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
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)
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
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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 .
.
...
........................
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-
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-~~
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~_ llllill
~.
.
Proposed UGB Expansion Areas
City of Woodbum
CUnwll end Pl'opoeed CClClipl.... ....
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........ .............
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w_ .....~ _ ~~""""l'lWllIi!l:~
.
City 'of Woodbum
CUrrent ..., .Propond fIlM
.............................
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-----
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lla"- -.....- -
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.== -- 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
.
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City of WOOdbum
Current and Proposed Co~ Plan
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