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Minutes - 05/07/2001 Spec Mtg SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING 0001 DATE. COUNCIL CHAMBERS, CITY HALL, CITY OF WOODBURN, COUNTY OF MARION, STATE OF OREGON, MAY 7, 2001. CONVENED. The meeting convened in special session at 7:00 p.m, with Mayor Jennings presiding, 0020 ROLL CALL. Mayor Councilor Councilor Councilor Councilor Councilor Councilor Jennings Bjelland Chadwick Figley Kilmurray Nichols Sifuentez Present Present Absent Present Present Present Present Staff Present: City Administrator Brown, City Attorney Shields, Public Works Director Tiwari, Community Development Director Mulder, Public Works Manager Rohman, City Recorder Tennant 0040 Mayor Jennings stated that Councilor Chadwick was not in attendance at this meeting since she had back surgery last week, He also stated that agenda items for this meeting are as follows: (1) hold a public hearing regarding Woodburn Company Stores Phases 2 and 3, and (2) the Woodburn Economics Opportunities Analysis and Land Suitability Study, 0133 PUBLIC HEARING: SUPPLEMENTAL REVIEW OF ANNEXATION #98-03. COMPREHENSIVE PLAN MAP AMENDMENT #98-02. AND ZONING MAP AMENDMENT #98-04 (Woodburn Company Stores Phases 2 and 3). Mayor Jennings declared the public hearing open at 7:05 p.m.. Community Development Director Mulder stated that this issue was remanded back to the Council for supplemental review of several transportation related issues by the Land Use Board of Appeals (Final Opinion and Order #99-135), Director Mulder also entered into the record a letter received on May 7, 2001 from Michael Robinson, Attorney for Craig Realty Group, which was distributed to the Council for their review, Director Mulder stated that the appellants in this LUBA case were ODOT (Oregon Dept, of Transportation) and DLCD (Dept. of Land Conservation & Development), The applicant had their traffic engineers, Kittleson & Assoc., prepare supplemental findings to address the traffic issue of whether or not the 1-5 interchange has sufficient capacity to accommodate proposed traffic that would be generated by Phases 2 and 3. Another issue Page 1 - Special Council Meeting Minutes, May 7, 2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING that had to be revisited is whether or not the City's Transportation System Plan (TSP) provides for planned improvements that would provide sufficient capacity for the traffic generated by those improvements, He stated that the City's TSP does have 4 interchange alternatives and anyone of those alternatives would provide sufficient capacity to accommodate the additional traffic. This public hearing was originally scheduled for April 9, 2001, however, due to a lack of quorum the meeting was canceled. ODOT had prepared a letter for that meeting to provide written comments for the record and the applicant had also submitted a letter in response to ODOT's letter, He stated that both letters are included in the agenda packet as part of the record, It was noted that this public hearing had been re-publicized for this meeting with the focus of the hearing to be narrow as far as addressing only specific issues that were raised by LUBA., Director Mulder stated that, prior to this meeting, City staff, the applicant, and ODOT have met in several different sessions to work out some of the outstanding issues, The result is a condition of approval being recommended by staff which has the concurrence of ODOT and the applicant addressing ODOT's issues. He stated that the condition of approval is quite lengthy and is included in the packet, however, in summary, the applicant will pay for their proportional share of a portion of the future 1-5 interchange improvements, If the Council agrees with the staff recommendation, a Council motion would be necessary to direct staff to prepare an ordinance with findings and conclusions in support of their decision, Mayor Jennings stated that the letter from the applicant indicates that all of the differences of opinions have been worked out by ODOT, the City, and the applicant and it is the staff's recommendation to proceed with approval of the proposed expansion. Councilor Bjelland questioned if DLCD is still a party to any action at this time with regard to the land use actions. Director Mulder stated that it is his understanding that they have allowed ODOT to take over on this issue since the issues raised by the DLCD resulted in the City's decision being affirmed. Councilor Bjelland also questioned if the transportation impact analysis being used at this time is for Phase 2 and 3 total square footage of 252,000 or 153,585, and whether or not ODOT is using the same square footage figure in their calculations to determine the proportional cost share, Michael Robinson, attorney for Craig Realty Group, stated that the square footage being used in the traffic impact analysis is 62,395 for Phase 2 and 91,190 for Phase 3, and these numbers were used by all parties to calculate costs to the developer. He also stated that Kittleson & Assoc. had completed another survey last July and, as a result, found that they still have some trip generation available from Phase 1 since the traffic numbers are not as large as originally planned, He stated that the applicant did prevail at LUBA on the housing issues brought forth by DLCD which is why DLCD is letting ODOT take the lead role at this time, He urged the Council to accept the staff recommendation and direct Page 2 - Special Council Meeting Minutes, May 7,2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING staff to proceed with findings in support of the application, Steve Craig, Craig Realty Group, mc" stated that Phase 1 provided for a development size of 252,000 square feet, however, the final building size for Phase 1 was approximately 235,000 square feet. He also stated that they will soon be bringing in the plans for Phase 2 and there may be a need to increase the square footage slightly upward from the original projection in order to meet the needs of their tenants, however, the total of the two phases will stay within 153,585 square foot as outlined in the Traffic Impact Analysis, 1305 Dan Frickey, ODOT Sf. Transportation Planner, stated that ODOT concurs with the Director Mulder's presentation and with Michael Robinson's report. He stated that ODOT endorses the staff recommendation as outlined in the conditions of approval. No one in the audience spoke in opposition to the issues before the Council. Mayor Jennings declared the public hearing closed at 7:25 p,m.. The Mayor thanked the developer for his cooperation and efforts throughout this lengthy process. Councilor Figley also stated that she was pleased to see that the traffic impact was lower than originally projected and felt comfortable with the traffic numbers outlined in the Kittleson & Assoc, Trip Generation Report, FIGLEYIKILMURRAY... application does have significant effect on Woodburn 1-5 interchange, that the condition of approval which is located on pages 3 and 4 of Jim Mulder's memo dated May 7,2001 be added as condition of approval, and that staff be directed to prepare an ordinance for the May 14,2001 meeting that would substantiate that decision, The motion passed unanimously, Mayor Jennings also thanked Dan Frickey and ODOT for their willingness to work with all parties in resolving this issue, 1648 Mayor Jennings called for a recess at 7:29 p,m, and reconvened the meeting at 7:38 p,m,. WOODBURN ECONOMIC OPPORTUNITIES ANALYSIS AND LAND SUITABILITY STUDY. Administrator stated that issue is a continuation of the information provided at the Council workshop on May 15t, The first half of the study is the Economic Opportunities Analysis which is required by the state Periodic Review process to look at the economic factors in the City and to determine our economic position within the region, and determine strengths, weaknesses, and actions that can be taken to provide a strong economic base into the 20-year planning future, The City recognizes that there is limited industrial zoned area within the City and the study does identify corporations, industries, manufacturers who would make use of the limited land that is or would be made available, The concept of the industries was borne out of the buildable lands survey that was developed by the Growth Management Committee, He stated that the Committee Page 3 - Special Council Meeting Minutes, May 7, 2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING was also looking for industries that would raise the standard of living to raise the average household income and to provide a salary level for people who could then afford a broader variety of housing types, State law requires that the City provide all housing types, and the City would like to justify some of the higher end housing that is in short supply within the community. For this study, the City sent several Request for Proposals to consultants who had experience with Oregon land use planning and subsequently began working with ECO Northwest on the scope of work to insure that the City received the type of results that the City desired rather than going through the steps that the state planning process requires, He stated that the staff has throughly reviewed this report and are satisfied up to this point with the work that has been presented to the Council. He reviewed the following policy choices that would focus on the type of economic futures which are tied to land use and transportation: 1) City continue as is; 2) pursue a compact "smart growth" which is a Dept. of Land Conservation & Development (DLCD) approach; and 3) look at taking steps to expand the Urban Growth Boundary to attract the kinds of industries that pay the highest wages that the committee is looking for. If the expansion of the Urban Growth Boundary is desired, it will require more effort and detailed work by staff and consultants to prove the case before the State, 2000 Terry Moore, ECO Northwest, stated that the project has 2 phases with the 1 SI phase being the evaluation of the local economic conditions as outlined in the report and the 2nd phase, which is the next step of the project, relates to economic vision, He stated that the population growth rate since 1990 has been 4,1 % which is greater than any other city or county in the State of Oregon, Population growth projected by the State indicate that Woodburn will grow by another 6,000 people over the next 20 years which is a similar amount of growth the City experienced over the last 10 years, and employment is projected to grow by another 2,200 employees, The ratio of jobs per household in the City is about 1 and, with the projected population growth, the ratio will decrease slightly, 2400 Conclusions reached by the consultants are as follows: 1) City's location make it a candidate for targeted industries that would pay higher wages, Those industries have various site requirements which include flexible circulation and building layout in the fringes of a metropolitan area, These targeted industries have site requirements that are either in a campus situation with a minimum of 5 acres and a more desirable 15-20 acres, or a larger industry with a parcel in the 20, 40, or 80 acre site, Currently, the City does not have that size of a parcel available, 2) Buildable Lands report shows a 332 acre deficit of industrial land in order to accommodate potential economic growth, Presently, there is no vacant industrial tax lots that are over 15 acres and there are no aggregate of tax lots that exceed an area of 35 acres. 3) Transportation improvements are necessary to obtain access to 1-5 and there is a need to increase capacity. Since ODOT will not be considering a second interchange within the next 20 years, there is a need to look at other alternatives to make the existing Page 4 - Special Council Meeting Minutes, May 7, 2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING interchange work better. Improvements to 1-5 interchange will need to match with improvements to Highway 214 to make it work with the interchange. He reiterated that this Economic Study is intertwined with land use planning, however, it is meant to show concepts that illustrate what it would be like if certain economic development strategies were pursued. The changes in land use are a way to visualize the requirements for, and results of, different economic futures. Mr. Moore then reviewed alternatives for the Council to consider. 1) In regards to existing land use policies, he stated that continuing the same policies will result in an increase in housing density rather than increasing the amount of available industrial land for targeted industries. 2) The Buildable Lands Study alternative will look at re-zoning vacant land from residential to commercial and industrial use. This alternative will allow more employment to come into the City, however, this alternative may still not provide the parcel size needed to bring in the higher end industrial jobs that may be desired. 3) The Urban Expansion alternative would expand the City's Urban Growth Boundary. This alternative would require significant policy work and, on the transportation side, it develops a north or south side arterial to relieve pressure on the Highway 214/1-5 interchange area. It also provides for more suitable sites for some of the targeted industries, and allows for the employment increase, the potential for higher paying jobs, consistent with keeping the number of jobs balanced with the number of housing, and it may increase the need for higher-end housing as opposed to higher density housing. In this alternative, expansion would involve area following Butteville Rd. crossing on the south side or Crosby Rd. on the north side to let those areas become more of an arterial roadway. Hopefully, that would open up industrial land that would have fairly good access to 1-5 interchange coming from the west side. In summary, he stated that the City needs to consider their economic vision given its possible implications for land use and policies, and then direct the preparation an Economic Development Strategy consistent with their vision. This strategy would include general policies and steps to be taken toward implementation. It is anticipated that the Economic Development Strategy report would be delivered to the Council in June 2001. 3560 Councilor Figley questioned what a non-depository institution. It was noted that non- depository institutions are educational facilities such as schools, training facilities, and vocational rehabilitation facilities. Discussion was held regarding the wages for employees of targeted industries and it was noted that average annual salary for industrial industries was over $35,000 and over $30,000 for non-industrial industries. Based on the list of targeted industries, the site size, type, and location were analyzed to determine the what is necessary to bring those targeted industries into the City. Page 5 - Special Council Meeting Minutes, May 7, 2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING Mr. Moore stated that any expansion of the Urban Growth Boundary in order to meet the Council's economic vision will require a multitude of steps. This process will proceed on a step by step basis and may take up to 2 years to complete. If the Council decides to move towards expansion of the Urban Growth Boundary, Greg Winterowd would be available to assist in this process. 4195 Councilor Bjelland stated that there are a number of issues that need to be faced and it will involve significant trade-offs. In regards to the year 2020 population, he expressed his opinion that this figure is understated even though it will need to be used for this planning cycle. Additionally, there is a need to have ajobs/housing balance to accommodate employment opportunities and to have the type of jobs to support the community. He reminded the Council that transportation is another issue when more employment opportunities are created within the City. He suggested that guiding principles to follow in making a decision include making Woodburn a livable place, attractive to its citizens, and to achieve and encourage higher levels of employment opportunities to support a higher standard for people living in Woodburn. A need exists for some sort of boundary roads so that it does not focus all of the traffic on Highway 214 traveling east/west. In order to accomplish this, there is a need to utilize land that is currently outside of the existing Urban Growth Boundary. He also felt that it is important that the City attempt to develop an economic incentive program that will attract the type of industries that will provide higher wages for our citizens. 4748 Mayor Jennings stated that even though the Council would like to move towards being a full-service City, it does not need to be like other cities in the metro area. Woodburn can still be a unique City and yet move toward livability and economic improvements. Councilor Bjelland stated that he is a member of the Marion County Urban Growth Management Steering Committee and they had sponsored workshops in North and South Marion County on growth issues. Almost all of the communities surrounding our area want to funnel growth into Woodburn and he would prefer looking at a growth increase higher than what is being projected by the County. Discussion was held on the population growth projection being used in the various long range studies the City is in the process developing. Mr. Moore stated that the County is required, by law, to coordinate population forecasts of communities within the County through a process which involves both technical and political give and take. The results of this process for Woodburn is the population forecast being used in this report. Based on growth over the last 10 years, it is a relatively low forecast unless the City were thinking that it did not have the public facilities or land to slow down the growth. Councilor Bjelland stated that the City did have input into this process, however, the population figures being considered at that time were about 3,000 less than the final tally from the Census Bureau. Page 6 - Special Council Meeting Minutes, May 7, 2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING 5702 Administrator Brown stated that the City did hold workshops in late 1997 to try and get information from citizens to see how large the City should be. At that time, the population figure was approximately 28,000 which is slightly larger than the coordinated number. The Buildable Lands committee looked at the two numbers and decided that 26,290 was an acceptable number. Since then, the Census Bureau population number has been finalized at slightly over 20,000 which makes the 28,000 a more realistic number. After he started work for the City during the latter part of 1998, he was asked to begin working on annexation policies so that it would make it more difficult to enter into the City and give the Council more discretion to justify a good annexation. Staff has been working on a new development code that would provide for quality development. The one limiting factor on growth is the transportation corridor. Based on the census data, the City has a number of citizens making single digit annual income and he suggested that the City take steps to accommodate a higher wage and standard of living for all of our residents. Mayor Jennings questioned if the staff was able to move forward with the Council on a Urban Growth Boundary extension. Administrator Brown stated that staff is willing to work that direction but there will be a need for more resources to accomplish this task. He feels that it will probably be a 3 year process rather than 2 years and it will require the assistance of consultants to complete. Even though it is a good investment in the City's future, it will not be easy for the staff or Council but, assuming that is the direction the Council takes, staff will work diligently on this project. Councilor Bjelland stated that the City does have an over abundance of residentially zoned property which will generate more development. Administrator Brown reminded the Council that setting the rate and fee structures accordingly protects the City from a high influx of growth by insuring the City is collecting the maximum amount from developers towards infrastructure improvements. The City continues to look at rates every couple of years, and to look at public and private partnerships to make some improvements within the City. Tape 2 Councilor Figley spoke favorably on expanding the Urban Growth Boundary in the southwestern quadrant due to the prime location of freeway access, opportunity to improve on existing infrastructure, and sacrifice plant soil that has the least amount of agricultural potential. Since there will not be a second interchange, roadway enhancements are necessary which include additional north/south and east/west arterial streets. In regards to economics, she feels that the City needs to bring better paying jobs into our community. Councilor Nichols expressed his opinion that expansion of the boundary is the only way for the City since there is a need to bring in higher paying jobs into our community. 0365 FIGLEYINICHOLS... Council go on record supporting Alternative #3 as presented by Page 7 - Special Council Meeting Minutes, May 7,2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING ECO Northwest and ask that they proceed with the next phase of the study. The motion passed unanimously. 0420 Councilor Bjelland suggested that, as part of this study, the City should find out which of the identified industries would realistically come into our area. Based on that information, the City should focus their land use planning activities on those industries that are most likely to be actual candidates for locating in Woodburn. This type of information will give the City a plan of action and provide supporting documentation for what action is taken in the future. 0577 Steve Pfeiffer, Chairman of Land Conservation & Development Commission (LCDC), stated that Terry Moore did a good job in accurately describing the options available to the City. Additionally, he did not understate the significance of the process of an Urban Growth Boundary amendment. The amendment process includes identifying the economic base, population growth, average wage, and unique geographic area. The coordination process is to match the objectives of the communities with the size of the boundaries and disbursement of infrastructure dollars from the State. He stated that the system gives the City an opportunity to make their case to expand the boundary to not only within the context of what the Council wants the community evolve into, but as it relates to other communities in the County and surrounding area. He reiterated that public/private partnerships are necessary to help with public infrastructure costs. He stated that the process is designed to be flexible and accommodate the needs of the State and of individual communities but it is not an easy test and the City will need to go through an exhaustive undertaking in order to submit your request to LCDC. Mr. Pfeiffer stated that the LCDC is a 7-member Commission appointed by the Governor of which several members are current or ex-public officials. The Commission is a policy driven group that understands vision, community leadership, and objectives, and if the City goes through the process in the correct way, the City will get a fair decision by the Commission. He also stated that this is a good time for the City to be in the periodic review process since an expansion of the Urban Growth Boundary is being considered by the Council. Mr. Pfeiffer also stated that, as an attorney representing a client who has an interest in one or more of the expansion sites, his purpose in attending this meeting was to listen to Council comments on the alternatives that were presented. His legal practice is land use and he was placed on the Commission by Governor Roberts to have a development interest on the Commission. 1611 Terry Moore reiterated that this study is on Economic Development policies and not on Urban Growth Boundary. The next phase of the study will focus on policies that pertain to buildable lands, infrastructure, financing of infrastructure, and education and training Page 8 - Special Council Meeting Minutes, May 7, 2001 SPECIAL COUNCIL MEETING MINUTES MAY 7, 2001 TAPE READING programs. The economic development strategy will encompass a set of categories with a general policy and possible implementation tools that can be used from which the Council can make decisions. 1849 On another subject, Councilor Nichols stated that the blue tarp on the City's building at 347 N. Front needs to be taken care of since is not secured to the building and it is a livability issue within our community. Administrator Brown stated that he will take care of the problem tomorrow. 1932 ADJOURNMENT. FIGLEYIBJELLAND... meeting be adjourned. The motion passed unanimously. The meeting adjourned at 9:14 p.m. APPROVED ATTEST {\j~ 1~ Mary T ant, Recorder City of Woodburn, Oregon Page 9 - Special Council Meeting Minutes, May 7,2001