Ord 2095 - Annex & Reclas I5/214
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COUNCIL BILL NO. 1426
ORDINANCE NO. 2095
AN ORDINANCE ANNEXING AND RECLASSIFYING CERTAIN PROPERTY LOCATED
IN THE SOUTH EAST QUADRANT OF THE INTERSTATE 5 SOUTH OF STATE
HIGHWAY 214 FROM MARION COUNTY URBAN TRANSITION (UT) ZONE TO CITY
OF WOODBURN SINGLE FAMILY RESIDENTIAL (RS), MULTI-FAMILY RESIDENTIAL
(RM) AND COMMERCIAL GENERAL (CG) DISTRICTS.
WHEREAS, the Woodburn Comprehensive Plan Map has established certain land
uses within the City of Woodburn's Urban Growth Boundary, and
WHEREAS, the Woodburn City Council has reviewed the record in Annexation
Case No. 92-02 and Zone Change Case No. 92-03 and considered the public testimony
previously presented, NOW, THEREFORE.
THE CITY OF WOODBURN ORDAINS AS FOLLOWS:
Section 1. The legal description of the involved real property is as follows:
A parcel of land lying in the A. Dubois Donation Land Claim No. 98, and the M. Lore
Donation Land No. 61. in Sections 12, 13. and 14, Township 5 South, Range 2 West of
the Willamette Meridian, Marion County. Oregon. said parcel being more particularly
described as follows:
Beginning at a 5/s inch iron rod marking the Southwest corner of the A. Dubois Donation
Land Claim No. 98, in said Township and Range and running thence South 000 39' 31"
West 530.27 feet to a V. inch iron pipe; thence North 890 32' 20" West 2110.97 feet to a
point on the Easterly right of way line of Interstate Highway 5; thence along said right of
way line North 350 53' 54" East 3649.14 feet to a point on the Westerly line of said
Donation Land Claim No. 98; thence along said Donation Land Claim line South 000 31'
65" West 69.04 feet; thence continuing along said Easterly right of way line North 350 57'
00" East 246.21 feet; thence South 880 51' 55" East 1349.22 feet; thence North 000 40' 55"
East 27.96 feet to a point on the Southerly line of West Hayes Street; thence along said
Southerly line South 880 51' 55" East 628.17 feet to a point on the Westerly line of
Evergreen Road; thence along said Westerly line South 000 47' 17" West 2111.00 feet
to a 5/8 inch iron rod; thence North 890 28' 13" West 2110.60 feet to a point on first said
Westerly line of said Donation Land Claim No. 98; thence along said Westerly line South
000 31' 55" West 470.58 feet to the point of beginning all in Marion County, Oregon.
Section 2. The real property described in Section 1 of this Ordinance is hereby
annexed to the City of Woodburn.
Page 1 - COUNCIL BILL NO. 1426
ORDINANCE NO. 2095
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Section 3. The zoning designation of said real property is hereby reclassified from
its present designation of Marion County Urban Transition Zone (UT) to the City of
Woodburn Single Family Residential (RS). Multi-family Residential (RM) and Commercial
General (CG) districts.
Section 4. The zoning reclassification is subject to the conditions contained in
Exhibit "A", attached hereto and incorporated herein, that the Council finds reasonable.
Section 5. The annexation, and zoning reclassification of said real property are
based upon the staff report and, specifically, the findings contained in the staff report
which are attached hereto as Exhibit "B" and by this reference incorporated herein.
Section 6. The City Administrator or his designee is hereby directed to correct the
Woodburn Zoning Map to the classification herein made.
APprovedastofo::f)~ ~ $'D
City Attorney
If) I r: / J L
Dilte f
APPROVED: 1- ftCo~ ZtJ
FRED W. KYSER, MAYOR
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Passed by the Council
October 12, 1992
Submitted to the Mayor
October 13, 1992
Approved by the Mayor
October 13, 1992
Filed in the Office of the Recorder
October 13, 1992
Attest: ;1(~.~4
MARY TE NANT, CITY RECORDER
CITY OF WOODBURN. OREGON
Page 2 - COUNCIL BILL NO. 1426
ORDINANCE NO. 2095
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EXHIBIT "A"
CONDITIONS OF APPROVAL
1. Prior to any development of the 173.84 acre parcel the comprehensive map be
amended to generally reflect the applicant's proposed land configuration (C.P.
92-02).
2. Assist the city in amending its 1985 Transportation Plan for the Highway 214,
1-5 interchange Parr Road area, prior to development, to bring it into compliance
with OAR 660-12-060(1 lIb) regarding adequate transportation facilities to
support proposed land uses.
3. Any reconfiguration of the land use designations maintain the same ratios as
identified on the original comprehensive plan.
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STAFF REPORT
CAPITAL DEVELOPMENT
Exhibit "8"
Page 1 of 24
Introduction
The Capital Development Company is requesting annexation of their 173.84 acres into the
City of Woodburn. They are also requesting the city amend the Woodburn Comprehensive
Plan Map to reflect a land use pattern that is seen, by the developers, as compatible with
adjacent land uses. The result of this action would not diminish the acreage sizes presently
designated for each of the three land use categories of single family, multi-family and
commercial, only rearrange their configuration.
The last section of this proposal calls for the partitioning of this 173.84 acres into two
parcels divided by dedicated right-of-way that will extend from Stacy Allison Avenue on the
north to their south east/west property boundary (ExhibitS). The intent is to connect this
street (Prairie Blvd) to Parr Road.
As for a development proposal, there are no accompanying site design plans at this time.
It is anticipated by the developer the first phase of construction will consist of a multi-family
apartment complex and retail store. Any development proposal will require public hearings
before the planning commission.
Capital Development estimates that total buildout of the 173.84-acre site will be completed
by the year 2005.
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STAFF REPORT
ANNEXATION #92-02
ZONE MAP AMENDMENT #92-03
COMPREHENSIVE PLAN MAP AMENDMENT #92-02
PARTITION NO. 92-04
Exhibit "8"
Page 2 of 24
APPLICANT: CAPITAL DEVELOPMENT COMPANY
PROPERTY LOCATION: The site is located adjacent to Interstate 5, south of State
Highway 214. The parcel is bordered by Evergreen Road to
the east and West Hayes Street on the north.
(see Applicant's Attachment A)
REQUEST:
1) The Applicant requests the annexation of approximately 173.84
acres to the City of Woodburn.
2) In addition, the applicant is requesting a zone change from Marion
County zoning of UT Zone (Urban Transition) to the City of
Woodburn zoning districts of commercial, multi-family and single-
family with concurrent redistribution of commercial, high density and
low density designations on the Comprehensive Plan Map.
(see Applicant's Attachment B)
CURRENT ZONING: UT (Urban Transition) Zone, outside the city limits but within
the Urban Growth Boundary area of Woodburn
COMPREHENSIVE PLAN
DESIGNATION: COMMERCIAL
HIGH DENSITY RESIDENTIAL
LOW DENSITY RESIDENTIAL
approximately 58 acres
approximately 32 acres
approximately 87 acres
Page 1 - Staff Report
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Exhibit "8"
Page 3 of 24
SITE CHARACTERISTICS:
The site is a flat parcel of land, currently under farming use. It is composed of a large
rectangle, adjacent to a large triangular portion of farm ground. There is a slight
natural slope of the property to the northwest area and natural drainage occurs in that
direction. The majority of the site is well drained; however, there are a few areas
where standing water is present. These areas are located in the southeast quarter of
the site. There is one small site located on the property which classifies as a "farmed
wetland" (300' x 85') but the applicant did not pinpoint the exact location of the
wetland. The property is not subject to flooding.
Vegetation on the site is a mix of seed grasses. There is little or no natural vegetation
on the site because it has been under farm production for several years.
Page 2 - Staff Report
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STAFF COMMENTS -- BACKGROUND INFORMATION Exhibit "8"
Page 4 of 24
1 ) The site is located within the identified urban growth area which is urbanizable and is
considered to be available for urban development. This site (173.84 acres) is planned
for residential uses, both low density and high density, and for commercial development.
This planning area is located on the current Woodburn Comprehensive Land Use Plan.
Since the site is not within the city limits, the zone designations must be brought into
conformance with the Comprehensive Plan.
2) The site has been designated on the plan for approximately 57.8 acres of commercial
zoning, 31.8 acres of multi-family zoning, and 87.3 acres of single-family zoning.
It should be noted that the proposed annexation Master Plan for this parcel will be in
conformance with the current Comprehensive Plan relative to acreage, but the
arrangement of zoning districts will be altered to create a better site plan design.
The developer proposes to provide approximately 55.3 acres of commercial, 31.0 acres
of multi-family and 70.5 acres of single family, leaving approximately 17.8 acres for
public streets and open space.
3) The redistribution of the zoning districts is intended to place the commercial uses
adjacent to arterial systems and the Interstate 5 corridor. As a result of this
redistribution, the residential areas will be buffered by the commercial district and
integral with the existing Senior Estates Development (see Applicant's Exhibit B).
4) The following objectives were taken under consideration in relocating land use patterns
in this area:
· spread commercial areas along 1-5
(this configuration provides a better opportunity for "freeway oriented" commercial
development)
· provide a multi-family zone buffer between the commercial freeway frontage and the
residential areas to the east
· eliminate Evergreen Road and Hayes Street as major collectors for the southeast
commercial development
5) The developer requests that the 173.84-acre parcel be annexed to the City of Woodburn
because there are no alternative sites within the city limits sufficient in size to
accommodate a mixed-use site plan of this nature. The parcel is in single ownership and
it is designated commercial (58 ac), high density residential (32 ac) and low density
residential (72 ac) on the Comprehensive Plan. The identified districts are also essential
parts of the integrated conceptual plan for the 173.84 acres and, therefore, the parcel
should be annexed in one piece to provide for a better planning balance in coordinating
residential and commercial sectors of the city and, at the same time, provide a more
efficient and socially acceptable transportation system to accommodate the site
development.
Page 3 - Staff Report
.- Exhibit "8"
Page 5 of 24
6) It should be noted that the site is already planned for commercial and residential uses.
The proposed plan map amendment reflects only the relocation of already designated
acreages -- components of the Comprehensive Plan Map, already approved. Therefore,
it does not disturb the balance of the vacant land inventory for the city and, at the same
time, enhances the opportunity of market choices to better utilize the available
undeveloped land.
7) The following City services are available to the site:
Infrastructure:
This development will connect to an existing 12" water line along the northern property
line of the site. Per the City's request, a loop water system will be designated to run
from Parr Road around the proposed development to connect to Settlemier in the future.
A water detention facility may be necessary in order to treat stormwater. If required,
the facility will be incorporated into the commercial and multi-family site designs. The
City's Public Works Department will be installing a lift station in order to connect a
gravity flow sewer line along the new road to the lift station. The solid waste will be
pumped to an existing treatment facility.
Schoollmoact and Availabilitv:
The nearest school facilities include Nellie Muir Elementary, Woodburn Junior and Middle
School, and Woodburn Senior High School. The potential impact at future build out is
estimated as follows:
72 acres single family x 4) units per acre
288-300 residences x .5 elementary students = approx 150 students
30 acres multi-family x (15) units per acre
450 units x .5 elementary students/unit
The Woodburn School District has been contacted regarding this project to explore the
possible need for an additional school site (see Applicant's Exhibit D).
Park and Recreation Facilities Availabilitv:
The Parks and Recreation Department has advised the developer that they are desirous
of receiving the development fees to develop the existing parks. The owner is aware
that the city would prefer cash in lieu of parkland (see Applicant's Exhibit E).
Page 4 - Staff Report
Exh!ibtt "8"
Page 6 of 24
STAFF CONCLUSIONS:
The goals and policies in this section of the report are those which staff determined to be the
most applicable to the annexation request:
1) .....Annexation policies are extremely important for the City. While it is important that
enough land is available for the necessary development anticipated in the City of
Woodburn, it is also essential to prevent too much land being included in the city limits
as this leads to inefficient, sprawling development. Because of the need to plan for
public improvements, the City should insure that there is a five year supply of vacant
land within the City. Services should be provided to that land during five year period...".
(Annexation Policies, page 46, Policy D-1)
CONCLUSION:
The parcel is already within the identified urban growth area which is considered to
be available for urban development. There are no alternative sites within the city
limits that are sufficient to accommodate a mixed-use development plan of this
natu re.
2) "...Growth goal is to grow to a population of approximately 18,000 by the year 2008.
This growth should be orderly and accompanied by the necessary public services. The
growth should be balanced in residential, industrial, and retail sectors of the City. As
much as possible, the growth should not add any additional burdens on the City's
taxpayers." (Growth Goal, page 55, Policy J-1)
CONCLUSION:
The Comprehensive Plan contains an inventory of lands that are suitable for
economic and residential growth. The site has been designed to accommodate the
proposed 57.9 acres of commercial and 101.7 acres of residential land. City
services are available to the site.
3) ". ..Conversion of land within the boundary to urban uses shall be based on a
consideration of:
a. Orderly, economic provision for public facilities and services;
CONCLUSION:
The site has access to public facilities and services.
b. Availability of sufficient land for the various uses to insure choices in the market
place;
CONCLUSION:
The site will provide approximately 56.3 acres of commercial land, 31 acres of high
density residential land and 70.5 acres of low density residential land. This site
provides a variety of development opportunities and certainly increases choices in
the market place.
Page 5 - Staff Report
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Exhibit "8"
Page 7 of 24
c. LCDC Goals;
CONCLUSION:
Staff determined the following LCDC goals to be the most applicable to the proposal:
Goal 5. To conserve open space and protect natural and scenic resources:
Water Areas, Wetlands, Watersheds and Groundwater Resources;
Comment: There is an identified spot of farmed wetland (400' x ), but the
applicant has not indicated its precise location.
Goal 6. To maintain and improve the quality of the air, water and land resources
of the state.
Comment: The City does not contain any significant air pollution sources. This
proposal will be for commercial and residential development only and
it will not create any point source pollution. The applicant is aware
that the City has adopted DEQ and EPA standards for air quality and
emissions control.
Goal 8. To satisfy the recreational needs of the citizens of the state and visitors
and, where appropriate, to provide for the siting of necessary recreational
facilities including destination resorts.
Comment: This development has much potential for meeting local and
recreational needs. The developer has envisioned a full range of
commercial uses, including a factory outlet mall, a motel and RV Park,
a miniature golf course, and open landscaped areas for passive
recreation. The site seems to be ideal for this type of planned
development because of its location and proximity to Interstate-5.
Potential uses could serve both local residents and visitors to the
region.
In addition to the commercial recreation opportunities examined by the
developer, there will be opportunities for walking, jogging, and biking
along the local and minor collector streets of the residential
development. There will be provision for bike lanes on the arterial
streets. The land is basically flat and these forms of recreation can be
actively pursued.
Goal 9. To provide adequate opportunities throughout the state for a variety of
economic activities vital to the health, welfare, and prosperity of Oregon's
citizens.
Comment: The Comprehensive Plan contains an inventory of lands that are
suitable for economic growth. The City has established four major
commercial areas. The property included in this application is one of
these four sites. This project will provide economic development
opportunities within the community. This is sufficient in size and
shape, and it has been designated to accommodate the proposed 56.3
acres of commercial land.
Page 6 - Staff Report
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Exhibit "8"
Page 8 of 24
Goal 10. To provide for the housing needs of citizens of the state.
Comment: The Comprehensive Plan contains goals for residential development as
well as assessment of residential land needs for the future. The
property is urbanizable and contains over a hundred acres of buildable
residential land. The proposed residential developments will be
designed with a neighborhood concept.
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Goal 11. Public Facilities and Services
Comment: The Comprehensive Plan contains services, goals and policies. The
policies are in compliance with this DLCD goal. There are urban
services available to the site. At the time of development review,
specific engineering and design issues will be addressed.
Goal 12. Transportation
Comment: A traffic study was submitted as part of this application. Within that
study is contained a detailed analysis of the arterial street system and
the impacts of same.
The Woodburn Crossing traffic impact study looks at a two-phase
analysis of buildout. Phase I consists of 300,000 square feet of retail
and 150 multi-family units while Phase (( encompasses the remainder
of the approximately 174-acre project.
Two of the three modifications required for Phase I, dual left turn
lanes for northbound Evergreen and modification of Hwy 214 to
accept the two left turn lanes, are tied together and would meet with
resistance from the State Highway Division. This solution without
widening Hwy 214 is not feasible in my opinion. Widening of Hwy
214 or some other action to alleviate some of the traffic pressure on
this roadway must be accomplished before Phase I is completed. It
may be possible that a portion of Phase I, the 150 multi-family units,
could be accomplished without major traffic modification. Any
notable amount of retail development, however, would probably not
be possible without significant upgrades to Hwy 214.
The Woodburn Crossing area will be difficult to develop for high traffic
generation uses until capacity improvements are made to Hwy 214 or
there are other modifications which will allow other roadways to
absorb some of the traffic.
It should be noted that, at the time of site plan review, the applicant
and city will initiate a request for an exception for the extension of
Prairie Boulevard as required under Goal 2 Land Use Planning, Part ((
Exceptions: Subsection (c) and Oregon Administrative Rules OAR
660-04-020 and -022.
The reason for this exception is due to the fact that Prairie Boulevard
extends approximately 1,200 feet beyond the city's urban growth
boundary and city limits with its connection to Parr Road.
Page 7 - Staff Report
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Goal 14.
Exhibit "B"
Page 9 of 24
Urbanization - To provide for an orderly and efficient transition from rural
to urban land use.
The site is already within the Urban Growth Boundary area. There are
public facilities and services available to site. This parcel of land will
provide an additional site for commercial and residential development.
d. Encouragement of in-filling development within development areas
before conversion of urbanizable areas.
Comment: Within the city limits there are no alternative sites for a
mixed-use project of this scope, therefore, annexation of
this site is requested in order to provide a site that is
sufficient in size to accommodate this development.
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Comment:
e. Applicable provIsions of the Marion County and City
Comprehensive Plans
Comment: This land use is consistent with the City's
Comprehensive Plan. The site is already planned for
commercial and residential use. Once the property is
annexed, the applicant will proceed with a zone change
in order to bring the site in conformance with the
Woodburn Comprehensive Plan.
4) "The City will insure that sufficient land is made available to accommodate the growth
of the City. This requires that sufficient land for both high density and low density
residential developments is provided within the confines of the growth and development
goals of the city (...)" (Housing Goals and Policies, page 48, Policy G-1-1)
"It is the policy of the City to encourage a variety of housing types to accommodate the
demands of the local housing market...". (Housing Goals and Policies, page 48, Policy
G-1-2)
Comment: The site provides for approximately 31 acres of multi-family residential land
and approximately 70.5 acres of single family residential land.
5) "...The City should at all times have sufficient land to accommodate the retail needs of
the City and the surrounding market area. The City has four major commercial areas:
99E, 1-5 interchange, the downtown area and the 214/211/99E four corners intersection
area. No new areas should be established." (Commercial Land Development Policies,
page 44, Policy B-1)
"Whenever possible, the City should encourage or require commercial developments
which are designed to allow pedestrians to shop without relying on the private
automobile to go from shop to shop. Therefore. acreage site lots should be encouraged
to develop "mall type" developments that allow a "one stop" shopping opportunity.
Commercial developments or commercial development patterns which require the use
of the private automobile shall be discouraged." (Commercial Land Development
Policies, page 44, Policy B-3)
Comment: The commercial component of the site encourages the design of "mall type"
shopping centers that allow a "one stop" shopping opportunity.
Page 8 - Staff Report
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6)
Exhibit "8"
Page 10 of 24
The Urban Growth Boundary agreement between the City of Woodburn and Marion
County requires acknowledgement and concurrence prior to annexation (see Attachment
A1)
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In summary, staff concludes:
1. The proposed annexation lies within the Urban Growth Boundary as identified in the
City's adopted Comprehensive Plan. Therefore, a request for annexation is feasible.
2. The proposed site is contiguous to the existing city limits and the City has the
capability of handling the water, sewer and storm drainage of the planned use to
meet the potential needs of the proposed development.
3. The inclusion of this land within the city limits will provide additional land for more
diversified housing needs and commercial development.
CONDITIONS OF APPROVAL:
Staff recommends that the Woodburn Planning Commission approve requested
annexation proposal.
Page 9 - Staff Report
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Exhibit "8"
Page 11 of 24
PART II. ZONE CHANGE REQUEST #92-03 AND COMPREHENSIVE PLAN MAP
AMENDMENT REQUEST #92-02
APPUCABLE LAND USE CRITERIA:
WOODBURN ZONING ORDINANCE:
1. CHAPTER 15. ZONE CHANGES /
2. COMPREHENSIVE PLAN AMENDMENTS
The goals and policies in this section of the report are those which staff detecmined to
be the most applicable to the zone change and comprehensive plan map amendment
requests:
Section 16.08'0. Burden of Proof. The following specific questions shall be given
consideration in evaluating requests regarding plan and zoning amendments and
are as follows:
a) To support an amendment to the Comprehensive Plan. the applicant shall:
1) Prove that the original was In error;
2) Show that the community has changed since the original plan was adopted; or
3) Show that there has been a change In the planning and growth policy of the
City.
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b) To support a zone chanqe. the applicant shall:
1) Show there Is a need for the use proposed;
2) Show that the particular piece of property In question will best meet that need.
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STAFF COMMENTS: ,
1.The property is currently zoned Marion County UT (Urban Transition) Zone
That means the property is zoned for exclusive farm use only, and no residential, multi-
family or commercial development could take place on the land with the zoning it now
has.
2. Although the land is zoned Urban Transition has been encompassed in the
Woodburn"Comprehensive Plan. On the Woodburn Comprehensive Plan Map there are
approximately 58 acres of commercial designation, 32 acres of high density residential
designation and 87 acres of low density designation.
3. The current Comprehensive Plan Land use Map places a significant portion of the low
"density residential land directly adjacent to the 1- 5 Corridor. It also places both
commercial and high density residential land directly adjacent to, the Senior' Estates
Development Senior Estates is a low density residential subdivision with golf cOurse and
Page 1 0 " Staff Report
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Exhibit "8"
Page 12 of 24
recreational facilities for citizens over 55 years of age. Thislarid use pattern envisioned '
on the Comprehensive Plan Map creates a potential conflict between the high traffic uses
associated with commercial and high density residential'development and the slower
paced traffic and lifestyle of the Senior Estates neighborhoods.
4. The applicant requests a zone change and plan map amendment on approximately
173.84 acres. It is the second phase of a requested land use action for annexation to the
City of Woodburn and subsequent zone and map changes to accommodate a master
plan previously submitted.
5. The purpose of the map amendment is to redistribute the zoning districts in a more
appropriate manner; to provide freeway exposure to the commercial districts; and to
provide significant buffering between the freeway and ,the single family residential ares.
6. The request is supported by the accompanying master plan layout for the 173.84 acre
parcel as contemplated by the Prairie Corporation. The Prairie Corporation has an option
to purchase this parcel and complete the envisioned development of the 173.84 acre
site over the next 15 years.
STAFF CONCLUSIONS:
A) To support an amendment to the Comprehensive Plan, the following specific
questions shall be given considerations:
- prove that the original plan was In error;
- show that the community has changed since the original plan was adopted; or
- show that there has been a change in the planning and growth policy of the City.
Comments:
1. The re-configuration of the zoning districts, submitted by ,the developer, more
appropriately places low density residential land adjacent to the existing Senior Estates
neighborhood. It also places the commercial land adjacent to the 1-5 ColTidor. The high
density residential land is used as buffer between the commercial and low density
residential land.
2. The proposed land use pattern with its accompanying transportation layout of the
arterial street system in a more appropriate design of land uses for this specific site ( 173.84
acres).
3. NO,mistake was made in the original plan:
Conditions in the area have changed since the adoption of the Land Use Plan -
a specific developer has a specific concept that he is willing 'to implement on the
subject property.
4. This request still meets all the goals and policies of the Woodburn Comprehensive
Plan.
* The proposal meets the specific residential land use policies outlined in the
Comprehensive Plan ,on pages 42,43,44 and 72.
Page 11 - Staff Report
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..... Exhi bi t "8"
Page 13 of 24
2. The property is currently zoned Manon County Exdusive r <u1I1l):,,,,. That means the
property is zoned for exdusive farm use only,. and no residential, multi..family or
commercial development could take place on the land with the zoning it now has. The
zone change request is part of City's annexation process.
3. There are no other parcels of similar size and zoning adjacent to the 1-5/ 214
Interchange that could be utilized for a mixed-use project envisioned be the developer.
In summary, staff concludes:
The proposed zone map amendment and comprehensive plan map amendment reflects
the intent of the Comprehensive Plan and Zoning Ordinace.
RECOMMENDATION:
Staff recommends the present comprehensive plan map designations of commercial, multi-family
and single family be approved.
Condition of Approval
1. Prior to any development of the 173.84 acre parcel the comprehensive plan map be
amended to generally reflect the applicant's proposed land configuration (C.P. 92-02).
2. Assist the city in amending its 1985 Transportation Plan for the highway 214, 1-5
interchange Parr Road area, prior to development, to bring it into compliance with OAR
660-12-060 (1 )(b) regarding adequate transportation facilities to support proposed land
uses.
3. Any reconfiguration of the land use designations maintain the same ratios as identified on
the original comprehensive plan.
Page 12 - Staff Report
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Exhibit "8"
Page 14 of 24
5T AFF REPORT
CAPITAL DEVELOPMENT
ADDENDUM
City staff has reviewed the comments submitted by the Land Conservation and
Development Department (LCDD), attachment B1, and the Oregon State Highway Division,
attachment C1.
In response to the issues raised by LCDD (attachment B1), city staff has the following
comments:
In city staff's OpiniOn, the present land use configuration lacks compatibility with the
adjoining single family residential area. The purpose of the reconfiguration is to "move" the
commercial retail uses away from the single family uses. By moving the commercial retail
uses adjacent to the freeway, those structures serve as a noise barrier to the 60,000
vehicles per day that travel the 1-5 corridor.
In its present land use configuration future single family development would be directly
exposed to undesirable freeway noise.
DLCD oaraaraoh 3 - The issue raised is that the reconfiguration makes the commercial land
"freeway oriented". The perception is that these commercial uses are specifically targeted
to freeway traffic, therefore changing the original identified function.
City staff response:
What city staff was describing in our initial report is a commercial land use pattern
that would abut the freeway. Whether the commercial land use remains in its
present configuration or is used as a buffer against the freeway, those commercial
uses will be the same as now, i.e., Wal-Mart, McDonald's, Taco Bell and in the near
future, Holiday Inn, Carl's Jr., Skippers and commercial shopping centers. The
commercial land uses, therefore, are the same as allowed in the present plan.
Ironically, if the same land use pattern was maintained in its present configuration
and annexed to the city, LCDD's and the Oregon State Highway Division's
arguments would be mute. This is because the present city transportation plan and
comprehensive plan map has received acknowledgement, in the past, by both
agencies. However, failing to rearrange the land use configuration would be to the
detriment of the City of Woodburn.
By rearranging the land use pattern, we are not changing the intensity of use nor
are we modifying the transportation plan. The transportation plan calls for a street
to intersect Parr Road and the alignment of Prairie Blvd allows that to occur.
DLCD oaragraoh 4 - Requires that an "exception" be taken regarding the extension of the
proposed Prairie Blvd to Parr Road.
City staff response:
At this time an exception is not beirfg taken. That will be an exercise, if necessary,
that will be initiated when the city amends its transportation plan. Presently, the
city is addressing the street system within its urban growth boundary.
_._..._----..".~._._- '"._--" - ". --".,.-.,~..._._..,,> ~
'.... Exhibit a8"
Page 15 of 24
There also remains the question as to whether an exception needs to be taken
since Woodburn's Transportation Plan, approved by LCDC in 1985 and again in
1989 with periodic review, identified two connections with Parr Road outside the
city's urban growth boundary. See attachment 01.
DLCD oaraaraoh 5 - Raises the concern that the southerly half of this commercial
development is not wide enough to be useful and, therefore, will remain vacant.
City staff response:
The most narrow point of the proposed commercial development at its southerly
end is approximately 275 feet :I: in depth excluding the freeway frontage road.
Staff concurs that a widening of this portion may be necessary. This would result
in the elongation in the multi-family designated use of the west side of Prairie Blvd.
OLCD Daraaraoh 6 - The issue is whether using the multi-family as a buffer, the division of
the 31-acre site into three parcels will allow for affordable housing.
City staff response:
Relative to Woodburn's population and physical size, a 31-acre multi-family
complex would be a monolith. Also, the present location of such a complex of this
size at its present location adjacent to a single family residential area could have
negative impacts on those adjoining properties.
The overall objective of rearranging the 31-acre parcel into three parts is to lessen
the impacts of the multi-family development on adjoining single family residential
areas by providing parcels of less acreage to be disbursed throughout the 173.84-
acre site. Each multi-family site would represent approximately 10:1: acres. In
Woodburn, by our standards, this could represent up to 170:1: units per ten-acre
site.
Parceling the 31 acres into three sites would allow for different design alternatives
and a range of rental costs.
As for the "buffer", it is not at all uncommon to place multi-family developments
adjacent to commercial developments and to use them as buffers between
commercial and single family land uses.
OLCO oaraaraoh 7 - Raises the concern that 20 acres of residential land is sacrificed for
streets and additional commercial land.
City staff response:
It should be noted that one of the conditions of approval states the applicant
"maintain the same zone designation ratios as identified on the original
comprehensive plan map." This requires the developer to maintain 86.87:1: acres
for residential use.
As for the Oregon State Highway Division's response to the applicant's proposal,
attachment C1, staff can only reiterate the responses given in this addendum.
- - T-" , -- ,,---
Exhibit "8"
Page 16 of 24
City staff does concur, however, that an amended transportation plan that takes into
consideration the land use impacts of this proposal is necessary. This shall be a
requirement that must be shared by this applicant, other applicants that have a "significant"
impact on the interchange, and the City of Woodburn.
As to whether this must occur prior to annexation and comprehensive plan amendments,
or after annexation and comprehensive plan amendments but prior to any development
proposal, has to this point been clarified.
CAPDEV.ADD/sg
''T
DIRECTOR
Craig O. Luedeman
BUIWING INSPECTION
(503) 588-5147
PLANNING &
ENFORCEMENT
(503) 588-5038
BOARD OF
COMMISSIONERS
Randall Franke
Gary Heer"
Mary Pearmine
ADMINISTRATIVE
OFFICER
Ken Roudybush
-----T-'-----
'.... Exhibit "8"
Page 17 Df 24
Marion County
OREGON
COMMUNITY DEVELOPMENT
DEPARTMENT
July 30, 1992
steve Goeckritz
planning Director
City of Woodburn
270 Montgomery st.
Woodburn, Oregon 97071
Dear steve:
Thank you for the opportunity to comment on the Capital
Development company annexation, Comprehensive Plan and
Zone Change proposals. Provided annexation of the
subject property preceeds the plan and zone changes the
County will have no direct authority or involvement in
plan and zone change decisions except for review and
comment in accordance with our Urban Growth Boundary
and Policy Agreement.
This is a very significant development proposal which
will have impacts on the road/transportation system
outside of the UGB. I have given a copy of the Traffic
Impact Analysis to our Public Works Department for
their review and comment. You should anticipate addi-
tional comments from them in the future.
The extension of prairie Blvd. outside of the UGB to
connect with Parr Road and any other road extensions
outside of the UGB in the future will require an excep-
tion to the statewide Goals (Goal 3 Agricultural Goal).
The impact of this action will be more fully assessed
at that time.
In regards to the Plan and Zone changes we encourage
the city to wisely use the land that is available for
urbanization. The county is discouraging expansions of
the UGB into areas suitable for farming.
Senator Building . 220 High Street NE
Salem, Oregon 97301-3670
A ,\t\ CJ\ tv\~\ A 1
I
,-
Exhibit B810
Page 18 of 24
Once the City has completed annexation of the subject property
please provide us notice so we can update our maps. Apparently we
do not have a copy of your current Comprehensive Plan and associ-
ated maps we would appreciate receiving a copy. If you have any
questions please give me a call at 588-5038.
A:CDC.L
A IV-\CJA 1M ri. N '\ A 1
-~"
-'
August 13, 1992
Exhibit
Page 19
Steve Goeckritz
City of Woodburn
270 Montgomery Street
Woodburn, OR 97071
Dear Steve:
This department has reviewed the proposal to amend the
planning and zoning for 173.8 acres east of 1-5, south
of West Hayes (Local file Annex/Z.M./C.P.92-02). We
are concerned that the proposal may not be consistent
with Statewide Planning Goals 10 (Housing), Goal 12
(Transportation) and Goal 14 (Urbanization).
We have no concerns with the proposal to annex to the
city since this is not, by itself, a land use decision.
However, the proposal also includes a reconfiguration
of the plan and zone districts in order to create a
"freeway oriented" commercial area, and in order to
alter the area's transportation plan. These elements
will have significant effects on the 1-5 interchange
and Highway 214.
The Land Conservation and Development Commission's
Transportation administrative rule requires that
amendments to local plans and zoning which affect a
transportation facility (e.g., the Woodburn 1-5
Interchange) shall "assure that allowed land uses are
consistent with the identified function, capacity, and
level of service" of the transportation facility
(OAR 660-12-060(1)). This rule describes several ways
that this may be accomplished (see attachment) .
Since the proposal also includes a new transportation
improvement outside the UGB, Sections 065 and 070 of
the rule also apply, and an exception may be required.
The proposed findings do not address these portions of
the administrative rule.
The proposed reconfiguration provides a linear strip of
commercially zoned property along the entire 3,895-foot
length of the western edge of the site facing 1-5. We
are concerned that the southern half of this commercial
strip is not wide enough to be useful for commercial
development. This area would likely remain vacantr or
used for parking only, and would provide no buffer
between the multifamily site and the freeway. It is
likely this half of the site will require future
reconfiguration.
A\\ V\c \-\ 1M I?. V\J \
61
"8"~n
of 24
DEPARTMENT OF
LAND
CONSERVATION
AND
DEVELOPMENT
Barbara Roberts
Governor
1175 Court Street NE
Salem, OR 97310-0590
(503) 373-0050
FAX (503) 362-6705
Exhibit "B'!.-,
Page 20 of
Steve Goeckritz
Page 2
August 13, 1982
The proposed reconfiguration also intends to provide a "buffer"
of single family use between the development and the existing
senior estates project. We are concerned that the 31 acres of
multifamily zoned land is treated mainly as a buffer. As a
result, the current single site is broken into three smaller
pieces, and one of these three sites would be situated on two
separate parcels. We question whether the remaining sites are
large enough and located so as to be desirable for multifamily
development. Available multifamily sites are vital in order to
provide affordable housing for existing and future residents in
Woodburn, including retail employees expected at this location.
We note that the proposal increases the ratio of commercial to
residential at this location -- 20 acres of residential is
sacrificed for streets and for additional commercial land. Given
the upturn in demand for residential development in Woodburn, and
the impacts of the freeway-oriented commercial on the
transportation facilities, the findings should explain why there
should not be a 20-acre reduction in the commercial area rather
than in the single family residential area.
Please don't hesitate to call me at 373-0067 if you have
questions about these concerns.
?!;;6'j2 ,
,:;; Rindy
BR:<pa>
cc: David Foster, Housing Division
Yvonne Addington, EDD
John DeTar, ODOT
DLCD File 003-92
A \\ (\C\-\
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-
Exhibit "8"
Page 21 of 24
Steve Goeckritz
Woodburn Crossing
Page 2
The 1991 traffic impact study (hereafter referred to as the '1991 study') is
information pertinent to the current application because of the substantial
similarities existing between the 1991 development proposal and the 1992
proposal. The similarities can be readily seen by comparing the Phase I,
Phase II descriptions provided on page 6 of the 1991 study and page 2 of the
1992 study. Also, the 1991 study provides analyses of the proposal's affect
on transportation facilities not provided in the 1992 study, concluding that
substantial improvements to 1-5 facilities and Highway 214 will be necessary
to maintain acceptable levels of service. Both studies demonstrate that the
plan amendment 'significantly affects,' as that term is used in OAR-660-12-D60,
1-5 and Highway 214 as they exist today. This occurs by reducing the Level
of Service below the level established as acceptable in the 1991 Oregon
Highway Plan. Both studies contain travel lane diagrams and statements
indicating additional travel lanes, signalization and other facility improvements
will be needed to accommodate the traffic generated.
Both studies identify transportation facility improvements needed to
accommodate the traffic generated by the land uses proposed as Phase 1 and
Phase II, assuming that 'acceptable level of service" is LOS "D." The minimum
acceptable level of service for state highway facilities is established by the
1991 Oregon Highway Plan. LOS "D" is the minimum acceptable level of
service for a District Level of Importance Highway such as Highway 214 within
an urban area, but the plan establishes a higher standard for 1-5 facilities: LOS
"C." Neither study identifies what is necessary, in the near term and through
the remainder of the planning period, to provide LOS "C" for affected 1-5
facilities. Neither study presents what is necessary to show that 1-5 facilities
will operate at an acceptable level of service. It therefore is not possible to
identify what will be necessary in the near term and through the remainder of
the planning period to comply with the provisions of OAR-660-12-Q60.
It is ODOTs opinion that Woodburn will need to incorporate land use actions
stated in OAR-660-12-D60 (1a), (1b), or (1c) as part of this land use decision
in order for the proposed plan amendment to comply with Goal # 12 and OAR
660-12. These actions at least need to show that 1-5 and Highway 214 will be
able to operate at their minimum acceptable levels of service in the near term
and through the remainder of the planning period.
If Woodburn decides to exercise the option stated in OAR 660-12-Q60(1b), it
is ODOTs opinion that the 1985 Woodburn Transportation Plan will need to be
amended as part of this land use decision. The facility improvements
A \11\c.\:-\ c 1
. "'_...._H" ___._......._.. ..~,.......,_.u.,~_ .
F.....ibit "8"
. ,. 22 of "Ortgon
August 12, 1992
Steve Goeckritz, Director
Woodburn Community Development Department
270 Montgomery Street
Woodburn, OR 97071
RE: Woodburn Crossing Plan Amendment and Annexation
Dear Mr. Goeckritz:
Thank you for informing the Oregon Department of Transportation (ODOT) of
the land use action identified above. ODOT has concerns about this
development's significant affects (as well as other proposals' affects) on
Interstate Highway 5 (1-5) facilities and Oregon Highway Route 214 (Hillsboro-
Silverton Highway). It should be noted that the 1993-1998 Highway
Improvment Program adopted by the Oregon Transportation Commission in
May, 1992 will not result in construction of any highway improvement projects
for the Woodburn 1-5 Interchange or Highway 214 in Woodburn.
The application includes an amendment to the Woodburn Comprehensive
Plan. If approved, the application will substantially increase the exposure of
commercial land to 1-5, approximately tripling the existing exposure. This
substantial increase in visibility is, according to the applicant's information,
"particularly important due to the resulting opportunity for "freeway-oriented"
commercial development" -- a type of development which, based upon the
information submitted for this application, would not occur with the existing
freeway exposure and could not occur without this plan amendment.
Attached to this letter are the following documents to be included in the
Woodburn Planning Commission and City Council public hearing record for
this land use decision:
1) a copy of a report, entitled "Traffic Impact Study, Woodburn
Crossing, Woodburn, Oregon," provided to ODOT during 1991;
2) a copy of the 1991 Oregon Highway Plan, the Transportation System
Plan adopted by the Oregon Transportation Commission for the Oregon
State Highway System; and
3) letters dated May 12, 1991 and June 10, 1991 discussing ODOT's
concerns about the 1991 proposal.
A T\ 1\( ~\ \0\12.).)"\ c \.
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,",,---,"'~--~,._-
DEPARTMENT OF
TRANSPORTATION
Highway Division
FILE CODE,
~
~
734-1839 (10-90)
F-"";bit "8"
PQ~e 23 of 24
Steve Goeckritz
Woodburn Crossing
Page 3
described in the 1991 and the 1992 studies certainly need to be incorporated
into the plan, but so will additional facility improvements needed to meet the
LOS C standard for 1-5 facilities--improvement needs that have not been
described. Near term changes described as needed to accommodate traffic
conditions anticipated with Phase I also will need to be provided. As required
in OAR-660-12-040 and the Public Facilities Planning Rule, a transportation
facility financing program to fund near term improvements and the longer term
improvements identified also needs to be part of this land use decision. As
stated earlier, no Woodburn 1-5 Interchange or Woodburn area Highway 214
construction projects have been included in the 1993-1998 Highway
Improvement Program.
This letter and its attachments should be included in the Planning Commission
and City Council hearing records as ODOrs testimony. ODOT should be
considered a party to the hearing and be entitled to any notices of future
hearings, or extensions of hearings. Please inform me in writing of the city's
decision and provide a copy of any findings made to support the decision. If
not already identified as applicable, the provisions of the Oregon Statewide
Planning Goals 11 and 12, and the applicable administrative rules, the Public
Facilities Planning Rule (OAR-660-11) and the Transportation Planning Rule
(OAR-660-12), are applicable to review of this application.
Yours truly,
9/~~
v.lohn G. deTar
Region Planner
attachments
cc: John Grassman, ODOT
Brian Gregor, ODOT
Dick Reynolds, ODOT
Lucinda Moyano, Justice
Bob Rindy, DLCD
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CITY OF
WOODBURN
270 Montgomery Street - Woodburn, Oregon 97071
- 982-5222
June 1, 1992
Cynthia Nelson
Capital Development Company
P.O. Box 3487
Lacey, VVA 98503
Dear Cynthia:
At this time the City of VVoodburn is proceeding with the process of potentially annexing
your property. This action would result in the conversion of your land at some time in the
future from its existing land use designation of Exclusive Farm Use (EFU) by Marion
County to a City designation of RS (Residential Single Family), RM (Multi-Family
Residential) and CG (Commercial General). Enclosed is a map that identifies those
properties the City Council will consider for incorporation into the City.
However, prior to the City carrying out this action your response as a property owner is
required. This will assist the City in making a determination as to whether or not to annex
your property. Please answer the following question, sign, notarize and return in the
enclosed self addressed envelope. The City would appreciate your response to this
question by June 30, 1992.
Do you wished to be annexed to the City?
fx] Yes
r 1 No
, ,
In closing, the Planning Commission will review the annexation proposal and take
testimony at some future date of which you will be notified.
~
roperty Owner(s) Signature
CAPITAL DEVELOPMENT COMPANY
Robert L. Blume, President/CEO
Property Owners Name, Typed/Printed
-- . .- 'T- ....... ,