Ord 2168 - Amend Text 2000 Com P
COUNCIL BILL NO. 1706
ORDINANCE NO. 2168
AN ORDINANCE AMENDING THE TEXT OF THE WOODBURN 2000 COMPREHENSIVE
PLAN TO INCLUDE UPDATED FIGURES, CHARTS, STATISTICS, AND NARRATIVE
RELATED TO POPULATION GROWTH, THE ECONOMY AND LAND USE
INVENTORIES, AND DECLARING AN EMERGENCY.
WHEREAS, an updated Comprehensive Plan is necessary for the betterment
of the community and orderly growth of the city; and
WHEREAS, the Woodburn 2000 Comprehensive Plan was originally adopted
by Ordinance 1679 on August 28. 1979; and
WHEREAS, the Plan has been periodically updated by the city in order to reflect
the growth of the community and comply with state law requirements; and
WHEREAS, city staff has prepared amendments to the text of the Woodburn
2000 Comprehensive Plan incorporating updated figures, charts. statistics and
narrative relating to population growth. the economy and land use inventories; and
WHEREAS, the Woodburn Planning Commission conducted a public hearing on
the proposed text amendments on November 9. 1995 and recommended that the City
Council approve them as presented; and
WHEREAS, the City Council conducted a public hearing on March 11, 1996
and directed that the text of the Woodburn 2000 Comprehensive Plan be amended
as proposed; NOW, THEREFORE,
THE CITY OF WOODBURN ORDAINS AS FOLLOWS:
Section 1. The text of the Woodburn 2000 Comprehensive Plan. which was
originally adopted by Ordinance 1679. is hereby amended to incorporate the proposed
amendments.
Section 2. A copy of the amended Woodburn 2000 Comprehensiye Plan is
attached hereto as Exhibit' A'.
Section 3. A copy of the amended Woodburn 2000 Comprehensive Plan shall
be filed with the City Recorder and the Community Development Department.
Page 1 -
COUNCIL BILL NO. 1706
ORDINANCE NO. 2168
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Section 4. This ordinance being necessary for the immediate preservation of
the public peace, health and safety, an emergency is declared to exist and this
ordinance shall take effect immediately upon passage by the Council and approval by
the Mayor. L /
Approved as to form~ ~ Lf I g c; b
City Attorney Date I
APPROVED:
'~. ~/Y'A~ 7'} J{~J~
( '"
Nancy A. Kirksey; Mayor
Passed by the Council
April 22, 1996
Submitted to the Mayor
April 23, 1996
Approved by the Mayor
April 23, 1996
Filed in the Office of the Recorder
ATTEST: /1~ ~
Mary ie'nnant, City Recorder
City of Woodburn, Oregon
Apr; 1 23, 1996
Page 2 -
COUNCIL BILL NO. 1706
ORDINANCE NO. 2168
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CITY OF WOODBURN
COMPREHENSIVE PLAN
.~... .. or'" ' ,..... ..-,....... ......~.._.. ..,....,
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LAND USE ELEMENT
Prepared by:
The City of Woodburn Planning Department
December 1978
Amended
March 1981
Amended
February 1989
Alnended
'IiIBB
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TABLE OF CONTENTS
Page
Introduction
1
Assumptions
2
Organization of the Plan
3
I. Physical Setting of the City 3
II. Historical Background 4
III. Present Community 8
IV. Existing Land Uses 14
A. Oolnlnsl'O/al 16
& I~u~ml 19
O. Rs.ldentlal 19
D. Public 21
V. Open Spaces, Seenic and llistoric Areas, and 1-4
Natural Resoureu
E./It: LSAel Neeeleel sAd De3irsI:lle for Open Space / Park. 21
F&. Mineral and Aggregate Resources 22
G.&.- Energy Resources 22
H9:- Fish and Wildlife Areas and Habitats 22
I.-€-:- Ecologically and Scientifically Significant 22
Natural Areas
J.-F:- Outstanding Scenic Views and Sites 22
K.-6:- Water Areas, Wetlands, Watersheds, and 23
Groundwater Resources
L.* Wilderness Areas 24
M.+ Historic Areas, Sites, Structures, and Objects 24
N.+ Cultural Areas 25
0.* Potential Approved Oregon Recreation Trails 25
P. +- Scenic Waterways 25
v. Vt.Environmental Quality
A. Air Quality
B. Water Quality
C. Solid Waste
D. Noise
E. Waste Water
F. storln dl'l!!lllJiill1s
26
26
27
27
28
28
30
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w. *I. Growth, Past and Present, and rtlttlre
A. Growth roliC)' During ti'le 1 ::>70'3 Trends
B. Periodic Review and the CIP
C. Theory on Growth Management
D. Economic Element
Page
30
30
39
41
43
VII. Population Projections
A. Population Oharaoterl.tlo
I!I. Population Pro/eof/on.
44
44
45
VIII. Land Needs for the Future
A. Residential
B. Commercial Land
C. Industrial land
D. Downtown Deyelopment
50
50
56
60
60
IX. Goals and Policies 61
A. Residential Land Development Policies 63
B. Commercial Land Development Policies 64
C. Industrial Land Use Policies 65
D. Annexation Policies 66
E. Citizen Inyolyement Policies 66
F. Administration and Enforcement Policies 67
G. Housing Coals and Policies 67
H. Public Services Goals and Policies 68
I. Transportation Goals and Policies 69
J. Growth Goal 72
K. Growth and Urbanization Policies 73
L. Natural and Cultural Resources Goals and Policies 74
M. Energy Conservation Goals and Policies 76
N. Downtown Deyelopment Goals and Policies 77
X. The Land Use Plan 82
A. Industrial Lands 83
B. Commercial Lands 84
C. High Density Residential Lands 86
D. Low Density Residential Lands 86
E. Public Use 87
F. Open Space 87
XI. *It; Implementation or the Plan 87
A. ~~ ~
B. Subdivision and Planned Unit Deyelopment Ordinances 88
C. Growth Management 88
D. Site Plan Control Review 88
E. Sign Ordinance 89
r. Aeeess Control 89
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F. Transportation Plan
G. CapitallmproYement Plans
H. Downtown Renewal
I. Citizen Involyement
J. Housing Codes
K. Flood Hazard Zone
L. Historical Site Zone
Page
BB
89
90
90
91
91
91
XII. *Ht.-Review, Revision, and Update
92
XIII. *P.f.-Appendix
A. Soils Data for the Woodburn Area
B. Supplementary of the Urban Growth Boundary
C. Abstracts
D. LCDC Goal 5 Worksheets
E. Sensitiye Groundwater Map
F. Map of Downtown Hleforloal Dlstrlol
G. Map showing Urban Growth 8Dundary
93
94
108
110
116
117
, '8
"9
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LIST OF TABLES
No. Title Page
1. V.'oodburFl rercent of ropulation b) Age; 9
MarioFl CouFlt) rercont of ropulatioFl by Age
2. Land Use IFlv6F1tory 13
3. [stiffiated108e aFle! rFOjeetee! 1001 2006 21
ropulations of the City of 'lJooe!burFl, Oregon
4. Buile!iFlg Aetivity fer Calendar Y-cars 1980 1 :l87 22
5. IlousiFlg tYI'e 24
6. City wide Multi faffiily IlousiFlg IFI'..eFltory 1 :l86 25
7. rrojeetedllousiFlg Needs 'Nithin 'v\'oodburFl's UOD 27
8. IlousiFlg Types by Allo.rod ZOFles 28
:l. COffiffiereial IFldustrial LaFld Uses DesigFlated in rlaFl 30
10. COffiffierciallFle!ustrial Theoretical La FIe! Needs to Year 2008 31
1. 111113 FalJ'fIly 1_lne by Falnlly .,_ II
2. Woodburn Peroent of Population by Age 10
3. Olty-Wlde Multl-Falnlly Hou.11tI/ In_ntory 13
4. Land U_ In_ntory 11111S SUI
5. New lfIulldlltl/ Aotlvlty for Calendar V_rs 1 !lII!IO-1 II"'" 40
S. Population .nulneratlon 1111f10, 1 SIlO, 111"'" "IS
7. Houslltl/ Type 52
B. Potential Houslltl/ De_/oplnent 54
II. PotentIal Houslltl/ Needs 54
, O. Houslltl/ Types Allowed by Zone 5:s
1 1. Oolnlne_/al - IndustrIal Land U_s DesIgnated In PIa" 58
, R. Oolnln-Indus Theoretl_1 Land Needs to the V_r ao 14 !!IS
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LIST OF FIGURES
No.
Title
Page
1. Population Actual and Projected, 1 ~60 2000 2::3
2. City OrO'(ilh Actual ana Projected, 1072 1078 61
3. 1071 1078 Pereent Change in POl'ulalion, V'Jeodbuffl and 62
Cities Mere than 5000 in Marion, Pell<, and Yamhill Counties
4. "'-Beane)' Rates, 1072 107~, Single family Ilemes and Apartments 6::3
5. Cempar-ative ere'."'" Rates, 1 ~80 2000 65
1. Population and Hou.lng Units 1111114 11
R. City Growth 34
3. Peroent Change In Population 35
4. Va_noy Rate. 38
5. Units Built 1117R-11178 38
8. CompeIWtI_ Growth Rate. :IS
7. Population Pro/BOt/on. to the Y_,. st023 411
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INTRODUCTION
Woodburn i908 20'4 - A Comprehensive Plan
This Plan was developed during the period from December 1976 through March 1981.
It was revised through the Periodic Review process in 1988-1989 and wa.
anrended _lIaln In , listS. It is intended to guide the development and
redevelopment of Woodburn for the next 20 years. Hopefully, through following the
Plan the City will maintain and enhance the present quality of life enjoyed by the 12,000
approx/nrale/y UJ,OOOpeople who call Woodburn their home. The Plan is also
intended to comply with the requirements of state law, the Land Conservation and
Development Commission Goals and Guidelines. The Plan is also intended as an
informational and data source to persons unfamiliar with Woodburn or who wish to find
out more about the City, and to act as an educational document for City Council
members, Planning Commission members, staff and other interested parties.
The Plan was developed through a series of public workshops. The first workshops
were held in December of 1976 where past patterns of City growth were examined and
various alternatives for future growth were also considered. Out of these three public
workshops, the 1977 "Sketch Plan" was developed. This was to be the general
guideline for the consultants which would be working on various aspects of the City's
Plan. Over the next 18 months several consultants were hired to develop the more
technical aspects of the Comprehensive Plan. Each of the consultants held workshops
with the Planning Commission and general public to obtain input during the
development of the elements and also after the elements were finished. After the
various elements of the Plan were completed, the Planning Commission reexamined
the viability of the Sketch Plan. Several changes were deemed necessary due to the
new data which had been gathered by the consultants during the planning period. After
three public workshops by the City Council. However, additional time was taken to
obtain approval from various Local, Regional, and State agencies prior to
acknowledgment of compliance from the Land Conservation and Development
Commission in March 1981.
1
Assumptions
Any plan is based on assumptions about the future. Assumptions for Woodburn 2ee8
RO'4 are as follows:
1. The City will increase in population to approximately 18,000 28,000 by the
year-zee8 20'4. Demography of the city will not change drastically but will
consist of a cross section of Oregonians.
2. The automobile will continue to be a major source of transit. However,
increasing costs of transportation will necessitate, to some degree, other
means of transportation such as a mass transit, bicycle and pedestrian
paths.
3. There will be an increasing density in housing as compared to past
development patterns. New housing types will be developed to cope with
riSing costs.
4. Tncre .';11 be fie l'8elieal (;tiaflges ifl tne .,ay eeflteffll'Oraf) eities are
elevelol'il'lg elue to uflforeseefl soeial or teci'lfIologiealbreaktnreugns. Cities
..\ill esssfltially e6l'ltiflue to e1s.elol' ifl the same basic types of laflel uses aflel
cireulaliofll'atterf!8 as they ha.e ifl the l'a3140 te 50 years. Wo.rulbllrn
will oontlnlle to .how _ tran.ltlon fronr an allrlollltllra/-
based _nonry to a nranllfaotllrlng-based eoononry.
5. rNbodburnl. a/_ In tran.,tlon fronr a nro."y rllral .rea to
a _rvi_ _nter for .nraller .lIrrollndlng oonrnrllnlt/e..
tI. Woodbllrn will .,_ oontlnlle to be . freeway oriented
_rvi_ _nler.
7. 5. Sources of municipal finance and structure of government will remain
essentially the same during the period of the plan. Ho__r,
privatization of _me 1I0_rnnrental _rvi_. nray take
pl__.
B. &. The role of City services in overseeing the location of new developments will
be at least as strong as it is in the present and possible stronger.
S. Woodburn will oontlnlle to .howa tran.ltlon of le._nlng the
bllrden on the taxpayer by plao/ng the 00" of de_loping
Infra.trllOtllre onto the de_/oper.
, O. Woodbllrn'. de_/opnrent will not be hindered by oonrlng
Into oontaot with other dl"rlo18 and IlIrl8dlot/on..
, ,. The ,ndll.tr'.' be_ will oontlnlle to llrowand d'_r.'fy.
2
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ORGANIZATION OF THE PLAN
Due to the complexity of an urban development, and the desire to comprehensively
plan all the factors of urban development, WOODBURN 2ee8 20'4 may appear to
some to be a long and complicated plan. Not all persons will desire or need to
assimilate all of the information which is contained in this plan. Due to this fact it is
divided into several volumes based on the contents of those volumes.
Volume 1 contains the Land Use element which is a general guide to land uses and
land use policies in the City, implementation strategies, and the criteria for revision and
renewal of the Plan. Volume 1 also contains short abstracts of the other elements in the
Comprehensive Plan so that a general idea is given as to what items are covered in the
other elements. It also e6f1tail'ls all the relay'aAt mal's vv't'iieh hale beefll'reelueeel eluring
tl'le I'lanniflg peri eel.
Volume 2 includes the physical facility plans. It contains plans for transportation, sewer,
water and storm drainage. These are the basic services which cities provide to
accommodate developments. Persons interested in developing in the City, especially
those interested in selecting locations for new developments, will be most interested
in Volume 2.
Volume 3 contains social services plans. It covers housing, economy, recreation and
school plans. These are the services which the City provides or on which the City has
a significant impact. Persons interested in the economic or social makeup of the City
or who are doing various types of housing or market impact analysis will be interested
in the social services plans, as well as citizens in general who would like to see how
the recreation and school plans coincide.
It is hoped that this Plan will be available and understandable by all. It is a plan which
was developed, in a large part, by citizens in Woodburn. An attempt has been made
to reduce the technical elements to their most elemental forms while not losing the
essential accuracy of the various technical portions of the Plan. The City hopes that by
studying Woodburn zeea 20'4, a clear picture of the City's future may be developed.
I. PHYSICAL SETTING OF THE CITY
Woodburn is a town of approximately 12,000 '8,000 persons located midway
between Portland and Salem in Oregon's Willamette Valley. Woodbllrn I. '7
nrll.. north of "'.nr and I. 30 nrll.. _11th of Portland. Its location
is central with respect to transportation corridors running north and south in the Mid
Willamette Valley. Interstate 5, the major north-south freeway through Oregon, runs
through Woodburn's City limits on the west side of the City. Highway 99E, a secondary
major north-south transportation route, runs through the east end of Woodburn. State
Highway 214, a primary state road, runs east and west bisecting the town. In addition,
there are two railroad tracks that run either through, or in close proximity to it; Southern
3
Pacific Railroad which runs through the center of town and around which Woodburn
was originally built, and the Burlington Northern Railroad which runs north and south
just west of the present City limits. Due to the location of these major transportation
routes, Woodburn has extremely good location with respect to commerce.
The physical setting of the City is on an extremely flat area of the Willamette Valley.
The highest point in Woodburn is approximately 187 feet above sea level, located in
the Nazarefle rafk Distriet _81 Woodbllrn. The lowest point in the present City
limits is approximately 148 feet above sea level, located on the point where Mill Creek
drainage channel leaves the City limits. While this gives a relief in the City of 40 feet,
most of the area is still extremely flat; averaging about 177 to 182 feet above sea level.
This flat plain is divided by two drainage systems; Mill Creek which runs through the
center of town, and Senecal Creek which runs through the western city limits. Other
than the two drainage channels there are no physical formations of any significance in
Woodburn.
The climate of Woodburn is typified by mild, wet winters and warm, dry summers. The
daily maximum and minimum mean temperature is 45 degrees' F and 32 degrees' F in
January and 82 degrees' F and 51 degrees' F in July. Precipitation varies from an
average of 6.9 inches January to .03 inches in July. Another indication of the marked
difference in precipitation rates between seasons is the number of days with a cloud
cover. January averages 24 cloudy and 4 partly cloudy days as compared to 7 cloudy
days and 9 partly cloudy days for the month of July. Winds are generally from the south
for 10 months of the year except for July and August when northerly winds are the rule.
Wind velocities range between 6.2 and 8.7 miles per hour.
The soils which have developed in this climate are of two associations, Amity silt loam
and Woodburn silt loam. Both of these formations are found throughout the City in all
areas except drainage channels. These soils are capability unit Class 11 established
by the Soil Conservation Service. The drainage channels contain several different
types of associations, most commonly Bashaw clay, Dayton silt loam and Concord silt
loam. These soils are extremely wet and boggy and are generally Class III and Class
IV soils (See Appendix A).
Because of the flatness of the terrain around Woodburn and also because of the
basically stable physical environment there are very few limiting factors relating to
urban development. The only two of any significance are floodplain areas which occur
around the Mill Creek drainage area and unstable soils. Fortunately, for the most part
these unstable soils occur in the floodplain areas. They are mostly of the clay type soils
which occur in the low drainage areas and insufficient to provide foundations for normal
structures.
II. HISTORICAL BACKGROUND
Prior to the arrival of man, the site upon which Woodburn is located would have
appeared quite different from today.
4
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Several areas in the immediate vicinity of Woodburn, most notably the Senior Estates
areas, would have been swampy, boggy lands typified by water tolerant species and
created a bountiful habitat for water foul and other species associated with marshes.
The main break to this landscape would have been the river canyon areas of Senecal
Creek and Mill Creek. This area was generally an active floodplain and was seasonally
flooded. The channels at that time were probably very ill-defined, very similar to
Senecal Creek today. Vegetation would have been dense, typically there was a thick,
shrubby growth in the floodplain areas dominated by water tolerant deciduous trees
and an occasional fir tree. However, the composition of vegetation quickly changes as
soon as the rise in elevation would allow drainage of the soggy soil. On the slopes of
the stream gullies and extending out into the flat areas, one would have found thick
growth of firs and oaks, occasionally brok~n by large grassy plains with scattered oak
trees. This change is evident today in the undeveloped areas of Senecal Creek
drainage which flows through west Woodburn.
After arrival of Indians in the area the open grasslands would have increased in
expanse. It is commonly believed that the Indians set annual fires to increase the
supply of foods which they gathered from the grassland habitat.
When Europeans arrived in the Willamette Valley in 1805 to 1830, they encountered
numerous small bands of native Americans which collectively became known as the
Calapooians. This was the tribe of Indians which inhabited the French Prairie region.
There are no known Indian villages or campsites along the Pudding River drainage in
the Woodburn area. However, as this area is one of the first settled by Europeans in
Oregon, the early contact with Euro-Americans may have driven the Indians to other
locations. It would be difficult to imagine Indians not establishing campsites in or near
the areas around Woodburn as it would have provided a great deal of habitat for
wildlife which was their staple. Treaties signed in 1854 and 1855 officially terminated
the native American occupation of the Willamette Valley. The surviving Calapooians
were ordered into the Grand Ronde Reservation west of the Coast Mountains.
The earliest settlers in the Willamette Valley were mostly confined to the region known
as French Prairie, a portion of the northern valley comprising 200 square miles on the
east side of the Willamette River. Champoeg became the seat for Oregon's provisional
government in 1843. The area soon became crowded and diffused growth up the
Willamette River. Woodburn, in the southern reaches of the French Prairie, was one
of the recipients of early settlers from the northern valley and the fertile adjacent soils
allowed it to become known as the trade center of the region. Under the influence of
industrial development in the form of steamboat and later the railroads, Woodburn
realized growth and prosperity that was not true of many of the earliest settlements in
the Valley which became bypassed by these new developments in technology. The
founding of Woodburn is said to have been due to the efforts of Jesse Settlemier who
purchased the portion of land where the town is now presently located. The land was
purchased during the foreclosure sale which had originally been part of the Jean
Dubois homestead in the 1840's. Settlemier apparently saw promise for Woodburn.
After founding a nursery in 1863 he focused his energy and resources to attract people
5
in commerce to the area. At this time the existing social and promising economic center
of the east French Prairie was Belle Passe, located some 2 1/2 miles from Woodburn.
Woodburn eventually absorbed the attention previously paid to Belle Passe, and it was
thought that Woodburn was coming into the position to capitalize on trade and shipping
activities because of its proximity to fast growing Portland and Salem. This in
conjunction with its agricultural and commercial potential gave it a key position for
subsequent growth and development.
Although Jesse Settlemier was instrumental in designing the physical townsite, many
claim its real founder was Ben Holladay. If Holladay did not actually found the townsite
he at least gave it a major stimulus for growth through his building of the railroad. In
1871 his Oregon and California Railroad established a line by way of Woodburn and
some ten years later a narrow gauge railroad also made its appearance in Woodburn.
1871 also saw the first platting of the townsite of Woodburn with the eastern boundary
the Oregon and California Railroad established by Ben Holladay.
Jesse Settlemier's efforts to encourage growth continued during this period. A strong
agricultural base, railroad and geographic centrality were its strongest features. In
addition, Settlemier was at this time successful in subsidizing the railroad to construct
a flag station at Woodburn, giving the town major status. Local sentiment has it that by
1880 Woodburn was on the way to becoming the most prominent city in the Willamette
Valley (according to the Woodburn Independent). By 1889 Woodburn was incorporated
as a City with a home rule charter. Its first mayor was Jesse Settlemier. A school had
already been established in 1885 and in its first year was attended by 65 students.
Also, in 1888 the Woodburn Independent, the town newspaper, was established.
During the 1890's, Woodburn was realizing some of the commercial and industrial
growth which it had boasted it could achieve. A flour mill, planning mills, lumber yards
and a marble works were developed.
During the 1890's and the early 1900's Woodburn hoped to attract other industries and
commercial enterprises. Woodburn advertised that its desirable features were less
expensive land and fewer labor problems than other areas. It was noted, for example,
that Woodburn did not suffer from Portland's rise in land prices as well as its racial
clashes between laborers. By 1900 Woodburn had 46 businesses, including 3 hotels,
a telephone system, a cannery, a grain works, 10 nurseries, 3 lumber yards and other
assorted enterprises such as banks and retail outlets. It also possessed several
churches and distinctive social groups.
In the early 1900's Woodburn was introduced to the electric railroad or interurbans, as
they were called. This particular line was known as the Oregon Electric. The main line
originally bypassed the City by some two miles to the west. Its owner at that time
favored west Woodburn for their terminus. By 1910, however, a spur was connected
to Woodburn. Oddly enough, a town served by two railroads and having sufficient
economy to sustain population in commerce was brought partially to its knees by
another form of mechanized technology; the automobile. While the town continued to
6
grow and attract some industry of a specific nature, once highway traffic developed it
did so at a much slower rate. Woodburn's growth began to slow as it gave way to a
changing economy.
Between 1910 and 1940 Woodburn grew in its population by only some 40 persons.
Industry, however, continued to expand in the form of a loganberry juice factory and a
cannery. In 1925 came the construction of the Woodburn training school for boys, now
MacLaren School. In 1929 the Portland Gas and Coke Company installed service
facilities. In subsequent years, Bonneville Power provided electricity to both residents
and industry.
In 1944 the Birds Eye Division of General Foods built a large cannery facility in
Woodburn, attracted by the agricultural productivity of the area. Woodburn promoters
at this time maintained that the City still had all the machinery for economic success.
It was said by local developers to be a sleeping giant.
While the automobile had retarded its growth as a regional shipping center, the same
technology brought suburbia ever closer to the City so that a different type of growth
began to occur in Woodburn.
Teelay it I'oss(;sses fflajor retirefflenl center, Senior [states, anel is expeetiflg fflore
urban growln. Its location, 17 miles I'I6rlh of Saleffl anel 30 ffliles south of rortland,
fflakes it ..;tl9ifl easy commuting elistaflce from fflajor cities. The flighl frOffl the eentral
cit) affected V..,toeelbuFR'g gro'y"IlR eluriFlg tl;o 1 ~6013. Also during tRia time 'tv'o6dbufFl
began uflelergoing some of the mest unusual defflegfal'hic changes ever to occur to a
single city ifl Oregon. Dllrlng tha '1180'. Woodbllrn IInder_nt _nra
Interesting denrographlo ohanga.. In the decade from 1960 to 1970 there
were three separate migrations into Woodburn. The first was the immigration of retired
people into the Woodburn area mostly through the Senior Estates development. This
development, which was conceived in the 1950's and first platted in 1960 continued its
development until 1980 when the last lots in Senior Estates were platted. This brought
in approximately 2,500 retired persons into the Woodburn area. The same period also
saw immigration of Mexican-Americans into Woodburn, initially attracted by the
agricultural labor in the area and then settling down to become residents, and the Old
Believer Russian migration to Woodburn. Woodburn's growth through the 1970's
exceeded that of the State, the Willamette Valley, and other selected locations in the
immediate area. Historically, Woodburn has been able to support its population with
a full range of City services and has maintained its identity as a community in the area.
It is Woodburn's desire to remain as redistribution center for outlying areas of the
Valley. Public polls taken in Woodburn have confirmed this goal. Expansion of the City
in an orderly and efficient manner will aid in giving the population the commerce and
industry it has always historically desired.
7
III. PRESENT COMMUNITY
The present population of the City of Woodburn is the result of radical changes in the
last twenty-five years. Table 2 pg.1 0, shows the population mix of Woodburn in 1970
and 1~60 fronr 'S70 -'S94and compares this to Marion County's population for
the same years. While the City, during this time, increased in population by 49%
approxlnrately 'R896, the population make up of the City also changed
drastically. This was due primarily to the various attractions Woodburn has had on
various age groups. From 1960 to 1970 population growth was primarily based on
Senior Estates and the Woodburn Industrial Park creating jobs. While other factors
were also at work, it appears that in the !=last 20 years VVeeelburn has gef1e from
'1180-'980 Woodbllrn _ntfrom a relatively normal mix of population to one
heavily dominated by seniors. Wnile Woodburfl is still hea'.ily deffliflated by sel'liers,
there There appears to be more migration in the age groups which one could term
young families, that is person's of 25 to 35 years of age with families of young children.
Income characteristics of the City of Woodburn have also begun to show change. In
1970 Woodburn had the lowest per capita household income of the entire state. Since
1970 surveys of the income characteristics of the City of Woodburn have shown that
there are still a large number of persons with incomes that are low or moderate,
however, there appears to be more persons in the middle income bracket, and the
City's median income is climbing. Table' PII. S, .hows the '9S13 fanrlly
l_nr8 by fanrlly./ze.
The mix of racial and ethnic groups in Woodburn is also quite diverse when compared
to Oregon as a whole. Besides the large community of retired persons there is a
significant percentage of the population (approximately tT% 2B96 in t98e , sea) that
are of a Mexican-American ethnic background. This group was drawn here mostly
during the 60's and 70's by the agriculturally related industries and have settled in the
area. In addition, there is a large portion of the 4,500 "Olel Believers" Russian
RII_/an "Old Selle_r.'group living in the City limits of Woodburn. 'Nhile il is
e1iffieull to eletermil'le the exact affleufll, based 61'1 surveys by City staff anel the afflount
of chilelren in the sehoel elistriet, al'I'fOXimately 1,000 to 1,500 li'v'e "Jithil'l the City limits.
Woodburn forms a central area for the Russian settlement in the Mid-Willamette Valley.
This group also arrived in the 1960's and 70's, attracted by opportunities in the United
States and the rural atmosphere of the Willamette Valley. These groups illustrate the
extremely diverse cultural climate of the City.
8
TABLE ,
, SS3 Fanrlly I_nre by Fanrl/y Size
Fanr//y Size , 2 3 4 5 8 7 8+ Total
I_nr.
Unknown B '3 3 3 0 0 0 , 2S
Le_ than 11'2, '5' 54 28 '8 '7 5 , 3 , '27
11'2, '5' to 11'8,000 23 '7 8 '0 4 2 2 2 88
11'8,00' to II' S,450 8 '3 2 2 3 , 0 , 2B
II'S,45' to 11..,200 S 8 4 2 2 2 , 0 28
11..,20 , to 1125,000 4 '0 2 2 4 3 0 2 27
1125,00' to 1127,750 5 " 4 0 , , 0 , 23
1127,75' to 1130,000 3 '3 0 5 8 0 0 0 27
1130,00' to 1132,200 0 S , 3 , 0 0 0 '4
1132,20 , to 1134,400 , 8 , , , 0 0 0 '0
1134,40' to 1138,850 , 8 0 2 , 0 , 0 "
1138,85' or nrore 4 27 S '4 5 2 2 3 88
Total Reporting
I_nre , '0 '48 4S 58 33 '2 S '0 42S
Total Reporting
Fanrlly Size , 'S UIf !fIR B' 33 '2 S "458
Note.: Unknown lnoonre 11tO/llde. "nrlll_ In whloh "nr//y size wa.
deternrlned, bllt a qlRllllfled respondent w.. not willing to re.pond
to the I_nre qlle.,/on.
801lrce: PSU--Oenter for popll/atlon Re...roh and Oen.II., June
, SIiI4
9
Table 2
Woodburn Percent of Population by Age
Age 1970 1980 'SIlO 'SS4
0-5 8.0% 10% B.t196 9.7%
6-17 18.2% 16% 'B.5% , S.2%
18-24 7.5% 10% 9.3% , 0.2%
24-44 14.5% 20% 23% 23.4%
45-64 19.0% 15% '3.8% '4.4%
65 and over 32.8% 29% 27% 23.2%
Marion County Percent of Population by Age
Age 1970 1980 '9110 'SS4
0-5 9.5% 7.8% 7.4% B.5%
6-17 24.6% 18.8% 'S% 'S%
18-24 10.8% 9.7% S.5% S.5%
25-44 22.2% 32.1% 3'.7% 30.5%
45-64 20.6% 16.9% 'B% 'B.7%
65 and over 12.3% 14.7% '4.4% '3.9%
Source: 1970, aml-1980, ,sso U.S. Census and PBU--Center for
Poplllatlon Re_roh and CenslIs, Jllne , SS4.
10
Figure 1
CITY OF WOODBURN
ulallon and Hou.ln Un"" l1li4
Tot., Population
Hou88ho/d Popul.tlon
Group Qulllrl_ Popul.tlon
All Hou.'nll Un'"
UnlnhabUabl.
All InlNlbltabl. UnI,.
V.-oanf or -...o1Nl1
Oooup/_
Population
Pereona per ho....-hold
Slngl. F.nJlly~ .".-bullt
Vacant or Bee80IXlI
Oooup/_
Poput_on
~ per hoU8ehold
...rInrent 0,. Duplex Unit
Vacenf g,. "J!IIaotNitl
Oooup/~
PopuI.llon
PeIWO". per ho....hoId
lIIIalJldl!lOtured or Mobil. Home
Vaoanf or ..fIf~nal
Oooup/_
_put_on
~_ho_d
0fIN>r U_
V~ or IiIe8eona'
Oooupled
_put_on
Per8o". per ho.....lJoId
All Oooup/_ U_
o.vn.,. ~_
~
Rente,. Oooupled
PeI"8o...
UnIuJown Oooupled
PeI"8o...
_"II'. FamIly, ."..-bullf
awn.,. ~_
~
R_~_
_........
U_wn Oooupl_
-,.......
Ape"""''''' Dr Duplex unit
o.vn.,. 000_'_
-........
R_ Oooup/_
Peretnra
Unknown Oooupled
PfN"~
Manuf_ _ Moblle_
awn.,. Ocoupi_
Porwo...
R.",.,. ~_
~
U_wn Oooup/_
~,..o,..
0fIN>r Unite
0IMne,. OoouplfHI
~
R.",.,.. OocuplfHI
-"'0...
Unknown Oooupled
Porwo...
-,
'7'
-
'_.7
..113
350fI
, '7
330'
II",'",
..78
, SMS3
.7
,-
"""'
3.311
117'
.,
II!SO
, 3Il4
..04
'"
II
'3
..
.. '!S
-
3311.
B3f11I
,"_
!S7' II
JZ3R
B311
330'
.78.
7147
4!SO
'711'"
, !SII
!!I03
,-
,.
-
"73
38_
"',
.."
II!SO
!SII ,
"70
-
113
30
"'
'3
7
'0
'"
,'"
.
'"
, 5,.3SI
'4,..7
30IS
5.48 ,
'0
3.'%
1111.11%
3.3%
_.7%
...%
117.8%
3.'%
_.11%
::I' .B%
IIB..%
Soul 0.: Populallon EnultHHwtlon, PSU--c.",.,. ~r Populallon R_l"Oh and Cena.... June
,_.
11
~
Table 6
Oil) Wide Multi ramily I lousing In\'entory
Jafluary 1988
1. Barclay Sql:Jare 70 20. Royal Crest 12
2. french rrairie (Care CeAler) 40 21. 2~0 Gatch 8
3. C.ergreen C!tates 84 22. '/illa 'y'erasFlte 20
4. raflor 360 (O'.'er 45 Adults) ~O 23. Garelen View MaAor 4
5. raiFVIBY 'Jille AJ't. 20 24. Bryan & Mcl'Ciflley 6
(Over S5 Adults) 25. 8~5 Lincelfl 6
6. Cascaele rark ~2 26. r8rky'iei~ ',,'illage 28
(Seffli Care Center) 27. rark Al't.. 26
7. Caseade rar(( rnase 2 63 28. JaMie! & Park A.we. 45
(Semi Care Center) 2~. Tierra LYfln & Alexsnelra 7
8. Coleflial Garelen! 40 30. Tierra Lynn & Mt. 4
(Life Care Al't..) Ileeel Al't..
~. Dri8~.eeeJ Court 1C 31. Tierra Lynn & James 17
10. farmelale AI't.. 48 32. Lincelfl rark Village 27
11. IIarri30n A('I.. (Ul'leler Cefl!.) 32 33. ,
IFlvv"6od Manor 18
12. IIaye3villa AI'I.. 15 34. \,'ietofiaFl 24
13. fifth Stroel ApI.. (C rlex) C 35. V/'Oodbuffl Apt.. 8
14. 74~ froFlt Street (4 rlex) 4 36. Woodburn Mal. Al't.. 20
15. Grel'lt Slreel (5 rlex) 5 37. 'v\(oeeJrieJge 12
16. Breael....lly & "D" Sl. (4 rlex) 4 38. 723 2F1el St. (4 rlex) 4
17. DUFFlvy'OoeJ Manor 28 n 1070 3rd St. (3 rlex) 3
18. Ilerilage Arms 24 40. Marion Maner 4
10. Galen & Cle.elanel ~ 41. Tierra L)nn & Mar Cel Dr. 12
Note: 1088 City In1refltery excludes to'wnheuse anel conde elevelOl'fflent
12
-.----,,--."-.-,.,,---- ~
TABLE 3
City Wide Mllltl-Fanrlly HOII.'ng In_ntory
3 Unl18 Or More
JanlHllry , SII4
UNITS ADDRESS
70 _5 w. Hayes
I. ,ROS-,.,. ____ Hwy
53 138B E. Clev.I8nd
4 _7_way
B 1045 _KInley
3 B I., BRO, B30 Fourth st.
RS BO I Young st.
9. 950 N. C__. Dr.
.3 950 N. C__. Dr.
47 '.80 ---g Hwy
_ 770 __,...." Hwy
., ./03 Country Club Rd.
_ '.'9. '.33 Lln_1II
. I I.. ,."", st.
4 I IRS, I 130, I 1311, 1134 N. Th_
31 .01 1Ev..."....n Rd.
4. 703 __,..." Rd.
S 74. Fronl st.
15 _, Youngst.
9 10. a_h
. _0_
5 I.. a,..",
15 1341 Hayes
25 ._ Young
IS 'OD3, toOlS, f007 Park Ave.
45 lRO.-I_,I2/5.I"3~_
B _5 Lln_1II
_ 10301'_ Ave.
I. 13#10 __Ie
. .07 N. ,.,,.., st.
5 I 1274 N. ,."",
34 ,.74 N. ,."",
12 R03 N. 1'_1110 Hwy.
80 950 lEve,."....n
41 "'.-".5"..5.,..71'_
_ 14_ P_k
.5 './5""3~_
34 17401'_
I I 702-7_ Young st.
10 ., I Young st.
4 7113 N. .8oond
192 IBOI N. Fronl
4 195 N. Th_ st.
7 1340 Alaxendra
"" ., 765, ., 78411, ., 776, ., 7I!ItS 1fIIt. Hood
19 _ 1375 T/orra Lynn
32 15BO __,." Hwy.
24 1!S110, '5SB, IISSSl, 1578, 1574,
, 570 JIIIIn" ..
100 a_
"_ Hwy 99E
3B7 W. Clev.I8nd
770 __lie
I.. a,..", st.
5B5 N. Fronl st.
575 N. F'ronl st.
130 a,..", st.
.50 Young st.
1180,...,884,... Ha dlJ..,,.
171 Osw.1d
NO. NAME
I
.
3
4
6
II
7
S
9
10
II
12
13
14
15
IB
17
IS
19
RO
.,
-
.3
..
INS
-
.7
RS
-
3D
31
3.
33
34
36
36
37
3.
38
40
41
4.
43
-
45
411
47
4B
49
50
51
56
53
54
55
5B
57
-
58
_'ay lIqu_
Srl__ Court
Srltew_ ApI..
_way. D st. (4-pleKJ
Bryen . _KInley
C_. ___
Burn_ _....
C__. 1'_ (C- ctr)
. Ph_. 2 (SeIn1.c:_)
Colon,., a__ (LHe C_)
1Ev.,."....n __
F._ay VlIIe ApI.. (Over 51S}
F_dale ApI.
F7fth ." a.' ApI. (IS.p1eKJ
Fred Co ~_.v
I"renoh PraIrie (C- ctr)
I"renoh PraIrie _lefed LIvIng
F'ronl .,. ..1 (5-pleKJ
0_... VIew Man....
a_h. Clev.I8nd
0__
a""" ""..., (5.p1eKJ
Hayesvll,. ApI.
Herltag. AI'ma
111_ Men....
~_ .1'_ Av..
Llnoo/n _5
Lln_1n ~ VlIIeg.
Lyn._ ApI.
_Ion Men....
Nu."o AIn."eoer Ph... I
Nu."o Anu1Jneoer PIt... "
1'_1110 ApI.
Pen.... 380 (Over 45 Adulta)
1'_ Ave / IIprlnghav...
Park Apt..
P_ DelMan....
P_lew VlIIeg_
R__IApl.
Roya/ Crest
....ond st. 723 (4.p1eKJ
_.h_g_
Third st. ApI..
T/orra Lynn . Alaxendra
Tierra Lynn . MI. _ Apt..
T/.,.,.. Lynn Terr_os
Twin D_
VIetor"""
VlIIta V_....,.
_burn MIl. ApI..
_burn ApI..
_rldg.
No __ Ava/_1e
No _. Ava/_Ie
No __ Ava/_Ie
No __ Av.'__
No __ Ava/_Ie
No __ Ava/_1e
No __ Av.,_1e
7VTAL
RO
I.
II
I.
B
7
4
7
II
4
4
, ,3SO
13
- ._-~. ._._~--'---~-
EXISTING LAND USES
The City of Woodburn as it presently exists has gone through several developmental
stages, each reflecting the age at which growth was taking place. Growth originally
occurred around the townsite of Woodburn which comprised a four block area from
Arthur to Lincoln Streets, and from Front to First Streets. This townsite was laid out with
the typical 90 degree angles, 50 feet frontages, and 200 foot blocks. The rest of the
downtown was platted on a similar format with all the streets running parallel or
perpendicular to the railroad tracks. This pattern continued from Settlemier Street east
to Tooze Street. This area generally comprised the developed area of Woodburn until
the late 1940's.
Between the 40's and the 60's some development occurred between the downtown
area and Highway 99E. There were only scattered commercial developments along
Highway 99E as late as 1964 when the City's first Land Use Map was drawn. In
between the downtown and the highway uses there were several residential areas
developing, most notably the Johnson Addition. From 1964 on, Woodburn began to
develop in the sprawling pattern so common of the suburbs of the 50's and 60's. Senior
Estates, for example, was developed at some distance from the centers of
development. While some residential development, most notably the Smith Addition,
was contiguous to the downtown areas, most subdivision occurred in scattered sites
within the city limits or with special annexations to accommodate them.
In 1967 the City expanded across the freeway and annexed the west Woodburn area,
which at that time was largely vacant, for the express purpose of providing sewer and
water to a subdivision which had been platted. Lack of a strong annexation policy in the
City allowed continuing sprawling developments through the 70's until the 1973 to 1974
period when the City and County began working on an urban growth boundary
agreement. Since that time greater care has been given to annexations and City
policies have encouraged the in filling of vacant lands.
Tne City as it is I'r-esefltly situated ooflsists of alfflesl 2,250 aeres of .fflien 1,686 er tyye
thirels are presently ifl use. Approxifflatel) 256 acres of the .acafll Janels are I'lot
a'~ailable for ele.-elopment. IloNever, 505 acres inlne l'f6sel'lt city limi13 are vacaflt and
a.ailable for urban dc..elel'mel'lts. Tne Cit~ ifl gefleral oofllain3 al'prexifflatel) 211
acres ~re3eRtly in use fer cefl'lffiereial laRd. URder develel'ed laRds '{JitMifl the City
consists of a~l'roxifflately 15 acr-es. It I'resel'llly Mas 133 acres 'v'acaRt aFld a'v'ailable fer
commercial de.elopment, tne majority beiflg at ti'1e 1 5 Il'lterenaflge.
The CIIy a. of JanlUllry 'IIIIB oon.l.,. of approxlnrately 3285
aore. of whloh 7'96 or 234B aore. are ollrrently de_loped.
Cllrrently there I. approxlnrately 207 aore. whloh are
IInderde_/oped. There I. an additional 7/211 aore. whloh are
linde_loped. Tlrere I. a total of 823 aore. olll8lde the oily IInrlt.
and within the Urban Growth BOllndary (UGS). Of thl. 823 aore.
32S are de_loped, and the renralnlng 4113 aore. are
linde_lOped. The total aorealle within the UGS and oily IInrlts I.
approxlnrately 4' OB aore.. Refer to TASLE 4 PII. 28, Land U_
14
In_ntory , SS8 for the breakdowns In aorealle.
The , SS8 Land U_ Inventory II_S the oategorles De_loped,
Underde_/oped and linde_lOped to de_rlbe the Intensity of Land
Use within eaoh Land U_ deslllnatlon. There a,.. sbe Land U_
designations within the planning area; Single Fanrlly Residential,
MIIItI-Fanr//y Residential, IndllStr/a/, Conrnrero/a/, PIIbllo, and Open
Bpa_ / Parks. The Land U_ study was oondllOled on a lot-by-/ot
analysis.
De_/oged. T7J/. oategory de_rlbe. land whloh Is '0096 Illl1lzed
within the ollrrent Land U_.
A SllJII/e Fanr//y R_ldentlal paroel was oonsldered de_loped If It
had a ho_ already ex/stllJII on a lot smaller than '2,000 Sq. Ft.
The reasoning behind thl. Is that the nrlnlnrllnr lot .Ize allo~ In
a Single Fanr//y ResIdential zone I. 8,000 Sq. Ft. as stated by the
Woodbllrn Zoning Ordlna_. Therefore, any lot snraller than
'2,000 Sq. Ft. with an ex/stllJII strIIOtIIre oollld not realize another
holl.lng IInlt, and wollld be oonsldered as de_loped.
A Mllltl-Fanrlly Residential paroel wollld be oonsldered as
de_loped If the density of de_/opnrent wollld not allow any
addltlonalllnl18.
IndllStr/al Land U_S _re oonsldered de_lOped If there _s an
existing Indllstrlal 11_ on the part/olllar property.
Oonrnrero/al land II_S were also oon.ldered de_loped If there
_s a oonrnrero/al 11_ on the property.
Pllbllo II_S _,.. delernrlned to be de_loped If there _s an
exl8llng strllolllre or If the land was being utilized In sonre other
way. Sonre exanrples of pllbllo II_S are, _hoo/s, Library, Olty
Hall, Olty Shop. and varlolls other II_S.
Open Spa_ and Parks fel/ Into the de_loped oategory beoall_
they _re IItlllzed IInder their Land U_ designation. Floodplain
areas _re oon.,dered a. de_loped open .pa_. Golf oollr_s
-,.. a/_ oonsldered as de_loped open spe_.
Underde_/o~ed - T7J/s oatellory of Land U_ _s oonsldered to
be a le_ Inte/l8We land -lie than de_loped land dlle to the faot
that the land I. not de""/oped to I,. fUlle" oapaolty.
A Single Fanrlly Re.ldentlal paroel wa. oonsldered
IInderde_/oped If there was an ex/8Ilng d_lIlng IInlt and the lot
was llreater than '2,000 Sq. Ft. In thl. __ 6,000 Sq. Ft. _s
sllbtraoled fronr the total lot square foot aile and the renralnlng
square footalle was oonsldered as IInderdeve/oped.
A MIIItI-Fanr//y Re.ldentlal paroel _. oone/dered IInderdeve/oped
If the aotual nllmber of dwelling IInl18 on a lot Is le_ than the
nraxlnrllnr allo_ble by the Woodbllrn Zoning Ordlna_.
A oonrnrero/al land "_ was oonsldered linde_loped If the
15
.peolflo ./te oollld realize nrore de_/opnrent. In the Downtown
area where there I. a .'nll'e fanrlly holl_ In a oonrnrero/al zoned
area then the lot wa. oon.'dered as IInderde_/oped be_lI_ It
Is not being IItlllzed a. It I. zoned.
Unde_/ooed - Thl. oategory de.orlbe. the I_st Inten.e lI.e of
land. If land wa. not being IItlllzed (or vaoant) then It -.
oon.lde,..d to be Unde_/oped. Thl. nrethod applle. to all Land
U_. within the planning area.
Alonl1 Hlllhway SSE oonrnrero/al zoned propertle. with a .'ng/e
fanrlly residential ho_ on thenr _,.. oonsldered as _nt. Thl.
I. be__ the _ In thI. relllon hae oontlnlled to be oommero/al
and mo.t likely will oontlnlle to be.
A. Conrnrero/al
The loeation of cOfflfflcrcial land uses has eaused the (:lreatesl I'robleffls .-.itn
Wooelbuffl's elevelOl'ffleflt. There I. a total of approximately 483 aore.
of oonr_/al /and Inside the UGS and the oily IInr/,.. Of thl. 483
ao",. there a'" approxlnrately 252 ao"'. whloh a'" de_loped.
The I. a total of 2B ao,... whloh are IInderde_/oped. The
renralnlnll 203 aore. of Conrnrero/al land I. oon.ldered
linde_loped. There are essentially fottf fI_locations for commercial activity.
The first is the downtown area which forms an historic center for the city. This was
the bustling commercial center when the main form of transportation was the railroad.
However, since the development of automobile transit the downtown has been largely
bypassed and ignored as new businesses flocked first to Highway 99E and then to the
1-5 Interchange to receive the benefits of high traffic and visibility. The downtown is an
area of older buildings and contains some of the most historic sites in Woodburn, most
notably the old City Hall, the Settlemier House, the old Woodburn Public Library and
many other fine residences and commercial buildings which were constructed prior to
the turn of the century, or shortly thereafter: While the buildings are in generally good
condition, the lack of business activity in recent years has lead to a decline of the
maintenance of these buildings. An overall renovation and bealltlfloatlon
of thl. oonrnrero/al aree I. e_llralled by the Oily. With
rede_/opnrent and renoratlon of thl. area a hlslorlo thenre ahollld
be de_lOped. I~ntl_. of lo_r Bystenr De_/opnrent Cha,."e.
(SDO's), and TraHfo Impaot F_. (TIF's) should be u~ to
enoollralle tho_ who ,..novale ex/.tI"I1 blllldl"l1s. CoHalle
Industries and .peo/ally .hops should be enooural1ed to de_lop
In the area. Inrnredlately .lIrrollndlng the Downtown HlsIorlo
DI.trlot (DHD).
Iligtw.ay ~O[, 01'1 the other hanel, is al'l'feximately 1 SO acres of lanel sl'reael out Ofl tne
RigFlvvay almost frem c;it) limits t6 eit)" limits 83 8 eemmercial !trip. \~Jhile t198 commercial
area is more than 1.6 ffliles long, il is f10 more tnan 400 feet eleel' at its deepest anel in
SOI'\ ,e cases le3s tnan 100 feet eleel'. Although ffluch of tnis e6mfflercialland use began
in tne COUflt) I'rior to zOfling, the City ufltil reeent years 19as not tal~fl aflY ffleasures
to !tOI' the sl'r-eael of stril' e6fflfflereial ele'v'elol'ment. Because of this, Iligh..ay ~O[ ..ith
16
its many arivevv8:p3 aRa iAteF!38 traffiG flow3 i3 ORe of tRe iVOrst traffic probleFFls iF! tlie
€ityc
The flflflOnd Oonrnrerolall_tlon I. a/ollfl Hlllh_y SSIE. Thl. area
oan be defined a. . .trlp oonrnrero'.' deve/opnrent. Althollflh
nrllOh of thl. oonrnrero/al land 11_ began In the Collnty prior to
zoning, the oily IIntll reoent y_r. has not taken any nr_.llre. to
.top the .pread of oonrnrero/al de_/opnrent. The oily I. now
taklnll an aotl_ role In the Inrpro_nrent of thl. Hlgh_y SSH
oonrnrerolal deve/opnrent. Throllflh the ./te Plan Rerlew p__..
IIPllrade. and bealltlfloatlon of thl. oonrnrero/al area are possible.
One of the ourrent step. In thl. Inrpro_nrent I. to enoouralle
redeve/opnrent at higher den.ltle.. Thl. I. aooonrpll.hed by
a/lowlng llrowth lip_rd. Inst.ad of outward. Another
Inrprovenrent of thl. oonrnrero'.' zone I. Ihrollflh drl__y
oon_lIdatlon. Thl. I. aooompll.hed by the A__ Manallenrent
Ordlna_, throllflh wtrloh the o_rall obl_tl_ I. to oon_lIdate
drl__y __ points to prorlde for .nroother traff/o flO_ with
Ie.. dl.rllptlon.. The Ordlna_ I. In pla_ to oo_r the a,...
North of Llnoo/n 8Ireet to the Northern Oily Llnr/". Fllture work
.hollld lnolllde ooverlllfl the area Bollth 0' Llnoo/n .treet to the
Bollthern exlents of the oonrnrero/al zoning.
The I'ril'l'laF)' objective is to impro.e Iligl'l..a) :39[ froffl its Soutn eity lifflils to tne North
city lifflils to aeeommoelate h.o Gouin bounellafles, h.o North bounellafles .vith an
aeeornl'anying center reftJge lafle anelbi6)cle pains. This v.oulel greatl) ennance tff.lffie
flev....3 and decrease tlie number of vel;iculsr accidents.
Ilowever, a seeoflelSFy objective to fuFlher enhanee traffic flev,s aflel reeluce treffic
aecidents is to reeluee the nUfflber of driveway aceess I'oinls 01"110 the :3:3[ stril'.
Tnat area l"IoFln of Snol' t~ I(art to Inelu31rial A.enue ..nicn is Iflelu31rial rark 01'1 tne
Comprehensive rlan Map 3192111 be restricted to two eJri'e..~a:p access points Hitli
Nationsl VJe."j 3ef1viRg 8S t196 Fflsin access 'v".;itli ~~c 83 an alternate (Ordinance No.
1:321 ).
The tnirel con,mercial area in '.\'oodbuFfl islhe 1 5 Interchange. While it contains clIer
:30 aeres of Janel on both sieles of tne freewa) for cOfflfflereial ele.eIOl'ffleflt,
a/'l'fOj(ifflalely 35 acres have been developed to date, lea~'iflg a significaf'lt afflouflt of
cOfflfflercial lanel in tne City for future ele{elol'fflenl. Tnis cOfflfflereial seelor of
lilJoodbum de.elol'eel cml~ after the interstete interchange and Senior [states al'ld their
attendant flecels fer shopping facilities I'ut pressure on this area. Ilo..ever, because
this area is now liffliled by the a'..ailability of aelequale l'ubJic infrastrueture (vJ8ler,
3e'v",eF, storm eJreiFl) further development of the iF!tercl=lange district must be
aceefflpanieel by the extensiofl of ne.. infraslruelure. This could tenel to alovI tlge rete
of grevrlh ifl t"'is area o'.er tlge f1ext fa.... years.
The third oonrnrero/al area In Woodbllrn I. the 1-5 Interohange.
ThI. area _~. a. an Inte,..tate _rvi_ _nter. It I. a freeway
oriented _rvioe _nler. Thl. area also has a nrore ,.."/onal retail
17
orientation than the ,..st of Woodbllrn. Inrpro_nrenle to the
Inlerohange a,.. needed to a_nrnroda" de_/opnrent, faolllta,.
traff/o flo_ and to allevla" oonllestlon.
The fourth comfflereial area is tne 214>'211/99C "reur Corners" iflterseclien. With the
reeenl redesigflatiofl of al'l'rexil'l'1alely 43 aetes to col'l'1mereial, in this area, t!;e ~X)C/214
quaelraFlI!;as tne I'otefltial to become tnis City's fflesl significaflt eOfflfflercial elistriet.
11'1 total there are 48~ aeres of eOfflfflercial laFlel w;tnifl tne City's UrbaFl GreMh
Doundary. Of thai, 344 aeres are within tne eity lifflils v~tn al'l'rOXifflately 133 aeres
unde'..elol'eel. The refflaining COfflmereial lanel ou13iele tne city limits totals
al'l'FOXifflately 145 acr~s, ffluch of vv't'iieh is already de.elel'ed in Couflty COfflfflereial
zaRing.
The follrth oonrnrero/al area Is the 2'4/2' , /SSE 'Follr Corners'
Inlerseol/on. This area has b_nre an Inrportant oonrnrero/al
dlstrlot within the oily. 77J/. "Four Corner.- area _r_s as a nro,..
I_I reta/l _rvi_ _nler. 77J/s oonrnrero/al dlstrlot oollld rea/l_
nro,.. deve/opnrent In the flltll,... In thl. area de_/opnrent shollld
be denslfled _ as to not o,...Ie another oonrnrero/al 8Irlp
de_/opnrent.
In addHlon to the follr __In areas the,.. a,.. '- other snrell areas,
whloh a,.. available for offl_ De_/opment. One at the .. ollr_
near Oasoade Drl_ and 8tate Hlllh_y 2'4, the other at the
northeast quadrant of the In"~/on of BeH/enr/er AvenllB and
stale Highway 2'4. To mlnlnr/_ the Impsot along state Hlgh_y
2'4 only low traff/o lIeneratlng "_S SlIGh .. offl_s and other
-'""'- _nte,.. shollld be l-'ed. Retail _s a,.. not oons/stent
with the o_rall plan oo_pt for the_ '- area..
Industrial Inelustrial lal'lel use, with ils greater effll'hasis Ofl tran31'0rtation reutes
ralher tnafl .isibility, has nol sho..." the uneofltrolled gre'Y'v'lh patlem that cofflfflereial
land U38S in '.^looeJbufFl Rave. Several 3m811 industries exi3t in IRe dO'wVfitehtfl area as
tnc original iflelustrial uses 'Nere leeateel f1ext to the railreael. Ifl1040 a new il'lelustrial
area ..as located south of Iligh..ay 214 anel east of Ilign..ay ~9C. Tne bull( of the
develol'fflel'lt v.as Dires Cye fflal'lufaeturiflg but also aelelitional surroul'leling inelustries
such as Termiflallee aflel Smuekers. Tl'lere "IV8S flO growl!; in tne iflelustrial seetor ifl
\NooeIbum ufltil t!;e elevelol'ffleflt of t!;e \/Voodbuffl Industrial rark, excellently locateel
6ei\veefllligh.'v'8Y x)C aflel the Southem raeifie Railroael north of State llighway 214.
This was e3l8blisned in1 ~70, he..'v'8.er, il,{;<8Sfl'l ul'ltil1 ~7 4 thai fflajor induslries began
locating ifl this area. All're3eflt the Ifleluslrial rark is either ifl use or eOfflfflitleelto
de.elol'ment.
The City aflflexeel and desigflaleel al'l'rexiffletely 100 aeres of laflel in the south..est
quadr8F1t of tne 1 5,'214 iFltefCR8F1ge for iFleJu3trial use. ~Vitl=1 botl; accessibility BRa
'visibility in its favor iRe potential fer de"telopm8nt is strong. Ilehve{Gf, '"ith Rei available
infrastrueture tne fulure of this sitc fer elevelel'fflent '.';11 del'eflel 01'1 the joint efforts of
t!;e I'ublic anel tne I'ri.ale seder ',Jerking together to 1'001 resourees aflel exteflel f1eeeleel
18
publie services. At present the City nas al'proxifflatel) 47C acres within tne City
designateel fer inelustrial use. Of tnat figure 303 acres are I'resel'ltl) unelevelol'eel.
Al'letner 173 acres oulsiele the city lifflits bul insiele tl'le City's Urbaf! Grov/lh Douflelal)'
nave been e16signateel fer future il'lelu3trial use.
8. Indll.trlal
There I. a total of .pproxlnr.tely 5tIII .ore. of ,ndll.tr'.' land
within the oily .nd UG8. Of thl. 5tIII .ore., 384 are de_loped.
The renralnlng ROB .ore. are linde_loped. There.re b../oally
N_ .re.. of Indll8lrl.1 de_/opnrent In the planning .re..
The Nr81 Indll8lrl.1 .rea I. the downtown region. Be_ral .nr.1I
Ind...trie. .re stll/ l-'ed here In the old downtown. Agrlollltllral-
b._d Indll8lry .tllI pl.,.. .n Inrportant role In thl. .re.. Thl.
downtown Indll.trlal .rea oollld real/ze more de_/opnrent.
The 8"oond area I. In the sollthea81 portion of the pl.nnlng area.
ThI. ,nd...tri.'.rea I. l-'ed north .nd _1ItIr of C/e_/and .treet
-81 of HIII"-y SSE. Thl..rea I. prlnrar/Iy donr/naled by the food
pro_..lng Indllstry. The nrllf/orlly of thl. .rea I. de_loped.
However, there .re _nre linde_loped pa~/. In thl. relllon
whloh oollld realize ,ndllstr,., .otlrlly.
The third .rea I. the Woodbllrn IndIl8lrl.' P.rk. Thl. area I.
I_led north of H/fIh_y 2'4 .nd In belwwen tire IIollthern PaoH/o
R.llroad .nd Hlllhw.y SSE. The area has been . _ry.ttraotl_
Indll.trlal .rea dlle to the f.ot It has aooe_ to fwD Hlllhw.,...
ThI. .rea I. al_ on the trI""e of the oily so there are no oonN/o"
with .bllltlng I.nd II.... FilII blllld_1It of the park I. expeo#ed
between the ,..._ 2OO0-R003.
The follrtlr area I. _81 of Front .treet from Hlllh_y 2'4 north to
the oily limit. .nd UG8. Thl..rea I. nro.tly linde_loped. With
'nore..'nll de_/opnrent of ,ndllstr,., I.nd In the region It I.
expeoted that thl. .rea will reall_ deve/opnr.nt a. _II.
The fifth Ind...trial .rea I. I_led _1ItIr of Newbe,." Hlllh_y.nd
_.t of 1-5. Thl. IndIl8lrl.' .rea I. ~nrlllfl ,nore..,ng,y
Inrportant In lIIIbodbllrn. ThIs.,... .'ready ".. a I.,."e w.reholl_
'-olllty de_lOped. The renralnlllfl IndllStrl., land he,.. oollld
realize de_/opment.
C. Re.,dentl.,
Th.,.. I. . total of .pproxlnr.tely 2053 .ore. of re.'dent'a' I.nd
Ins/de tire oily .nd UOB. Low D.n.'1y Re.,dentl.',.nd has a total
of , 3f!IIS -res. Of this total there are fI3, _re_ de_loped, '23
_re. IInderde_/oped,.nd 8" .ore. linde_loped. Hlllh
Den.'1y Re.,d.nt,., has a total of BBB .ore.. Of thl. total there
.re 443 .ore. de_lOped, 57 .ore. IInderde_/oped, .nd 'BB
.ore. linde_loped.
19
By far tl'1e largest single user of lanel '..;thin tne city lifflits of .....-eodburn is single family
fCsidential eJevclOpFFl8Ftt. There are over ~SO acres pFe38F1tl) in use fer iFll6~y density
resielential e1e'.'elol'mel"lt. In 1 :)87, 74% of the housing steck in IIV-eoelbuffl ViaS elctached
single fafflily Rousiflg. Al'l'rexifflately 56% of the laflel ifl use is uneler this elassificalierl.
It also is the zoning elassificatielfl .fflieh fflost vacanllanel is gi'.'en. II"l 1 :)88 o\er 235
acres were vacant ana 8\silable for devclopment as zORed siFlgte famil) residential,
al'l'FOxifflately 60 aeres W'ere 'V'acant aflel ufla.ailable for reasol'ls of eitner flooeling,
being lanellocked, or uFls'vsilability of public sen'ices. Cingle f8fflil~ FGsieJcntial 8r883
are geflerally locateel beh.een the major collector al"lel arterial streels. It is rere to finel
siflgle family lanels 01'1 aFlerials. Ilo..e'.'er, this eloes eeeur en Liflcoln anel Youflg streets,
as tRese are the oleler areas in toV'"". Scattered single fafflily subeli'.isiol"ls have beel'l
t198 largest e6F1tributoF to tRe 3pF8~'iliFlg pattcfFl of development ',"lI;i(;1; characterized
VVoodbuffl in tl'le decades of the 60's aflel 70's. It is eXl'eeted that sil"lgle fafflily
eletacneel housing will eleer-ease in iml'ortanee in the future as a majer hOl;Jsing tYl'e, but
..Jill al'.'v'B)s retain some ele'lelol'ment il"l'vV-eoelbufl'l. It is eXl'eeteel that by the year 2000
oflly 50% of the uflits coflstrueteel will be 10.. eleflsity resielential housiflg.
Low Den.'ty Re.ldentlal land I. the la,.".81 land 11_ de.lllnatlon
within the olty and UGB. In , SII4, 7796 of all holl.'ng IInl18 _re
detaolNld SllIf1le Fanrlly IInlts. Considering all land. In.lde the olty
and UGB, Low Den.lty R..ldentlal land. take lip 3396 of the total.
Low Den.'ty Re.ldentlal area. are lIenerally looated be'-en
nrajor oolleoto,.. and arterial 81ree18. Cllrrently there I. a .trong
trend to_rd Manllfaotllred HOII.'ng. Thl. trend I. expeoled to
oontlnll8 Into the flltllre. Detaohed Single Fanrlly re.'de_. are
1I0/ng to oontlnlle to grow and playa nrajor role In Woodbllrn'.
hOIl.'nll 81rllolllre. Along wi", thl. Single Fanrlly de_/opnrent
there I. 1I0lng to be a need to deorea_ the nrlnlnrllnr lot ./ze. In
order to lnorea_ Single Fanrlly Re.ldentlal den.ltle..
Lanels elev'oteel to high elensity rcsielefltial use, in general, are located along eolleetor
streets. 11&w'ye'v'cf, there arc FFl8FlY 3~et ZORe! \vniCR were granted iFl yesrs I'88t aAa
RaY'e resulteel in small 81'aFlfflent I'rojeets being scaltereel throughoul tne Ci~ al"lel in
some casea eV'efltleiflg locateel il"l the fflielelle of a single fafflily resielential area. Of the
1087 total of 5,638 el,...elling uflits, 1,064 of the units or 18% .....ere multi f'8mil~ or
tOyifll;OUS8 developmeAt. Ileofle,er, since 1 :380 oyer SO% of tRe uAits built Raye been
a~artmel'lts (3ee lJuileling Acti.ity Table 4). It is expected tnat ifl tne future, cOfllinl;Jed
I'fessl;Jre for high density residential develol'fflenl will exist.
Hlllh Den.'ty Residential land I. the ..0Dnd la,."e.t land II-lie
within the olty and UGB. In , 11114, 2396 of all housing IInl18 _re
MIlItI-Fanrlly. Con.'der'ng all land. within the olty and UGB MIlIt/-
Fanrlly land II-lie totaled '796. Land. de_led to Hlllh Density
Residential 11_, In general, are I_led along oolleotor 81,...18.
It I. exp_ted that with llreater poplllatlon pre..ure. on
re.ldentlal land that there will be a hlllher pe~ntall. of Mllltl-
Fanrl/y holl.'ng.
20
D. Pllbllo U_
There .re .pprox'nra"'y , 30 aore. of Pllbl/o I.nd within the oily
and UGS. ThI."4 .ore. I. flllly de_loped. Public uses have been
located based on their various functions. Municipal land uses are generally centered
in the downtown area which has been the historic center of activity. School uses have
been located in areas which are surrounded by residential developments or expected
to be surrounded by residential developments in the future, as is the case with the new
High School. The "Spring Sreak Quake' of '81i13 did .trllotllr.'
damalle to the oily of Woodbllrn'. Bwlmnrlng Pool. Thl. danralle
nrade the poollln_ble. Throlll1h. FEMA "rant, . _"r appro~
bond and donation. a new pool wa. bllllt In , l1li5. rarlts nave beefl
located eitRer aloRg eJraiRsgG ~'8Iea INhere tRe laRd i3 Flot u3cful for dGvelepmGAt 6f
aejaeeflt to fC3ieleFltial areas, such as Lifleolfl aflel Settlefflier. Aetually these !we I'ast
eX8ffll'les are fflore a case of the I'arl{ coming first aflel the resielential ele.elOl'fflel"ll
follo.viflg as tne5€ ..ere both geflereus gifts of I'ri.ale l'aFlies contributiflg to tne City
of'l.(oodbufn.
Table 2 gives a gefleralizeel Lanel Use In'.entory of the City in 1988.
'I. OPEN SPACeS, SCENIC AND HISTORIC ARCAS, AND NATURAL ReSOURces
IE. A. Open Space / Park.
There are .pprox'nra"'y 384 aore. of Open Spa_ and Park.
within the oily .nd UGS. A nrajorlly of the Open Spa_ In the
pl.nnlng a__.I. prhRne land. ThI. prlrate land I. not de_/opable
dlle to the faot It I. floodplain area and Golf oollr_..
Lands needed and desirable for open space have been inventoried in the Park Plan.
All existing floodplain along Mill Creek and Senecal Creek have been set aside for City.
green way and have been left in as natural a state as possible, as encouraged by
Policy L-1, of Volume I of the Comprehensive Plan.
Pal'k. have been looaied either along dralnall. ._/e. where the
I.nd I. not II_fill for development or lIIdJaoent to re.ldentlal
.rea., .1IOh .. Llnooln and Bett/enr/er. The Systenr De_/opnrent
0ha1'l1_ (SDC'.) of the oily ha_ provided nroney for the parks to
.88181 In IIPllrade. and Inrpro_nrenm. Centennial Park I. I_led
.ollth of Parr R_d In Sollth Woodbllrn. It I. In,.nded to be .
relllonal park .nd I. pl.nned to begin oon.trllot/on In '8S8.
The City has also established a tree ordinance (# 1908) approved (1-17-85) for
inventory, preservation and replacement of public and private trees. This effort has
resulted in Woodburn gaining recognition as a "Tree City, USA", by the National Arbor
Day Foundation in years, 1985, 1986, and 1987.
21
F. -8; Mineral and Aggregate Resources
Mineral and aggregate resources within Woodburn are not identified on geologic maps
prepared by the State Department of Geology and Mineral Industries. There are several
gravel quarries located around Marion County, but no known quarry sites have been
identified within the City or the Urban Growth Boundary.
G. ET. Energy Resources
Energy resources have not been identified in Woodburn. Except for solar energy, the
City is unaware of any energy sources within the City.
In response to Goal M-1 and Policies M-1-1 to M-1-7 the City has adopted a Solar
Access Ordinance and Chapter 17 in the Zoning Ordinance, which outlines the process
for recordation, regulation, and enforcement of solar access rights.
H. &.- Fish and Wildlife Areas and Habitats
The floodplain provides the major fish and wildlife habitat in the city. The largest area
for fish and wildlife habitat is on Senecal Creek which, as mentioned before, continues
today in a relatively undisturbed state. Mill Creek, on the other hand, has been
channelized and offers little opportunity for fish and wildlife habitat. However, recently
a pond has been excavated out of the Mill Creek floodplain on the south end of the city
limits and it provides new opportunities for increased fish and wildlife habitat.
I. E- Ecologically and Scientifically Significant Natural Areas
There appear to be scattered traces and evidence identifying the area as the habitat
of Post Ice Age mammals and more recently Willamette Valley Indians. Bones,
discovered along the Mill Creek basin North of Highway 214 are believed to be part of
an ancient land mammal which occupied the valley since the latest ice age, Robert A.
Linder, Department of Geological Sciences, University of Oregon, has collected a
number of specimens and is currently engaged in an identification process. If the bones
are determined to be of a clearly significant nature, the City would not stand against
public appeal to pursue identification of an area as having paleolithic significance.
J. r. Outstanding Scenic Views and Sites
Outstanding scenic views and sites in Woodburn are very limited. Except for the public
parks and an occasional view of the Cascades, no significant scenic views exist.
Woodburn has very little topographic variation, and this, combined with a well
established urban forest and dense pattern of existing development has minimized any
impact of potential scenic views and sites. The City's elevation varies no more than
forty feet to fifty feet within the entire planning area. The City will, however, be sensitive
to the potential for scenic views when reviewing new development requests.
22
K. G. Water Areas, Wetlands, Watersheds and Groundwater Resources
'",\'8t8r area!, netl8F1a8, aRd '/yster3Reds Rave Flot beeR identified in '.^y<OOelbUffl,
l=Io.,.IerJeF,
W.tersheds Ira_ not been Identified In Woodbllrn.
Se'.eral slre8m !;eel3 run ifl a general f1orti'le8slerly elireetiol'l aflel while fl6 major surface
Mlters lie witnin tne UGD, the City lies Ofl 101' of a substafltial but ul'loofl3olielateel
gf6ufle,hvster aquifer.
The nuII/Or Water AIwa In Woodbllrn Is the Mill Oreek .re.. There
.re several other 81__nr beds whloh rlln In a lIeneral
Northe.sterly dlreot/on. There are no other sllrfa_ _ters In
Woodbllrn.
The State Department of Environmental quality has provided the City with information
identifying a sensitive groundwater area underlying the entire City and urban fringe.
The .qlllfer Is drawn down In the .lInrnrer .nd fall nronths, bllt
reoovers to .pproxlnrately the _nre .nnual Ie_I .fter he.",.
winter rains, nornrally 30-40 lnohe.. Reolra,."e of the .qlllfer
.ppears to be both fronr Sllrf._ water Inflltr.tlon and side slope
Infiltration fllrther e.st In the Os_de Range. The pre_nt _ter
.y&tenr Is nrostly In 1l00d oondlllon bllt _nre of the older portion.
are obsolete. The City has been made aware of the potential impacts to
groundwater that underground storage tanks, storm drainage, chemical spills,
residential on-site sewage disposal systems, and other similar land uses can have.
Therefore, through the Zoning Ordinance Chapter Eleven, Site Plan Review Process,
the City will notify DEQ of any request to develop, change, alter, or expand property in
any way that could potentially impact groundwater and further, the City will support and
enforce any requirements or recommendations proposed or mandated by State law or
agency.
Tne sensitive grouflel'>valer ffl81' has been aeleleello the 1'181'1'3 Al'l'eflelix, as AI'1'6flelix
9:-
The .re. north of Hlllhway 2'4 to the northern Olty IiIollndary
along Mill creek Ira. been Identified as Wetland area. by the U.S.
Arnry Corp. 0' /8l7f1lneers.
Under Ben.te bill 3, o/tle. .nd oollnt/es Ira_ a re.ponslblllty to
notify DlrI./on of state Lands (DBL) of _rtaln dere/opnrent
_tMtles proposed within wetland. on National rNetland. In~ry
(JVWI) nrap.. The speolflo aot/rItIes reqlllrlng notlfloallon .re listed
In ORB 2'5.4'8 (Collntles) .nd ORB "7.350 (Cllles). The
pllrpo_ Is to Inrpro_ L_I-SIate ooordlnatlon and prorlde
notlfloatlon of _tland reglllatlons to I.ndowner. and .ppll_nI8.
23
L. H; Wilderness Areas
Wilderness areas are not present in Woodburn according to the LCDC definition for the
natural resource.
M. t.- Historic Areas, Sites, Structures, and Objects
Historic areas, sites, structures, and objects within the City include:
The Settlemier House;
The City's Old City Hall;
The Original City Library; and
The Bank of Woodburn Building.
The Settlemier House located at the corner of Settlemier and Garfield and the original
Woodburn City Hall are both listed on the National Register of Historic Places. These
two censtitute tne City'! ffl03t a,.. important historic sites In Woodbllrn. Several
older homes in Woodburn in the downtown area are of interest for historic and
architectural reasons.
The following list of sites represents a prioritized inventory of potential historic buildings
that when the opportunity arises, should be given assistance by the City of Woodburn
in seeking funds for historic preservation.
The following structures are the most notable based on age, unique architectural and
historical significance.
The Original City Library; and
The Old Bank on Front and Arthur
The Original City Library was erected in 1914. It consists of two stories and serves as
an annex to the new library. The structure is faced with light clay brick and is styled in
a Carnegie design which calls for a practical rather than a cosmetic facade.
The Old Bank on Front and Arthur was build in 1890 and was called the Bank of
Woodburn.
The second story served as a meeting area for the Chamber of Commerce and other
community groups.
The Natural and Cultural Resources section of the Comprehensive Plan identifies two
specific policies regarding historic structures and sites. The first L-4 encourages the
inventory, restoration and preservation of historic buildings and the second L-12
requires all applications for development that involve historic buildings to be reviewed
by the Planning Commission with findings and recommendations concerning the status
of the building.
24
Recently, the City adopted a new Downtown Historic District which includes the Old
City Hall (currently inventoried in the Comprehensive Plan as a historic structure and
on the State register of historic places). Land uses within this new zone have been
reevaluated for compatibility with the intent and purpose of the Historic District, and for
appropriateness based on the scale and capacity of the district itself. Uses that were
too large a scale or required special off-street parking requirements were removed from
the list of permitted uses. AI'I LCDC GoalS \....orksheet analysis of '.\leodbum's I;isteric
structures has been ineludeel as Al'l'el'lelix C.
The City will continue to pursue an accurate inventory and applicable ordinance to
preserve and protect the City's valued historic structures and sites.
N. d. Cultural Areas
Cultural areas have not been identified in Woodburn.
o. K; Potential Approved Oregon Recreation Trails
Potential and approved Oregon recreation trails within Woodburn have not been
identified by the State Parks and Recreation Department.
P. i= Scenic Waterways
Potential and approved Federal wild and scenic waterways and State scenic waterways
are not present within Woodburn.
Table 2
Land Uae In1J~"tclJ-
Use
Landin
USfl
Vacant I
\'~'8nt I Not
A-J8ilable
Total
Av-ailable
Le.. Deflsit) Residential
Ilign Deflsit) Resielelitial
COffimercial
Iflduslrial
Miseellafleous
TOTAL
:)50
153
211
202
170
1,686
235
:):)
133
128
60
~
187
1,245
2C1
344
517
170
2,537
50S
256
25
.~
Table '"
Land U.e Inventory (January , SS6)
Developed Underde_/oped Unde_/oped
Aorealle Aorealle Aorealle
Inside CI'" Llnr/18
Conrnrero/al 238.7' 27.48 '8'. '0
Indll8lrial 237.4S 0 '88.7'
Bingle Fanrlly 5S'.05 '23. , 3'8. 'Ill
Mllltl-Fanrlly 43S. '5 57.3 85.50
Pllbllo , '4.45 0 0
Open Bpa_ / Parks 308.4 , 0 0
Roads / R.O. Mf. 422.BB 0 0
Total. 2348. '4 207.BB 72S.50
Olllslde CI'" Llnr/18
Conrnrero/al '5.75 ,. '8 4' .44
Indll8lrlal , RtI. , 0 :fIB.SO
Bingle Fanrlly 40.50 0 2114.SB
Mllltl-Fanrlly 3.BO 0 , 0Sl.30
Pllbllo 0 0 , 8. OR
Open Bpa_ / Parks 57.74 0 0
Road. / R.O.Mf. 85.37 0 0
Totals 32S.RtI ,. 'B 4S3.54
Aore. within the City Llnrlts = 3285.52
Aores Olll8lde City within UG8 = BR3.SB
Total aorealle within UGS and City Llnrlts = 4'09.50
VI. ENVIRONMENTAL QUALITY
A. Air Quality
The City's air shed is similar to others in the Willamette Valley. The only sources of
pollution are from automobiles and several minor point sources for fronr industries.
'v'lhicn eOl'ltain boilers ifl the City, a3 well a3 a gre33 seeel cleaFliflg I'lant locateel on
IIarelea3tle anel flailreael A\eflues. The City occasionally experiences pollution from
field burning, but this is beyond the scope of the City's control. In effect, Woodburn's
planning area does not contain any significant air pollution sources since it contains no
large polluting industries, highways or other typical pollutant sources.
As outlined in Section L-5 of Volume I (Pg. 75) of the Comprehensive Plan, the City
has committed to adherence to DEQ and EPA standards for air quality and emissions
control.
26
~
In addition, Chapters 33, 34, and 35 of the Zoning Ordinance contain language
requiring verifiable approvals from State Department of Environmental Quality, and/or
Mid-Willamette Valley Air Pollution Authority before City approval is granted for any
potential polluter to locate within the Woodburn planning area. Such an approval takes
into consideration air quality, noise, glare, sewage, vibration, etc.
B. Water Quality
Tne eonelition of existiFlg ..atercour383 has been eletaileel in tne 'Nooelbufl'l 'Naste
'.V1!Iter faeilities rlafl eOffll'ileel by CI12M Ilill in 1976. Tne Cit) inteflel3 to ul'elate tne
"Vater Resourees componeFlt of VOIUffl8 II iFl tne future.
The Cal'ilallmprovemefll rrogrem outlines all of the water I'rejects currently I'lanncel
by the City through the next six years anel beyonel. If the stuely re.eals some olher
higher priority iteffl the clr eafl be amel'leled to reflect the chaflge.
Novenrber '8, , SII3 the Oily of Woodbllrn ~/~ fronr the
Departnrent of IEnrlronnrental QIHIII/ty (OIEQ) a stlplllated Final
Order whloh _t pollutant I_d IInr/" for dlsohe,."e. Into the
Puddlnll RI_r and lIa- Woodbllrn a time franre to de_lop a
faol//ty plan to nreet tlrGss IInrlts. BI_ that tlnre the oily hes been
_rldng oIo_1y with the oon.llltlng f/rnr OHRM HI/I to oonrply with
federal and .,.,. enrlronnrentall'8f1l1lat1ons for water qlHllllly, and
be operational by the year 2000. This oo_rIed effort I. to bring
the water qlHllllly of the Pllddlnll RI_r baok to an a_ptable
Ie_I. In July , 1HI5, the oily oompleted Its Draft Faollltles Plan and
for_rded It to the Departnrent of IEnrlronnrental QIHllIlIy. Desllln
Is expeoted to start In spring of , sse, and oon8lruotlon
oonrpletlon Is expeoted In the year 2000.
c. Solid Waste
No solid waste or hazardous waste sites exist within the Woodburn planning area. Solid
waste collection is provided by United Disposal Service, Inc., under a franchise from
the City. Wastes are currently disposed of at two locations.
The first is the new Ogden Martin Mass-burn Facility, where Marion County requires
United Disposal Service, Inc. to take all burnable waste. The second is the Marion
County Landfill site, Northwest of Woodburn's planning area. The landfill site is used
for non-burnable, non-hazardous waste, unacceptable to the burn facility.
United Disposal Service, Inc. has recently obtained approval from the City, to locate a
transfer station for recyclable materials.
The recycling of waste material has been encouraged by the City, the County, and the
private sector, as a positive method for reducing the various costs associated with
waste management.
27
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The City of Woodburn will continue to support actions taken by the various public
and/or private agencies to improve the handling and management of recyclable
materials.
D. Noise
Policy L-6 of Volume I of the City's plan identifies traffic flows along Interstate 5, and
Pacific Highway 99E and the Railroad, as the City's primary noise sources.
The Slate DCQ, has receiveel noise coffll'laiflls regareling North Valley Seeels anel
WoodbuFfl rertilizer COl'l'lpan). A revie,. of the rlan aflel ZOfle Map have shovlfI thai
ffluch of the area surrouneliflg the Seeel & rertilizer I'lant has already been zoneel,
elesignateel anel e1e..elopeel in fflulti fafflily housing. 1100.e..er, f1early all unelevelol'eel
lanel that curr6f1tl~ exists to the North aflel Cast of the I'laflt has been zOl'led aflel
elesignateel fer IneltJstrial uses or Open Space. The intent is to ffliflifl'lize afl)'
iflcoml'atibility tne seeel aflel fertilizer I'lant ffla) have ....ilh fulure resielefltial uses.
With the inclusion of the Seed and Fertilizer plant into the City's noise source inventory
and the efforts by the City to improve the buffering for future development in this area,
the City is remaining consistent with DEQ requirements to inventory and treat major
noise sources.
E. Waste Water
The exisliflg se...-erage systeffl contains ever S2 ffliles of se\iler I'ipe. Most ef the sysleffl
was construeteel in Ine 1 ::l50's to conform to Ine topogr-aph~ of tne Mill Creek tlasin. The
cC)f1figuraliofl ef tMe senerage s)stefl'l is shovyIfI on a City Se'lY'er Mal'.
The Mill Creel< intereepler fOlio..'! Mill Creele frOffl the Mill Creek I'Ufl'll' slation soutl'1 to
Cle.elanel Street, then west to Setllefflier Aveflue, aflel intefGel'ts flo.'1 froffl smaller
collactor g).stems bot" ea:M and '#63t of Mill CreGIt A secoRa interceptor sene, SeFt'63
areas ..ost of rrefll Slr-eet 6)' colleeting fflaifl anellalerallifles SOt/In to Clevelanel Street
and ....e31 to Iflter3tale S.
TRese t,,\O S8VIf'Gf3 interccpt se-wagG from 3FF1811er collector 3GtlferS to comprise tFl8
fflajor grevity sewerege sysleffl f-or tl'1e Cil).
Tt-le flal tOl'ogrephy aeljaeeflt to the streaffls of Mill Creel< basin has requireel the use
of FliFle senega pump stations to serve loy.; ares! BRei areas 6" tRe e}(f:remitie3 of tlge
3c~'yeF8ge 3)318"'. TRese pump stations VIii" tReir related gF8yity collection 3~3teffi3 are
sl;OlyyR OR tRe Cet-/er rlsR Map located in t1ge \~v/83tey1y8tef racilities Plan, elated October
498&.
28
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A more eletaileel eliseussion of the existiflg VVasteyyater facilities is conlaineel iFl the City
of ~A'6odI5UFFI '.A/s3tenSter racilitic3 CapitallmpF6vsmeAt PlaR, dated October 1~B6.
The flew "..astey..ater facilities sluely and iffll'rovemenl I'laFl rel'laees the exi3tiflg
CRapter in Volume 11, of iRe CernpreR8f13i fe PlsFI.
The existing 3e...er system was built in the 1050's aflel consists of 202,000 feel of sewer
I'il'e afld t.....e trealfflent locations, one trsatfflenll'lant Ofl Mill Creek anel a lagooFl
system 01'1 the MacLarefl Genool I'rol'erty. Alse, nine I'ump slations are loeateel
throughout the City bee8use of the ftal tOl'ogral'hy ifl tne ':y'ooelburfl area. Se..er flO'yvs
range freffl120 gallol'ls per capita per day fflaxiffluffl for elomestic uses to 2,880 galleFls
I'er acre I'er elay for eOfflfflcrcial uses.
The pr836F1t 3Y3teffi, !=Ioney'eFt occs3ioflall) exocea3 its capacity \vitl; tRe Milt C~el(
interceptor being a l5aFlicularly lroublesoffle area. future ifflprovemenls incluele
inereasiflg the Mill Creek inteFeel'lor, col'Istrueliflg a relieying intereel'tor staFliflg at the
trcatfflenll'lant on Mill Creek anel terffliflatiflg al the interseetioFl of Settlefflier and
Iligh'..ay 214, anell'rovieling trul'lk anel ifltereel'ter lines to areas the City vie'..s as being
deyelol'able ifl tRe future. The eost of the iffll'reyefflents can 196 financed by usiflg
'y'arieus methods, such as through Ad 'laloreffl Taxc3, threugn local iffll'royefflcflt or
speeial assessment e1istriets, anel through de..elel'6r fiflal'lciflg.
The exl8llng sY8fenr oontaln. approxlnralely 58 nrlles of __r
pipe. Of this 58 nrlles of pipe '4 nrlles are nrB/or lines, Trllnk.
and Interoeptors.
Slnoe , S27, Woodbllrn has had three different __ralle
treatnrent .ystem.. All ha_ lI_d baoterla to oonsunre the
harnrflll e/enre"" In the -walle. lEaoh wa. an Inrpro_nrent on
the one before.
The plannl"" for a new treatment plant I. IInderway. It Is needed
to oonrply with 1I0_rnnrent IInrlts on the nlltrlen18 (anrnronla) and
OXyfIen-Denrandlng _lid. that _ dl_ha,."e Into the Pudding
Rw.r with our tr.lIMd -WIllIe. nr... sfrIoter polllltlon IInrlts have
been _t to proteot fish and other aqlUltlo life.
The treatnrent faolllty as of , SS4 had a follr slelle nrethod of
treatnrent.
, sf The nraterlalls IIrlnded lip and pili Into a _Hllng tank.
Rnd The nralerlal Is treated by a Rotating ./0'011'_'
oontraotor (RBO).
3rd The nralerlal I. dlslnteoted by ohlorlne.
4th The nralerlal I. dl_harged Into the rw.r.
The proposed new faolllty Is _heduled to 110 on-line In the year
ROOO. Thl. treatnrent faolllty wollld a/_ follow a follr-stalle
treatnrent nrethod.
,.t The nralerlal Is IIrlnded lip and pllt Into a _Hlenrent
tank.
2nd The nralerlal Is treated blo/OllI_11y (Aotlvaled SllIdlle
with Bel_tor leohno/OllY1.
29
3rd It Is _ttled allaln and Is dlslnfeoted with Ultra-Violet
Llllht (UV).
4th It Is then IISed a. Irrlllatlon for Poplar Trees.
F. Btornr dralnall.
The Woodburn area is characterized by an extremely flat topography and relatively
impermeable soils. However a large percentage of the land is vacant or not intensively
developed. With an increase in densities and expanded developments there will also
be an increase in runoff volumes.
Within the UGB there are two principal drainage ways, Mill Creek, which is subject to
the most serious flooding especially upstream, and Senecal Creek, which is more
sensitive to times of intense precipitation. Accompanying the main drainage ways are
a number of small tributaries which characteristically begin as wide swales of very
gentle slope, becoming well defined deep channels near the principal watercourses.
Drainage policies and land use controls are as follows:
1. Piping will be required but natural drainage patterns shall be preserved.
2. Floodplain and major drainage ways should remain in open space and in
appropriate areas green way areas should be designated.
3. Developments will provide complete storm water management systems.
4. Developments shall be reviewed for consistency with Storm Water
Management and Comprehensive Plans.
5. Where developments are proposed for higher intensity uses than are
indicated on the Comprehensive Plan, adequate provisions must be made
to maintain peak runoff within levels indicated on the Storm Water
Management Plan.
XI. GROWTH, PAST AND PRESENT AND rUTURC
A. GrowthTl"endB Peliey Durino the 1979's
Traditionally, growth has been viewed as an essential ingredient in a prosperous city.
Community attitudes toward growth have typically included the following arguments.
Growth stabilizes or improves the local tax situation by broadening the tax base and
reducing the per capita tax burdens. Modest growth pays its own way and even through
some growth may have costs which exceed the new tax revenues, the overall benefits,
such as increased retail spending, counterbalance the direct cost. New development
brings a broader range of goods and services to the community through secondary and
tertiary as well as primary growth. Growth improves local wage levels and brings
30
greater flexibility in job opportunities to existing resident workers, women not currently
employed and young persons who might otherwise leave the community for
employment possibilities. Growth brings a wider range of choice in housing types and
locations. Development and expansion eventually result in improved community
facilities such as fire and health services, roads, schools, etc. For the majority of the
time growth per se was not perceived as a significant local problem. The City's existing
facilities were often able to absorb the moderate increases of gradual growth and the
community simply delayed the upgrading or expansion of an adequate facility,
artificially inflating the growth as good calculation since overall costs were artificially
low.
,. Dllrlng the , S70'.
In the late 1970's, however, there was a swing toward limiting the local rates of growth.
Though many in the community still favored expansion, many turned sharply from
active promotion of growth in residential development. Past patterns of local growth
were improperly planned and social and economic conditions set the community on a
course which eventually led to serious problems and dramatic reversal in public
attitudes. Where the pursuit of growth had not been carefully plotted and where
opportunities for sound land use and provisions for adequate public services had been
lost, the honeymoon with growth and expansion evaporated. Beginning in the early
1970's the backlog of demands for more adequate and improved facilities in Woodburn
could no longer be ignored. The catch up costs tended to be high, setting the stage for
taxpayer reaction against increased cost, poor land use management and further
development. To these backlogged investment and tax issues were added demands
for expanded public services, the cost of specialized personnel and higher pay scales,
increased administrative overhead, inflation and so forth. These items tended to edge
tax loads even higher, lending credence in the public minds to the seeming connection
between growth and higher costs, as for water and sewer systems; inconvenience, as
congestion on roads and highways; environmental damage, as to water supplies and
recreational areas; and lower quality public service or overcrowded parks and schools,
etc. Perhaps, of even more concern were problems created by the perceived loss of
neighborhood and small town character.
In addition to the traditionally beneficial view toward's growth, cities in general felt
helpless to control the growth as it was "inevitable". Until the early 1970's and the City
of Ramapo and Petaluma's pioneering efforts toward's growth management, no
American city had addressed the various constitutional needs to controlling growth.
Also, in the past many communities have had an inconsistent public policy, on one
hand discouraging housing in reaction to pressure from neighborhoods, especially high
density types, while on the other hand encouraging industrial and commercial growth
which intensified the need for the housing.
Woodburn's experience with growth was similar to many communities during the 60's
and 70's. As mentioned in the outset of the Land Use Element, Woodburn traditionally
was active in promoting itself as an industrial and commercial center for this section of
31
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the Valley. Many of the problems which beset other communities also beset Woodburn
due to the rapid rate of growth. As was true of most communities in Oregon which
experience this kind of growth, the City was ill-equipped to deal with the problems
associated with it. Beginning in the early 70's several problems began occurring due
to overcrowded public facilities. Also, many of the original residents began to complain
of the deterioration of the quality of life they had enjoyed in Woodburn for so many
years. In 1970 Woodburn had, in addition, an economic problem relating to the large
number of retired persons living in the community. It had one of the lowest household
incomes in the state and to resolve the problem. An industrial park was conceived and
developed by a group of local businessmen. The industrial park added approximately
1,000 jobs in a period from 1974 to 1979, and helped stimulate residential and
commercial growth.
Taking steps to accommodate the increased population, a new high school was built
and opened for students in 1976, ending two years of double shifting in the high school
and junior high. Also, two new fire stations and a new city hall were built to
accommodate the growing demand for services required by the new population. Due
to a combination of the old sewage treatment facility being inadequate to handle the
waste treatment for a community this large, and increasingly stringent regulations from
the Department of Environmental Quality (DEQ), plans were formulated in 1975 to
construct a new sewage treatment facility which would accommodate the expected
growth until the year 2000.
However, before the engineering was even begun on the new treatment plant, the
problem of sewage treatment came to a head on December 14, 1976. On that day, the
Director of DEQ wrote a letter to the Mayor and Council of Woodburn stating that they
had reviewed the performance of the City's sewage treatment plant and found that the
City was unable to meet consistently the effluent limits in its discharge permit.
According to DEQ, "This situation appears to be a result of two separate problems. The
relatively high growth rate is placing an increasing strain on your facilities with the
present population (10,200 as of July 1, 1976) approaching the plant's total capacity
of approximately 11,900". The other problem which was referred to in the DEQ letter
was industrial wastes from agricultural processing plants being put into the sewage
treatment system in large amounts.
The Department of Environmental Quality requested that an interim program be
submitted to them by February 1, 1977, which would, among other things, take into
consideration the City's growth. To quote the DEQ letter, "The City cannot continue its
present growth rate without new (sewage treatment) facilities. A program to minimize
new house connections may be advisable, including an interim moratorium on new
subdivisions". After careful evaluation of the situation, the City decided to investigate
the possibility of an ordinance which would somehow allocate the limited number of
building permits which were available between January of 1977 and completion of the
sewage treatment plant.
32
Several immediate improvements were made to the procedures which local industries
used which were discharging to the City's sewage treatment system. Then, an
agreement was reached with DEQ that a total of 1,200 population equivalents could be
added to the City before the new treatment facilities were required. A moratorium on
all building was called by the Common Council in January of 1977. The City Planning
Commission was charged by the Council to develop an ordinance which would allocate
the population equivalents in a fair and equitable manner; one which would least
disrupt the normal activities of the building industry.
The rlal'lniflg COfflfflission fflet in fflaretnofl worltSnOl'3 for six ..eeltS. During tnis I'erioel
of tiffle fflany alleff'l81ivc3 v.ere consielereel, among tnem, permits beiflg issueel 01'1 a first
come, fir31 S8f've basis, a lottery whieh weulel alloeate b) ehanee the l'ermit3 to
ele'Oelol'ers wishing to conslruet in tne City, a systeffl which v/oulel allocate permils
based 01'1 contreclors I'aslaetivit) ifl the City, and other metheel3 as 'Nell. After 'weigRing
ti'le beflefils afld costs of each of the fflethods above, tRey were all rejeeted afld it was
eletermifleel !hatafl ordinaflee sifflilar to that elevelol'ed by retaluffla, Califorflia, would
be the !;est suited for the City. Sueh afl ordinance was elrafteel aflel .,as passed by tne
COffll'l'lOn Ceuneilofl Mareh15, 1977.
A re...iew of tne City"s gr-o.tti'l since the limiteel gro.vih ordinanee il'lelieates a significaflt
ehange in the gfO',vth rete since thai time, both in nUfflber of oeeul'ieel units aflel ifl the
aetual pOl'ulatiofl growth. TRe City, in 1 ::>78, wa3 al'l'f6Xifflately 400 perSOfl! 3hofl of
tne afflount wnicn was projeeteel to be in the City al that tiffle. (See rigure 2)
33
Figure 2
City Growth (Actual and Projected)
z::r=~--
g 9000-+---
<
:5 eooo
0-
:r 7CXJO
........-.-..-
~-_..........
eooo ~
5000
'" 4000 i
l-
i :JOJO
::>
-....-..........--...
2000
1000
o ~~
I
72
I
73
I
74
I
75
I
76
I
77
I
78
YEARS
[_ ACTUAL -~_______ PROJEC~;~END ACTU~ ~m PROJE~~~Dl
rOl'ulatioRl'rejeetions, e31'eeially fer sfflall citic3, are neterieusl) inaeeurete aflel tl9is
deficicfle) fflay ea3ily be disfflis3eel as a f10rrnal fluetLlation in groytlh. Ilo..'.e.er,
Woeelburn tr'8ditiol"lally has 19ael a groy-tll'l rate muol'l higher tnan that of the 3urreuneliflg
cities il'l the Mid Willametle \y~IIey. rigure 3 shows \N~oelbum's greyv'lh rete eornl'areel
with cities oyer 5,000 in Marien, rolk, and Yafflhill Counties. rroffl1971 te 1~76, with
tlge exeel5tion of 1 ~75, VVoeelbum'3 grerfflh rate '.,83 ef'lual or higher thafl the gre...v'lh
rate of tl=le38 elflef cities. IIofl8ver, iF! 1~77 !IRa 1~78 ,^~66dburFl'3 grevttl; rete \V83
sigflifieafltly less. 11'1 1078 the other citie3 ifl MarieR, roll( and Y'8mhill Ceufllies
iFlcft:83eeJ over 8%, nRile '.J}/ooelbum gren oFlly J(}~
34
-
Figure 3
1971-1978 Percent Change in Population
10
9
8
ZI
r::
" 7
!!
"
0.. 6
..
..
il 5
..
..
l!! 4
Q.
X
UJ
.. 3
;.
2
o
Years
Legend
o CITIES OVER 5OOO(A VE.). WOODBURN
T19i3 aloRc "auld net indicate that the limited grov4'th ordinance 19ad beeF! effective in
cutting dotv.FI the Flufflber of persons migrating iAto 't1/oedbufFl, exCelS! that nMile the
number of unils cOflstrueted in Woodbl:lrn was decreased signifiC8f1t1y, demand
al'l'eareel to remaifl nigh fer housiflg units as inelieateel 0) rigUftl . The nUfflber of
unit! built from 1~72 to 1 ~76 varied from 1 SO to 250 uRit3 1'61" year, hOylyC.Cf, in 11J77
and 1 ~781hc totalnufflber 6f ul"lils construeteel in Wooelbufl"l .....as less than 100. VVnile
the ~aeaFlcy rate fer 3iR~le family home! FeffisiFleel fairly caRstent at bet\vc8F1 1 % 8nd
3%, the V8C8flCY rate for al'aRffleFlI uFlils elftll'I'S6 eJrestically ffeffl 15.5% ifl July 1076
to 2% iF! July 1~78. The eOfflbinatiofl 6f tl'le abo.e elala 3cefflS to 3uggest that the
gro'M!; ordinance Iru;leeeJ Vnl3 tR8 major contributor iFl \,,~looetbufFl'3 cRange in groJttR
fttte:-
35
Figure 4
Vacancy Rates 1972-1979
25T
20 _
15
---4
"L .
5t---.----~----~----~----.-___
o - -----r-- I - -------r---- I I I
n n ~ ~ ro n n
--,
79
Years
G;
Legend
APARTMENTS
-.-
SINGLE FAMILY HOMES
Figure 5
Units Built 1972-1978
250
200
i!! 150
"
'"
l!
'2
::> 100
50
0
7-72
I
7-73
7-74
7-75
Years
7-76
7-77
7-78
1-;
,
D T013I=
Single family homes
Legend
. Apartments
36
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The City also eXl'erienced other effeets of the lifflited gre..tn orelif'lal'lce duriflg tnis
J'erioel of tiffle. One of the fflosl signifieant was the laek of availability of housing in
'N6odburFl. Wl9ile it doe3 F1et 81'P88f tRst FeFlt! i'yare iFlcr8s3sa eXCG33ively, persoRs
elcsiriflg Ie locale in ".'oodbl:J1'FI had a eliffieull tiffle fifleliflg suitable hou3if'lg. Most refltal
units nare full and "eN ROffiC3 '{fflicl9 tvere cOFlstructed 'Nere 30leJ 81m031 immediately
ul'on their entf8f1e6 on the man(et. Ineluslfial anel cofflfflereial greNlh slo,'/eel sOfflevyhat.
116~CV6f, me!! commcrcial BAd iFldu3trial dc'..elopers were di3COUf'8ged at 8M early
point due to IRG oxi3tenoc of tl;~ ordin8F1e6. 'lv'l;ile vie RavS FlO elata on Reusing 003tS,
it al'peers frem loeal ifltervie.vs anelnon sciefltific saml'les of the housing fflarkel, that
83 VJoedbufR is part of a 18r~eF regioFlsl I;OU3iFlg ffi8rl<st Bnd IRe limited grevAI;
oreliflaflee diel Re! ha~e a vef) df8fflatic effeet 01'1 the I'rice of either l'ureha3ed or Fefltal
housing. Defflaflel .,a3 shifleel t" other eities '.,hich eould better aecefflffioelate the
gre.vtn.
MatRer effect nhicl9 n83 Roleel yy~3 8n iFler8838 in qualit) in IRe projects lyRic" v\8r8
al'J'roveel by the Cit) eluriflg this time. De .elol'ers ..no nadl're~ iously sl'ent "I'll) a
eUf!Ory amOUR. of time in dcsign of tl=leir projects aRa tRe project':! impsct on cit~
service! clgeR~e:d tReir attitudes aRd cOfflpe:teeJ ,...itl=l 6F1e sRother to insure tRat tRey
would reeei'v'E! tRe m~iffluffl Rumber of poiR!! uRder tRe ~rey'AR mSRegsmeRt ofdiFl8Rc8.
DuriFlS tRe period of time thst 'y\~OeJbUFFl vias using tRe limited grovvtR oreJiFl8F1ce it nas
also deY/eloping 8 comprc.ReR3i';e plan ,/RicR "WOuld guide tRe City's srovt'tR until tl=le
year 2000. As vtOrJ<sRop3 '/Ye:Fe l=Ield 6" \ariOU3 aspects of gro~ftf9 tnGrG ';I8S mucR
OOAocrFl eXpfGSs8eJ tRat 6RCC tRe sG"N8~e tFeatFFl8F1t facilities Viera built grovftR viould
a~8in occur iR SA undisciplinGeJ fashion, To quote one rI8F1F1ing Cemmissioner, "I feel
like v.-e're sittiFlg on a coiled spring, eRd once tRe Se\~8ge treatffi6nt plant's complGted,
tRa lid is going to 610\v off', The Commission aRd Council felt tRat some prOvision
shoulel be maele to guarel against tne I'roblel'fls whien nael becfI cauSE'lel inl'asl years
by rapid gFOvJtFl.
The fear vvRiGR ~'8S 6xpres3eeJ 6~ tl;8 COUFlGil aRd rI8F1F1ing Cemmi33iefl during tRis
time can b83t be demonstrated by figure S. As tRe PlaR 'vw183 beil9g eJeJeleped, it \\83
felt thai the Cit) of WooelbuFfl coulell'ossible gre.. Ie a 1'01'l:Jlatiol'l of 40,000 b) the )ear
2000 (past "nign" I'ol'ulation I'FOjeetions for V'JooelbuFfl nael beefl al'l'rOxifflate:l~ 80:)6
low after oRI)' 10 years tiffle). TRe effeet tRis rete of 1'01'l:Jlatiol'l llflwtR Well:Jld Rel'ie Ofl
the I'ublic facilities of the City is elem"l9strateel b) the gral'h. If l'oJ'ulatien gre.. !:II a
relalively steedy l'8le to reae/;!:Ifl ultiffl!:lte goal at 23,000 by the year 2000, the se..Bge
treatfflefltl'laflt .....el:Jld be at capaCity ifl the year 2000, at the efld at its eXl'eeted life
sl'aR. After this tifflC ul'greeling aRel refle...al of the facilities w6l:Jld be required as a
routiR6 mainteflaflee iteffl. If gro..tn .,ere to I'roceeel at the rete which 'lleulel reach
40,000 by the )ear 2000, the City ,'.el:Jlel na.e a 1:)88 l'ol'ulatioFl of 23,000 aflel the
I'laflt ....'eulel be at cal'acity t\.vel'..e years before the eXl'ecteel obsoleseence of tne
sev~8ge treatment f8c;ilitie3. A! it taJeea approximately fi'v'e ~e8r3 to plaR, desigR and
cofl3truet a seliage treatmeflt facility, the I'lal'lfling I'hase would ha','6 hael to begin ifl
1883, oRl1' tlif6G year! after tRe nevv sC"IVage treetmGRt plaRt \fiB! completed, 'IJFlile tlie
37
-
3cv,-ege treatment I'lanl fflakes a fil'le examl'le of ..hat gre.vth can de to I'ublie faeility
"laRRing, thi! is true for acnaels, traFlsportation Flehvorl<3J neller ejiatributioFl system!,
I'eliee and fire I'reteetiofl aflel a nost of other community serviees.
Figure 6
Comparative Growth Rates 1980-2000
40000
35000
30000
25000
200CXJ
15000
1 CXXXl :
1980
,
1985
,
1990
,
1995
,
2lXXl
2. Dllrlnll the , SSO'.
Dllrlnll the , SBO's there was . .tate wide downtllrn In the
_nonry. H a"..,t.ad nro8I .rea. olltslde the Portland Metropolitan
are.. The pl._s whloh did not _e a downtllrn _re the re_rt
area. like ..nd and AsItI.nd. The s"Ie _s losing .pproxlnrately
30,000 people a year In the e.rly to nrld SO's.
Woodbllrn's poplllatlon wa. ",' 9S In , ssa and IlrelN to be
, 3,404 In 1 fHIO. The growth rate aWl,..ged 296 from 1980 to
111110. Thl. repre_ntll an lno,..,,_ OWl,. lhe d_de of 2,20B
people. In 'S70 the population _s 8,750. From 'S70 to 'IIBO
the poPlllatlon lnoreased by 4,448 people this repre_n18 .n
.pproxlnrate llrowth rate of 796 a year. When YOII oonrpere the
fwD de_des It I. obrloll. that fronr , IIBO to '11110 there _s .
_rlolls downtllrn In poplIl.tlon lnorea_. Thl. d_rea_ In
poPlllatlon lnorea_ repre_nts the state of the _nonry. Peopl.
_re not nrorlng Into Woodbllrn bllt nrorlng ollt.
The IIrowth that was realized dllrlng the SO's _s prlnr.rlly In
the Oonrnrerol.1 .nd Indll.trlal _tor.. The pl.o/ng of
Manllf.otllred honre. oontlnued to llrow slowly dllrlnll thl. tlnre
period. The building aotIrIty for new honre oonstrllot/on _s ./ow
38
In tire , SBO'.. (Refer to Building AotIrIty Table 5 PII. 40). TIre _rly
to nrld BO'. sho~ tire g,..."" deoi/ne In new honre oonstrllOtlon.
The late SO'. bellan to .how an 'norea.'ng nllnrbar of new honre
oonslrllotlon, whloh _n be used to I1III8Irate that tire _nonry _.
beginning to tllrn arollnd.
3. The' SSO'.
In the early , SIlO'. there _. trenrendoll. growth, all _otor. of
the _nonry _re thrlrlng. The Ilreate81 Inorea_ In holl.lng
stook _. In tire Mllltl-Fanrlly re.ldentlal _otor. In' IHIO the oily
_w , SR IInlts bllllt whloh was dra.tI_lIy nrore than any year In
the pa.t. The oon.trllOtlon of new .,,,,,/e Fanrlly honre. has
oontlnllSd to llrow throllflh tire _r/y , IHIO'.. Growth In every land
_ _~tor has oontlnllSd to llrow throllflh , ese. We _w a la,."e
nllnrber of de_/opnrent pro/sots within the tlnre frame fronr , SIlO
to , SS8. TIrf. _nonry today _nr. to be 1I0lng 81rong with no
downtllrn In .'lIht.
B. Periodic Review and the CIP
TI9f6ugl9 tR8 reriodic Revriew rrece38, the City 1983 reassessed it! gre".utl; projectiOR!.
rigure 1 ifl Seetiefl VII I'I'Ov'ides IRe most recent 1'0l'ulaliofll'I'Ojeeliofl fer the City. The
year 2000 I'ol'ulation is I'fojeeteel to be al'I'roximately 16,000. AI'I'roxifflately 18,000
l'er3ofls are eXl'eeteel to live .,,;thin Ine city Iifflits in Ihe year 2008. The I'rojections are
baseel Ofl a moelerale gro.~h rate of ::laC l'eol'le per year.
The Periodic Review Process resulted in adoption of a policy committing the City to its
Capital Improvement Plan (CIP). Woodburn's City Council and Department of Public
Works have developed a Capital Improvement Plan which will insure adequate public
infrastructure where needed through the next twenty years. The Capital Improvement
Plan (CIP) ean I. broken down into short term projects and long term projects.
Primarily, it outlines the short term projects, with detailed descriptions of the work
required, the location of the projects, a time line for their completion, estimates of their
cost and the breakdown of various funding resources.
The Plan projects short term projects six years into the future, with 8ft a recommended
annual review and update. The long range section of the Plan is designed to predict
generally what major projects will be required through the next twenty years. This
section is also subject to annual review and amendment. The CIP assures that the City
will comply with Statewide Planning Goal 11 - Public Facilities Planning. The plan
-. de.lgned to oonrply with the Infra.trllOtllre l'eqlllremen" for
the oily In the way of Water, streets, Wa.te Water, and other
_rvi_.. It a/_ atlenrpts to take Into oon.lderatlon Park and
Library Inrpro_men".
39
Table 5
New Blllldlng Aotlvlty for Calendar Year. , BBO - '1194
New Don.trllot/on Only
Single Family Re..
Mllltl-Fanrlly
Manllfaotllred Honre.
Oonrnrero/al
Indll8lrlal
Total
Single Fanrlly Re..
Mllltl-Fanrlly
Manllfaotllred Home.
Donrmero/al
Indll.trlal
Total
Single Fanr/ly Re..
MllltI-FanrllY
Manllfaotllred Honre.
Donrnrero/al
Indllstrlal
Total
Single Fanrlly Re..
Mllltl-Famlly
Manllfaotllred Honre.
Donrnrero/al
Indll8lrlal
Total
No.
37
S3
2
'0
N.A.
'BBO
Value
$',1158,372
" '70,000
, ,337
1188,500
N.A.
'S8R
No. Vallie
'0 $355,21111
o 0
8 33,1100
II 3411,000
N.A. N.A.
24
735, , SII
'32 3,5'8,20S
,SB4
No. Vallie
'4 $447,SOO
o 0
'0 2'4,000
'2 ','53, 'R'
N.A. N.A.
311
',8'5,02'
, SBfI
No. Vallie
8 $R8II,ooo
2 40,000
'3 2S7,'00
5 7211,000
N.A. N.A.
25
, ,355, '00
'S88
No. Vallie
27 $',028,270
33 4'11,000
'4 '77,000
, 0 8SS,500
N.A. N.A.
S7
4,SB5,R70
'SilO
No. Value
'2 $11' ',000
'SR 3, '20,000
S, 3,20',000
II 3411,000
N.A. N.A.
'55 '8,811',000
'S94
No. Vallie
34S $4,R'S,S23
o 0
R4 ',044,400
22 3, '5',20'
7 3, '37,'00
88
, , ,55R,tJSl4
'SSR
No. Vallie
25 $R,77','SR
o 0
RII , ,075,BIIf!I
30 , ,tJSl3,8110
, , 848,500
S5
11,3' 11,448
Note: Tha_ number. do not lnolude alteration. and addition..
40
C. Theory on Growth Management
To deal with the growth problems of the 1970's the City developed a general theory on
growth management. As in any planning methodology, the growth projections were the
foundation upon which the other elements of a management system were built. Growth
projections include not only population but other factors which influence growth such
as housing units, urban land requirements, school age children, etc. Based on these
growth projections, a three-element growth management system was built as
symbolized by the triangle shown below.
GROWTH TIMING
/
/ GROWTH
/1 PROJECTION
/
/
/
L--....._ .--_...---'-
PUBLIC
FACILITIES
PLAN
FINANCIAL
PLAN
On one point of the triangle are public facility's plans. Based on the growth projections,
these public facility's plans estimate the size and cost of needed public facilities to meet
the anticipated growth.
The second point of the growth management system is the financial plan. Since the
cost has been determined from the public facility's plan, the financial plan is a method
of financing, in the most equitable fashion, the needed improvements which will have
to be made to keep pace with the growth of the community. Both of these factors have
been used often in the past in capital improvement programs.
The third point to the triangle represents timing controls. This can include many types
of controls on the timing of growth. Many Communities have used the method of
phasing growth into developing areas using a priority system based on extensions of
existing key public facilities. However, because of Woodburn's homogeneous
environment and small size there is little advantage in developing timing controls based
on developing one area over another, and this method also limits the market for land.
The City decided that the method to time growth would be an ordinance similar to the
limited growth ordinance which had been adopted in the past. It was agreed by all that
the growth management ordinance should only be called into effect when growth began
41
exceeding the levels which had been expected. The best method for doing this would
be establishing "population goals" for each year. The growth management mechanism
would then go into effect only when population growth exceeded those population
goals. In addition, there could be a shortage of key facilities in the City which would
require a slowing of growth, either city wide or in a certain area. The growth
management ordinance was determined to be a much better means of dealing with this
than a moratorium.
The Council then uses the growth management ordinance to bring growth back within
the expected boundaries within three years time. In this manner, Woodburn will
accommodate its regional share of housing but can prevent, without any great damage,
the type of urban sprawl and uncontrolled growth which have destroyed many fine cities
in the past.
The triangle as a symbol works well because it shows the interrelationship of the
various elements of the Plan. If the growth projections change then all three elements
of the Plan would also have to change, public facilities, financial and growth timing. If,
however, the growth projection remains the same but there is a change in anyone of
the three elements of the plan, it would affect the other two elements. This method of
managing growth would allow the City to be fully aware of the consequences of its
decisions if the growth management plans are carried out.
There may be times in the future when the growth projections would change. For
example, if there was a change in the regional growth which would require Woodburn
to accept a larger population to accommodate its regional share of growth, this would
affect the growth timing mechanism and more importantly, would affect the public
facility's plan and the financial plan. The City would then realize what the additional
cost of the unexpected increased growth in the region would be in Woodburn. The City
might also find that sometime in the future a change in local goals would require a
larger population to be accommodated during the planning period. The City could then
raise its population projections and the effect of this population projection would be
reflected in the public facility's plan and the financial plan. The City, before taking this
action, should be aware of the financial implications of such actions.
The City could also find that there would be a need to change the interim goals while
retaining the final population goal. For example, if a large industry desired to locate in
Woodburn which would have an effect on the local housing market, the City could raise
interim goals to accommodate the increased growth which the industry would bring and
then phase growth down after the industry's growth is accommodated. This would not
necessarily be a change in the growth projection, but a change in the growth timing
mechanism. Again, the public facilities plan and financial plan would be affected but not
as dramatically as if the growth projection itself had changed.
The City, therefore, sees the growth timing mechanism as an essential element to
continued good planning for the City. In Woodburn's situation, located between two
large growth centers, it would be almost impossible for the City to adequately plan and
42
.."""-~--" ,._."-~_...,-"._,...
manage its growth without some type of mechanism to prevent the economic and social
problems which are caused by rapid growth. Te ejuote "em Richard r. ApI'lebaUffl's
1Q78 book, "Size, Cro,~h anel U.S. Citic3.
"The I'attcrn of effect3 (of grewtn) fflay be 3ufflmarized as follo.,s; criffle i3 negati.el~
assoeiateel yvith 3ire; public health is f1egali.ely a3seeiateel ..ith gfOv~h; ffleelian ineeffle
is nigner in larger anel fa3ter groy,il'lg area3, but this i3 offset by the nigher nOU!ling
COSt3 afld tne east of liying generally in suen I'laee3; aflel tne cost of many eit) seryiee3
seem to be lowe31 in "laces that are ncitner losing 1'0l'ulalionl'l6r greyyiflg at a rapiel
f8te!l:-
Tne City feels thai the best leng range selutiol'l te affordable neusing in tne City of
'lvoeeJbuffl is 8 Ff16eJef8te BAa controlled QfOVlttl rate vfflieh accepts tl=\e regionsl hou3iAg
of the ar-ea bull'fevcnt3 tne aeeelerateelboeffl aflelbust eyele whiel9 nas elone 30 muon
narffl to otner cities in the Uniteel States.
D. Eoononr/o E/enrent
The o_rall approaoh of the City to I,. eoononr/o problenrs Is to
work to renro_ barriers to the free and effeot/_ operation of
nrarket force.. The City prefers to allow the private seofors to
deternr/ne the rate of eoononr/o growth, the natllre and type of
IIrowth, and other eoononr/o de_/opnrent paranrelers. Pllbllo
polloy will be to renro_ oonstraln18 on the free nrarket by nraklng
Sllre that properly zoned land, water, se_r serr/_s, poll_ and
fire proleotlon and other _rrl_s are nrade available. The City
will attenrpt to oreste oondltlons oondllO/_ to llrowth and
deve/opnrent, bllt the Inltlatl_ for eoononr/o deve/opnrent will
oonre fronr the private seotor.
The effeot of this approaoh will be e_ntlally a oontinllatlon of
exlstl"" oondltlons. The bas/o 81rllOtllre of the I_I eoononry will
ohanlle ./owly. Ma,."lnal Inrprovenrents _n be expeoted In the
short rlln and this approaoh also a_IdS nrany of the risks
as_o/aled with a nrore al1l1re_l- pllbllo polloy. IEren a _II
planned eoononr/o polloy In_IrI"" sllInln_nt pllbllo oonrnrltnrent's
run. the risk of IInfIIlnlled expeotatlons, IIns.-_ssfIIllnveslnrents,
flnano/al problenrs for exlstlnll blls/ne_s, resollrce nr/_-
allooatlon, and a variety of other problenrs. By adoptlnll a
co~rvatlre approaoh to Its problenr. the Olty minimizes nrany of
these risks and follows the nrore _lII/olIs _llII/ons of the free
nrarket. Therefore, effeot/_ ooordlnatlon be'-en the pllbllo and
the private _tor. Is Inrportant In s_s.flll lonll ternr planning
of Woodbllrn's eoononr/o de_/opnrent.
43
VII. POPULATION PROJeCTIONS
A. Poplllatlon Charaoterlstlos
One of the most crucial items in developing a Comprehensive Plan for the City is trying
to determine how much population the City will gain or lose in the planning period. As
paFt at its 1988 reriedie Reyiew, tl'le City of 'J'v'ooelbuFl'l nas ehosen to aelol't the
l'opulati()fI projections fflaele by tne Cel'lter fer rOl'ulation Researel'l at roFtlanel Ctate
University. Tne) iflelicate a reasonable iflerease at a moelerate rate at growth for the
next 20 ycars. The I'rojeetion year 2008 I'opulalion is alfflost 18,000 persons. In
, SII4 the Center for Poplllatlon Re...roh at Portland state
UnlrersHy deternr/ned the poPlllatlon of Woodbllrn to be '5,232.
Woodbllrn's poPlllatlon Is startlnll to ha_ the _nre strllotll_ a.
Marlon Collnty. The aile o/as. of 0-5 has a snrall dlffe__ of
, .296 whloh Woodbllrn has a hlllher pe~ntalle. This I.
oharaoterlstlo of Woodbllrn beoallse of the YOllng fanrllles. The
aile IlrollP of 24-44 has a la,."e dltte_noe In peroentalle of
poPlllatlon. Woodburn Is 7. , 96 lo_r In this aile oa,."ory than the
Collnty. A1thollflh Woodbllrn Is nrllOh lo_r, It Is Showing a la,."e
lnorea_ s/_ '970, whloh I. bringing the pe~ntalle o/o_r to
the Collnty.
Woodbllrn has shown a DDntln1lO1IS llrowth ,..,. of 396. As of , SS4
Woodbllrn's poplllatlon wa. 1196 of Marlon Collnty. It Is estimated
that by the year 20'0 Woodbllrn's poPlllatlon will be 7.796 of
Marlon Collnty.
11'1 tl'le origiAal 'NeodbuFfl 2000 rlan, I'ol'ulatiofl I'rojeetions were baseel Ofl ti"le
Mia 't..,(illamette \/elley cee 2008 \^~3tc \v~v~eF MSRSgCfFl8flt rlafl. In tl=le eriginall5lsFI,
several alteFFlativ6 3oon8fies of grevJtI=l yVCfC G6"3ieJerea. It ..,,/83 felt tR8t the 13613ulatioFl
prejeetioR of 23,000 by the year 2000 ..as the fflosllogical aRd be3t suited for the City
of 'yA.(eeabufR. Tni3 projection ;",'83 usee t6 determine tR8 land U38 need! of the ot196f
elements at the 'J'v'ooelburfl Coml'rehensi.e rlan (see rigUfG 1 aAel Table 3).
Tnt: 1 ::>88 rerioelie Reviey. population prejeetiofl inelieates growtn wi"lieh is
al'Preximatel) equal to tt'lal at tne region. Aeeereling to the rsu elata, Marion Counly's
populatioA ..ill il'lerease from 210,000 iA 1::>88 to 267,700 in 2000. Woodburn
rel'resents 5.4% of the COURt)' pel'ulation in 1988, iflerea3ing 3lightly to 6.7% in 2000.
Most of the I'opulation inerease i3 due to migration iflte the COffiffluflily. 11'1 Weeell'lufR,
the earl) 1080's '.yer-e a perioel of milel (3% per year) grey,.1h. The Cil)'3 grevl'll'l eontrasls
with the statewiele trenel because oyerall Oregon ..a3 losing I'ol'ulation eluriA\'j this
period at tiffle froffl (1 ::>80 1985). rigure 1 identifies '.'\:ooelbuffl's I'ol'ulatiol'l gro'vV'lh
eluring that time. Througn the early 1::>80'3 ti"le only unafltieil'ateel e.eflt vyas tl'le faet
that our I'oj:lulatiofl I'rojeetions, lanel elevelopmeflt, anel ol'tifflistie eceflofflie gre',rlh
potenlial3 v.ere nol fully realized. Iloweyer, sinee 1::>85, grovv'th iA the buileliflg seeter
nas begufl te surge fer..-arel but has elevelol'eel ...ithin the guielelines of tne
COffll'renensive rlaA aflel Mal' guideline3. Tablc 4 I'fO,,'ieles a I'erspeetivc 01'1 building
aeti'yity from 1::>80 to July 1::>87.
44
iii. Poplllatlon Pro/eotlons
The poPlllatlon of Woodbllrn Is pro/eoted to be 28,000 by the end
of this planning period, y_r RO' 4. C_e Flgllre 7 Poplllatlon
Pro/eoI/ons PII. 411) Thl. flllllre of 28,000 by the y_r 20'4 wa.
_/olllated 1I.'ng a 3% llrowth rate. The aile braoket of 115+ has
.hown a oontlnllOlIs deorea_ In pe~ntalle. This Is dlle to the
faot that the "n/or poPlllatlon In Woodbllrn Is renralnlng oonstant
while the poplllatlon of YOllnger p_ple oontlnll8s to IlroW. This
sltllatlon _"_S the pe~ntalle of 65+ y_r old people In
lIIfoodburn to d____. It Is eJCpflotBd that Woodbllrn'. poplllatlon
pe~ntalle will b_nre nrore like Marlon Collnty throllflh thl.
planning period. It I. expflDted that the poplllatlon will oontlnll8 to
llrow and dl_rs/fy.
Table 3
Cstimatad 1986 and prejacted 1991 to 2886
Populations of the City of Woodburn, Oregon
1988 Gen3lt5 198& astimak 1991 rr~jceticn
~e Mala3 rentala5 Total Male3 remale. Total Males remalft3 Total
e 4 .~ -'161 92~ aea 319 ;12 -4'i6 -428 8:"1
59 Jt81 ~ 79i3 031 -'IElIS 006 112 Xl7 BOO
18 1.( aye ass 1S1 -4'i6 - 879 663 663 1.116
1S 19 aS1 ~7 ~....8 .o4z.^8 -4a8 858 513 !5a3 1.816
2e 21 487 38~ 79i3 -42.'"'8 ..c~ 6B8 58.04 5a6 1,lH1
2t:29 38e 382 762 482 168 911 527 51-2 1,_
Xl-304 aGe 326 629 1E:2 431 6lla sel 5:2") 1,111
3€39 236 284 47-2 33E: :JE:3 6B8 lEI!: 172 9€:?
1811 193 191 381 25a 2..lf." 68EI ass 375 -
1[: 18 1-'18 166 314 282 281 183 26? 200 538
59 ~1 1E:e 10C 304;' 158 178 326 2EI8 216 .e;
$00 285 2-48 4 lIE 156 2O~ 300 161 193 ae;a
El3E:1 258 - 007 288 2.(3 442 100 219 379
61>00 31~ -4?1 r&: 231 304;2 576 281 200 461
79;.4 368 68EI 6B8 2elS: m 768 211 333 &+4
XI &38 893 1,G;1 6:12 1._ 1.844 - 1,lES 1.7€8
T otal3 5,227 5,9&9 11,196 6,618 6,Z72 11,791 &,229 7,998 13,228
199& Projection 2091 Projaeticn 200& P'rojcGtion
Aga Mal('3 rLmale3 Total Males r~male.3 Total Malu remal45 Total
8 4 E:ZEi E:BB 1,OO~ 68i! E:7e 1,182 sa7 Ei11 1,2G1
5-9 186 - 957 568 E:18 1,11.4 834 619 1,2.44
101-4 -466 .+47 913 5041 519 1,868 621 !l36 1,217
1&-19 629 S12 1.232 528 SS6 1.829 !l36 S18 1.17e
2S2~ 58a !S88 1,171 EliI8 f!IR 1,387 594 501 1,185
2529 &:11 fJg? 1,Zz.~ 6Ye 6Y'6 1,a18 7'18 78!S 1,5:63
3931 E:13 sae 1,2~ f;1O 6B~ 1,954 iE8 7a4 1,.e
3(39 619 563 1,181 648 6tH 1,a12 '713 '719 1,132
18 11 E:12 - 1,003 635 !>8G 1,215 at1 E:81 l,31E:
1E f3 3ee 38:' lES 519 581 1,8>:1 S.E 68EI 1._
seS1 z;re 2;r~ &+4 ass ~6 '7OC ISle 688 1,821
EE59 21~ 231 4046 278 2ae !>8G 366 -486 na
00 &1 1S3 2904 367 212 2-41 .04&4 266 296 S62
ocee 163 - Xl7 lOC 228 aee; 218 255 -
78 71 188 219 ~29 1-4€l 226 la7€: 151 21a a&~
tEl 52~ 1.116 1,642 .4f;. 1,818 1,1:r.2 3EIEl - 1.326
Totals 6,993 7,&28 14,532 7,&99 8,333 16,9Z3 8,636 9,107 17,643
45
..~ ._...,._.~,,,~. ___...._,_._~.__.._._"O~_._~.,______'_~~~
Table II
Poplllatlon Enunreratlon , 980, , SSO, , S94
for the City of Woodbllrn
, S80 Den.lI. , SSO Den.lI.
Aile Male. Fenra/e. Total Male. Fenra/e. Total
0-4 4116 411' S27 5B4 511S , '53
5-S 40' 3S2 793 53' 525 '0511
'0-'4 372 3BS 711' 4611 452 S'8
'5-'S 36' 3S7 758 435 394 BRS
20-24 407 3BII 7113 520 40S S29
25-2S 380 382 7112 4711 42S 1105
30-34 308 323 62S 452 37' 823
35-3S 23B 234 472 374 374 748
40-44 '113 'S, 3S4 3'0 2S' 60'
45-49 '48 '611 3'4 25S 254 5'3
50-54 '52 'S5 347 'S, 204 3115
55-5S 205 240 445 'SO 229 4'S
60-84 258 34S 607 2011 295 50'
115-IIS 3'4 47' 785 307 42' 728
70.74 388 500 8BB 3110 5211 B811
75+ 83B BS3 '53' 7311 '284 2000
Total. 5,227 5,9119 ", 'SII 6,3S7 7,007 , 3,404
, S94 Den.lI.
Age Male. Fenra/e. Unknown Total
Unknown '04 , '11 8110 '080
0-4 700 8311 " '347
5-S 5113 587 2 "72
'0-'4 55' 5'S , '07'
'5-'9 4811 4110 0 9411
20-24 572 45' 3 '026
25-2S 580 44' 0 '02'
30.34 503 447 0 S50
35-3S 422 3S' 0 8'3
40-44 30' 343 5 84S
45-4S 27' 2fSB , 54'
50-54 247 247 0 494
55-5S '92 233 2 427
110.84 247 36' , 60S
as-as 279 375 2 6511
70-74 3511 503 2 86'
75+ 837 S3' , '511S
Total. 703' 73'0 89' , 5,232
46
Table 4
Building Ac:ti'.i~ for Calendar Yc:ars1989 1987
1989
1981
1982
1983
t~o. Vall16 t~o. 'Ia11:l6 t~o. Valtle t~G. ValtlG
or Res. J7 $1,6S8,372 27 $1,88e,458 10 $3SS,296 1.4- $429,090
Mr Unib 93(1) 1, 178,eae 119(3) 1,397,eee 0 9 0 0
Mobile Ilomt:3 2 1,337 7 96,888 8 33,900 10 1 SO,OOO
Oon"ln,ereial 10 ESS,See 3 391,900 6 J48,eee 4 622,099
Dcrnoli3" 7 S,1eS 7 11,nO 5 1,882 2 9
1984 1985 198& 1987
t~o. \{all1t: tJo. Valtlt: No. ValtlG t~o. ValtlG
or Re!. 14 $447,900 is $gge,eee 8 $289,000 22 $880,8S8
Mr Ul'\ib 9 0 76(5) 1.759,909 2 4B,eee 38 S8e ,e8e
MobilG Ilon,l,5 19 214,990 11 177,599 13 297,188 19 371,540
Ooml,.cre;ial 12 1,153,121 18 1,118,718 5 729,090 S 723,172
DCI.,olmon 3 2,990 4 0 8 J,eee 0 9
Source: Building Official Memo, December 31, 1987
47
The followIng figure I. excluded from thl. document
and figure '7 of the next page will take Its plaoe.
Figure 1
Population Projections (Through 2008)
200001--~-
15000L-----
z
o
i=
:s 1 0000
~
0..
o
0..
50
17500 !! 96
....--
16~21. _ .!-6~!l.- --
---
,
o ~------'--.-T~~-'--- ~- I
1965 70 75 80 85 90
YEAR
I
95
I
2000
5
8
'-----~-l
I Legend
I ____ Actual pOPulation,__ I
L-=- ..- - Projected popula~
48
50000
45000
40000
Z 35000
o
~ 30000
III
... 25000
:)
L 20000
o
L 15000
10000
5000
o
FIGURE 7
Population ProJeotlons to the year 2023
",-~_._,-~'-----'--'----~~-
,+
;Y
-----~_..._-_._._..~~----"
,
...- ...+'
.
,.,.--'
..... ,.
.... ..--/
,II' ""rr-
............... ".--
+".._-~.....
.....+'.. ---...- ....-....
Ar ......_.r' .....-....-
.....+- ,., ~,4r
+_ .. I ___ ___- _~ _.-
...k'" ~ ._r-~
..___~,____~-I: -:t' ..-.... . ....-...-..-
+..... ,:'_Il- _Ir-'-
'. .-oAr-
.....~.--
. -
1965
1991
2008
.------
Legend
-. - WOODBURN
-.- - P...U.
- + - HIsTORIC VALli:
49
VIII. LAND NEEDS FOR THE FUTURE
Goal 14 of LCDC requires that a city justify all the land that it will need for the year
2ee8 20'4. Basically, the issues related to establishing an urban growth boundary
and the land uses within it can be summarized as follows:
How much area will the City require for urbanization by the year 2ee8 20'4; and
Where should the various land use be located.
Land requirements for the City of Woodburn are based on the expected population
increase to 18,000 28,000 in the year 2ee8 20' 4. Tables 7 afld :) 8, 9, ",
and '2 give detailed breakdowns of the land available for development in the plan.
It shoulelbe fleteel tnat a e6ffll'ari3en witn Table 2 will she... that subtraeting tne laflel
currently in use ffeffl the tetal affleunl elesigflaleel in the I'lan '..ill flet yielel the figure
Sl=lOiVfl83 "availaBle for eJev~16prneFlt". DGe8U3e t196 plsn mu3t reflect tlge current zOfliFlg
of the lanel, se',eral areas tAal are ele3igflateel as oomffiereial or high elensity resielential
are actually in siFlgle famil) U38. Ttie figure anOn" uFleJer lls'y'aileble for eJe'y'c;lopment"
is the sum of a.ailable lafldl'resefltly in the City, anel yacaflllanel outsiele the City but
....itnin the urbafl groytl:n beunelal'). Tables 7 anel10 iFlelicate the amouflt of land .yhien
the City is oXl'eeteel to require through the year 2008. 11'1 eletermiFling the affleunt of lafld
f1eeeled there are three basie eategories to eeflsieler:
Residential;
Cemfflercial; anel
IFleJu3triel.
A. Residential
Existing Housing - Although the absolute number of single family homes in Woodburn
has grown significantly since 1970, the percentage of single family homes has declined.
Table 5-- 7 PII. 52, illustrates the steady shift in the mix of housing in the community.
The Woodburn housing market has expanded and grown rapidly since 1960. There has
also been a shift to multi-family dwellings and mobile nOffles Manllfaotllred
Home.. The median family and household incomes are below the Oregon average
and, coupled with a vacancy rate of near zero, a large number of Russian and
Mexican-American households, and a long waiting list for subsidized housing from
people currently living within the City limits, the need for low and moderate income
housing is substantial.
To accommodate the anticipated growth the City should take specific leadership in
advocating growth and develop policies to encourage development and annexation.
Three growth scenarios have been formulated to project new housing requirements.
The first scenario would create approximately 6,000 new households, enough for a total
population of 25,000.
50
----,^_.--- ,-
.'-..
The City should:
1. Promote and encourage a diversity of housing types and prices;
2. Encourage an orderly extension of services;
3. Expedite review processes for development proposals; and
4. Establish areas suitable for different housing types within the UGB.
Scenario two projects a total population of 20,000 and a total number of households at
8,330. The City, in order to minimize costs and control the rate of growth, should direct
growth to zones of least cost.
The final scenario would severely restrict growth to 15,000 total population and to 6,250
total households. The City in order to protect its present character should strictly limit
the number of new residential units and establish and rigidly enforce standards for
annexation of additional lands.
The Planning Commission recommended the final housing requirements should be
based on a population of 23,000 by the year 2000. If housing demands exceed the
average units per year required, a Limited Growth Ordinance would become effective
immediately.
Table 5
I lousing Type
1979 Pereent
1978 Pereent
1987 Pereent
Single ramily
Multi ramily
Mobile Homo!
2,5-4C
261
153
86%
:J%
5%
3,366 77%
6Cl6 16%
292 7%
4,1:J1
1,01::4
383
74%
1:J%
7%
1 IflGlueJf:3 to'yyflI=lOU3C,'C;OFldo
2 Ineludes l3arks anel subelivisions
The I'ereefltage of housing elevelopffleflt rel'f6seflteelby fflulti ftlfflily has inereaseel
elrafflatieally sinee 1070. Table 6 rel'resents tne City's 1088 ifl'~e)f1tof) ef fflulti ftlfflily
unit! eXGlueJiFlg tOVyFlnOU383 aRa cOFldominium!.
51
Table 7
HOII.'nll Type
Type of U.e Year Nllnrber of Unit. % of Total
'S70
Slnllle Fanrlly 25411 811%
Mllltl-Fanrlly 28' S%
Manllfaotllred Honre. '53 5%
'B80
Slnllle Fanrlly 34'S 75%
Mllltl-Fanrlly S, , 20%
Manllfaotllred Honre. 23B 5%
'SSO
Slnllle Fanrlly 35S7 73%
MIlItI.Fanrlly 8S11 '8%
Manllfaotllred Honre. 3B3 8%
'SS4
Slnllle Fanrlly 3508 115%
Mllltl-Fanrlly '253 23%
Manllfaotllred Honre. 117' '2%
Note: The flllllre. above are _otllal Cen.lI. flllllre.. The data
abo_ IIllIstrates _nre hlllhly lnaoollrate oollnt. of hOIl.'ng .took.
For lnatanoe the nllnrber of Slnllle Fanrlly IInl18 for , BSO I. hlllher
than the , SS4 IInl18. The nllnrber. nray be lnaoollrate ~1I.e
there has been oon.lderable de_/opnrent In the_ fOllr year..
Another problenr are. I. In the Mllltl-Fanrlly oatellory. The , S80
Mllltl-Fanrlly IInlt. I. '5 IInlts hlllher than , SBO. Again thl.
11I1I.trate. that the Censlls flgllre. for hOIl.'ng IInlts nray be
lnaoollrate.
Housing Need - Based on building permits issued since 1980 (Table 4 5 PII. 40)
fI'Iobile Manufactured home development increased its share of the City housing
market. excluding fI'Iulti tamil) e1ev eI6J:lfl'lel'lt, Mobile Manllfaotllred homes made
up approximately 5% of the new home permits issued in 1980. In t986 'sso and
4987 1994 the percentage had grown to tlel\veefl 55% B% and 65% 12%. Altnougn
tnese tuo years rel'resel'lt extreffles, tne The City anticipates that fflobile the
peroentalle of Manllfaotllred homes eot:Ilti will continue to fflal<e up an
average of 25% to 35% of tlge fie., heme permits issueelllrowduring-ti'le next thl.
planning period.
The City of Woodburn currently has four fI'Iobile nOffle I'arles .yitl'lifl tne cily limits. Tlgese
four parks support a total of 28C 117' Manllfaotllred Honre dwelling units, which
make up approximately 5% '2% of the total housing. Based on recent permit activity,
there has been more interest in the placement of fflobile Manllfaotllred homes on
single family subdivision lots rather than in the traditional mobile home parks.
52
Thererore, the City projeets thai the bull< 6f ne..' fflobile hOffles will be I'laeeel on
su6division lots aflel tl'le I'ereentage 6f I'leedeel fflobilc Maflufaetureel heffle I'arl< sl'aees
'vvill remain steady, at 8reuFleJ 5%.
OAR 660 08 030 reCluires regi6l'lal coorelinatiofl 6f allocalion of housiflg types. The
allocation of the I'rejceteelnufflber of adelitioflal housing units for 2007 can be brol<8fl
e1oyynb) 1)1'63 iflto tne folloyying percentage3:
1I0using Type
% of Projection
Sil'lgle ramily
Multiple ramily
Mobile Iloffles
52%
18%
30%
With approximately~ 238 surplus acres designated for multi-family uses and
approximately 6+1- 757 surplus acres designated for single-family uses and with
mobile Manllfaotllred homes allowed in either designation under certain standards,
Woodburn can more than adequately provide the necessary land for projected
increases in mobile Manllfaotllred home, multi-family, and/or single-family
development as illustrated in Table Band S PII. 54.
Table 7
Projected I lousing Needs Within Woodbum's UGI3
2997
1987 2997 %of
j of Aere Add. Acres of
ageDwell)well Unde...eloped Surplus:
Uflits Percent Needs Units Acreage Deficit
Siflgle rafflily 4, 1::J1 74% 1,415 283 900 617
Multi rafflily 1,005 18% 475 40 260 220
Mobile Ilome rarks 286 5% 167 21 220 1::J::J
Mobile Iloms Subeliy. ::J7 2% CC4 133 484
351
TONnhouse Conelo 59 1% 23 6 203 1::J7
TOTAL 5,638 199% 2,744 483 2,967 1,584
Note: Uflele\elol'ed acreage figures ifleluele lanel! available insiele the UGB anellanels
a'.'ailable insiele tne eity lifflils. D"lelling unit I'rejeetiof1s are baseel efl a l'ol'ulatieM 6f
17,::J86 in the )ear 2008 anel aM alerege nouseholel siz:e of 2.15 persons I'er uflil. Tne
City of 'Nooelburl'l SUI'I'ORJ a very large greul' pOl'ulalion of seflior eitizens. This
rt;eJuees the so/crage l=IouseneleJ size in '/.'eeelbufFl.
53
-^'- ..._,.~'--_.-.-._'"~--
'.---..,
Table B
Potential HOII.'ng Deve/opnrent
, of Unl18
HOII.'ng Type , SII4
Bingle Fanrlly 350B
MllltI-Fanrl/y '253
Unde_/oped Unl18
Underde_/oped Per
Aoreelle Aore
Potential
Additional
Unl18
734.3
245. ,
II
'2
35S14
R353
Note: .,.". BIngle Fanrlly IInlts per __ oan aoiually ha_ a hlllher
den.'ty than II If there I. a situation .lIGh as a Planned Unit
Deve/opnrent (PUDJ. .,.". Potential Additional Unl18 oolunrn Is
based on the Underde_/oped and Unde_/oped land within the
Olty and uas. There was 2O'J6 of the aorealle taken ollt of the
total aorealle Unde_/oped and Underde_/oped oo/llnrn to
aooollnt for Road.. The renralnlng BO'J6 wa. nrultlplled by the
nllnlber of Units Per Aore oo/llmn and the resllltlng nllmber Is the
Potential Addlt/onal Unit. for esoh hollslng type.
HOlIslng Type
Bingle Fanrlly
Mllltl-Fanrlly
Table II
Pro/eoted HOII.'ng Need
Theoretloal Houalng
" of Unit. 'J6 of Needed for Pop of
,l1li4 Total 28,000 by 20'4
BllrplllS/
Deflolt
Units
350B
'253
74
211
211ts~
'04B
+580
+ '305
Note: Manllfsotured honre. are not flgllred Into thl. equation
beoall_ they oan be oon.,dered as Bingle Fanrlly and as MllltI-
Fanrl/y. The Theoretloal HOII.'ng Needed for the year 20'4 at a
poplllatlon of 28,000 _. flllllred ollt 1I.'ng thl. equation:
Pro:e,,#ed prrpu/atlon - Ollrrant poplllatlon = X Then YOII dlrlde X
by R.B _h/oh I. the holl_hold s/_ and YOII lIet . theoret/oal
hous/lJll need. To "lIure out. Burplus / De"olt numbe,. you ha_
to take the Potential AddltlolJlll Units number from Tabl. II ami
.lIbtraot the Theoretl_1 HOlIslng Need Nllnrber 'ronr thl. Table.
54
"-
Aeeoufltiflg for all nousiflg t)pes the City eafl estifflate a total surplus of lanel for single
famil) uses of al'I'roximately C17 ecres, and e sUfl'lus of a'.ailable fflulti fafflil) uses of
al'l'roxifflately 220 acros.
OAR 660 08 040 reejuires eitie3 thai regulate housiflg tenure must eonsieler n6eel
ace;6feling 16 tenure in their 8F181Y3i3. '/y~60eJbufFl doe! Flat regulatt: tenure, therefore,
tenure i3 Flot cOR3ielered in the fU;od3 8F1al)3i3.
To maintain a stable market in land, the City included approximately 30% more land in
the original UGB than required. The surplus was intended to ameliorate the effect of
an urban growth boundary increasing the cost of land. This essentially would be
balancing the need for housing against economic consequences of an urban growth
boundary. Strong annexation policies prevent annexation of land which would not be
utilized. To retain flexibility in the Comprehensive Plan and to allow for a good
marketplace for land necessary for development, approximately 3096 additional
aores of land was included in the UGB.
The rationale for including the additional 30% of land as a vacancy factor was that
when the limits of the UGB are reached a monopoly on available land may occur which
may drive up the price of land. Simply because agricultural land was included in the
UGB does not mean that this land will be utilized for urban uses or even annexed and
provided with services during the 20 year planning period. Strong annexation and
public service policies included in the Woodburn Comprehensive Plan preclude this
type of urban sprawl which has occurred in the past.
Permitted Housing - OAR 660-08-015 requires clear and objective standards,
conditions and procedures regulating the development of needed housing. The
Woodburn Zoning Ordinance Map delineates four residential zones, two of which are
for single family development and two which are for multi-family development. The uses
allowed in each zone are:
Table 10
Housing Types Allowed by Zone
R1S
RS
RL
RM
Codes:
P = Permitted
NP = Not Permitted
CU - Conditional Use
Senior Residential
Res. Single Family
Limited Multi-Family
Multi-Fam. Residential
SF DUP Multi M.H. Sub. M . H
Park
P NP NP NP NP
P CU NP P NP
P P P NP CU
P P P NP CU
Zone
55
,..-'.....
Table-8 '0 PII. 55 reveals that the residential uses allowed in each zone are clearly
defined. Criteria for Conditional Uses are simple, clear, and objective. It should also
be noted that the City's Planning Commission under Chapter 11 of the Zoning
Ordinance reviews all site plan requests for compliance with zoning standards and
conformance to the Comprehensive Plan.
No building permits for Mllltl-Fanrllyresidential structures are issued until the site
plans have been formally reviewed and approved under the provisions of Chapter 11.
As shown on Table 8 '0 pg. 55a duplex unit is a conditional use in an RS zone. If
the duplex is located on a corner lot of 7,000 sq. ft. or more, meeting all other standards
as outlined in the zoning ordinance and/or as required by the Planning Commission,
a duplex can be constructed within an RS zone.
Chapter 19 of the Woodburn Zoning Ordinance clearly outlines all standards and
conditions for the review and development of both mobile home parks and mobile home
Manllfaotllred Honre subdivisions. In addition, Chapter 17, 20, and 21 of the
Zoning Ordinance outline standards and criteria for Solar Access Recordation.
Conservation and Renewable Energy Housing, and Planned Unit Developments.
Housing Programs - A circumstance, related to the seasonal influx of transient
laborers to Woodburn throws an element of variability into future population projections.
It is estimated that there are as many as 4-;500 ',BOO additional seasonal workers
residing in Woodburn throughout the growing season. These people, although very
difficult to count, have a significant impact on available housing and services city wide.
Woodburn has nearly a zero percent vacancy rate for rental housing. A housing
rehabilitation program is currently in operation offering low interest, deferred loans to
low/moderate income homeowners in Woodburn for repair maintenance, and
rehabilitation of housing within certain target areas. Areas identified as having the
highest percentage of homes in need of basic repair, roofs, foundations, paint,
sidewalks, etc., have been targeted for rehabilitation. At present the city is
administering approximately $ 752,000.',000,000 in a revolving loan fund, wittt
a !,Ian to rl;habilitate at lea:!!t 75 nome:!! oyer a tnree year I'erioel. whloh has
rehabilitated at least '27 honres o_r a three year period.
Moreover, since Woodburn's plan and zoning ordinance do not restrict or regulate
government assisted housing in areas zoned and planned for residential use, the plan's
provision for adequate land for all housing types ensures that adequate land is
available for government assisted housing thereby satisfying the requirements of OAR
197.303.
B. Commercial Land
While residential land determination is straight forward, determining the amount of land
required for commercial uses is somewhat more complicated. Although several
56
methods are commonly used, data for most are either unavailable for proper analysis,
or the method does not appear to apply to Woodburn's situation. The method for which
data is available is based on land use per capita. This method depends on the
accuracy of the projections for population and on the assumption that present land use
per capita will not increase or decrease in the future.
According to data from Woodburn's pest-plans compiled in- fronr 1964 efl6 to t968
, sse, the use of commercial land per capita has remained fairly consistent. While the
total increased from 61.1 acres in 1963t0211 acres in 1988, and RtS2ln ,seethe
acres per capita remained fairly stable as illustrated below.
Year
1963
1968
1979
1988
,see
Commercial Acres
Per capita
0.018
0.019
0.019
0.018
0.0'11
The historical consistency would indicate that this is a reliable method for projecting
needed land. Assuming that the present ratio of population to commercial land use
continues, the City should expect to use approximately 844 44B acres of land for
commercial uses in the year 2ee8 20'4, with a population of 18,000 2B,ooo
oon.'der'ng a Donrnrero/al AOreBlle Per Oaplta u_ of .0' II.
It should be noted that some future commercial use will be established on land which
is presently in commercial use, especially on Highway 99E. Many of the present uses
are inefficient and were established in the County or when the City was smaller. The
land is now more valuable than the current use would suggest. It is also expected that
increased effieiency densltle. of commercial uses will be possible, especially
mall type developments as opposed to strip commercial. will result ifl col'\oofltratioflll
of oofflfflereial Ulles. This may also assist in the redevelopment of the downtown area.
57
.-
Table 9
Oommercial Industrial
Land Uses Designated in Plan
kwailable Use Per Use Per
Total for De.'el. In Use Capita Oapita
Use Plan in 1980 in 2000 1979 2000
COfflfflercial 0460 344 333 .018 .01::J
II"Idu3trial 5::J6 330 430 .017 .024
Mi3ccllaneou3 2CO 90 350 .016 .015
Table "
Conrnrero/al - Indll8lrlal
Land U_. De.lgnated In Plan
U_ Total Ao. Dev Ao.
In plan , sse
Conrnrero/al 483.7 25R.5
IndllSlrl., 5II1II. , 383.11
Undev Ao. U_ Per Capita
,sse ,sse
23'.2 .0'11
205.5 .023
Note, U_ Per Capita = De_loped aorealle dlrlded by total
poPlllatlon.
58
--
Table 19
Oommercial - Indtlstrial
Theoretical Land Needs to Y-ear 2998
Use/Type
COfflfflereiel
18,000 I'ersons@ 1.86 act
100 I'ol'ulation
IAauslriall!
18,000 I'ersens @ 2.30 ael
100 I'ol'ulatielfl
1 \'acaflC)' factor nol useel for COl'l'lmereiel Lanel.
2 A elifferent forl'l'lula is uscel for Inelustrial Laflels sinee tne afflounl of lanel
I'6lati~'e to I'ol'ulation l'l'Iust be inereas6el. Tne forfflula is:
Iflelu3trial Laflas neeeleel- Tetel City I'Ol'ulation ifl year 2008 x aeres per 100l'ol'ulation
ifl )ear 2008 - rreseflt Inelustrial Lanel Use.
Urban Land
Needs In 39%
Acres Vaeaney
335
Total
Theoretical
Needs
335
Acttlal
Available
InPlan
460
414
124
538
5:)6
Tabl. '2
Oonrnrero/al - Indll8lrlal
Th_retl_1 Land Need. to the Year 20'4
Theor. Urban Land AOIllaI Available SlIrplll. / Deflolt
U_ Needs for 20'4 In Plan '11114
Oonrnr. 44B
Indll8l. 844
483.7
5811. ,
+ 35.7
- 74.11
Note: Theoretl_1 Land needed = Prol_1ed Population" U_ Per
Capita. (1/18,000 pop by 2014 It (.OJl3Indu.trlalJ(.0'. Comm_I.'J
Cllrrent U_ Per OapltaJ
59
C. Industrial Land
The problems with projecting needed industrial land are the same as that with
commercial land. However, an added problem is created by the City's~ desire to
increase the amount of industrial land in the future. The reasons are as follows:
1. The City's ffleelial"l heusehelel iflcoffl8 ,<vas tne le.vest in the Slate fer a eity ils size
in 1970, aeeoreling the U.S. Census. Deeause of thi3 The City would like to
increase the amount of local jobs. Woodbllrn'. Tnis loti household income is
fairly low whloh I. caused in a large part by a portion of the community
being retired and low income. The City believes that by insuring that new migrants
in the City will be coming to fill local jobs rather than coming to live in new
retirement communities will help reverse this present demographic makeup.
2. Only 60% of the City's .yerk foree "orl<eel ifl the City ef Weeelbufl"l, aeeereling to
a 1')77 telel'hol"le sUFY'ey conelueteel by 3t8ff. The City is ele3irous of becoming an
integrated, full-fledged community rather than a bedroom community for Portland
or Salem. Because of this, more local jobs would have to be provided to insure
that all residents can find jobs locally if they so desire.
3. The Economic Element of the Comprehensive Plan indicated that Woodburn is
presently heavily reliant on the agricultural and mobile home Manllfaotllred
Home industries. Ho__r, _ a_ _Ing a tran.ltlon to
nrenufaotllrlltfl and _rvl_ oriented blls/ne_. The City would like
to diversify to include other industries which are less subject to the fluctuations
of the housing and agricultural markets.
Decause of these resseFls it is a I'eliey of the City to il'lerease the ameuflt of inelustrial
laflelabe'y'e the 0.018 acresl'er cal'ita neteel at the time the rlafl was ael<l"Iewleelgeel.
D. Downtown Development
This-section of the comprehensive Plan outlines the history, the presence, and the
future of the Woodburn Central Business District (CBD). This discussion will briefly
touch on some of the elements that helped shape the CBD, how it survives today as a
retail/industrial center, and what directions are seen as appropriate for future growth
and prosperity.
It is important to note that for any downtown area to survive in today's commercial
climate, a concerted effort must be made by City officials, property owners, and
businessmen alike to put plans into action, and turn ideas into reality.
Woodburn's Central Business District, once a strong, vital center for trade in agriculture
and industry, has experienced a gradual and steady decline as the automobile has
replaced the train as a primary means for transporting goods.
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In the early 1970's, State Highway 214 was constructed to the North, leaving the
Woodburn CBD without any primary highway access.
Within Woodburn's CBD, industry has declined, and retail trade has declined until
today, the CBD supports deteriorating buildings, and few retail services.
Recent efforts on the part of public and private planners to design programs to
revitalize downtown have not proven entirely successful, due in part to the philosophy
that, downtown should be competing with regional shopping centers as a primary retail
environment.
It is the purpose of this section to propose a rational direction for growth, emphasizing
the development of small scale cottage industry along with a tight cluster of
neighborhood retail business. This will effectively eliminate competition with the
regional retail shopping malls and allow the downtown to survive with its own identity
and locally generated economy.
The Downtown aree has been de.'llnated a. a I_I Hlstorlo
dlstrlot (_ nrap PI1 "B). The oily e_llralle. renovation of the
existing strllOlllre., establl.hlllfl orlterla for fllture de_/opnrent In
thl. Hlsforlo DI8Irlot. 1E00nonr/o I_ntl_. for renovation nray be
po..,b'e to help re",tell_ thl. Inrportant .rea. The.e eoononr/o
1_""".. nray lnolllde redllOt/on. In Systenr De_/opnrenl Ohal'ftle.
(BDO'IIJ, redllOt/on In Trafflo Inrpaol F_" (TIF'sJ all of whloh will be
deternrlned on a __-by__ b..,..
The Downtown Goals and Policies are included in Section IX of the Plan and are
intended as general guidelines to help the City and its residents reshape the downtown
into a vital part of the community. Generally, development goals are broken into four
categories, short term goals, intermediate term goals, long term goals, and continual
goals. Whenever development is proposed within the CBD these goals should be
reviewed and applied as necessary so as to maintain balance and uniformity over time.
IX. GOALS AND POLICIES FOR THE LAND USE PLAN
Dflce tne f1eeel for lanel, based 01'1 tne I'ol'ulatiofl iflerease, has be~fl established the
~fOblefl'l is vfflere to locate llie a~~roxiffletely 4,000 aeres of urban ele\,.elo~fI'Ient, no\((
to ele',elol' tne lanel, afld Nhefl to deyelop tne land. The City has established the
following goals and policies as general guides for urban development. (Other elements
of the Plan have more specific policies relating to the various subjects dealt with in
those elements). However, in general these policies will be the guiding factors in
decisions relating to land use.
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LAND USE DEFINITIONS
Low Density Residential
Residential housing which is developed at less than 6 dwellings units per gross acre,
where low density residential is historically considered single family detached housing,
has been the predominant development form. However, in the future other forms of
development will undoubtedly occur at greater densities.
Typically, low density development may be single family detached housing, single
family attached housing, Manufactured Home subdivision (selling lots to fflobile hOffle
M.nlll'aGtllred Honre owners), planned unit developments, at 12 or less units per
acre. Development should have a high proportion of owner occupied housing, as
conventional single family subdivisions do today.
High Density Residential
Residential developments which have density greater than 12 dwelling units per gross
acre but less than 25 dwelling units per gross acre are considered high density
residential in this Plan. Housing types include: town homes, garden apartments, mobile
home parks (renting spaces to mobile home owners), and similar uses.
Commercial
Land uses in this category include a variety of office, retail and service uses. In
general, where all goods or services are bought or sold, the land use is considered
commercial.
Industrial
Land uses in this category are limited to manufacturing and warehousing activities,
utilities, contracting services, and wholesaling.
Open Space and Parks
This general category includes public recreation areas, such as parks, private open
spaces, 8I'Id private recreational facilities, Golf Dollr_., Floodp'.'n, and
Wetland .,.....
Public Use
This includes municipal, county, state, federal buildings and lands, schools, churches
and other public buildings.
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A. Residential Land Development Policies
A-I. Residential areas should be designed around a neighborhood
concept. Neighborhoods should be an identifiable unit bounded by
arterials, non-residential uses, or natural features of the terrain. The
neighborhood should provide a focus and identity within the
community and should have a community facility, such as a school,
park, or privately owned community facility to allow for interaction
within the neighborhood.
A-2. Living Environment - Developments in residential area be constructed
in such a way that they will not seriously deteriorate over time. Zoning
ordinances should be strictly enforced to prevent encroachment of
degrading non-residential uses. Construction standards in the State
Building Code shall be vigorously enforced, and if necessary,
additional standards the City determines should be imposed to insure
non-degrading housing units, should be encourage by the City.
A-3. Development should promote, through the use of moderate density
standards and creative design, a feeling of openness and
spaciousness with sufficient landscaped area and open space to
create a pleasant living environment.
A-4. Streets in residential areas should be used by residents for access to
collectors and arterials. Residential streets should be designed to
minimize their use for through traffic, however, whenever possible
dead-end streets and cul-de-sacs should be avoided.
A-5. Residential developments should strive for creative design which will
maximize the inherent values of the land being developed and
encourage slow moving traffic. Each residential development should
provide for landscaping and tree planting to enhance the livability and
aesthetics of the neighborhood.
A-6. Non-residential uses should be prevented from locating in residential
neighborhoods. Existing non-conforming uses should be phased out
as soon as possible.
A-7. Home occupations and combination business and home should be
allowed if the residential character is unaffected by the use. In the
case of home occupations, these can be allowed through the zoning
ordinances.
A-8. High traffic generating non-residential uses should not be located in
such a manner as to increase traffic flows on residential streets or
residential collectors.
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A-9. Industrial and commercial uses which locate adjacent to residential
areas should buffer their use by screening and design control, and
should be controlled with sufficient setback so as their location will not
adversely affect the residential areas.
A-10. High density residential areas should be located so as to minimize the
possible deleterious effects on adjacent low density residential
developments. When high density and low density areas abut, density
should decrease in those areas immediately adjacent to low density
residential land. Whenever possible, buffering should be practices by
such means as landscaping, sight-obscuring fences and hedges, and
increased setbacks.
A-11. Traffic from high density residential areas should have access to
collector or arterial streets without going through other residential
areas.
B. Commercial Land Development Policies
B-1. The City should at all times have sufficient land to accommodate the
retail needs of the City and the surrounding market area. The City
presently 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.
B-2. Lands for high traffic generating uses (shopping centers, malls,
restaurants, etc.) should be located on well improved arterials. The
uses should provide the necessary traffic control devices needed to
ameliorate their impact on the arterial streets.
B-3. Strip zoning should be discouraged as a most unproductive form of
commercial land development. Strip zoning is characterized by the use
of small parcels of less than one acre, with lot depths of less than 150
feet and parcels containing multiple driveway access points.
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 and shop opportunity.
Commercial developments or commercial development patterns which
require the use of the private automobile shall be discouraged.
B-4. Architectural design of commercial areas should be attractive with a
spacious feeling and enough landscaping to reduce the visual impact
of large expanses of asphalt parking areas.
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B-5. It would be of benefit to the entire City to have the historical center of
Woodburn an active, healthy commercial area. Downtown
redevelopment should be emphasized and the City should in its
actions, encourage new commercial development to locate downtown
when appropriate.
B-6. Commercial office and other low traffic generating commercial retail
uses can be located on collectors or in close proximity to residential
areas if care in architecture and site planning is exercised. The City
should insure by proper regulations that any commercial uses located
close to residential areas have the proper architectural and
landscaping buffer zones.
c. Industrial Land Use Policies
C-1. It is the policy of the City to provide for developments that, whenever
possible, will allow residents of the City of Woodburn to work in
Woodburn and not have to seek employment in other areas. To
accomplish this the City should encourage that there be a healthy job
market within the City and enough industrial land is available for
industrial growth to accommodate the residential growth expected in
the City.
C-2. Industrial land should be located so as to insure that road
transportation and secondarily, rail transportation is available to the
industrial areas.
C-3. It is essential that industrial lands be located on areas which have
good soils and are free from flooding dangers.
C-4. Industrial areas which are located adjacent to arterial streets or to
residential areas should be controlled through site plan review and
buffer zones so as to minimize the impact of industrial uses.
C-5. Industries which, through their operating nature, would contribute to a
deterioration of the environmental quality of air, land, or water
resources of the City should be forbidden to locate within the city
limits.
C-6. The industrial park concept is one which the City deems is the most
desirable form of industrial development. Whenever possible the
industrial park concept will be encouraged in an attractive and
functional design.
C-7. Industries located in areas which are presently non-conforming shall
be encouraged to find other areas to locate.
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C-8. Industrial lands should be protected from encroachment by commercial
or other uses which will either increase the price of industrial land or
cause traffic generation which will interfere with the normal industrial
practices.
C-9. The industries attracted and encouraged by the City to locate in
Woodburn should generate jobs that would upgrade the skills of the
local labor pool.
D. Annexation Policies
D-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 that five year period.
D-2. Prior to the approval of Site Plan, Subdivision or Planned Unit
Developments for land annexed to the city west of Interstate 5, a
detailed Transportation Impact Study with the Department of
Transportation involvement will be required.
A notification period of 45 days will be provided the Department of
Transportation to respond to the before mentioned proposal prior to
final City action.
The City shall insure that any necessary improvements to 1-5 or State
Highway 214 required by the development of such lands are provided
for prior to the issuance of building permits. It is recognized that the
Department of Transportation and City will work with developers in
transportation issues. Further, the Department of Transportation may
not be able to fund such improvements.
It is also understood by the affected parties that the proposed 100 acre
Light Industrial site south of Highway 214 will be issued no more than
two access permits to Highway 214.0ne of these will be at
M.P.36.2396(Woodland Avenue between M.P. 36.46689 and M.P.
36.29643).
E. Citizen Involvement Policies
E-1. It is the policy of the City of Woodburn to solicit and encourage citizen
input at all phases of the land use planning process. Since the City is
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essentially trying to plan the community in accordance with the
community's desires, it is essential that the community be consulted
at all stages of the planning program to insure decisions are in
accordance with the community's benefit.
F. Administration and Enforcement Policies
F-1. Land use ordinances adopted by the City shall be strictly enforced.
While the Comprehensive Plan and zoning ordinances are important
phases of the land use planning process, without strict enforcement of
the code, what actually occurs in the City will not have a direct
relationship to the plans and ordinances adopted by the Council.
Therefore, strict enforcement must be practiced by the City to insure
that the policies of the City are actually being implemented.
G. Housing Goals And Policies
Goal
G-1. The housing goal of the city is to insure that adequate housing for all
sectors of the community is provided.
Policies
G-1-1.
G-1-2.
G-1-3.
G-1-4.
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. It is the policy of the City to assist and encourage property
owners, whenever possible, to rehabilitate and renew the older
housing in the City.
It is the policy of the City to encourage a variety of housing types to
accommodate the demands of the local housing market.
To insure the new concepts in housing are not restricted unduly by
ordinances, the City shall periodically review its ordinances for
applicability to the current trends in the housing market.
To provide for the persons living in the community of a lower income,
the City will accept its regional share of low income housing. This
policy is not intended to provide an overabundance of low income
housing which would encourage undue migration of low income
persons.
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H. Public Services Goals and Policies
Goals
H-1. It is the goal of the City to provide adequate public services to all
areas of the City to include:
Sewer lines of adequate capacity;
Water lines of adequate capacity for both domestic supply and fire
fighting capabilities; and Storm drainage to prevent flooding of
valuable property where feasible.
H-2. To provide a central system to accommodate the service lines to
include:
Sewage treatment facilities sufficient in capacity to accommodate the
City's growth until the year 2008;
Lift stations as necessary to service the sewer lines;
Well storage and treatment of water as is necessary to accommodate
the needs of the City; and
Detention systems for flood water and storm drain runoff so as not to
overburden the drainage systems of the City.
Policies
H-1. It is the policy of the City to provide facilities at the least long range
cost to the City.
H-2. Efficient design of all facilities should be encouraged. The sizing of all
lines should be adequate to accommodate the expected growth within
the expected lifetime of those lines.
H-3. The City should oversize the lines where it is deemed reasonable that
during the life of the facility the lines will be carrying additional
capacity.
H-4. The City should minimiZe the number of high maintenance and
operational cost facilities such as lift stations whenever possible. To
maximize the utility of existing city services, and to minimize
maintenance costs, existing lands which are vacant should be
developed to their highest potential, subject to constraints of the Land
Use Plan, and excepting areas set aside for open space preservation
or parks.
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..-....-.------------.-.----
H-5. Development Zones - The City should encourage development in
areas of existing facilities first. Secondly, the City should encourage
development in areas where extensions of existing city services can
be accommodated. The City should encourage development of new
areas to which services can be most cheaply extended. The City
should develop any other areas only as a last resort. The City will
adhere to the policies in the Storm Water and Water and Sewer
elements of the Comprehensive Plan.
H-6. To insure that the growth does not increase the cost to the present
City residents, the City's policy should insure that new developments
pay for any additional services they demand. The City shall institute
the necessary taxes and fees to insure that this is accomplished as far
as is practical.
H-7. It shall be a policy of the City to maintain a working Capital
Improvement Plan (CIP) which shall detail a set of public facility
projects, their costs, and funding for a six year period, and for the
logical extension of public facilities over a projected twenty year
period. It shall further be the policy of the City to conduct an annual
review of the CIP and amend it as necessary to insure adequate public
infrastructure where needed and to maintain compliance with Policy
(H)(1) of this document and the statewide land use goal eleven (Public
Facilities Planning).
I. Transportation Goals and Policies
Goal
1-1. Establish a framework for the development of facilities to move
persons and goods in as safe, effective and efficient a manner as
possible under projected year 2000 traffic conditions. See City of
Woodburn Transportation Plan (Ordinance 1915).
Policies
1-1-2. Develop a transportation system that interconnects residential areas
with employment centers, commercial areas, schools, parks, churches
and regional transportation networks.
1-1-3. Develop a street system wherein arterial streets are of sufficient width
to accommodate traffic flows without interruption. Collector streets
should function to conduct traffic between arterial streets, which serve
to accommodate movement within neighborhoods.
1-1-4. To insure that state and federal highways with routes through the City
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,._....._~,..<u,'_"......__~__-~-~_._--'-
are improved in accordance with projected traffic volumes and the
elements contained within this plan.
1-1-5. Develop a public transit system which will provide service and facilities
to improve the mobility and accessibility of the transportation
disadvantaged.
Goal
1-2. Develop a transportation system that avoids or reduces a reliance
upon anyone form of transportation.
Policies
1-2-1. Encourage the development of transit services by route expansion,
increasing levels of service and appropriate street design to facilitate
movement of transit vehicles.
1-2-2. Develop a bikeway and pedestrian system which will provide routes
connecting residential areas to schools, parks, places of employment
and commercial areas.
1-2-3. Promote optimum efficiency within the transportation system by the
use of traffic management techniques including access controls on
major arterials and the utilization of available transit system capacity
prior to the construction of major new transportation facilities.
1-2-4. Encourage the design and development of transportation facilities that
can be readily modified to accommodate future demands
Goal
1-3. To provide adequate levels of mobility with a minimum of energy
consumption and environmental, social, aesthetic and economic
impacts.
Policies
1-3-1. Encourage the use and development of transportation modes which
are the least energy consuming for the movement of people and
goods.
1-3-2. Provide a level of transportation services to the urban area that are
compatible with the environmental, economic and social objectives of
the community.
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Goal
1-4. To develop an area-wide bicycle and pedestrian plan.
Policies
1-4-1. To make implementation of the area-wide bicycle and pedestrian plan
a cooperative effort between the City of Woodburn and all other
governmental jurisdictions within the area.
1-4-2. To develop a comprehensive bicycle and pedestrian system including
both on-street and off-street routes, which make pedestrian activity
and bicycle riding feasible, safe and enjoyable as alternative modes
of transportation in the area.
1-4-3. To provide bicycle and pedestrian routes that connect residential
areas with the major commercial, employment, recreational and
institutional network of the area.
1-4-4. To provide connections between local bicycle and pedestrian routes
and other bicycle and pedestrian routes of a regional, state and
national nature.
1-4-5. To finance the bicycle and pedestrian system as much as possible
with non-local funds. Where local funds are required, expenditures will
be carefully programmed through the respective capital improvement
programs of the various governmental jurisdictions associated with the
plan.
1-4-6. To insure that all new commercial, industrial, institutional, residential
and recreational developments consider the elements contained within
the bicycle and pedestrian plan.
1-4-7. To establish the administrative capability necessary to implement the
area wide bicycle and pedestrian plan.
Goal
1-5. Increase safety and improve security for pedestrians, bicyclists and
bicycle equipment.
Policies
1-5-1. Provide bicycle and pedestrian routes along arterial and collector
streets as these streets are improved, or as programmed into
jurisdictional capital improvement plans.
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1-5-2. Establish design standards for all new bicycle and pedestrian facilities
that are consistent with state and federal design standards.
1-5-3. Establish well-signed bicycle and pedestrian routes throughout the
area by installing bike route signs, curb ramps and in some cases
safety striping on streets and roads designated by bicycle and
pedestrian use in the plan.
1-5-4. Establish a bicycle and pedestrian safety plan by implementing an
area wide educational and recreational program oriented toward
teaching bicycle and pedestrian safety.
1-5-5. Amend subdivision and zoning codes to require provisions of bicycle
and pedestrian facilities.
Goal
1-6. Increase the acceptability for bicycle and pedestrian use.
Policies
1-6-1. Provide bicycle and pedestrian routes within all state, regional and
local parks and recreation areas by applying for grant assistance to
support the development of bicycle and pedestrian systems in parks
and open space areas.
1-6-2. Plan off-street routes along creeks and establish routes which lead to
local and regional open space areas. Establish local loop routes which
take advantage of local amenities and historical areas.
1-6-3. Construct pedestrian facilities, rest stops, exercise loops and bicycle
courses in selected areas.
1-6-4. Encourage existing developments to install and construct bicycle and
pedestrian facilities whenever improvements are planned.
J. Growth Goal
J-1. City's 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.
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K. Growth and Urbanization Policies
K-1. To insure the growth is orderly and efficient, the City shall phase the
needed public services in accordance with the expected rate of
growth. The extensions of the existing public services should be in
accordance with the master plans in this Comprehensive Plan.
K-2. To insure that the City's growth does not exceed its ability to provide
public services, the City shall adopt a growth control ordinance, similar
to the Limited Growth Ordinance now in effect. When and if the growth
control is used, the City shall reexamine the public facilities plan and
determine at that time if it is in the public interest to expand facilities
to accommodate the additional growth.
K-3. The City's public facilities now being built are to be paid for by the
system development charges from the anticipated growth. To insure
that the City's growth does not fall short of the expected growth rate,
the City would only take necessary measures to stimulate growth
under extreme circumstances.
K-4. The County shall retain responsibility for regulating land use on lands
within the urban growth area until such lands are annexed by the City.
The urban growth area has been identified by the City as urbanizable
and is considered to be available, over time, for urban development.
K-5. The City and County shall maintain a process providing for an
exchange of information and recommendations relating to land use
proposals in the urban growth area and other land use activities being
considered within the urban growth area by the County shall be
forwarded by the County to the City for comments and
recommendations. The City shall respond within twenty days, unless
the City requests and the County grants an extension.
K-6. Upon receipt of an annexation request or the initiation of annexation
proceedings by the City, the City shall forward information regarding
the request (including any proposed zone change) to the County for
comments and recommendations. The County shall have twenty days
to respond unless they request and the City allows additional time to
submit comments before the City makes a decision on the annexation
proposal.
K-7. All land use actions within the urban growth area and outside the city
limits shall be consistent with the City's Comprehensive Plan and the
County's land use regulations.
K-8. In order to promote consistency and coordination between the City and
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County, both the City and County shall review and approve
amendments of the City's Comprehensive Plan which apply to the
portion of the urban growth area outside the city limits. Such changes
shall be considered first by the City and referred to the County prior to
final adoption. If the County approves a proposed amendment to the
City's plan, the change shall be adopted by ordinance, and made a
part of the County's plan.
K-9. Except as provided in Policy K-10 below, the area outside the urban
growth boundary shall be maintained in rural and resource uses
consistent with Statewide Land Use Planning Goals.
K-10. The City and County shall strive to enhance the livability of the urban
growth area and to promote logical and orderly development therein
in a cost effective manner. The County shall not allow urban density
uses within the Urban Growth Boundary prior to annexation to the city
unless agreed to in writing by the City. City sewer and water facilities
shall both be extended beyond the city limits, except as may be agreed
to in writing by the City and County. The City shall be responsible for
the preparing the public facilities plan.
K-11. 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;
b. Availability of sufficient land for the various uses to insure choices
in the market place;
c. LCDC Goals;
d. Encouragement of in-filling development within developed areas
before conversion of urbanizable areas; and
e. Applicable provisions of the Marion County and City
Comprehensive Plans.
L Natural and Cultural Resources Goals and Policies
L-1. It is the City's goal to preserve the natural resources in the City
including the unique stands of trees, the scenic areas within the City,
and the floodway and floodplain.
L-2. It is the City's goal to preserve its unique and historically significant
cultural and historical resources.
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L-3. It is the City's goal to preserve its air, water and land resources in such
a way that the clean air the citizens now enjoy will continue in the
future, the good quality and sufficient quantity of water which is now
obtained from underground supplies will continue, and that the land
resources within the City will be used in such a manner as to insure
that they will remain useful to future generations.
Policies
L-1. The City should establish a tree ordinance with measures requiring an
inventory of significant tree stands, as well as a means to preserve
such stands. A tree planting program to replace lost stand with
comparable species should be established. Developers should be
encouraged to leave standing trees in developments where it is
possible rather than remove them and replant young trees.
L-2. Floodplain should be set aside for city green ways and left in a natural
state as much as possible. This would prevent building in the
floodplain and provide a natural green way throughout the City.
L-3. Natural and scenic areas remaining in the City should be preserved.
L-4. The City should encourage the preservation and restoration of
historically significant buildings within the City. This could be done by
giving assistance in seeking government funds and historic
recognition. An inventory of historic buildings should be completed and
analyzed for priorities.
L-5. The City shall adhere to the standards set forth by the department of
Environmental Quality and the Environmental Protection Agency for air
quality and emissions control. In addition, the City should adopt and
enforce its own standards above and beyond DEQ's, if it is deemed
necessary to protect its citizens from local polluters.
L-6. The primary noise sources within the community are generated by
traffic flows on Interstate 5, Pacific Highway 99E, the Railroad, and two
industrial sources: North Valley Seeds and Woodburn Fertilizer
Company. Noise generated by these sources fall under the
jurisdictional responsibilities of the Department of Environmental
Quality. Also, any noise pollution sources associated with
manufacturing or food processing in the community again are
regulated by DEQ. The City shall assist DEQ in the review of
development permits to assure that State noise standards are met.
L-7. The City of Woodburn shall coordinate its efforts in resolving solid
waste disposal problems with Marion County.
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L-8. It is the policy of the city to protect the aquifers by all available means
which supply Woodburn's domestic water.
L-9. For surface water regulations, it is City policy to support the
Department of Environmental Quality in enforcement of water quality
standards on Mill Creek, Senecal Creek and Pudding River.
L-10. The policy for land use in the City is to use land in such a manner that
the particular qualities of each area are enhanced by the development
that occurs there. Land use should be maximized so that valuable
lands are not wasted. At the same time, land should not be used in
such a manner that irreversible damage is done which prohibits further
use of the land.
L-11. Such uses as landfills, junk yards or industrial burial grounds should
not be allowed within the city limits as such uses are wasteful of urban
land and are not compatible with urban uses.
L-12. An application for a development involving a structure inventoried as
a potential historic site shall be reviewed by the Planning Commission
which shall make findings and recommendations concerning the
historical status of the structure.
The Planning Commission may impose conditions on the structure to
satisfy the requirements of Section 35 of the Woodburn Zoning
Ordinance.
M. Energy Conservation Goals and Policies
Goal
M-1. The goal of the City is to encourage conservation of energy in all
forms, and to conserve energy itself in the City's operations, buildings,
and vehicular use.
Policies
M-1-1
The City shall review its subdivision and construction codes
periodically to insure that the construction types which most conserve
energy are encouraged in this City, but not at the expense of health
and safety. The City shall encourage new construction types, within
the limits of what can be permitted due to health and safety
requirements, to permit further use of the solar energy which is
available in the Woodburn area.
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,.._.,.,-_.,~~......--",~~_..
M-1-2.
M-1-3.
M-1-4.
M-1-5.
M-1-6.
M-1-7.
The City shall attempt to retrofit, when it becomes cost effective, city
buildings and structures so that they may be more energy efficient.
In all new construction for the City energy systems which rely less on
fossil fuels shall be investigated, and if cost effective at a long term,
shall be utilized.
Encourage a minimum energy conservation standard for existing
residential buildings.
Revise land development standards to provide solar access.
Encourage investments in solar energy by protecting solar access.
Offer developers a density bonus for development utilizing energy
conservation and solar energy measures.
N. Downtown Development Goals and Policies
Short Term Goals and Policies
Goal
N-1. Repair and Improve Buildings within the CBD.
Policies
N-1-1.
N-1-2.
Because of the decline in both business and industry downtown, many
buildings have been abandoned and stand in a state of serious
disrepair. It is important in the short term that these undesirable,
unsafe structures be condemned and demolished if repair and
maintenance is not practical.
Many buildings have been altered without regard to their surroundings,
succumbing to short term fads, leaving the buildings quickly looking
out of date and incongruent. It is recommended that a system for
removing selective building elements, cleaning, maintaining, painting,
and adding selective elements be Initiated by property owners with
overview from a downtown development review committee.
Encourage a balanced financing plan to assist property owners in the
repair and rehabilitation of structures. The Plan may include
establishment of the following:
a. Economic Improvement District - a designated area, within which
all properties are taxed at a set rate applied to the value of the
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...._-. ._,....~'"_.._.._.--,..-.....-_...._----~
Goal
property with the tax monies used in a revolving loan fund for
building maintenance, and improvement.
b. Local, State, & National Historic District - a designated district
within which resources, and properties are inventoried and
identified for historic preservation.
c. Establish a "501 C-3" tax exempt organization for the purpose of
qualifying for grants.
N-2. Improve Citizen Involvement in the CBD
Policies
N-2-1.
N-2-2.
N-2-3.
Goal
The CBD should continue to be the locale for City-wide activities:
(e.g.) spring clean-up, crazy days, farmfest, fiesta days, etc. By
developing a set of year-round activities, and publicizing through a
downtown "Calendar of Events", the CBD will be recognized as a vital
positive element of the city as a whole.
Encourage the organization of a downtown business watch group,
where property owners can assist police in eliminating undesirable,
illegal behavior in the CBD.
Business owners should encourage the involvement and education of
their employees in downtown activities, such as the Woodburn
Chamber of Commerce 'Warm Welcome" program. This will generate
a greater sense of pride and sense of place for employees who will in
turn pass their feelings and attitudes along to family and friends.
N-3. Improve Open Space Within the CBD.
Policies
N-3-1.
Improve Library Park for year-round use, by adding lighting,
landscaping, wall graphics, information station, gazebo, etc. Library
Park represents downtown's only area of usable open space. By
improving it and making it more usable, more people will frequent the
downtown area.
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N-3-2.
N-3-3.
N-3-4.
Introduce new plant materials to Front Street Right-of-way, including:
Ground cover;
Shrubs; and
Trees.
The nedges along the east side of rront Street ere olel enel f10t '....ell
fflail'ltaifleel. A program to introduce new plant materials would
enhance the appearance of the entire Front Street segment of
downtown. Participation on the part of both the City and the downtown
merchants will be needed to see these projects through to a
reasonable conclusion.
Design a set of uniform sign graphics for the CBD. (litter, yaFlelelisffl,
ael..eflising, ete.). Using control in developing street graphics provides
balance and facilitates easy, pleasant communication between people
and their environment. A "design review zone" should be established
within which all signs and graphics proposed are reviewed and
approved by both the City and the "Design Review Board". Points of
consideration would include: Area of sign, placement, symbols used,
extent of illumination, colors, etc.
Whenever possible, proposed improvements to buildings and/or open
space, should remain in general harmony with the concepts portrayed
in the Chemeketa Community College drawings.
Intermediate Term Goals and Policies
Goal
N-4.
N-4-1.
N-4-2.
N-4-3.
Improve Pattern of Circulation Within the CBD
Patterns of pedestrian circulation may be improved through the repair
and/or replacement of sidewalks. A means of providing a sense of
place within the downtown can be accomplished by replacing
damaged sections of sidewalk with a decorative brick like pattern of
surfacing. Pedestrian safety can be increased by carrying this
surfacing pattern across the streets at each intersection thereby
creating a different color and texture over which the automobiles
travel.
Curb ramps should be encouraged at all intersections. Improved
wheelchair facilities throughout the CBD will provide access to a more
diverse cross section of the City's population.
Efforts should continue to evaluate the feasibility of bicycle paths
79
......... .._~,._._,....~._~,.,,-_._-_., "._~................._-,_.._--~._---~~-~'-~--
N-4-4.
Goal
linking the CBD with City schools and parks. This will encourage
young people to frequent the downtown. Patterns established early in
a young persons life may last, thereby helping to guarantee continued
interest in, and use of the downtown.
One of the most critical needs of traffic circulation in the CBD is for the
relief of on-street congestion along Front and First Streets. At present,
conflicts exist between through traffic mixing with local traffic mixing
with bicycle/pedestrian traffic. The reorganization and consolidation of
the CBD should emphasize an orientation to the west, away from Front
Street, and involve expansion of off-street parking.
N-5. Improve Utilities and Infrastructure Within the CBD
Policies
N-5-1.
N-5-2.
N-5-3.
N-5-4.
Overhead power and telephone lines tend to visually conflict with the
character of the CBD. Plans for capital improvement should include a
schedule for replacement of overhead power and telephone lines with
underground facilities.
Without an adequate system of underground irrigation within the CBD,
plans for East Front Street landscaping and for master landscaping
throughout the CBD, including street trees will not be as successful.
It is therefore recommended that the City include in its Capital
Improvement Programs plans to improve underground irrigation
systems along streets and at intersections throughout the CBD.
Street lighting can be both ornamental and useful in making the
downtown safe and attractive. Cooperation from both private and
public interests can result in a street lighting plan that both serves a
utility and attracts people to shop in and enjoy the downtown.
Because of the costs involved in utility and infrastructure improvement
and the need to maintain general uniformity in designing
improvements, the downtown merchants in cooperation with the City
should develop a schedule for improvement that phases development
and utilizes annual donations from downtown property owners to assist
in the purchase and installation costs.
80
Long Range and Continuous Goals
Goal
N-6. Attract "Appropriate" Business to the CBD
Policies
N-6-1.
N-6-2.
N-6-3.
N-6-4.
..-_.... ,--",-'''~-''-' ,...._-~~_..---_._.
To succeed, the CBD should function in three ways:
As a center for small cottage industry, where goods are produced on
a small scale for sale on both a local retail and a regional wholesale
level;
As a neighborhood shopping center with retail stores, restaurants,
offices and services; and
As a City-wide hub with government and public buildings, arts and
entertainment centers, hotels, etc.
The CBD must have a strong well defined boundary to help identify its
sense of place. It is the responsibility of the city staff to discourage
inappropriate commercial, industrial development on the outer fringe
of the CBD until adequate in fill has occurred and the population has
increased to a point that makes expansion reasonable.
Encourage improvement of the alley between First Street and Front
Street with better pedestrian access, lighting, business access,
painting, and landscaping.
Encourage the City and the Woodburn Downtown Association to
oversee all development and ensure general, conformance with this
document.
81
x. THE LAND USE PLAN
With the land use inventory, the need for new urban land, and the goals and policies
of the City established, the development of the land use plan is the next logical step.
The fiflaI Plan formed the best compromise for all parties involved. Tne Laflel Use rlan
Mal' is feunel ifl Volume 1 mal' jacket. This Plan was prepared based on the
cOflsieleration of the iflclueleel following items.
1. Present development patterns of the City.
2. Availability and serviceability of the areas for city services.
3. Data gathered in the other various elements of the Comprehensive Plan.
4. Prior plans and policies of the city including the 4914 Ollrrent
Comprehensive Plan doollnrent, and the ~ Urban Growth Boundary
Allreenrent. the 1 ':)77 SI{elen rlan and tl'le eurfeflt ZOfling Mal'.
5. The projected need for land in the various categories to support the
population increase.
6. Goals and Policies of the City.
7. 4988 Periodic Review of the Plan.
8. Re_nt Land Use In_ntorles.
The Plan represents a continuation of past policies and decisions by the City, and
represents the most practical arrangement of land uses while still retaining a desirable
and efficient urban form.
The skeleton on which the Plan was built is the existing system of transportation routes
through the City, notably 1-5, State Highway 214, State Highway 211, Highway 99-E
and to a lesser extent, Front Street and the Southern Pacific Railroad. On this sl{elelon
Hlllhway and street Ne'-rk considerable development has already taken
place. The commercial areas in the city are already well established. Supporting
residential areas around them are also established although there is considerable
vacant land left between the residential developments. This has resulted in a sprawling
type development which should be corrected in the future by encouraging elevelol'fflent
In-Fill of these vacant lands.
The Plan can best be described by discussing where each of the four major land uses
have been located.
82
....._....-. --.-..... .."-~....,- ,~-~......._~.._--'--_._._'
A. Industrial Lands
Location of industrial lands poses more of a problem than any other use in urban areas.
They are essential for the City, and in Woodburn's case, must be expanded to make
ul' for a lack of ineJustrializatiofl in the l'a3t. aooonrnrodate flltll,.. needs. In
general, this type of land use requires good transportation access, served preferably,
but not necessarily, by both railroad and highway. It should not be located adjacent to
residential areas without some type of buffering use in between the industrial use and
the residential areas; either green space or a major road or other similar buffer. There
are basie611y feur large fI_ areas which have been set asiele established for
industrial use in Woodburn. They meet all of the above criteria. They are:
1. In the southeast quadrant of the City; the Bird3 CyeITcrfflinal lee Iflduslrial
8fee;-
2. In the northeast quadrant of the City; the Woodburn Industrial Park and
surrounding development;
3. A presefltly uflele'Yelol'eel ar-ea vv't'iieh is 'TIle area between North Front Street
and Mill Creek, north of the Woodburn High School. ~
4. The southwest quadrant of the Interstate-5 interchange area.
5. The Downtown area.
Each of these areas serve a different purpose in the City's long-range industrial
development plans. The majority of the development in the Birels Cyerrerfflinal Ice
8oIltlJs.81 Indll8lrlal area is either in the city limits or closely adjacent to it. Tlgere
are al'l'l'OXimately 100 vacant acres ifl the area sel a3iele ifl the rlafl, most of 'Nhich is
uneler Birels Cye's oyll'ler3hil', anel The nrejorlty of land In this 8oIllh_81
area is being used for spray irrigation of industrial wastes from the Birds Cye food
processing plant. As it has been zoned industrial in the County for some time, the City
proposed, and the County agreed, that it would be best to have this area in the Urban
Growth Boundary so future expansion of Birds eye the food pro__lng faolllty
on the industrial land would be controlled and regulated by the City. IloYY8'Yf:lr, this
plays a relalively ffliflor role iR the City's lOR!;) raRge de~'elol'ffleflt a3 tRe oWl"ler3Ril' of
the I'roperty ..oulel I'robabl) only aeeemmeelate Birds Cye expaflsi6l'l. Thl.
Indllstrlal area oollld ,..allze additional de_/opnrent.
The Industrial Park area was really the beginning of Woodburn's industrial expansion
in the 1970's. It has been very successful and now covers a large amount of land
between the Southern Pacific Railroad and Highway 99-E north of State Highway 214.
However, as of the writing of this Plan almost all of the developable land has either
been sold to industries which intend to locate in Woodburn or is under development.
There exist3 laflel.....hien ha3 flOt yet been solel to inelustrial de'v'elol'ers. It i3 eXl'eeteel
that iF! the Flext fe...j ;ears tlge refflsiF1aef of iRe industrial laRa in tl;8 'Noodbuffl
83
Iflelugtrial rark area ..ill be used for il'lelustrial e1e.elol'!'RGf'lt. Thig area snoulel be
!'Raif'ltaifled tnrougl"lout the I'lanf'liflg perioel as the attraetive inelu3trial area it is I'lO\".
The renralnlng vaoant land In the Woodbllrn Industrial Park Is
oonrnrltted to de_/opnrent. It Is expelded that filII blllld_1It will be
realized be'-en the years 2000-2003.
The industrial area on North Front Street north of the Woodburn High School was
selected because of several reasons First of all, it is close to State Highway 214 and
therefore has good highway access. Secondly, a spur line from the Southern Pacific
Railroad could be developed to serve industries locating in this area. Thirdly, an
excellent buffer exists in the Mill Creek area to buffer the industrial uses from the
adjacent residential uses. It should be pointed out, however, that industrial uses should
not be located in or near the floodplain and extensive screening must be employed by
industrial uses. rull city serviees afld major traf'ls!"oflaliofl impro.ements arG no''''' beiflQ
I'FOvieleel so if'lelustrial elevelOpfflGnt caf'll'lOW tra.el 01'1 P~ofln rrcmt Street.
The fourth industrial area, the southwest quadrant of the interchange was selected
because it is an excellent site for industries such as electronic industries. It should be
noted that not all industries desire to locate on railroads. Indeed some cannot because
vibration from the railroad upsets sensitive instruments used in some industrial
processes. Therefore, the industrial area along Interstate-5 provides an alternative for
those industries to locate in Woodburn. It also affords excellent visibility for those
industries which wish to maintain good visibility and high corporate image. OeforG tl"lis
area can be elevelol'eel for iflelustrial uses State Iligh..ay 214 must be ..'ideneel af'lel
ifflpro.eel aflel full city sGrvices !'Rust be I'ro'.ideel.
The fifth Indllstrlal area Is the Downtown area. This area Is the
old downtown Indllstrlal _nter. It Is the flr.t and the orllllnal
Indll8lrlal area In Woodbllrn. This Industrial area Is looated a/onll
the S.P.R.R. In Downtown Woodbllrn. The railroad was IItlllzed for
transportation. This _otor has hl.torloal slllnlfloan_ when
oonslderlnll the path Woodbllrn has taken. This Indll8lrlal area
oan realize additional de_/opnrent and possible redeve/opnrent.
It should be noted that of the fettf five industrial areas in Woodburn, only two, the
North Front Street area and the Interstate-5 area are available for future large-scale
industrial expansion.
B. Commercial Lands
Commercial lands also pose difficulty in deciding their proper location because of the
high traffic which is generated by commercial uses and the necessity for good
transportation facilities improvements. They also can impact quite severely on adjacent
residential uses and this must be considered in their location, and especially in their
zoning. The oonrnrerc/al areas of the olty shollld be a/nred to
develop at hlllher densities Instead of a sprawllnll type
deve/opnrent. There are basically ti"tfee four nrB/or commercial areas in
Woodburn, and they should serve the City for the foreseeable future.
84
-_....,,~ "",~""'. '''''~'''-~---- .,,-_._,.~,
-'-
The first commercial area which the City developed was the downtown. It is located on
both sides of a railroad track and despite problems in the recent past, it has remained
an essential part of the City's economy. It is in a transitional stage at present as it no
longer serves as the center of retailing for Woodburn. It presently suffers from a lack
of maintenance and outmodled buildings. These need to be remodeled and updated
so it can provide a greater share of Woodburn's services in the future.
The second large commercial area which has developed in the City is the commercial
strip along Highway 99E. afld the deyelol'mel'lt along the inlefseeliol'ls of male IlighNay
:J:Je, the State Ili~hy.-ay 214 af1d State Ili~l'1way 211. The strip zoning along 99E has
caused many problems in the City of Woodburn. This is because this type of
development is the least efficient use of commercial land and highway frontage. While
there is little which can be done with the areas which have already been developed,
some of this will be redeveloping in the future, especially north of Lincoln Street.
Access control policies shall be observed when street improvements occur.
The area 0'1'1 Slate Ilighway 211 vfflien has beeF! set a3ide for eeJfflfflereial develol'fflent,
some 35 aer-es, willl'fOviele future 8Xl'afl3ion fer relail uses fer the City. Out before it
caR expand State IlignW8) 211 need! additioFlsl fight of ~8) and ".uieleAiFlQ of tRe
nignv'lay to aeeofflfflO'elate the greatly il'lcreaseel traffie that this eommereial elc'..elol'menl
yyil! generate. To in3UfG t1ge 3fflOotk fIO',,".. of treffic in t19i3 8re8, ORI) tVIO ari-ve.,v'sy aeee!!
I'oints O'nto State Iligi'lway 211 shall be alle-.,eel.
The third large area of commercial development in the City is the Interstate-5
Interchange. This contains one small shopping center already and a large amount of
highway related uses. In general, commercial uses on the west side of the freeway
should be limited to highway related interchange type uses, while on the east side -a
more general commercial nature should be encouraged. There are approximately 60
acres set aside south Ol"l available for de_/opnrent I_led _lIth_.t
of Evergreen Road. This land should be developed as a large integrated shopping
center when Woodburn's population justifies it. anel 3hO'ulel be reserveel fer this use
before it is 8F1F1exeel'".,itR city services.
The follrth oonrnrero/al area I. the 11'4/2' , /SS~ 'Follr Corners'
Inte~/on. Thl. area has beoome an Inrporlant oonrnrero/al
dlstrlot within the olty. ThI. "Four Dome,.,,- area _,.".. a. e nrore
I_I retail _rrl_ _nter. Thl. oonrnrerolal dlslrlot oollld realize
nro_ de_lopnrent In the flltllre. In this area de_/opnrent shollld
be den.lfled _ a. to not 0___ enother oonrnrero/al .trlp
de_/opnrent.
In addition to these three follr major areas there are two other minor commercial
areas, both of which are set aside for office uses. One at the S-Curve near Cascade
Drive and State Highway 214 and one at the northwest quadrant of the intersection of
Settlemier Avenue and State Highway 214. To minimize the impact along State
Highway 214 only low traffic generating uses such as offices and other service centers
85
should be located. Retail uses are not consistent with the overall plan concept for these
two areas.
c. High Density Residential Lands
High density residential lands present a conflict in two ways. First of all, as they are
residential they must be protected from encroaching commercial and industrial uses or
other uses which would be detrimental to any residential use. Also, because they
generate more traffic per acre than low density residential uses, they must be located
closer to collector and arterial streets. The rl!!lR nas set asiele 17 eliff-ereflt af't)!!lS vthieh
are suitable for nign elensity resielenlial use. Most of these are located adjacent to an
arterial or collector street or at the intersection of major streets. Care should be taken
in developing these areas to insure that good transportation flow is accommodated and
that on-site recreational uses are provided to some extent to alleviate some of the
problems caused by living in high density areas. Some nOR resielefllial uses are
cOFflpatible ~yitR l=Iigt:\ den!it) r63idGntial eJeV'6lopFflent !ucl; 83 3ffiall OOFlv8nicFlce
snol'l'iflg markets, reereational uses suen aSl'riy!!lte racquelball, teflflis or golf elubs,
or Fental storage facilitie3 83 typically Rig" deFl3ity, high r83ieJGFltial developffiGFlt
I'fOyieles 'fflflj little storege for the materially ricn soeiety. These tYl'es of uses fflay be
aeeommoelated in eertaifl cases.
D. Low Density Residential Lands
Low density residential areas are the most sensitive land use and must be intensively
protected. In general they are not compatible with commercial and industrial uses and
some type of buffering technique must be used to protect them. Also, arterials and
other transportation corridors can severely affect the usefulness of low density
residential areas. ReCleatiofl!!l1 anelstorage facilities are ineofflpatible in eertain caSC3.
In general, low density residential areas have been located according to existing
patterns of development and in areas which are protected from high traffic flows and
commercial and industrial uses. When greenways are used as buffers between other
land uses and low density residential areas it is extremely important to maintain the
visual and physical separation that the greenway provides. Transl'ortatiofl .vitnin tne
residential areas shoulelbe I'rimarily for access. Tnis is I'I6t to iffll'ly, nov,eyer, that a
eoml'lete transl'oftation net\,york shoulel f10t be I'royieleel as througl"l streets are a
necessity for good city 'Niele develel'ffleRt.
A speeialnote shoulel be aeleleel thai future e1El\'elol'ment ifl the area ..est of Iflterstale 5
FRay require 8 Vi'idGFling of t198 6ft'Sf pas! over 1 s. rrelimiFl8fY indication! fr6ffi tlge
State Iligny'y8~ Department indicate tRe! total traffic flaYi! in thig area Gould develop
24,000 vel"licles I'er elay crossiRg oyer the o.er pass. Tl'lisl'rojeetion may be nigh, as
existing transpoftalion anel energy use I'atterns are subjecl to ehange elreslically in the
coffling eleeaeles. Iloyyeyer the traflsl'ol't8tion eliffieulties eeulelbe severe anel snould be
aflalyzeel at the time of the e1evelol'mefll of the areas ...-est of the freeyyay
86
E. Public Use
In addition to the four major types of land uses, lands for public use are shown. These
are lands which are used or intended for governmental units including lands which are
currently owned by the City or School District. Future acquisition sites are not indicated,
however, as this may tend to affect the price the public would have to pay. As the
location of these sites depends a great deal on price and availability, the City and
School District will have to make the decisions at the time the acquisition is needed as
to the best location.
F. Open Space / P.rk.
Open space lands are not indicated other than existing facilities with two exceptions.
The first is that the floodplain area of the City has been indicated for open space. This
does not mean that the City will necessarily own these lands, however, that any
development scheme should leave these floodplain lands as open and undeveloped
with structures. Tne ether exceplion is a large area of lal'lel 'v',hieh is sel asiele f1ear
Legion rsrl< fer future eXl'ansiol'l fer a regionall'arlc
The CIIy has .eollred 2B .ore. for . rell'on.' p.rk _11th of P.rr
Road. Its Pllrpo_ I. to _~ I_I and .rea wid. re.,dent.. Th.
f.olllly I. pl.nned to oont.ln So_r field., Sa_ball fI.,d., .nd
.ever.' other p.rk lI.e.. This area is currently in the County and should
remain so until it can be annexed into the City. anell'urehaseel by tne City fer I'arl<
purpo3es.
The other open .paoe 11_. .uoh .. floodp'.'n .re.. oOllld .erve
.. transportation rollle. for ped..trl.n traff/o and bloyole path..
Th.re wOllld ha_ to be . oo_rted .ffort by the oily to aoqlllre
R.O.W. ....nr.nts throllflh private propertl.. to e.tabll.h th..e
rollte..
XII. IMPLEMENTATION OF THE PLAN
Any comprehensive plan depends on implementation to accomplish the goals and
policies established in the plan. Cities have amassed a battery of ordinances to
accomplish this purpose. Some ordinances have been more successful than others
and in time, no doubt, new methods and techniques will be developed. Implementation
should be a continual review of existing ordinances to insure that they are
accomplishing the purposes for which they were originally designed. The City
recognizes that over time many of the ordinances which are suggested in this plan will
be amended and perhaps entirely replaced by new concepts. As long as the ordinance
which is developed implements the goals and policies of the plan, a change should not
be necessary. However, at a minimum, the City should have basically the following
ordinances to implement the plan.
87
'.~". ._..-.."_.-.."._._-~,-~--,....--...----~.._....,~-,.,_..
A. Zoning
The key stone of plan implementation is the long used tool of zoning. Zoning code
should insure that the location of various land uses and in some cases, the timing of
those land uses, is in compliance with the Comprehensive Plan. Zoning ordinances
should insure that incompatible uses do not occur, on the other hand they should
remain as flexible as possible while still accomplishing the purpose of the plan. The
Zoning Map need not be a reflection of the Comprehensive Plan Map. In general, it will
be more specific, containing many more designations than the Comprehensive Plan
Map. In addition, there will be many cases where the zoning ordinance will be more
restrictive than the map. This is because there are areas which must be retained in a
more restrictive zone until public facilities are developed or public need is established
for a zone change to a less restrictive zone. However, in no case should the Zoning
Map allow a use which is less restrictive than that called for in the Land Use Plan.
B. Subdivision and Planned Unit Development Ordinances
The second mainstay of plan implementation is subdivision codes and planned unit
development ordinances. These ordinances are designed to regulate the division of
large lots of land into smaller parcels, mostly for residential developments. They are the
main control the City has over neighborhood developments, rights-of-way acquisition,
and minimum lot sizes. The City should carefully review subdivision and PUD
ordinances to insure that they are consistent with present trends of the housing market
and do not require more land than is reasonably required for public use. However,
conversely, the PUD and subdivision ordinances should be so designed to insure that
neighborhoods are well served by streets, parks, and in some cases, school sites.
C. Growth Management
The proceeding chapter has dealt extensively with growth management. For the City
to accomplish its goals it is essential that an ordinance be developed which will act as
a standby to give the City a legal basis for stimulating or slowing down growth in
accordance to its plans. The City's past experience with the Petaluma type ordinance
which establishes a quality point system in allocating a limited number of building
permits has been satisfactory, however, as this is an ever-changing field, there is no
doubt that many new techniques will be developed in the future. The City should
continue to investigate any alternative courses of action for growth management.
In addition to the three mainstays of implementation, there are several types of
implementation which should be reviewed and implemented by the City at a future date.
D. Site Plan Control Review
Site rlan review has beefl establisneelby the City fer fflultiple family struetures. It is
aceeml'lisheel thfOugn the Subeli'.'i3ion Ordinanee for single family struetures. Tne City
should inv'estigate the beflcli13 of including design re.iew either on a city siele basi3 or
88
in areas of special concern.
for eofflmereial aflel industrial "rejects, many of tl;e goals afld I'olicies of the City eoulel
be iffll'lefflenteel through a elesign eontrell or site 1'181'1 re'.'iey/ ofelinance .
BIte Plan Rewew has been .stabll.hed for Mllltl-Fanrlly (3+ Unl18J,
Indll.trlal and Conrnrero/alland II.... The obJeotI_ of Bite Plan
Review I. to .nsllre that the proper and adequate faollltle., and
InfraslrllOtllre a,.. prowded. BIte Plan Rewew I. a _yof oreatlng
IInlfornrlty In de_/opnrent, limiting oonfllol8 In d..'lln and bringing
abollt the 0__11 attraotl_ne.. of the oonrnrllnlty.
E. Sign Ordinance
The City has had a sign ordinance since 1973. It has been successful in controlling
proliferation of signs, mostly along main arterials. The Sign Ordinance implements both
policies relating to public health, safety and welfare, basically for transportation safety
as well as aesthetic goals. This type of ordinance should be continued and a more
effective and equitable means of controlling signs should be investigated. Thl. has
led to finding a/ternatl_ type. of .'lIn. .lIGh a. nronllnrent .'lIn..
The obleotl_ of nronllnrent .Ign. I. to reduoe the ./cysoap.
o/llster.
r. Access Control
One of tne fflaifl recommcfleations of tne Tral'llll'ortatiofl rlafl #8S to l'f6yiee a better
meal'ls of eol'ltf6l1ing aeeellS tel eit) streets, eSl'ecially arteri81s 8flel eolleetors. The City
'uill be e1e'.'6Iol'iflg an aeee1l3 control orelin8neo to rel'laee the existing driveway
efelifl8flee. Sl'ecific e1etails can be found in the Tr8flSl'ortation rlan.
F. Transportation Plan
Th. Woodbllrn Tran.portatlon Plan _. d._loped In 'SB5. It
define. the 11_1. and obleotlre. of the tran.portatlon plan,
foreoasle poplllatlon and traff/o llrowth In the Olty, and Id.ntlfI..
tran.portatlon Inrpro_nren18 needed to _tlsfy the foreoa.ted
llrowth. 'T'hfI plan defl".. tire tunotIonal oIlIIIselfloat/on of road. IIIInd
.tree" In Woodbllrn. The realllt 0' the , ess t_naportatlon plan
.howed thllt to IfIfHIt futu,.. demllllnd, It would be neoe.../"y to
Inrpro_ the 1-5/ Hlllh_y 2'4 Interohang. a. _II a. extend or
oonstrllol __ral other road..
G. Capital Improvement Plans
The Olty has adopted a Capital Inrpro_nrent Plan OIP, now the
obleot/_ I. to oontlnue to IIpdate It perlodl_lIy. The City is striving
toward its goal of orderly growth through adoption of a six year cal'ilal iffll'rOyemenl
p/8n olPwhich commits the City financially to the accomplishment of public facilities
89
projects. Related to capital improvement plans for public facilities are system
development charges which implement the City's goal of charging new development for
the additional services that it requires. The Capital Improvements Plan can be utilized
as an information tool to assist in the annual budgeting process and guide the
expansion and maintenance of the city's streets, water, sewer, storm drains, etc.
The CIP can be broken down into two general categories:
Short term projects; and
Long Term Projects.
Short term projects are those planned for construction within six years. These projects
indicate detailed descriptions of the location of the projects; the work required; a time
line for construction and an estimate of the cost with a breakdown of various funding
sources.
Long term projects are those intended to meet the needs of the City through the full
twenty year planning period.
Recently revised population projections and recent land inventories have revealed
hundreds of available undeveloped acres within the UGB that will require main public
services line extensions in the future.
A careful study of the long term projects contained in the CIP will reveal that they are
generally projects that extend main public facility lines in strategic areas of the
undeveloped Urban Growth Boundary.
All of the long term projects as outlined in the CIP have been shown to be necessary
to maximize the future development potential for the entire urbanizing area.
The CIP is designed so that both short term projects and long term projects are subject
to annual review. This way, the City can add, delete, and reprioritize projects as needs
change.
H. Downtown Renewal
One of the main problems with land use and economy in the City has been the
stagnated downtown area. In response, the City adopted a downtown development
plan. The Plan includes goals and policies addressing financial assistance programs,
citizen involvement, and physical improvements. The Plan has been adopted as an
element of the Comprehensive Plan.
I. Citizen Involvement
The success of the Woodburn Plan is directly related to establishing a method of
receiving citizen input. While complex organizations, such as are required in larger
cities, are not necessary in a city the size of Woodburn, clear lines of communication
90
should be maintained by the Boards, Commissions, Council and staff of the City to the
general public.
It is essential that a two way flow of communication be maintained for proper city
government to occur, especially in land use matters.
J. Housing Codes
As many of the structures in the City grow older, run down, deteriorated structures can
begin to detract and blight a neighborhood. While this is not a serious problem at
present, the potential exists in Woodburn for this to become a problem in the future, as
approximately 800 homes will be in excess of 50 years old by the year 2000. To insure
that the housing stock is kept in good shape, the City is in the process of ifflplefflenting
has Inrpl.inented a housing cede:- rehabilitation progranr.
A This housing rehabilitation program is currently in operation offering low interest,
deferred loans to low/moderate income homeowners in Woodburn for repair
maintenance, and rehabilitation of housing within certain target areas. Areas identified
as having the highest percentage of homes in need of basic repair, roofs, foundations,
paint, sidewalks, etc., have been targeted for rehabilitation. At present the City is
administering approximately $752,000 . ',000,000 in a revolving loan fund. with
a I'lali te rehabilitate alleast 7S heffles e)'\>'6r a three year peried. As the_ nron/e.
are paid baok to the Olty, they will be reoyoled to do additional
holl.lng rehabilitation work.
K. Flood Hazard Zone
The only identified natural hazard in Woodburn is the flood area. As this area contains
the most unstable soils for development, the City requires flood hazard area regulations
to insure that building does not occur. The City has already adopted a Flood Plain
Management Ordinance which meets the requirements of the Federal Flood Insurance
Program.
This ordinance should be monitored for its effectiveness and kept up to date.
L. Historical Site Zone
As historical sites often require special attention and special regulation, the City has
adopted policies to recognize historical sites and to encourage preservation and
protection. Policy L-12 of the Plan requires review of development applications for
historic properties by the Planning Commission.
Any of these above ordinances would be useless if not vigorously enforced by the City.
The recent addition of a codes enforcement officer to the Department of Community
Development will insure that city ordinances are enforced and obeyed.
91
XII. REVIEW, REVISION, AND UPDATE:
The planning process is continuous. There is no plan which can foresee all of the
problems which the future will bring.
In most cases for decision the Planning Commission and Council will be petitioned by
private citizens to change the Land Use Plan designation of a particular parcel of
property. This is a quasi judicial activity and should follow the procedures set out for
quasi judicial rulings. However, the Planning Commission should insure that whatever
changes it makes in the Land Use Plan, they are consistent with other goals and
policies established in this Plan. These changes, in general, should be justified by a
solid body of evidence presented by the petitioner showing the following:
1. Compliance with the goals and policies of the Comprehensive Plan;
2. Compliance with the various elements of the Comprehensive Plan;
3. Compliance with state-wide goals and guidelines;
4. That there is a public need for the change;
5. That this land best suites that public need; and
6. That the land cannot be suitably used as it is presently designated.
92
XIV. APPENDIX
A. Soils Data for the Woodburn Area
B. Supplementary Discussion of the Urban Growth Boundary
C. Abstracts
D. LCDC Goal 5 Work-sheets
E. Sensitive Groundwater Map
F. Map of Downtown Hlsforloal DI8Irlot
G. Map showllllJ Urban Growth Boundary
93
-
APPENDIX A
SOILS DATA FOR THE WOODBURN AREA
Prepared by: Donna McElroy
Land Resource and Conservation District
Soil
Amity Silt Loam
Bashaw Clay
Concord Silt Loam
Dayton Silt Loam
Labish Silty Clay Loam
Terrace Escarpments
Woodburn Silt Loam
Table 1
Depth to Bedrock
o to 20 in. 20 to 40 in. 40 to 60+ in.
X
X
X
X
X
------------ Variable------------------
X
Source:
"Soil
Data derived from OR-SOIL-1 forms. Definition of terms are from
Interpretations for Oregon."
Soil
Amity Silt Loam
Bashaw Clay
Concord Silt Loam
Dayton Silt Loam
Labish Silty Clay Loam
Terrace Escarpments
Woodburn Silt Loam
Table 2
Soils Having a Flood Hazard
Woodburn, Oregon
Frequency
None
Frequent
None
None
Frequent
None
None
Duration
Months
Long
Dec.-Apr.
Very Long
Dec.-Apr.
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from "Soil
Interpretations for Oregon.
94
Table 3
Soils with Landslide Hazard and Unstable Slopes
Woodburn, Oregon
Soil Mapping Unit
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-3 slopes (WuA)
Woodburn Silt Loam, 3-12 slopes (WuC)
Woodburn Silt Loam, 12-20 slopes (WuD)
Degree of Hazard
None
None
None
None
Slight
Severe
None
Slight
Moderate
Table 4
Soils with a High Water Table (Seasonal)
Woodburn, Oregon, 1979
Depth Kind
Soil (Feet) Apparent/Perched Months
Amity Silt Loam 0.5-1.5 X Nov.-May
Bashaw Clay 0.0-0.5 X Nov.-May
Concord Silt Loam 0.0-0.5 X Nov.-Apr.
Dayton Silt Loam 0.2 X Nov.-May
Labish Silty Clay Loam 0.0-1.0 X Dec.-Apr.
Terrace Escarpments 6.0+
Woodburn Silt Loam 2.0-3.0 X Dec. -Apr.
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are
from "Soil Interpretations for Oregon," p. 2.5 and the glossary.
95
T
Table 5
Soils with Problems of Erosion and Sediment Deposition
Woodburn, Oregon, 1979
Soil Mapping Unit
Degree of Problem
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Terrace Escarpments (T e)
Woodburn Silt Loam, 0-3% slopes (WuA)
Woodburn Silt Loam, 3-12% slopes (WuC)
Woodburn Silt Loam, 12-20% Slopes (WuD)
Slight
Slight ..
Slight
None to Slight
Slight ..
Severe
Slight
Slight to Moderate
Moderate
..
Problem is severe under flooding conditions.
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon.
Table 6
Ratings of Soils According to the Soil Erodibility Factor
(K of USLE), Woodburn, Oregon, 1979
Soil
Erodibility Class ·
Amity Silt Loam
Bashaw Clay
Concord Silt Loam
Dayton Silt Loam
Labish Silty Clay Loam
Terrace Escarpments
Woodburn Silt Loam
Moderate
Low
Moderate
High
Low
None
High
..
Definitions of classes are taken from "Soil Interpretations for Oregon," p. 24.
Source:
Data derived from OR-SOIL-1 forms. Definitions of classes are
taken from "Soil Interpretations for Oregon," p. 24
96
"-",
Table 7
Soils with Steep Slopes
Woodburn, Oregon, 1979
Soil Mapping Units .
General Extent
Terrace Escarpments (Te)
Woodburn Silt Loam, 12-2096 slopes (WuD)
Minor
Minor
*
Soil mapping units with slopes sufficiently steep to present management
problems. Erosion problems related to agriculture are shown on Table 14.
Table 8
Soil Limitations for Dwellings Without Basements
Woodburn, Oregon, 1979
Soil Mapping Unit Rating Restrictive Features
Amity Silt Loam (Am) Severe Wetness, low strength
Bashaw Clay (Ba) Severe Floods, shrink-swell,
wetness
Concord Silt Loam (Co) Severe Shrink-swell, wetness
Dayton Silt Loam (Da) Severe Wet, shrink-swell,
low strength
Labish Silty Clay Loam (La) Severe Wetness, floods, low
strength
Terrace Escarpments (Te) Severe Slope
Woodburn Silt Loam, 0-3% slopes (WuA) Moderate Low strength
Woodburn Silt Loam, 3-12% slopes (WuC) Moderate Low strength, slope
Woodburn Silt Loam, 12-20% slopes (WuD) Moderate Low strength, slope
Source:
Data derived from OR-SOILS-I forms. Definition of terms are from
"Soil Interpretations for Oregon."
97
-,.
Table 9
Soil Limitations for Small Commercial Buildings
Woodburn, Oregon, 1979
Soil Mapping Unit
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Rating
Severe
Severe
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Severe
Severe
Labish Silty Clay Loam (La)
Severe
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-3% slopes, (WuA)
Woodburn Silt Loam, 3-12% slopes (WuC)
Severe
Moderate
Moderate to
Severe
Severe
Woodburn Silt Loam, 12-20% slopes (WuD)
Restrictive Features
Wetness, low strength
Floods, shrink-swell,
wetness
Shrink-swell, wetness
Wet, shrink-swell,
low strength
Wetness, floods, low
strength
Slope
Low strength
Low strength, slope
Slope
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
Table 10
Ratings of runoff Potentials of Soils
Woodburn, Oregon, 1979
Low
(A)
Ratings of Runoff Potential
Moderately Moderately High
Low (B) High @ (D)
X
Soil
Amity Silt Loam
Bashaw Clay
Concord Silt Loam
Dayton Silt Loam
Labish Silty Clay Loam
Terrace Escarpments
Woodburn Silt Loam
X
X
X
X
X
X
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon." These ratings correlate with the
placement of these soils in the hydrologic soil group categories.
Source:
98
-,
Table 11
Soil Suitability for Source of Sand
Woodburn, Oregon, 1979
Soil
Amity Silt Loam
Bashaw Clay
Concord Silt Loam
Dayton silt Loam
Labish Silty Clay Loam
Terrace Escarpments
Woodburn Silt Loam
Rating
Unsuitable
Unsuitable
Unsuitable
Unsuitable
Unsuitable
Unsuitable
Unsuitable
Restrictive Features
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from "Soil
Interpretations for Oregon."
Table 12
Soil Suitability for Source of Gravel
Woodburn, Oregon, 1979
Soil
Rating
Restrictive Features
Amity Silt Loam
Bashaw Clay
Concord Silt Loam
Dayton silt Loam
Labish Silty Clay Loam
Terrace Escarpments
Woodburn Silt Loam
Unsuitable
Unsuitable
Unsuitable
Poorly Suited
Unsuitable
Unsuitable
Unsuitable
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Excessive Fines
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
99
Table 13
Soil Limitations for Cropland Use Because of Wetness
Woodburn, Oregon, 1979
Soil Mapping Unit
Limitation of Wetness
None to Very Unsuit-
Slight Moderate Severe Severe able
Amity Silt Loam tAm)
Bashaw Clay (Ba)
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-3% slopes (WuA)
Woodburn Silt Loam, 3-12% slopes (WuC) X
Woodburn Silt Loam, 12-20% slopes (WuD) X
X
X*
X
X
X*
X
X
* Wetness is caused by both poor soil drainage and flooding.
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
100
'-"
Table 14
Soil Limitations for Cropland Use Because of Erosion Hazard
Woodburn, Oregon, 1979
Soil Mapping Unit
Limitation of Erosion Hazard
None to Very UnsLit-
Slight Moderate Severe Severe able
Amity Silt Loam (Am- X
Bashaw Clay (Ba) X*
Concord Silt Loam (Co) X
Dayton Silt Loam (Da) X
Labish Silty Clay Loam (La) X*
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-3% slopes (WuA) X
Woodburn Silt Loam, 3-12% slopes (WuC)
Woodburn Silt Loam, 12-20% slopes (WuD)
X
X
X
* Wetness is caused by both poor soil drainage and flooding.
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
101
.---.._.__._-,---
.--
Table 15
Soil limitations for Septic Tank Absorption Fields
Woodburn, Oregon, 1979
Soil Mapping Unit
Rating
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Severe
Severe
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Severe
Severe
Severe
Terrace Escarpments (Te) Severe
Woodburn Silt Loam, 0-3% Slopes (WuA) Severe
Woodburn Silt Loam, 3-12% Slopes (WuC) Severe
Woodburn Silt Loam, 12-20% Slopes (WuD)Severe
Restrictive Features
Percolatesslowly,wetness
Floods, wet, percolates
slowly
Percolatesslowly,wetness
Percolatesslowly, wetness
Floods, percolatesslowly,
wetness
Slope
Percolatesslowly,wetness
Percolatesslowly, wetness
Percolatesslowly,wetness,
slope
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon," p. 3.1.
102
-~
Table 16
Soil Limitations for Sewage Lagoons
Woodburn, Oregon, 1979
Soil Mapping Unit
Rating
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Severe
Moderate
Severe
Moderate
Severe
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-3% Slopes (WuA)
Woodburn Silt Loam, 3-12% Slopes (WuC)
Woodburn Silt Loam, 12-20% Slopes (WuD)
Severe
Severe
Severe
Severe
Restrictive Features
Wetness
Floods, wet
Wetness
Wetness
Floods, wetness, excess
humus
Slope
Wetness
Wetness, slope
Wetness, slope
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon," p. 3.1.
103
...._,
Table 17
Soil Limitations for shallow Excavations
Woodburn, Oregon, 1979
Soil Mapping Unit
Rating
Severe
Severe
wetness
Severe
Severe
Severe
floods
Severe
Moderate
Moderate
to Severe
Woodburn Silt Loam, 12-20% Slopes (WuD) Severe
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-3% Slopes (WuA)
Woodburn Silt Loam, 3-12% Slopes (WuC)
Restrictive Features
Wetness
Floods, too clayey,
Too clayey, wetness
Wet, too clayey
Wetness, too clayey,
Slope
Wetness
Wetness
Wetness
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon," p. 3.2.
104
-"-
Table 18
Suitability of Soils for Irrigation
Woodburn, Oregon, 1979
Soil Mapping Unit
Rating
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Good
Poor
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Labish Silty Clay Loam (La)
Poor
Poor
Fair
Poor
Good
Good to
Fair
Woodburn Silt Loam, 12-20% Slopes (WuD) Poor
Terrace Escarpments (Te)
Woodburn Silt Loam, 0-39- Slopes (WuA)
Woodburn Silt Loam, 3-12% Slopes (WuC)
Restrictive Features
Favorable
Slow intake, wet, rooting
depth
Slow intake, wetness
Slow intake, wetness
Floods, wetness percs
slowly
Slope
Favorable
Slope
Slope
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon," p. 4.2.
Table 19
Soil Limitations for Roadfill
Woodburn, Oregon, 1979
Soil Mapping Unit
Rating
Amity Silt Loam
Fair
Bashaw Clay
Poor
Concord Silt Loam
Dayton Silt Loam
Poor
Poor
Labish Silty Clay Loam
Poor
Terrace Escarpments
Woodburn Silt Loam
Poor
Fair
Restrictive Features
Low strength, shrink-swell,
wetness
Shrink-swell, wetness, low
strength
Shrink-swell, wetness
Wet, low strength, shrink-
swell
Wetness, low strength,
excess humus
Slope
Low strength
Source:
Data derived from OR-SOILS-I forms. Definition of terms are from
"Soil Interpretations for Oregon."
105
Table 20
Soil Limitations for Development of Picnic Areas
Woodburn. Oregon, 1979
Soil Mapping Unit
Rating
Amity Silt Loam (Am) Moderate
Bashaw Clay (Ba) Moderate
Concord Silt Loam (Co) Severe
Dayton Silt Loam (Da) Moderate
Labish Silty Clay Loam (La) Severe
Terrace Escarpments (Te) Severe
Woodburn Silt Loam, 0-3% Slopes (WuA) Moderate
Woodburn Silt Loam, 3-12% Slopes (WuC) Moderate
Woodburn Silt Loam, 12-20% Slopes (WuD) Severe
Restrictive Features
Wetness
Too clayey, Wet
Wetness
Wetness
Wetness
Slope
Wetness
Wetness
Slope
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
Table 21
Soil Limitations for Development of Playgrounds
Woodburn, Oregon, 1979
Moderate Percolates slowly, wet
Severe Floods, too clayey, perco-
lates slowly, wet
Percolates slowly, wet
Wet, too clayey,
Percolates slowly
Labish Silty Clay Loam (La) Severe Wetness, floods
Terrace Escarpments (Te) Severe Slope
Woodburn Silt Loam, 0-3% Slopes (WuA) Moderate Wet
Woodburn Silt Loam, 3-12% Slopes (WuC) Moderate Wet, slope
Woodburn Silt Loam, 12-20% Slopes (WuD) Severe Slope
Source: Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
Soil Mapping Unit
Rating
Amity Silt Loam (Am)
Bashaw Clay (Ba)
Concord Silt Loam (Co)
Dayton Silt Loam (Da)
Severe
Severe
Restrictive Features
106
--,
Table 22
Soil Limitations for Development of Picnic Areas
Woodburn, Oregon, 1979
Soil Mapping Unit
Rating
Restrictive Features
Amity Silt Loam (Am) Moderate
Bashaw Clay (Ba) Moderate
Concord Silt Loam (Co) Severe
Dayton Silt Loam (Da) Moderate
Labish Silty Clay Loam (La) Severe
Terrace Escarpments (Te) Severe
Woodburn Silt Loam, 0-3% Slopes (WuA) Slight
Woodburn Silt Loam, 3-1296 Slopes (WuC) Slight
Woodburn Silt Loam, 12-20% Slopes (WuD) Moderate
Wetness
Too clayey, Wet
Wetness
Wetness
Wetness
Slope
Slope
Source:
Data derived from OR-SOILS-1 forms. Definition of terms are from
"Soil Interpretations for Oregon."
107
APPENDIX B
SUPPLEMENTARY DISCUSSION OF THE URBAN GROWTH BOUNDARY
This appendix is intended to explain in further detail the reasons the Urban Growth
Boundary was placed in the position it was. The discussion will be confined to those
areas between the existing city limits and the Urban Growth Boundary. It should be
noted that preservation of agricultural lands was an important consideration, however,
all of the lands around Woodburn are in Class 1 through 4 soils, the vast majority being
Class 2 soil. Also, those soils in Class 3 and 4 are for the most part in drainage areas
and therefore not available for urban development. Therefore, it is not possible to use
soil types as a criteria for defining where the UGB should be (refer to PII. "8
for ua. map).
The City instead attempted to exclude lands which had a significant amount of
agricultural development, such as orchards, berry fields, hop fields, etc., while making
lands which were simply used for row crops or non irrigated farming a lower priority in
terms of agricultural preservation. Also, the amount of land necessary for the UGB
expansion was kept to a minimum. Additional discussion of the method used to
determine the amount of acreage needed in the UGB can be found in Volume 1 of the
plan document. The serviceability of the areas are contained in Volume 2 and are also
summarized in Volume 1. This appendix intends only to explain the location of the
boundary as it was chosen. The areas will be explained by discussing segments of the
city limits and/or Urban Growth Boundary identified by a starting and ending point
identified by letters. The discussion will proceed in a clockwise manner starting with
letter "A".
The line segment from "A" to "B" follows the city limits, from "B" to "C" it iFlelueJes
81'ptOl<im8tely 70 sere! vil'liel'l R8116"" been designated multi-family residential. This
area was included in the Boundary because it has good access and accessibility to city
services and also provides needed multi-family residential land without disrupting
existing residences.
The line proceeds from "C" to "D" along the freeway and then from "D" to "E" along a
property line. The small, six acre triangle formed by the freeway and line segment liD"
to "E" is a storage area for recreational vehicles in the Senior Estates. They have
requested that it be included in the city limits.
The line then proceeds around the city limits to point "F". From point "F" to "G" it follows
existing property boundaries to Mill Creek. The area south of this is designated for low
density residential development. It was included because it contains only one filbert
orchard which is reaching maturity. It is also very well suited for residential
development as it is flat and fairly well serviced by roads. Sewer and water services
can easily be extended and economically serve this area. The Mill Creek area also
108
provides a buffer between it and industrial uses planned east.
The line then proceeds from "G" to "H". This line was chosen as the southern most
boundary of residences located on Crosby Road, also known as Whitney Road.
De.hvccn Mill Cree.J(, rf6Rt Ctreet, tRe bOURdSf) BRei tRe FIe;, 19i9R schoel it includes
approximately 80 e!ev'elopable aeres for ine!ustrial use al'le! pro'v'ie!e3 geoe! buffering
!,ossibilities tl'lrou\'}1'I the tJS6 of Mill Creek as a linear !,ark. The land in this area is used
for residential and industrial purposes; there is very little agriculture occurring.
The line then follows the city limits from "H" across the north end of the Woodburn
Industrial Park down Highway 99E to point "I". Point "I through "J" includes
approximately 40 acres south of the MacLaren School area. This is included in the
boundary and is mostly in ten acre parcels. There are minor orchard uses in this area
but as it is already somewhat developed in industrial and commercial uses, it was
included to provide for commercial expansion of the City.
The line then proceeds from "J" through "K" along Cooley Road. It ineltJe!es a small
ares of approximately 12 8cre3 y.tRiG!, 1983 City 3e~ie;83 available to it and vvl=liel; abut
against existing eit) limits at tR6 present. From "K" through "L" it follows the city limits
and from "L" through "M" includes an area east of Highway 99E which is essentially
urban in its development patterns. alt"'etJ\'}1'I some ine!i'v'ieJual lots area up te 2 or 3
aeres in size. This area receives some services from the City, mostly water, although
there are also some sewer connections.
From "M" through "N" it again follows the city limits and then from "N" through "0"
follows the property boundaries of Birds Eye to Highway 99E. This includes the area
presently zoned Light Industrial in the County and the area which Bires Cye ,he food
prats...'"" plant uses for its spray irrigation of the liquid wastes associated with
its processing. It also includes other parcels on Highway 99E which are presently
undeveloped but which could be served by the City eventually and be developed as
industrial uses.
The line then proceeds from "0" to "P" approximately following the south boundary of
the limits of gravity sewer service by the City along existing property lines. It includes
some areas which have essentially urban density developments, such as Shalimar
Mobile Home Park, and several commercial developments on Highway 99E. Most of
the land, however, is vacant and is used for agricultural purposes.
The line from "P" through "a" follows Boones Ferry Road at existing property lines
including a small area between Southern Pacific Lines and Boones Ferry. The line then
proceeds from "a" through "R" at a point which intersects Parr Road. This line follows
existing property boundaries and includes areas which may be served by the City
through gravity sewer, although some pumping may be required at the far reaches of
this Urban Growth Boundary area.
From "R" through "S" it follows existing property lines and includes an area which is
109
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presently flat and used exclusively for agriculture. It includes two large owners of
property which have portions of their holdings already in the city limits and which are
developed. The land is well suited for urban development and can be served by the
City. From "S" through "T" it follows the 1-5 right-of-way and then from "T" through "A"
follows property lines to encompass approximately 1 04 acres which the City has
included for industrial use.
ABSTRACT OF THE
WATER SYSTEM ELEMENT
Sever-I stream beds run in a general northeasterly direction and while no major surface
waters lie within the UGB, the City lies on top of a substantial but unconsolidated
groundwater aquifer. The aquifer is drawn down in the summer and fall months, but
recovers to approximately the same annual level after heavy winter rains, normally
30-40 inches. Recharge of the aquifer appears to be both from surface water infiltration
and side slope infiltration further east in the Cascade Range. The present water system
is mostly in good condition but some of the older portions are obsolete. Improvements
in distribution have usually been made in response to demands from unplanned growth
often resulting in redundant G: inadequate flow paths in various portions of town. Other
necessary improvements and maintenance have been deferred for lack of capital and
manpower to the point where they can no longer be neglected.
The cost of those distribution improvements which are attributable to widespread
development within the UGB between now and the year 2000 have been identified at
approximately $2,160,000 in 1979 dollars exclusive of source development. These and
other costs should be borne by new customers "hooking up" to the existing system.
This philosophy has been implemented in recent years by the City through the
establishment of service installation charges.
Conservation of water can reduce costs in several ways as an example, awareness of
the peaking problems and shifting non-essential uses of water to off-peak times of the
day would help tremendously in reducing the need for source development. Such a
conservation ethic would also reduce pressures on the underlying aquifer and well
system, possibly extending the life, quantity, and quality of the groundwater resource.
110
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ABSTRACT OF THE
STORM DRAINAGE ELEMENT
The Woodburn area is characterized by an extremely flat topography and relatively
impermeable soils. However a large percentage of the land is vacant or not intensively
developed. With an increase in densities and expanded developments there will also
be an increase in runoff volumes.
Within the UGB there are two principal drainage ways, Mill Creek, which is subject to
the most serious flooding especially upstream, and Senecal Creek, which is more
sensitive to times of intense precipitation. Accompanying the main drainage ways are
a number of small tributaries which characteristically begin as wide swales of very
gentle slope, becoming well defined deep channels near the principal watercourses.
Drainage policies and land use controls are as follows:
1. Piping will be required but natural drainage patterns shall be preserved.
2. Floodplain and major drainage ways should remain in open space and in
appropriate areas green way areas should be designated.
3. Developments will provide complete storm water management systems.
4. Developments shall be reviewed for consistency with Storm Water Management
and Comprehensive Plans.
5. Where developments are proposed for higher intensity uses than are indicated
on the Comprehensive Plan, adequate provisions must be made to maintain peak
runoff within levels indicated on the Storm Water Management Plan.
111
ABSTRACT OF THE
TRANSPORTATION ELEMENT
Future transportation needs in Woodburn are directly related to growth. Projections of
population and dwellings units have been prepared for the year 2000. These
projections indicate the total dwellings units are expected to increase from 4,143 in
1977 to 9,775 in 2000, a 135 percent increase.
Assuming no new roadways are constructed, volumes are expected to increase to near
20,000 daily vehicles on Highway 214 between Settlemier and Interstate 1-5 and more
than 20,000 daily vehicles West of Settlemier. Another high volume street segment is
the portion of Settlemier just South of Highway 214, with 13,000 daily vehicles, on a two
lane street.
To accommodate the projected 2000 volumes:
1 . 99E from Lincoln to 500 feet North of OR 214 should be widened to four
lanes; and
2. OR 214 from Interstate 1-5 to Park street should be widened to four lanes;
3. The East Young Street approach to the 99E intersection should be widened
to include separate lanes (12 feet) for right, left and through vehicles.
In conjunction with street and road improvements the City should:
1. Control driveway access along arterials and collector streets to minimize the
problems of vehicles entering and exiting the traffic flow.
2. Setbacks should be ample for building and parking and future street
expansion.
3. There should be adequate vision clearance at intersections to allow for
proper and safe movement of vehicles.
4. Construction should be prohibited except for temporary structures on future
rights-of-way.
5. The City should establish standards on traffic flows for arterials and
collectors based on their capacity to carry those traffic flows.
6. The City should establish a pedestrian and bicycle network within the City.
Also, changes at times will occur because of the following:
1. A mistake was made in drafting of the Plan; and
2. Conditions have changed which would justify a redesignation of a particular
parcel.
Commissions and Councils of the future should realize, however, the changes which
are made without sufficient justification can undermine the entire comprehensive
planning process.
112
"~"-...
Biennial Review
Every two years from the adoption of the Plan, The City Planning Commission shall, in
conjunction with a citizen involvement program, review the Plan, its applicability, its
successes and failures, and make a comprehensive report to the council, along with
suggested changes, if any are required. This will insure that the Plan will be kept up to
date.
Additionally, opportunities shall be provided for review and comment by citizens and
affected governmental units during preparation, review and revision of plans and
implementation ordinances.
Update
Eventually, and plan will become outmoded and outdated as conditions change. When
the City finds that revision is no longer practical or feasible, and the Plan must be
rewritten, the appropriate steps shall be taken and a new plan developed.
113
ABSTRACT OF THE
HOUSING ELEMENT
The Woodburn housing market has expanded and grown rapidly since 1960. There has
also been a shift to multi-family dwellings and mobile homes. The median family and
household incomes are below the Oregon average and, coupled with a vacancy rate
of near zero, a large number of Russian and Mexican-American households, and a long
waiting list for subsidized housing from people currently living within the City limits, the
need for low and moderate income housing is substantial.
To accommodate the anticipated growth the City should take specific leadership in
advocating growth and develop policies to encourage development and annexation.
Three growth scenarios have been formulated to project new housing requirements.
The first scenario would create approximately 6,000 new households, enough for a total
population of 25,000.
The City should:
1. Promote and encourage a diversity of housing types and prices;
2. Encourage an orderly extension of services;
3. Expedite review processes for development proposals; and
4. Establish areas suitable for different housing types within the UGB.
Scenario two projects a total population of 20,000 and a total number of households at
8,330. The City, in order to minimize costs and control the rate of growth, should direct
growth to zones of least cost.
The final scenario would severely restrict growth to 15,000 total population and to 6,250
total households. The City in order to protect its present character should strictly limit
the number of new residential units and establish and rigidly enforce standards for
annexation of additional lands.
The Planning Commission recommended the final housing requirements should be
based on a population of 23,000 by the year 2000. If housing demands exceed the
average units per year required, a Limited Growth Ordinance would become effective
immediately.
114
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.-
ABSTRACT OF THE
ECONOMIC ELEMENT
The overall approach of the City to its economic problems is to work to remove barriers
to the free and effective operation of market forces. The City prefers to allow the private
sectors to determine the rate of economic growth, the nature and type of growth, and
other economic development parameters. Public policy will be to remove constraints
on the free market by making sure that properly zoned land, water, sewer services,
police and fire protection and other services are made available. The City will attempt
to create conditions conducive to growth and development, but the initiative for
economic development will come from the private sector.
The effect of this approach will be essentially a continuation of existing conditions. The
basic structure of the local economy will change slowly. Marginal improvements can be
expected in the short run and this approach also avoids many of the risks associated
with a more aggressive public policy. Even a well planned economic policy involving
significant public commitments runs the risk of unfulfilled expectations, unsuccessful
investments, financial problems for existing businesses, resource misallocation, and
a variety of other problems. By adopting a conservative approach to its problems the
City minimizes many of these risks and follows the more cautious solutions of the free
market. Therefore, effective coordination between the public and the private sectors is
important in successful long term planning of Woodburn's economic development.
115
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APPENDIX It 0
LCDC GOAL 5 WORK-SHEETS
Type of Resource: Significant Historical Structure
Description: The Old Settlemier House
335 Settlemier Avenue
1. Inventory Requirement
1-A: Available information indicates resource site not important:
YES or NO
If YES, designate site 1-A; action required: none.
If NO, proceed.
1-B: Available information is insufficient to determine importance of resource site:
YES or NO
If YES, designate 1-B; action required: adopt policy to follow Goal 5 rule
requirements when information becomes available.
If NO, proceed.
1-C: Available information is adequate to indicate that the resource site is
significant:
YES or NO.
If YES, designate site 1-C; action required: Inventory
Location
Quality: Good
Quantity
Proceed to 2
2. Conflicting Use Determination and Analysis
2-A: There are existing or potential conflicting uses at the site:
YES or NO
If NO, designate site 2-A; action required: adopt a policy to preserve resource
site.
If YES, Proceed.
116
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