance of 250 feet on
both approaches to the rail crossing. Any street vegetation within 250 feet of the crossing should be ground cover only,
standing no higher than 3 feet at maturity. Figure 6 also shows a crosswalk on Highway 99E at Cleveland Street. ODOT Rail
Division opposes a crosswalk at Cleveland Street because of concerns about vehicle queuing on the railroad tracks while waiting
for a pedestrian to cross, unless the intersection is fully signalized for vehicles and pedestrians and those signals are
interconnected with the crossing signals. If a crosswalk were to be installed preceding the installation of the planned traffic
signal at that intersection, the crosswalk should be a minimum of 150 feet from the crossing.
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redevelop over time using a variety of tools from the Toolbox (i.e., lot consolidation, driveway
13
consolidation, and shared parking) and under the new development standards. The building footprints
illustrated in the diagram represent typical configurations for ground-floor retail and office buildings
that could also include residential or office above, if supported by the market (for example, the 28,000
square foot development in Figure 7 illustrates a two-story building). Potential locations for multi-family
residential have been identified in Figure 6 where they can best support the new commercial
development and help knit the district into the existing residential neighborhoods to the west. The red
squares in Figure 7 indicate the potential location of a “gateway feature” to announce the transition
from the existing cross-section to the new cross-section (this could be a piece of public art, a sign, or
some other marker; see Technical Memorandum #5: Opportunity Design Toolbox, dated April 7, 2011 for
examples). It should be noted that these diagrams only illustrate one possible way to redevelop the
district and that the configuration of buildings and parking on private property will only change when
property owners decide to redevelop their property. Appendix D provides a table with examples of
various businesses and their typical size ranges, parking needs, and estimated site sizes. This table helps
illustrate the types of businesses that could be accommodated within the building footprints shown on
Figure 6 and Figure 7 and on other sites within the corridor.
Figure 6 also shows potential secondary vehicle connections and pedestrian and bicycle connections to
existing streets and rights-of-way. This secondary level of connectivity would allow more people to visit
the mixed use district without having to drive; it would also allow for better vehicle circulation and
reduce conflicts along Highway 99E. The connections shown in the diagram are for illustrative purposes
and are not intended to show specific locations for new driveways, access ways, and paths; they simply
show how connectivity could be improved with redevelopment.
Figure 8 through Figure 10 provide additional illustrations of what new development in the Mixed Use
Village could look like under the proposed new zone development standards. Figure 8 illustrates
desirable site configurations with parking located to the side or rear of the buildings and shared parking
and/or shared driveway access between abutting parcels. Figure 9 illustrates desirable building façades
that incorporate storefront windows and/or architectural features to create visual interest for passing
pedestrians, with buildings set close to the street and entrances facing the front or side of the lot.
Finally, Figure 10 is a visual simulation that illustrates potential mixed use redevelopment and
streetscape enhancements at the Young Street intersection based on the proposed development
standards and incorporating the proposed gateway treatment at Young Street.
13
These tools are described in Technical Memorandum #5: Opportunity Design Toolbox, dated April 7, 2011.
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Figure 6: Redevelopment Potential in Young Street Mixed Use District
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56
Figure 7: Redevelopment Potential South of Lincoln Street in Segment 3
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19
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VII.
The application of access management strategies within the corridor can be a key contributor to
providing improved safety, efficiency, and comfort of travel – extending the functional life of existing
roadways. This section describes how the improved management of access could benefit Highway 99E
users and provides an Access Management Plan for the corridor to be used as a guide during future
development plans and street improvement projects. The Access Management Plan described in this
section is intended to help implement, rather than replace, existing rules and regulations pertaining to
property access in the study corridor.
Access Management Overview and Benefits
Access management is the term used to describe a broad set of techniques that balance the priorities of
safe, efficient, and timely travel with the need to allow access to individual properties. For facilities such
as freeways and arterials, there is generally an emphasis on facilitating the through movement of traffic,
with direct property access being a secondary objective. The emphasis shifts to prioritizing direct
property access for streets of lower functional classification such as collectors and local streets.
At the same time, the need for convenient access to a roadway can vary with the adjacent land use.
Commercial development generally demands more direct and convenient access to better serve
customers, while industrial, civic, and residential uses can often be adequately served with indirect
access from lower classified streets (i.e., from a collector rather than from an arterial). This underscores
the importance of considering the needs of adjacent land uses when establishing expectations for how
access will be managed in a roadway corridor.
The benefits of access management for through traffic have been well documented and are generally
well understood: fewer vehicles entering and exiting the traveled way translates to fewer slow-downs
and fewer opportunities for crashes, leading to improvements in travel times and safety. While this is
often thought to occur at the expense of highway-adjacent properties, a well-planned access
management strategy can have many benefits to area businesses and local users of the corridor.
Safety
An uncoordinated pattern of frequent property access along a highway introduces a number of potential
conflicts for drivers where vehicle paths could cross and where collisions could occur. These areas are
often the causes of slowing or stopping vehicles, and can significantly degrade the flow of traffic and
reduce the efficiency of the transportation system. Drivers can be overwhelmed by conflict points in
close proximity to one another, increasing the potential for crashes.
Good access management minimizes the number of vehicle conflict points by reducing the overall
number of access points and providing greater separation between them. Figure 11 illustrates this
concept, where consolidation of two closely spaced driveways results in a reduction of potential conflict
points of more than 50%.
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Figure 11: Conflict Point Reduction with Driveway Consolidation
Roadways with well-managed access provide a safer and more comfortable walking and cycling
environment. With fewer access points along the highway, pedestrians and cyclists will be exposed to
traffic less frequently, resulting in fewer conflict points between motor vehicles, pedestrians, and
cyclists. Also, a strategic use of traffic islands can sometimes restrict turning movements in hazardous
areas while doubling as refuges to facilitate bicycle and pedestrian highway crossings between traffic
signals.
Business
Streets that are viewed as being frequently congested or unsafe to travel can be a deterrent to potential
customers and can create a negative image for a commercial district. In contrast, the improved level of
safety and traffic flow on streets with well-managed access to abutting businesses creates a better
experience for customers and can even increase the potential market area.
From the business-owner’s perspective, access points are “customer entrances” and should be easy and
intuitive to find, well-maintained, and provide safe and comfortable passage. And while adequate
accessibility is necessary, the use of fewer access points provides for more property frontage, which
could be used for merchandise displays, landscaping to improve the appearance of the corridor, or
additional parking stalls.
Existing Access Management Requirements
The Oregon Department of Transportation maintains access management requirements through Oregon
Administrative Rule 734-051 (Division 51) and in the Oregon Highway Plan (OHP). Division 51 rules
govern all aspects of establishing and maintaining access to a state highway including approval for new
14
access, permitting for construction, mitigation measures, and use of medians.
ODOT’s access management spacing standards are based on roadway classification, area type, posted
speed limits, and annual average daily traffic volumes. Highway 99E is classified as a Regional Highway
with posted speed limits ranging from 35 to 55 miles per hour in the study corridor. Table 1 breaks the
study area into different zones characterized by changes in access management spacing standards, with
14 These regulations were amended by Senate Bill 264, with changes effective on January 1, 2012. ODOT Access Management
Website http://www.oregon.gov/ODOT/HWY/ACCESSMGT/SB264.shtml
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the applicable spacing standard for each zone provided. Note that these zones have different
boundaries than the corridor segments described previously because they are based on posted speed
limits rather than on land uses and roadway design.
Table 1: Study Area Access Management Spacing Standards
Posted
Access Spacing
Zone Highway Segment Classification
1
Standard (feet)
Speed
MP 30.85 to MP 31.40
Northern UGB to 265’ south of
1
Regional Hwy 45 mph 500
Industrial Avenue (roughly
corresponds to Segment 1)
MP 31.40 to MP 33.04
265’ south of Industrial Avenue to
2 Regional Hwy 35 mph 350
320’ south of Cleveland Street
(includes all of Segment 2 and most of
Segment 3)
MP 33.04 to MP 33.35
320’ south of Cleveland Street to 160’
3 Regional Hwy 45 mph 500
north of Auction Yard (includes part
of Segment 3 and part of Segment 4)
MP 33.35 to MP 33.92
160’ north of Auction Yard to
4
Regional Hwy 55 mph 990
proposed southern UGB (includes the
southern portion of Segment 4)
1.
Revised access spacing standards effective January 1, 2012.
The city of Woodburn’s adopted access management standards are outlined in the Woodburn
Development Ordinance, Section 3.104. For a major arterial street, the minimum separation of a
driveway from another intersection (street or driveway) is 300 feet. However, access to a transportation
facility under ODOT jurisdiction is subject to the requirements of OAR 734-051 (described previously),
and is not regulated by the city.
Marion County also has adopted access management standards in the Marion County Rural
Transportation System Plan, Chapter 10, that apply outside of the UGB; however, within the UGB, the
County defers to the City’s adopted spacing standards.
Access Management Plan Objectives
The purpose of the Access Management Plan is to provide a long-range, comprehensive and coordinated
strategy for accommodating access as property develops or as public improvement projects are
constructed. It is anticipated that most improvements will occur incrementally over time. The goal of the
plan is to provide clear direction and ensure progress is made toward improving the management of
access in the corridor, while allowing sufficient flexibility to accommodate future development plans.
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Successful implementation will require continued collaboration between neighboring property owners,
the City of Woodburn, Marion County, and ODOT staff.
To guide future access decisions for the study area, a set of access management objectives was
developed. These objectives reflect the Highway 99E corridor Vision and Guiding Principles, as well as
best practices and current policies and regulations pertaining to the management of access to Highway
99E. The objectives themselves are not regulatory in nature, but provide a basis for future decision-
making. These objectives guided the development of the policy and development code amendments
associated with the Corridor Plan (Appendix A and Appendix C, respectively). Given the constraints in
the study area, one or more of the following may not be applicable in all situations.
Ensure that all properties are provided reasonable access to the public street network, including
consideration of the economic development needs of each property.
Driveways to commercial businesses on Highway 99E should be designed to allow for safe and
comfortable passage, improving existing driveways to comply with ODOT design standards as
opportunities arise.
Consider locating business signage immediately adjacent to driveways to improve the ability of
15
drivers to locate them.
Provide convenient accessways for pedestrians and bicycles between the Highway 99E
commercial corridor and neighboring residential areas.
Safe and convenient pedestrian walkways should be provided between business entrances and
sidewalks along Highway 99E, minimizing conflicts between pedestrians and motor vehicles in
parking lots.
Consider prohibiting driveways or restricting turning movements to driveways adjacent to
turning pockets at intersections where necessary to maintain safe highway operations.
Seek opportunities to align driveways on opposite sides of roadways to avoid turning conflicts.
Driveways to Highway 99E should maintain adequate intersection sight distance and at a
16
minimum shall maintain safe stopping sight distance along the highway.
Reduce access points over time to move in the direction of meeting ODOT’s adopted access
management spacing standards for Regional Highways. Applicable spacing standards for each
Highway 99E access management zone are shown in Table 1 on page 25.
Create shared access points to reduce the overall number of driveways along the Highway 99E
corridor. Shared driveways must be supported through the establishment of easements allowing
for travel between adjacent properties.
15
The preferred location for business signage would be on the downstream side of the driveway, i.e. just past the driveway
from the point of view of an approaching vehicle.
16
Intersection sight distance and stopping sight distance as defined in “A Policy on Geometric Design of Highways and Streets”,
American Association of State Highway and Transportation Officials, Washington, D.C., 2004.
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Provide inter-parcel circulation through cross-over easements, frontage or backage roads, or
shared parking lots where feasible.
Utilize easements, frontage/backage roads, and lower classified city streets to allow for
secondary access to facilitate large truck and emergency service vehicle circulation.
Seek opportunities to enhance the connectivity of the local street system surrounding Highway
99E.
Recommended Actions
The Access Management Plan is anticipated to come to fruition incrementally over a long period of time
through property development/redevelopment or public construction projects. A key outcome of this
plan is a reduction in direct Highway 99E access, while maintaining the accessibility of abutting
businesses. Accomplishing this will require a combination of improvements to the public street
infrastructure as well as cooperation among neighboring properties to establish effective connections
between businesses. This could include creating agreements to establish shared driveways or parking
lots or set aside corridors for inter-parcel circulation.
Without a known source of funding or a specific public improvement project planned to follow adoption
of the Access Management Plan, the timing of any actions will be uncertain. This section provides a
general phasing structure for recommended Access Management Plan actions, broken into short,
medium, and long range time periods. This is provided to guide the implementation of the Corridor Plan
and is not intended to be strictly adhered to (i.e., a long range action may precede a short range action if
the opportunity arises).
Adopt amendments to the Woodburn Development Code needed to implement the Access
Management Plan objectives and recommended actions. (See Section VII for a summary of the
proposed changes and Appendix C for details of the proposed code language.)
Restrict turning movements at Silverton Avenue intersection with Highway 99E to right-in /
17
right-out only and at the Birds Eye Avenue intersection on Highway 214 to right-turn-in only.
Close the Silverton Avenue intersection on Highway 99E and the Birds Eye Avenue intersection
18
on Highway 214.
Establish cross-over easements to support shared driveways and inter-parcel circulation as part
of property development.
Construct pedestrian and bicycle accessways between the Highway 99E commercial corridor and
neighboring residential areas.
17
As noted previously, details of turning movement restrictions would be refined in close consultation with the business and
property owners affected prior to any changes being made.
18
As noted previously, the specific needs of the businesses in the area for vehicle access (including trucks) will be taken into
consideration during the engineering design stage prior to any roadway closures or modifications.
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Modify the George Street intersection on Highway 214 to allow only pedestrian, bicycle, and
emergency vehicle access. Prior to making this modification, a new street connection to
Highway 214 at the east end of George Street must be constructed to restore lost motor vehicle
connectivity.
Improve north-south connectivity of local streets east of Highway 99E as part of property
development or subdivision and/or by extending Cooley Road to the south, providing a
19
continuous route from Highway 211 to Highway 214 (Silverton Road).
Access Management Tools
To help implement the access management objectivesand actions described, a collection of potential
mitigation tools and measures has been provided in Appendix E. While not all applications will be
appropriate for various portions of the study area, this list will provide a menu of options for
consideration.
VIII.
Overview
The Corridor Plan will ultimately be implemented – in the sense of on-the-ground, physical changes –
through public and private investments in roadways, redevelopment, and other improvements.
However, to ensure that as investments occur incrementally over time they are consistent with the
vision for the corridor, the city should adopt policies and regulations that reflect the community’s
intentions for the Highway 99E corridor. The policy and regulatory changes recommended to
implement the Corridor Plan are summarized in this section. The details of the proposed amendments
are provided in Appendices A through C.
City of Woodburn Comprehensive Plan
The City’s Comprehensive Plan is a long-range planning document that establishes the goals and policies
to guide land use in Woodburn. The recommendations of the Corridor Plan are largely consistent with
existing Comprehensive Plan policies related to commercial lands and transportation-related policies
regarding Highway 99E.
Proposed text amendments to the Comprehensive Plan to implement the Corridor Plan include
references to the Highway 99E Corridor Plan and the new Mixed Use Village zone, policy language
regarding enhancing connectivity in keeping with the recommendations of the Corridor Plan, and the
Access Management Strategies listed in Section VII. In addition, a Mixed Use Village Overlay (MUVO)
will be added to the Comprehensive Plan map, the boundaries of which indicate the ultimate extent of
19
Because an extension of Cooley Road as described would run outside of the city’s UGB, it is included as a conceptual project
to be considered at a later date if the land in question is eventually added to the UGB. The incremental improvement of north-
south connectivity through new street connections east of Highway 99E may accomplish the same objective and eliminate the
need for Cooley Road itself to be extended.
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28
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the Mixed Use Village zone. Proposed text describes the purpose of this area, the phasing of the
rezoning, and the highway improvement trigger for the city to implement rezoning for Phase 2
properties. The proposed amendments to the Comprehensive Plan are identified in Appendix A.
Not all the parcels identified in the MUVO have a commercial Comprehensive Plan designation. In order
to widen the commercial corridor in key areas and to spur redevelopment, four parcels currently
designated Low Density Residential are recommended for re-designation to Commercial. In addition,
one parcel currently designated Public / Semi-Public will need to have a Commercial designation. (For
Comprehensive Plan land use designations within the MUVO, see Figure A1: Comprehensive Plan Map
Mixed Use Village Overlay in Appendix A.) The City will initiate a Comprehensive Plan land use
designation and map amendment for the two parcels north of Tomlin Avenue that are in Phase 1 of the
Mixed Use Village zone implementation as part of the process of adopting and applying the new zone.
(See Figure 11: Mixed Use Village Boundaries and Phasing). The remaining Residential and Industrial
parcels will have the Commercial designation and the Mixed Use Village Zoning applied as part of a later,
Phase 2 legislative action.
Woodburn Transportation System Plan
The City of Woodburn’s TSP (adopted in 2005) identifies the transportation facilities and services
needed to support the planned land uses over a 20 year planning horizon. The TSP is the transportation
element of the Comprehensive Plan. The TSP contains goals and policies (Chapter 1) and street, transit,
pedestrian, bicycle, and rail plans (Chapter 7) that guide future transportation planning in the city.
The Highway 99E Corridor Plan is a refinement plan to the City’s adopted TSP. Specific areas of the TSP
will be amended, by reference, when the Corridor Plan is adopted. Areas of the TSP that will be
amended include street cross-section standards for Highway 99E and the City’s transportation
improvement project list, which needs to be updated to reflect recommended locally-funded
transportation improvements in the corridor. A list of these improvements is included Table B1 in
Appendix B. Cost estimates (in 2011 dollars) for transportation improvement projects associated with
the Corridor Plan are also provided in Table B1 of Appendix B. Each project is numbered and its location
is shown on Figure B2. Projects have been organized to match the existing structure of the Woodburn
TSP; upon adoption of the Corridor Plan the projects listed in Appendix B will be included as projects for
20
the 2010-2020 time period. While all proposed projects are categorized in the same time frame
according to the TSP, some are likely to occur sooner than others, as reflected in Table B1.
Potential transportation project funding sources are already identified in the city’s TSP. These include
Federal, State or Marion County funds, Local Improvement Districts, Urban Renewal Districts,
Transportation Impact Fees, and General Obligation Bonds.
20
Because the TSP was adopted in 2005, it does not identify projects further into the future than 2020. In order to maintain
consistency with the structure of the existing TSP, all the projects identified in this Plan have been listed in the 2010-2020 time
frame; however, the Highway 99E Corridor Plan is a 20-year plan and projects identified in this Plan are not all be likely to occur
before 2020. Appendix B includes an indication of the likely timing of the projects identified in this Plan.
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21
Appendix B includes a complete list of expected TSP revisions.
City of Woodburn Development Ordinance
The City of Woodburn’s Development Ordinance (WDO) implements the goals, policies, and objectives
expressed in the City’s Comprehensive Plan by regulating land use and land development. Several
changes to the WDO are needed to implement the Corridor Plan. These proposed amendments are
summarized below, and the proposed changes to the existing code are included in Appendix C.
Adoption of a new zone intended to create a more pedestrian-friendly mixed use environment.
The key changes that would impact existing businesses and future (re)development within this
area are summarized below. The text of the new zone is included as Appendix C. The areas
where the new zone would be applied are shown on Figure 12 on page 33.
Adoption of amendments to section 3.101 (Street Standards) to require frontage improvements
(sidewalks and street trees only) along Highway 99E at time of development. These changes
would apply throughout the corridor, but would primarily impact property in Segments 3 and 4
where street frontages are not improved to the adopted standards.
Adoption of amendments to section 3.103 to update the “Special Setback” requirements on
Highway 99E to reflect the adopted cross-section widths (this will reduce the Special Setback in
Segments 1, 2, and 4).
Adoption of amendments to section 3.104 (Access) to apply access management standards to
development on Highway 99E through the local land use process. These standards supplement,
but do not replace, ODOT access spacing standards. The purpose of these standards is to
establish requirements for inter-parcel connectivity and connections to side streets beyond
what is required under current ODOT access policy.
Amendments to Section 3.107.06 to strengthen requirements for pedestrian walkways accessing
building entrances and to Section 3.106.03 to enhance requirements for parking lot landscaping.
Because these amendments would affect property city-wide, and therefore go beyond the scope
of this project, these changes should be considered as part of the comprehensive WDO update
currently being undertaken by the City. While the proposed changes are not recommended for
adoption as part of this planning effort, the recommended amendments are included in
22
Appendix C for reference.
One of the key recommendations of the Corridor Plan is to create a new set of land use regulations for
Segment 3 of the corridor to complement proposed roadway and streetscape improvements. The new
21
The recommendations in Appendix B specifically reference areas in the adopted TSP that will be amended through the
adoption of the Highway 99E Corridor Plan. The city may elect, upon completion of the Corridor Plan, to adopt the Corridor
Plan as a refinement plan and amend the adopted TSP by reference, but not physically amend the TSP document at this time.
22
Similar standards are included in the proposed new zone so that even if the city-wide amendments do not occur as
recommended, new development within the new zone will be subject to these standards.
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23
zone will apply in the area shown in Figure 12: Mixed Use Village Boundaries and Phasing on page 33.
Note that initially, the new zone will be applied only to a smaller area centered around the Young Street
intersection where urban renewal funding could potentially provide public investment to help spur
redevelopment. When a roadway improvement for Highway 99E is programmed, the remainder of
Segment 3 will be rezoned (with the exception of property remaining outside city limits, which would
only be rezoned upon annexation). Nearly all of the land in Segment 3 within the city limits is currently
zoned General Commercial (CG). The key differences between the existing CG zone and the proposed
zone are highlighted below.
Changes to allowed uses and impacts to existing businesses
The new zone will allow for a shift in the mix of land uses over time by prohibiting certain types of
businesses from establishing in the area. Existing businesses already established in the corridor will be
“grandfathered” and will continue to be regulated the same way they are today. No existing business
will become a non-conforming use. This approach allows existing businesses to continue to operate and
expand as they would under the existing zoning (provided that they meet or move towards meeting site
development standards required in the Mixed Use Village Zone), but ensures that new businesses that
move into the area are fully supportive of a walkable, dense commercial node, by the type of use and
the way in which new buildings are sited. The land uses that are currently permitted, but that will be
restricted from moving into the new zone in the future are identified by the words “lawfully existing as
of [adoption date of new zone]” after the use (see Appendix C, Section 2.117.02 and 2.117.03 in the
new zone). This language effectively restricts the listed use to only those that already exist. If a change
in use (as defined in the WDO) occurs on a particular property, the new use will no longer be
“grandfathered”.
Another important change to the allowed uses in the proposed new zone is that multi-family residential
development will be allowed outright, either on its own or above commercial uses as part of a mixed
use development. This change is intended to help increase density in Segment 3 and provide additional
customers within walking distance of new pedestrian-oriented businesses. Details on the types and
density of residential uses allowed are in Appendix C in Section 2.117.02.A in the new zone. Note that
residential uses will not be permitted on parcels adjacent to industrially zoned land. This restriction
applies to parcels south of Cleveland Street, east of Highway 99E (see Figure 12).
Changes to development standards for new development, redevelopment, and expansions / remodels
The new zone includes site development standards that are different from those of the existing CG
zoning. These new standards will apply to all new non-residential development in the new zone. New
multi-family residential that is not part of a mixed use development will be subject to the same
standards as multi-family development in many other areas of the city. Expansions and remodels for
existing development will generally be required to comply with the standards only for the new portion
23
Two of the parcels north of Tomlin Ave that are included in the Phase 1 rezoning to the MUV zone are currently zoned for
residential use; the remainder are zoned General Commercial. The rationale for including the residential properties is
explained on page 24.
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24
of the development, including any required new parking or landscaping.Key differences between
existing and proposed standards include:
Setbacks: Instead of a minimum setback of 15 feet with no maximum, new buildings will have
no minimum setback, and a recommended (but not required) maximum setback of 15 feet
abutting Highway 99E.
Parking location: Parking will not be allowed between the building and the street – it must be
located to the side or the rear of the building. In addition, parking must be set back from the
street as far as the building is set back (this is intended to encourage buildings to be located
close to the street), and may only take up 50% of the street frontage on Highway 99E. Parking
must always be set back at least 5 feet from a sidewalk.
Architectural design: Building façades along a street must either have façade variations or
significant window coverage to provide a visually interesting pedestrian environment. Windows
providing views of the street are also encouraged (but not required) for all buildings that will be
regularly occupied.
Outdoor storage and display: Outdoor storage and display will continue to be allowed;
however, these must be screened behind walls that meet the architectural design standards for
façade variations if located within 50 feet of a street. Display and storage areas on other parts
of the property will continue to be subject to existing screening standards.
Drive-through: Drive through / drive up facilities will be allowed in the new zone; however,
drive up windows may not be located facing Highway 99E, and drive through aisles must be
screened in the same manner as parking areas.
The details of these standards can be found in the draft proposed code language in Appendix C, in
Section 2.117.07 of the new zone.
24
There are exceptions. For example, where the area required for parking, landscaping, or loading increases by more than 25%,
all parking, landscaping, loading, screening, etc. on site must comply with the standards. However, the proposed new zone
would allow expansions or changes of use that can’t meet the new parking location standards as long as the new parking would
not increase the non-conformity.
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Figure 12: Mixed Use Village Boundaries and Phasing
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Urban Renewal Plan
The 2001 Woodburn Urban Renewal Plan is the primary policy document governing the City’s
Downtown Urban Renewal District. The Urban Renewal Plan lays out goals and objectives for the urban
renewal area, outlines the activities and projects that may be undertaken through urban renewal, and
identifies procedures for amending the plan. Corridor Plan recommendations include that the City
consider using urban renewal funding for certain projects and programs that would help implement the
Highway 99E Corridor Plan, focusing on the area around the Young Street / Highway 99E intersection.
The projects and programs identified in the Corridor Plan are consistent with the Urban Renewal Plan,
but shift the focus to another part of the URA, outside of the downtown. Any investments in this area
would need to be considered in light of overall urban renewal area goals and priorities. The following
minor amendments to the Urban Renewal Plan could be adopted by resolution and would help spur
redevelopment in the vicinity of the Young Street intersection:
Modify the boundaries slightly in the vicinity of the Young Street intersection to best capture
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opportunities for a catalyst redevelopment project.
Open up the storefront improvement program to properties within the area proposed for Phase
1 of the new zone application. Target businesses whose existing buildings are located close to
the street, but not within the area that will be needed for expanded right-of-way.
Consider using urban renewal funding to invest in streetscape improvements on Highway 99E
and/or Young Street, such as sidewalk improvements or lighting, in the vicinity of the Young
Street / Highway 99E intersection. Improvements on Highway 99E would require approval from
and coordination with ODOT.
In addition to the Urban Renewal Plan, the Downtown Development Plan, updated in 2010, identifies
potential projects for the downtown urban renewal area. The 2010 update includes a proposed
Gateway project at the Young Street intersection, where several adjacent properties are part of the
existing Downtown Urban Renewal District, to be undertaken by the city in the 3-5 year timeframe.
Elements of this Gateway project are detailed in the Downtown Development Plan and include land
assembly and acquisition in preparation for a mixed-use project that is at least 5 acres in size. The
Corridor Plan is consistent with this proposed project.
Marion County
The Highway 99E Corridor Plan guides future development along the length of Highway 99E through the
City of Woodburn. Not all land within this area is within the city limits; in the northern and southern
portions of the corridor there are parcels that are under the jurisdiction of Marion County. As discussed
in the previous section and shown in Figure 10, some of the parcels currently outside of the city limits
are within the area proposed for new Mixed Use Village zoning. Marion County is the land use authority
for development approval on parcels outside city limits. Because the new zone is not proposed to be
applied until these County parcels annex to the City of Woodburn, there is the possibility that these
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Increases in the Urban Renewal Area boundary of less than 1% of the total area can be approved by the City Council as a
Minor Amendment.
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parcels will (re)develop prior to annexation, consistent with their existing zoning and in conformance
with the County’s Urban Zone Code.
While staff from the County participated in the Technical Advisory Committee for the Corridor Plan, they
have indicated that there are few County facilities that would be impacted by the Corridor. Therefore,
following adoption of the Plan by the City of Woodburn, Marion County is expected to acknowledge the
Corridor Plan rather than adopting the Plan into the County TSP. Regardless of County action on the
Plan, however, the adoption of the Highway 99E Corridor Plan by the City of Woodburn and the
amendments to the City’s TSP described previously will apply to the full length of the corridor that lies
within Woodburn’s Urban Growth Boundary, even to those areas outside City limits. The County’s
relationship with the cities that lie within the County is summarized under the Transportation System
Planning Policies in the Transportation Element of the County’s Comprehensive Plan: “Within the urban
growth boundary of an incorporated city, Marion County Public Works will apply roadway design
standards and criteria in the Transportation System Plan (TSP) adopted by that city, except in cases
where in the engineering judgment of the County Public Works Department, it would not be appropriate
to do so.” The “Rural and Urban transportation Planning” heading in the RTSP provides similar guidance:
“City transportation plans start where the RTSP ends, at the urban growth boundaries. Since many of the
main city streets are maintained by Marion County, the County has a vested interest in the
transportation planning process for each community. The County also recognizes that the needs, goals
and visions vary from city to city. For these reasons, the County works with each city individually to
determine the transportation plan most appropriate for that community, rather than developing one
countywide urban plan to encompass all urban areas.”
ODOT
The Highway 99E Corridor Plan does not recommend any highway design exceptions or alternate
mobility standards for the corridor- the Plan meets existing ODOT policies and standards. ODOT
considers the Highway 99E Corridor Plan as a refinement plan of the City’s Transportation System Plan.
Because of this, no formal action by ODOT is required to approve the Plan. It is important to note,
however, that ODOT staff has participated in the development and analysis of corridor alternatives and
the identification of the Preferred Highway 99E Corridor alternative through staff participation on the
Technical Advisory Committee.
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Appendix A:
Comprehensive Plan
Amendments
75
76
The following proposed Comprehensive Plan amendments acknowledge and reference the Highway 99E
Corridor Plan as the guiding policy document for this important facility. These modifications update city
policies to reflect the intent and outcomes of the planning process that will result in an adopted
Highway 99E Corridor Plan. Language recommended for addition to the Comprehensive Plan is double
underlined and language recommended for removal is struck through.
A. Comprehensive Plan Designations and Implementation
The Land Use Plan
The Comprehensive Plan is based on the recent land use inventories, updated land needs analyses, and the
revised goals and policies in this Comprehensive Plan. The Comprehensive Plan represents the most
practical arrangement of land uses, considering existing development patterns and the future vision for
Woodburn, as embodied in the revised goals and policies.
Comprehensive Plan Designations
Woodburn has six principal comprehensive plan map designations, and twothree overlay designations,
with corresponding zoning districts:
Policy Table 1: Comprehensive Plan Designations and Implementing Zoning Districts
Density
Range
(Units Per
Net
Comprehensive Plan Buildable Minimum Lot Sizes or Unit
DesignationImplementing Zoning District(s)Acre)Area in Square Feet
Low Density RSSingle Family Residential 5.2-7.26 6,000 Interior Lot
Residential 8,000 Corner Lot
10,000 Duplex Lot
R1S
Retirement Community SFR Not 3,600 Interior Lot
Applicable 3,600 Corner Lot
RSN
Nodal Development Nodal Development SFR 7.9-10.89 4,000 Interior Lot
Overlay 4,500 Corner Lot
Medium Density RM Medium Density Residential 10-162,720 Per M-F Unit
Residential 10,000 Duplex Lot
RMN
Nodal Residential 1,980 Per M-F Unit
Nodal Development 10-228,000 Duplex Lot
Overlay (NDO) 3,000 Interior Rowhouse
3,600 Corner Rowhouse
Commercial CGGeneral Commercial Not applicable
DDC
Downtown Development and
Conservation
CO
Commercial Office
NCN
Nodal Development Nodal Neighborhood
Overlay (NDO) Commercial
MUV
Mixed Use Village Mixed Use Village
Overlay (MUVO)
Industrial IPIndustrial Park Not applicable
LI
Light Industrial
SWIR
Southwest Industrial Southwest Industrial Reserve
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Reserve Overlay
(SWIR)
Open Space and Parks RCWODRiparian Corridor and Not applicable
Wetlands Overlay District
P/SP
Public Semi-Public
Public Use P/SPPublic Semi-Public Not applicable
Note: The net buildable area of a parcel excludes land dedicated for public rights-of-way or stormwater easements,
common open space, and unbuildable natural areas. For example, if a parcel has 10 acres, and 2 acres are removed
for streets and 2 acres are within the floodplain / riparian area, then 6 net buildable acres would remain. The range
of allowable densities is calculated based on net buildable acres. An acre has 43,560 square feet. Allowable
densities may be increased through the discretionary planned unit development review process.
Plan Implementation
Any comprehensive plan depends on implementation to accomplish the goals and policies established in
the plan. Cities have amassed a battery of ordinances to accomplish this purpose. Some ordinances have
been more successful than others and in time, no doubt, new methods and techniques will be developed.
Implementation should be a continual review of existing ordinances to ensure that they are accomplishing
the purposes for which they were originally designed. The City recognizes that over time many of the
ordinances which are suggested in this plan will be amended and perhaps entirely replaced by new
concepts. As long as the ordinance which is developed implements the goals and policies of the plan, a
change should not be necessary. However, at a minimum, the City should have basically the following
ordinances to implement the plan.
Zoning
…
Subdivision and Planned Unit Development Ordinances
…
Site Plan Review
…
Sign Ordinance
…
Transportation Plan
The Transportation System Plan (TSP) (2005) was revised to reflect changes in population, employment
and land use adopted in the Woodburn Comprehensive Plan (2005). The 2005 TSP includes goals and
objectives, forecasts traffic growth in the City, and identifies transportation improvements needed to
satisfy the forecasted growth. The plan:
Establishes the functional classification of roads and streets
Establishes street standard for each functional classification
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Evaluates interchange alternatives
Establishes alternative modes of transportation
Meets the Oregon Transportation Planning Rule
The Highway 99E Corridor Plan was adopted in 2012 to provide more detailed guidance about needed
transportation improvements, appropriate land uses, and the urban design vision for the section of
Highway 99E running through the City of Woodburn. The Corridor Plan amends and supplements the
2005 TSP and provides more specific guidance related to transportation improvements and design in the
Highway 99E corridor.
Capital Improvement Plans
…
Downtown and Urban Renewal
One of the main problems with land use and economy in the City has been the stagnated downtown area.
In response, the City adopted a downtown development plan and on Urban Renewal Agency and Plan.
The Urban Renewal Plan is a primary vehicle for revitalizing the Downtown area, including goals and
policies addressing financial assistance programs, citizen involvement, and physical improvements. The
downtown Development Plan was adopted as an element of the Comprehensive Plan.
Housing Codes
…
Flood Hazard Zone
…
Historical Site Zone
…
Housing Goals and Policies
…
Policies
…
D-2.2 It is the policy of the City to encourage a variety of housing types to accommodate the demands of
the local housing market. In Woodburn, the following needed housing types shall be allowed, subject to
clear and objective design standards, in the following zoning districts:
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Policy Table 2: Needed Housing Types and Implementing Zoning Districts
Needed Housing Type Implementing Zoning District(s)
Single Family Detached Residential RSSingle Family Residential
RS1
Retirement Community SFR
RSN
Nodal Development SFR
Manufactured Dwellings RSSingle Family Residential
RS1
On Individual Lots Retirement Community SFR
RM
In Parks Medium Density Residential
Attached Single Family Residential RMNNodal Residential
MUV
(Row Houses) Mixed Use Village
Duplexes On Corner LotsRSSingle Family Residential
RM
Generally Medium Density Residential
Multi -Family RMMedium Density Residential
RMN
Generally Nodal Residential
DDC
Above Downtown Development and Conservation
NNC
Commercial Nodal Neighborhood Commercial
MUV
Mixed Use Village
Government Assisted Housing* These “housing types” are based on financing or tenure, and are not
Farm Worker Housing* regulated by the City. If the housing type (e.g., single family,
Rental Housing* manufactured dwelling, attached single family, duplex, or multi-
family) is allowed in the underlying zoning district, these“housing
types” are allowed subject to applicable design standards.
F. Commercial Land Development and Employment
Commercial Land Designations
…
The second large commercial area that developed in the City is the commercial strip along Highway 99E.
The A history of commercial strip zoning along 99E has caused many problems in the City of Woodburn.
This is because this type of development is the leastefficient use of commercial land and highway
frontage. To improve the efficiency of the commercial land and enhance the appearance and vitality of
this important commercial area, the City undertook the development of a plan for the corridor.The
resulting Highway 99E Corridor Plan, adopted in 2012, will guide future development and redevelopment
in the 99E corridor. Woodburn The Citywill work withproperty owners towards redeveloping this area
in the futurein line with the vision established in the Corridor Plan. By limiting the supply of vacant
“green field” commercial land within the UGB, redevelopment of underutilized strip commercial lands is
more likely to occur. Access controlpolicies shall be observed when street improvements occur.
…
The fourth commercial area is the Highway 214/211/99E "Four Corners" intersection. This area has
become an important commercial district within theCity. This "Four Corners" area serves as a more local
retail service center. Thiscommercial district could realize more development in the future. In this area
development should be intensified so as to not create another commercial strip development.
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Commercial Lands Goals and Policies
Goal
F-1. Encourage infill and redevelopment of existing commercial areas within the community, as
well as nodal neighborhood centers, to meet future commercial development needs.
Policies
…
F-1.4 Architectural design of commercial areas should be attractive with a spacious feeling and enough
landscaping to reduce the visual impact of large expanses of asphalt parking areas. Nodal and mixed use
village commercial areas should be neighborhood and pedestrian oriented, with parking to the rear or side
of commercial buildings, and with pedestrian connections to neighboring residential areas.
…
F-1.10 The Highway 99E commercial corridor south of Lincoln should be redeveloped over time with
more intense mixed use development. The Mixed Use Village Overlay(MUVO)designates an area that
is intended to promote efficient use of land and urban services; create a mixture of land uses that
encourages employment and housing options in close proximity to one another; restrict land extensive
commercial, storage, and industrial uses; and encourage pedestrian-oriented development.
F-1.11 In order to spur desired development and redevelopment within the MUVO, and consistent with
the recommendations of the Highway 99E Corridor Plan, the City will apply the Mixed Use Village zone
ina strategic area in the vicinity of theYoung Street intersection.
F-1.12 The city shallinitiate a legislative zone change to designate remaining land within the area
designated MUVO and within the City limitsas MUV at such time as ODOT includes a project to
improve Highway 99E south of Lincoln in the Development Statewide Transportation Improvement
Program (DSTIP).
F.1.13 Property owners within the MUVO and within the City limits may petition the City to initiate a
legislative zone change to MUV for their property at any time.Land outside City limits within the
MUVO shall be zoned MUV upon annexation.
F-1.14 The City intends to beautify the Highway 99E commercial corridor through measures such as
replacement of overhead power and telephone lines with underground utilities, enhancing street lighting
in the corridor, providing for non-conforming sign amortization, providing enhanced streetscape
furnishings in key pedestrian areas, and establishing a storefront improvement program. The City will
explore options to fund such improvements, including its Capital Improvement Program, formation of a
Local Improvement District, and Urban Renewal funds.
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H. Transportation
Transportation Goals and Policies
Woodburn amended its Transportation System Plan (TSP) in coordination with Marion County, the
Department of Land Conservation and Development (DLCD) and the Oregon Department of
Transportation (ODOT) as part of its 2005Periodic review package. The goals and policies listed below
have been amended consistent with the 2005 TSP. A new “Marion County Coordination” subsection is
added to ensure coordination with the Goals and Policies of the Marion County Growth Management
Framework Plan.
Goal
H-2. Develop a street system that will handle projected year 2020 traffic demands in the Woodburn
area, and interconnects residential areaswith employment centers, schools, parks, churches, and
regional transportation facilities.
Policies
…
H-2.2 Work with ODOT to develop and implement strategies for improving state facilities within the
City. Develop a strategy for improving Oregon 219/214, and 211, and 99Ethrough Woodburn, including
added travel lanes, signalization, andaccess management. Work with ODOT to implement the Highway
99E Corridor Plan to improve Highway 99E.
H-2.3 Identify new east-west and north-south collector/minor arterial streetswithin the City to relieve
traffic demands on Oregon 219/214, 211, and 99E and coordinate with Marion County to construct the
street connections needed outside of the urban growth boundary (UGB). Where development of new
collector/minor arterial streets is not possible within the near future, such as when an alignment runs
outside of the UGB, work with property owners during subdivision to provide local street connections to
improve connectivity in the interim.
…
Goal
H-3. Develop transportation improvements that address overall trafficsafety in the Woodburn
area.
Policies
H-3.1 Work with ODOT to improve safety on state facilities within the City. Develop access
management strategies for Oregon 219/214, and 211, and 99E through Woodburn, particularly focusing
on the section of Oregon 214 between Interstate 5 (I-5) and Cascade Drive, and Oregon 99E south of
Lincoln Avenue. Work with ODOT and property owners through the redevelopment process to improve
access management on Highway 99E in accordance with the access management strategies identified in
the Highway 99E Corridor Plan.
…
Goal
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H-6. Coordinate with Marion County in planning for a safe and efficient county-wide
transportation system by:
(a) Encouraging use of alternative modes of transportation including mass transit, bicycling,
walking and carpooling; and
(b) Addressing transportation needs appropriate to both urban andrural areas throughout the
county.
Policies
…
H-6.4 Woodburn should provide for a complementary mix of land uses and transportation systems by
providing for mixed use development in the Downtown Development and Conservation (DDC), the
Mixed Use Village (MUV), and the Nodal Development Overlay (NDO) districts.
…
Goal
H-7. Coordinate with the Oregon Department of Transportation (ODOT) to maintain highway and
intersection capacity, safety and functionality by:
(a) Developing and adopting performance standards; and
(b) Prohibiting comprehensive plan amendments that do not meetadopted performance standards.
Policies
…
H-7.3 To ensure safety and long-range mobility on Highway 99E, the City shall be guided by the
following access management objectives:
(a)Ensure that all properties are provided reasonable access to the public street network, including
consideration of the economic development needs of each property.
(b)Driveways to commercial businesses on Highway 99E should be designed to allow for safe and
comfortable passage, improving existing driveways to comply with ODOT design standards as
opportunities arise.
(c)Consider locating business signage immediately adjacent to the downstream side of driveways to
improve the ability of drivers to locate them.
(d)Provide convenient accessways for pedestrians and bicycles between the Highway 99E
commercial corridor and neighboring residential areas.
(e)Safe and convenient pedestrian walkways should be provided between business entrances and
sidewalks along Highway 99E, minimizing conflicts between pedestrians and motor vehicles in
parking lots.
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(f)Consider prohibiting driveways or restricting turning movements to driveways adjacent to turning
pockets at intersections where necessary to maintain safe highway operations.
(g)Seek opportunities to align driveways on opposite sides of roadways to avoid turning conflicts.
(h)Driveways to Highway 99E should maintain adequate intersection sight distance and at a
minimum shall maintain safe stopping sight distance along the highway.
(i)Reduce access points over time to move in the direction of meeting, ODOT’s adopted access
management spacing standards for Regional Highways.
(j)Create shared access points to reduce the overall number of driveways along the Highway 99E
corridor. Shared driveways must be supported through the establishment of easements allowing
for travel betweenadjacent properties.
(k)Provide inter-parcel circulation through cross-over easements, frontage or backage roads, or
shared parking lots where feasible.
(l)Utilize easements, frontage/backage roads, and lower classified city streets to allow for secondary
access to facilitate large truck and emergency service vehicle circulation.
(m)Seek opportunities to enhance the connectivity of the local street system surrounding Highway
99E.
H-7.4 The City will actively participate in developing strategies and solutions to mitigate impacts to
property owners that may result from implementing future highway design and planned built
improvements.
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The Comprehensive Plan map will be amended to include the Mixed Use Village Overlay (MUVO), which
indicates the ultimate extent of the planned Mixed Use Village. The area that will be designated with
the MUVO is shown in Figure A1. In addition, the Comprehensive Plan designation for parcels currently
Industrial or Low Density Residential within the MUVO, will need to be amended to Commercial.
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Figure A1: Comprehensive Plan Map Mixed Use Village Overlay
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Appendix B:
Transportation System Plan
Amendments
87
88
To facilitate the implementation of improvements identified through the Woodburn Highway 99E
Corridor Plan, the following amendments are recommended to the Woodburn Transportation System
26
Plan (TSP).
Street design standards are shown in Figure 7-2 and discussed on page 7-3 of the TSP. However, these
standards are only applicable to city streets. Therefore, the street design standards shown in Figure B1
are to be applied to Highway 99E.
The intermediate to long-term (approximately 2010-2020) project identified for Oregon 99E on page 7-5
of the TSP is replaced with the following project:
Highway 99E: As redevelopment occurs in the corridor, upgrade to be compliant with the design
standards for Highway 99E provided in Figure B1. This would ensure continuous pedestrian and
bicycle facilities along the corridor as well as the implementation of access management
27
strategies.
The following projects are added to the 2010-2020 project list on page 7-5 of the TSP:
Restrict turn movements and eventually close the Silverton Avenue intersection on Highway 99E
and vacate the segment of Silverton Avenue between Highway 99E and Bird’s Eye Avenue.
Restrict turn movements and eventually close the Birds Eye Avenue intersection on Highway 214
and vacate the segment of Birds Eye Avenue between Highway 214 and Silverton Avenue.
Work with ODOT to develop and implement a Traffic Management Plan for the Highway 99E
corridor that responds to increased congestion resulting from incidents on I-5 and regional
events.
Update roadway lighting to meet ODOT roadway lighting standards.
Coordinate the traffic signals on Highway 99E from Hardcastle Avenue through Cleveland Street.
Signals should be interconnected and signal timings should be optimized.
Construct an additional westbound lane on Young Street at the intersection with Highway 99E to
accommodate separate left, through, and right turn lanes (additional right-of-way will likely be
required).
Implement protected-permissive left turn phasing on the eastbound and westbound approaches
of Young Street at the intersection with Highway 99E.
26
Woodburn Transportation System Plan, Volume 1 Text, October 2005.
27
In the stretch of highway between MP 33.08 and 33.19, where the roadway will transition from a five-lane cross-section to a
three-lane cross-section, dedication of the full 100 feet of right-of-way is recommended to allow for engineering of the
transition as needed; however, installing sidewalks and other improvements at their final locations will likely not be feasible if
engineering drawings for the highway improvement have not been completed.
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Close the intersection of George Street at Highway 214 to through motor vehicle travel, leaving
it accessible by pedestrians, bicycles, and emergency vehicles only. This project shall not be
constructed prior to the project that would construct a new local street connecting George
Street to Highway 214 just west of the urban growth boundary (see New Streets, project (a)).
The following projects are added to the intermediate to long-term (next 10-15 years) project list on page
7-6 of the TSP:
Construct a new local street connecting George Street to Highway 214 just west of the eastern
urban growth boundary.
Enhance north-south connectivity of local streets paralleling the Highway 99E corridor as part of
property development or subdivision and/or by extending Cooley Road from Hardcastle Avenue
28
to Highway 214.
The pedestrian plan described on pages 7-9 and 7-10, as well as Figure 7-3, of the TSP is amended to
include the following projects:
Install countdown pedestrian timers and construct ADA enhancements at signalized
intersections along Highway 99E.
Construct curb extensions to shorten pedestrian crossing distances on approaches to Highway
99E where appropriate (no curb extensions are to be constructed that would narrow the width
of Highway 99E itself). Street approaches where curb extensions should be considered include:
Alexandria Avenue, James Street, Williams Street, Blaine Street, Aztec Drive, Laurel Avenue, and
Tomlin Avenue.
Provide pedestrian and bicycle access to Highway 99E from adjacent residential neighborhoods.
This will require development of accessways and obtaining easements. Pedestrian/bicycle
accessways must include a paved surface of at least 10 feet wide with a minimum vertical
clearance of 10 feet. Potential locations for pedestrian/bicycle accessways connecting to
Highway 99E include: from June Way (near the Audrey Way intersection), from Johnson Street,
from Elm Street, from Wilson Street, and from Hawley Street (possibly part of future street
extension).
Construct enhanced pedestrian crossings of Highway 99E. Identification of crossing locations
should occur through collaborative efforts with the community and the Oregon Department of
Transportation. The maximum potential for enhanced pedestrian crossing locations is estimated
to include: three crossings between Mt Hood Avenue and Hardcastle Avenue, one crossing
between Hardcastle Avenue and Lincoln Street, and three crossings between Lincoln Street and
28
Because an extension of Cooley Road as described would run outside of the city’s UGB, it is included as a purely conceptual
project to be considered at a later date if the land in question is eventually added to the UGB. The incremental improvement of
north-south connectivity through new street connections east of Highway 99E may accomplish the same objective and
eliminate the need for Cooley Road itself to be extended.
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Young Street. Recommended crossing treatments include, but are not limited to: installing
pedestrian-actuated rectangular rapid flashing beacons (lights and signs that warn, but do not
stop traffic when a pedestrian is trying to cross), median refuge islands (raised islands in the
center of the roadway that provide a sheltered area where pedestrians can wait for gaps in
29
traffic), and improved street lighting.
Cost estimates (in 2011 dollars) for recommended transportation improvement projects included in this
amendment to the Woodburn TSP are provided in Table B1, and can be seen in Figure B2. Projects have
been organized to match the existing structure of the Woodburn TSP; as such, the projects listed in
30
Table B1 would be included as projects for the 2010-2020 time period.
While all projects are categorized in the same time frame according to the TSP, there may be
opportunities to advance some projects earlier. Potential phasing could include:
Short Term (0-5 years): Project No. 1, 2, 3, 4, 5, and 6
Medium Term (5-10 years): Project No. 7, 8, 9, 10, 11 and 12
Long Term (10-20 years): Project No. 13, 14, 15, 16
Potential funding sources have been identified in the City’s TSP. These sources could include Federal,
State or Marion County funds, Local Improvement Districts, Urban Renewal Districts, Transportation
Impact Fees, and General Obligation Bonds.
29
Note that Oregon law requires a motorist to stop for an extended period while pedestrians are crossing a street. Oregon law
also prohibits vehicles from standing or parking on railroad tracks. The placement of a marked crosswalk across Highway 99E, a
facility with high traffic volumes, must be executed in such a way that avoids queuing over the existing railroad track just north
of Cleveland Street. ODOT Rail Division opposes a crosswalk at Cleveland Street because of queuing concerns, unless the
intersection is fully signalized for vehicles and pedestrians and those signals are interconnected with the crossing signals. If a
crosswalk precedes the installation of the planned signalized intersection, the crosswalk should be a minimum of 150 feet from
the crossing.
30
Because the TSP was adopted in 2005, it does not identify projects further into the future than 2020. In order to maintain
consistency with the structure of the existing TSP, all the projects identified in this Plan have been listed in the 2010-2020 time
frame; however, the Highway 99E Corridor Plan is a 20-year plan and projects identified in this Plan are not all be likely to occur
before 2020. Appendix B includes an indication of the likely timing of the projects identified in this Plan.
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Figure B1: Street Design Standards for Highway 99E
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Table B1: Cost Estimates for Proposed Transportation Improvements
Project
Estimated Owning
Project Title
No. Capital Cost* Jurisdiction**
Ten to Fifteen Years (2010-2020)
Tier 1: Short Term Projects
Restrict turning movements and eventually close Silverton Avenue
1
$16,000 State/City
intersection with Highway 99E
Restrict turning movements and eventually close Birds Eye Avenue
2
$23,000 State/City
intersection with Highway 214
3 Implement Traffic Management Plan for Highway 99E corridor $45,000 State
Install pedestrian countdown timers and construct ADA ramps at
4
$110,000 State
signalized intersections on Highway 99E (3 intersections)
Construct curb extensions on select approaches to Highway 99E -
5
$60,000 State/City
parallel to highway, not narrowing highway (8 intersections)
6 Construct enhanced pedestrian crossings along Highway 99E (7 total) $280,000 State
Tier 2: Medium Term Projects
Coordinate Highway 99E traffic signals from Hardcastle Avenue to Young
7 $55,000 State
Street (and future Cleveland Street signal)
Improve Highway 99E/Young Street intersection to add a westbound
8 lane (providing separate left, through, and right lanes) and protective-$550,000 State
permissive left turn phasing on eastbound and westbound approaches
Close George Street intersection with Highway 214, maintaining passage
9
$60,000 State/City
for pedestrians, bicycles, and emergency vehicles
Construct new local street connecting George Street to Highway 214
10
$425,000 City
just west of the eastern UGB
11 Extend Mill Creek corridor off-street pathway to Belle Passi Road $840,000 County/City
Construct pedestrian/bicycle accessways between Highway 99E and
12
$675,000 City
residential areas (total of 5 locations – highly variable costs)
Tier 3: Long Term Projects
Highway 99E widening from Lincoln Street to 1,150 feet south of
13 $7,150,000 State
Cleveland Street
Highway 99E widening from 1,150 feet south of Cleveland Street to
14 $5,130,000 State
proposed southern UGB
Improve roadway lighting along Highway 99E corridor (assumed 60% of
15 $2,110,000 State
corridor)
Enhance north-south connectivity of local streets paralleling the
16 $8,270,000 County/City
Highway 99E corridor as part of property development or subdivision
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and/or by extending Cooley Road from Hardcastle Avenue to Highway
214 ***
Grand Total $25,799,000
Notes:
* Cost estimates are in 2011 dollars.
** Owning Jurisdiction does not necessarily indicate the likely funding source for the improvement. In some cases,
private development or other funding sources may contribute part or all of the cost of the improvement.
*** Because an extension of Cooley Road would run outside of the city’s UGB, it is included as a conceptual project
to be considered at a later date if the land in question is eventually added to the UGB. The incremental
improvement of north-south connectivity through new street connections east of Highway 99E may accomplish
the same objective and eliminate the need for Cooley Road itself to be extended.
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Figure B2: Proposed Transportation Improvements
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Appendix C:
Amendments to Woodburn
Development Ordinance
97
98
The table below presents proposed draft code language for the new Mixed Use Village zone to
implement the land use changes associated with the preferred alternative. The proposed code language
is shown in the left-hand column; additional information about the background and rationale for the
proposed language is shown in the right-hand column.
Proposed Language Commentary
2.117Mixed Use Village (MUV)The new zone would become its own chapter in
the WDO. For convenience, it has been
numbered with the next available section
number; however, the city may prefer to
incorporate it after the other commercial /
mixed use zones (e.g. 2.109) and renumber the
subsequent chapters.
2.117.01Purpose Purpose language borrows from existing
language in CG, DDC, and NNC as appropriate.
The Mixed Use Village zone is intended to promote
efficient use of land and urban services; create a mixtureof
land uses that encourages employment and housing options
in close proximity to one another; restrict land extensive
commercial, storage, and industrial uses; and encourage
pedestrian-oriented development. This zone is intended to
be accessible to pedestrians and bicyclists, as well as
automobiles.
2.117.02Permitted Uses The city is in the process of updating the
development code, and is likely to make
The following uses, when developed under the applicable
changes to the way permitted uses are
development standards of the WDO, are permitted in the
organized and defined (such as moving away
MUV zone.
from the use of NAICS codes to define land
uses). Those changes are not reflected in the
sections below because the new zone must be
able fit into the existing code when it is
adopted. However, it is anticipated that the
organization of the permitted / conditional uses
may be modified along with the other zones as
part of the comprehensive code overhaul
project.
A. Residential Allows the following residential usesnot
currently allowed in CG:
The following residential uses are permitted in the MUV
Stand-alone multi-family at 12-32
1
zone:
DU/acre
Residential as part of vertical mixed
1. One dwelling unit in conjunction with a commercial use.
use at up to 32 DU/acre (no minimum)
Single-family attached at 12-24
2. Multiple-family dwelling units at a net density of
DU/acre
between 12 and 32 dwelling units per acre.
Nursing and assisted care facilities
3. Multiple-family dwellings built as part of a vertical
A footnote restricting residential uses next to
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Proposed Language Commentary
mixed use development at a maximum net density of 32 employment uses south of Cleveland will need
to be included in Section 2.117.02 Permitted
dwelling units per acre.
Uses.
4. Attached single-family residences at a net density of 12
to 24 dwelling units per acre
5. Nursing care facilities.
6. Assisted care facilities.
1
Residential uses are not permitted on parcels adjacent to
industrially zoned land. This restriction applies to parcels
south of Cleveland Street, east of Highway 99E.
B. Special Trade Contractors Allows existing special trade contractors to
continue as permitted uses. Differs from the CG
1. Plumbing, heating and air-conditioning contractors
in that new special trade contractors are not
lawfully existing as of [adoption date of new zone].
permitted to locate in the zone. Outdoor
storage and display are regulated through
2. Paper and wall coving contractors lawfully existing as of
development standards.
[adoption date of new zone].
3. Masonry, drywall, insulation and tile contractors lawfully
existing as of [adoption date of new zone].
4. Floor laying contractors lawfully existing as of [adoption
date of new zone].
5. Roofing, siding, and sheet metal construction contractors
lawfully existing as of [adoption date of new zone].
6. Glass and glazing contractors lawfully existing as of
[adoption date of new zone].
7. Building equipment and other machinery installation
contractors lawfully existing as of [adoption date of new
zone].
8. Ornamental ironwork contractors lawfully existing as of
[adoption date of new zone].
C. Manufacturing Allows existing manufacturers of fabricated
metal products and furniture to continue as
1. Fabricated metal product manufacturing when located
permitted uses provided that they are located
entirely within a building and lawfully existing as of
entirely within a building. Differs from the CG
[adoption date of new zone].
in that new manufacturers of fabricated metal
products and furniture are not permitted to
2. Household and institutional furniture and kitchen cabinet
locate in the zone.
manufacturing when located entirely within a building and
lawfully existing as of [adoption date of newzone].
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Proposed Language Commentary
D. Retail Trade Modifications from the CG zone include:
Allowing bakeries and printing and
1.Bakeries.
related support activities, as in DDC
and NNC
2.Printing and related support activities
Outdoor display and storage is
regulated through development
3. Automotive parts without installation.
standards rather than for particular
uses
4. Furniture and home furnishings.
Allows used merchandise stores
outright rather than conditionally
5. Electronics and appliance stores.
6. Building materials and garden equipment and supplies.
7. Food and beverage stores.
8. Health and personal care stores.
9. Clothing and accessory stores.
10. Sporting goods, hobby, book and music stores.
11. General merchandise stores.
12. Misc. retail EXCEPT manufactured (mobile) home
dealers.
CTransportation & Warehousing Makes customer-oriented transit facilities
permitted outright (other facilities associated
1.Postal service.
with transit were conditional uses and are no
2. Transit stops, stations, and related facilities.
longer permitted). Note that none of the terms
used in sub-section 2 are currently defined in
the code.
D. Information Same as in CG
1. Publishing.
2.Motion picture theaters EXCEPT drive-ins.
3.Radio and TV.
4. Cable networks.
5. Telecommunications. EXCEPT telecommunication
facilities subject to Section 2.204.03.
6. Information and data processing.
E. Finance and Insurance Allows pawn shops (same language as DDC)
1.Finance and insurance EXCEPT check cashing, pay day
loan and cash transfer establishments [other than banks] as
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Proposed Language Commentary
a predominant, ancillary, or required supporting use.
F. Real Estate and Rental and Leasing
Allows a slightly wider range of rental and
leasing uses than the CG zone. Regulates
1.Real estate.
outdoor display and storage through
2. Rental and leasing.
development standards.
G. Professional, Scientific & Technical Services Allows all the same uses as CG, but allows
indoor vet services and Scientific Research and
1. Professional, Scientific, and Technical Services
Development Services (5417) outright rather
EXCEPT veterinary service not located entirely within a
than conditionally.
building.
H. Administrative & Support Services Same as CG
1.Administrative and support services INCLUDING
employment, travel and investigation.
2.Management and corporate offices
I. Educational Service Somewhat more permissive than CG -allows
colleges & universities and most other
1.Educational services both public and private, EXCEPT
educational services except flight training or
Flight Training and Automobile Driving Schools.
automobile driving schools.
J. Health Care &Social Services Same as CG
1.Ambulatory health care EXCEPT Ambulance service.
2.Social services INCLUDING child day care services.
K. Arts, Entertainment & Recreation Similar to CG, but slightly different (allows
amusement arcades, does not allow spectator
1. Performing arts, EXCEPT spectator sports.
sports).
2. Museums and historic sites EXCEPT zoos.
3. Amusement arcades.
4. Fitness and recreational sports.
5. Bowling centers.
6. Other amusements INCLUDING ballrooms.
7. Community center.
L. Accommodation & Food Service Similar to CG, but slightly more permissive on
accommodations (allows hostels and cabins and
1. Traveler accommodation, EXCEPT casino hotels
cottages for tourist accommodation), and
slightly more restrictive on food service (does
2.Food service and drinking places EXCEPT food
not allow food contractors).
contractors and mobile food service.
M. Other Services Similar to CG, with the following differences:
Allows existing electronic and precision
1. Consumer Electronics Repair and Maintenance
equipment repair (8112) to continue as
a permitted use, but doesn’t allow new
2. Electronic and precision equipment repair, EXCEPT
electronic and precision equipment
consumer electronics repair and maintenance, lawfully
repair uses except for consumer
electronics repair.
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Proposed Language Commentary
existing as of [adoption date of new zone].
Prohibits newelectric motor repair,
but allows existing uses to continue as
3. Electric motor repair entirely within a building and
permitted uses.
lawfully existing as of [adoption date of new zone].
Allows Home goods repair (8114)
EXCEPT upholstery (81142) and leather
4. Home goods repair EXCEPT upholstery and leather
repair (81143) outright rather than
repair.
conditionally.
5.Personal care services INCLUDING barber shops and
beauty salons.
6. Personal and Household Goods Repair and Maintenance
7.Funeral home.
8. Dry cleaning and laundry service EXCEPT linen supply.
9.Photo finishing.
10.Parking lots and garages EXCEPT extended vehicle
storage.
11.All Other Personal Services INCLUDING bail bonding
and consumer buying services.
12. Religious, civic, professional and similar organizations.
N. Public Administration Same regulation as CG, but using same
language as DDC
1.Public administrationINCLUDING government offices,
courts, and police and fire stations.
O. Streets and Utilities Same as in CG
1.Rights of way and easements and the improvements
therein for streets, water, sanitary sewer, gas, oil, electric
and communication lines and for storm water facilities and
for pump stations.
2.117.03 Special Permitted Uses Same language as CG
The following uses, when developed under the applicable
development standards of the WDO including the special
development standards of Section 2.203, are permitted in
the MUV zone:
A. Craft industries subject to Section 2.203.07. Differences from CG zone:
B. Delivery services subject to Section 2.203.08.
Allows Craft industries as a special use
(like DDC)
C. Facilities during construction subject to Section
Leaves out complementary residential
2.203.10.
use since it is unnecessary with
D. Temporary outdoor marketing and special events subject
residential uses allowed outright
to Section 2.203.19.
2.117.04 Conditional Uses Same language as CG
The following uses may be permitted in the MUV zone
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Proposed Language Commentary
subject to the applicable development standards of the
WDOand the conditions of conditional use approval:
A. Retail Trade The uses under this heading are all land
extensive retail uses. Existing uses are allowed
1. Motor vehicle and parts dealers, EXCEPT automotive
to remain as conditional uses (as they are in the
parts without installation, lawfully existing as of [adoption
CG zone), but no new uses in these categories
date of new zone].
may be established in the zone.
2. Tractor and heavy equipment dealers lawfully existing as
of [adoption date of new zone].
Used merchandise stores, which were
3. Gasoline stations lawfully existing as of [adoption date
conditional in CG, are permitted outright in the
of new zone].
new zone.
4. Manufactured (mobile) home dealers lawfully existing as
of[adoption date of new zone].
B. Transportation & Warehousing The uses under this heading are all land
extensive and not pedestrian-friendly. Existing
1. Taxi service lawfully existing as of [adoption date of
uses are allowed to remain as conditional uses
new zone].
(as they are in the CG zone), but no new uses in
2. Limousine service lawfully existing as of [adoption date
these categories may be established in the
of new zone].
zone.
3. School transportation lawfully existing as of [adoption
date of new zone].
Urban transit system (48511) and Interurban
4. Charter bus service lawfully existing as of [adoption date
and rural transit (4852) are no longer
of new zone].
conditional uses – facilities serving passengers
5. Special needs transportation lawfully existing as of
(transit stops and stations) are permitted
[adoption date of new zone].
outright, but maintenance and other non-
6. Motor vehicle towing lawfully existing as of [adoption
customer facilities for transit are not permitted
date of new zone].
in the new zone.
7. Self- and mini-storage lawfully existing as of [adoption
date of new zone].
C. Finance and Insurance Check cashing, etc. treated the same as in CG;
pawn shops permitted outright rather than
1. Check cashing, pay day loans and cash transfer
conditionally.
establishments, other than banks.
E. Health Care and Social Services Prohibits new ambulance services (land
intensive and not pedestrian-friendly).
1. Ambulance service lawfully existing as of [adoption date
of new zone].
F. Accommodations and Food Service Prohibits new RV parks (land intensive and not
pedestrian-friendly).
1. Recreational vehicle parks lawfully existing as of
[adoption date of new zone].
G. Other Services Home goods repair (8114) EXCEPT upholstery
(81142) and leather repair (81143) is a
1. Automotive maintenance lawfully existing as of
permitted use rather than a conditional use.
[adoption date of new zone]. This use is allowed only when
located entirely within an enclosed building, except for
Uses under this heading are allowed to
short-term outdoor parking of vehicles waiting for service.
continue as conditional uses if already legally
2. Commercial and industrial equipment repair lawfully
established, but new uses in these categories
existing as of [adoption date of new zone].
are not permitted.
3. Linen supply lawfully existing as of [adoption date of
new zone].
H. Government and public utility buildings and structures Same as CG
EXCEPT uses permitted in Section 2.117.01 and
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Proposed Language Commentary
telecommunications facilities subject to Section 2.204.03.
2.117.05 Accessory Uses
Same language as CG
The following uses are permitted as accessory uses subject
to Sections 2.202 and 2.203.
A. Fence or free standing wall.
B. Accessory building.
2.117.06 Dimensional Standards
The following dimensional standards shall be the minimum
requirements for all development in the MUV zone.
A. Lot Standards. Same standard as the CG zone, but wording is
slightly different.
In the MUV zone the lot area shall be adequate to contain
all structures within the required setbacks. There shall be no
minimum width or depth.
B. Building Height. Same standard as in CG outside the Gateway
subdistrict
The maximum height of buildings shall not exceed 70 feet,
EXCEPT chimneys, spires, domes, flag poles and other
features not used for human habitation (EXCEPT
telecommunication facilities), shall not exceed 100 feet.
C. Setback and Buffer Standards.
1. Minimum Front Setback and Setback Abutting a Street. Reduces minimum front setbacks from 15’ to 0’.
There shall be no minimum building setback abutting a
street in excess of any Special Setback, Section 3.103.05.
2. Maximum Front Setback and Setback Abutting a Street. Establishes a recommended (not required)
maximum front setback of 15’.
The maximum setback abutting a Major Arterial street
should be 15 feet plus any Special Setback, Section
3.103.05.
3. Minimum Interior Side and Rear Setbacks:Same as CG zone.
a. Development in the MUV zone shall be subject to the
setback and buffer requirements of Table 2.1.XX.
TABLE 2.1.XX.
Abutting LandscapingWallInterior
Property Setback
RS, R1S, There is no Solid brick or 10 ft.
or RM buffer yard architectural
zone landscaping wall with
requirement anti-graffiti
for an interior surface, no
yard abutting less than 6
a buffer wall. feet or greater
than 7 feet in
height.
MUV, There is no Alternative Alternative
CO, CG, buffer yard A: A:
DDC, landscaping
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Proposed Language Commentary
NNC, requirement Wall 5 ft.
P/SP, IP, for an interior requirements
Alternative
SWIR or yard abutting shall be
B:
IL zone a buffer wall. determined in
conjunction
Zero
with the
setback
applicable
abutting a
Design
building
Review
wall.
process.
Alternative B:
No wall
required.
b. The minimum building setback from a private access Same language as in the CG zone.
easement shall be 5 feet.
3. In addition to subsections 1 and 2 above, setbacks and Sub-section 3 would apply existing guidelines
for maximum setbacks to yards abutting side
buffers are subject to the design guidelines of Section
streets where sub-section 2 does not apply.
3.107.06.
2.117.07 Development Standards
A. Applicability
1. Multiple-family dwellings shall be subject to the design This is generally consistent with how medium
density / multi-family residential is treated in
standards or guidelines of Section 3.107.05unless the
other zones, including DDC and the downtown
multiple-family dwellings are built as part of a vertical
Gateway subdistrict of CG.
mixed use development.
Stand-alone residential uses in the new zone
would not have to meet the same site
development or building design standards as
non-residential uses, which may be appropriate
for the residential uses, but could disrupt the
pattern of development along the corridor.
2. All development EXCEPT that described in Section References a new set of design guidelines and
standards applicable to the new zone.
2.117.07.A.1shall be subject to the architectural design
standards or guidelines of Section 3.107.10.
3. The change or expansion of an existing use on a non-This section is intended to allow proposals for
partial redevelopment of an existing non-
conforming site shall be subject to Section 1.104.02
conforming site to move towards compliance
EXCEPT that any change or expansion of an existing use
with these standards rather than having to
that cannot meet the Design Guidelines and Standards of
bring the full site into compliance, which could
Section 3.107.10.B, subsections 3 through 5, may be
require tearing down an existing building.
approved provided that it does not make the development
more nonconforming with respect to these standards.
B. Off Street Parking.Applies parking and access standards (same as
in CG zone).
All parking and access standards of Sections 3.104and
3.105shall apply.
C. Signs.Makes new zone subject to same sign
regulations as DDC and NNC (Table 3.110.10D)
Signs shall be subject to Section 3.110.10D.
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Proposed Language Commentary
rather than CG standards (Table 3.110.10B).
This effectively prohibits pole signs.
D. Street and sidewalk improvements.
1.The street frontage abutting a city street of a subject Similar to existing regulations in the CG,
property owners are required install sidewalks
property shall be improved with sidewalks and street trees
and street trees on city streets unless they
as required by Section 3.101. Sidewalks and trees shall be
obtain an exception under Section 5.103.12.
installed by the property owner to the standards of Section
They can also file a Performance Guarantee
3.101and 3.106. The improvement shall be determined at
with the City Administrator as a commitment to
the time of subdivision, PUD or design review as
construct the require improvements in the
applicable.
future under Section 4.102.07.
Note that frontage improvements are now
included in a separate section – See Additional
Proposed Code Amendments in the next
section.
E. Property Disposition. All uses shall be established and Standard language (same as CG).
conducted on lots of record, as defined by Section 1.102
and developed to the public facility and access standards of
Sections 3.101, 3.102 and 3.104.
1. New lots of record shall be subject to the following
standards and procedures:
a. Partitions, Section 3.108;
b. Subdivisions, Section 3.108; or
c. Planned Unit Development Section 3.109.
2. Alteration of the property lines of existing lots of record
shall be subject to the applicable following standards and
procedures:
a. Property Line Adjustment, Section 5.101.07.
b. Replatting, Section 3.108.
c. Vacation, applicable Oregon Revised Statutes.
3.107.10Guidelines and Standards for Non-Residential Design standards for the new zone will be
located in Section 3.107. The City is moving
and Mixed Use Structures inthe MUV zone
towards consolidating all design standards in
this section rather than including them in the
individual zones. As part of the on-going
comprehensive code update, the City may wish
to reorder the sections of 3.107 so that this
section follows 3.107.07.
A. Applicability.Buildings that are exclusively residential are
subject to Section 3.107.05, but mixed use
The following design guidelines and standards shall be
buildings with a residential component are
applicable to all buildings in the Mixed Use Village (MUV)
subject to this section.
zone that include a non-residential use,whether or not
residential uses are included in the structure.
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107
B. Site DevelopmentStandards.
1. The primary building entrance shallbe oriented toward Requires the primary entrance to face the
street or to the side – allows flexibility for
the street, toward a side yard, or any angle in between. For
development to put parking beside the building.
the purposes of this section, the “primary building
entrance” is the main public entrance to the building. In the
There are currently no requirements or
case where no public entrance exists, the “primary building
guidelines related to building entrance
entrance” is the main employee entrance. Where there are
orientation in the CG zone or applicable design
multiple buildings on a lot, all buildings shall comply with
guidelines.
this standard.
2. Buildings shouldoccupy a minimum of 50 percent of all Suggests (but does not require) that buildings
occupy a majority of the street frontage and
street frontages along public streets. Buildings should be
locate near the intersection for corner lots.
located at public street intersections.
(Same language as 3.107.07.B.1.a., which
applies in DDC and NNC.)
Existing building location guidelines applicable
to the CG zone (3.107.07.D) recommend (but do
not require) a maximum setback of 150 feet
from a street and building location and
orientation that complements abutting
development.
3. Parking areas shallbe limited to 50 percent of the street Language is similar to guideline from
3.107.07.B.1.e (which applies to DDC and NNC),
frontage abutting a Major Arterial.
but is stated as a standard (required) and
applied along Major Arterials (i.e. 99E).
Existing parking location guidelines applicable in
the CG zone (3.107.06.E) recommend (but do
not require) parking between the front of a
building and the street be limited to a
maximum of 130 feet.
4. Parking areas shall notbe located within a front yard or Prohibits parking within the space between the
front of the building and the street (regardless
within a side yard abutting a Major Arterial.
whether the “front” faces 99E or a side street).
If the “front” is on a side street, parking is also
prohibited between the building and 99E. Also
requires parking to be set back from the street
as far as the building is. This creates an
incentive to pull buildings up to the sidewalk,
and for development on corner lots to locate
buildings at the corner.
Currently, in the CG zone, parking is prohibited
within a required yard or special setback unless
it is adjacent to a wall.
5. All front yards and all side yards abutting a street either Where buildings are set back from a street, the
yard must either be landscaped or provide
shall be landscaped at a density of one (1) plant unit (PU)
outdoor seating or other hardscape amenities.
per 20 sq. ft., per Table 3.1.5., or shallbe occupied by
Note that there will be no yard if the building is
pedestrian amenities (e.g., plaza, outdoor seating, outdoor
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eating areas).set at the property line.
Existing landscaping standards applicable to the
CG zone (3.106.03.A.2.b) require landscaping at
the same density for all yards abutting a street
(including in parking areas), but do not allow for
pedestrian amenities as an alternative.
6. On-site pedestrian circulation.
a. Walkways shall connect all building entrances with This language is stronger than what is currently
required for the CG zone.
adjacent sidewalks and on-site parking areas, and shall
connect off-site adjacent uses to the site unless topographic
or existing development constraints preclude making
certain walkway connections.
b. Where walkways cross a parking area or driveway they This language is stronger than what is currently
required for the CG zone.
shall be clearly marked with contrasting paving materials
(e.g., light-color concrete inlay between asphalt), which
may be part of a raised/hump crossing area. Paint or
thermo-plastic striping and similar types of non-permanent
applications may be approved for crosswalks not exceeding
24 feet in length.
7.Drive through businesses.In addition to the Drive through lanes are treated the same way
as parking lots in terms of required screening
requirements of Section 3.104.02, the following standards
and landscaping in Section 4.a and 4.b above.
shall apply to drive through businesses:
a. Drive through windows are prohibited on a building
façade that faces Highway 99E.
b. Drive-through uses shall be located so that access and
egress to the drive-through features are from an on-site
drive aisle or other on-site circulation facility, not a public
street.
c. A maximum of two drive through service lanes shall be
permitted between a building façadeand a public street
right-of-way.
C. Architectural Design Guidelines and Standards.
1. Street-facing building façades. All street-facing building Provides two options for buildings to provide
visual interest and avoid blank walls.
elevations that are set back 50 feet or less from a public
street shallprovide visual interest and avoid blank walls by
There are existing guidelines applicable to the
meeting one or both of subsections a and/or b, below.
CG zone related to building façades, described
below.
a. A minimum of 40 percent of the ground floor wall area Requires a certain ground floor window
coverage to create a storefront environment as
shall contain windows, display areas, or doorway openings.
one option to create visual interest. The
Windows, display areas, or doorway openings used to meet
provisions 1 through 4 below are intended to
this standard shallcomply with the following provisions:
ensure that if the storefront environment
option is selected, the windows provide views
of something interesting from the street.
Existing design guidelines applicable in the CG
zone recommend (but do not require) that at
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least 30% of the wall surface abutting a street
should be glass (3.107.06.B.2.b.1).
Similar language to 2.107.06.D.8.b.1 (DDC
1) Required window areas shallbe either windows that
zone).
allow views into working areas or lobbies, pedestrian
entrances, or display windows.
2) Darkly tinted windows and mirrored windows that block Similar language to 2.107.06.D.8.b.4 (DDC
zone).
two-way visibility shall notbe used to meet this standard.
3) The sill or lower edge of a window, display area, or Similar language to 2.107.06.D.8.b.2 (DDC zone)
doorway used to meet this standard shall be no more than
four feet above grade. Where interior floor levels prohibit
such placement, the sill or lower edge must be raised to
allow it to be no more than two feet above the finished floor
level, up to a maximum height of six feet above grade.
4) Windows and doorways used to meet this standard shall Similar language to 2.107.06.D.6.f (DDC zone)
not be covered over with paper, boards, or cardboard
except during times of construction or remodeling and shall
be limited to a period of 120 days unless an extension is
otherwise granted by the city manager.
5) Ground floor wall area shall be measured from three feet Definition of ground floor wall area matches
that used in 3.107.07.B.2.b.1.
above grade to nine feet above grade the entire width of the
street-facing elevation.
b. Building façades that exceedforty (40) feet in length Requires architectural features that provide
visual interest for façades that do not meet the
shallincorporate features to vary the look of the façade at
window coverage standard above.
intervals not to exceed forty (40) feet. Such features may
include variable planes; projections; bays; dormers;
Existing design guidelines applicable in the CG
setbacks; canopies; awnings; parapets; and/or changes in
zone (3.107.07.B.1) recommend (but do not
the roof line, materials, color, or textures.
require) articulation of building façades visible
from streets and incorporation of three
dimensional design features.
2. All building façades visible from streets and public A similar guideline currently exists in the design
guidelines applicable to the CG zone. Suggests,
parking areas that are not subject to subsection
but does not require, façade variations for
3.107.10.C.1. shouldprovide façade variations as specified
building walls visible from the street if not
in subsection 3.107.10.C.1.b.
already required. Applies to building walls
visible from a street or parking area but more
than 50 feet away from the street.
3. Crime Prevention Through Environmental Design. In Encourages (but does not require) windows
allowing views of the street from buildings
order to enhance public safety and provide for “eyes on the
intended for regular human occupancy. This
street”, all buildings that will regularly be occupied should
helps create a sense of safety for pedestrians.
provide windows that allow a view of the street in all street-
Windows meeting this guideline would not have
facing building elevations.
to provide views into the building from the
street.
There is no similar existing guideline or
requirement applicable in the CG zone.
4.Weather protection. Weather protection for pedestrians, These guidelines and standards are taken from
the design guidelines that apply in the DDC and
such as awnings, canopies and arcades should be provided
NNC zones. Similar provisions are included in
at building entrances. Weather protection isencouraged
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along building frontages abutting a public sidewalk or a the design guidelines that apply in the CG and
other zones. They are included here for
hard-surfaced expansion of a sidewalk, and along building
consistency.
frontages between a building entrance and a public street or
access way. Awnings and canopies should not be back lit.
5. Building materials. Corrugated metal, plywood, sheet
press board or vinyl siding should be used as exterior finish
material. Plain concrete block and plain concrete should
not be used as exterior finish material EXCEPT as a
foundation material where the foundation material should
not be revealed for more than 2 feet.
6.Roofs and roof lines. EXCEPT in the case of a building
entrance feature, roofs should be designed as an extension
of the primary materials used for the building and should
respect the building’s structural system and architectural
style. False fronts and false roofs should notbe used.
7. Roof-mounted equipment. All roof-mounted equipment
shall be screened from view from adjacent public streets.
Satellite dishes and other communication equipment shall
be set back or positioned on a roof so that exposure from
adjacent public streets is minimized. Solar heating panels
shall be exempt from this guideline.
D. Parking lot landscaping and screening.
1. A minimum five-foot landscaped strip shallbe provided Requires a 5 foot landscaped strip between
parking areas, drive through lanes, and
between a parking lot or drive through lane and a public
sidewalks to buffer the sidewalk somewhat.
sidewalk. This area shallbe landscaped at a minimum
planting density of one (1) plant unit (PU) per 20 sq. ft., per
Existing guidelines and standards applicable in
Table 3.1.5.
the CG zone prohibit parking within a required
setback (15 feet) unless adjacent to a wall, and
require screening, but not necessarily from
landscaping. A low wall would satisfy both of
these existing requirements. This proposed
section would require a 5-foot setback with
landscaping in all cases.
2. All parking areas and drive through lanes abutting a Similar to existing parking lot landscaping
standards for CO and CG (3.106.03.A.2.b.2), but
street shall provide within the required 5 foot landscaped
allows a bioswale in place of screening.
strip either a 42-inch vertical visual screen from the
abutting street grade or a landscaped swale for stormwater
management. Acceptable design techniques to provide
screening include plant materials; berms; and freestanding,
architectural walls with an anti-graffiti finish. All
screening shallcomply with clear vision standards, Section
3.103.10.
3. Parking areas with more than 10 spaces shallbe divided Requires medium and large parking areas to be
broken up into groups of parking spaces. Same
by landscaped areas or walkways, or by a building or group
language as 2.107.06.D.13.c (DDC zone).
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111
of buildings.There are no existing requirements or
guidelines applicable to the CG zone that
address layout of the parking lot.
4. Parking lot landscaping shall be subject to the standards Same standards as CG.
The referenced section (3.106.03.C.1.a) will
of Section 3.106.03.C.
need to be updated to include the mixed use
zone in the list of zones.
E. Screening Standards.
1. Outdoor storage and display.
a. Outdoor storage and display located within 50 feet of a Requires that any outdoor storage and display
within 50 feet of a street be screened with a
front lot line or a lot line abutting a Major Arterial shall be
wall that provides visual interest through
screened from view from the adjacent streets by a wall that
architectural features. Exception allows for
complies with the standards of sub-section 2.b above,
outdoor retail display during business hours
EXCEPT for outdoor displays of merchandise during
(exception language mirrors 2.107.06.H).
business hours only that do exceed ten percent of the total
retail sales area. Displays of merchandise on public
sidewalks may not reduce usable walking area widths to
less than six feet.
b. Outdoor display and storage located more than 50 feet References and reiterates existing screening
standards for outdoor storage where more than
from a front lot line or a lot line abutting a Major Arterial
50 feet from a street
shall be subject to Section 3.107.06.F.1.
2. Common refuse collection facilities shallbe screened on Same language as CG.
all sides by an architectural block wall and solid gate, both
with an anti-graffiti surface, a minimum of six feet and a
maximum of seven feet in height.
F. Outdoor Lighting Standards. All outdoor lighting shall Same language as in the design guidelines and
standards applicable in the CG and other zones.
be designed so that:
1. Parking areas are evenly illuminated at ground level at
one foot candle;
2. Entrance and loading areas are illuminated at ground
level of two foot candles;
3. Illumination does not shine or reflect into any adjacent
residentially zoned or used property; and
4. Lighting does not cast a glare onto moving vehicles on
any public street.
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The tables below provide proposed Development Code amendments that implement the preferred
Highway 99E concept. Proposed amendments are shown in the applicable code section; language
recommended for addition to the code is double underlined and language recommended for removal is
struck through. The tables in which the amendments are presented include a commentary column
explaining the background and rationale for the proposed amendment. Not all recommended
amendments are proposed for adoption as part of the Corridor Plan; some proposed amendments are
applicable city-wide and are recommended for adoption as part of a later, more comprehensive
Development Code update.
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The modifications shown in this section would require developers to construct frontage improvements
on Highway 99E (this requirement currently applies only to city streets). These changes are
recommended as part of the package of code amendments to implement the Plan at time of adoption.
They primarily impact property in Segments 3 and 4 where street frontages are not improved to the
adopted standards.
Proposed AmendmentCommentary
3.101.02 General Provisions No changes proposed to this section.
Included for reference.
A. The access or driveway, for each lot shall be connected to the
existing public street system in compliance with Section 3.104.
B. No access permit shall be issued unless the internal street(s), No changes proposed to this section.
Included for reference.
boundary street(s) and connecting street(s) are constructed
pursuant to Section 3.101.02.C, UNLESS or until the applicant
has obtained an exception as provided in this section.
C. Design and Construction Standards.No changes proposed to this section.
Included for reference.
1. All public streets under the jurisdiction of the City of
Woodburn shall comply with the applicable cross section design
standards noted in Section 3.101.03 and construction
specifications of the Public Works Department.
2. All private streets in manufactured dwelling parks shall
comply with applicable City design standards and specifications
and state design standards and specifications where state
standards and specifications preempt City standards and
specifications.
D. Street Right of Way and Improvement Standards for No changes proposed to this section.
Included for reference.
Development.
Any development subject to an access permit, Section 3.104,
shall be responsible for adequate street rights of way and
improvements. The standards of Section 3.101.02.D may only be
modified subject to the approval of an exception, Section
5.103.12. In no instance may standards be reduced below
specified minimum, non-variable standards.
1. Connecting Street Standards. (Figure 6.12)
a. Right of Way Standard. The full right of way for the subject
street classification, Section 3.101.03, shall be required for a
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113
Proposed AmendmentCommentary
connecting street segment without an approved exception or
variance.
The minimum connecting street right of way shall be sufficient
to accommodate the connecting street improvement standard in
Section 3.102.D.1.b. below.
b. Street Improvement Standard. The full street improvement for
the subject street classification, Section 3.101.03, shall be
provided for a connecting street segment without an approved
exception.
The minimum connecting street improvement standard shall be
equivalent to:
1) One, 10 foot wide travel lane in each direction, in addition to
the required curbs, where the classification specifies a maximum
standard of two travel lanes;
2) Required drainage facilities;
3) The pedestrian and bikeway facilities located on one side of
the street that comply with the standards for the subject street
classification. In locations where the street classification
specifies a maximum standard of two travel lanes, the
connecting segment on the side with the pedestrian/bikeway
facilities shall be completed to standards, including the
landscaped parkway strip.
2. Boundary Street Standard. (Figure 6.12)
a. Right of Way Standard. The full right of way for the subject
street classification, Section 3.101.03, shall be required for a
boundary street without an approved exception.
The minimum standard for a boundary street right of way shall
be no less than the width necessary to accommodate the
boundary street improvement standard.
b. Street Improvement Standard. The full street improvement for
the subject street classification, Section 3.101.03, shall be
provided for a boundary street without an approved exception.
The minimum boundary street improvement standard shall be
equivalent to:
1) One, 10 foot wide travel lane in each direction, in addition to
the required curbs in each direction where the classification
specifies a maximum standard of two travel lanes;
2) Required drainage facilities; and
3) In addition to the improvements cited in 1) above, the full
improvement of the street from the center line to the boundary of
the subject property plus any center turn lane as described for the
street classification.
3. Internal Street Standards. (Figure 6.12)
a. All public streets within a development shall comply with the
full right of way and improvement standards of Section 3.101.03
without an approved variance.
b. All private park streets permitted in manufactured dwelling
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Proposed AmendmentCommentary
parks shall comply with the full requirements of Section
2.203.15, as set by statute.
E. Highway 99E Frontage Improvements.Requires sidewalks and street trees for
development along 99E. Also requires
1. Street frontage on Highway 99E shall be improved with
dedication of right of way at time of
sidewalks and street trees as specified in the Highway 99E
development. Existing regulations do not
Corridor Plan.
require full street improvements or right-
2. Highway 99E frontage improvements shall be coordinated
of-way dedication for streets that are not
with and approved by the City Engineer and ODOT.
under city jurisdiction (e.g. 99E).
3. Street Trees on Highway 99E:
a. Must be of a species and variety acceptable to ODOT.
Note: subsequent subsections will need to
b. Are prohibited within 250 feet of a rail crossing. Any street
be renumbered.
vegetation within 250 feet of a crossing is limited to ground
cover only, standing no higher than 3 feet at maturity.
4. Right of way consistent with the Highway 99E Corridor Plan
shall be dedicated to ODOT at time of development.
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115
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The changes shown in this section reflect the cross-section widths for Highway 99E adopted as part of
the Highway 99E Corridor Plan to avoid requiring a greater undevelopable setback area on private
property than is needed based on the planned highway cross-sections.
Proposed Amendment
Commentary
3.103 Setback, Open Space and Lot Standards, Generally Existing language included for reference
(no changes to this part proposed).
3.103.05 Special Street Setbacks
A. Purpose.
The special setbacks in this Section are based upon the
functional classification of streets and roads described in the
Woodburn Transportation System Plan (WTSP). The purpose of
these special setbacks is to provide for adequate air movement,
solar access, visibility, aesthetics and compliance with the
development standards of the WDO when a major street is
improved.
B. Setback Requirements. Existing language included for reference
(no changes to this part proposed).
Required setbacks adjacent to a street shall be in addition to the
special setbacks required in this Section. The special setback
distances shall be measured at right angles to the center line of
the original street right of way.
C. Special Provisions. Existing language included for reference
(no changes to this part proposed).
Buildings, structures and paved surfaces shall not be located
within the special setbacks EXCEPT as specifically provided for
in the WDO. Any portion of a building or structure lawfully
established within a special street setback prior to date of the
WDO shall be considered a nonconforming structure.
D. Special Setback Standards. Special standards specific to the various
segments of Highway 99E are
Special setbackstandards by street classification are established
incorporated rather than the default 50
in Table 3.1.1. The special setback standards shall be applied to
feet required for other Major Arterials.
streets within the City of Woodburn as functionally classified in
This reduces the special setback in
the Woodburn Transportation System Plan.
Segments 1 and 2 to match the existing
right-of-way and in Segment 4 to match
the proposed cross-section. Segment 3
TABLE 3.1.1 Special Setback Standards by Street
remains at 50 feet because the adopted
Classification
cross-section in that area matches the
Major Arterial design standard.
WTSP Functional Special Setback from
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Proposed Amendment
Commentary
ClassificationCenter Line
Major Arterial(other than 50 feet
Highway 99E)
Highway 99E:
MP 30.85 to MP 32.41 45 feet
(Carl Road to Lincoln
Street)
MP 32.41 to MP 33.19
(Lincoln Street to 1,150 ft
50 feet
south of Cleveland Street)
MP 33.19 to 34.07 (1,150 ft
south of Cleveland Street to
40 feet
proposed South UGB)
Minor Arterial 37 feet
Service Collector 36 feet
Access Street/Commercial 33 feet
Street
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117
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The changes to this section apply special local access management standards to development on
Highway 99E through the land use permitting process. These standards supplement, but do not replace,
ODOT access spacing standards.
Proposed AmendmentCommentary
3.104 Access Existing language included for reference
(no changes to this part proposed).
3.104.01 Applicability
A. Street Access Required.
1. Every lot shall have direct access to an abutting public street
or to a public street by an irrevocable access easement.
2. Every joint driveway or cross connection between separate
lots shall be established by an irrevocable access easement.
B. Access to City Streets, Permit Required. Existing language applicable to access to
city streets, included for reference (no
changes to this part proposed).
1. A City permit shall be required for any new or modified
vehicular access to a street that is under City jurisdiction. The
following types of access shall be subject to such a permit:
a. Site access to and/or from a City street;
b. An extension of an existing City street; or
c. A new public or private street connecting to a City street.
2. A Traffic Impact Analysis (TIA) may be required by the
Public Works Director […]
3. Administration of City access permit standards and
guidelines.
a. Type I Applications. Development subject to one of the
following Type I applications:
1) Design Standards for Single Family and Duplex Residential
Dwellings , Section 5.101.01; or [Section 3.104.01.B.3(1) as
amended by Ordinance No. 2383, ‘40, passed March 16, 2005.]
2) Access to a City Street, EXCLUDING Major and Minor
Arterial Streets, Section 5.101.12 shall be subject to the access
standards of this Section and street improvement standards in
Section 3.101 EXCEPT when the subject property is bound by
the requirements of a precedent land use decision that has not
been modified by a subsequent land use decision.
b. Type II and III Applications. Development subject to one of
the following Type II and III applications:
1) Type II Design Review, Section 5.102.02;
2) Type III Design Review, Section 5.103.02;
3) Access to a City Major or Minor Arterial Street, Section
5.102.04;
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Proposed AmendmentCommentary
4) Preliminary Partition Approval, Section 5.102.01;
5) Preliminary PUD Plan Approval, Section 5.103.07; or
6) Preliminary Subdivision Approval, Section 5.103.09
shall be subject to the access standards and guidelines specified
in this Section and street improvement standards in Section
3.101 EXCEPT when the subject property is bound by the
requirements of a precedent land use decision that has not been
modified by a subsequent land use decision.
4. A City access permit shall be subject to the requirements of
the WDO and Public Works Department standards.
C. Access to State Streets, Highways, and Interchanges.New text would require the City to review
Type II and III applications abutting 99E for
compliance with new local access
1. Access to a transportation facility under the jurisdiction of the
standards during site plan review or the
Oregon Department of Transportation (ODOT) shall be subject
regular local land use permitting process.
to the requirements of OAR 734-051.
2. In addition, for development on property abutting Oregon 99E
the City shall review the following types of applications for
compliance with the requirements of Section 3.104.03.B:
Section 5.102.02
1) Type II Design Review,;
Section 5.103.02
2) Type III Design Review, ;
Section 5.102.01
3) Preliminary Partition Approval, ;
Section 5.103.07
4) Preliminary PUD Plan Approval, ;
Section 5.103.09.
5) Preliminary Subdivision Approval,
3.104.03 Driveway Access Guidelines, Type II and III Existing language applicable to access to
city streets, included for reference (no
Applications
changes to this part proposed).
A. Guidelines for the Number and Location of Driveways, Type
II and Type III Applications.
1. The number of driveway accesses should be minimized based
on overall site design, including consideration of:
a. The function classification of abutting streets;
b. The on-site access pattern, including cross connected parking
and circulation, joint access, turnarounds and building
orientation;
c. The access needs of the use in terms of volume, intensity and
duration characteristics of trip generation.
2. Joint/Shared Access.
a. Partition lots. All lots created by a partition that access a
Major or Minor Arterial street shouldbe accessed via a single,
shared driveway with an on-site turnaround, UNLESS otherwise
required by Section 3.104.05.
b. The lot and street layout in a subdivision or PUD should be
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Proposed AmendmentCommentary
configured so that lots abutting a major street have access to a
local street. Where the layout necessitates access to a major
street, access for abutting lots should be shared and provided
with an on-site turnaround, UNLESS otherwise required by
Section 3.104.05.
c. Medium density residential, commercial, industrial uses and
other development subject to Type II or III Design Review
located on the same lot, or on abutting lots, that abut a Major
Arterial, Minor Arterial, or Service Collector should be designed
to share access to those major streets. A minimum of two
vehicular accesses shall be provided in developments with
eleven (11) or more medium density residential dwelling or
living units.
d. Shared/Joint Access Agreements. Shared and/or joint access
agreements serving properties under separate ownership shall be
subject to legal documentation, to the satisfaction of the City
Attorney, establishing permanent use of the access. The
agreement shall be recorded with the County Recorder and filed
with the Community Development Director.
3. Cross Connections.
a. All uses sited on one lot should have common, and/or
interconnected, off street parking and circulation facilities.
b. Similar, and/or compatible, uses on abutting lots should have
interconnected on-site access and parking facilities. Such shared
facilities serving properties under separate ownership shall be
subject to legal documentation, to the satisfaction of the City
Attorney, establishing permanent use of the access and parking
facilities. The agreement shall be recorded with the County
Recorder and filed with the Community Development Director.
4. Access to lots with multiple street frontages should be from
the abutting street(s) with the lowest functional classification.
5. Dysfunctional or unused driveways should be closed.
B. Access requirements for propertyabutting Oregon 99E.Establishes local requirements related to
access applicable to property abutting
99E. As described above, the city will
1. The number of driveways to Oregon 99E shall be minimized,
review Type II and III land use applications
consistent with OAR 734-051.
for property abutting 99E for compliance
with the standards. An ODOT access
2. All uses sited on one lot shall have common and/or
permit is still required.
interconnected off street parking and circulation facilities.
3. Similar and/or compatible uses on abutting lots shall have
interconnected and/or shared on-site access and parking facilities
where feasible. Such shared facilities serving properties under
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Proposed AmendmentCommentary
separate ownership shall be subject to legal documentation, to
the satisfaction of the City Attorney, establishing permanent use
of the access and parking facilities. The agreement shall be
recorded with the County Recorder and filed with the
Community Development Director.
4. Access to lots with multiple street frontages shall include
access from the abutting street(s) with the lowest functional
classification.
5. Access driveways shall be located to avoid or minimize
conflicts between entering and exiting vehicles from opposing
driveways.
6. Prior to issuance of building permits, an access permit shall be
obtained from ODOT for access to Oregon 99E.
B.C.Driveway Spacing Guidelines, Type II and III No change to this section except for
numbering. Applies only to city streets.
Applications.
The minimum separation of a driveway from: a) the special
setback of a parallel major street, b) the right of way of a parallel
local street, or c) from another driveway should be as follows.
1. Major Arterial Street: 300 feet;
2. Minor Arterial Street: 245 feet; and
3. Service Collector, Access or Local Street: 50 feet
EXCEPT where pre-existing conditions preclude such separation
the separation should be maximized.
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121
-
These modifications are recommended, but are not proposed for adoption as part of the Highway 99E
Corridor Plan because they would affect property throughout the city. It is recommended that the City
consider adopting these or similar amendments through the citywide code update that is taking place
concurrently with the development of the Corridor Plan.
3.107.06 Guidelines and Standards for Non-Residential Existing text is ambiguous on how
pedestrian and bicycle facilities should be
Structures in RS, R1S, RM, CO, CG and P/SP Zones
separated from other modes of
[…]
transportation. Recommended
modifications address pedestrian
C. Site and Building Access Guidelines.
circulation, requiring on-site pedestrian
connections to and from building
1. Access to and from the site and circulation within the site
entrances and walkways that are marked
should separate facilities for cars, trucks and transit from those
or distinguished by contrasting paving
for shall accommodate bicycles and pedestrians.
materials where pedestrians may come
into conflict with motorists.
a. Walkways shall connect all building entrances and on-site
Recommended text is loosely based on
parking areas, and shall connect off-site adjacent uses to the site
the Model Code, 3.1 Access and
unless topographic or existing development constraints preclude
Circulation.
making certain walkway connections.
NOTE: Need to add the following to the
b. Where walkways cross a parking area or driveway they shall
Definitions:
be clearly marked with contrasting paving materials (e.g., light-
Sidewalk. A paved walkway within a
color concrete inlay between asphalt), which may be part of a
street right-of-way improved to city
raised/hump crossing area. Paint or thermo-plastic striping and
standards, or to other roadway authority
similar types of non-permanent applications may be approved
standards, as applicable.
for crosswalks not exceeding 24 feet in length.
Walkway. A facility that provides
c. On-site bicycle parking shall meet the requirements of Section
pedestrian connectivity within the site and
3.105.02.H.10
to destinations adjacent to the site and
that may or may not be part of the street
d. Where bicycle and pedestrian facilities cannot be provided as
right-of-way.
part of required street improvements, due to existing
development, environmental constraints, or where streets have
Specific opportunity locations have been
been stubbed or cul-de-saced, pedestrian and bicycle identified for bicycle and pedestrian
access.
connections may still be required.
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These modifications are recommended, but are not proposed for adoption as part of the Highway 99E
Corridor Plan because they would affect property throughout the city. However, it is recommended that
the city consider adopting these or similar amendments through the citywide code update that is taking
place concurrently with the development of the Corridor Plan.
3.106.03 Landscaping Standards
A. Streetscape.
1. Street Trees. Within the public street right of way abutting a
development, or within an alley right of way in the DDC zone,
street trees shall be planted to City standards prior to final
occupancy.
a. Acceptable Types of Trees. See Section 6.103 for a
description of acceptable and unacceptable trees for this purpose,
classified by size and species.
b. Tree Density. Trees shall be planted at the following intervals
within the right of way, subject to Clear Vision Area standards,
Section 3.103.10 and Section 6.103:
1) Four (4) small trees per 100 feet of street frontage;
2) Three (3) medium trees per 100 feet of street frontage; or
3) Two (2) large trees per 100 feet of street frontage.
2. Front Yard and Yard Abutting a Street.
a. Landscaping Density for non-residential uses in the RS and
R1S zone and all uses in the RM, P/SP, IL, IP, and SWIR zones.
All front yards and yards abutting a street shall be landscaped at
a density of one (1)plant unit (PU) per 20 sq. ft.
b. Landscaping Design and Density in CO and CG zones.
1) All yards abutting a street, including off street parking and
circulation areas shall be landscaped at a density of one (1) plant
unit (PU) per 20 sq. ft.
2) Allparking areas abutting a street shall provide a 42-inch
vertical visual screen from the abutting street grade. Acceptable
design techniques to provide the screening include plant
materials; berms; freestanding, architectural walls with an anti-
graffiti finish, depressed grade for the parking area. All
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screening shall comply with the clear vision standards,
Section3.103.10.
Require trees between areas used for
3) All parking areas abutting a street where street trees meeting
parking and sidewalk where there are no
the standards of subsection 1 above have not been provided
street trees
within the public street right of way shall provide trees between
the street and the parking area. Such trees shall conform to the
street tree standards of subsection 1, above.
[…]
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Appendix D:
Typical Development
Footprints and Parking
Requirements
125
126
The table below illustrates the typical building size and parking requirements for a variety of commercial
uses that could locate within the proposed new zone or along the Highway 99E corridor. This
information is provided to illustrate what types of businesses could potentially locate along the corridor
and what size sites might be needed to accommodate such businesses.
Business Typical Parking Estimated Typical Parking Estimated
building size spaces minimum site building size spaces minimum site
in square feet required size needed in square feet required size needed
(low/average) (approx) (acres) (high) (approx) (acres)
Walmart 108,000 432 6.93
Fred Meyer 76,600 306 4.91 145,000 580 9.30
Kohl's 60,000 240 3.85 90,000 360 5.77
Large supermarket 40,000 160 2.57 60,000 240 3.85
Whole Foods 38,000 152 2.44
8-screen movie 18,000 200 2.40
theater
Home centers (home 14,000 16 0.51 100,000 111 3.60
improvement stores)
Office Depot 14,000 56 0.90 26,000 104 1.67
Best Buy 14,000 56 0.90
Drugstore (Rite Aid, 11,000 44 0.71 13,000 52 0.83
CVS, Walgreens)
Neighborhood 10,000 40 0.64
grocery store
Retail hardware store 8,500 9 0.30
Chili’s Restaurant 6,000 40 0.54
Napa Auto Parts 5,000 20 0.32 7,000 28 0.45
store or similar retail
Bank branch 4,000 11 0.21
Panera Bread Café 3,300 27 0.35 6,000 40 0.54
and Bakery (Paradise
Bakery)
Payless Shoes 3,200 13 0.21 4,200 17 0.27
McDonald’s 3,000 25 0.32 4,000 30 0.39
Single-brand clothing 2,800 11 0.18 9,000 36 0.58
stores
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Business Typical Parking Estimated Typical Parking Estimated
building size spaces minimum site building size spaces minimum site
in square feet required size needed in square feet required size needed
(low/average) (approx) (acres) (high) (approx) (acres)
Convenience store (7-2,400 10 0.16 3,000 12 0.19
11, AM/PM)
“Main Street” retail 2,000 8 0.13
(shops)
Jewelers 1,700 7 0.11 4,400 18 0.29
Restaurants and 1,500 18 0.21 5,000 35 0.47
cafes
GameStop 1,400 6 0.09
Professional offices 1,000 3 0.05 10,000 29 0.53
Nail / hair / beauty 1,000 4 0.06 2,000 6 0.11
salon
Bakery 600 1 0.02 2,120 3 0.08
Coffee shop 600 13 0.14 1,600 18 0.22
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Appendix E:
Access Management Tools
129
130
To help implement the access management objectivesand actions described, a collection of potential
mitigation tools and measures has been provided below. While not all applications will be appropriate
for various portions of the study area, this list will provide a menu of options for consideration.
Ȁ
A common method of reducing approach density is to
eliminate multiple approaches to a single property
where feasible. This can be done where it has been
determined that the property can adequately be
served with fewer approaches than it currently
maintains. However, where existing site circulation or
building locations create a dependency for the pre-
existing highway access, the ability to change site
access may require total or partial site redevelopment.
Sharing an approach to the highway is a means of
consolidating approaches while providing direct access
to properties that might not otherwise have it. This
tool is most advantageous when applied between two
“landlocked” properties that have no other means of
reasonable access than to the highway. Such
properties would typically be provided their own
approach. However, when a shared approach can be
arranged, the end result is only one approach to the
highway rather than two.
Because such arrangements require the establishment
of access easements, which represent an encumbrance on the property, this can be a difficult tool to
apply. Also, because easements can be voided later by the property owners, the long-term success of
these arrangements is uncertain. Because of this, it is often easiest to establish shared approaches
where the local development code enables that requirement and it can be made a condition of
approval. However, care should be taken to ensure adjacent land uses are compatible and that safe
vehicular circulation can be provided.
Inter-
When access is provided to allow vehicles to pass
between adjacent properties without using the
highway, unnecessary conflicts are removed. Vehicles
using the highway for cross-circulation between
adjacent properties can be particularly hazardous as
such drivers often drive the wrong way in travel lanes
and utilize very small gaps in traffic because they
perceive that they will only be on the highway for a
short time.
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Similar to the establishment of shared approaches, the provision of cross-circulation requires the
establishment of access easements between properties and can therefore be difficult to achieve.
Because such arrangements affect site circulation, the requirement for cross-circulation is best applied
during design review for new developments.
When locating and designing inter-parcel roadways, consistent treatments should be applied across
adjacent properties to facilitate passage over multiple lots. This should include using a consistent
roadway width and providing a common alignment where feasible (near the rear of the property away
from the highway approaches is generally preferred).
As a Regional Highway and city arterial, the primary
function of Highway 99E is for safe and efficient
passage for through traffic. Therefore, where feasible,
direct property access should be taken from facilities
of a lower classification, such as collectors or local
streets. This, in turn, lessens the number of potential
conflict points on the highway and moves them to a
lower speed, lower volume roadway where they can
be more easily accommodated.
This treatment is often a good option for properties
that have frontage along an alternate roadway of a
lower functional classification. However, where existing site circulation or building locations create a
dependency for the pre-existing highway access, the ability to change site access may require total or
partial site redevelopment. Also, before access is reestablished to a side street, it should be confirmed
that there would be adequate separation between the new driveway and the intersection with the
highway to avoid turning conflicts or frequent obstruction by vehicle queues. It should also be verified
that the side street intersection with the highway has sufficient capacity to accommodate the added site
traffic.
The number of conflict points on the highway
introduced by a particular approach can be
significantly reduced by restricting turn movements,
such as allowing only right-in and right-out
movements, allowing only right-in movements, or
prohibiting only left-out movements (as shown in
graphic).
Such restrictions are commonly applied through the
construction of non-traversable median barriers and
“pork chop” islands in the approach throat. Due to
high violation rates, “pork chop” treatments should
only be used in conjunction with median barriers (as
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shown in the graphic). Also, the use of pork chop islands to compliment median barriers may allow for
smaller median barrier designs – potentially avoiding blockage of nearby approaches.
A frontage road or backage road is a type of service road
that runs parallel to a major roadway and provides
alternative access to properties. Where the service road
runs between the major roadway and the abutting
development, it is commonly referred to as a frontage
road. However, when the service road runs behind the
abutting development, it is referred to as a backage road.
These roads may be either under public or private
ownership. When under private ownership, care should be
taken to ensure the road will be adequately maintained
and available for public use at all times.
Direct property access is provided along the frontage or backage road, rather than from the major
roadway. This allows the major roadway to better serve through traffic with fewer disruptions, while the
ingress and egress for abutting properties can occur from a lower-speed, lower-volume facility. A key
element in frontage/ backage road planning is the design and location of connections to and from the
major roadway or side streets.
Frontage and backage roads must be designed to accommodate emergency vehicles and large trucks.
The location of the frontage or backage road with respect to other public roadways and individual site
development features may impact whether or not sidewalks are needed on both sides of the roadway or
just on one side and may alter the buffer requirements. Decisions regarding the final required cross
section for frontage and backage roads can be made through development review. Given the
constrained nature of the commercial corridor along Highway 99E, the application of frontage and
backage roads may be more applicable at the north and south ends of the corridor.
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The followingproposed Comprehensive Plan amendments acknowledge and reference the Highway 99E
Corridor Plan as the guiding policy document for this important facility. These modifications update city
policies to reflect the intent and outcomes of the planning process that will result in an adopted
Highway 99E Corridor Plan. Language recommended for addition to the Comprehensive Plan is double
underlined and language recommended for removal is struck through.
A. Comprehensive Plan Designations and Implementation
The Land Use Plan
The Comprehensive Plan is based on the recent land use inventories, updated land needs analyses, and the
revised goals and policies in this Comprehensive Plan. The Comprehensive Plan represents the most
practical arrangement of land uses, considering existing development patterns and the future vision for
Woodburn, as embodied in the revised goals and policies.
Comprehensive Plan Designations
Woodburn has six principal comprehensive plan map designations, and twothreeoverlay designations,
with corresponding zoning districts:
Policy Table 1: Comprehensive Plan Designations and Implementing Zoning Districts
Density
Range
(Units Per
Net
Comprehensive Plan Buildable Minimum Lot Sizes or Unit
DesignationImplementing Zoning District(s)Acre)Area in Square Feet
Low Density RSSingle Family Residential 5.2-7.26 6,000 Interior Lot
Residential 8,000 Corner Lot
10,000 Duplex Lot
R1S
Retirement Community SFR Not 3,600 Interior Lot
Applicable 3,600 Corner Lot
RSN
Nodal Development Nodal Development SFR 7.9-10.89 4,000 Interior Lot
Overlay 4,500 Corner Lot
Medium Density RM Medium Density Residential 10-162,720 Per M-F Unit
Residential 10,000 Duplex Lot
RMN
Nodal Residential 1,980 Per M-F Unit
Nodal Development 10-22 8,000 Duplex Lot
Overlay (NDO) 3,000 Interior Rowhouse
3,600 Corner Rowhouse
Commercial CGGeneral Commercial Not applicable
DDC
Downtown Development and
Conservation
CO
Commercial Office
NCN
Nodal Development Nodal Neighborhood
Overlay (NDO) Commercial
MUV
Mixed Use Village Mixed Use Village
Overlay (MUVO)
Industrial IPIndustrial Park Not applicable
LI
Light Industrial
SWIR
Southwest Industrial Southwest Industrial Reserve
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Reserve Overlay
(SWIR)
Open Space and Parks RCWODRiparian Corridor and Not applicable
Wetlands Overlay District
P/SP
Public Semi-Public
Public Use P/SPPublic Semi-Public Not applicable
Note: The net buildable area of a parcel excludes land dedicated for public rights-of-way or stormwater easements,
common open space, and unbuildable natural areas. For example, if a parcel has 10 acres, and 2 acres are removed
for streets and 2 acres are within the floodplain / riparian area, then 6 net buildable acres would remain. The range
of allowable densities is calculated based on net buildable acres. An acre has 43,560 square feet. Allowable
densities may be increased through the discretionary planned unit development review process.
Plan Implementation
Any comprehensive plan depends on implementation to accomplish the goals and policies established in
the plan. Cities have amassed a battery of ordinances to accomplish this purpose. Some ordinances have
been more successful thanothers and in time, no doubt, new methods and techniques will be developed.
Implementation should be a continual review of existing ordinances to ensure that they are accomplishing
the purposes for which they were originally designed. The City recognizes that over time many of the
ordinances which are suggested in this plan will be amended and perhaps entirely replaced by new
concepts. As long as the ordinance which is developed implements the goals and policies of the plan, a
change should not be necessary. However, at a minimum, the City should have basically the following
ordinances to implement the plan.
Zoning
…
Subdivision and Planned Unit Development Ordinances
…
Site Plan Review
…
Sign Ordinance
…
Transportation Plan
The Transportation System Plan (TSP) (2005) was revised to reflect changes in population, employment
and land use adopted in the Woodburn Comprehensive Plan (2005). The 2005 TSP includes goals and
objectives, forecasts traffic growth in the City, and identifies transportation improvements needed to
satisfy the forecasted growth. The plan:
Establishes the functional classification of roads and streets
Establishes street standard for each functional classification
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Evaluates interchange alternatives
Establishes alternative modes of transportation
Meets the Oregon Transportation Planning Rule
The Highway 99E Corridor Plan was adopted in 2012 to provide more detailed guidance about needed
transportation improvements, appropriate land uses, and the urban design vision for the section of
Highway 99E running through the City of Woodburn. The Corridor Plan amends and supplements the
2005 TSP and provides more specific guidance related to transportation improvements and design in the
Highway 99E corridor.
Capital Improvement Plans
…
Downtown and Urban Renewal
One of the main problems with land use and economy in the City has been the stagnated downtown area.
In response, the City adopted a downtown development plan and on Urban Renewal Agency and Plan.
The Urban Renewal Plan is a primary vehicle for revitalizing the Downtown area, including goals and
policies addressing financial assistance programs, citizen involvement, and physical improvements. The
downtown Development Plan was adopted as an element of the Comprehensive Plan.
Housing Codes
…
Flood Hazard Zone
…
Historical Site Zone
…
Housing Goals and Policies
…
Policies
…
D-2.2 It is the policy of the City to encourage a variety of housing types to accommodate the demands of
the local housing market. In Woodburn, the following needed housing types shall be allowed, subject to
clear and objective design standards, in the following zoning districts:
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Policy Table 2: Needed Housing Types and Implementing Zoning Districts
Needed Housing Type Implementing Zoning District(s)
Single Family Detached Residential RSSingle Family Residential
RS1
Retirement Community SFR
RSN
Nodal Development SFR
Manufactured Dwellings RSSingle Family Residential
RS1
On Individual Lots Retirement Community SFR
RM
In Parks Medium Density Residential
Attached Single Family Residential RMNNodal Residential
MUV
(Row Houses) Mixed Use Village
Duplexes On Corner LotsRSSingle Family Residential
RM
Generally Medium Density Residential
Multi -Family RMMedium Density Residential
RMN
Generally Nodal Residential
DDC
Above Downtown Development and Conservation
NNC
Commercial Nodal Neighborhood Commercial
MUV
Mixed Use Village
Government Assisted Housing* These “housing types” are based on financing or tenure, and are not
Farm Worker Housing* regulated by the City. If the housing type (e.g., single family,
Rental Housing* manufactured dwelling, attached single family, duplex, or multi-
family) is allowed in the underlying zoning district, these “housing
types” are allowed subject to applicable design standards.
F. Commercial Land Development and Employment
Commercial Land Designations
…
The second large commercial area that developed in the City is the commercialstrip along Highway 99E.
TheA history of commercial strip zoning along 99E has caused many problemsin the City of Woodburn.
This is because this type of development is the leastefficient use of commercial land and highway
frontage. To improve the efficiency of the commercial land and enhance the appearance and vitality of
this important commercial area, the City undertook the development of a plan for the corridor.The
resulting Highway 99E Corridor Plan, adopted in 2012, willguide future development and redevelopment
in the 99E corridor. Woodburn The Citywill work withproperty owners towards redeveloping this area
in the futurein line with the vision established in the Corridor Plan. By limiting thesupply of vacant
“green field” commercial land within the UGB, redevelopmentofunderutilized strip commercial lands is
more likely to occur. Access controlpolicies shall be observed when street improvements occur.
…
The fourth commercial area is the Highway 214/211/99E "Four Corners"intersection. This area has
become an important commercial district within theCity. This "Four Corners" area serves as a more local
retail service center. Thiscommercial district could realize more development in the future. In this area
development should be intensified so as to not create another commercial stripdevelopment.
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Commercial Lands Goals and Policies
Goal
F-1. Encourage infill and redevelopment of existing commercial areas within the community, as
well as nodal neighborhood centers, to meet future commercial development needs.
Policies
…
F-1.4 Architectural design of commercial areas should be attractive with a spacious feeling and enough
landscaping to reduce the visual impact of large expanses of asphalt parking areas. Nodal and mixed use
village commercial areas should be neighborhood and pedestrian oriented, with parking to the rear or side
of commercial buildings, and with pedestrian connections to neighboring residential areas.
…
F-1.10 The Highway 99E commercial corridor south of Lincoln should be redeveloped over time with
more intense mixed use development. The Mixed Use Village Overlay(MUVO)designates an area that
is intended to promote efficient use of land and urban services; create a mixture of land uses that
encourages employment and housing options in close proximity to one another; restrict land extensive
commercial, storage, and industrial uses; and encourage pedestrian-oriented development.
F-1.11 In order to spur desired developmentandredevelopment within the MUVO, and consistent with
the recommendations of the Highway 99E Corridor Plan, the City will apply the Mixed Use Village zone
ina strategic area in the vicinity of theYoung Street intersection.
F-1.12 The city shallinitiate a legislative zone change to designate remaining land within the area
designated MUVO and within the City limitsas MUV at such time as ODOT includes a project to
improve Highway 99E south of Lincoln in the Development Statewide Transportation Improvement
Program (DSTIP).
F.1.13 Property owners within the MUVO and within the City limits may petition the City to initiate a
legislative zone change to MUV for their property at any time.Land outside City limits within the
MUVO shallbe zoned MUV upon annexation.
F-1.14 The City intends to beautify the Highway 99E commercial corridor through measures such as
replacement of overhead power and telephone lines with underground utilities, enhancing street lighting
in the corridor, providing for non-conforming sign amortization, providing enhanced streetscape
furnishings in key pedestrianareas, and establishing a storefront improvement program. The Citywill
explore options to fund such improvements, including its Capital Improvement Program, formation of a
Local Improvement District, and Urban Renewal funds.
138
H. Transportation
Transportation Goals and Policies
Woodburn amended its Transportation System Plan (TSP) in coordination withMarion County, the
Department of Land Conservation and Development (DLCD)and the Oregon Department of
Transportation (ODOT) as part of its 2005Periodic review package. The goals and policies listed below
have been amendedconsistent with the 2005 TSP. A new “Marion County Coordination” subsectionis
added to ensure coordination with the Goals and Policies of the Marion CountyGrowth Management
Framework Plan.
Goal
H-2. Develop a street system that will handle projected year 2020 trafficdemands in the Woodburn
area, and interconnects residential areaswith employment centers, schools, parks, churches, and
regionaltransportation facilities.
Policies
…
H-2.2 Work with ODOT to develop and implement strategies for improving state facilities within the
City. Develop a strategy for improving Oregon 219/214, and 211, and 99Ethrough Woodburn, including
added travel lanes, signalization, andaccess management.Work with ODOT to implement the Highway
99E Corridor Plan to improve Highway 99E.
H-2.3 Identify new east-west and north-south collector/minor arterial streetswithin the City to relieve
traffic demands on Oregon 219/214, 211, and99E and coordinate with Marion County to construct the
streetconnections needed outside of the urban growth boundary (UGB). Where development of new
collector/minor arterial streets is not possible within the near future, such as when an alignment runs
outside of the UGB, work with property owners during subdivision to provide local street connections to
improve connectivity in the interim.
…
Goal
H-3. Develop transportation improvements that address overall trafficsafety in the Woodburn
area.
Policies
H-3.1 Work with ODOT to improve safety on state facilities within the City. Develop access
management strategies for Oregon 219/214, and 211, and 99Ethrough Woodburn, particularly focusing
on the section of Oregon214 between Interstate 5 (I-5) and Cascade Drive, and Oregon 99E south of
Lincoln Avenue.Work with ODOT and property owners through the redevelopment process to improve
access management on Highway 99E in accordance with the access management strategies identified in
the Highway 99E Corridor Plan.
…
Goal
139
H-6. Coordinate with Marion County in planning for a safe and efficientcounty-wide
transportation system by:
(a) Encouraging use of alternative modes of transportationincluding mass transit, bicycling,
walking and carpooling; and
(b) Addressing transportation needs appropriate to both urban andrural areas throughout the
county.
Policies
…
H-6.4 Woodburn should provide for a complementary mix of land uses andtransportation systems by
providing for mixed use development in theDowntown Development and Conservation (DDC), the
Mixed Use Village (MUV),and the NodalDevelopment Overlay (NDO) districts.
…
Goal
H-7. Coordinate with the Oregon Department of Transportation (ODOT)to maintain highway and
intersection capacity, safety andfunctionality by:
(a) Developing and adopting performance standards; and
(b) Prohibiting comprehensive plan amendments that do not meetadopted performance standards.
Policies
…
H-7.3 To ensure safety and long-range mobility on Highway 99E, the City shall be guided by the
following access management objectives:
(a)Ensure that all properties are provided reasonable access to the public street network, including
consideration of the economic development needs of each property.
(b)Driveways to commercial businesses on Highway 99E should be designed to allow for safe and
comfortable passage, improving existing driveways to comply with ODOT design standards as
opportunities arise.
(c)Consider locating business signage immediately adjacent to the downstream side of driveways to
improve theability of drivers to locate them.
(d)Provide convenient accessways for pedestrians and bicycles between the Highway 99E
commercial corridor and neighboring residential areas.
(e)Safe and convenient pedestrian walkwaysshould be provided between business entrances and
sidewalks along Highway 99E, minimizing conflicts between pedestrians and motor vehicles in
parking lots.
140
(f)Consider prohibiting driveways or restricting turning movements to driveways adjacent to turning
pockets at intersections where necessary tomaintain safe highway operations.
(g)Seek opportunities to align driveways on opposite sides of roadways to avoid turning conflicts.
(h)Driveways to Highway 99E should maintain adequate intersection sight distance and at a
minimum shall maintain safe stopping sight distance along the highway.
(i)Reduce access points over time to move in the direction of meeting, ODOT’s adopted access
management spacing standards for Regional Highways.
(j)Create shared access points to reduce the overall number of driveways along theHighway 99E
corridor. Shared driveways must be supported through the establishment of easements allowing
for travel betweenadjacent properties.
(k)Provide inter-parcel circulation through cross-over easements, frontage or backage roads, or
shared parking lots where feasible.
(l)Utilize easements, frontage/backage roads, and lower classified city streets to allow for secondary
access to facilitate large truck and emergency service vehicle circulation.
(m)Seek opportunities to enhance the connectivity of the local street system surrounding Highway
99E.
H-7.4 The City will actively participate in developing strategies and solutions to mitigate impacts to
property owners that may result from implementing future highway design and planned built
improvements.
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The Comprehensive Plan map will be amended to include the Mixed Use Village Overlay (MUVO), which
indicates the ultimate extent of the planned Mixed Use Village. The area that will be designated with
the MUVO is shown in Figure A1. In addition, the Comprehensive Plan designation for parcels currently
Industrial or Low Density Residential within the MUVO, will need to beamended to Commercial.
142
Figure A1: Comprehensive Plan Map Mixed Use Village Overlay
143
144
To facilitate the implementation of improvements identified through the Woodburn Highway 99E
Corridor Plan, the following amendments are recommended to the Woodburn Transportation System
26
Plan (TSP).
Street design standards are shown in Figure 7-2 and discussed on page 7-3 of the TSP. However, these
standards are only applicable to city streets. Therefore, the street design standards shown in Figure B1
are to be applied to Highway 99E.
The intermediate to long-term (approximately 2010-2020) project identified for Oregon 99E on page 7-5
of the TSP is replaced with the following project:
Highway 99E: As redevelopment occurs in the corridor, upgrade to be compliant with the design
standards for Highway 99E provided in Figure B1. This would ensure continuous pedestrian and
bicycle facilities along the corridor as well as the implementation of access management
27
strategies.
The following projects are added to the 2010-2020 project list on page 7-5 of the TSP:
Restrict turn movements and eventually close the Silverton Avenue intersection on Highway 99E
and vacate the segment of Silverton Avenue between Highway 99E and Bird’s Eye Avenue.
Restrict turn movements and eventually close the Birds Eye Avenue intersection on Highway 214
and vacate the segment of Birds Eye Avenue between Highway 214 and Silverton Avenue.
Work with ODOT to develop and implement a Traffic Management Plan for the Highway 99E
corridor that responds to increased congestion resulting from incidents on I-5 and regional
events.
Update roadway lighting to meet ODOT roadway lighting standards.
Coordinate the traffic signals on Highway 99E from Hardcastle Avenue through Cleveland Street.
Signals should be interconnected and signal timings should be optimized.
Construct an additional westbound lane on Young Street at the intersection with Highway 99E to
accommodate separate left, through, and right turn lanes (additional right-of-way will likely be
required).
Implement protected-permissive left turn phasing on the eastbound and westbound approaches
of Young Street at the intersection with Highway 99E.
26
Woodburn Transportation System Plan, Volume 1 Text, October 2005.
27
In the stretch of highway between MP 33.08 and 33.19, where the roadway will transition from a five-lane cross-section to a
three-lane cross-section, dedication of the full 100 feet of right-of-way is recommended to allow for engineering of the
transition as needed; however, installing sidewalks and other improvements at their final locations will likely not be feasible if
engineering drawings for the highway improvement have not been completed.
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Close the intersection of George Street at Highway 214 to through motor vehicle travel, leaving
it accessible by pedestrians, bicycles, and emergency vehicles only. This project shall not be
constructed prior to the project that would construct a new local street connecting George
Street to Highway 214 just west of the urban growth boundary (see New Streets, project (a)).
The following projects are added to the intermediate to long-term (next 10-15 years) project list on page
7-6 of the TSP:
Construct a new local street connecting George Street to Highway 214 just west of the eastern
urban growth boundary.
Enhance north-south connectivity of local streets paralleling the Highway 99E corridor as part of
property development or subdivision and/or by extending Cooley Road from Hardcastle Avenue
28
to Highway 214.
The pedestrian plan described on pages 7-9 and 7-10, as well as Figure 7-3, of the TSP is amended to
include the following projects:
Install countdown pedestrian timers and construct ADA enhancements at signalized
intersections along Highway 99E.
Construct curb extensions to shorten pedestrian crossing distances on approaches to Highway
99E where appropriate (no curb extensions are to be constructed that would narrow the width
of Highway 99E itself). Street approaches where curb extensions should be considered include:
Alexandria Avenue, James Street, Williams Street, Blaine Street, Aztec Drive, Laurel Avenue, and
Tomlin Avenue.
Provide pedestrian and bicycle access to Highway 99E from adjacent residential neighborhoods.
This will require development of accessways and obtaining easements. Pedestrian/bicycle
accessways must include a paved surface of at least 10 feet wide with a minimum vertical
clearance of 10 feet. Potential locations for pedestrian/bicycle accessways connecting to
Highway 99E include: from June Way (near the Audrey Way intersection), from Johnson Street,
from Elm Street, from Wilson Street, and from Hawley Street (possibly part of future street
extension).
Construct enhanced pedestrian crossings of Highway 99E. Identification of crossing locations
should occur through collaborative efforts with the community and the Oregon Department of
Transportation. The maximum potential for enhanced pedestrian crossing locations is estimated
to include: three crossings between Mt Hood Avenue and Hardcastle Avenue, one crossing
between Hardcastle Avenue and Lincoln Street, and three crossings between Lincoln Street and
28
Because an extension of Cooley Road as described would run outside of the city’s UGB, it is included as a purely conceptual
project to be considered at a later date if the land in question is eventually added to the UGB. The incremental improvement of
north-south connectivity through new street connections east of Highway 99E may accomplish the same objective and
eliminate the need for Cooley Road itself to be extended.
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Young Street. Recommended crossing treatments include, but are not limited to: installing
pedestrian-actuated rectangular rapid flashing beacons (lights and signs that warn, but do not
stop traffic when a pedestrian is trying to cross), median refuge islands (raised islands in the
center of the roadway that provide a sheltered area where pedestrians can wait for gaps in
29
traffic), and improved street lighting.
Cost estimates (in 2011 dollars) for recommended transportation improvement projects included in this
amendment to the Woodburn TSP are provided in Table B1, and can be seen in Figure B2. Projects have
been organized to match the existing structure of the Woodburn TSP; as such, the projects listed in
30
Table B1 would be included as projects for the 2010-2020 time period.
While all projects are categorized in the same time frame according to the TSP, there may be
opportunities to advance some projects earlier. Potential phasing could include:
Short Term (0-5 years): Project No. 1, 2, 3, 4, 5, and 6
Medium Term (5-10 years): Project No. 7, 8, 9, 10, 11 and 12
Long Term (10-20 years): Project No. 13, 14, 15, 16
Potential funding sources have been identified in the City’s TSP. These sources could include Federal,
State or Marion County funds, Local Improvement Districts, Urban Renewal Districts, Transportation
Impact Fees, and General Obligation Bonds.
29
Note that Oregon law requires a motorist to stop for an extended period while pedestrians are crossing a street. Oregon law
also prohibits vehicles from standing or parking on railroad tracks. The placement of a marked crosswalk across Highway 99E, a
facility with high traffic volumes, must be executed in such a way that avoids queuing over the existing railroad track just north
of Cleveland Street. ODOT Rail Division opposes a crosswalk at Cleveland Street because of queuing concerns, unless the
intersection is fully signalized for vehicles and pedestrians and those signals are interconnected with the crossing signals. If a
crosswalk precedes the installation of the planned signalized intersection, the crosswalk should be a minimum of 150 feet from
the crossing.
30
Because the TSP was adopted in 2005, it does not identify projects further into the future than 2020. In order to maintain
consistency with the structure of the existing TSP, all the projects identified in this Plan have been listed in the 2010-2020 time
frame; however, the Highway 99E Corridor Plan is a 20-year plan and projects identified in this Plan are not all be likely to occur
before 2020. Appendix B includes an indication of the likely timing of the projects identified in this Plan.
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Figure B1: Street Design Standards for Highway 99E
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148
Table B1: Cost Estimates for Proposed Transportation Improvements
Project Estimated Owning
Project Title
No. Capital Cost* Jurisdiction**
Ten to Fifteen Years (2010-2020)
Tier 1: Short Term Projects
Restrict turning movements and eventually close Silverton Avenue
1 $16,000 State/City
intersection with Highway 99E
Restrict turning movements and eventually close Birds Eye Avenue
2 $23,000 State/City
intersection with Highway 214
3 Implement Traffic Management Plan for Highway 99E corridor $45,000 State
Install pedestrian countdown timers and construct ADA ramps at
4 $110,000 State
signalized intersections on Highway 99E (3 intersections)
Construct curb extensions on select approaches to Highway 99E -
5 $60,000 State/City
parallel to highway, not narrowing highway (8 intersections)
6 Construct enhanced pedestrian crossings along Highway 99E (7 total) $280,000 State
Tier 2: Medium Term Projects
Coordinate Highway 99E traffic signals from Hardcastle Avenue to Young
7 $55,000 State
Street (and future Cleveland Street signal)
Improve Highway 99E/Young Street intersection to add a westbound
lane (providing separate left, through, and right lanes) and protective-
8 $550,000 State
permissive left turn phasing on eastbound and westbound approaches
Close George Street intersection with Highway 214, maintaining passage
9 $60,000 State/City
for pedestrians, bicycles, and emergency vehicles
Construct new local street connecting George Street to Highway 214
10 $425,000 City
just west of the eastern UGB
11 Extend Mill Creek corridor off-street pathway to Belle Passi Road $840,000 County/City
Construct pedestrian/bicycle accesswaysbetween Highway 99E and
12 $675,000 City
residential areas (total of 5 locations – highly variable costs)
Tier 3: Long Term Projects
Highway 99E widening from Lincoln Street to 1,150 feet south of
13 $7,150,000 State
Cleveland Street
Highway 99E widening from 1,150 feet south of Cleveland Street to
14 $5,130,000 State
proposed southern UGB
Improve roadway lighting along Highway 99E corridor (assumed 60% of
15 $2,110,000State
corridor)
Enhance north-south connectivity of local streets paralleling the
16 $8,270,000 County/City
Highway 99E corridor as part of property development or subdivision
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149
and/or by extending Cooley Road from Hardcastle Avenue to Highway
214 ***
Grand Total $25,799,000
Notes:
* Cost estimates are in 2011 dollars.
** Owning Jurisdiction does not necessarily indicate the likely funding source for the improvement. In some cases,
private development or other funding sources may contribute part or all of the cost of the improvement.
*** Because an extension of Cooley Road would run outside of the city’s UGB, it is included as a conceptual project
to be considered at a later date if the land in question is eventually added to the UGB. The incremental
improvement of north-south connectivity through new street connections east of Highway 99E may accomplish
the same objective and eliminate the need for Cooley Road itself to be extended.
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Figure B2: Proposed Transportation Improvements
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The table below presents proposed draft code language for the new Mixed Use Village zone to
implement the land use changes associated with the preferred alternative. The proposed code language
is shown in the left-hand column; additional information about the background and rationale for the
proposed language is shown in the right-hand column.
Proposed Language Commentary
2.117 Mixed Use Village (MUV)The new zone would become its own chapter in
the WDO. For convenience, it has been
numbered with the next available section
number; however, the city may prefer to
incorporate it after the other commercial /
mixed use zones (e.g. 2.109) and renumber the
subsequent chapters.
2.117.01Purpose Purpose language borrows from existing
language in CG, DDC, and NNC as appropriate.
The Mixed Use Village zone is intended to promote
efficient use of land and urban services; create a mixtureof
land uses that encourages employment and housing options
in close proximity to one another; restrict land extensive
commercial, storage, and industrial uses; and encourage
pedestrian-oriented development. This zone is intended to
be accessible to pedestrians and bicyclists, as well as
automobiles.
2.117.02 Permitted Uses The city is in the process of updating the
development code, and is likely to make
The following uses, when developed under the applicable
changes to the way permitted uses are
development standards of the WDO, are permitted in the
organized and defined (such as moving away
MUV zone.
from the use of NAICS codes to define land
uses). Those changes are not reflected in the
sections below because the new zone must be
able fit into the existing code when it is
adopted. However, it is anticipated that the
organization of the permitted / conditional uses
may be modified along with the other zones as
part of the comprehensive code overhaul
project.
A. Residential Allows the following residential usesnot
currently allowed in CG:
The following residential uses are permitted in the MUV
Stand-alone multi-family at 12-32
1
zone:
DU/acre
Residential as part of vertical mixed
1. One dwelling unit in conjunction with a commercial use.
use at up to 32 DU/acre (no minimum)
Single-family attached at 12-24
2. Multiple-family dwelling units at a net density of
DU/acre
between 12 and 32 dwelling units per acre.
Nursing and assisted care facilities
3. Multiple-family dwellings built as part of a vertical
A footnote restricting residential uses next to
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Proposed Language Commentary
mixed use development at a maximum net density of 32 employment uses south of Cleveland will need
to be included in Section 2.117.02 Permitted
dwelling units per acre.
Uses.
4. Attached single-family residences at a net density of 12
to 24 dwelling units per acre
5. Nursing care facilities.
6. Assisted care facilities.
1
Residential uses are not permitted on parcels adjacent to
industrially zoned land. This restriction applies to parcels
south of Cleveland Street, east of Highway 99E.
B. Special Trade Contractors Allows existing special trade contractors to
continue as permitted uses. Differs from the CG
1. Plumbing, heating and air-conditioning contractors
in that new special trade contractors are not
lawfully existing as of [adoption date of new zone].
permitted to locate in the zone. Outdoor
storage and display are regulated through
2. Paper and wall coving contractors lawfully existing as of
development standards.
[adoption date of new zone].
3. Masonry, drywall, insulation and tile contractors lawfully
existing as of [adoption date of new zone].
4. Floor laying contractors lawfully existing as of [adoption
date of new zone].
5. Roofing, siding, and sheet metal construction contractors
lawfully existing as of [adoption date of new zone].
6. Glass and glazing contractors lawfully existing as of
[adoption date of new zone].
7. Building equipment and other machinery installation
contractors lawfully existing as of [adoption date of new
zone].
8. Ornamental ironwork contractors lawfully existing as of
[adoption date of new zone].
C. Manufacturing Allows existing manufacturers of fabricated
metal products and furniture to continue as
1. Fabricated metal product manufacturing when located
permitted uses provided that they are located
entirely within a buildingand lawfully existing as of
entirely within a building. Differs from the CG
[adoption date of new zone].
in that new manufacturers of fabricated metal
products and furniture are not permitted to
2. Household and institutional furniture and kitchen cabinet
locate in the zone.
manufacturing when located entirely within a building and
lawfully existing as of [adoption date of newzone].
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154
Proposed Language Commentary
D. Retail Trade Modifications from the CG zone include:
Allowing bakeries and printing and
1. Bakeries.
related support activities, as in DDC
and NNC
2. Printing and related support activities
Outdoor display and storage is
regulated through development
3. Automotive parts without installation.
standards rather than for particular
uses
4. Furniture and home furnishings.
Allows used merchandise stores
outright rather than conditionally
5. Electronics and appliance stores.
6. Building materials and garden equipment and supplies.
7. Food and beverage stores.
8. Health and personal care stores.
9. Clothing and accessory stores.
10. Sporting goods, hobby, book and music stores.
11. General merchandise stores.
12. Misc. retail EXCEPT manufactured (mobile) home
dealers.
CTransportation & Warehousing Makes customer-oriented transit facilities
permitted outright (other facilities associated
1. Postal service.
with transit were conditional uses and are no
2. Transit stops, stations, and related facilities.
longer permitted). Note that none of the terms
used in sub-section 2 are currently defined in
the code.
D. Information Same as in CG
1. Publishing.
2. Motion picture theaters EXCEPT drive-ins.
3. Radio and TV.
4. Cable networks.
5. Telecommunications. EXCEPT telecommunication
facilities subject to Section 2.204.03.
6. Information and data processing.
E. Finance and Insurance Allows pawn shops (same language as DDC)
1. Finance and insurance EXCEPT check cashing, pay day
loan and cash transfer establishments [other than banks] as
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155
Proposed Language Commentary
a predominant, ancillary, or required supporting use.
F. Real Estate and Rental and Leasing Allows a slightly wider range of rental and
leasing uses than the CG zone. Regulates
1. Real estate.
outdoor display and storage through
2. Rental and leasing.
development standards.
G. Professional, Scientific & Technical Services Allows all the same uses as CG, but allows
indoor vet services and Scientific Research and
1. Professional, Scientific, and Technical Services
Development Services (5417) outright rather
EXCEPT veterinary service not located entirely within a
than conditionally.
building.
H. Administrative & Support Services Same as CG
1. Administrative and support services INCLUDING
employment, travel and investigation.
2. Management and corporate offices
I. Educational Service Somewhat more permissive than CG -allows
colleges & universities and most other
1. Educational services both public and private, EXCEPT
educational services except flight training or
Flight Training and Automobile Driving Schools.
automobile driving schools.
J. Health Care &Social Services Same as CG
1. Ambulatory health care EXCEPT Ambulance service.
2. Social services INCLUDING child day care services.
K. Arts, Entertainment & Recreation Similar to CG, but slightly different (allows
amusement arcades, does not allow spectator
1. Performing arts, EXCEPT spectator sports.
sports).
2. Museums and historic sites EXCEPT zoos.
3. Amusement arcades.
4. Fitness and recreational sports.
5. Bowling centers.
6. Other amusements INCLUDING ballrooms.
7. Community center.
L. Accommodation & Food Service Similar to CG, but slightly more permissive on
accommodations (allows hostels and cabins and
1. Traveler accommodation, EXCEPT casino hotels
cottages for tourist accommodation), and
slightly more restrictive on food service (does
2. Food service and drinking places EXCEPT food
not allow food contractors).
contractors and mobile food service.
M. Other Services Similar to CG, with the following differences:
Allows existing electronic and precision
1. Consumer Electronics Repair and Maintenance
equipment repair (8112) to continue as
a permitted use, but doesn’t allow new
2. Electronic and precision equipment repair, EXCEPT
electronic and precision equipment
consumer electronics repair and maintenance, lawfully
repair uses except for consumer
electronics repair.
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Proposed Language Commentary
existing as of [adoption date of new zone].
Prohibits newelectric motor repair,
but allows existing uses to continue as
3. Electric motor repair entirely within a building and
permitted uses.
lawfully existing as of [adoption date of new zone].
Allows Home goods repair (8114)
EXCEPT upholstery (81142) and leather
4. Home goods repair EXCEPT upholstery and leather
repair (81143) outright rather than
repair.
conditionally.
5. Personal care services INCLUDING barber shops and
beauty salons.
6. Personal and Household Goods Repair and Maintenance
7. Funeral home.
8. Dry cleaning and laundry service EXCEPT linen supply.
9. Photo finishing.
10. Parking lots and garages EXCEPT extended vehicle
storage.
11. All Other Personal Services INCLUDING bail bonding
and consumer buying services.
12. Religious, civic, professional and similar organizations.
N. Public Administration Same regulation as CG, but using same
language as DDC
1. Public administrationINCLUDING government offices,
courts, and police and fire stations.
O. Streets and Utilities Same as in CG
1. Rights of way and easements and the improvements
therein for streets, water, sanitary sewer, gas, oil, electric
and communication lines and for storm water facilities and
for pump stations.
2.117.03 Special Permitted Uses Same language as CG
The following uses, when developed under the applicable
development standards of the WDO including the special
development standards of Section 2.203, are permitted in
the MUV zone:
A. Craft industries subject to Section 2.203.07. Differences from CG zone:
B. Delivery services subject to Section 2.203.08.
Allows Craft industries as a special use
(like DDC)
C. Facilities during construction subject to Section
Leaves out complementary residential
2.203.10.
use since it is unnecessary with
D. Temporary outdoor marketing and special events subject
residential uses allowed outright
to Section 2.203.19.
2.117.04 Conditional Uses Same language as CG
The following uses may be permitted in the MUV zone
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Proposed Language Commentary
subject to the applicable development standards of the
WDOand the conditions of conditional use approval:
A. Retail Trade The uses under this heading are all land
extensive retail uses. Existing uses are allowed
1. Motor vehicle and parts dealers, EXCEPT automotive
to remain as conditional uses (as they are in the
parts without installation, lawfully existing as of [adoption
CG zone), but no new uses in these categories
date of new zone].
may be established in the zone.
2. Tractor and heavy equipment dealers lawfully existing as
of [adoption date of new zone].
Used merchandise stores, which were
3. Gasoline stations lawfully existing as of [adoption date
conditional in CG, are permitted outright in the
of new zone].
new zone.
4. Manufactured (mobile) home dealers lawfully existing as
of[adoption date of new zone].
B. Transportation & Warehousing The uses under this heading are all land
extensive and not pedestrian-friendly. Existing
1. Taxi service lawfully existing as of [adoption date of
uses are allowed to remain as conditional uses
new zone].
(as they are in the CG zone), but no new uses in
2. Limousine service lawfully existing as of [adoption date
these categories may be established in the
of new zone].
zone.
3. School transportation lawfully existing as of [adoption
date of new zone].
Urban transit system (48511) and Interurban
4. Charter bus service lawfully existing as of [adoption date
and rural transit (4852) are no longer
of new zone].
conditional uses – facilities serving passengers
5. Special needs transportation lawfully existing as of
(transit stops and stations) are permitted
[adoption date of new zone].
outright, but maintenance and other non-
6. Motorvehicle towing lawfully existing as of [adoption
customer facilities for transit are not permitted
date of new zone].
in the new zone.
7. Self- and mini-storage lawfully existing as of [adoption
date of new zone].
C. Finance and Insurance Check cashing, etc. treated the same as in CG;
pawn shops permitted outright rather than
1. Check cashing, pay day loans and cash transfer
conditionally.
establishments, other than banks.
E. Health Care and Social Services Prohibits new ambulance services (land
intensive and not pedestrian-friendly).
1. Ambulance service lawfully existing as of [adoption date
of new zone].
F. Accommodations and Food Service Prohibits new RV parks (land intensive and not
pedestrian-friendly).
1. Recreational vehicle parks lawfully existing as of
[adoption date of new zone].
G. Other Services Home goods repair (8114) EXCEPT upholstery
(81142) and leather repair (81143) is a
1. Automotive maintenance lawfully existing as of
permitted use rather than a conditional use.
[adoption date of new zone]. This use is allowed only when
located entirely within an enclosed building, except for
Uses under this heading are allowed to
short-term outdoor parking of vehicles waiting for service.
continue as conditional uses if already legally
2. Commercial and industrial equipment repair lawfully
established, but new uses in these categories
existing as of [adoption date of new zone].
are not permitted.
3. Linen supply lawfully existing as of [adoption date of
new zone].
H. Government and public utility buildings and structures Same as CG
EXCEPT uses permitted in Section 2.117.01 and
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Proposed Language Commentary
telecommunications facilities subject to Section 2.204.03.
2.117.05 Accessory Uses Same language as CG
The following uses are permitted as accessory uses subject
to Sections 2.202 and 2.203.
A. Fence or free standing wall.
B. Accessory building.
2.117.06 Dimensional Standards
The following dimensional standards shall be the minimum
requirements for all development in the MUV zone.
A. Lot Standards. Same standard as the CG zone, but wording is
slightly different.
In the MUV zone the lot area shall be adequate to contain
all structures within the required setbacks. There shall be no
minimum width or depth.
B. Building Height. Same standard as in CG outside the Gateway
subdistrict
The maximum height of buildings shall not exceed 70 feet,
EXCEPT chimneys, spires, domes, flag poles and other
features not used for human habitation (EXCEPT
telecommunication facilities), shall not exceed 100 feet.
C. Setback and Buffer Standards.
1. Minimum Front Setback and Setback Abutting a Street. Reduces minimum front setbacks from 15’ to 0’.
There shall be no minimum building setback abutting a
street in excess of any Special Setback, Section 3.103.05.
2. Maximum Front Setback and Setback Abutting a Street. Establishes a recommended (not required)
maximum front setback of 15’.
The maximum setback abutting a Major Arterial street
should be 15 feet plus any Special Setback, Section
3.103.05.
3. Minimum Interior Side and Rear Setbacks:Same as CG zone.
a. Development in the MUV zone shall be subject to the
setback and buffer requirements of Table 2.1.XX.
TABLE 2.1.XX.
Abutting LandscapingWallInterior
PropertySetback
RS, R1S, There is no Solid brick or 10 ft.
or RM buffer yard architectural
zone landscaping wall with
requirement anti-graffiti
for an interior surface, no
yard abutting less than 6
a buffer wall. feet or greater
than 7 feet in
height.
MUV, There is no Alternative Alternative
CO, CG, buffer yard A: A:
DDC, landscaping
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159
Proposed Language Commentary
NNC, requirement Wall 5 ft.
P/SP, IP, for an interior requirements
Alternative
SWIR or yard abutting shall be
B:
IL zonea buffer wall. determined in
conjunction
Zero
with the
setback
applicable
abutting a
Design
building
Review
wall.
process.
Alternative B:
No wall
required.
b. The minimum building setback from a private access Same language as in the CG zone.
easement shall be 5 feet.
3. In addition to subsections 1 and 2 above, setbacks and Sub-section 3 would apply existing guidelines
for maximum setbacks to yards abutting side
buffers are subject to the design guidelines of Section
streets where sub-section 2 does not apply.
3.107.06.
2.117.07 Development Standards
A. Applicability
1. Multiple-family dwellings shall be subject to the design This is generally consistent with how medium
density / multi-family residential is treated in
standards or guidelines of Section 3.107.05unless the
other zones, including DDC and the downtown
multiple-family dwellings are built as part of a vertical
Gateway subdistrict of CG.
mixed use development.
Stand-alone residential uses in the new zone
would not have to meet the same site
development or building design standards as
non-residential uses, which may be appropriate
for the residential uses, but could disrupt the
pattern of development along the corridor.
2. All development EXCEPT that described in Section References a new set of design guidelines and
standards applicable to the new zone.
2.117.07.A.1shall be subject to the architectural design
standards or guidelines of Section 3.107.10.
3. The change or expansion of an existing use on a non-This section is intended to allow proposals for
partial redevelopment of an existing non-
conforming site shall be subject to Section 1.104.02
conforming site to move towards compliance
EXCEPT that any change or expansion of an existing use
with these standards rather than having to
that cannot meet the Design Guidelines and Standards of
bring the full site into compliance, which could
Section 3.107.10.B,subsections 3 through 5, may be
require tearing down an existing building.
approved provided that it does not make the development
more nonconforming with respect to these standards.
B. Off Street Parking.Applies parking and access standards (same as
in CG zone).
All parking and access standards of Sections 3.104and
3.105shall apply.
C. Signs.Makes new zone subject to same sign
regulations as DDC and NNC (Table 3.110.10D)
Signs shall be subject to Section 3.110.10D.
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Proposed Language Commentary
rather than CG standards (Table 3.110.10B).
This effectively prohibits pole signs.
D. Street and sidewalk improvements.
1. The street frontage abutting a city street of a subject Similar to existing regulations in the CG,
property owners are required install sidewalks
property shall be improved with sidewalks and street trees
and street trees on city streets unless they
as required by Section 3.101. Sidewalks and trees shall be
obtain an exception under Section 5.103.12.
installed by the property owner to the standards of Section
They can also file a Performance Guarantee
3.101and 3.106. The improvement shall be determined at
with the City Administrator as a commitment to
the time of subdivision, PUD or design review as
construct the require improvements in the
applicable.
future under Section 4.102.07.
Note that frontage improvements are now
included in a separate section – See Additional
Proposed Code Amendments in the next
section.
E. Property Disposition. All uses shall be established and Standard language (same as CG).
conducted on lots of record, as defined by Section 1.102
and developed to the public facility and access standards of
Sections 3.101, 3.102 and 3.104.
1. New lotsof record shall be subject to the following
standards and procedures:
a. Partitions, Section 3.108;
b. Subdivisions, Section 3.108; or
c. Planned Unit Development Section 3.109.
2. Alteration of the property lines of existing lots of record
shall be subject to the applicable following standards and
procedures:
a. Property Line Adjustment, Section 5.101.07.
b. Replatting, Section 3.108.
c. Vacation, applicable Oregon Revised Statutes.
3.107.10Guidelines and Standards for Non-Residential Design standards for the new zone will be
located in Section 3.107. The City is moving
and Mixed Use Structures inthe MUV zone
towards consolidating all design standards in
this section rather than including them in the
individual zones. As part of the on-going
comprehensive code update, the City may wish
to reorder the sections of 3.107 so that this
section follows 3.107.07.
A. Applicability.Buildings that are exclusively residential are
subject to Section 3.107.05, but mixed use
The following design guidelines and standards shall be
buildings with a residential component are
applicable to all buildings in the Mixed Use Village (MUV)
subject to this section.
zone that include a non-residential use,whether or not
residential uses are included in the structure.
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161
B. Site DevelopmentStandards.
1. The primary building entrance shallbe oriented toward Requires the primary entrance to face the
street or to the side – allows flexibility for
the street, toward a side yard, or any angle in between. For
development to put parking beside the building.
the purposes of this section, the “primary building
entrance” is the main public entrance to the building. In the
There are currently no requirements or
case where no public entrance exists, the “primary building
guidelines related to building entrance
entrance” is the main employee entrance. Where there are
orientation in the CG zone or applicable design
multiple buildings on a lot, all buildings shallcomply with
guidelines.
this standard.
2. Buildings shouldoccupy a minimum of 50 percent of all Suggests (but does not require) that buildings
occupy a majority of the street frontage and
street frontages along public streets. Buildings shouldbe
locate near the intersection for corner lots.
located at public street intersections.
(Same language as 3.107.07.B.1.a., which
applies in DDC and NNC.)
Existing building location guidelines applicable
to the CG zone (3.107.07.D) recommend (but do
not require) a maximum setback of 150 feet
from a street and building location and
orientation that complements abutting
development.
3. Parking areas shallbe limited to 50 percent of the street Language is similar to guideline from
3.107.07.B.1.e (which applies to DDC and NNC),
frontage abutting a Major Arterial.
but is stated as a standard (required) and
applied along Major Arterials (i.e. 99E).
Existing parking location guidelines applicable in
the CG zone (3.107.06.E) recommend (but do
not require) parking between the front of a
building and the street be limited to a
maximum of 130 feet.
4. Parking areas shall notbe located within a front yard or Prohibits parking within the space between the
front of the building and the street (regardless
within a side yard abutting a Major Arterial.
whether the “front” faces 99E or a side street).
If the “front” is on a side street, parking is also
prohibited between the building and 99E. Also
requires parking to be set back from the street
as far as the building is. This creates an
incentive to pull buildings up to the sidewalk,
and for development on corner lots to locate
buildings at the corner.
Currently, in the CG zone, parking is prohibited
within a required yard or special setback unless
it is adjacent to a wall.
5. All front yards and all side yards abutting a street either Where buildings are set back from a street, the
yard must either be landscaped or provide
shallbe landscaped at a density of one (1) plant unit (PU)
outdoor seating or other hardscape amenities.
per 20 sq. ft., per Table 3.1.5.,or shallbe occupied by
Note that there will be no yard if the building is
pedestrian amenities (e.g., plaza, outdoor seating, outdoor
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eating areas).set at the property line.
Existing landscaping standards applicable to the
CG zone (3.106.03.A.2.b) require landscaping at
the same density for all yards abutting a street
(including in parking areas), but do not allow for
pedestrian amenities as an alternative.
6. On-site pedestrian circulation.
a. Walkways shall connect all building entrances with This language is stronger than what is currently
required for the CG zone.
adjacent sidewalksand on-site parking areas, and shall
connect off-site adjacent uses to the site unless topographic
or existing development constraints preclude making
certain walkway connections.
b. Where walkways cross a parking area or driveway they This language is stronger than what is currently
required for the CG zone.
shall be clearly marked with contrasting paving materials
(e.g., light-color concrete inlay between asphalt), which
may be partof a raised/hump crossing area. Paint or
thermo-plastic striping and similar types of non-permanent
applications may be approved for crosswalks not exceeding
24 feet in length.
7.Drive through businesses.In addition to the Drive through lanes are treated the same way
as parking lots in terms of required screening
requirements of Section 3.104.02, the following standards
and landscaping in Section 4.a and 4.b above.
shall apply to drive through businesses:
a. Drive through windows are prohibited on a building
façade that faces Highway 99E.
b. Drive-through uses shall be located so that access and
egress to the drive-through features are from an on-site
drive aisle or other on-site circulation facility, not a public
street.
c. A maximum of two drive through service lanes shall be
permitted between a building façadeand a public street
right-of-way.
C. Architectural Design Guidelines and Standards.
1. Street-facing building façades. All street-facing building Provides two options for buildings to provide
visual interest and avoid blank walls.
elevations that are set back 50 feet or less from a public
street shallprovide visual interest and avoid blank walls by
There are existing guidelines applicable to the
meeting one or both of subsections a and/or b, below.
CG zone related to building façades, described
below.
a. A minimum of 40 percent of the ground floor wall area Requires a certain ground floor window
coverage to create a storefront environment as
shallcontain windows, display areas, or doorway openings.
one option to create visual interest. The
Windows, display areas, or doorway openings used to meet
provisions 1 through 4 below are intended to
this standard shallcomply with the following provisions:
ensure that if the storefront environment
option is selected, the windows provide views
of something interesting from the street.
Existing design guidelines applicable in the CG
zone recommend (but do not require) that at
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least 30% of the wall surface abutting a street
should be glass (3.107.06.B.2.b.1).
1) Required window areas shallbe either windows that Similar language to 2.107.06.D.8.b.1(DDC
zone).
allow views into working areas or lobbies, pedestrian
entrances, or display windows.
2) Darkly tinted windows and mirrored windows that block Similar language to 2.107.06.D.8.b.4(DDC
zone).
two-way visibility shall notbe used to meet this standard.
3) The sill or lower edge of a window, display area, or Similar language to 2.107.06.D.8.b.2(DDC zone)
doorway used to meet this standard shallbe no more than
four feet above grade. Where interior floor levels prohibit
such placement, the sill or lower edge must be raised to
allow it to be no more than two feet above the finished floor
level, up to a maximum height of six feet above grade.
4) Windows and doorways used to meet this standard shall Similar language to 2.107.06.D.6.f (DDC zone)
notbe covered over with paper, boards, or cardboard
except during times of construction or remodeling and shall
be limited to a period of 120 days unless an extension is
otherwise granted by the city manager.
5) Ground floor wall area shall be measured from three feet Definition of ground floor wall area matches
that used in 3.107.07.B.2.b.1.
above grade to nine feet above grade the entire width of the
street-facing elevation.
b. Building façades that exceedforty (40) feet in length Requires architectural features that provide
visual interest for façades that do not meet the
shallincorporate features to vary the look of the façade at
window coverage standard above.
intervals not to exceed forty (40) feet. Such features may
include variable planes; projections; bays; dormers;
Existing design guidelines applicable in the CG
setbacks; canopies; awnings; parapets; and/or changes in
zone (3.107.07.B.1) recommend (but do not
the roof line, materials, color, or textures.
require) articulation of building façades visible
from streets and incorporation of three
dimensional design features.
2. All building façades visible from streets and public A similar guideline currently exists in the design
guidelines applicable to the CG zone. Suggests,
parking areas that are not subject to subsection
but does not require, façade variations for
3.107.10.C.1. shouldprovide façade variations as specified
building walls visible from the street if not
in subsection 3.107.10.C.1.b.
already required. Applies to building walls
visible from a street or parking area but more
than 50 feet away from the street.
3. Crime Prevention Through Environmental Design. In Encourages (but does not require) windows
allowing views of the street from buildings
order to enhance public safety and provide for “eyes on the
intended for regular human occupancy. This
street”, all buildings that will regularly be occupied should
helps create a sense of safety for pedestrians.
provide windows that allow a view of the street in all street-
Windows meeting this guideline would not have
facing building elevations.
to provide views into the building from the
street.
There is no similar existing guideline or
requirement applicable in the CG zone.
4.Weather protection. Weather protection for pedestrians, These guidelines and standards are taken from
the design guidelines that apply in the DDC and
such as awnings, canopies and arcades should be provided
NNC zones. Similar provisions are included in
at building entrances. Weather protection isencouraged
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along building frontages abutting a public sidewalk or a the design guidelines that apply in the CG and
other zones. They are included here for
hard-surfaced expansion of a sidewalk, and along building
consistency.
frontages between a building entrance and a public street or
access way. Awnings and canopies should not be back lit.
5. Building materials. Corrugated metal, plywood, sheet
press board or vinyl siding should be used as exterior finish
material. Plain concrete block and plain concrete should
not be used as exterior finish material EXCEPT as a
foundation material where the foundation material should
not be revealed for more than 2 feet.
6. Roofs and roof lines. EXCEPT in the case of a building
entrance feature, roofs should be designed as an extension
of the primary materials used for the building and should
respect the building’s structural system and architectural
style. False fronts and false roofs should notbe used.
7. Roof-mounted equipment. All roof-mounted equipment
shall be screened from view from adjacent public streets.
Satellite dishes and other communication equipment shall
be set back or positioned on a roof so that exposure from
adjacent public streets is minimized. Solar heating panels
shall be exempt from this guideline.
D. Parking lot landscaping and screening.
1. A minimum five-foot landscaped strip shallbe provided Requires a 5 foot landscaped strip between
parking areas, drive through lanes, and
between a parking lot or drive through lane and a public
sidewalks to buffer the sidewalk somewhat.
sidewalk. This area shallbe landscaped at a minimum
planting density of one (1) plant unit (PU) per 20 sq. ft., per
Existing guidelines and standards applicable in
Table 3.1.5.
the CG zone prohibit parking within a required
setback (15 feet) unless adjacent to a wall, and
require screening, but not necessarily from
landscaping. A low wall would satisfy both of
these existing requirements. This proposed
section would require a 5-foot setback with
landscaping in all cases.
2. All parking areas and drive through lanes abutting a Similar to existing parking lot landscaping
standards for CO and CG (3.106.03.A.2.b.2), but
street shallprovide within the required 5 foot landscaped
allows a bioswale in place of screening.
strip either a 42-inch vertical visual screen from the
abutting street grade or a landscaped swale for stormwater
management. Acceptable design techniques to provide
screening include plant materials; berms; and freestanding,
architectural walls with an anti-graffiti finish. All
screening shallcomply with clear vision standards, Section
3.103.10.
3. Parking areas with more than 10 spaces shallbe divided Requires medium and large parking areas to be
broken up into groups of parking spaces. Same
by landscaped areas or walkways, or by a building or group
language as 2.107.06.D.13.c (DDC zone).
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165
of buildings.There are no existing requirements or
guidelines applicable to the CG zone that
address layout of the parking lot.
4. Parking lot landscaping shall be subject to the standards Same standards as CG.
The referenced section (3.106.03.C.1.a) will
of Section 3.106.03.C.
need to be updated to include the mixed use
zone in the list of zones.
E. Screening Standards.
1. Outdoor storage and display.
a. Outdoor storage and display located within 50 feet of a Requires that any outdoor storage and display
within 50 feet of a street be screened with a
front lot line or a lot line abutting a Major Arterial shallbe
wall that provides visual interest through
screened from view from the adjacent streets by a wall that
architectural features. Exception allows for
complies with the standards of sub-section 2.b above,
outdoor retail display during business hours
EXCEPT for outdoor displays of merchandise during
(exception language mirrors 2.107.06.H).
business hours only that do exceed ten percent of the total
retail sales area. Displaysof merchandise on public
sidewalks may not reduce usable walking area widths to
less than six feet.
b. Outdoor display and storage located more than 50 feet References and reiterates existing screening
standards for outdoor storage where more than
from a front lot line or a lot line abutting a Major Arterial
50 feet from a street
shall be subject to Section 3.107.06.F.1.
2. Common refuse collection facilities shallbe screened on Same language as CG.
all sides by an architectural block wall and solid gate, both
with an anti-graffiti surface, a minimum of six feet and a
maximum of seven feet in height.
F. Outdoor Lighting Standards. All outdoor lighting shall Same language as in the design guidelines and
standards applicable in the CG and other zones.
be designed so that:
1. Parking areas are evenly illuminated at ground level at
one foot candle;
2. Entrance and loading areas are illuminated at ground
level of two foot candles;
3. Illumination does not shine or reflect into any adjacent
residentially zoned or used property; and
4. Lighting does not cast a glare onto movingvehicles on
any public street.
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The tables below provide proposed Development Code amendments that implement the preferred
Highway 99E concept. Proposed amendments are shown in the applicable code section; language
recommended for addition to the code is double underlined and language recommended for removal is
struck through. The tables in which the amendments are presented include a commentary column
explaining the background and rationale for the proposed amendment. Not all recommended
amendments are proposed for adoption as part of the Corridor Plan; some proposed amendments are
applicable city-wide and are recommended for adoption as part of a later, more comprehensive
Development Code update.
99E
The modifications shown in this section would require developers to construct frontage improvements
on Highway 99E (this requirement currently applies only to city streets). These changes are
recommended as part of the package of code amendments to implement the Plan at time of adoption.
They primarily impact property in Segments 3 and 4 where street frontages are not improved to the
adopted standards.
Proposed AmendmentCommentary
3.101.02 General Provisions No changes proposed to this section.
Included for reference.
A. The access or driveway, for each lot shall be connected to the
existing public street system in compliance with Section 3.104.
B. No access permit shall be issued unless the internal street(s), No changes proposed to this section.
Included for reference.
boundary street(s) and connecting street(s) are constructed
pursuant to Section 3.101.02.C, UNLESS or until the applicant
has obtained an exception as provided in this section.
C. Design and Construction Standards.No changes proposed to this section.
Included for reference.
1. All public streets under the jurisdiction of the City of
Woodburn shall comply with the applicable cross section design
standards noted in Section 3.101.03 and construction
specifications of the Public Works Department.
2. All private streets in manufactured dwelling parks shall
comply with applicable City design standards and specifications
and state design standards and specifications where state
standards and specifications preempt City standards and
specifications.
D. Street Right of Way and Improvement Standards for No changes proposed to this section.
Included for reference.
Development.
Any development subject to an access permit, Section 3.104,
shall be responsible for adequate street rights of way and
improvements. The standards of Section 3.101.02.D may only be
modified subject to the approval of an exception, Section
5.103.12. In no instance may standards be reduced below
specified minimum, non-variable standards.
1. Connecting Street Standards. (Figure 6.12)
a. Right of Way Standard. The full right of way for the subject
street classification, Section 3.101.03, shall be required for a
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167
Proposed AmendmentCommentary
connecting street segment without an approved exception or
variance.
The minimum connecting street right of way shall be sufficient
to accommodate the connecting street improvement standard in
Section 3.102.D.1.b. below.
b. Street Improvement Standard. The full street improvement for
the subject street classification, Section 3.101.03, shall be
provided for a connecting street segment without an approved
exception.
The minimum connecting street improvement standard shall be
equivalent to:
1) One, 10 foot wide travel lane in each direction, in addition to
the required curbs, where the classification specifies a maximum
standard of two travel lanes;
2) Required drainage facilities;
3) The pedestrian and bikeway facilities located on one side of
the street that comply with the standards for the subject street
classification. In locations where the street classification
specifies a maximum standard of two travel lanes, the
connecting segment on the side with the pedestrian/bikeway
facilities shall be completed to standards, including the
landscaped parkway strip.
2. Boundary Street Standard. (Figure 6.12)
a. Right of Way Standard. The full right of way for the subject
street classification, Section 3.101.03, shall be required for a
boundary street without an approved exception.
The minimum standard for a boundary street right of way shall
be no less than the width necessary to accommodate the
boundary street improvement standard.
b. Street Improvement Standard. The full street improvement for
the subject street classification, Section 3.101.03, shall be
provided for a boundary street without an approved exception.
The minimum boundary street improvement standardshall be
equivalent to:
1) One, 10 foot wide travel lane in each direction, in addition to
the required curbs in each direction where the classification
specifies a maximum standard of two travel lanes;
2) Required drainage facilities; and
3) In addition to the improvements cited in 1) above, the full
improvement of the street from the center line to the boundary of
the subject property plus any center turn lane as described for the
street classification.
3. Internal Street Standards. (Figure 6.12)
a. All public streets within a development shall comply with the
full right of way and improvement standards of Section 3.101.03
without an approved variance.
b. All private park streets permitted in manufactured dwelling
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168
Proposed AmendmentCommentary
parks shall comply with the full requirements of Section
2.203.15, as set by statute.
E. Highway 99E Frontage Improvements.Requires sidewalks and street trees for
development along 99E. Also requires
1. Street frontage on Highway 99E shall be improved with
dedication of right of way at time of
sidewalks and street trees as specified in the Highway 99E
development. Existing regulations do not
Corridor Plan.
require full street improvements or right-
2. Highway 99E frontage improvements shall be coordinated
of-way dedication for streets that are not
with and approved by the City Engineer and ODOT.
under city jurisdiction (e.g. 99E).
3. Street Trees onHighway 99E:
a. Must be of a species and variety acceptable to ODOT.
Note: subsequent subsections will need to
b. Are prohibited within 250 feet of a rail crossing. Any street
be renumbered.
vegetation within 250 feet of a crossing is limited to ground
cover only, standing no higher than 3 feet at maturity.
4. Right of way consistent with the Highway 99E Corridor Plan
shall be dedicated to ODOT at time of development.
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169
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The changes shown in this section reflect the cross-section widths for Highway 99E adopted as part of
the Highway 99E Corridor Plan to avoid requiring a greater undevelopable setback area on private
property than is needed based on the planned highway cross-sections.
Proposed Amendment
Commentary
3.103 Setback, Open Space and Lot Standards, Generally Existing language included for reference
(no changes to this part proposed).
3.103.05 Special Street Setbacks
A. Purpose.
The special setbacks in this Section are based upon the
functional classification of streets and roads described in the
Woodburn Transportation System Plan (WTSP). The purpose of
these special setbacks is to provide for adequate air movement,
solar access, visibility, aesthetics and compliance with the
development standards of the WDO when a major street is
improved.
B. Setback Requirements. Existing language included for reference
(no changes to this part proposed).
Required setbacks adjacent to a street shall be in addition to the
special setbacks required in this Section. The special setback
distances shall be measured at right angles to the center line of
the original street right of way.
C. Special Provisions. Existing language included for reference
(no changes to this part proposed).
Buildings, structures and paved surfaces shall not be located
within the special setbacks EXCEPT as specifically provided for
in the WDO. Any portion of a building or structure lawfully
established within a special street setback prior to date of the
WDO shall be considered a nonconforming structure.
D. Special Setback Standards. Special standards specific to the various
segments of Highway 99E are
Special setbackstandards by street classification are established
incorporated rather than the default 50
in Table 3.1.1. The special setback standards shall be applied to
feet required for other Major Arterials.
streets within the City of Woodburn as functionally classified in
This reduces the special setback in
the Woodburn Transportation System Plan.
Segments 1 and 2 to match the existing
right-of-way and in Segment 4 to match
the proposed cross-section. Segment 3
TABLE 3.1.1 Special Setback Standards by Street
remains at 50 feet because the adopted
Classification
cross-section in that area matches the
Major Arterial design standard.
WTSP Functional Special Setback from
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170
Proposed Amendment
Commentary
ClassificationCenter Line
Major Arterial(other than 50 feet
Highway 99E)
Highway 99E:
MP 30.85 to MP 32.41 45 feet
(Carl Road to Lincoln
Street)
MP 32.41 to MP 33.19
(Lincoln Street to 1,150 ft
50 feet
south of Cleveland Street)
MP 33.19 to 34.07 (1,150 ft
south of Cleveland Street to
40 feet
proposed South UGB)
Minor Arterial 37 feet
Service Collector 36 feet
Access Street/Commercial 33 feet
Street
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171
99E
The changes to this section apply special local access management standards to development on
Highway 99E through the land use permitting process. These standards supplement, but do not replace,
ODOT access spacing standards.
Proposed AmendmentCommentary
3.104 Access Existing language included for reference
(no changes to this part proposed).
3.104.01 Applicability
A. Street Access Required.
1. Every lot shall have direct access to an abutting public street
or to a public street by an irrevocable access easement.
2. Every joint driveway or cross connection between separate
lots shall be established by an irrevocable access easement.
B. Access to City Streets, Permit Required. Existing language applicable to access to
city streets, included for reference (no
changes to this part proposed).
1. A City permit shall be required for any new or modified
vehicular access to a street that is under City jurisdiction. The
following types of access shall be subject to such a permit:
a. Site access to and/or from a City street;
b. An extension of an existing City street; or
c. A new public or private street connecting to a City street.
2. A Traffic Impact Analysis (TIA) may be required by the
Public Works Director […]
3. Administration of City access permit standards and
guidelines.
a. Type I Applications. Development subject to one of the
following Type I applications:
1) Design Standards for Single Family and Duplex Residential
Dwellings , Section 5.101.01; or [Section 3.104.01.B.3(1) as
amended by Ordinance No. 2383, ‘40, passed March 16, 2005.]
2) Access to a City Street, EXCLUDING Major and Minor
Arterial Streets, Section 5.101.12 shall be subject to the access
standards of this Section and street improvement standards in
Section 3.101 EXCEPT when the subject property is bound by
the requirements of a precedent land use decision that has not
been modified by a subsequent land use decision.
b. Type II and III Applications. Development subject to one of
the following Type II and III applications:
1) Type II Design Review, Section 5.102.02;
2) Type III Design Review, Section 5.103.02;
3) Access to a City Major or Minor Arterial Street, Section
5.102.04;
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Proposed AmendmentCommentary
4) Preliminary Partition Approval, Section 5.102.01;
5) Preliminary PUD Plan Approval, Section 5.103.07; or
6) Preliminary Subdivision Approval, Section 5.103.09
shall be subject to the access standards and guidelines specified
in this Section and street improvement standards in Section
3.101 EXCEPT when the subject property is bound by the
requirements of a precedent land use decision that has not been
modified by a subsequent land use decision.
4. A City access permit shall be subject to the requirements of
the WDO and Public Works Department standards.
C. Access to State Streets, Highways, and Interchanges.New text would require the City to review
Type II and III applications abutting 99E for
compliance with new local access
1. Access to a transportation facility under the jurisdiction of the
standards during site plan review or the
Oregon Department of Transportation (ODOT) shall be subject
regular local land use permitting process.
to the requirements of OAR 734-051.
2. In addition, for development on property abutting Oregon 99E
the City shall review the following types of applications for
compliance with the requirements of Section 3.104.03.B:
Section 5.102.02
1) Type II Design Review,;
Section 5.103.02
2) Type III Design Review, ;
Section 5.102.01
3) Preliminary Partition Approval, ;
Section 5.103.07
4) Preliminary PUD Plan Approval, ;
Section 5.103.09.
5) Preliminary Subdivision Approval,
3.104.03 Driveway Access Guidelines, Type II and III Existing language applicable to access to
city streets, included for reference (no
Applications
changes to this part proposed).
A. Guidelines for the Number and Location of Driveways, Type
II and Type III Applications.
1. The number of driveway accesses should be minimized based
on overall site design, including consideration of:
a. The function classification of abutting streets;
b. The on-site access pattern, including cross connected parking
and circulation, joint access, turnarounds and building
orientation;
c. The access needs of the use in terms of volume, intensity and
duration characteristics of trip generation.
2. Joint/Shared Access.
a. Partition lots. All lots created by a partition that access a
Major or Minor Arterial street shouldbe accessed via a single,
shared driveway with an on-site turnaround, UNLESS otherwise
required by Section 3.104.05.
b. The lot and street layout in a subdivision or PUD should be
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Proposed AmendmentCommentary
configured so that lots abutting a major street have access to a
local street. Where the layout necessitates access to a major
street, access for abutting lots should be shared and provided
with an on-site turnaround, UNLESS otherwise required by
Section 3.104.05.
c. Medium density residential, commercial, industrial uses and
other development subject to Type II or III Design Review
located on the same lot, or on abutting lots, that abut a Major
Arterial, Minor Arterial, or Service Collector should be designed
to share access to those major streets. A minimum of two
vehicular accesses shall be provided in developments with
eleven (11) or more medium density residential dwelling or
living units.
d. Shared/Joint Access Agreements. Shared and/or joint access
agreements serving properties under separate ownership shall be
subject to legal documentation, to the satisfaction of the City
Attorney, establishing permanent use of the access. The
agreement shall be recorded with the County Recorder and filed
with the Community Development Director.
3. Cross Connections.
a. All uses sited on one lot should have common, and/or
interconnected, off street parking and circulation facilities.
b. Similar, and/or compatible, uses on abutting lots shouldhave
interconnected on-site access and parking facilities. Such shared
facilities serving properties under separate ownership shall be
subject to legal documentation, to the satisfaction of the City
Attorney, establishing permanent use of the access and parking
facilities. The agreement shall be recorded with the County
Recorder and filed with the Community Development Director.
4. Access to lots with multiple street frontages should be from
the abutting street(s) with the lowest functional classification.
5. Dysfunctional or unused driveways should be closed.
B. Access requirements for propertyabutting Oregon 99E.Establishes local requirements related to
access applicable to property abutting
99E. As described above, the city will
1. The number of driveways to Oregon 99E shall be minimized,
review Type II and III land use applications
consistent with OAR 734-051.
for property abutting 99E for compliance
with the standards. An ODOT access
2. All uses sited on one lot shall have common and/or
permit is still required.
interconnected off street parking and circulation facilities.
3. Similar and/or compatible uses on abutting lots shall have
interconnected and/or shared on-site access and parking facilities
where feasible. Such shared facilities serving properties under
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Proposed AmendmentCommentary
separate ownership shall be subject to legal documentation, to
the satisfaction of the City Attorney, establishing permanent use
of the access and parking facilities. The agreement shall be
recorded with the County Recorder and filed with the
Community Development Director.
4. Access to lots with multiple street frontages shall include
access from the abutting street(s) with the lowest functional
classification.
5. Access driveways shall be located to avoid or minimize
conflicts between entering and exiting vehicles from opposing
driveways.
6. Prior to issuance of building permits, an access permit shall be
obtained from ODOT for access to Oregon 99E.
B.C.Driveway Spacing Guidelines, Type II and III No change to this section except for
numbering. Applies only to city streets.
Applications.
The minimum separation of a driveway from: a) the special
setback of a parallel major street, b) the right of way of a parallel
local street, or c) from another driveway should be as follows.
1. Major Arterial Street: 300 feet;
2. Minor Arterial Street: 245 feet; and
3. Service Collector, Access or Local Street: 50 feet
EXCEPT where pre-existing conditions preclude such separation
the separation should be maximized.
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175
-
These modifications are recommended, but are not proposed for adoption as part of the Highway 99E
Corridor Plan because they would affect property throughout the city. It is recommended that the City
consider adopting these or similar amendments through the citywide code update that is taking place
concurrently with the development of the Corridor Plan.
3.107.06 Guidelines and Standards for Non-Residential Existing text is ambiguous on how
pedestrian and bicycle facilities should be
Structures in RS, R1S, RM, CO, CG and P/SP Zones
separated from other modes of
[…]
transportation. Recommended
modifications address pedestrian
C. Site and Building Access Guidelines.
circulation, requiring on-site pedestrian
connections to and from building
1. Access to and from the site and circulation within the site
entrances and walkways that are marked
should separate facilities for cars, trucks and transit from those
or distinguished by contrasting paving
forshall accommodatebicycles and pedestrians.
materials where pedestrians may come
into conflict with motorists.
a. Walkways shall connect all building entrances and on-site
Recommended text is loosely based on
parking areas, and shall connect off-site adjacent uses to the site
the Model Code, 3.1 Access and
unless topographic or existing development constraints preclude
Circulation.
making certain walkway connections.
NOTE: Need to add the following to the
b. Where walkways cross a parking area or driveway they shall
Definitions:
be clearly marked with contrasting paving materials (e.g., light-
Sidewalk. A paved walkway within a
color concrete inlay between asphalt), which may be part of a
street right-of-way improved to city
raised/hump crossing area. Paint or thermo-plastic striping and
standards, or to other roadway authority
similar types of non-permanent applications may be approved
standards, as applicable.
for crosswalks not exceeding 24 feet in length.
Walkway. A facility that provides
c. On-site bicycle parking shall meet the requirements of Section
pedestrian connectivity within the site and
3.105.02.H.10
to destinations adjacent to the site and
that may or may not be part of the street
d. Where bicycle and pedestrian facilities cannot be provided as
right-of-way.
part of required street improvements, due to existing
development, environmental constraints, or where streets have
Specific opportunity locations have been
identified for bicycle and pedestrian
been stubbed or cul-de-saced, pedestrian and bicycle
access.
connections may still be required.
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These modifications are recommended, but are not proposed for adoption as part of the Highway 99E
Corridor Plan because they would affect property throughout the city. However, it is recommended that
the city consider adopting these or similar amendments through the citywide code update that is taking
place concurrently with the development of the Corridor Plan.
3.106.03 Landscaping Standards
A. Streetscape.
1. Street Trees. Within the public street right of way abutting a
development, or within an alley right of way in the DDC zone,
street trees shall be planted to City standards prior to final
occupancy.
a. Acceptable Types of Trees. See Section 6.103 for a
description of acceptable and unacceptable trees for this purpose,
classified by size and species.
b. Tree Density. Trees shall be planted at the following intervals
within the right of way, subject to Clear Vision Area standards,
Section 3.103.10 and Section 6.103:
1) Four (4) small trees per 100 feet of street frontage;
2) Three (3) medium trees per 100 feet of street frontage; or
3) Two (2) large trees per 100 feet of street frontage.
2. Front Yard and Yard Abutting a Street.
a. Landscaping Density for non-residential uses in the RS and
R1S zone and all uses in the RM, P/SP, IL, IP, and SWIR zones.
All front yards and yards abutting a street shall be landscaped at
a density of one (1)plant unit (PU) per 20 sq. ft.
b. Landscaping Design and Density in CO and CG zones.
1) All yards abutting a street, including off street parking and
circulation areas shall be landscaped at a density of one (1) plant
unit (PU) per 20 sq. ft.
2) Allparking areas abutting a street shall provide a 42-inch
vertical visual screen from the abutting street grade. Acceptable
design techniques to provide the screening include plant
materials; berms; freestanding, architectural walls with an anti-
graffiti finish, depressed grade for the parking area. All
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screening shall comply with the clear vision standards,
Section3.103.10.
Require trees between areas used for
3) All parking areas abutting a street where street trees meeting
parking and sidewalk where there are no
the standards of subsection 1 above have not been provided
street trees
within the public street right of way shall provide trees between
the street and the parking area. Such trees shall conform to the
street tree standards of subsection 1, above.
[…]
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Figure 12: Mixed Use Village Boundaries and Phasing
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