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Agenda - 11/17/03 Council/PComm CITY COUNCil/PLANNING COMMISSION JOINT WORK SESSION CITY HALL COUNCIL CHAMBERS 270 MONTGOMERY STREET WOODBURN, OR 97071 MONDAY, NOVEMBER 17, 2003 7:00 - 9:00 P.M. AGENDA 1. Call to Order and Flag Salute 2. Roll Call 3. Periodic Review Amendment Package - Proposed Changes to the Woodburn Comprehensive Plan, Urban Growth Boundary, and the Woodburn Development Ordinance Recommendation: Receive presentation discuss amendment package, and provide guidance as appropriate. 4. Adjourn CITY OF WOODBURN Community Development MEMORANDUM 270 Montgomery Street Woodburn, Oregon 97071 (503) 982-5246 Date: November 13, 2003 To: From: Honorable Mayor and City Council and Planning Commission Jim Mulder, Director ot Community DeV8lopmentjP1 Joint City Council/Planning Commission Work"'Session Regarding Periodic Review Amendment Package Subject: A joint work session of the Woodburn City Council and Planning Commission has been scheduled on November 17, 2003 at 7:00 p.m. in the City Council Chambers to introduce proposed changes to the Woodburn Comprehensive Plan, Woodburn Development Ordinance, Woodburn Comprehensive Plan and Zoning Maps, and the Woodburn Urban Growth Boundary resulting from completion of various periodic review tasks. Other interested parties have also been invited to attend, including the Woodburn School District, Woodburn Fire District, Marion County, and other City of Woodburn boards and commissions. The attached memo from the City's planning consultant provides a summary of what is to be presented at the work session. Attachment: Memo from Greg Winterowd, dated 11-11-03 I Cl~C:;. I MEMORANDUM To: Jim Mulder, Community Development Director From: Greg Winterowd and Jesse Winterowd Date: Tuesday, November 11, 2003 Re: Joint Planning Commission I City CouncD Work Session Periodic Review Amendment Package - Proposed Changes to the Woodburn Comprehensive Plan, Urban Growth Boundary (UGB), and the Woodburn Development Ordinance (WOO) Purpose of Work Session The purpose of the joint work session is to acquaint the Planning Commission and City COWlcil with the proposed Woodburn Comprehensive Plan and Development Ordinance amendment package. At the next regular COWlcil meeting, the COWlcil will be asked to adopt a resolution initiating the public and agency review process that is scheduled over the next three months. We would need to touch base with Planning Commissioners and City Councilors to make sure that Winterbrook and City staff are headed in the right direction. Background and Objectives of the Plan Amendment Package In JWle of 2001, Winterbrook prepared a "preliminary analysis" of the tasks that would need to be completed to establish a successful economic development program. The COWlcil committed to the work program encompassed in this memorandum, and received grants from the Department of Land Conservation and Development (OLCD) and the Oregon Department of Transportation (000T) to help fund these tasks. Over the last two years, Winterbrook Planning has worked closely with City staff, Marion COWlty and affected state agencies in preparing amendments to the Woodburn Comprehensive Plan and Development Ordinance. The primary pwpose of the amendment package is to provide opportunities for basic Wintcrbrook Planning ~IO SW Fourth Ave. Suite 1100 · Portland, Oregpn 9720+-2~0' '0~.827.-++22 · '0'. 827.i?'O (fax) @"Cg@winterbrookplanning.com industrial employment. In 2001, the COWlcil accepted the Economic Opportunities Analysis (EOA) prepared by ECONorthwest. The EOA identified the types of industries that are likely to locate in the Woodburn area as well as their site suitability needs. Based on COWlcil direction, the EOA recommends that City capitalize on its comparative advantages: a motivated labor force, educational infrastructure, affordable housing, and strategic 1-5 corridor location. Approximately 400 acres of industrial land would be added to the Woodburn UGB, and protected exclusively for industrial uses with a Southwest Industrial Reserve (SWIR.) designation. Other important objectives of the amendment package include: . Completion of the City's Periodic Review process; . Coordination with Marion COWlty'S Framework Plan; . Providing adequate transportation connections; . Providing an adequate buildable lands for a range of housing types and densities; . Increasing land use efficiency within the UGB to minimize impacts on agricultural land; and . Protecting Woodburn's stream corridors and wetlands. Results of the Proposed Amendment Package Although most land within the existing UGB would retain existing plan designations and zoning. the amendment package: . Adopts a new coordinated population projection of approximately 35,000 and provides opportunities for as many as 8,347 new jobs through the year 2025; . Restructures and simplifies the Woodburn Comprehensive Plan to make it a more useable policy document; . Provides for a new Nodal Development Overlay that will use land more efficiently within the existing UGB; . Adopts a Wetland and Riparian Area Overlay (WRA) to protect significant water resources within the new and expanded UGB; . Adds approximately 1,000 acres to the existing UGB, to accommodate needed employment, housing, parks and schools; . Provides for an expanded and connected transportation system to minimize vehicle miles traveled and additional east-west connections between Highway 99W and Interstate 5; . Corrects comprehensive plan and zoning map conflicts; and . Amends the Woodburn Development Ordinance (WOO) to implement the EOA and amended Comprehensive Plan. Revisions to the Woodburn Transportation Systems Plan (TSP) are Wlderway and are scheduled for adoption next year. Modeling work for the TSP had confirmed that the "preferred land use scenario" that Wlderlies the proposed amendment package can be served adequately by the existing and planned transportation system. Winterbrook is working with OooT in preparing an innovative "trip budget" implementation strategy to ensure that planned improvements to the 1-5 interchange continue to operate efficiently during the life of the plan, and that adequate transportation capacity Winterbrook Planning Page 2 Februa 23 2004 March 6, 2004 . ed ) ) ril ) , ents 3) Page 3 exists to accommodate planned industrial growth. Documents Under Review The following documents are included in the amendment package and are orgamz as follows: UGB Justification Report (Winterbrook July 2003, Revised November 2003 . Buildable Lands Inventory (Winterbrook July 2003, Revised November 2003 o Buildable Lands Map o Presentation Maps for BLI and Expansion Process . Land Needs Analysis (Winterbrook July 2003, Revised November 2003) o Woodburn Population and Employment Projections (ECONorthwest, Ap 2002) o The Housing / Land Needs Model M (HCDC, July 2003) o Economic Opportunities Analysis (ECONorthwest, May 2001) o Woodburn Occupation / Wage Forecast (ECONorthwest, March 2003 o Site Requirements for Woodburn Targeted Industries (ECONorthwest October 2003) . Transportation Alternatives o Urban Growth Scenarios (Winterbrook, May 20(3) o Transportation Scenario Results I Maps . Natural Resources Report (Winterbrook, November 2002) o NabJraI Resources Map (Gorge GIS, November 2002) Woodburn Comprehensive Plan and Development Ordinance Amendm . Revised Woodburn Comprehensive Plan (Winterbrook, October 2003) . Revised Woodburn Development Ordinance (Winterbrook, August 2003) . Revised Comprehensive Plan Map and Zoning Map (Ecotrust, November 200 Review and Adoption Schedule The following review and adoption schedule is proposed: R uested ActIon Joint Plannin Commission and Council Work Session Council Initiation of Periodic Review Amendment Packa e Planning Commission Public Hearing and Recommendation Continued Planning Commission Public Hearing (if needed Ci Council Public Hearin and Tentative Decision City Council Decision and Adoption of Findings Date November 17, 2003 November 24, 2003 January 6, 2004 January 22, 2004 Marion County Coordination Marion County is an active partner in this plan amendment process. Winterbrook Planning . Population Coordination. Under ORS 195, Marion County is responsible for coordinating (allocating) population projections among its constituent cities. In April of 2002, OLCO and Marion County staff review the 2020 population projection prepared by ECONorthwest, determined that it was reasonable, and confirmed that this projection could be used for planning purposes. In order for the projection to be coordinated, however, it must be adopted by the Marion County Board of Commissioners. . Coordination with Marion County Growth Management Framework Plan. The revised Woodburn Comprehensive Plan includes a new policy section that demonstrates consistency with the goals and guidelines found in the Framework Plan. Overall, the revised Woodburn Comprehensive Plan provides the opportunity for housing to be developed at 10 units per gross acre, as suggested by the Frameworlc Plan's urban land use "efficiency" guideline. However, because existing County's rural exceptions areas have been highly parce1ized and are largely developed, new development in these areas is projected to occur at approximately three units per net acre. County staffhave been invited to participate in the November 17,2003 worlcshop and will be notified of all public hearings. Both staff and consultants are available to discuss and resolve issues with County staff that may arise during this process. . County Board Review and Adoption. Because the proposed amendments include land outside the inCOlpOrated city limits, the Marion County Board of Commissioners has the responsibility to review and (if acceptable) adopt the plan amendment package. The Board will be notified of the Council's decision and provided copies of the full amendment text and findings. It is anticipated that the Board hearing may be scheduled in March or April of 2004. Conclusion and Requested Action The proposed plan and code amendment package is the culmination of three years work, beginning in 2000 with the Economic Opportunities Analysis. Winterbrook and City staff have coordinated our planning activities closely with Marion County, OLCD and OOOT staff. We believe that the amendment package complies with the Marion County Growth Management Frameworlc Plan and the Statewide Planning Goals. No action is requested at this time. However, we would appreciate confirmation from the Planning Commission and City COlDlCil that we are on the right track, and that we have sufficient basis for the Council to initiate the public review process. Winterbrook Planoing Page 4 Woodburn 2004 Periodic Review Amendment Package Work Planning Commission and City Council Session Joint November 17, 2003 . The 2004 Periodic Review Amendment Package UGB Justification Re ort - - · Buildable Lands Inventory · Land Needs Analysis · Transportation Alternatives · Natural Resources Report ment nterbrook Map and Zoning Map Woodburn Com rehensive Plan and Develo Ordinance Amendments - . Revised Woodburn Comprehensive Plan (Winterbrook October 2003) Revised Woodburn Development Ordinance (W August 2003) Revised Comprehensive Plan (Ecotrust, November 2003) . . . Why Amend This Plan? . I . . . Because The existing UGB lacks capacity to accommodate projected population and employment growth. ! ng Capacity EXist 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% . Woodburn Lacks an Adequate Land Base The existing UGB has about 3,400 acres, about 2,160 acres are fully developed and about 740 acres are buildable. s The remainder consumed by Open Space and Roads. . . . ookin9 at past trends I Just ity Overall, if Woodburn's growth mirrored past trends, the C would need to add 850 gross acres to its UGB to meet planned growth needs over the next 20 years: 253 Low Density Net Residential Acres 19 Medium Density Net Residential Acres 218 Net Residential for Public I Semi-Public Acres 33 Net Commercial Acres 160 Net Industrial Acres The problem is that past trends do not adequatelY address future economic opportunities, housing needs or applicable Statewide Planning Goals. o . . . . . . Key Local Objectives . Implement the Economic Opportunities Analysis (EOA) . Provide choice among suitable industrial sites; . Provide buildable land for housing, parks and schools; . Increase land use efficiency within the UGB; . Complete of the City's Periodic Review process; . Coordinate with Marion County's Framework Plan; . Provide adequate transportation connections - 1-5 Interchange . Minimize impacts on agricultural land; and . Protect Woodburn's stream corridors and wetlands. . The UGB Amendment Process 1) Population and Employment Projections 2) Buildable Lands Inventory 3) Land Needs Analysis 4) Intensify Land Use within the Existing UGB 5) Alternatives Analysis - ORS 197.298 Priorities Population and Employment Projections 2000 2020 - Growth 2000-2020 . Buildable Lands Inventory Excludes riparian corridors, significant wetlands and floodplains. . ncludes vacant, under-utilized, infill and redevelopable land. . . Legend "I-=-."I~" an...:. ._~...r........ r::::::J ,..........Ii.I;.., - .......~.. .......1..;.~IE...r..~ -.,...~-~. ...........,...<tiII....,. ElDIIi..~... .:';'...~..<<........fr"I:... _ _ ................tto. 'III...' .............4.....'k II1II ollli................, 1III~......Iit.............. .'-.:.:~.....:..PIIJ~......... --.~~.......\'II.... - --> ........ --........ E!BIII~.~V..;... 111..111........'...., --..... I:::J ......... I:::J - ..... t r (20-year) Method for Determining Long-Term Land Needs Economic 0 ortunltles Ana sis · Employment Projection · Targeted Industries · Suitable Industrial Sites · Compare with Existing ndustrial Land SUPPlY ) (HCDC Mode Housln Needs Ana SIS · Population Projection · Determine Housing Needs by Type and Density · Match Housing Needs with Buildable Lands School and Park Ana SIS · Parks Master Plan (7 acres per 1,000 population) · Extrapolate from Existing Population: School Ratio . Woodburn Industrial Land Supply Existing UGB 126 buildable land acres 36 parcels Average Lot Size = 3.5 acres . . . . Woodburn Industrial Land Supply and located along Hwy 99 Corridor nd ustria Most Legend a Ur'- Grvwtk 8auncIlry a .udy Area lfui''''1e I..IInd Inwntaq fill Dc\III!laped _ ~1.-m.ln~1rilll _ Po.-tiall)r Vac.:m1>o I........trial .. .Vac.wt.ln~1rilll o TaM: l.crt-s Land Supply Woodburn Residential ~) // CCO ..s~~~ J;t.Q..,...... U I 7, c.~f 'l- ( 0. b "..J Existing UGB 470 buildable land acres 375 acres LDR in 401 parcels 79 acres MDR in 62 parcels Average Density 1988-2002: 6.83 du/net acre. j- o ,83 d !.v ( 1/( /1;'1 '^-r1 ;-Is ? Zy /-) {l.. . . . . . Legend Urban. Gr.mhBoulular CI CI Study Area Buildable Land Inventory _ Developed _ MDR-,...tly Vacant . MDR-Vacant LDR-'art Iy Vacant Iwoo, fLD!!LV t If,;;!";,; JlII" acan . MDR-Infill I L LDR-.nfill o Tax Lots Comparison of ndustnal Land Need & Supply within Existing UGB adequate SUPPlY east at Goal 9 Requires provIsion of of suitable sites" 18 8 12 57 3 21 3 47 o o o o o o 15 15 10 40 7 56 5 75 3 105 1 70 1 125 ~ (353] 36 133 42 486 Under 2 Total Acres 2 to 5 Total Acres 6 to 10 Total Acres 11 to 25 Total Acres 26 to 50 Total Acres 51 to 100 Total Acres Over 100 Total Acres Total Sites Total Acres What's the unmet need? 353 acres in 11 sites from 6-100+ acres. Large sites with -5 access. . Comparison of Commercial Land Need and Supply within Existing UGB r Land Commercial Land Surplus (Deficit) I r Land ICommercia Supply I Commercia Need (33) - 108. Commercial land needs met through a combination of · Vacant Land in existing commercial areas · New nodal (neighborhood) commercial centers · Expansion into Commercial Exception Area · Redevelopment in existing of commercial sites 141 L . Comparison of Residential Land Need and Supply within Existing UGB Plan Designation Supply Need Surplus (Deficit) Low Density Residential 375 278 97 Nodal Low Density Residential 0 204 (204 ) Medium Density Residential 79 71 8 Nodal Medium Density Residential 0 55 (55) Totals 454 607 (153) . Parks and School Needs Met on Residential Land Schools Net Acres 115 237 - Parks Acres 205 262 - Institutional Net Acres 0 11 - Religious Net Acres 0 28 - Natural Areas Acres * 129 92 - Government Net Acres * 5 13 - Total Net Buildable Residential Deficit for Public / Semi-Public Uses - * These acreages are not counted toward total residential deficit. . -122 -57 -11 -28 -218 Use Land More Efficiently The first place to look is inside the existing UGB What "measu res" can the City take to use the remaining land within the UGB more efficiently? 1 gross . Iti-Fam ily Mix - 65/35 Single Fam Iti-Fam Mu y ities - New Overlay Development Dens I Increase Noda Zones. . . ncrease Density in Exceptions Areas Adjacent to UGB I - SWIR and Nodal Areas. rement Planning Requi Reta Master . il I. Minimum Density Standards - 80010 of allowable density. - Downtown and Noda Allow Housing over . . and Plan for Development of Infill, Partially Vacant, Potential Redevelopment Land. . . Plan for higher density - 8.3-8.5 dwelling units acre (about 10.4 dwelling units 1 net acre). y 1 Mu . Effect of Efficiency Measures With growth management efficiency measures, Woodburn will still need to expand the UGB by about 1000 gross acres - around 30% , Acres al Acres to expand 308 Net Buildable Low Density (including Exceptions areas) 52 Net Buildable Medium Density Residenti 32 Net Buildable Commercial Acres 377 Net Buildable Industrial Acres Residentia Efficiency measures have reduced the need on to rural land by 170 net buildable acres. . . . . reduce 120 net Usage of Infill, and Potentia Redevelopment need by 50 net buildable acres. Increased Nodal densities reduce need by buildable acres . . . Nodal Development at Evergreen and Parr Roads . Nodal Development Policies Neighborhood Commercial Cente Surrounded bv Higher Density Residentia Then Small Lot Sinqle-Familv Option SUQ. . Integrated Park System . Multi-Modal and Connected Transportation System Master . Reserve ndustrial Southwest Woodburn's Key to Implementation of Economic Strategy . Southwest Industrial Area (SWIR) Policies · Reserve Land for Targeted Industries · Maintain Large Lot Sizes · Commercial Rezoning Prohibited · Provide Direct Access to Interstate 5 · Master Planning Required . Don't Forget About Downtown Woodburn . t I I I When Deciding Factors to Consider Where to Grow parks and I, commercia a ity to meet · Special needs (industrial) and · General and livability needs (resident schools) A. Ab Goal 14 and ORS 197.298 Priorities": · Rural Residential Exceptions Areas · Then Low quality (Class III-IV) agricultura SOliS · Then High Quality (Class -II) agricultural soils B. C. Also consider · Transportation imitations (1-5 Interchange) · Relative efficiency of service · Environmental impacts . Eight Study Areas Flood PI8In CJ F-MC CJ 51ue11 Area Bound.., D Wellands o $Ire... Comdors N NWI Lln. 51ucIJ Ar.. L_1 TlI)( lots Soil Capablllt, Class .:1 _"I _IV .. Exellpl:lon w.. ..... . .......... R....... .... SeI. c........ CIa.... + t080 0 1800 2080 Feet 1"""""'1 . nterstate 5 I on at Relieving Congesti and Highway 214 ....-... ........... ...--.. ...- - -- -- -- ......-. ........... - . Soils and Agricultural I Avoid Class Wetlands Flood Plain D F-MC D Stud)' AnI. BoundaIY o Wetlands D. Stre_ Conldor. L'::L NWI LIne study Area L~ T_ Lots 5011 Capab.III1J Class 01 _II _III _IV _ Exceptl .. ...... - NIItu.... R....... aM ..., c.......~ ..... + 1880 8 1880 2080 Feel I"""""Il:I . . ... ........................ ~.................... --....---- --.......... ........................... ~.~ - .,...--...... -~~ !b..M............~ ............... ~ --...- ~_ llllill ~. . Proposed UGB Expansion Areas City of Woodbum CUnwll end Pl'opoeed CClClipl.... .... l..,t ........ ............. 1:1.-- __ lil1Jl1.- ___ ~~. ~.m: ~ t::J ..... - ...... -.....................-- ..too. -~......-~ --- -- -- ::: =~ nil. -~ ...... w_ .....~ _ ~~""""l'lWllIi!l:~ . City 'of Woodbum CUrrent ..., .Propond fIlM ............................. _.'l m n _ ....--~-- ----- 11: ............................. -:- --....... ----...~ I m .- n r. _........- T~j- - __..... ~T 1 ~.- --.-.,. w. ........ ll1n'" ..- II ~ .....-.... .........-- C ,-........- - - =~ _ ~~~~ _ - ,.41" r:::J -- - - .....~~-............ lla"- -.....- - ..........-...... - - -- .== -- l1li 1>000......__ -- ..,..... ~ - - - ............- ......... With UGB Amendments, Woodburn can meet Population, Employment, and Livability Needs for the next 20 years. Plan Designation Prefened Scenario Acres Surplus (De ficit) LDR Lo v-~ L) ~,s. i.f, \ RCL 5> 'I J E"J'j (-{ 95 ..-I NodalSF 49 MDR ,~,)! 'A'fV\ ~>; 1---) jQ"r. r-} .vi J (0) NodalMDR 17 VMU - v ~ (1- i vi. r<"\ \X'IJ US(J 0 Public - 5tJe -' Is. t PC~( I<s. (218) All Residential (58) Commercial (3) Industrial 41 All Employment 38 Totals (20) . The 2004 Periodic Review Amendment Package UGB Justification Re ort - - · Buildable Lands Inventory · Land Needs Analysis · Transportation Alternatives · Natural Resources Report Woodburn Com rehensive Plan and Develo Ordinance Amendments - · Revised Woodburn Comprehensive Plan (Winterbrook, October 2003) · Revised Woodburn Development Ordinance (Winterbrook, August 2003) Revised Comprehensive Plan Map and Zoning Map (Ecotrust, November 2003) . . Next Steps If authorized to proceed tonight, the following review and adoption schedule is proposed Requested Action Date Joint Planning Commission and Council Work Session November 17,2003 Council Initiation of Periodic Review Amendment Package November 24,2003 Planning Commission Public Hearing and Recommendation January 8, 2004 Continued Planning Commission Public Hearing (if needed) January 22, 2004 City Council Public Hearing and Tentative Decision February 23 2004 City Council Decision and Adoption of Findings March 8, 2004 Referral to Marion County March 2004 Department of land Conservation and Development (DlCD) May-June 2004 Review lCDC (Commission) Review, if Necessary Summer-Fall 2004 Transportation System Plan Adoption Fall-Winter 2004-05 . On behalf of Winterbrook Planning and Your Staff: and we consideration tonight comments. Thank you for your welcome your . --r- i , I i i ! 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