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Minutes - 11/17/2003 Workshop COUNCIL WORK SESSION MINUTES NOVEMBER 17, 2003 TAPE READING Tape I - Side A ,Ql DATE. COUNCIL CHAMBERS, CITY HALL, CITY OF WOODBURN, COUNTY OF MARION, STATE OF OREGON, NOVEMBER 24,2003 CONVENED. Mayor Figley convened the work session at 7:00 p.m. for the purpose of meeting with the Planning Commission to hear a presentation on the Periodic Review Amendment Package. ROLL CALL. Mayor Councilor Councilor Councilor Councilor Councilor Councilor Figley Bjelland Cox McCallum Nichols Sifuentez Veliz Present Present Present Present Present Present Present Planning Commission Members Present: Claudio Lima, Royce Young, Patty Grigorieff, Rob Mill Staff Present: City Administrator Brown, City Attorney Shields, Community Development Director Mulder, Asst. City Attorney Won, Senior Planner Zwerdling, Associate Planner Rodriguez, Public Works Manager Rohman, City Recorder Tennant Consultant: Greg Winterowd, Jesse Winterowd, WinterBrook Planning Also present: Larry Ksionzyk, Mid-Willamette Valley Field Representative for LCDC; Les Sasaki, Marion County Planner 5.7 WOODBURN 2004 PERIODIC REVIEW AMENDMENT PACKAGE. Greg Winterowd stated that the City has conducted several studies over the last two years data of which is being used to develop amendments for the City to consider as part of the 2004 Periodic Review. He has been working closely with City staff and Marion County regarding a new population projection and a new employment projection both of which have a ripple effect to the City. The Urban Growth Boundary (UGB) justification report involves data from the Buildable Lands Inventory, Land Needs Analysis, Housing Needs Analysis, Transportation Alternatives, and Natural Resources report. In regards to UGB expansion, the areas to expand to are located to the south and west of the existing boundary for industrial sites and to the north around the golf course for residential areas. Consideration is also being given to form a new Nodal Development south ofWal-Mart and the existing city limits. He stated that those are the two biggest changes other than transportation. The City is working with Marion County and the State with WinterBrook Page 1 - Council Work Session Minutes, November 17,2003 COUNCIL WORK SESSION MINUTES NOVEMBER 17, 2003 TAPE READING as an intermediary, in an effort to come up with a plan that will work with the state-wide planning goals, the existing Marion County framework plan, and meet the City's local needs. Proposed amendments are being made to the Comprehensive plan to separate background documents from policy so that a comprehensive plan amendment is not required if a change is made to a background study such as the Buildable Lands Inventory. These proposed amendments then affect the Woodburn Development Ordinance and a package of amendments to this plan. The package before the Council and Planning Commission also includes a revised Comprehensive Plan Map and a zoning map is currently being worked on that will implement the amendments. The current Urban Growth Boundary is about 25 years old and it needs updating to accommodate projected population and employment growth within the City. He stated that past growth trends do not adequately address future economic opportunities, housing needs or applicable statewide planning goals. Key objectives include (1) implementation of Economic Opportunities Analysis, (2) provide choice of suitable industrial sites to attract certain types of industries, (3) provide buildable land for housing, parks, and schools, (4) increase land use efficiency within UGB, (5) complete the periodic review process which began about 7 years ago, (6) coordinate with the Marion County Framework Plan, (7) provide adequate transportation connections not only east/west connection but interchange improvement, (8) minimize impacts on agricultural land, and (9) protect stream corridors and wetlands. He reviewed the UGB amendment process which includes the basic steps of identifying population and employment projections, buildable lands inventory, land needs analysis, intensify land use within the existing UGB, and alternative analysis which is to bring land in under ORS 197.298 priorities. He stated that those priorities say that the first areas to be added would be the exception areas of a rural residential land in which a house or small business could be located that abuts the current UGB boundary, then lower class agricultural soil (Class III-N) areas can be considered, and prime agricultural soil (Class I-II) land is to be avoided if possible. Population projection for the City over the next 20 years indicates a 74% growth and employment projection indicates an 81 % growth. The population projection has been coordinated with the staff of Marion County and LCDC, and, as part of this process, the City will be asking the Marion County Commissioners to adopt the population proj ection of 34,919 for year 2020 as the coordinated population projection. He suggested that the plan year be changed to 2023, 2024, or 2025 since this process will still take some time to complete. In regards to employment, the Council has expressed a desire to recruit businesses that will provide employment to the residents of Woodburn rather than the residents having to go elsewhere for employment. The Buildable Lands Inventory did impose some restrictions on development and he referred to a map that displayed the locations of buildable land by category. He reviewed the method used to determine 20-year land needs for the City which included taking into consideration the Economic Opportunities Analysis, Housing Needs Analysis, and the Page 2 - Council Work Session Minutes, November 17, 2003 COUNCIL WORK SESSION MINUTES NOVEMBER 17, 2003 TAPE READING School and Park Analysis. The City's industrial land supply within the existing UGB is 126 buildable acres with an average lot size of 3.5 acres. The residential land supply is 470 buildable acres of which 375 acres is low density residential and 79 acres in medium density residential. Based on lot size between 1988-2002, the average lot size is 7,000 square feet or 6.83 dwelling units per acre. He reviewed Goal 9 provision regarding need to provide adequate supply of suitable sites and the acreage and site requirements for industrial, commercial, and residential acreage to meet the need within the current UGB. Since there is a deficit within the existing UGB, this information will be used within the UGB expansion justification report. In regards to the large stores that are currently vacant, these parcels have already been developed and are part of the existing inventory even though they are currently not occupied by a business. He explained the concept of a nodal residential plan designation which is an area with a commercial center surrounded by a higher density residential area with design standards to make up the density and provide affordable housing opportunities. Side B Mr. Winterowd stated that the park and school needs are, for the most part, in the residential areas but are not met in commercial areas. Therefore, the amount of residential land needs to be increased to meet the parks, schools, and open space needs. 2.4 Under state law, local government must use land more efficiently within the UGB before they can expand their UGB. The plan before the City would be to allow 1) as much as 10.5 dwelling units per net acre, 2) a residential mix of65% single family and 35% multi- family, 3) new overlay zones by increasing densities in nodal development, 4) increasing density in exception areas adjacent to the existing UGB, 5) master planning requirement in southwest industrial reserve area and nodal areas to maintain large parcel sizes, 6) housing over retail businesses in the downtown and nodal development areas, 7) minimum density standards be set at 80%, and 8) planning for development of infill, partially vacant, and potential redevelopment land. It was noted that growth efficiency measures to be implemented will still require the expansion of the UGB by approximately 1,000 gross acres or 30% increase. Mr. Winterowd provided more in depth information on proposed nodal development policies that are incorporated into this package. He expressed his opinion that the southwest industrial reserve is the key to implementing Woodburn's economic strategy since it has good access to 1-5, Butteville Road and Parr Road. To make transportation work to this area, the long range plan needs to include a connection from Butteville to Highway 99E utilizing area south of the current city limits. He also reviewed policies that for this area which would include reserving land for targeted industries, maintaining large lot sizes, prohibit commercial rezoning, provide direct access to I-5, and require master planning. He provided information on the factors that need to be considered when deciding where to grow in the outlying areas. Eight study areas were decided upon and, after applying the factors, proposed areas of expansion developed. He outlined those areas on the map and briefly reviewed the Page 3 - Council Work Session Minutes, November 17, 2003 COUNCIL WORK SESSION MINUTES NOVEMBER 17, 2003 TAPE READING reasons as to why those parcels could be in the proposed area of expansion. In regards to lot size, the proposed maximum allowable density is 6,000 sq. feet, however, a developer would need to stay within that density level overall so it would be possible to have some lots larger in size and others smaller so long as the average is met. He also provided a chart on projected timelines to complete the review and adoption process. Public hearings would be held before the Planning Commission and Council during the spring of 2004 with reviews by other governmental agencies to be completed by the fall of 2004. Tape 2 Side A Mayor Figley expressed a concern on (1) how certain housing types can be detrimental to a community as it relates to the number of persons per household and not just units per acre. Mr. Winterowd stated that concerns surface on the quality of life with small house and small lot sizes with multiple family. The amendments before the Council and Commission are a compromise that many would like to see in a community versus the mandate from the State that land be used efficiency and affordable housing be available. He does not feel that row houses will be built within the next 10 years and design standards, for instance, would dictate as to where a garage is located in a row house design. The population per household size is proj ected between 2.7 and 3.1 since factors such as better education and more money will result in a lower household size over the next 20 years. Commissioner Lima expressed his concern that the trend will continue to increase versus decrease since it takes many years to change the cultural factors that affect the household SIze. Following some discussion on this issue, Mr. Winterowd urged the Council and Commissioners to consider a set of numbers that they feel comfortable with so that the household size directly relates to land consumption areas and the types of house being demanded. Commissioner Young questioned how close the City is to the density target of 8.3 to 8.5 homes per acre. Mr. Winterowd stated that the actual density is 6.83 whereas the proposed plan would increase the density by 25%. In the buildable lands inventory, a parcel by parcel analysis was completed and that did include a developer's ability to partition land for flag lots in order to make use of all available land and remnant pieces of land were taken out of the calculations. It was noted that 6.83 density was calculated from the period of 1988-2002 and, for the period of 1998-2002, the overall density was 7.1. Discussion was also held on design standards and the impact smaller lot sizes may have on the housing quality and affordability. Page 4 - Council Work Session Minutes, November 17,2003 COUNCIL WORK SESSION MINUTES NOVEMBER 17,2003 TAPE READING Councilor Veliz commented on how the interchange improvement is a high priority but it is still unknown as to its status and the proposed plan calls for the building of the east- west connection which is even more unknown than the interchange improvement. Mr. Winterowd stated that once the UGB expansion is granted and the Transportation System Plan is updated, the goal would be to make the connection over the next 20 years as development on the southerly portion of the UGB occurs. Side B 4.0 Mayor Figley stated that the work on this issue will continue and public hearings will give the citizens an opportunity to comment on the proposed amendments. APPROVED ~~~ FIGLEY The work session ended at 9:20 p.m.. ATTEST ?/~~ Mary Te ant, Recorder City of Woodburn, Oregon Page 5 - Council Work Session Minutes, November 17,2003