HomeMy WebLinkAboutAgenda Item - 2020-03-03 - Number 5.1 - Resolution 20-07 Concept Plan to Add Luscher Farm to the UGB 5.1
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Subject: Concept Plan to Add Luscher Farm to the Urban Growth Boundary (PP 19-0012)
Meeting Date: March 3, 2020 Staff Member: Scot Siegel, Director
Report Date: February 20, 2020 Department: Planning and Building Services
Action Required Advisory Board/Commission Recommendation
❑ Motion ❑ Approval
❑ Public Hearing ❑ Denial
❑ Ordinance ❑ None Forwarded
❑X Resolution ❑X Not Applicable
❑ Information Only Comments:
❑ Council Direction
❑ Consent Agenda
Staff Recommendation: Adopt Resolution 20-07 _
Recommended Language for Motion: Move to adopt Resolution 20-07
Project/ Issue Relates To:
❑Council Goals/Priorities ❑X Adopted Master Plan(s) ❑Not Applicable
ISSUE BEFORE COUNCIL
Whether to approve the Luscher Farm Concept Plan as part of the City's application to Metro to
amend the urban growth boundary.
EXECUTIVE SUMMARY
Resolution 20-07 (Exhibit A-1) is for "Approval of the Luscher Farm Concept Plan for purposes of
applying to Metro for an amendment to the Portland Metro Urban Growth Boundary(UGB)."The
Planning Commission conducted a public hearing and recommended approval of the Concept Plan
on January 27, 2020;the Commission adopted its findings on February 10, 2020.
The subject properties total approximately 83 acres(plus adjacent street rights-of-way) and contain
both active and passive recreational and agricultural uses. Currently, Clackamas County zoning
(Exclusive Farm Use) limits the types of recreational uses allowed. Adding these properties to the
UGB allows the city to eventually annex them (with voter approval, per City Charter) and apply city
zoning, consistent with the Concept Plan and Luscher Area Master Plan (Resolution 13-36).
503.635.0215 380 A Avenue PO BOX 369 Lake Oswego, OR 97034 www.lakeoswego.city
Page 2
BACKGROUND
The City Council directed staff to prepare a Concept Plan for review and recommendation by the
Planning Commission (Resolution 19-65). The Council resolution also directed the city manager to
apply to Metro for a major amendment to the Portland Metro UGB by March 15, 2020 (Metro's
deadline). The planning department prepared the attached concept plan consistent with the
Luscher Area Master Plan and Metro Code, and the Planning Commission has recommended City
Council approval. Resolution 20-07 adopts the Concept Plan for purposes of the City applying to
Metro for the UGB amendment next month.
The proposed Concept Plan is consistent with the Luscher Area Master Plan that the City Council
adopted pursuant to Parks Plan 2025 (Resolution 12-44) in 2013. Parks Plan 2025 is an element of
the City's Comprehensive Plan. Metro previously amended the UGB in 2006 to add the area that is
now developed as Hazelia Field Park. Lake Oswego requested that Metro add the balance of the
Luscher Area properties (with the exception of the recent Stevens Meadow acquisition) to the
UGB in 2012 but withdrew a portion of the request based on feedback from Metro; Metro
ultimately approved adding the city park land at the northwest corner of Atherton Drive and
Stafford Road to the UGB for future development of a recreation facility (tennis center). The
addition was made in exchange for lands south of Cook's Butte being removed from the UGB.
That request predated final approval of the Stafford Urban Reserves (on remand) in 2017, and
subsequent adoption of intergovernmental agreements by Lake Oswego and neighboring
jurisdictions for planning in the Stafford Basin.
DISCUSSION
The Luscher Area Master Plan envisions some land uses at Luscher Farm that are not currently
allowed by county zoning, such as urban agriculture and athletic fields. By amending the UGB,
annexing Luscher Farm to Lake Oswego,and applying the City's Parks and Natural Areas zone to the
property, the uses could be permitted. Staff believes this action is consistent with the city's
Comprehensive Plan, which supports UGB amendments "when necessary for the development of
public parks and recreation facilities" (Urbanization Policy A-1).The proposal is also consistent with
Plan policies relating to growth management and promotion of urban agriculture and separation of
urbanized areas in the Upper Stafford Basin.The Luscher Farm Concept Plan is consistent with the
policy that a buffer be provided between urbanized areas that maintains individual character of
each community. (The principal of community separation is also contained in the 3-City
Agreement for Concept Planning in the Stafford Basin.)
The city has coordinated this request with Clackamas County and the special service districts
serving the Stafford Basin, consistent with the Intergovernmental Agreement "Stafford Urban
Reserve Areas" (5-Party IGA) approved by City Council. Clackamas County provided testimony in
support of the proposal to amend the UGB to add Luscher Farm. The city has also coordinated
with the cities of West Linn and Tualatin as required by the Intergovernmental Agreement
"Planning for the Stafford Urban Reserve" (3-City IGA). The 3-City IGA specifically provides for
Lake Oswego undertaking concept planning and requesting UGB expansion(s) for Luscher Farm
and other properties owned by Lake Oswego in the Upper Stafford Basin.
503.635.0215 380 A Avenue PO BOX 369 Lake Oswego, OR 97034 www.lakeoswego.city
Page 3
FISCAL IMPACT
None
RECOMMENDATION
Approve Resolution 20-07.
EXHIBITS
A. Luscher Farm Concept Plan
A-1 City Council Resolution 20-07
Attachment 1: Luscher Farm Concept Plan, Draft 12/23/2019
B. Findings, Conclusions and Order
B-1 Planning Commission Findings, Conclusion and Order
C. Minutes
C-1 Planning Commission Minutes, 01/27/2020
D. Staff Reports
D-1 Planning Commission Staff Report, 01/15/2020
D-2 Planning Commission Supplemental Staff Report, 01/23/2020
E. Graphics/Plans [No current exhibits; reserved for hearing use]
F. Written Materials [No current exhibits; reserved for hearing use]
G. Letters
G-1 Letter from Friends of Luscher Farm, 01/21/2020
G-2 Letter from RJ Cook on behalf of JP and Susie Cook Family, 01/27/2020
G-3 Letter from Nancy Gronowski, 01/27/2020
503.635.0215 380 A Avenue PO BOX 369 Lake Oswego, OR 97034 www.lakeoswego.city
Effective March 3, 2020
RESOLUTION 20-07
A RESOLUTION OF THE LAKE OSWEGO CITY COUNCIL APPROVING THE LUSCHER FARM
CONCEPT PLAN FOR PURPOSES OF APPLYING TO METRO FOR AN AMENDMENT TO THE
PORTLAND METRO URBAN GROWTH BOUNDARY (PP 19-0012) .
WHEREAS, Resolution 19-65 directed staff to prepare a Concept Plan for review and
recommendation by the Planning Commission; and
WHEREAS, the Planning Commission conducted a public hearing on the Concept Plan on
January 27, 2020, and recommends approval; and
WHEREAS, the Lake Oswego City Council conducted a public hearing on the Concept Plan and
the Planning Commission's recommendation at its meeting on March 3, 2020;
NOW,THEREFORE, BE IT RESOLVED by the City Council of the City of Lake Oswego that:
Section 1. The City Council approves the Luscher Farm Concept Plan (Attachment 1),
incorporating the findings and conclusions of the Planning Commission (PP 19-0012).
Section 2. The City Manager is directed to submit the Concept Plan with the city's application
to Metro for a major amendment to the Portland Metro UGB by March 15, 2020.
Section 4. Effective Date. This Resolution shall take effect upon passage.
Considered and enacted at the regular meeting of the City Council of the City of Lake Oswego on
the 3rd day of March, 2020.
AYES:
NOES:
EXCUSED:
ABSTAIN:
Kent Studebaker, Mayor
ATTEST:
Anne-Marie Simpson, City Recorder
Resolution 20-07 (PP 19-0012) Page 1 of 2
APPROVED AS TO FORM:
David Powell, City Attorney
Resolution 20-07 (PP 19-0012) Page 2 of 2
LUSCHER FARM CONCEPT PLAN
CITY OF LAKE OSWEGO
PUBLIC REVIEW DRAFT
December 23, 2019
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Prepared For:
City of Lake Oswego Planning Commission
Public Hearing Date:
January 27, 2020
Prepared By:
Lake Oswego Planning and Building Services Department
Lake Oswego Parks and Recreation Department
(pursuant to City Council Resolution 19-65)
PP 19-0012 Attachment 1 to Exhibibit A-1
Draft Luscher Farm Concept Plan Page 2 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
ABSTRACT
Hearing Date,Time, and Location:
Monday,January 27, 2020; 6:30 PM
Council Chamber, 380 A Avenue
Lake Oswego, Oregon
Applicant: City of Lake Oswego, 380 A Avenue, Lake Oswego, OR 97034
Location of Property:
Six properties owned by the City of Lake Oswego and located outside the Portland Metro Urban Growth
Boundary (UGB) and City of Lake Oswego city limits, bounded by Stafford Road and Hazelia Field (city
park)to the west, Bergis Road and the City of Lake Oswego city limits to the north, Rosemont Road to
the south, and properties zoned Exclusive Farm Use to the east. See attached map.
File Number: PP 19-0012
Nature of Proposal and Use or Uses Which Could be Authorized:
The City of Lake Oswego intends to submit an application to Metro for a major amendment to the Portland
Metro Urban Growth Boundary(UGB) by March 15,2020(Metro's deadline)to add approximately 83.3
acres of City-owned parks and open spaces("Luscher Farm")to the UGB. Metro code requires a concept
plan be submitted with applications for major amendments to the UGB. Therefore the City is proposing
a concept plan for Luscher Farm that will accommodate the current and long-term needs for integrated
open space, park and recreational uses, including: 1) Urban agriculture uses and programs; 2)Athletic
fields; and 3) Connecting trails and pathways.
Following Metro approval of the UGB amendment, the City of Lake Oswego will amend its
Comprehensive Plan and Urban Services Boundary so that the Luscher Farm properties can be annexed
to the city(subject to voter approval) and zoned Park and Natural Area (PNA).
Explanation of Proposal:
The City's is proposing the concept plan and UGB amendment for the Luscher Farm properties because:
• Luscher farm provides open space, urban agriculture and recreational opportunities that cannot
be achieved on land inside the existing UGB.
• Allows the City to maintain and expand a unique combination of uses such as urban agriculture,
community gardens, cultural/historic education, interconnected trails, and appropriate
development of passive and active recreational facilities.
• The land is currently zoned Exclusive Farm Use (EFU), which is intended to protect "commercial
agricultural" uses and it does not provide flexibility to accommodate "urban agriculture", trails
and educational uses and programming envisioned at Luscher Farm.
• Urban facilities and services (sewer and water) cannot be extended to serve land outside of the
UGB. Additionally, System Development Charges (SDC's) cannot be spent on infrastructure
improvements outside of the UGB (such as pathways).
Draft Luscher Farm Concept Plan Page 3 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
• The City will have more certainty regarding allowable land uses on the properties and will be
able to fully implement the City's overall vision and the Luscher Area Master Plan.
• The City will be able to incorporate elements of the Luscher Area Master Plan into the City's
Comprehensive Plan and long-range public facility plans such as the Transportation System Plan,
Wastewater System Plan and Water System Plan.
Staff Contact: Scot Siegel, Director of Planning and Building Services, (503) 699-7474.
How to Testify:
The public hearing process will begin with a presentation by staff.Testimony will then be received from
the public. Individuals will be allowed up to 5 minutes. Recognized neighborhood associations/citizen
participation organizations, homeowner associations,government agencies or other incorporated public
interest organizations will be allowed up to 10 minutes.The time limits will not include time taken up by
questions from the Commission or responses to such questions.Testimony by attorneys,
representatives, and witnesses on behalf of or which are part of the presentation by a person shall be
counted within that person's time limit. Any person in attendance may cede his or her time for
testimony to another person, but in no case shall any person's testimony be increased to greater than
10 minutes.
To have your written comments or testimony distributed to the Planning Commission for review prior to
the hearing, they need to be received by 5 p.m. on Wednesday,January 22, 2020. Bring or mail written
comments or testimony to:
Iris McCaleb, Administrative Assistant
Lake Oswego City Hall
Planning and Building Services
380 A Avenue,Third Floor
PO Box 369
Lake Oswego, Oregon 97034
Email: imccaleb@lakeoswego.city. Phone: (503) 697-6591
Written testimony may also be submitted at the public hearing. Please provide twelve (12) copies for
distribution to the Planning Commission and staff. For more information about the hearing procedures,
please contact staff.
How to Obtain Further Information: The staff report and all evidence relied on by the applicant is
available for review at the above address. Copies may be obtained at cost.
Information can also be obtained by visiting the City's website at:
https://www.ci.oswego.or.us/all-proiects
(Under"Search" enter PP 19-0012,then press"Submit")
Recommendation: A final recommendation of the Planning Commission shall be forwarded to the City
Council. A final decision on this proposal will be made by the City Council.
Draft Luscher Farm Concept Plan Page 4 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Contents
INTRODUCTION 7
THE SITE 8
BACKGROUND 9
Purpose and Need 10
Planning Context 10
LUSCHER AREA MASTER PLAN 11
Vision Statement 11
Relationship to Lake Oswego Comprehensive Plan 12
General Planning Principles 13
Public Involvement 14
Urban Growth Boundary and Other Planning Considerations 15
URBAN GROWTH BOUNDARY CONCEPT PLAN 16
Area A:The Farr Open Space 18
Area B: Active Recreation 18
Area C: Urban Agriculture 19
Area D: Community Garden 21
Area E: Luscher Farm Program Area 22
Area F: Urban Ag/Environmental Education Area 25
Area G: Rosemont Entrance, Internal Road, and Parking 26
Area H: Firlane Farm/Crowell Property 27
Rosemont Multi-Use Trail 29
METRO FUNCTIONAL PLAN CRITERIA 30
APPENDIX 37
A. AGENCY SUPPORT 37
1. CITY COUNCIL RESOLUTION 19-65 37
2. CLACKAMAS COUNTY LETTER OF SUPPORT 37
3. CITY OF TUALATIN COORDINATION SUMMARY 37
4. CITY OF WEST LINN COORDINATION SUMMARY 37
B. LAKE OSWEGO COMPREHENSIVE PLAN URBANIZATION CHAPTER (excerpt) 37
C. 5-PARTY IGA FOR STAFFORD URBAN RESERVE 37
D. 3-CITY IGA FOR STAFFORD AREA PLANNING 37
E. COST ESTIMATES AND FUNDING OPTIONS 37
Draft Luscher Farm Concept Plan Page 5 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
[page intentionally blank]
Draft Luscher Farm Concept Plan Page 6 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
INTRODUCTION
This concept plan supports the City of Lake Oswego's request to Metro to add approximately 83.3 acres
of City-owned land in the vicinity of Stafford and Rosemont Roads to the Portland Metro Urban Growth
Boundary(UGB)to accommodate current and long-term needs for integrated open space, park and
recreational uses.The area is referred to herein as the "Luscher Farm Concept Plan Area" (Figure 1).
The concept plan was prepared pursuant to Metro Code 3.07.1110 and City Council Resolution 19-65
(see Appendix A).The plan also conforms to the current Intergovernmental Agreements between Lake
Oswego,Clackamas County, Metro,and the cities of Tualatin and West Linn (see Appendices B and C)that
outline planning responsibilities for the Stafford Area and specifically recognize Lake Oswego as the lead for
concept planning and the future urban service provider for the Luscher Farm Area properties.
Figure 1:Luscher Farm Concept Plan Area and Vicinity
Luscher Farm Area Properties
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After Metro amends the UGB to include the concept plan area,the City will amend its Comprehensive
Plan and Urban Growth Management Agreement with Clackamas County to include the properties in
the City's Urban Services Boundary.The City will also designate the future zoning of the area for Park
and Natural Area (PNA) uses, consistent with the city's Comprehensive Plan and Community
Development Code. Under the Lake Oswego City Charter,voter approval (by Lake Oswego electors) is
required before the City may annex the subject properties.
Draft Luscher Farm Concept Plan Page 7 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
THE SITE
The subject site consists of six parcels totaling 83.3 acres of parks and natural areas (agricultural and
recreational lands) and the abutting public rights-of-way of Stafford Road and Rosemont Road, bounded
by the Lake Oswego city limits to the north, Stafford Road and Hazelia Field (city park)to the west,
Rosemont Road to the south, and unincorporated lands zoned exclusive farm use by Clackamas County
to the east.This is only a portion of the Luscher Farm area properties owned by the City of Lake Oswego,
as shown in Figure 1. Other City parks and open spaces in the vicinity have either been brought into the
Portland Metro UGB previously or are not timely to be brought in.
Figure 2:Hazelia Field(inside UGB)and Luscher Farm- View to Southwest
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Draft Luscher Farm Concept Plan Page 8 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Figure 3:Luscher Farm Area UGB Amendments
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BACKGROUND
In 2013,the City of Lake Oswego adopted the Luscher Area Master Plan (LAMP) (Resolution 13-36),
establishing a vision and long-range plan for City parks and open space properties in the Stafford Basin.
The LAMP was adopted pursuant to Parks Plan 2025 (Resolution 12-44),the City's long-range parks and
recreation plan and an element of the City's Comprehensive Plan.The LAMP includes all of the City-owned
parks and open space properties in the subject area,with the exception of a 4.79-acre addition to Stevens
Meadows that the City acquired in 2019. For the 83.3 acres in this concept plan, the master plan identifies
the following priorities: 1) urban agriculture uses and programs; 2) athletic fields; and 3) connecting
trails and pathways.The Lake Oswego Comprehensive Plan (Urbanization Policy A-1)supports amending
the UGB when necessary for the development of public parks and recreation facilities.
The City of Lake Oswego is the sole jurisdiction that will govern and serve the concept plan area upon
annexation.The City has coordinated its concept planning with Metro, Clackamas County,the special
service districts serving the Stafford Basin, and the cities of West Linn and Tualatin, as detailed below.
The Stafford Hamlet and other Stafford Basin neighborhood associations/citizen participation
organizations have been notified of the proposed concept plan.
Draft Luscher Farm Concept Plan Page 9 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Purpose and Need
The City has prepared this concept plan and is requesting Metro approve a major amendment to the
UGB at this time for the following reasons:
• Luscher farm provides open space, urban agriculture and recreational opportunities that cannot
be achieved on land inside the existing UGB.
• Allows the City to maintain and expand a unique combination of uses such as urban agriculture,
community gardens, cultural/historic education, interconnected trails, and appropriate
development of passive and active recreational facilities.
• The land is currently zoned Exclusive Farm Use (EFU), which is intended to protect "commercial
agricultural" uses and it does not provide flexibility to accommodate "urban agriculture",trails
and educational uses and programming envisioned at Luscher Farm.
• Urban facilities and services (sewer and water) cannot be extended to serve land outside of the
UGB. Additionally, System Development Charges (SDC's) cannot be spent on improvements
outside of the UGB (such as pathways).
• The City will have more certainty regarding allowable land uses on the properties and will be
able to fully implement the City's overall Vision and the Luscher Area Master Plan.
• The City will be able to incorporate elements of the Luscher Area Master Plan into the City's
Comprehensive Plan and long-range public facility plans such as the Transportation System Plan,
Wastewater System Plan and Water System Plan.
Planning Context
The proposed concept plan properties have been identified by the City as a priority area for public
acquisition, open space protection and recreational uses for more than 20 years. Land acquisitions and
park and recreation improvements have been supported by adopted City plans and voter approval of
open space/park bond measures in 1991, 1998, 2002, and 2019.
The City has completed three substantial planning efforts and two intergovernmental agreements that
provide context for the proposed UGB amendment.These include the City's Community Vision 2035 and
Comprehensive Plan Update (2013); Parks Plan 2025; the Luscher Area Master Plan (2013); the Five-
Party IGA on the Stafford Urban Reserve (with Clackamas County, Metro, and the cities of Tualatin and
West Linn, and Lake Oswego), adopted in 2017, and the 3-City IGA between Lake Oswego,Tualatin and
West Linn on Stafford Area Planning, adopted in 2019. (See Appendices C and D).These plans and
agreements support the proposed UGB amendment(to include the Luscher Farm properties within Lake
Oswego),to meet current and long-term public need for community-scale open space, urban agriculture
and recreational uses that cannot be accommodated on land or parks inside the existing UGB.
Metro code requires city approval of a concept plan for properties that are to be brought into the UGB.
The City of Lake Oswego, pursuant to City Council Resolution 19-65, intends to submit an application to
Metro for a major amendment to the UGB by March 15, 2020(Metro's deadline).This proposed concept
plan supports Lake Oswego's request to Metro and has been coordinated with Clackamas County,
Stafford Basin service providers, and the cities of Tualatin and West Linn as required by the 5-Party and
3-City IGAs, and as demonstrated by the supporting documentation in Appendix A.The City is also
seeking input from the Stafford Hamlet and other Stafford Basin neighborhood associations/citizen
participation organizations, which have been notified of the proposed concept plan.
Draft Luscher Farm Concept Plan Page 10 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
LUSCHER AREA MASTER PLAN
The proposed concept plan draws on the relevant components of the Luscher Area Master Plan (LAMP).
In 2013,the City of Lake Oswego adopted the LAMP after extensive public involvement that included a
wide array of citizens and citizen groups, advisory groups, city and county departments, and
independent consultants.The effort dates from 1994 when
the City Council assigned a task force to develop the
Luscher Farm Opportunities and Constraints Study. Planning
continued through July 1997 with publication of the Master
Plan for Luscher Farm.This plan set forth recommendations 1j .-----r
for half of the current parcels that comprise the Luscher
Area in the following areas:transportation, historic zone, ro i r r. A ' tki��� 6 �€
passive recreation and buffer areas, natural resources, and '�
active recreation. '(� `,; 5 �� ,. s fi-y��
Vision Statement
The following Vision Statement is from the Luscher Area Master Plan, Resolution 13-36, adopted by the
Lake Oswego City Council,July 25, 2013,for the broader Luscher Farm Area:
The Luscher Area is a diverse and inspiring park landscape that integrates historic, educational,
recreational, sustainable, agricultural, open space and environmental sensibilities into a place that
cultivates community culture, health, connectivity, and the economic vitality of Lake Oswego.
The Luscher Area Master Plan is the culmination of nearly 20 years of hopes, aspirations, and
planning of this 152 acre site. It reflects the evolution of Lake Oswego, our needs and priorities. The
preservation of this diverse site, so rich in history, but also full of opportunity for the future, is of the
highest priority for all who love Luscher Farm. The creation of this plan is a generational chance to
integrate the open space, sustainability, historic, educational, and recreational sensibilities of our
community. This Luscher Area Master Plan reflects a snapshot of the present, and a legacy for future
citizens to appreciate and enjoy what has been created and preserved.
The group of properties, which together make up the Luscher Area park lands, is unique in the City.
Rolling agricultural landscapes, tree groves, streams, wetlands, historic farm buildings, and a
working farm make up the primary character of these properties. The variety of land types and uses
together with the aggregate size of these parcels qualifies them to be thought of as a district with its
own set of land use definitions. Its location and open character on the southeast border of the City
allow it to serve as a buffer between the City and unincorporated Clackamas County.
This buffer zone function is reinforced by consolidating the active recreational sports fields around
the existing Hazelia Field. The assets of agricultural lands, natural areas and the historic core of the
Rudy Luscher Farm shall be respected and preserved for future generations while meeting the
growing demand for active recreational uses together with bicycle and pedestrian connectivity.
Following the principles laid out in the Parks Plan 2025, the Luscher Area Master Plan embodies the
principles of sustainability, historic preservation, natural resource protection, and recreation, and
indicates where those will take place in the Luscher Area. It seeks to meet the needs of today's
citizens without compromising those of future citizens.An Education Center is envisioned which is
Draft Luscher Farm Concept Plan Page 11 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
expected to provide a vehicle to promote a supportive community by teaching youth and adults
about the importance of farming and food, as well as wetland conservation, environmental
stewardship and connecting with our historic past. This multifaceted approach to developing the
Luscher Area park properties will help Lake Oswego thrive.
Relationship to Lake Oswego Comprehensive Plan
The Luscher Area fulfills the Comprehensive Plan community vision in the following focus areas:
Community Culture
The Luscher Area provides facilities and programs that support community events, environmental and
agricultural education, historic preservation and a variety of recreation opportunities.
Complete Neighborhoods and Housing
The Luscher Area provides attractive park facilities that meet neighborhood needs for close-to-home
recreation opportunities, serving a range of ages, incomes and diverse households.
Connected Community
The Luscher Area includes trails and pathways that connect these properties to other destinations in
Lake Oswego and its neighbors.
Economic Vitality
The Luscher Area provides opportunities for play and events that support the City's economic vitality.
The Luscher Farm will also provide locally grown food to meet daily needs.
Healthy Ecosystems
We are good stewards of our environment.The Luscher Area properties will protect and preserve
significant habitat, wetlands and agricultural landscapes through restoration, management and
stewardship.
Community Health and Public Safety
The Luscher Area contributes to a safe and healthy community by providing safe, well-maintained park
facilities; programs that support lifelong learning, active recreation, and fitness; places that reduce
stress and promote mental health by connecting people to nature and the outdoors; and healthy food
choices for residents in Lake Oswego. (See Access to Local Food Section, Policy 2 and Recommended
Action Measure 3).
Inspiring Spaces and Places
The environment and landscape along with historic and new facilities of the Luscher Area properties
continue to inspire residents and visitors to Lake Oswego for many generations.These elements reflect
an artful approach to our public spaces.
Urbanization
The Comprehensive Plan Urbanization Chapter supports adding Luscher Farm to the UGB so that the
City of Lake Oswego can manage the area as a public open space. See Appendix B.
Draft Luscher Farm Concept Plan Page 12 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
General Planning Principles
The Luscher Area properties provide for a wide range of recreational uses, heritage preservation, and
natural resource protection, as generally shown in Figure 4. (This concept plan and the proposed 2020
UGB amendment includes only Areas A-H.)
Figure 4:Luscher Area Master Plan Subareas
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While the LAMP site plan shows locations for various uses, each particular property often
accommodates a variety of uses. For example, the 22.15 acre historic overlay zone on Luscher Farm
encompasses not only the historic farm structures, but also urban agricultural farming, community
gardens, Clematis botanic garden, wetlands, community event spaces, and picnic areas (see Figure 4.1).
Another example is areas designated for active recreation (see figure 4.2). In addition to active uses,
such as sports fields,these areas include natural resources, open spaces, picnicking,viewpoints, and
trails.The adjacent figures show the overlapping location of general uses in the site plan, see figures 4.3
and 4.4.
Draft Luscher Farm Concept Plan Page 13 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Figure 4.1:Historic Resources Figure 4.3: Urban Agriculture
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Overall, providing safe access to and within the site for all modes of transportation, including walking,
biking and driving, is a major guiding principle in terms of the general site design. Minimizing the impact
of these circulation features was key to preserving and developing the various areas. While there are
circulation features- including trails, paths, roads and parking lots- in each zone,the primary vehicular
circulation routes are described in Areas B and G (see figure 4).
Public Involvement
The planning and design process for the LAMP was conducted along with the Parks Plan 2025. Adopted
in 2012, Parks Plan 2025 is the result of a wide-ranging planning effort to establish a vision for the future
of Lake Oswego's parks, recreation and natural areas. As a major community asset,the future of the
Luscher Area is directly linked to the vision and direction set-forth in the 2025 Plan.Throughout the
development of Parks Plan 2025 and the LAMP,feedback from the community was central in identifying
the desired future for the Luscher Area. Community participation was a fundamental element of the
plan process and the needs and goals identified in the parks plan and LAMP are founded on extensive
citizen input. Over 1,800 people contributed to the Parks Plan 2025 effort. City residents, interest
groups, park users, City staff and agency representatives provided feedback through a variety of
meetings, open houses, workshops, surveys and questionnaires designed to capture the diverse
interests and needs of the community.
Draft Luscher Farm Concept Plan Page 14 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
The process included an examination of new and adopted plans and studies that impact the park system
and the future of the Luscher Area. During the Plan's development,the City was also working on the
Comprehensive Plan update. As a result,the Parks Plan carries forward the overarching goals of the
Comprehensive Plan into its framework. Comprehensive Plan goals that relate to the Luscher Area
(Urbanization Chapter) include a focus on educational, cultural and recreational opportunities, a
community where people can live,work and play, a healthy environment and inspiring natural settings.
Urban Growth Boundary and Other Planning Considerations
Currently, only a portion of the Luscher Area is within the UGB. While all of the Luscher Area properties
are owned by the City of Lake Oswego, most remain outside the UGB and are subject to development
restrictions set forth by the State of Oregon and Clackamas County.The LAMP and hence this concept
plan are based on the assumption that properties comprising the Luscher
Area will be brought within the UGB and zoned PNA (Parks & Natural - •
Area) under Lake Oswego's development code to allow uses that are
compatible with the vision of the LAMP.
In 2010,the City of Lake Oswego commissioned a study to explore the
potential for introducing an indoor 8-court tennis facility on the Rassekh •
Property(Area J), located at the northwest corner of the Stafford Road *: _ Y-`
roundabout. In 2013, the UGB was modified to possibly accommodate ' " `
this development, with the Rassekh property brought into the UGB and
some lands with physical constraints south of Cook's Butte removed from the UGB.The tennis center
project was not developed however due to changes in citywide recreation priorities and needs. As of
2019,the City was evaluating options for improving the existing tennis center at Springbrook Park to
include spectator viewing area and improved parking and possible use of the Rassekh property for
athletic fields with possible wetlands enhancement.
Land uses in the Luscher Area must also comply with development restrictions and specific
requirements on individual Luscher properties. Each of the parcels that comprise the Luscher Area has a
set of stipulations from its purchase agreement and from the city park bond funds that were used to
purchase each property.The LAMP, and hence this concept plan, reflect these restrictions and
requirements. Details about each property, including which park bond funds were used to purchase
them and deed stipulations, are outlined in the LAMP.
Finally,future development of the site is limited by its access to water sources and sanitary sewer
services,which vary between the properties.The City may eventually provide a sewer connection to the
Luscher Farm historic homestead, but the remaining portions of the Luscher Area do not require
restrooms and will be serviced with well water via additional water rights applications.This approach is
practical when it comes to expanding farming and community gardens. Water rights exist for agricultural
and domestic uses (house and classroom)from two wells on the Luscher Farm property. Since the
existing well on Firlane Farm lacks capacity for additional uses, it will be necessary to obtain additional
water rights for expanded agricultural uses and the proposed Urban Agriculture & Environmental
Education Center.The Luscher Farm well has sufficient capacity for these new uses and the City assumes
that water from the Luscher site can be used on Firlane Farm through a water rights application process.
Draft Luscher Farm Concept Plan Page 15 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
URBAN GROWTH BOUNDARY CONCEPT PLAN
The following illustration is from the LAMP. This urban growth boundary Concept Plan however includes
only Areas A-H of the LAMP, except for those parts of Areas A and B that are already inside the UGB
(Hazelia Field and the Dog Park area). Areas J, K, and I are not part of the City's request to amend the
UGB and therefore are not included in the Concept Plan.
Figure 4 (repeated): Luscher Area Master Plan Subareas
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Draft Luscher Farm Concept Plan Page 16 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
AREA A.FARR OPEN SPACE - ' r - • '4
1.PASSIVE RECREATION NEIGHBORHOOD PARK ' ' r • ` al ,f s �',}•►4. * �S
2.EXISTING WETLAND4 ) a • •--•j.- -
AREA B.ACTIVE RECREATION AREA `. t , ) }
3.EXISTING STAFFORD ROAD ENTRANCE r E �`
4.EXISTING PARKING LOT(125 SPACES) a ; •, 1 :1
6.EXISTING DOG PARKS i
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6.EXISTING PLAY AREA t RESTROOM - �.r i _Li Jr
/.EXISTING STORAGE FACILITY_ � w �__ _ - t
E `I ,12 -
8.EXISTING HAZELIA ATHLETIC HELD • 1 z 3 f �- �4,
9.MULTI-USE SYNTHETIC ATHLETIC FIELDS(2) •a. ' ' + 1 -f-' ^� f` .,,I , 1_•_
10.INTERNAL ASPHALT ROAD w T I 1 I-I ■1� l ) C
11.PARKING LOT(125 SPACES) `'+ - f� I _ME 9 _IS 1 11 r -
12.BASKETBALL COURTS(2) r d f y 6 ICI JP O C 1 7
13.FLEXIBLE USE AREA:ACTIVE RECREATION,URBAN AGRICULTURE, l u 1 i =_- I
OAK UPLANDS(NATIVE GRASSES,ECO-FRIENDLY LAWN,OAK TREES i- ' x• r ti ' • i (_;('j� is _ *-
AREA C.URBAN AGRICULTURE i _ •
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14.EXISTING COMMUNITY SUPPORTED AGRICULTURE FIELDS • , -• � __-.../X111D 73 •
AREA D.COMMUNITY GARDEN AREA ---
• • 34 • '�
15.EXPANDED COMMUNITY GARDEN AREAS(192 PLOTS,CHILDREN'S .., ,� ' ' . i g2 ;
GARDEN,OREGON TILTH DEMONSTRATION GARDEN) YA }i r _ ) i 4
l�„� L =t f' +- t
16.POTENTIAL COMMUNITY GARDEN EXPANSION(55 PLOTS)OR URBA £'r ;I i , •
AREA E.LUSCHER FARM HISTORIC AREA tr�; 1 r L. 1 C f 25 ® r
17.FARMSTEAD AREA(BARN,HOUSE,OUTBUILDINGS,GRAVEL PARKINt ����`"`.• • 3� / / r t
18.OPEN GREEN SPACE 1' / ,
19.EXISTING WETLANDS /� r p . -_� ' i !Ip . el • I VD i -
20.EXPANDED CLEMATIS GARDEN • *' # t• ...„ * " :i, .; 4 i r
AREA F.URBAN AG/ENVIRONMENTAL EDUCATION AREA , ? r- ' '' � ��•" 0 . r•'*_w ( 'i• t
21.URBAN AG/ENVIRONMENTAL EDUCATION CENTER(BUILDING,PARKING,GREEFI SPACE) - '" - +• .q, d I� 4::.) i ; r - r
22.AGRICULTURE-THEMES PLAY AREA ! .et`?. ;~ I. r e. lir
AREA G.ROSEMONT ENTRANCE,INTERNAL ROAD,AND PARKING -- - I 'r' r . 0 • R•r .- •
-
23.ROSEMGRAVEL NT ROAD ENTRANCE(GRAVEL ROAD) %L _ 1111
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24.GRAVEL PARKING LOT(75 SPACES) '* i
25.OVERFLOW PARKING AREA/BUS PARKING tTURN-AROUND GS7
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26.INTERNAL GRAVEL ROAD(GATED) f • •T 1 - ill rr' +
AREA H.FIRLANE FARM/CROWELL OPEN SPACE s ® rs { • r
27.GRASSLAND W.OAKS AND MAPLES,TRAILS,LIVESTOCK+PASTUREit. I.
4- Inms
AREA I.BROCK OPEN SPACE 9 -G'3 j a'i 't; y / 30 ' )'
28.GRASSLAND W.OAKS AND MAPLES t TRAILS • • 'I r
29.REHABILITATED OPEN-AIR PROGRAM STRUCTURE S WO• , >
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30.ROPES CHALLENGE COURSE • • • _ . F / • -
31.PARKING LOT+TRAILHEAD(7 SPACES) •Ss•■ ire - I - 31
AREA J.RASSEKH ACTIVE RECREATION AREA �^ t�•
r •rt �. '�!�: r w 'Cz
32.ACTIVE RECREATION e 1...a
33.NEIGHBORHOOD PARK(PLAY AREA,PICNIC SHELTER,INTERPRETIVE'TRAIL) iAr +7 1
-11 4-. 'S
34.NATURAL RESOURCE RESTORATION - , t��} r •
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AREA K.STEVENS MEADOW OPEN SPACE ! ~Appl� -. t 4 - . , ii�e.4lir
35.GRASSLAND W.OAKS AND MAPLES+TRAILS
36.GRAVEL PARKING LOT+TRAILHEAD(10 SPACES) J ecolawn/meadow grasses wetland asphalt parking area trail(a range of pedestrian and bike use) ,I planned agriculture building * wildlife viewing blind
■P• grassland with oaks and maples riiiriiiiiriiii.ii urban agriculture gravel road stream and stream buffer ■ planned architectural structure • picnicking area
sports field community gardens •1 1 gravel road gates clackamas co.historic landmark zone ■ historic architectural structure
L n SC H E R AREA
E,,, MASTER
STE R PLAN
N dog park asphalt road - gravel parking area + viewpoint area w/benches ■ non-historic existing architectural structure 4YE PLAN
U W W W W u Wuu 1 lu I�
IMUM 815 SW 2ND AVE I SUITE 200I PORTLAND,OR 972041 T 503.297.1005 0' 200' 400' 63
Page 17 of 37
PP 19-0012 Attachment 1 to Exhibibit A-1
Area A: The Farr Open Space
The Farr Open Space is located north of the Hazelia Field site on the Farr Property and consists of
approximately 8.8 acres.
The Farr Open Space will provide traditional park features including a passive recreation space, multi-
use trails, picnicking areas, a new picnic shelter, and an eco-friendly lawn. Eco-friendly lawns are a
sustainable alternative to traditional turf and reduce the need for mowing, irrigation,fertilizer and
herbicide applications.These lawns are ideal in areas of medium to heavy public programming, such as
small group gatherings, and casual recreation.The existing wetland north of Hazelia Field, a seasonal
wetland with wet and dry periods, will contain interpretive signage to explain its natural features and
functional qualities, and a small boardwalk and viewing platform for public access. Habitat corridors
connecting this wetland to other wetland areas near the Historic Core will be established and enhanced
with native vegetation.
Size of existing and proposed facilities:
• 6.0 acres of open space
• Approximately 2.5 acres of existing wetland
• 1,700 linear feet of pedestrian trails
• 30' x 40' picnic shelter with tables
The Farr Property is an appropriate site for these uses for several reasons: First,the flat topography is
accessible. Second,the site is adjacent to a neighborhood with direct trail access for nearby residents.
Third,the existing trees provide a screen and are a pleasing backdrop for the proposed picnic shelter
and passive recreation space that can be used for pick-up games and small-group activities.The existing
Douglas fir trees also act as a buffer between the park site and the residential neighborhood
immediately to the north.
Area B: Active Recreation
The Active Recreation area is located on the Taylor Property and the northern portion of the Luscher
Property,just south of the proposed Farr Open Space, and consists of approximately 22.5 acres.
The Active Recreation Area expands current facilities and programming at the Hazelia Field Site. Existing
features include the Stafford Road entrance at the Overlook Drive intersection, a landscaped parking lot
with 125 spaces, bike parking,two off-leash dog parks, a children's play area, restrooms, a storage
building, and one lighted multi-use artificial turf sports field. Proposed features include two additional
multi-use lighted artificial turf sports fields (can be used as two soccer/lacrosse fields or as a
baseball/softball field), a landscaped parking lot for 125 spaces,two full-sized basketball courts, oak tree
planting enhancements at the upland ridge just south of the proposed parking lot, and new picnic areas
with significant views across the site.The oak tree planting area (B1 "flexible space") is intended to be
flexibly used for future active recreational uses, passive open space, or urban agriculture as needed.A
new asphalt road lined with deciduous street trees will connect the proposed parking lot to the existing
one.The trees will provide a visual buffer for this circulation feature and a physical buffer to the
agricultural activities to the south. Stormwater will be managed on-site per the applicable City storm
drainage standards and the LAMP recommendations for surface water management. Plantings along the
drive will also provide a visual buffer from Stafford Road to minimize the visual impact of the
Draft Luscher Farm Concept Plan Page 18 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
development. Primarily pedestrian access between the two lots is by a 6-foot wide sidewalk on the
north side of the road.
Size of existing and proposed facilities:
• 2.65 acres parking (125 existing spots, 125 new spots)
• 7.25 acres of sports fields, including two new 375' x 215' lighted multi-use artificial turf fields
• 0.25 acres basketball courts (2 courts)
• 1,200 linear feet of asphalt road
• 6,385 linear feet of sidewalks
• 2.0 acres of dog parks
• 2,230 linear feet of pedestrian trails
• 0.10 acre play area
• 40' x 50' restroom building
• 40' x 50' storage facility
• 6.0 acres flexible use area with oak uplands, native plantings, meadow/eco-friendly lawn
Additional recreation facilities are appropriate for this area because they group similar functions and
facilities together.This is more economical and reduces the need for additional roads, parking lots, and
restroom facilities throughout the site.This area can be graded to create the flat topography needed for
sports fields, while the sloping topography that is left between the fields provides safe and easy viewing
areas for spectators.
The access routes to the restrooms, the vehicle parking areas, and the internal circulation paths provide
efficient connections between the facilities,which is especially important when they are being used
simultaneously or by large groups.The basketball courts located north of the multi-use fields will also
take advantage of these support facilities. Small picnicking areas in three locations will provide seating
areas for spectators along the upland oak area ridge.
The new parking lot will serve the new sports fields and courts, and will act as a trailhead for the
expanded trail systems on the east side of the Luscher Area.The parking lot is designed and located to
minimize the impact on the viewshed looking eastward from Stafford Road and from other parts of the
Luscher Area.The parking lot will be landscaped to provide screening and assist with stormwater
management.The plantings will also mitigate the visibility of paved surfaces and help blend the parking
lot into the open spaces along the upland ridge and to the south.
Area C: Urban Agriculture
Urban Agriculture is incorporated into two areas in the master plan. Area C, comprising approximately
12.5 acres, is currently being used for farming, and Area H includes areas for future expansion of urban
agricultural activities.
The Area C Urban Agriculture Area is located on the Luscher Property, south of Hazelia Field and
abutting Stafford and Rosemont Roads. Portions of it are within the Luscher Historic Core.
The Urban Agriculture Area includes existing agricultural fields that are currently managed and operated
by a not-for-profit Community Supported Agriculture (CSA) organization through a contract with the City
of Lake Oswego. All urban agricultural activities are performed according to organic farming practices
Draft Luscher Farm Concept Plan Page 19 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
and are intended to continue in this manner in the future. Existing dirt roads will be replaced with gravel
roads to improve circulation around the perimeter of the agricultural fields, especially during the wet
spring,fall, and winter months. Equipment and machinery storage will be relocated from an outbuilding
by Hazelia Field and the historic Luscher Barn to other areas better suited to the farming activities.
Size of facilities:
• Approximately 12.2 acres of agriculture lands • `� tzy
• 4,330 linear feet of gravel roads - f. ='1z;
This part of the Luscher Area will continue to be used for agricultural
uses because of its slope, aspect, soil profile, infrastructure,
compatibility with nearby uses, and historic use on the site.
Dairy farming and pastures have been in place on this site since the
mid-19th century, and these soils are well-suited for the production of annual row and fields crops such
as vegetables, berries, herbs, grains, and legumes. Retaining agricultural uses on this portion of the
Luscher Area is important for protecting it as a cultural resource and every attempt has been made to
accommodate it.The views to and from the Luscher Historic Core are complemented by these
agricultural fields and they help preserve the site's cultural heritage, portions of which are recognized as
a Clackamas County Historic Landmark.
Improvements in this area will include stabilized gravel roads for use by farming related vehicles and
equipment. Where needed along these roads, swales will be designed to provide additional stormwater
management that is not already provided by the permeable gravel surface.These road improvements
will reduce erosion along field perimeters and prevent wet areas from forming during rainy periods.
Improved gravel roads will also establish a needed buffer between adjacent uses such as the community
gardens.
This area will include buildings and structures to support farming activities such as barns and buildings
for storage of equipment,tools, and materials; food processing areas; greenhouses and hoop houses for
plant propagation.
The Luscher Area will continue to be a model for building a local healthy food system.This plan builds on
existing programs and capitalizes on the current interest in food and local food sources. It also
encourages additional activities that revolve around urban agriculture and that fit well with the Luscher
Area.These activities may include: expanded classes,tours, and events such as harvest dinners; a
community kitchen with classes about preserving fruits and vegetables;gardening and cooking lessons;
wool spinning and knitting activities; beekeeping classes; home-scale livestock education (chickens,
goats, etc.); and instruction on building greenhouses and hot/cold frames.
More detail on the proposed urban agriculture program and infrastructure needs is contained in the
LAMP. It is also important to note that these activities are consistent with the City of Lake Oswego
Comprehensive Plan.The Plan's Community Health and Public Safety Chapter(Access to Local Food
Section) contains the policy: "Preserve agricultural land as designated in the Luscher [Area] Master
Plan."
Draft Luscher Farm Concept Plan Page 20 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Area D: Community Garden
The majority of the Community Garden Area,which consists of
approximately 4.75 acres, is located within the Luscher Farm
Historic Core and is bordered by the Urban Agriculture Area to
the north,the wetland to the west,the Luscher Barn to the r ` `•
•
south, and the proposed 75-space gravel parking lot to the east ,
There is room for an additional area for community gardening •
east of the gravel parking lot and north of the proposed Urban
Agriculture/Environmental Education Center on the Firlane Farm
property.All community garden activities are currently
performed according to organic practices, and are intended to y
continue in this manner in the future. 0
The expanded Community Garden will include a total of 247 individual garden plots and 13 Children's
Garden plots (20'x 20'), and will continue to provide space for an organic demonstration and
educational garden (formerly Oregon Tilth) in its existing location.The 160 existing individual
community gardens plots will be expanded by 32 plots on the Luscher property and by 55 plots on the
nearby Firlane Farm property, while five plots will be added to the eight Children's Garden plots. By
adding the Firlane property gardens, eliminating the internal vehicular circulation and moving gravel
paths to the perimeter of the garden area, a total of 93 new garden plots can be added. Soft surface
pathways will be added between the individual garden plots and five tool sheds will house community
gardening implements, such as wheelbarrows, shovels, and hoes.These sheds will be simple wood-
sided, pitched roof structures and will be scattered throughout the garden for easy access. Community
gardeners will be able to drop off plants and gardening supplies at six drop-off pads dispersed along the
perimeter gravel roads surrounding the community gardens. Finally, a wood-sided restroom with a
composting toilet(or similar facility)will be centrally located northwest of the organic education and
demonstration garden area.
The wedge-shaped space north of the Luscher Barn will be available to accommodate a variety of small
to medium everyday activities, seasonal happenings, and spillover events from the barn.This space,
along with paths between the groups of garden plots, will be made of stabilized decomposed granite
that can handle a high-level of foot traffic, as well as outdoor tables and other event-related furniture.
The Community Garden area provides a superior vantage point overlooking the historic core,the
gardens, and the urban agriculture fields. Its eastern edge includes a buffer with a promenade and
seating areas, both for community gardeners and visitors to the agricultural areas of the site.
Size of facilities:
• 3.0 acres of community garden plots
• 1,575 linear feet of gravel roads
• Approximately 1.7 acres interior stabilized gravel surfaces and paths
• Approximately 900 square feet of material drop-off pads
Draft Luscher Farm Concept Plan Page 21 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
This area of the Luscher Historic Core is appropriate for -
continued and expanded use as a community garden
because of its soil profiles, topography, exposure, and 14"""
proximity to the Luscher Barn and adjacent urban t cH�R FARM
ORI+C AVER Y
agriculture areas,from both an aesthetic and a functional —
perspective. Visually,the two land uses blend together -
favorably. Community gardeners and urban agriculture
farmers at the Luscher Area create synergies and provide
mutual support in being near one another. Front raw
LUSCHERFARM
Also, many community gardeners have children that PROGRAM AREA"E"
participate in field sports and so enjoy being near the — -
Active Recreation Area.
Figure 5:Historic Overlay and Program Detail
The expansion of the Community Gardening Area will
provide more garden plots for those on the annual waiting list. Improvements will make this activity
more accessible by providing stable pathways, along with better access to drop-off points and parking.
Consideration should be given to developing accessible plots that are suitable for those with limited
mobility or physical disabilities. Adding plots at Luscher Farm will not preclude adding plots in other
parts of the city, which is recommended by Parks Plan 2025.Additional community gardens were
identified as a top priority at Luscher Farm during public outreach.Adding more community gardens will
contribute to the synergy around local food production and agricultural education that are proposed in
this plan.
Many activities related to the current interest in local food can be hosted in the Community Garden
Area including: annual harvest dinners, a community kitchen with classes about preserving fruits and
vegetables, cooking lessons, wild food identification, wool spinning& knitting, beekeeping, home-scale
livestock(chickens, goats, etc.),greenhouses and hot/cold frames, and nature-based art projects.
Area E: Luscher Farm Program Area
Luscher Farm Historic Overlay
In April 1995 the Board of Clackamas County Commissioners recognized Luscher Farm as an important
historic resource by designating 22.15 acres of the farm as a Historic Landmark.This designation
establishes an overlay zone on the property(Figure 5).This acreage will continue to be protected as an
historic resource.
Luscher Farm Program Area
The Luscher Farm Program (Area E) describes the heritage related functions and activities anticipated at
Luscher Farm.The size of this programmatic area should not be confused with the historic overlay zone
that exists on the property. Figure 5 shows the location of the program Area E in relation to the historic
overlay zone. (The historic overlay zone is outlined on the site plan and the Oregon Historic Site Form in
the LAMP.)
The Luscher Farm Program Area, comprising approximately 9.5 acres, is located on the southern portion
of the Luscher property. It includes the historic area surrounding the historic house,the barn, the
Garage/Bunkhouse, the bird coop,the tool shed, the pump house, and the two existing wetlands.
Draft Luscher Farm Concept Plan Page 22 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
At the center of the Luscher Farm Program Area is the existing Luscher Barn, which will be rehabilitated
according to National Historic Trust guidelines to function as a flexible space to accommodate more
programs and events associated with its use as a primarily agricultural facility.The Luscher Barn is
envisioned as an ideal space for historic interpretation, classes, and urban agriculture programs, as well
as a venue for rustic family reunions, weddings, community events, and fundraisers. It is an iconic
building whose historic character will be preserved, while opening it for more people to enjoy.The
barn's space can be expanded to spill out onto the stabilized gravel
surface described in Area D.Three American with Disabilities Act(ADA) I rrrrr. ;.
accessible parking spaces are proposed near the Luscher Barn to j ,,,�ie s� '— ��� a air
improve its accessibility for people with mobility challenges. �a,,, pE
•
All of the existing historic buildings will remain on site, including the < 'Abe >
pump house,tool shed, a poultry coop and penned area,the
Garage/Bunkhouse, and the Luscher Farm House.The
Garage/Bunkhouse will continue to provide support for the property's
•�
security needs, but may also provide an improved public restroom t
facility and classroom space.
The Luscher Farm House—currently serving as an interpretive site for the Luscher family history with
limited meeting space and park offices—will be rehabilitated according to The Secretary of the Interior's
Standards for the Treatment of Historic Properties to improve the museum experience and better suit
the interpretive and educational needs of the site. A study will need to be completed to fully explore
compatible uses that serve the site's needs while addressing stipulations outlined in the sales agreement
between the Luscher family and the City of Lake Oswego.
The existing Rogerson Clematis Botanical Garden will remain at its current location around the Luscher
Farm House and will expand to the east side of the historic driveway.The 30'x 50' greenhouse will
remain,the existing historic beech tree north of the Luscher Farm House will be protected, and a
proposed 10-space gravel parking lot will be constructed alongside new planting areas and the existing
pin oak trees.This small parking lot will accommodate ADA parking, staff parking, and delivery parking
for the historic core.The Friends of the Rogerson Clematis Collection will coordinate the planning and
design of the garden expansion with the City of Lake Oswego, and will follow the Secretary of the
Interior's Standards for the Treatment of Historic Properties with Guidelines for the Treatment of
Cultural Landscapes.
Two wetlands exist at either side of the Luscher Farm Program Area along the southern edge of the
property.The Rosemont Trail segment of the Stafford Basin Multi-Use Trail passes through both
wetlands on elevated boardwalks.A new gravel entry road will connect Rosemont Road with the new
75-space gravel parking lot serving the Community Garden and Urban Agricultural/Environmental
Education Areas (see Area G). It will cross the eastern wetland and parallel Rosemont Road. The access
road will be located to protect the existing Rosemont Trail and boardwalk. Near the intersection of the
gravel road and parking lot is a proposed picnic area located between the Community Garden Area,the
eastern wetland, and the Urban Ag/Environmental Education Center. An open green space south of the
picnic site can be used for small to medium sized gatherings.There are opportunities to improve wildlife
habitat and provide interpretive experiences for trail users within and near the western wetland, which
is located between the Luscher Farm House and urban agriculture fields. A small, open green space here
can provide further opportunities for small gatherings or education programs that relate to the nearby
Draft Luscher Farm Concept Plan Page 23 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
wetland,the Rogerson Clematis Collection,the community gardens, and the historic core.The small
open spaces in this area will be vegetated with ecofriendly lawn, which requires no irrigation and less
maintenance than traditional turf.
Size and types of facilities:
• 70' x 85' barn
• 1,575 square foot Garage/Bunkhouse (Caretaker's R v
Residence) .� , }•
•
• 2,875 square foot Historic Luscher Farm House " �" V. 11.
• 20' x 14' outbuilding for community garden use _1•=:-- • b
• Pump house 7.4.- •AL fix' •
- - '
• Workshop/Tool Shed `
• 2 greenhouses �_ ".
• Chicken coop and pens r"
• Approximately 4.0 acres open space ram ^
• Approximately 1.5 acres clematis botanical garden
• Approximately 3.8 acres wetlands
• 10-space gravel parking area
• 880 linear feet gravel roads
The status as a Clackamas County Historic Landmark lends to the importance of maintaining historic site
uses such as urban agriculture,farm equipment storage, and domestic use.The layout and relationship
of the various building and landscape elements of the historic core area will be respected and preserved
wherever possible.The scale of any rehabilitation projects should respect the domestic nature of this
core area so that it will continue to reflect its character as the home of farmers and ranchers.This
includes maintaining the width, scale and materials of the driveway to reflect its domestic historic
character, as well as limiting the scale and type of plantings that surround the house to era-appropriate
foundation plantings and small gardens. Proposals for the Luscher Farm Program Area eliminate much of
the currently haphazard parking around the barn that detracts from the site's historic domestic
aesthetic, and creates conflicts between pedestrians and cars—(and moving the vehicular entry into this
area to the east and away from the core area).The Garage/Bunkhouse will continue to be a domestic
residence that provides oversight of the property and a classroom area for programs and possible
improved public restroom facility. Repairs and maintenance are needed to bring this building into good
condition.
The Luscher Farm Program Area is a significant cultural and historic resource of the City of Lake Oswego.
It should be developed keeping in mind its role as part of the City's rural refuge. Proposed development
for the Luscher Farm Program Area will emphasize community farming, heritage tourism, passive
recreation, education, and preservation of the site as a historic rural open space. Programs and
proposed facilities for this portion of the Luscher Area should highlight and safeguard the site's legacy
and unique rural beauty.All preservation and rehabilitation efforts for the buildings and the landscape
should follow The Secretary of the Interior's Standards for the Treatment of Historic Properties and be
managed with input from preservation professionals who meet the qualifications established by these
standards.The LAMP provides more information about these guidelines and recommendations for the
historic overlay zone.
Draft Luscher Farm Concept Plan Page 24 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Area F: Urban Ag/Environmental Education Area
The Urban Ag/Environmental Education Area, comprising approximately 2.15 acres, is located at Firlane
Farm. Access is provided from Rosemont Road via the new entry drive (see Area G)that leads to the new
gravel parking area located between the Community Garden Area and the Urban Ag/Environmental
Education Area. Small paths and roads connect the new gravel road and parking lot area to the Urban
Ag/Environmental Education Center at the heart of this zone.This circulation design provides safe
routes for pedestrians and cyclists and provides good visibility where the interaction of people and
vehicles most frequently occur.
In the short term,the existing Firlane Farm House can be used as the Urban Ag/Environmental
Education Center for programming and classes. Reusing existing buildings is encouraged for the Luscher
Area, provided that the cost to adapt, operate, and maintain these structures for new uses makes sense
economically. Reuse of existing buildings can meet sustainability goals by reducing waste, and by
limiting the creation and purchase of new materials. All efforts to meet sustainability goals by reusing
and adapting buildings on the site should be explored.
If building reuse is not feasible or does not meet program needs, a new sustainable building is proposed
for the Urban Ag/Environmental Education Center with classrooms, meeting space, and display areas.
The parking for this building should include two ADA parking spaces. Planning, design, and construction
of this new building will depend on fundraising efforts.
The existing open green space and extensive tree canopy offer a pleasant area for outdoor
programming. North of the proposed Urban Ag/Environmental Education Center is an existing garage
that will be rehabilitated and used for event, programming, and general park storage. A new
agricultural-themed playground will be located north of this storage building. Play equipment will
reference farming structures and equipment and could include actual retired farming equipment that
has been altered to make it play-safe. Some examples could be stationary full-sized tractors paired with
smaller child sized pedal-powered "tractors". Providing play areas for small children near other activity
centers enhances daily physical activity for all age groups. Currently,the site has a freestanding building
(last used as a work studio by the Lang Family)that will be moved or demolished to make room for this
play area and a 20'x 35' picnic shelter, both elements will be accessible from the Community Gardening
Area parking lot.
Size of facilities:
• 2,915 square foot of existing house
• 245 linear feet of asphalt driveway
• 22' x 30' existing garage for storage
• 2 ADA parking spaces
• Approximately 1.5 acres open space
• 0.11 acre play area (5,020 square feet)
• 20' x 35' picnic shelter with tables
• 485 linear feet of pedestrian trails
This development of the Firlane Farm Property is suitable because the existing buildings and
surrounding landscape are available and in relatively good shape. Necessary infrastructure such as an
access road and parking lot can be provided.The location between the community gardens,the Luscher
Historic Core, and the open grasslands and natural areas takes advantage of opportunities for expanded
Draft Luscher Farm Concept Plan Page 25 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
use between these areas. No restrictions in the property deed or sales agreement preclude the
proposed uses. From a programmatic perspective, it is important that the Urban Ag/Environmental
Education Center and themed play area have proximity to the Luscher Farm Historic Area, the
Community Garden Area, and the Urban Agriculture Area.The proposed layout accomplishes this, and
also shares parking facilities between uses.
Programming at the Urban Ag/Environmental Education Center will expand knowledge of agricultural
practices and environmental topics that apply directly to the site. Additionally, the facility provides a
venue for community engagement through unique site-based, hands-on learning experiences that are
not available in traditional classrooms.The Center will be a leading urban agricultural and
environmental advocate for the entire Luscher Area.
Area G: Rosemont Entrance, Internal Road, and Parking
The Rosemont Entrance, Internal Road and Parking improvements are �__ r,` •,
located on the Luscher Property between the Luscher Farm Historic
Core, the Urban Ag/Environmental Education Center, and the new
multi-use athletic fields.This circulation features links with the
existing circulation infrastructure to create an internal system that is
needed for safety, maintenance operations, and some large ,....wrtuu.ile,
community events. This design addresses the interaction between �,4.
different modes of travel in this area and the entrance and exit at
Rosemont Road. A safe entrance and good visibility are critical in this v
area and will prevent the need for additional modern intrusions to 'x
the historic core.
Vehicular access to the Luscher Area properties is primarily from Rosemont and Stafford Roads.
(Additional information on vehicular access is found in the traffic study contained in the LAMP.)Access
points from Rosemont and Stafford into the Luscher Area are limited to three locations because of
vehicle sightline requirements.The first safe access point is the existing Stafford Road Hazelia Field
entrance, the second safe access point is at the existing Luscher Farm driveway at Rosemont Road, and
the third safe access point is immediately east of the Luscher Farm driveway.This new entrance will be
the primary public access point into the Luscher Area from Rosemont Road.
Vehicles will turn into the public driveway and head east along a new two-way gravel road located north
of and parallel to the Rosemont Trail alignment.The gravel road will cross a small reach of a delineated
wetland (approximately where the Rosemont Trail becomes a boardwalk surface). Preliminary
discussions with transportation and wetland specialists indicate that this road alignment is possible, but
the City will need to go through a review and permitting process with agencies such as the Army Corps
of Engineers and the Department of State Lands.
A new sidewalk will be added where the new gravel road turns north toward the new gravel parking lot.
While an existing asphalt driveway that provides access to the Firlane Farm Property from Rosemont
Road will be removed, part of its alignment will be used for the new gravel entry drive connecting
Rosemont Road to the gravel parking lot. Inadequate sightlines prevent the current Firlane Farm
driveway from being used as a public access point and modifications to meet safety needs would have
required the removal of historic heritage trees near the southern end of this property.
Draft Luscher Farm Concept Plan Page 26 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
The new gravel road and sidewalk will continue north through the gravel parking lot and connect to the
Active Recreation Area.The segment of the gravel roadway between the north edge of the gravel
parking lot and the internal asphalt road in the Active Recreation Area will be gated and closed unless
needed for emergency access,farming and maintenance operations, or occasional special events.
The gravel parking lot provides a permeable parking surface for visitors using the Urban
Ag/Environmental Education Area, the Community Garden Area,the Luscher Farm Historic Area, and the
Urban Agriculture Area. If needed,the grassy area north of the gravel lot will be available for spillover
parking; it will be designed with reinforced/structured lawn and surrounded by trees for shade.
Size of proposed facilities:
• 1,830 linear feet of gravel roadway
• 1,445 linear feet of sidewalk adjacent to gravel roadway
• Approximately 0.6 acres of gravel parking area (75 spaces)
These proposed circulation features are appropriate given the results of the traffic study and the
proposed uses, and they do not adversely affect the irreplaceable cultural and natural resources.The
design protects heritage trees and keeps increased traffic outside of the historic core.
The gravel road and parking lot are scaled appropriately and designed to use sustainably appropriate
materials for the Luscher Area.The proposed design removes the impermeable asphalt driveway and
preserves the heritage trees located on this property.
Area H: Firlane Farm/Crowell Property
The Firlane Farm/Crowell Property, comprising approximately 28.65 acres, is located north and east of
the Urban Ag/Environmental Education Area and south of the oak uplands in the Active Recreation Area.
The Firlane Farm/Crowell Property is an open grassland landscape punctuated with scattered oak and
maples in groups or solitary specimens.The grassland consists of mixed grasses and wildflowers with a
meadow aesthetic. The west branch of Wilson Creek in this area was tiled for agricultural purposes in
the early 20th century. Daylighting and restoring the stream should be investigated.
Improvements to the Firlane Farm/Crowell Property will enhance a habitat corridor that stretches from
the wetland at Hazelia Field to the wetland east of the Luscher Farm Historic Area.This corridor will link
isolated "patches" of wetland habitat with site-wide vegetation enhancements that build off of existing
hedgerows.This corridor of vegetation provides critical food and cover for small animals and birds.
Access to the Firlane Farm/Crowell Property comes from the Rosemont Trail, the Urban
Ag/Environmental Education Area and associated parking lots,the Active Recreation Area and
associated parking lot, and other sections of the trail network that weave throughout the open space
areas. Pedestrian circulation consists of 5'-wide compacted gravel trails that provide year-round access
to areas that would otherwise be soft and muddy, and allow those with mobility issues to reach other
areas of the site. While steep grades in some portions of this area will prevent those sections from being
fully ADA-compliant, access will be improved.These pedestrian paths are intended to blend seamlessly
into the Luscher Area landscape and reflect the historic rural and agricultural character.
Draft Luscher Farm Concept Plan Page 27 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
The Firlane Farm/Crowell Property is designated for future urban agriculture expansion with the site
being used for agricultural crop production and livestock grazing. In particular Firlane Farm will
accommodate crop production, while the Crowell site can be used to accommodate livestock pasturing.
The soil characteristics of the Firlane Farm are conducive to a variety of different crops, which will be
determined in future studies. Possible activities here could include agricultural production, orchards,
vineyards,test kitchens, school food gardens,farm stands, and livestock grazing. Public pathways in this
urban farm area will follow circulation routes needed for the function of agriculture production, and will
provide some public access through this distinctive farm landscape.
There are significant viewpoints from the north edge of the Firlane Farm/Crowell Property down toward
the Luscher Farm Historic Core and westward to the urban agriculture fields and Hazelia Field site.
The Firlane portion of this area that is not suitable for urban agriculture will be planted with eco-friendly
lawn and meadow-like plantings to provide flexible open space that is appropriate for group picnicking
and similar activities. Places where less public use is desired will have meadow-like grasses that require
a different maintenance regime.
Size of facilities:
• Approximately 25.85 acres of grassland (8.5 acres of which is designated future urban
agriculture area)
• Approximately 1.5 acres of eco-friendly lawn
• Approximately 6,420 linear feet of pedestrian trails
Open space and future agriculture uses are appropriate here because they are similar to the current and
historic land uses.The deed, sales agreement, and zoning restrictions do not preclude these proposed
open space or agricultural uses. Urban agriculture at this location is limited by steeper topography and
less fertile soils.This area is suitable to perennial crops, such as orchards, cane berries and vines, as well
as nursery stock, pasture/hay crops, livestock and associated products.
Farm facilities will be needed to support agricultural activities at this site. Water for irrigation is available
from the Luscher Farm well but the City will need to obtain a water right to expand irrigation to the
Firlane Farm/Crowell Property. See the LAMP for a more detailed discussion of the proposed urban
agriculture program and infrastructure needs.
Natural resource protection at the Firlane Farm/Crowell Property will focus on rehabilitation of the
grassland and meadow to remove invasive weeds and brush. Weeds will be identified, mapped and
controlled using best management practices. Native bunchgrasses, meadow plants, and native grasses
that are suitable for grazing and that can compete with non-native sod forming weeds will be planted.
Survival of these plantings will require ongoing monitoring and maintenance.
Riparian area improvements will be focused along the western branch of Wilson Creek.
Historic efforts to drain or reroute the creek around agricultural land has degraded the creek corridor.
Improvements will range from replanting the corridor with riparian trees, shrubs, and grasses to
physically re-grading and restoring the creek corridor. Existing riparian vegetation along the streams and
riverbanks should be retained to provide wildlife habitat, minimize erosion and scouring, retard water
velocity when flowing, and suppress water temperatures. More details regarding overall riparian
recommendations for the site are included in the LAMP.
Draft Luscher Farm Concept Plan Page 28 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Rosemont Multi-Use Trail
Another component of the LAMP is the Rosemont Multi-Use Trail, which passes through several
subareas.This trail is a segment of the Stafford Basin Multi-Use Trail that connects to the West Linn trail
system.
The trail begins along Stafford Road at a trailhead located in the Hazelia Field parking lot.The 1.5 mile
trail continues south along Stafford Road and then east along Rosemont Road. It is possible to access the
Rosemont Multi-Use Trail from any parking lot facility in the Luscher Area.All pedestrian trails in the
open space areas connect to the Rosemont Multi-Use Trail,
creating a rich, interconnected network of pathways from
which to explore the site's natural features.
•
x rp.Xf _
��. The Rosemont Multi-Use Trail consists of a 10-foot wide
F asphalt surface that generally follows Stafford and Rosemont
in Roads with the exception of a loop turn-around near the
southeast corner of the Firlane Farm property.The trail
extension built in the fall of 2012 travels along the southern
ix- �t edge of the Crowell Property, along public right-of-way, uphill
through a wooded area to a small parking area, and eventually
to a set of switchbacks that wind down to the southeast corner of the Brock Property. Current
improvements along the Rosemont Multi-Use Trail include interpretive signs, native riparian/wetland
restoration,two boardwalk segments, benches, and picnic tables.The trail extension will feature similar
facilities.
The Rosemont Trail connects park facilities along the Luscher Area's site perimeter.The
Rosemont Multi-Use Trail makes it easy for park users to park at any of the Luscher Area parking lots
and access the rest of the site by foot, or by bicycle on the paved portions.
The Rosemont Multi-Use Trail will help protect the Luscher Area's natural resources by reducing the
amount of paved surfaces that are brought into the site's interior. At the same time,the perimeter
alignment provides outstanding views of the working farm and other landscapes from the trail. Finally,
the Rosemont Multi-Use Trail promotes community health and sustainability by encouraging non-
motorized means of travel between the Luscher Area sites. It is a visible and easy-to-access connection
between the community and the trail network on site.
Draft Luscher Farm Concept Plan Page 29 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
METRO FUNCTIONAL PLAN CRITERIA
The following responds to the Metro Functional Plan criteria for Concept Plans with less than 100 acres:
3.07.1110 Planning for Areas Designated Urban Reserve
(a) The county responsible for land use planning for an urban reserve and any city likely to provide
governance or an urban service for the area, shall, in conjunction with Metro and appropriate service
districts, develop a concept plan for the urban reserve prior to its addition to the UGB pursuant to
sections 3.07.1420, 3.07.1430 or 3.07.1435 of this chapter. The date for completion of a concept plan
and the area of urban reserves to be planned will be jointly determined by Metro and the county and city
or cities.
Response: As the sole owner of the Luscher Farm properties and the jurisdiction that will govern and serve
the area upon annexation,the City of Lake Oswego has taken the lead in developing this Concept Plan. Lake
Oswego has coordinated this effort with Clackamas County and the special service districts serving the
Stafford Basin, consistent with the Intergovernmental Agreement "Stafford Urban Reserve Areas" (5-
Party IGA) approved by Metro, Clackamas County, and the cities of Lake Oswego,Tualatin, and West
Linn. Lake Oswego has also coordinated with the cities of West Linn and Tualatin as required by the
Intergovernmental Agreement "Planning for the Stafford Urban Reserve" (3-City IGA) adopted by the
three cities.The 3-City IGA specifically provides for Lake Oswego undertaking concept planning and
requesting UGB expansion(s)for these publicly owned properties. (See Appendix D)
(b)A local government, in creating a concept plan to comply with this section, shall consider actions
necessary to achieve the following outcomes:
(1) If the plan proposes a mix of residential and employment uses:
Response: Subsection b.1 is not applicable because no residential or employment uses exist or are
proposed within the Concept Plan area.The subject site consists of publicly owned parks and natural areas
only; it does not contain any Title 4(industrial or employment),Title 6(centers,corridors,station areas),or
Title 7(residential) lands.
(2)If the plan involves fewer than 100 acres or proposes to accommodate only residential or employment
needs, depending on the need to be accommodated:
Response: The subject site consists of 83.3 acres of publicly owned parks and natural areas only; it does
not contain any land for Title 4(industrial or employment) or Title 7(residential) needs.
(A)A range of housing of different types, tenure and prices addressing the housing needs in the
prospective UGB expansion area in the context of the housing needs of the governing city, the county,
and the region if data on regional housing needs are available, in order to help create economically and
socially vital and complete neighborhoods and cities and avoiding the concentration of poverty and the
isolation of families and people of modest means;
Draft Luscher Farm Concept Plan Page 30 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Response: Subsection b.2.A is not applicable.The subject site consists of publicly owned parks and natural
areas only; it does not contain any land for Title 7(residential) needs.
(B)Sufficient employment opportunities to support a healthy economy, including,for proposed
employment areas, lands with characteristics, such as proximity to transportation facilities, needed by
employers;
Response: Subsection b.2.B is not applicable.The subject site consists of publicly owned parks and natural
areas only; it does not contain any land for Title 4(employment) needs.
(C) Well-connected systems of streets, bikeways, pedestrian ways, parks, natural areas, recreation trails;
Response:As described under Concept Plan,the plan provides a well-connected system of pedestrian ways
(Rosemont Multi-Use Trail), natural areas (wetlands, forest, fields, etc.), and recreation trails for active and
passive enjoyment of the park and natural areas on the site, and connections to the City of Lake Oswego via
Stafford and Rosemont Roads.
(D)Protection of natural ecological systems and important natural landscape features;and
Response: Water resource and habitat conservation areas
subject to Titles 3 and 13 described and illustrated in the
Concept Plan section.Specifically,there is a designated Air
wetland adjacent to the existing Hazelia Field site (Area A).A
wetland is also present to the north of the proposed
neighborhood park near the existing field, but outside the 111111
property. No impacts are proposed to these wetlands.The
site also includes a tree grove along the north side of Area A f
which will be designated/delineated when the property is
brought into the UGB, USB and City Limits (Resource survey
forms are on file with the City). Development of the STREAMS&WETLANDS
PROPERTY BOUNDARY TREE GROVE STREAMS
neighborhood park will be designed to meet required -WETLANDS STREAM CORRIDOR
setbacks from the designated wetlands and tree groves.
+hi.t
Several small wetlands exist along the area's boundary with
trii.4111
Rosemont Road (Area E), specifically near the Luscher Historic
Core.The new public road alignment off Rosemont Road,
which was positioned at the only point in this area with
adequate sightlines, will require the access road to cross a
designated wetland. Placing the new access on the opposite
side of the wetlands to avoid any impacts would not meet
permitting requirements.The location and alignment of the
road was adjacent to the existing Rosemont Trail FORESTED AREAS&RIPARI ODGE7AB "
positioned —PROPERTY BOUNDARY MIWOOAY SHRUBS
a mr,o
so as to minimize impact on the wetland.The entrance will FOREST CRASS/OPEN FIELD
need to be evaluated by the City's Engineering Department, Figure 6:Streams and Wetlands(Top), and
and the City will obtain permits from federal and state Natural Systems(Below)
agencies and mitigate the impacts to the wetland.
Draft Luscher Farm Concept Plan Page 31 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
These natural areas and proposed resource enhancements to them are summarized and detailed in the
LAMP.The City of Lake Oswego protects significant natural resources including water resources and
riparian areas (wetlands, streams) and upland wildlife habitat through its Sensitive Lands Overlays
(zoning), in substantial compliance with Metro Titles 3 and 13.There are two types of sensitive lands
designations that apply: Stream Corridors and Wetlands (RP), and Tree Groves (RC).To protect these
resources,the Concept Plan and LAMP direct the most intensive development (access drives, parking,
athletic fields, restrooms, paved walkways, and agricultural plots) away from existing streams, wetlands
and significant tree groves.
(E)Avoidance or minimization of adverse effects on farm and forest practices and important natural
landscape features on nearby rural lands.
Response: One of the primary objectives of the Concept Plan and LAMP is to maintain agricultural uses at
Luscher Farm. By continuing agricultural use of the property and expanding opportunities for urban
agriculture,the City will minimize adverse effects on adjacent farm and forest practices and preserve
natural landscape features.
(c)A concept plan shall:
(1)Show the general locations of any residential, commercial, industrial, institutional and public uses
proposed for the area with sufficient detail to allow estimates of the cost of the public systems and
facilities described in paragraph (2);
Response: The subject site consists of publicly owned parks and natural areas only; it does not contain any
land for Title 4(employment or industrial)or Title 7 (residential) needs. Planning level cost estimates of the
public systems and facilities are contained in the LAMP.
(2)For proposed sewer, park and trail, water and storm water systems and transportation facilities,
provide the following:
(A) The general locations of proposed sewer, park and trail, water and stormwater systems;
Response: The general locations of proposed sewer, park and trail,and water and stormwater systems are
as described and illustrated in the Concept Plan section.
1110m
VW"
(B) The mode,function and general location of any proposed state —1 It
transportation facilities, arterial facilities, regional transit and trail facilities
and freight intermodal facilities C
gLy
Response: The Clackamas County Transportation System Plan designates _*_ •�.;#
Stafford Road a Major Arterial (red) and Rosemont Road a Minor Arterial .p .f
•
(orange) as shown in Figure 6. Bergis Road is designated a Collector(green).
The City of Lake Oswego Transportation System Plan designates Stafford
Road and Rosemont Road as Minor Arterials. Bergis Road is designated a . T
Minor Collector.A regional trail/pathway is planned along Stafford Road,south
of the existing Rosemont Road roundabout,connecting to a planned regional Figure 7:Clackamas County TSP
trail system along Childs Road,Stevens Meadows, and Pecan Creek.There are Functional Classifications
Draft Luscher Farm Concept Plan Page 32 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
no existing state transportation facilities and no regional transit or freight facilities.There are no new
arterial streets proposed.
(C) The proposed connections of these systems and facilities, if any, to existing systems;
Response: The existing Rosemont Multi-Use Trail within the Concept Plan r I I I Ill
area will connect to the regional trail system described above once the
regional system is developed.Approval of the Luscher Farm UGB
amendment will allow the City to annex Luscher Farm and plan for the trail
connection to be made, including the potential for funding with City system
development charges.
(D)Preliminary estimates of the costs of the systems and facilities in "'"°"' """"
sufficient detail to determine feasibility and allow cost comparisons with
other areas;
r —
Response: Planning level cost estimates and funding options for
completing the infrastructure required to serve Luscher Farm are contained - -
in Appendix E.Completion of water and sanitary sewer improvements, if Figure 8:Regional Trail Plan
needed, is feasible from a cost standpoint. Because these costs are specific
to the development of Luscher Farm as a community park and open space area,they are not comparable to
cost estimates prepared for other concept plans(for residential or employment land needs)elsewhere in
the Portland Metro region.
(E)Proposed methods to finance the systems and facilities;and
Response: Proposed methods to finance the LAMP improvements are contained in Appendix E.
(F) Consideration for protection of the capacity,function and safe operation of state highway
interchanges, including existing and planned interchanges and planned improvements to interchanges.
Response: The existing and planned recreational uses at Luscher Farm are community-focused, not
regional in scale. Likewise,the projects outlined in this Concept Plan and detailed in the LAMP are minor
and not expected to result in increased traffic beyond the immediate vicinity.As the property is annexed to
Lake Oswego and these projects are proposed,traffic considerations will be addressed through the
development review process under the City's development code.Where improvements may contribute to
traffic at the Stafford Road/I-205 interchange,those impacts will be addressed in coordination with the
Oregon Department of Transportation (ODOT)and Clackamas County.The City's development review
process includes notification of the county and ODOT, respectively,when a development may affect one of
their facilities.This allows for open communication and an opportunity to address traffic concerns early on.
The City's development review process also provides for notice to adjacent property owners and recognized
neighborhood associations.
(3)If the area subject to the concept plan calls for designation of land for industrial use, include an
assessment of opportunities to create and protect parcels 50 acres or larger and to cluster uses that
benefit from proximity to one another;
Draft Luscher Farm Concept Plan Page 33 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
Response: Subsection c.3 is not applicable.The subject site consists of publicly owned parks and natural
areas only; it does not contain any land for Title 4(employment) needs.
(4)If the area subject to the concept plan calls for designation of land for residential use...
Response: Subsection c.4 is not applicable.The subject site consists of publicly owned parks and natural
areas only; it does not contain any land for Title 7(residential) needs.
(5)Show water quality resource areas,flood management areas and habitat conservation areas that will
be subject to performance standards under Titles 3 and 13 of this chapter;
Response: Water resource and habitat conservation areas subject to Titles 3 and 13 described and
illustrated in Section V.Specifically, there is a designated wetland adjacent to the existing Hazelia Field
site (Area A). A wetland is also present to the north of the proposed neighborhood park near the existing
field, but outside the property. No impacts are proposed to these wetlands.The site also includes a tree
grove along the north side of Area A which will be designated/delineated when the property is brought
into the UGB, USB and City Limits (Resource survey forms are on file with the City). Development of the
neighborhood park will be designed to meet required setbacks from the designated wetlands and tree
groves.
Several small wetlands exist along the area's boundary with Rosemont Road (Area E), specifically near
the Luscher Historic Core.The new public road alignment off Rosemont Road, which was positioned at
the only point in this area with adequate sightlines and which meets traffic safety standards, will require
the access road to cross a designated wetland. Placing the new access on the opposite side of the
wetlands to avoid any impacts would not meet permitting requirements.The location and alignment of
the road was positioned adjacent to the existing Rosemont Trail so as to minimize impact on the
wetland.The City will obtain permits from federal and state agencies and mitigate the impacts to the
wetland.
These natural areas and proposed resource enhancements to them are summarized in Section V and
detailed in the LAMP.The City of Lake Oswego protects significant natural resources including water
resources and riparian areas (wetlands, streams) and upland wildlife habitat through its Sensitive Lands
Overlays (zoning), in substantial compliance with Metro Titles 3 and 13.There are two types of sensitive
lands designations that apply: Stream Corridors and Wetlands (RP), and Tree Groves (RC).To protect
these resources,the Concept Plan and LAMP direct the most intensive development (access drives,
parking, athletic fields, restrooms, paved walkways, and agricultural plots) away from existing streams,
wetlands and significant tree groves.
Draft Luscher Farm Concept Plan Page 34 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
(6)Be coordinated with the comprehensive plans and land use regulations that apply to nearby lands
already within the UGB;
PF r Response: The Concept Plan is coordinated with the City's
Comprehensive Plan,which specifically supports adding 1R15: R 15 PHA EFU
Luscher Farm to the UGB and maintaining parks and natural
area uses on the property.The property accordingly will begir EFUIN1 EFU
zoned Parks and Natural Areas(PNA) upon annexation. R-15 a
RAFF•Se.
(7)Include an agreement between or among the county
and the city or cities and service districts that preliminarily
identifies which city, cities or districts will likely be the
providers of urban services, as defined at ORS 195.065(4),
when the area is urbanized; Figure 9:Existing Comprehensive Plan/Zoning
Response: Please refer to the Intergovernmental Agreements in Appendices C and D,which outline
planning responsibilities for the Stafford Area and specifically recognize Lake Oswego as the lead for
concept planning and the future urban service provider for the Luscher Farm Area properties.
(8)Include an agreement between or among the county and the city or cities that preliminarily identifies
the local government responsible for comprehensive planning of the area, and the city or cities that will
have authority to annex the area, or portions of it,following addition to the UGB;
Response: Please refer to the Intergovernmental Agreements in Appendices C and D,which outline
planning responsibilities for the Stafford Area and specifically recognize Lake Oswego as the lead for
concept planning and the future urban service provider for the Luscher Farm Area properties.
(9)Provide that an area added to the UGB must be annexed to a city prior to, or simultaneously with,
application of city land use regulations to the area intended to comply with subsection (c)of section
3.07.1120;and
Response: In accordance with the Lake Oswego City Charter, subject to voter approval, the Concept
Plan area will be annexed to Lake Oswego following Metro adding it to the UGB and the City amending
its Comprehensive Plan and Urban Services Boundary to include the area.The City will also need to
amend its Urban Growth Management Agreement with Clackamas County. Please refer to the
Intergovernmental Agreements in Appendices C and D,which outline planning responsibilities for the
Stafford Area and specifically recognize Lake Oswego as the lead for concept planning and the future urban
service provider for the Luscher Farm Area properties.
(10)Be coordinated with schools districts, including coordination of demographic assumptions.
Response: Subsection c.10 is not applicable because adding the Luscher Farm properties to the UGB,and
eventual annexation by Lake Oswego,will not affect school enrollment or demographic assumptions.
(d) Concept plans shall guide, but not bind:
(1) The designation of 2040 Growth Concept design types by the Metro
Council;
Draft Luscher Farm Concept Plan Page 35 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
(2)Conditions in the Metro ordinance that adds the area to the UGB;or
(3)Amendments to city or county comprehensive plans or land use regulations following addition of the
area to the UGB.
Response: This Concept Plan does not affect any Metro 2040 Growth Concept designations,design types,
or other conditions that Metro may impose in adding the area to the UGB.The City of Lake Oswego
anticipates that Metro will not designate the area with design types that are contrary to the Concept Plan
because the City intends to use the Concept Plan for future amendments to its Comprehensive Plan
following addition of the area to the UGB.
(e) If the local governments responsible for completion of a concept plan under this section are unable to
reach agreement on a concept plan by the date set under subsection (a), then the Metro Council may
nonetheless add the area to the UGB if necessary to fulfill its responsibility under ORS 197.299 to ensure
the UGB has sufficient capacity to accommodate forecasted growth.
Response: This Concept Plan has been prepared pursuant to City Council (Lake Oswego) Resolution 19-
65.The City of Lake Oswego is the sole government responsible for preparing this Concept Plan.
Draft Luscher Farm Concept Plan Page 36 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
APPENDIX
A. AGENCY SUPPORT
1. CITY COUNCIL RESOLUTION 19-65
2. CLACKAMAS COUNTY LETTER OF SUPPORT
3. CITY OF TUALATIN COORDINATION SUMMARY
4. CITY OF WEST LINN COORDINATION SUMMARY
B. LAKE OSWEGO COMPREHENSIVE PLAN URBANIZATION CHAPTER (excerpt)
C. 5-PARTY IGA FOR STAFFORD URBAN RESERVE
D. 3-CITY IGA FOR STAFFORD AREA PLANNING
E. COST ESTIMATES AND FUNDING OPTIONS
Draft Luscher Farm Concept Plan Page 37 of 37 December 23, 2019
PP 19-0012 Attachment 1 to Exhibibit A-1
RESOLUTION 19-65
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF LAKE OSWEGO DIRECTING THE CITY
MANAGER TO APPLY TO METRO FOR A MAJOR AMENDMENT TO THE PORTLAND METRO
URBAN GROWTH BOUNDARY (UGB) TO ADD APPROXIMATELY 83 ACRES OF PUBLIC PARK
AND OPEN SPACE LAND IN THE LUSCHER FARM AREA TO THE UGB
WHEREAS, the City of Lake Oswego (city) owns and operates public parks and open spaces in the
Luscher Farm Area, as shown in Exhibit A; and
WHEREAS, some of the subject properties are located outside the UGB and zoned for exclusive
farm use, limiting the types of parks and recreational uses allowed; and
WHEREAS, the City of Lake Oswego adopted the Luscher Area Master Plan (Resolution 13-36)
pursuant to Parks Plan 2025 (Resolution 12-44), and Parks Plan 2025 is an element of the City of
Lake Oswego Comprehensive Plan; and
WHEREAS, the Luscher Area Master Plan envisions land uses in the Luscher Farm Area that are
not currently allowed by county zoning; and
WHEREAS, the Comprehensive Plan (Urbanization Policy A-1) supports amending the UGB when
necessary for the development of public parks and recreation facilities; and
WHEREAS, the city has coordinated with Clackamas County and the special service districts
serving the Stafford Basin before applying to amend the UGB to include the Luscher Farm Area
properties, consistent with the Intergovernmental Agreement "Stafford Urban Reserve Areas"
(5-Party IGA); and
WHEREAS, the 3-City IGA for Stafford Area Concept Planning specifically provides for Lake
Oswego concept planning and requesting UGB expansion(s) for the subject properties; and
WHEREAS, the city has coordinated its concept planning of the subject area with the cities of
West Linn and Tualatin, as required by the Three City Intergovernmental Agreement "Planning
for the Stafford Urban Reserve" (3-City IGA)
NOW,THEREFORE, BE IT RESOLVED by the City Council of the City of Lake Oswego that:
Section 1. The City Manager is directed to submit an application to Metro for a major
amendment to the Portland metro UGB by March 15, 2020 (Metro's deadline), for the Luscher
Farm Area properties shown in Exhibit A.
Section 2. The Planning Department is directed to prepare a concept plan consistent with
the Luscher Area Master Plan and Metro Code to support UGB amendment request.
Resolution 19-65
Page 1 of 2
PP 19-0012 Attachment 1 to Exhibibit A-1
PP 19-0012 APPENDIX A-1/PAGE 1 OF 2
Section 3. The Planning Commission is requested to conduct a public hearing on the
proposed concept plan and make a recommendation to the City Council on the plan no later than
February 10, 2020, in order to allow time for the Council to consider the concept plan before the
City Manager files a UGB amendment application to Metro.
Section 4. Effective Date. This Resolution shall take effect upon passage.
Considered and enacted at the regular meeting of the City Council of the City of Lake Oswego on
the 17th day of December, 2019.
AYES: Mayor Studebaker, O'Neill, LaMotte, Nguyen, Wendland, Kohlhoff
NOES: None
EXCUSED: Manz
ABSTAIN: None
Kent Studebaker, Mayor
ATTEST:
(644/1L- 1441/14-e:
Anne-Marie Simpson, City Recorder
APPROVED AS TO FORM:
6/6-6(1:—)
avid Powell, City Attorney
Resolution 19-65
Page 2 of 2
PP 19-0012 Attachment 1 to Exhibibit A-1
PP 19-0012 APPENDIX A-1/PAGE 2 OF 2
Received
DEC 1 2019
C .AC City' f Lake Oswego
COUNTY BOARD OF COUNTY COMMISSIONERS
PUBLIC SERVICES BUILDING
2051 KAEN ROAD j OREGON CITY, OR 97045
December 16, 2019
Scot Siegel
Planning and Building Services Director
City of Lake Oswego
PO Box 369
Lake Oswego, OR 97034
RE: Letter in Support of Lake Oswego Application for Major Amendment to the UGB
Dear Mr. Siegel:
On behalf of the Clackamas County Board of Commissioners, I would like to express our
support for the City of Lake Oswego's application for a major amendment to the Metro urban
growth boundary (UGB) to include 83.3 acres of land that will ultimately be annexed into the city
for open space, park and recreational uses.
These properties, known as the "Luscher Farm" parcels, are owned by the City of Lake Oswego
but are currently under Clackamas County's jurisdiction for land use. The parcels are zoned
Exclusive Farm Use (EFU), a zone that does not allow for the more intensive park and
recreational facilities Lake Oswego has identified as needed within their jurisdiction and wishes
to develop on these properties.
The subject property has been designated as an urban reserve, and its inclusion in the Metro
UGB is consistent with this designation and with the 2017 Intergovernmental Agreement
between the County, Metro, and the Cities of Lake Oswego, West Linn and Tualatin. In
addition, the 2019 Intergovernmental Agreement between the three cities includes a provision
specifically allowing the City of Lake Oswego to apply for the Luscher Farm parcels to be
brought within the Metro UGB.
Sincerely,
L CKA e COUNTY !.O l RD OF COMMISSIONERS
Ji ernard, Chair
On Behalf of the Clackamas County Board of Commissioners
C: Jennifer Hughes, Clackamas County Planning Director(via email)
rp191-alz012 APPEEtNDmXnA1 fo/PxAGibEit A-10F 1
P. 503.655.8581 1 F. 503.742.5919 1 WW W.CLACKAMAS.US
Siegel, Scot
From: Siegel, Scot
Sent: Tuesday, November 19, 2019 12:44 PM
To: 'Aquilla Hurd-Ravich'
Cc: Anderholm, Ivan; Bennett, Martha; Powell, David; 'jwilliams@westlinnoregon.gov'
Subject: Luscher Area UGB and Concept Planning -Cities Coordination
Dear Aquilla,
Thank you for meeting yesterday to discuss Lake Oswego's plan to apply for an urban growth boundary amendment this
March. It is my understanding from our discussion that the proposal does not raise any immediate concerns from
Tualatin due to the following:
• The UGB application and concept planning will be limited to the six city-owned Luscher Farm/Rosemont Road
parks and open space properties described in our October 23 letter.The site consists of 83 acres and is within
the scope of Section 4.2 of the 3-City Stafford IGA, which authorizes Lake Oswego to begin concept planning and
to request this UGB amendment.
• As discussed, Lake Oswego intends to designate the subject properties Parks and Natural Area, consistent with
the existing recreation and urban-agriculture uses on the site and the adopted Luscher Area Master Plan (2013).
The concept plan that Lake Oswego submits to Metro for the UGB amendment will be consistent with the
existing master plan.
• Metro has informed us that a concept plan need not be submitted at the same time as the UGB application but
must be submitted before the application comes before the Metro Council. Notwithstanding that requirement,
we are endeavoring to submit the concept plan at the same time the UGB application is submitted, or shortly
thereafter.
I understand that you will share Lake Oswego's work plan with your city council, and will let us know if they have any
questions. As a reminder, we are planning on holding public hearings on the concept plan with our planning commission
and council, respectively, on Jan 27, 2020 and Mar 3, 2020.
I also understand that there is no need for us to meet a second time to coordinate the proposal. Please let me know by
Nov 26, 2019, if that is not the case. I will personally continue to keep you informed through the process. Your city and
neighbors of Luscher Farm can also expect to receive legislative hearing notices from Lake Oswego as we proceed with
concept planning.
Thanks again for your time the other day. Let me know if you have any questions.
Sincerely,
Scot
Scot Siegel
Planning&Building Services Director
City of Lake Oswego
PO Box 369
Lake Oswego,OR 97034
tel:503.699.7474
1
PP 19-M132D012 APP X A1-31PAGEll OF 1
Siegel, Scot
From: Siegel, Scot
Sent: Tuesday, November 19, 2019 12:43 PM
To: 'jwilliams@westlinnoregon.gov'
Cc: Anderholm, Ivan; Bennett, Martha; Powell, David; 'Aquilla Hurd-Ravich'
Subject: Luscher Area UGB and Concept Planning -Cities Coordination
Dear John,
Thank you for meeting yesterday to discuss Lake Oswego's plan to apply for an urban growth boundary amendment this
March. It is my understanding from our discussion that the proposal does not raise any immediate concerns from West
Linn due to the following:
• The UGB application and concept planning will be limited to the six city-owned Luscher Farm/Rosemont Road
parks and open space properties described in our October 23 letter.The site consists of 83 acres and is within
the scope of Section 4.2 of the 3-City Stafford IGA, which authorizes Lake Oswego to begin concept planning and
to request this UGB amendment.
• As discussed, Lake Oswego intends to designate the subject properties Parks and Natural Area, consistent with
the existing recreation and urban-agriculture uses on the site and the adopted Luscher Area Master Plan (2013).
The concept plan that Lake Oswego submits to Metro for the UGB amendment will be consistent with the
existing master plan.
• Metro has informed us that a concept plan need not be submitted at the same time as the UGB application but
must be submitted before the application comes before the Metro Council. Notwithstanding that requirement,
we are endeavoring to submit the concept plan at the same time the UGB application is submitted, or shortly
thereafter.
I understand that you will share Lake Oswego's work plan with your city council, and will let us know if they have any
questions. As a reminder, we are planning on holding public hearings on the concept plan with our planning commission
and council, respectively, on Jan 27, 2020 and Mar 3, 2020.
I also understand that there is no need for us to meet a second time to coordinate the proposal. Please let me know by
Nov 26, 2019, if that is not the case. I will personally continue to keep you informed through the process. Your city and
neighbors of Luscher Farm can also expect to receive legislative hearing notices from Lake Oswego as we proceed with
concept planning.
Thanks again for your time the other day. Let me know if you have any questions.
Sincerely,
Scot
Scot Siegel
Planning&Building Services Director
City of Lake Oswego
PO Box 369
Lake Oswego,OR 97034
tel:503.699.7474
1
PP 19-U012D012 APP itrAti4/PAGE1 OF 1
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P13191910012 AP P ENDIXTI/PASEittO F 1 4
Adopted March18, 2014
Urbanization
Statewide Land Use Planning Goal
The Urbanization chapter implements Statewide Planning Goal 14: Urbanization.
Updates To Lake Oswego 1994 Comprehensive Plan
The Urbanization chapter updates the Lake Oswego 1994 Comprehensive Plan chapter by
the same name (Goal 14: Urbanization). This element of the 1994 Plan was updated during
1997-1999 to address the Metro 2040 Growth Concept Plan. The current Comprehensive
Plan Land Use Map is not proposed to change. Figures 17 through 20 (formerly Figures 26
through 29) have been updated to reflect the current Comprehensive Plan Land Use Map
(Figure 2) and Employment Area designations in the Metro Functional Plan,which replace
similar designations in the 2040 Growth Concept Plan; unlike the 2040 Growth Concept,the
Metro Functional Plan does not designate the area between Kruse Way, Carman Drive and
Boones Ferry Road as part of the regionally significant Employment Area to the east along
Kruse Way and Meadows Drive. Figure 21 (formerly Figure 30),which shows properties
eligible for sewer services prior to annexation,has also been carried forward.
1 62 City of Lake Oswego Comprehensive Plan 2013
91910012 APPBNDI B/PA E2'OF 14
Adopted March18, 2014
Urbanization
Background
Statewide Planning Goal 14: Urbanization
"To provide for an orderly and efficient transition from rural to urban land use."
Urban growth boundaries shall be established to identify and separate urbanizable land from rural
land.Establishment and change of the boundaries shall be based upon consideration of the following
factors,pursuant to Statewide Planning Goal 14:
• Demonstrated need to accommodate long range population growth requirements consis-
tent with LCDC goals;
• Need for housing, employment opportunities and livability;
• Orderly and economic provision for public facilities and services;
• Maximum efficiency of land uses within and on the fringe of the existing
urban area;*
• Environmental,energy,economic and social consequences;
• Retention of agricultural land as defined,with Class I being the highest priority for reten-
tion and Class VI the lowest priority;and,
• Compatibility of the proposed urban uses with nearby agricultural activities.
Lake Oswego grew from 33,145 to 36,770 people between 1995 and 2013 (Portland State
University Population Research Center).This growth was anticipated and planned for by the
Comprehensive Plan and public facilities plans.The residents of Lake Oswego have financed the
facilities necessary to provide high quality urban services both for existing residents and in anticipa-
tion of serving the growth that will occur inside the City's Urban Services Boundary(USB).*
The Portland Metropolitan Urban Growth Boundary(UGB)coincides with the City's urban
services boundary.The UGB defines the limit of urban development and Lake Oswegos sense of
open space and community character is strongly influenced by the distinction created between the
urban and rural landscapes.
The urban growth boundary is one of the primary tools that Oregon's land use planning program
has used to control sprawl,preserve valuable resource lands,and promote the coordinated and logi-
cal provision of public facilities and services.UGB's are intended to provide sufficient buildable lands
to accommodate urban growth for a minimum twenty year planning period.Within the Portland
metropolitan area,Metro has the responsibility for establishing and managing the regional urban
Urbanization 163
PP 1a910012 APPLNd1XnB/PAE' `OF 14
Adopted March18, 2014
growth boundary.Pursuant to ORS 268.390 Metro is charged with"Adopt(ing)an urban growth
boundary....in compliance with applicable goals adopted under ORS Chapters 195, 196 and 197".
The task of developing the Portland Metropolitan Area UGB was initiated in 1976 when Metro's
predecessor,Columbia River Association of Governments(CRAG)adopted a"land use frame-
work element"for establishing urban,rural,and natural resource designations for all land in
Washington,Clackamas and Multnomah counties.Four years later,in 1980 the Metro urban growth
boundary was adopted by the Metro Council and acknowledged by the Land Conservation and
Development Commission(LCDC)as being in compliance with the statewide planning goals.
In 1987,as part of its urban growth management responsibility,Metro received notice from the
Department of Land Conservation and Development(DLCD)to conduct periodic review of the
urban growth boundary.Through this process,Metro determined that there was sufficient buildable
land within the urban growth boundary to accommodate urban land supply needs beyond the
year 2010.
Concurrent with periodic review of the urban growth boundary,Metro adopted the Regional Urban
Growth Goals and Objectives(RUGGOs)in 1991.Development of the RUGGOs were required
pursuant to ORS 268.380 (1),which states,"A district council shall: (1)Adopt land use planning
goals and objectives for the district consistent with goals adopted under ORS 197.005 to 197.465:'
The RUGGOs have a regional scope.They are intended to provide a policy framework for Metro's
management of the urban growth boundary and for coordination of Metro functional plans with
that effort and each other.
In 1991 Metro initiated the 2040 Growth Concept.This process was intended to identify the ap-
proximate amount of land needed to accommodate the population and employment growth,and
commensurate urban services for a 50 year period.The 2040 Concept Plan was intended to result
in a more compact urban form,as each city in the region uses its land efficiently to accommodate
increased densities and prevent urban sprawl.
The City of Lake Oswego actively participated in the development of the Metro 2040 Concept
Plan from 1991 to 1996.The City provided leadership in coordinating the establishment of the North
Stafford Area Policy Task Force as well its ongoing activities from 1992 through 1995.The Task
Force was formed to coordinate local government and affected citizens groups'involvement in
planning for the North Stafford Area and participation in the Metro 2040 planning process. In
December 1993,the Task Force unanimously adopted a Joint Position Statement regarding the
impact of urbanization on public facilities,the environment,and the quality of life in the area and
the adjoining cities of West Linn,Lake Oswego,and Tualatin.
The Task Force concluded that the Stafford Area should not be urbanized.The Task Force also
found that the future land use pattern of the Stafford area should be comprehensively planned to:
■ Preserve the air,water, and land resource quality of the area, and;
1 64 City of Lake Oswego Comprehensive Plan 2013
91910012 APPBNDI B/P EittOF 14
Adopted March18, 2014
• Provide safe and efficient transportation consistent with the area's needs, and;
• Ensure that future development is consistent with the capacity of existing public facilities and
services;and,
• Preserve the rural character and open space values of the area.
In addition,the Task Force agreed that it was important to establish criteria to evaluate any future
Urban Growth Boundary Expansion.This joint position statement represented the collective
view of the cities of Lake Oswego,West Linn,Tualatin,Clackamas County,the West Linn-
Wilsonville School District and most residents of the North Stafford area.The City of Lake
Oswego and its Task Force partners participated in numerous Metro meetings and hearings
subsequently regarding the 2040 Growth Concept and RUGGO's.
Despite the City of Lake Oswego's consistent opposition to the expansion of the UGB and urban-
ization of the North Stafford area,the Metro Council designated 2,056 acres in the North Stafford
area as urban reserve study areas on March 6, 1997.Metro Councils action raised the possibil-
ity that the City of Lake Oswego would be expected to provide urban services to approximately
1,200 of those acres. This would have profound consequences on Lake Oswego's fiscal re-
sources and livability.Lake Oswego voters subsequently approved a City Charter amendment
November 3, 1998 (Section 57) requiring a citywide vote on any proposed annexation of land
within the Stafford basin,except for lands designated by Metro as First Tier Urban Reserve
Areas*pursuant to Metro Ordinance 96-655E. Section 57 does not apply to an annexation
necessary to alleviate a health hazard in the area proposed to be annexed.
In 2007,the Oregon Legislature passed Senate Bill 1011,which allows Metro and the three
counties within the Portland metro area to designate urban and rural reserves for a 40-50
year planning period based on factors other than the quality of agricultural soils. On August
21, 2010, Clackamas County adopted Urban Reserve Areas 4A and 4B (North Stafford Area),
4C (Borland Road), and 4D (South Stafford), under an intergovernmental agreement with
Metro. The area comprises all of the land between the current Urban Services Boundary
and I-205, and extends south of 1-205 toward Wilsonville. The areas closest to Lake Oswego,
Areas 4A,4B,and 4C,combined,comprise approximately 4,700 acres. Currently,no city is willing
or able to provide urban services to this area, and the cities of West Linn and Tualatin have
appealed the County decision.As of 2013,the issue is unresolved.
Although Lake Oswego does not support urban levels of development in the Stafford area,
the City believes that it is important to participate in discussions regarding future planning
and development, in the event the area is included in a future expansion of the urban growth
boundary. Therefore,it is in Lake Oswego's best interest to develop policies regarding how
growth will be financed,and to develop a growth management program and implementing
measures that will maintain the City's quality of life. For example,the City maintains Systems
Urbanization 165
PP 1a910012 APPENDIX /PAGE `OF 14
Adopted March18, 2014
Development Charges for infrastructure to minimize public subsidy of City services for the
limited growth that can occur within the current USB.
Specific urban growth boundary amendment procedures have been adopted by the Metro Council and
acknowledged by the LCDC,which include maintenance by Metro of regional population and
employment forecasts,and buildable lands inventories.
The City of Lake Oswego has adopted Metro's 2035 population and employment forecasts, as
contained in the Complete Neighborhoods and Housing and Economic Vitality chapters of
the Comprehensive Plan. The City has also adopted a Housing Needs Analysis and Economic
Opportunities Analysis,pursuant to State and Metro requirements.
The City and School District have constructed the basic facilities needed to serve the ultimate
population anticipated for the current Urban Service Boundary(USB). The City and School
District have been preempted by state law from charging new development for the costs of
providing additional school capacity or police, fire and library facilities.
Summary of Major Issues
The following are some of the issues and changed circumstances and conditions considered in the
1997 update of this element of the Comprehensive Plan that remain relevant in 2013:
• In 2010, Clackamas County adopted Urban Reserve Areas 4A (North Stafford),4B
(Rosemont),4C (Borland Road) and 4D (South Stafford/Norwood) pursuant to its in-
tergovernmental agreement with Metro. The area comprises the land between the cur-
rent USB and Interstate 205, and extends south of Interstate 205 toward Wilsonville.
• Growth outside the current USB would require substantial expansion of the capacity of the
City's utility and transportation systems and School District facilities.Urban growth out-
side the current USB would also require annexation and extension of City urban services
into the annexed territory,which could not occur without approval through a citywide
vote pursuant to the City Charter.
• Growth outside the current USB would have fiscal impacts that could adversely affect the
level of urban services the City provides;if not mitigated,it could reduce quality of life in
the City.Full cost recovery impact fees will need to be established for any growth outside the
USB or current residents will be required to pay for the cost of such growth.
• Growth that occurs outside the current USB could have adverse impacts on the natural envi-
ronment,which if not mitigated could reduce the quality of life in the City.
• It is not in the interests of the citizens of Lake Oswego to subsidize the extension of
City services to provide for development on urban reserves south of the current USB.
• It is in the City's interest to plan for the orderly annexation of land and extension of
urban services within the USB, so as to provide for the efficient delivery of services
and to avoid premature expansion of the USB.
1 66 City of Lake Oswego Comprehensive Plan 2013
si°3'i®012 APPBNDtX B/PAISEiVOF 14
Adopted March18, 2014
■ City policy on annexations has shifted over the years.While state law allows the City
to compel islands of unincorporated land to annex,the current policy favors a volun-
tary approach.
Goals And Policies
Goals
Ensure that, as population increases,the City of Lake Oswego:
1. Supports a compact form of urban growth, compatible with the City's neighborhood
character,that uses land efficiently,focusing redevelopment within the current urban
service boundary to discourage urban sprawl, and preserving rural lands outside
the boundary;
2. Is well planned with carefully organized patterns of growth and strategic investment in
infrastructure within its borders; and
3. Maintains full provision of services within the current urban service boundary.
A. Urban Service Boundary and Urban Growth Boundary Policies
Policies
A-1. The City will not expand the existing Urban Service Boundary* (USB) and will resist
efforts to require expansion, except in those areas designated Teir 1 Urban Reserves as
of February 1998, or where properties are needed for the development of public parks
and recreation facilities.
A-2. In any areas where the Urban Service Boundary has been expanded,new development
will be required to pay for the full cost of extending urban services.*
A-3. The Urban Services Boundary(as depicted on the Comprehensive Plan Map) is
the area within which the City shall be the eventual provider of the full range of
urban services.
A-4. Unless created in partnership with the City,oppose the formation of any new service
district within the Urban Services Boundary.
A-5. Support expansion of an existing service district's boundaries only if:
a. It can be shown that it is the only feasible way to provide a particular service.
City services, rather than district services shall be provided when they are,or
can be made available and are adequate;
b. The provision of service is consistent with the City's Public Facility Plan and
Comprehensive Plan goals and policies;
c. Annexation agreements are recorded for the property receiving service,to the
extent permitted by law; and
d. The service district can maintain an adequate level of service over both the
short and long term.
Urbanization 167
PP 1a910012 APPLNd1XIEI/PA E 7'OF 14
Adopted March18, 2014
A-6. When expanding the USB, inventory historic resources and provide incentives to
designate and preserve the resources as historic landmarks.
B. Stafford Basin Policies
Policies
B-1. Maintain the rural character of the Upper Stafford Basin to support land uses such as
sustainable agriculture and parks in close proximity to the City center, consistent with
the provisions of the Inspiring Spaces &Places chapter.
B-2. In the Upper Stafford Basin, support a rural buffer between any urbanized areas and
the existing communities of Lake Oswego, Tualatin and West Linn to maintain the
individual character of each community.
B-3. If concept planning occurs in the Stafford Basin Urban Reserve;*
a. Participate in a primary decision-making role for Urban Reserves 4A,
4B and 4C.
b. Advocate for the following plan features to be included:
i. A design and development pattern that results in strong transportation
and transit connections to the east and west along I-205.
ii. Concurrent provision for accommodating increased demand for travel
along I-205, including transit.
iii. In the Upper Stafford Basin,retention of the rural character and related
land uses (Policy B-1) and a rural buffer between existing communities
and future urbanized areas (Policy B-2).
c. Support the area's inclusion in the Urban Growth Boundary only if i-iii, above,
are part of the final plan.
C. Annexation Policies
Policies
C-1. Extend sanitary sewer and water services in the City's Urban Service Boundary
as follows:
a. Require unincorporated property to annex prior to the receipt of City sanitary
sewer service except as provided in section (b).
b. Any of the properties designated in Figure 21 may be provided with City sani-
tary sewer service prior to annexation if all of the following conditions are met:
i. The property is within the Lake Oswego Urban Services Boundary;
ii. An existing sanitary sewer line operated by the City,to which connec-
tion can be made in accordance with subsection (iv) below, is within
300 feet of the property;
16 8 City of Lake Oswego Comprehensive Plan 2013
FiP191910012 APPBNDI B/PAGEiTOF 14
Adopted March18, 2014
iii. The County has found that the septic system serving the prop-
erty is failing and the County has directed connection to a sanitary
sewer system;
iv. The plan for extension of a sanitary sewer line to be connected to the
City sanitary sewer line has been approved by the City Engineer; and
v. Immediate annexation of the property is not feasible and the Owner
has executed a consent for future annexation.
c. Require unincorporated property to annex or execute a consent for future an-
nexation prior to the receipt of City water service. In no case will consent for
future annexation be accepted where immediate annexation is feasible.
C-2. The City may initiate island annexations as allowed by state law to:
a. Create logical City boundaries; and,
b. Provide economic and efficient provision of City services to exist-
ing and proposed development within the subject area, and to ad-
jacent land.
C-3. Ensure that annexation of new territory or expansion of Lake Oswego's Urban Services
Boundary does not detract from the City's ability to provide services to existing City
residents.
C-4. Prior to the annexation of non-island properties, ensure urban services* are available
and adequate to serve the subject property or will be made available in a timely
manner by the City or a developer, commensurate with the scale of the proposed
development.
C-5. Require annexation of unincorporated property proposed for development when the
development requires City sanitary sewer or water facilities.
C-6. Encourage owners of property within the Urban Services Boundary to voluntarily
annex to the City.
D. Planning and Coordination Policies
Policies
D-1. Enter into and maintain intergovernmental agreements with any sanitary sewer
or water service provider within the Urban Services Boundary, and include a
requirement for annexation agreements for unincorporated lands to receive
either service.
D-2. The City may enter into intergovernmental agreements to extend sanitary sewer,
water, storm water management and other services to other cities outside the USB, and
continue or enter into new agreements with existing service districts to provide public
safety services and domestic water provided:
a. These arrangements are in the City's financial interests;
Urbanization 169
PP 1a910012 APPENDIX-El/PAO:V-F 14
Adopted March18, 2014
b. Adequate capacity exists to provide services;
c. The quality and quantity of services to existing and future City residents are
not diminished;
d. Such actions are consistent with the City's Public Facility Plan; and
e. Comprehensive Plan goals and policies pertaining to public facilities and ser-
vices and urbanization are met.
D-3. Enter into and maintain an Urban Growth Management Agreement with Clackamas
County for lands within the Urban Services Boundary to:
a. Promote compatibility of land uses,neighborhood character and public facili-
ties when territory is annexed to Lake Oswego;
b. Preserve neighborhood character and livability through a coordinated City
and County planning program;
c. Ensure high standards of urban design compatible with the surrounding
community;
d. Provide certainty and predictability through consistent development standards
and policies;
e. Protect and enhance natural resources;
f. Ensure the provision of public facilities and services is consistent with the
City's Public Facility Plans;
g. Promote orderly annexation of territory;
h. Clearly define responsibility of the City, County, special districts, and franchise
holders (e.g. cable, gas, electric power, solid waste) in providing services and
managing growth within the Dual Interest Area;
i. Foster cooperation among all parties involved in land use planning and ser-
vice delivery;
j. Obtain timely decisions pertaining to land use and service delivery issues; and
k. Achieve fair and equitable financing for public facilities and services needed to
accommodate development.
D-4. Develop, coordinate and implement the Public Facility Plan (PFP) for lands
within the Urban Services Boundary to ensure predictable and logical provision of
urban services.
D-5. Enter into and maintain intergovernmental agreements with service districts operating
within the Urban Services Boundary. These agreements shall:
a. Define short and long term service provision roles of the City and service
districts;
170 City of Lake Oswego Comprehensive Plan 2013
FP91V10012 APPENEAX B/PAGEbiO DF 14
Adopted March18, 2014
b. Specify the terms and conditions of withdrawal of territory from service
districts and the transition of capital facility ownership and administration
to the City;
c. Provide for coordination of plans and programs between the City and service
districts; and
d. Ensure services are provided consistent with the City's adopted Public Fa-
cility Plan.
Recommended Action Measures
A. Update System Development Charge rates annually and adjust rates to reflect increases
in construction costs.
B. Consider and, as appropriate, encourage changes in state legislation to allow the
collection of System Development Charges for schools, fire stations,law enforcement
facilities, and libraries.
C. Maintain and update the Quality of Life Indicators.*
D. Incorporate Quality of Life Indicators into development regulations as criteria for
determining the impacts of future development on the community.
E. Participate in Metro's Urban Growth Management planning process and evaluate
the feasibility of providing urban services to areas adjacent to Lake Oswego's Urban
Services Boundary that Metro designates as urban reserves. As appropriate, develop
urbanization plans*for land use and facilities in urban reserve areas designated by
Metro. (See also,Annexation Policies.)
F. Prior to any expansion of the Metro Urban Growth Boundary, encourage Metro to
work with affected jurisdictions and property owners to develop specific land use
plans for these areas that ensure:
i. An efficient and compact urban form,thereby minimizing the need for
expansion;
ii. Preservation of open space and other natural resources;
iii. That all urban level public facilities and services will be made available concur-
rent with development; and,
iv. That negative impacts will not accrue to neighboring communities.
G. Maintain design and zoning standards for development within designated Town
Centers and Employment Centers that:
i. Promote compact urban form,thereby avoiding urban sprawl;
ii. Are compatible with surrounding development;
iii. Ensure pedestrian scale design; and,
iv. Encourage alternatives to automobile use in order to reduce automobile
dependence.
Urbanization Gip
PP 1a910012 APPENIDIXeB/PAc Eb14-OF 14
Adopted March18, 2014
H. Implement a neighborhood planning program in coordination with Clackamas
County to include portions of the Urban Services Boundary(USB).
I. Encourage the City, County and service districts to adopt compatible facility design
standards.
J. Coordinate the development and implementation of the City's Capital Improvement
Plan with Clackamas County, service districts and other service providers
within the USB.
K. Monitor and implement annexation agreements to ensure annexation of eligible
property occurs as specified.
L. Establish System Development Charge rates for urban reserve areas to recover the full
cost of providing urban services.
M. Explore the feasibility of adopting measures to ensure that the incremental costs of
operating and maintaining urban services in any urban reserve area are fully assessed
to that area.
N. Within the Urban Services Boundary encourage Clackamas County to:
i. Apply relevant policies from the Lake Oswego Comprehensive Plan;
ii. Review development,using City standards and review procedures;
iii. Share in the responsibility of providing park facilities; and,
iv. Apply System Development Charges derived from development to projects
that directly benefit the area.
O. Work cooperatively with Clackamas County on regional planning issues, including
the designation of urban reserve areas or amendments to the Portland Metropolitan
Urban Growth Boundary,which may affect the interests of either jurisdiction.
P. Provide public information to explain the costs and benefits associated with being
within the City limits.
Q. Develop a list of methods for encouraging annexation of properties within the USB.
R. Encourage Clackamas County to require legislative and quasi-judicial Plan
amendments*within the Dual Interest Area to be consistent with the nearest or most
similar City Comprehensive Plan designation.
S. Recognize that public service districts may continue to operate within the Urban
Services Boundary until:
i. An entire district,or portions thereof, are annexed by the City and subse-
quently withdrawn from district;or,
ii. Other arrangements are made for the assumption of district responsibilities by
the City pursuant to intergovernmental agreement.
eaCity of Lake Oswego Comprehensive Plan 2013
PP991V10012 APPENEAXIMPAGEb12-OF 14
Adopted March18, 2014
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INTERGOVERNMENTAL AGREEMENT
STAFFORD URBAN RESERVE AREAS
THIS INTERGOVERNMENTAL AGREEMENT ("Agreement") is made this 28th day
of June 2017, by Clackamas County ("County"), Metro, the City of Lake Oswego, the City of
Tualatin, and the City of West Linn (individually a "City", collectively the "Cities") (together the
"Parties"). This is an addendum to the Intergovernmental Agreement between Metro and
Clackamas County To Adopt Urban and Rural Reserves entered into pursuant to ORS 195.141
and ORS 190.010 to 190.110 and dated March 3, 2010 ("Reserves IGA").
RECITALS
1. The Metro Council and the Clackamas County Commission are working together to finalize
the designation of urban and rural reserves by adopting findings in support of the decisions
made by Metro, Clackamas County, Multnomah County,and Washington County in 2010;
2. Under state law, Metro and the three counties in the region are tasked with identifying those
areas adjacent to the existing urban growth boundary(UGB)that are best suited for providing
land to accommodate urban growth in the region over the next 40 to 50 years;
3. The Cities have long opposed the designation of Metro study areas 4A, 4B, 4C and 4D
("Stafford")as urban reserve because of concerns with regard to efficient use of existing and
currently planned future public infrastructure investments and whether urban level public
services can be efficiently and cost-effectively provided by appropriate and financially
capable service providers;
4. The Parties recognize that resolving the dispute over the designation of Stafford will enable
the parties to focus collaboratively on planning for and providing urban services and
prioritizing the needed regional improvements to the transportation system, such as the
widening of 1-205 from Oregon City to Stafford Road;
5. The Parties enter into this IGA in order to alleviate the concerns of the Cities and better
support the designation of Stafford under the Factors by ensuring an orderly process for any
urbanization of Stafford where the Cities will have control over the planning,process and
timing for the urbanization of Stafford,that the Parties will coordinate with one another and
with any affected special districts serving Stafford on the effective date of this Agreement,
and that Stafford will not be urbanized before appropriate urban services will be available;
and
b. The Parties also desire to recognize that the Stafford Hamlet and surrounding area is a unique
enclave in Clackamas County that has a long standing agricultural heritage, significant
environmental assets, and valued open space that should be preserved through the concept
planning process;
NOW, THEREFORE, it is mutually agreed that the Parties voluntarily enter into this
Intergovernmental Agreement addressing issues and concerns raised by the Cities regarding the
designation of Stafford as an urban reserve. Specifically,the Parties agree as follows:
Page 1 —Intergovernmental Agreement—FINAL
PP 1a910012 APPEND1Xte A"G'Et4-'OF 5
1. City Governance. The Parties agree that Stafford will be governed by one or more
of the Cities upon expansion of the urban growth boundary and annexation. The
governing City will have the authority to decide what land uses should be planned
for, and when and how municipal services will be provided.Notwithstanding
anything to the contrary in the Reserves IGA,Exhibit B, Section 4, or Metro Code
Sections 3.07.1105 to 3.07.1130 ("Title 11"), Metro and the County will oppose any
future effort to incorporate a new city. Metro and the County will similarly oppose
creation of any service district to provide water or sanitary sewer services in Stafford
outside of a city,unless there is no practicable alternative to creation or expansion of
a sewer district in order to remediate a health hazard created by development in
existence on the effective date of this IGA.
2. Completion of a City Concept Plan.
a. The Parties recognize that the Cities will be the public bodies that have the
responsibility to plan for any future urbanization of Stafford and that the
urbanization of Stafford will only occur upon annexation to one or more of the
Cities. Prior to adding any part of Stafford to the UGB,the City that will be
responsible for annexing that part of Stafford must first have developed a
concept plan for the area describing how the area will be planned and
developed after inclusion in the UGB. The timing for commencement and
completion of a concept plan will be up to the City.
b.. The Cities will coordinate concept planning with one another and with the
County and special districts serving Stafford on the effective date of this
Agreement to determine which City or special district is the appropriate urban
services provider for each part of Stafford. The Parties agree to develop a
preliminary concept plan to address transportation, density, community
character, and infrastructure issues to help ensure that future, more detailed
sub-area "concept plans" can be developed and coordinated. The parties
agree to participate in good faith in future planning efforts for Stafford, in
coordination with each other, and with other public, private, and community
stakeholders.
c. Each governing City will be responsible for determining the pace and timing
of future development within an area to be incorporated into the UGB. The
form and character of development will be determined through the concept
planning process under Title 11 and Section 2 of this Agreement, and will be
consistent with community values and environmental requirements.
d. The County shall not amend the Comprehensive Plan or Zoning and
Development Ordinance or the Comprehensive Plan Map or zoning
designations:
i. To allow within Urban Reserve areas,new uses that were not allowed
on the date the Urban Reserve areas were designated, except those
Page 2—Intergovernmental Agreement—FINAL
R s1a910012 APPLtND1Xt WEAVE'2 OF 5
uses mandated by amendments to the Oregon Revised Statutes or
Oregon Administrative Rules enacted after designation of Urban
Reserves.
ii. To allow within Urban Reserve areas, the creation of new lots or
parcels smaller than allowed on the date Urban Reserve areas were
designated, except as mandated by amendments to the Oregon Revised
Statutes or Oregon Administrative Rules enacted after designation of
Urban Reserves. The purpose of the designation is to preserve lands
for potential future urban development, not to facilitate or expedite
their development under County zoning.
e, Notwithstanding anything to the contrary in Metro Code 3.07.1110(d),Metro
agrees that the concept plan or plans developed pursuant to Section 2 of this
Agreement will be used to designate 2040 design types for Stafford and to
develop conditions in the Metro ordinance that adds any Stafford territory to
the UGB. The Parties agree that the concept plans will govern amendments to
the Cities and County comprehensive plans and land use regulations following
addition of the area to the UGB.
3. Citizen Involvement. The Parties agree that future decision-making regarding the
timing and content of concept planning and the expansion of the UGB must involve
the participation of citizens from the Stafford community, as well as other
stakeholders, and will take into account public testimony about desired community
character, preservation of natural features, and other community concerns when
developing the concept plans.
4. Urban Services Agreements. At such point in time that any portion of Stafford is
included within the UGB,the City that is responsible for urbanization of that area will
negotiate and enter into an urban services agreement pursuant to ORS 195.065 with
any special district that is providing services to that area of Stafford on the effective
date of this Agreement or that may be created thereafter pursuant to Section 1 of this
Agreement.
5. Grant Funding for Transportation Planning. Metro and the County will undertake
a transportation planning project using the $170,000 Community Planning and
Development Grant from Metro to the County to study and plan for transportation
and other public infrastructure conditions and needs in the Stafford area. Work on this
planning project is anticipated to begin once Metro and the County have finalized the
decision on urban reserves.
6. Support for Widening I-205. The Parties agree to continue to support the Joint
Policy Advisory Committee on Transportation's decision to make widening 1-205
from Oregon City to Stafford Road a top priority for regional transportation projects
in order to help address the significant transportation infrastructure issues related to
future urbanization of Stafford as well as other regional transportation needs.
Page 3 —Intergovernmental Agreement—FINAL
PP 1a910012 APPEND1Xte tPAGiEt 3-OF 5
7. Transportation and Infrastructure Improvements. Urbanization and urban
development will be planned to coincide with transportation and infrastructure
improvement necessary to serve such development.
8. The Findings. This IGA will be entered into the record of the Metro and Clackamas
County proceedings on the remand of the 2010 Stafford urban reserve designation.
The Metro and County remand findings will cite this IGA as evidence necessary to
meet the designation requirement under ORS 195.145(5)(c) and OAR 660-027-
0050(3)that the Stafford area can be served by urban level public facilities and
services efficiently and cost-effectively by appropriate and financially capable service
providers.
9. No Appeal by the Cities. In consideration for the promises and commitments made
herein,the Cities agree that the Cities will not challenge the designation of Stafford as
Urban Reserve either before the State of Oregon Land Conservation and
Development Commission or by appeal to the Oregon Court of Appeals.
10. Governing Law. The laws of the State of Oregon will govern this Agreement and
the Parties will submit to the jurisdiction of the courts of the State of Oregon.
11.Amendments. This Agreement may be amended at any time with the written consent
of all Parties.
12. Severability. If any covenant or provision of this Agreement is adjudged void, such
adjudication will not affect the validity, obligation, or performance of any other
covenant or provision which in itself is valid if such remainder would then continue
to conform with the terms and requirements of applicable law and the intent of this
Agreement.
13. Term. This Agreement shall be effective upon execution by all Parties identified
herein. This Agreement will terminate on the same date as the Reserves IGA,
December 31, 2060, unless terminated earlier by agreement of the Parties. If during
the term of this Agreement there is a change in applicable law or other circumstance
that materially affects compliance with one or more provisions of this Agreement,the
Parties agree to negotiate in a good faith a revision to this Agreement to address such
law or circumstance in mariner consistent with the intent of this Agreement.
[Signatures on Following Page]
Page 4—Intergovernmental Agreement—FINAL
PP 1a910012 APPLND1Xte A"G'Et4-'OF 5
IN WITNESS WHEREOF, each party has caused this Intergovernmental Agreement to be
executed by its duly authorized representative on the date first mentioned above.
Dated: Juneq.0, 2017
e to Council
Dated: June-Z , 2017
Cla auras County
V6-1,14 Sdr-b(dt-P—cIZA--- Dated: Jun?76 , 2017
City of Lake 0 wego
Dated: June 28 , 2017
ity of Tualatin
Dated: June 2'$ , 2017
ity of West Linn
Page 5-Intergovernmental Agreement-FINAL
PP 1a910012 APPLtND1Xte t1EA'G'Et 5-'OF 5
THREE CITY INTERGOVERNMENTAL AGREEMENT
PLANNING FOR THE STAFFORD URBAN RESERVE
THIS INTERGOVERNMENTAL AGREEMENT("Agreement") is made this 0..01-_day of
4-e)Drc , 2019, by the City of Lake Oswego ("Lake Oswego"), the City of Tualatin
("Tualatin''and the City of West Linn ("West Linn") (together,the "Cities" or the "Parties").
This Agreement is entered into pursuant to ORS 190.010 to 190.1 10.
RECITALS
1. By intergovernmental agreement dated June 28, 2017, among the Cities, Clackamas County
(the "County"), and Metro (the "Five-Party IGA"),the Cities agreed to end their long-
standing opposition to designation of Metro study areas 4A,4B, 4C,and 4D("Stafford")as
urban reserve in return for recognition by the County and Metro that the Cities will be
responsible for and have control over the planning and timing of any urbanization of
Stafford. Consequently,the Cities did not file an objection or appeal of Metro's submittal to
the State of Oregon Land Conservation and Development Commission ("LCDC"). LCDC
acknowledged Metro's designation of urban reserves (including Stafford) and Clackamas
County's and Multnomah County's designation of rural reserves on May 16,2018.
2, The Cities had long opposed the designation of Stafford as urban reserve because of concerns
with regard to the high cost of providing the necessary public infrastructure, including the
feasibility of providing functional transportation infrastructure, and the potential for severe
negative impacts on community character and livability, if urbanization were to occur in an
uncoordinated manner before the necessary infrastructure is planned for and funded.
3. The purpose of Metro's urban reserves designation is to provide for a 20-to 30-year supply
of land for employment and residential land needs beyond the 20-year supply of those lands
provided for in the Metropolitan Urban Growth Boundary ("UGB"). Given the infrastructure
challenges, any urbanization of Stafford is not likely to occur until the latter part of this
period.
4. Section 2 of the Five-Party IGA and Section 3.07.1110 of the Metro Code require that the
Cities must have adopted a concept plan or plans for Stafford, or any portion thereof,before
it can be considered for addition to the UGB. Section 2.a of the Five-Party IGA states that
the timing for commencement and completion of a concept plan is up to the affected city.
5. The Parties recognize that uncoordinated decisions by one Party could have severe, negative
impacts on the other Parties. The purpose of this Agreement is to identify the prerequisites
for concept planning,to provide for coordination of concept planning. and to adopt a method
for dispute resolution in order to ensure the orderly and coordinated process for any
urbanization of Stafford,concurrent with the provision of required urban services,to provide
for citizen involvement, and to ensure preservation of community character and important
natural resources.
Page 1 of 5 - THREE CITY INTERGOVERNMENTAL AGREEMENT-PLANNING
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PP 1a910012 APPEND1XtbN AG'Et4-OF 7
6. The Parties also recognize that this Agreement is consistent with and implements the Five-
Party IGA and,therefore, is necessary to support the determination by Metro and Clackamas
County that the designation of Stafford as an urban reserve is supportable under the urban
reserve factors contained in ORS 195.145(5) and OAR 660-027-0050.
NOW,THEREFORE,the Parties agree as follows:
1. Timing of Concept Planning
1.1 The Parties agree that a very significant challenge for urbanization of Stafford in
terms of cost and the potential for severe, negative community impacts is providing for adequate
transportation infrastructure and transit service.
1.2 The Parties further agree that a key piece of infrastructure that must be planned
for and funded before the Parties can complete meaningful concept planning is the widening of
Interstate 205 to three lanes in each direction from Oregon City to Stafford Road and the
replacement or reconstruction of the Abernethy Bridge ("1-205 Widening Project"). Given the
jurisdiction over and the cost of this project, it will have to be a regional project funded by state
and federal funds.
1.3 The Parties, therefore, agree that no Party will complete or adopt any concept plan
for any part of Stafford under Title 11 of the Metro Urban Growth Management Functional Plan
(Metro Code Section 3.07), or that otherwise constitutes a concept plan under the tenns of the
Five-Party Agreement, or that otherwise constitutes a criterion for UGB expansion, nor will any
Party apply for, promote or support any expansion of the UGB into any part of Stafford, until:
1.3.1 South of Tualatin River. For any concept plan proposal involving a
portion of Stafford that is south of the Tualatin River:
(a) The 1-205 Widening Project has received preliminary design
approval; and
(b) Funds to construct the 1-205 Widening Project have been identified
and appropriated; and
(c) Construction of the 1-205 Widening Project is scheduled to begin
in two years or less.
I.3.2. North of the Tualatin River. For any concept plan proposal involving any
portion of Stafford that is north of the Tualatin River,the later of:
(a) December 31, 2028; or
(b) until all the conditions in subsections 1.3.1 (a), (b) and (c)are met.
1.4 By mutual written amendment to this Agreement, the Parties may substitute an
alternative 1-205 improvement project in place of the I-205 Widening Project as used in Section
1.3, if all the Parties determine in the discretion of each that the alternative project includes high-
Page 2 of 5- THREE CITY INTERGOVERNMENTAL AGREEMENT-PLANNING
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P13191910012 APPEND1XtbYtfEA'G'Et2 OF 7
capacity transit or other features that enhance capacity and mitigate impacts in a substantially
equivalent or superior manner to the 1-205 Widening Project.
2. Coordination of Concept Planning
2.1 Notice of Intent to Initiate Concept Plan. Before initiating concept planning for
any portion of Stafford, the planning Party will provide not less than 90 days' written notice to
the other Parties. Representatives of all three Parties will meet simultaneously at least twice
before the end of the 90-day period to discuss the process, including an approach to addressing
any concerns. If one or more Parties refuse to meet during the 90-day period,the initiating Party
may begin concept planning, but must still meet the other obligations of coordination under this
Agreement.
2.2 Coordination among the Cities. The planning Party will coordinate with the
other Parties in developing the concept plan, and will provide ample opportunities for the other
Parties to evaluate and meaningfully participate and comment on the proposed plan. Further_ if a
Party(the "objecting Party")presents to the planning Party substantial evidence that a proposed
concept plan or concept plan element will materially impair or degrade the functionality of a
transportation or utility facility or any other system of the objecting Party or of a service provider
providing service within the objecting Party's planning and service area as determined under
Section 3 of this Agreement, the planning Party will, in good faith, address the alleged impacts
and revise its concept plan or include mitigation measures or requirements that specifically and
effectively address the impacts.. For the purposes of this section, substantial evidence includes
without limitation evidence that the objecting Party's standards for transportation level of
service, operations and safety will be impaired or degraded.
2.3 Citizen Involvement. Each Party's consideration and approval of its concept
plan will follow the citizen involvement procedures and requirements for comprehensive plan
amendments contained in that Party's comprehensive plan and land use regulations. Each Party
will coordinate with the Stafford Hamlet and other Clackamas County citizen participation
organizations within Stafford in the same manner as a city neighborhood association or other
city-recognized citizen involvement organization with relation to providing involvement
opportunities during the concept plan adoption process, but shall not be required to provide fee
waivers or any other financial or in-kind support.
2.4 Concept Planning Criteria in Addition to Metro Code. In addition to concept
planning criteria under Metro Code Section 3.07.1 100 that is consistent with the Five-Party
IGA.the Parties agree that the following criteria will apply to Stafford area concept plans:
(a) Consider community character;
(b) Provide separation between communities and understandable borders;
(c) Preserve natural features;
(d) Maintain functionality of transportation and other systems. Unless
mitigated and addressed as provided in Section 2.2, no material impairment or degradation of the
functionality of a transportation or utility facility or system of another Party.
Page 3 of S- THREE CITY INTERGOVERNMENTAL AGREEMENT- PLANNING
FOR THE STAFFORD URBAN RESERVE
PP 1a910012 APPEND1XTO A'G'Et 3-OF 7
3. Determination of Concept Planning and Urban Services Areas. Commencing no
earlier than the year 2020, the Parties will develop and enter into an amendment to this
Agreement establishing boundaries for each Party's concept planning and Urban Services Area
in Stafford. The boundaries will be based upon the considerations listed in Section 2.4 and in
Exhibit A. The Parties agree to work with each other to develop and employ a coordinated
public review and involvement process in each City before approving the boundaries and the
amendment.
1. Adjustments for Certain Public Facilities or Services.
4.1 Notwithstanding the timing requirements of Section 1 of this Agreement,
provided that all three Parties agree in writing in advance, a Party may approve a concept plan
and apply for or support a UGB expansion at any time to include an area of less than 120 acres in
Stafford. provided that the area is publicly-owned, and use of the area is limited to parks.
recreation, open space,or agricultural uses. Concept plans under this Section 4 are subject to the
noticing, coordination and citizen involvement provisions in Sections 2.1,2.2, and 2.3 of this
Agreement.Nothing shall prohibit a Party from including an area that has been concept planned
or brought into the UGB under this Section 4 in subsequent concept planning for a larger area in
compliance with the terms of this Agreement.
4.2 The Parties hereby agree to Lake Oswego concept planning and requesting UGB
expansion under this Section 4 to include ail or part of the Luscher Farm/Rosemont Open Space
properties consisting of approximately 110.5 acres at 125-385 S. Rosemont Road in Stafford,
depicted in Exhibit B with tax lot numbers 21 E 16AD 03000,03001; 21 D 16❑ 00100, 00300;
21 D 16E 00200; and 21 E 15C 00700, 00300. provided that the Luscher Farm/Rosemont Open
Space properties are publicly-owned, and use of the Luscher Farm/Rosemont Open Space
properties is limited to parks. recreation, open space,or agricultural uses. In the event Lake
Oswego acquires the private parcels north of Rosemont Road surrounded on three sides by the
listed properties,or the parcels north of Rosemont Road that lie between 21 E 15C 00700 and
00300, as shown on Exhibit B, Lake Oswego may include those additional parcels as part of the
concept planning and proposed UGB expansion together with the other properties approved
under this subsection,provided that the parcels are publicly-owned, and use is limited to parks,
recreation, open space or agricultural uses.
5. Enforcement/Dispute Resolution. If any dispute arising out of or relating to this
Agreement, including the alleged breach, validity, interpretation and performance thereof
("Dispute"), is not resolved through negotiation within 30 days of written notice of a Dispute
sent by one of the Parties to the others,the Parties agree to then use their best efforts in good
faith to settle the Dispute by mediation before resorting to litigation or some other dispute
resolution procedure. The mediator will be an individual acceptable to all three Parties, but in
the absence of agreement each Party will select a temporary mediator and the temporary
mediators will jointly select the permanent mediator. Each Party will pay its own costs for the
time and effort involved in mediation. The cost of the mediator will be shared equally among the
Parties. The mediation session will be held within 45 days of the retention of the mediator, and
last for at least one full day before any Party has the option to terminate the process. The process
will continue until a Party or the mediator states there is no reason to continue because of an
impasse that cannot be overcome and sends a"notice of termination of mediation" to the (other)
Page 4 of 5- THREE CITY INTERGOVERNMENTAL AGREEMENT-PLANNING
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PP 1a910012 APPEND1XTOFAG'Et4-'OF 7
Parties. Upon termination of mediation, each Party will have the right to exercise all legal
remedies available at law or equity. If the Parties reach agreement in mediation, the agreement
will be reduced to writing and signed by all Parties.
6. Miscellaneous Provisions.
6.1 Governing Law. The laws of the State of Oregon will govern this Agreement
and the Parties will submit to the jurisdiction of the courts of the State of Oregon.
6.2 Amendments. This Agreement may be amended at any time with the written
consent of all Parties.
6.3 Severability. if any covenant or provision of this Agreement is adjudged void,
such adjudication will not affect the validity,obligation,or performance of any other covenant or
provision which in itself is valid if such remainder would then continue to conform with the
terms and requirements of applicable law and the intent of this Agreement.
6.4 Term. This Agreement shall be effective upon execution by all Parties identified
herein. This Agreement will terminate on the same date as the Reserves 1GA, December 31,
2060. unless terminated earlier by agreement of the Parties. If during the term of this Agreement
there is a change in applicable law or other circumstance that materially affects compliance with
one or more provisions of this Agreement, the Parties agree to negotiate in good faith a revision
to this Agreement to address such law or circumstance in manner consistent with the intent of
this Agreement.
IN WITNESS WHEREOF, each Party has caused this Intergovernmental Agreement to be
executed by its duly authorized representative on the dates below. This agreement has been
executed in triplicate originals, with one to be held by each of the Parties.
CITY OF LAKE OSWEGO
Lid 1(, Dated: 1-z4 r w�.� { ,2019
By: Kent Studebaker, Mayor
CITY F TUALATIN
Dated: /e--6 `/ . 2019
B : Frank Buben , Mayor
CITY OF WEST LINN
Dated: 6-17iely..4.-0-y—( ,2019
By: Russ Axelrod, Ma r
Page 5 of 5- THREE CITY INTERGOVERNMENTAL AGREEMENT-PLANNING
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PP 1a910012 APPEND1XtbYPAG'Et5-OF 7
EXHIBIT A-Three City Intergovernmental Agreement
Considerations in drawing boundaries
1. Efficient and effective use of existing and planned public investments
- Transportation
- Sanitary and Storm Sewer
- Water
- Open space
- Emergency response
- Schools
2. Existing parcelization and committed land uses
3. Separation of cities and understandable boundaries
Although it is too early to consider land use and urban design, boundaries should support each
city in maintaining its distinct identify and sense of place.
Avoid splitting properties between cities and support efficient operations and maintenance of
city infrastructure
4. Natural areas
- Promote efficient management of natural resources,e.g.,avoid fragmentation of major
stream corridors.
- Use natural areas and natural features as buffers/greenbelt for separation between cities.
- Provide equitable distribution of regional open spaces among cities.
5. Development costs and fiscal impact
- Equitable distribution of buildable land for housing and employment
- Consider relative cost of serving areas;avoid creating areas that are isolated or not fiscally
feasible to serve(topography, transportation access, parcelization)
FIPI 914/0012 A P PEND1Xt!WEAVEt 6-1OF 7
EXHIBIT B — Three City Intergovernmental Agreement
"Luscher Farm" Parcels
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�P"91(910012 A P PENDIXtD1 G'Et7-bF 7
LUSCHER AREA MASTER PLAN
TABLE 7.1 OPINION OF PROBABLE CONSTRUCTION COST
Ta6k)Descriplion guarllity Units Urlil Cesl ExIsasian
- `EA A: FARR OPEN SPACE X $262,926
NEIGNBORitOOD PARK
Site Preparation
Rgmove(E)Asphalt 4,000 Sf 11.00: 14.000
Gear and Grub 90,500 sf : $0.10. $9,050
Erosion.Croirtral 1 Is • 34,000,00: 54,000
Earthwork
Grading 11,5.00 sf $1,50: $17,260
Atchitaclural Structures
Picnic Sheller 1 Is : $42,000,00: $42.0040
Trails
Gravel Paths(5'wide) 5,504 Sf - $5.001 $42.500,
Planting
Etafriendly Iarm19r868 90,500 8f $0,10: 59,050]
Site Furnishings
-
-
Picnic Tables _ 20 ea S1,200.00: $24,000
Benches 5 ea 51,000.00 $5.000
-
Trash Receptacles 2 ea S.500.00 $1.000
(kinking Fountain 1. ea $3,500.00 $3,500
AND
Site Preparation rDemalition
Clear and Grub 200. 8f $0,10, $20
Erasion Control 1 Is $500.00 $500
Earthwork
Grading - 200 sf $1.50' "WI
Interprets,Bwnwits
Rnardwak and►Viewing Platform 300 sf 545,00i S13,500
InlerprpGye Signage 1 Is $1,000,00: $1,000
SOFT COSTS S.CONTINGENCY {30%}' $76256
• - ' B:ACTIVE RECREATION AREA 717
MULTI-USE SYNTHETIC TURF FIELDS
Site Preparation/Demolition _
Clear and Qruh 167.500 Sf $0.10i $16.750
Erosion Control 1 Is $2,000.00! $2.000
Earthwork _ _ _
Grading 107,500 sf _ $1.50:: V51250
Fields
Manage System _ 167,500 sf _ $2.00 $335A04
Base Rode(8'deepf 167,500 sf $1.25 $200.375
Syrilhelic Turf _ 187,500 Sf $6.50 $1,423,750
Saftballfeasepak Backslap 1 _e® 1E,400.00 $0A00
Retaining Webs 14'NO w,9410rdr86 rerifX0 1.000 Ir $150.00` $150,000
Perimels'Redd Fun alrg(6'Mph bfadc vinyl-clad chelnllnk fence} 1,650 if $30,00 $49,500
Liglii:+g I Is $300,000.00: $300.000
BASKETBALL COURTS
Site PreparatiorilDemolillpn _
Clear and Grub 12,500 Sf $0.101 $1290
Erosion Control i Is $1.500.00 $1,500
Earthwork
Grading 12,B(X) sf $1.50 $18.900�
Courts
Paying and Surface*(AC W.8Cr31IC whip mow 12,600 S} $7.i50 $94 540
Hoops 4 ea 12,500.40. $10,000
Benches 4 es $1,200,00 KM
100 CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES
PP f9- O12 APP`LND1XtEl A-1Sef 1-OF 9
LUSCHER AREA MASTER PLAN
TaskiDescriplion Guanlily Units Unit Cass Extension
ROADWAY
Site PrepargtIOniDe111o1NI0n
[ Iear and Grub 24,000: ST $0-10 $2,4010
Erosion Control 1 C9 35,000.04: $3,000
Earthwork
[Grading 2&000 $1 $f-50 S42,000
$lope Repair 27.500 Sf $ 20; $5,500
Paving
Asphalt Paving(20'wide) 24,000 Sf : S4.50 $106,000
Concrete Curb 2,400; If $15-00: S36,000
Concrete Sidewalk (6'wide) 7,200; sf ; S6.00; S43,24.5
Raffling
Trees.Shrubs,Grammes,end!motion 1inCludin0 swale$} 27.150. St 34-50 $122,175
PARKING LOT
Site PreparetinniDemnlltInn
Clear and Grub 54.550: st , 30.10 $8,455
Erosion Control 1; Is : $3,000-00 i $3,000
Earl#1work
Giatlmg - 54,850! of $1.50: $125,975
[SSive�Repair _ - 40,000 s'f SO.20' $6,000
nc
ANA%Pauing 43,000. Sf : $4-50_ $193.540
Concrete Curb 2,200; sf • $1$-00: $33,000
Concrete sidewalk(6'wide) 55,600 sf • $5-00: $333,000
Concrete Stairs between Upper and Lower Parking Lot i 240° If • $45-00: S10,850
COnCrete$lairs 10 Field 300: If • $4$00 $13,500
Concrete Ramp i 780! sf ° $7.00° $5,460
Concrete Walls at Ramp - _ 5 If $125-00: 535,625
Planting
-Trees.Shrubs,Grasses,and Irrigation(Including swalea} 22.300 sf $4.50! $131,850
uwII1a
Storm Drainage 1 IS $40,000.00: S40,000
Lighting 43.040 sf $1.75: $75,250
OAK UPLANDS
Site Preparattan1Demolition
Crear and Grub 251,3E0 S! $0-10 $25,13+5
Erosion Conlroi - 1 Is $500.00 1 $5O0
Panting
Ee -Irieitdly lawn/hissdrfiVGrasses 281,360 sf $0-10. $28,136
Trees ----- --- ..-A9--r $250-00: 12,540
-- -.,,_ . .
Trails
Graunl Palirs(5'wide) 11,150 St 50.00: S55,750
ViliwPointa
Benches 4 to $1,000.00 $4,040
Picnic Areas -
Pirn ir,Tableg
(SOFT COSTS E CONTINGENCY
ea $1 20U.00' $7,200
(91ilb}� $1,588,210
CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES 101
PP f9- O12 APP`LND1XtEY lGEt2-OF 9
LUSCHER AREA MASTER PLAN
TasI;Oesuip1ion n'.:r•I•". Urlils UrlitCosi Extension
AREA C; URBAN AGRICULTURE` $9+6O00
Urban egrioulture Strategy,program.&implement.plan 1 610,000.00 S 10,000
Site Preparation/Demolition
Clear and Grub TBD. 91 _ $0,10 TBD
Erosion Centel 1: IS $1,500.001 $1,500
Urthwork
Grading _ _ TEDi st $1.50 1 TED
lnirastrualurs
Buildings 13.000; Si $25.00 $325.0040.
Fencing 30,00110 If $6.00 $180.000
Wed expansion 3"mein I,000, Pr $5.00 55,000
Irrig21iorl Lines 2.000: If $3.80 $7.600
Gravel Roads(1 or woe) 43,3E 0: 0 $1.75 $7 .775I
Vieweeirll5
L.Lenctses 2' erg $1,000.00: 62.000
SOFT COSTS&CONTINGENCY (30%) S257,925
AREA 17 COMMUNITY GARDEN AREA liginhaz.42
Site PreparatIon/Demolnbon
Clear and Grub t0.900 IA , $0,10; $1,090
Erosion Control 16 ' $4,000.00 1 $4.000
Earthwork
Grading 2.600 si _ 61.50i 542001
•
Architectural Structures
Tool Sheds 6: es 53,000,00: S18.
•
Composting 7oi1Bt 1: ea $175,000.00: $175,004
Gravel Rdmp6(1orwide) 15.750 0 $1.75• $27.$63
Concrete Material Deop-off Pads 900 si $6.00 $5,400
Deccmpo6ed Granite Ares 74,000 6i $4.50 $333.000
Gardens
20'x20'Garden Plokg(t>a6 new*WI 34,400. of $0.75 $25,000
•
Wood snipe{ "lipiret, 10.650' 0 $0.75 $7,958
Site FurnIahInos
Picnic.TgWea 4' ea $1200.p0 54,000
t3i3ndics I 7, ern $10000.00 $7,000
Trash Reoapta•cles_ 2: ea S5500.00 $1,000
QYirlkilp Fountain i 11 sa $ .500.40 $3,500
SOFT COSTS&CONTINGENCY (30%)r $255.401
102 CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES
PP f9- O12 APP'LND1XtEYFFAGEt5 OF 9
LUSCHER AREA MASTER PLAN
TaskiDescdplion Quantity Units Lind Cost Eliantain
AREA E:LUSCHER FARM HISTORIC AREA $13,402%779
LUSCHER FARM CORE
Historic area cornerstone su Nay&placement 1 $5,101100 15.000
Site Preparation
04.231 and Grub 5,850 ell. $0.10 MN.
Erosvn Control 1 Is $3,101100 $0.000
Earthwork
Grading
••. 5.450 Of $1.50 $11.20
Architectural Structures
Reha.hilitaie I'Ascher Barn and Mil parlor 0,300: ar : $306.00 32,836.500
RehatiMate Loather Fain 1-letlee** : .0•7101 St 1 V20-00: ie•B2.400,
,--
Renovate Caretakers Residence(Garage&Bunkhoirsar` 2.200: sr : $200.00: 1616.000
Gravel Roads Orr wide) MO: a : $1.76 $1.640
Gravel Parking Areas 51100 sf ; $1.50: $7.500
Site Furnishing
Picnic.Tables i 4 ee $1,200-00 $4.800
Benches I .
7 ea 1 $1,000.00 $7,000
i
Trash Receptacles
2 ea :
$500.00 $1,0t10
Drinking Founiain ! 11 ea • $3.500.00 $3.500
WETLAND
Site Preparalinn
!—
Clear and Grub. i 2001 sf $0.10 $20
Erosion Control 1 Is : $600.00 $500
.••
Earthwork
•
Grading 200: sr : $1.60: 5300
In lemretive ElementS
Boardwalk and View*Piatrum ••
•. 300: a : 345-00: $13.500
• . _____„____
inleirprethre Sipna,ge •
:
. 11 Is 1 $1,000.00: $1•000
CLEMAT1S GARDEN
Site Preparation
Clear and Grub •
• • TEO. TBLII
. .
EroSren Control 1 le TED: TED
Earthwork
. .
Grading :
• :
• TEID TEO
Improvements and Experiekv. . . .
. . .
TED ••
_ . ••. ••. TBD TED
HISTORIC AREA OPEN SPACE
Site PreCerallOn
Clear and Grub ; 174.250: Sf i $(1.10: $17.426
EiKailtil
Eva-friendly lawnMeedow Grasses 174.250: et ; $010; $17,425,
Treat 3.0! ea $2543-00: $7,64:10
Picnic Areas
•Picnic Tables 6 ea ! $1,200.00! s7,2001
sorrcosTs&CONTINGENcY gore - si A51,261
CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES 103
PP T9-100112 APPEND1WEifF-AtiEt 4-OF 9
LUSCHER AREA MASTER PLAN
TaskiDeiseiriplion Couanlily Uniis Unit Cosi ExIlariSitiii
AREA F.: URBAN ACNIEW1RONMENTAL EDUCATION AREA _.•... $1.178,560 1
ENV1RONNIENTAL EDUCATION CENTER
Site Preparation/Demolition
Remove Asphalt Carroway :
2000' Ed 51.00' $2,000
i
Clear and Grub 1.000: af $0.10: $100
Erosion Control " 1 Is S1,500.40: 51.500
Earl rl _
Grading 1,000: al I 511.50i WWI
AfdliEnCIUMI Sifiletkire.
. .
Rehabilrlate Fulani]House 2,300: si $200.00 $480,000
n EL .
Gravel Road OW*ride) LOW. al $1.15: $11501
••
PI raiLsti
Ecirfliendho lair G.1.5130 si 30.10: $13.150,
t rees 15 Si 1250.00: 13,750
PLAY AREA
Site PreparationiDernolillon
Remove(El Outbuilding : 1 ka 54.000.00: 54.000.
Clear and Grub • 5.020: al $0.10: $502.
Ermion Cairtnal .I: is 1 I 500 00 i $1.500
Earthwork
Grading 5,020i al : $1.501 $7.530
Architectural Structures
P icnic Shellei i 1 Is i $42,000.00 i $4.2.0001
Raga _.
- -- - -- - - --- - -- - - - - :
Gravel Paths(5"wide) 2.425; si g $5.140: $12,125i
Plantfnq
-flues.Shrubs.Grasses.and!Magia( (lecke:log males) • 2.01* al : $4.50: 50,000
:
P lay Envirounten1 . _...._ -
•. . .
Agricodum-Themed Play Erernmbs : 1 la : U50.000.00: $250,000
.. •
Site Furnishings
•Picnic.Tables •' 4' es : 5,1200.00: $4, 00
t t-
Benches ?: ea : $1,000.00 17,000
:
Trash iziace.pta cla2! ea : $ro00.120: $IMI
D.rinkirtg Fc..3ntain •• 1: IN : 13,500.00: 13.500
SOFT COSTS 8.CONTINGENCY {30%l* $358,1153
104 CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES
PP 139-100112 APPEND1WEIFFAZEt 5-OF 9
LUSCHER AREA MASTER PLAN
TasivDescription auanlity Units Unit Cost Extension
AREA G;ROSEMONT ROAD ENTRANCE, INTERNAL ROAD,8 PARKING $2,017,238
ROADWAY
Sile Preparation/Demolition
Clear and Onib 45,270' Of S0-10' $4,527
Lrgg1p0 COMM)! 1 IS $2,000.00 $2.000
•
Earthwork
Gf@ding •
45,270 sf $1.50 $87.9051
Strualures
Vehicular Bridge Over Wetland 3,34D sf ' $175.00 $584,50(11
Pai
Gravel Surfacing(20 witle) 38,800 sf : $125 $84.050
Gcrxxeta Sidewalk — _ • 8,870 sf : MOO S52,020
Left-Nand Turn Lane from Rosemont Raid 7 Is $795,000 00 $19S.000
Panting
Trees.$hNbs.Grams,dnd Irlipa 5Ol F GhduOing Sw I S) 32,500 sf g $4.50 $146,250
Slle Furnlshlnpa
Cates 2 ea $2,500,00 55,000
PARKING AREA
Sate PreaaretloniD6rnolltlon
•
•
Char and Grub •
81,000 sf $0-10 58.100
Kilikalk
•
•
Grading 30,250: Sf $1-50. 158.575
Pawing,.
Gravel Surfacing •
25,750 Sf $1-50 S3.5 25
Structured Lawn tor Over0aw Parking 13,900 sf $2.00 E27.004
•
Planting
Trees Shrubs.Grasses.NV Irrigation(including swaIer, 35,350 sf $4,50 $159,0*
(SOFT COSTS&CONTINGENCY (30, * $608.311
CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES 105
PP T9-10012 APP'LND1XtEY GEt6-OF 9
LUSCHER AREA MASTER PLAN
TagIVIASOripiian 0uanlity units unit Cast Extension
AREA Ft FIFO-ME FARPNCRMELL PROP E RTYIIIMIMMIMIPVIAM
GRASSLAND AREA
Me PrOPereUoniDbmohhne
Hentl-oul Invasive Shrubs and Field Wads 7.5 ac $564100; $4,125
Spot-spray[evasive Weeds 25 ec $400.00: $10,000
Char and Grub r32.450 cl 54-1 Q 56,215
erasion Control 1 Is $4,000_00 34,000
Trat�
Gravel Paths 0'yids} 32.1 QQ'. of $5.00 $160,500
Planting
eareroot Trees,Shrubs,and Herbaceous Plants 7.5'. ac $5,400.00. $10,500
Eco-friendly lawn/Meadow.Grasses;around house and play area) ! $i2A50: $f $0-10: 56,245
Viewpoints
Fsen.1 es 6 i ea $1,000.00 56,000
Picnic Areas
PiCniC Tab4CS 61 es $1,200_00° $7,200
RIPARIAN AREA
Site Preparalinn
Han I!measly*Shrubs and Field Wads 2,26 ac ! $560_00. $1238
Spot-spray[evasive Weeds 2,26 in $400.00' i900
Planttnp
Barcroot Trees,Stwubs,and herbaceous Plants 2.25 ac $5,400_00 $12,150
SOFT COSTS&CONTINGENCY (3096O` Si11,394
AREA I:BROCK OPEN SPACE 1Mr $1.35).744
GRASSLAND AREA
Site Preparallon/Demol Mon
Hand-cul Invasive Shrubs and Field Weeds 7.55: ac : S550.00 $4,318
Sp0t-pr0y lniesive Weeds • 26.25: ea : $100-00 $10,500
Erosion Control 1' Is $4,000.00 54.000
PrgiL"t'alft4 — --— --
Grading e.SPQ of S1-50 59,750
Architeclurel Structures
Renovate l-rorse Arena to open air program auur cure 13.600 sr 550.00. 5650,000
Trots . ... ._..-- ---
Gravel Palls(V At 24.200 sr $5_U0 S121,000
Plontna
Bareroot Trees,Shrubs,end Herbaceous Plants T,65 as $550.00 $4,318
-Viewpoints
Benches 6 ea $1,000_00 S6,0Q0
Picnic Areas Picnic TalaleS B ea $1,200_00 57,200
Habltal Vlewinn Areas _
; Bird Blinds 2 es S1.000.00, $2,000
RIPARIAN AREA
Site PreOaralion
Hand-rut Invasive Shrubs and Field W5ed5 2.4 ac _ $550_00 $1,320
Weed removal 2,4 ac $400.00 S960
Plantinff
13areroot Trees,Shrubs,end Herbaceous Mewls j 2.4 ac $5 400.00 $12,060
:ROPES COURSE
Ropes Challenge Course I I.s 5100.000.00 $100,000
OFT COSTS 8 CONTINGENCY (309irs` $416,419
106 CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES
PP f9- O12 APPEND1XtE1FFA Et7-OF 9
LUSCHER AREA MASTER PLAN
Fund could contribute to the development of
FUNDING OPTIONS
any area,it should not be considered a primary
& RESOURCES source of funding for this project. General
Fund dollars are primarily envisioned for
matching funds and possibly small projects
The Luscher Area Master Plan presents a long that advance the overall goals of the City.
term vision for the future use and
development of park land. Implementation of GRANTS
this vision will be incremental and take place
Grant funding has been an important part of
over time as funding is available.
building the Lake Oswego park,recreation,
The master plan will need to rely on a wide and natural area system. There are a wide
variety of funding mechanisms and strategies. variety of granting agencies and foundations
Parks Plan 2025,the long term vision for the that will each have their own funding
City's park system,lays out a set of relevant priorities and criteria. Many of the projects
funding sources for park projects across the envisioned for the Luscher Area fit closely
system.A brief description of the applicable with major categories of grantor interests,
funding sources is presented below and including athletics,trails,community food
summarized in Table 7.2. For additional detail systems, and natural areas. It is important to
about each funding source, refer to Chapter 6 note that this money does not come for free; in
of Parks Plan 2025. Historically,park addition to staff time to build relationships and
development in Lake Oswego has been funded to apply for,track, and manage grants,most
through voter approved bond measures,the grant programs require a certain match
City's General Fund, and to a lesser degree via (typically in cash or in-kind services). The
park system development charges and grants. City will need to ensure that such resources
In addition to traditional funding sources,the can be made available if funding is awarded.
Luscher Area Master Plan presents a unique
opportunity to explore the use of other CAPITAL BONDS
creative strategies. In particular grants, The City relies on bond funding for much of
foundation funding, and community its major capital projects, including park
partnerships and private fundraising are viable system investments. Most often issued as
options for implementing portions of the
general obligation bonds,this option requires
master plan. A key element for this approach
voter-approval to bond against an assessment
to be successful will be the creation of an
placed on real property. Due to the high
actively engaged Friends group working community interest in the Luscher Area
collaboratively with the City.
properties,projects advancing this master plan
GENERAL FUND could be key to a successful system-wide bond
program.
General fund dollars come from taxes and fees
and are used to fund most City services.As
such,these resources are stretched across
many priorities and, even though the General
CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES 109
PP f9- O12 APP'LND1XtEY GEt8-OF 9
LUSCHER AREA MASTER PLAN
REVENUE BONDS Area master plan projects expand the capacity
These bonds are sold to finance revenue of the system and are eligible for SDC funding.
generating facilities. The interest and capital COMMUNITY
are paid from the revenue produced from the PARTNERSHIPS
facility's operation. Typically the City will
have to guarantee the repayment,meaning The community interest in Luscher Farm has
that if revenue does not cover the necessary already resulted in the investment of
payments,the City will be required to pay in significant volunteer effort,fundraising, and
some other way. organizational support to different functions of
the site. With this plan in place,the City can
PARK STEWARDSHIP FEE harness this community energy and direct it
Parks Plan 2025 also introduced the idea of a toward accomplishing the multi-faceted vision
park stewardship fee. This fee could be created
for the site.
by a local ordinance as a direct user fee for the
purpose of constructing and maintaining FLEXIBILITY FOR THE
recreation facilities.A more targeted FUTURE
stewardship fee could specifically fund the Ultimately,of course, no one resource will
stabilization and maintenance of the City's provide all of the funding and support that is
natural areas, and either the general or the necessary to implement the improvements
targeted approach is applicable to Luscher identified in the Luscher Area master plan.
Farm projects. Additionally,the existing sources of funding
will not cover all of the recommended
SPECIAL FUNDS improvements. Because this is a long-range
Another source of funding for park projects is plan, however,the intent is to identify
a collection of smaller special purpose funds funding sources as opportunities arise and to
that include the capital reserves of the City's define various areas for these improvements so
indoor tennis center and the tourism fund. To that the City of Lake Oswego can implement
be applied to a project,there must be a direct the plan in manageable pieces that are scaled
connection to the purpose or source of to match the available funding at the time.
funding.
PROJECT PHASING
SYSTEM DEVELOPMENT
CHARGES Implementation of the various phases of the
Luscher Area master plan will be dependent
The system development charges (SDCs) upon the status of the Urban Growth
collected for parks are restricted by law to Boundary (UGB), available funding, and the
enhancing the capacity of the system, and to ability of existing or new infrastructure to
reimburse for excess capacity if it exists in the support implementation.
system. SDC funds can be especially useful to
leverage additional resources such as matching While the master plan articulates the full build
funds for grants.Nearly all of the the Luscher out and future use of the Luscher area park
properties,the reality is the majority of these
110 CHAPTER 7 PROBABLE CONSTRUCTION COSTS & FUNDING SOURCES
PP t9- O12 APP'LND1XtUFFA Et9-OF 9
APPROVED: 02/10/2020
1 BEFORE THE PLANNING COMMISSION
2 OF THE
3 CITY OF LAKE OSWEGO
4
5 A REQUEST FOR APPROVAL OF A CONCEPT PLAN ) PP 19-0012— 1988
6 TO SUPPORT AN APPLICATION FROM THE CITY ) (CITY OF LAKE OSWEGO)
7 OF LAKE OSWEGO TO METRO TO ADD ) FINDINGS, CONCLUSIONS & ORDER
8 LUSCHER FARM TO THE PORTLAND METRO
9 URBAN GROWTH BOUNDARY.
10
11 NATURE OF APPLICATION
12
13 The City of Lake Oswego has prepared a Concept Plan for six lots comprising approximately 83
14 acres at Luscher Farm, pursuant to the Metro Functional Plan requirement that local
15 jurisdictions submit concept plans with their applications to Metro for major amendments to
16 the Portland Metro Urban Growth Boundary (UGB). The proposed Concept Plan is intended to
17 demonstrate how the current and long-term needs for integrated open space, park and
18 recreational uses at Luscher Farm, a public open space owned by the City of Lake Oswego, can
19 be accommmodated.
20
21 HEARINGS
22
23 The Planning Commission held a public hearing and considered this application at its meeting
24 on January 27, 2020. The following information was presented to the Commission at its hearing
25 and added to the record:
26 G-1 Letter from Friends of Luscher Farm, 01/21/20
27 G-2 Letter from RJ Cook on behalf of JP and Susie Cook Family, 01/27/20
28 G-3 Letter from Nancy Gronowski, 01/27/20
29
30 CRITERIA AND STANDARDS
31
32 A. City of Lake Oswego Comprehensive Plan
33
34 Land Use Planning
35 Policies D-1
36 Community Culture
37 Civic Engagement Policies 1-5, 8-9
38 Historic Preservation Policy 1
39 Recreation Policies 1, 4-6
40 Inspiring Spaces and Places
41 Goal 1, Policies 1, 2, 6 and 9
42 Community Health and Public Safety
43 Access to Local Food, Policy 2
PP 19-0012-1988 Exhibit B-1/Page 1 of 5
APPROVED: 02/10/2020
1 Urbanization
2 A. Urban Service Boundary and UGB Policies A-1 through A-6
3 B. Stafford Basin Policies B-1 through B-3
4 Healthy Ecosystems
5 Goal 5 Resources, Policies 2, 6, and 11
6
7 B. City of Lake Oswego Community Development Code
8
9 LOC 50.07.003.16.a Legislative Decisions Defined
10 LOC 50.07.003.16.c Required Notice to DLCD
11 LOC 50.07.003.16.d Planning Commission Recommendation Required
12 LOC 50.07.003.16.e City Council Review and Decision
13
14 C. Metro Functional Plan
15
16 MC 3.07.1110 Planning for Areas Designated Urban Reserve
17
18 CONCLUSION
19
20 The Planning Commission concludes that the proposed Luscher Farm Concept Plan complies
21 with all applicable criteria.
22
23 FINDINGS AND REASONS
24
25 The Planning Commission (Commission) incorporates the staff reports dated January 15, 2020
26 and January 23, 2020 (with all exhibits attached thereto) on PP 19-0012 (with all exhibits
27 attached thereto) as support for its decision, supplemented by the further findings and
28 conclusions set forth herein. In the event of any inconsistency between the supplementary
29 matter herein and the staff report, the matter herein controls.
30
31 Following are the supplementary findings and conclusions of this Commission:
32
33 1. The Commission received testimony that the Concept Plan's proposed athletic field
34 (Concept Plan, Area B) and Rosemont Road entrance, internal road and parking (Concept
35 Plan, Area G) are inconsistent with existing agricultural (garden plot) uses and the historic
36 character of Luscher Farm. No applicable comprehensive plan policy or approval criteria was
37 cited. The Commission also received testimony opposed to the City creating a mountain
38 bike skills course on multi-use trails at Luscher Farm.
39
40 The Commission finds that the Concept Plan is based on the Luscher Area Master Plan
41 (LAMP), which was developed through an extensive community planning process. The plan
42 contains specific recommendations for historic preservation and multiple uses of the
43 property, including active and passive recreation, urban agriculture, and community
44 education. The plan provides for buffering of its more intensive recreation uses from
PP 19-0012-1988 Exhibit B-1/Page 2 of 5
APPROVED: 02/10/2020
1 adjacent residential neighborhoods, other farms, and passive open space areas within
2 Luscher Farm. The testimony assumed that the road and parking would be paved with
3 asphalt or concrete when in fact the Concept Plan recommends gravel paving, which is
4 typical of the existing driving and parking surfaces on the agricultural portion of the
5 property.
6
7 The Commission notes that the proposed Concept Plan does not include a proposal for a
8 mountain bike skills course, though park rules (non-land use rules) already allow bicycles
9 and pedestrians on multiuse trails, including trails at Luscher Farm.
10
11 The Commission further finds that the Concept Plan is not a final or binding development
12 plan, but instead supports the City's application to Metro to add Luscher Farm to the UGB.
13 The Concept Plan is intended to guide future amendments to the City's comprehensive plan
14 and zoning map, which in turn will establish criteria and standards for urban agriculture and
15 other community uses at Luscher Farm. Adding Luscher Farm to the UGB will allow the City
16 to annex it, zone it Park and Natural Area (PNA) (with applicable Sensitive Lands Overlay
17 and Historic Landmark designations), apply for development review approval consistent
18 with the PNA zone for projects that require land use approval, and implement these
19 projects consistent with the community's vision as detailed in the LAMP and Concept Plan.
20 If the City does not apply to Metro to add Luscher Farm to the UGB, the City will not be able
21 to implement the LAMP as portions conflict with existing Exclusive Farm Use zoning in
22 unincorporated Clackamas County, which is intended for commercial agriculture.
23
24 Conclusion: The Commission concludes that the proposed Concept Plan uses are consistent
25 with the applicable Comprehensive Plan policies, including policies relating to parks and
26 natural areas, recreation, historic preservation, natural resource protection, and
27 urbanization in the Upper Stafford Basin.The Concept Plan is also consistent with testimony
28 urging the City to maintain Luscher Farm's rural/agricultural character. The UGB
29 amendment is needed to allow active recreational uses at Luscher Farm as envisioned by
30 the LAMP, because Clackamas County zoning regulations, adopted pursuant to Statewide
31 Planning Goal 3 (Agriculture) (Oregon Revised Statutes 215.203 et seq.; and Oregon
32 Administrative Rules 660, Division 33), prohibit structures with capacity exceeding 100
33 persons and certain types of non-agriculural park uses on EFU zoned lands unless part of the
34 County Parks Master Plan, which Luscher Farm is not.
35
36 2. The City received testimony from Mr. Andrew Harris, the owner of a residential property
37 located at 295 Rosemont Road, who was concerned that the Concept Plan and future UGB
38 amendment would create an island of rural land within the UGB. Mr. Harris also expressed
39 interest in having his property considered for inclusion within the Concept Plan and
40 questioned why the City had not approached him about this. No applicable comprehensive
41 plan policy or approval criteria was cited.
42
43 The Commission finds that the subject property would not become an island, because it
44 would be contiguous with other rural (non-UGB) lands to the south along Rosemont Road,
PP 19-0012-1988 Exhibit B-1/Page 3 of 5
APPROVED: 02/10/2020
1 including the Rosemont Road right-of-way and real property abutting Rosemont Road, as
2 shown by Exhibit A-1, Attachment 1, Figure 1: Concept Plan Area and Vicinity. The
3 Commission also finds that although it would be desirable to have a Concept Plan and UGB
4 with straight boundaries that are coterminous with all abutting roads, the Concept Plan's
5 purpose is to provide a unified plan for bringing City-owned parks and natural areas into the
6 UGB, and it is not within the Commission's purview of land use planning to require or
7 recommend the City purchase land.
8
9 City staff stated that prior to applying to Metro for a UGB amendment, the City will
10 coordinate with Metro to determine whether the agency recommends any refinement of
11 the proposed UGB boundary, specifically where the boundary aligns with/diverges from
12 Rosemont Road before applying to amend the UGB.
13
14 Conclusion: The Commission concludes that the proposed Concept Plan boundary is
15 consistent with the applicable Comprehensive Plan policies and Metro Functional Plan
16 requirements.
17
18 ORDER
19
20 IT IS ORDERED BY THE PLANNING COMMISSION of the City of Lake Oswego that:
21
22 1. The Planning Commission recommends that the Luscher Farm Concept Plan [PP 19-0012]
23 be approved by the City Council.
24
25 I CERTIFY THAT THIS ORDER was presented to and APPROVED by the Planning Commission of
26 the City of Lake Oswego.
27
28
29 DATED this 10th day of February.
30
31
32 / PS/
33 Philip Stewart, Acting Chair
34 Planning Commission
35
36 ATTEST:
37
38 PRELIMINARY RECOMMENDATION - January 27, 2020
39
40 AYES: Beckett, Fischer, Heape, Semler, Whitman
41 NOES: None
42 ABSTAIN: None
43 EXCUSED: Pape, Stewart
44
PP 19-0012-1988 Exhibit B-1/Page 4 of 5
APPROVED: 02/10/2020
1 ADOPTION OF FINDINGS AND ORDER - February 10, 2020
2
3 AYES: Beckett, Fischer, Semler, Stewart, Whitman
4 NOES: None
5 ABSTAIN: None
6 EXCUSED: Heape, Pape
PP 19-0012-1988 Exhibit B-1/Page 5 of 5
APPROVED: 02/24/2020
� F
0 1 4.. CITY OF LAKE OSWEGO
Planning Commission Minutes
o
January 27, 2020
°QFG0r'
1
2 1. CALL TO ORDER
3 Chair Heape called the meeting to order at 6:30 PM in the Council Chamber of City Hall, 380 A
4 Avenue, Lake Oswego, Oregon.
5
6 2. ROLL CALL
7 Members present were Chair Rob Heape and Commissioners Dave Beckett, Joel Fischer,
8 Jacob Semler, and Kim Whitman. Vice Chair Christian Pape and Commissioner Stewart were
9 excused.
10
11 Staff present were Scot Siegel, Director of Planning and Building Services; Evan Boone,
12 Deputy City Attorney; Ivan Anderholm, Director of Parks and Recreation; and Iris McCaleb,
13 Administrative Assistant.
14
15 3. COUNCIL UPDATE
16 Chair Heape indicated that Councilor Nguyen would provide City Coun ..dates once per
17 month, beginning with the next Planning Commission meeting.
18
19 4. CITIZEN COMMENT
20 There were no comments outside of th- : .lic hearing.
21
22 5. COMMISSION FOR CI 1 INVOLVEMENT (CCI) — GENERAL UPDATES
23 Chair Heape '. . med Planning Commission members that the Lake Forest Neighborhood
24 Asso '; '.n invited all their members to their General Meeting on Thursday, January 30, 2020
25 . :00 PM, located at 17601 Pilkington Road (Lake Oswego Maintenance Center).
26
27 6. PUBLIC HEARING
28 6.1 Luscher Farm Concept Plan (PP 19-0012)
29 A request from the City of Lake Oswego to approve a concept plan for Luscher Farm that
30 will be submitted to Metro as part of the City's application to amend the Portland Metro
31 Urban Growth Boundary to accommodate the current and long-term needs for integrated
32 open space, and park and recreational uses, including: 1) Urban agriculture uses and
33 programs; 2) Athletic fields; and 3) Connecting trails and pathways. Staff coordinator was
34 Scot Siegel, Director of Planning and Building Services.
35
36 Chair Heape opened the hearing. Evan Boone, Deputy City Attorney, outlined the applicable
37 criteria and procedures. No financial conflicts of interest were declared, and no one
38 challenged any Commissioner's right to consider the application.
39
40
City of Lake Oswego Planning Commission
Minutes of January 27, 2020 Exhibit C-1/Page 1 of 5
APPROVED: 02/24/2020
1 Staff Report
2 Mr. Siegel noted that three exhibits had been submitted, G-1, G-2, and G-3.
3
4 Mr. Siegel and Ivan Anderholm, Director of Parks and Recreation, presented the staff
5 report; outlining the requirements, process, history, current and planned uses, and
6 planning.
7
8 Commissioner Beckett asked about the athletic fields extending into the property. Mr.
9 Anderholm responded that Hazelia Field was currently in the City limits and that,
10 conceptually, additional athletic fields would be added to the east of Hazelia Field on the
11 Luscher Farm property. Commissioner Beckett then inquired if the existing trail would
12 become part of City property. Mr. Anderholm stated that the trail was currently part of City
13 property to the east end and then it became property of Clackamas County and West Linn.
14 Commissioner Beckett voiced his support for the clematis garden remaining. Mr.
15 Anderholm affirmed it would.
16
17 Chair Heape inquired about the carved-out portion of the "H" section on the "uses" map.
18 Mr. Siegel replied that it was private property and the City had no control over it. Chair
19 Heape questioned the provision of fire hydrants. Mr. Anderholm replied that it was not
20 currently required; and he affirmed that water-tenders would be used to respond to a fire.
21
22 Commissioner Fischer asked why Clackamas County code compliance was a problem.
23 Mr. Anderholm responded that under "EFU" (Exclusive Farm Use) there were a couple of
24 different processes and the City had attempted to have park uses allowed, and Luscher
25 Farm would have to become part of Clackamas County's overall Comprehensive Park
26 Master Plan, as a County park, owned and managed by the City of Lake Oswego (with the
27 issue being over governance and timing). Mr. Boone added that the "EFU" zone would be
28 primarily for agricultural use, with a maximum capacity of 100 people at one time, and the
29 City would like to see larger footprint uses at times. Commissioner Fischer then asked if
30 Clackamas County would oppose this. Mr. Siegel indicated that Clackamas County had
31 submitted a letter in support of the City's proposal to add Luscher Farm to the Urban
32 Growth Boundary.
33
34 Mr. Siegel recommended that the Planning Commission recommend approval of the plan
35 to the City Council, noting that the criteria outline was on page 30 of the staff report.
36
37 Commissioner Beckett inquired about the budget for the recommended improvements and
38 whether it would be shared with Tualatin and West Linn. Mr. Siegel responded that the
39 farm would remain the City's responsibility and they would be able to use System-
40 Development charge funds for improvements once the property was annexed to the City.
41
42 Testimony
43 Jeff Ahrend, 17596 Oak Meadow Lane, Lake Oswego, 97034, stated that his home was
44 next to the Luscher Farm property and he was concerned about the discussion over a
45 proposed bike-skills park or bike trails. He asked whether this was still on the table as a
46 proposed use. Mr. Anderholm responded that there was a proposed concept about bike-
47 specific trails, but the public response was not to build that on this property; however,
48 there would be multi-use trails passing through. Mr. Ahrend then stated he would approve
49 of the Master Plan, but would request that the remainder of the invasive species be
50 removed and that new vegetation be planted in the area next to his property.
City of Lake Oswego Planning Commission
Minutes of January 27, 2020 Exhibit C-1/Page 2 of 5
APPROVED: 02/24/2020
1
2 Richard Herman, 2201 Crest Drive, Lake Oswego, 97034, stated that he was President of
3 "The Friends of Luscher Farm." He noted that his group previously submitted letters in
4 support for this proposal. He stated that he found the "School to Farm" program
5 interesting and that expanding the Urban Growth Boundary would allow for that and other
6 programs; he shared that he had also asked Mr. Duden to speak to the Commission on
7 this topic. Mr. Herman read a portion of Nancy Gronowski's letter into the record.
8
9 Chair Heape inquired if"The Friends" discussed any safety concerns, especially regarding
10 utilities and lack of fire hydrants. Mr. Herman replied that their concern was over the
11 entryway and parking, as the access road off of Rosemont was not very safe.
12
13 Glen Miller, 141 Del Prado, Lake Oswego, 97035, informed members that he had been a
14 gardener at Luscher Farm's community garden for the last 15 years, and that Mr. Luscher
15 intended the gardens to remain organic; he opined that the intended use for this property
16 was not to allow for athletic fields or trails. He stated that he believed that traffic and
17 parking would become an issue, and that a different area should be looked at.
18
19 Commissioner Fischer asked staff if the Commission had a right to look at the plan from
20 Mr. Miller's viewpoint or just adopt the proposed plan or not. Mr. Siegel noted that
21 Commission would be looking at the plan through the lens of the community, and that the
22 Master Plan adopted seven years ago had guided development, but the City could not add
23 athletic fields before the property came into the Urban Growth Boundary. Mr. Siegel
24 pointed to active or passive open lands being required under the Comprehensive Plan,
25 and to the alternative processes of Conditional Use Permits or Master Plan additions.
26
27 Chair Heape asked Mr. Miller if people were now parking in the middle of the property.
28 Mr. Miller noted that parking was minimal and the lot next to the shed occasionally filled up
29 and it could be a hike from the parking lot to some of the garden plots and a paved parking
30 lot would not be in keeping with the farm's characteristics. Mr. Miller added that he could
31 see things changing and eroding and would not want to see the barn torn down. He
32 stated that he was not opposed to the idea; rather, to the location, so he would
33 recommend members not approve the proposal.
34
35 Andrew Duden, 1666 SE Linn Street, Portland, 97202, a teacher at Lake Oswego High
36 School, stated that the "School to Farm" internship program, between Luscher Farm and
37 the Lake Oswego School District, began in 2016; he shared that students had grown over
38 1,000 pounds of food in their small area last year. He outlined some of the expansion
39 ideas they had for the program. He stated that he was in favor of the proposal.
40
41 Mr. Siegel informed members and the public that pages 26 and 27 of the "Concept Plan"
42 contained information regarding the access road and parking; noting that it would remain
43 gravel-topped, in order to maintain the character of the farm. Mr. Anderholm added that
44 the farmhouse area was currently designated as a Historic Landmark, and they would look
45 at a similar designation through the City.
46
47 Ellen Pearson, 1520 Ash Street, Lake Oswego, 97034, asked if staff could point out the
48 parking area on the map. Mr. Siegel complied with that request.
49
50
City of Lake Oswego Planning Commission
Minutes of January 27, 2020 Exhibit C-1/Page 3 of 5
APPROVED: 02/24/2020
1 Gwenn Anderson, 1601 Country Club Road, Lake Oswego, 97034, pointed to the top of
2 page 27 and "multi-use" trails; being concerned that people from the Metro area were
3 pushing for BMX biking. She noted that people were no longer parking in areas other than
4 around the barn. Ms. Anderson opined that she would hate to see there be less farm area
5 if the City took it over, so was opposed to approval of the plan.
6
7 Chair Heape asked Mr. Anderholm to comment again about bike trails. Mr. Anderholm
8 stated that there would be some trails for walkers, runners, bicyclists, but it would not be
9 an intensive area, especially in the north. He added that there was an agreement to
10 restore oak tree habitat in that area. Chair Heape then asked Mr. Siegel to explain again
11 the alternative process. Mr. Siegel stated if any ramps or a bike park were put in, it would
12 need to go through a permitting process.
13
14 Kerri Cox, 5003 Foothills Road, Lake Oswego, 97034, stated that she was a field-trip
15 guide for kindergarten and elementary school children. She pointed out that because it
16 was not part of the City, they had to use port-a-potties for the children and they had to
17 cross a road during part of the tour, but if it was part of the City, it could be made safer for
18 the children.
19
20 Andrew Harris, 693 G Avenue, Lake Oswego, 97034, stated that he was the owner of the
21 property referred to as the "excluded property on Rosemont," and he pointed to an
22 inaccuracy on the map, as it showed his property becoming an "island" surrounded by
23 Luscher Farm.
24
25 Mr. Siegel noted that the boundaries for right-of-way would be discussed further with
26 Metro, as the intent was not to create an island, and the City would welcome any
27 recommendations from the Commission.
28
29 Mr. Harris stated that he would welcome any discussion with the City regarding possibly
30 including his property as part of the Concept Plan.
31
32 Chair Heape closed the public testimony portion of the hearing.
33
34 Commissioner Beckett asked staff what would be involved in accommodating Mr. Harris'
35 property and should they move forward to do this. Mr. Siegel replied that the City would
36 support that if the property were part of an open space plan, but that was not currently the
37 situation they had there. Commissioner Beckett then inquired whether the Planning
38 Commission would be the appropriate vehicle to move that the City Council explore acquiring
39 that property to include it. Mr. Siegel responded that that was a good question, but would not
40 be within the scope of the Commission's "land use" advisory role to the Council, as real estate
41 transactions were not "land use" decisions.
42
43 Deliberations
44 Commissioner Fischer moved to recommend the City Council approve the proposed Luscher
45 Farm Concept Plan (PP 19-0012), as prepared. Commissioner Beckett seconded the motion.
46
47 Commissioner Fischer commented that the Plan was originally constructed in 1999 and the
48 valid objections heard tonight should have been raised when the meetings were held. He
49 supported this because it was the sense of the community.
50
City of Lake Oswego Planning Commission
Minutes of January 27, 2020 Exhibit C-1/Page 4 of 5
APPROVED: 02/24/2020
1 Commissioner Beckett stated that Luscher Farm was a real gem for the City to bring within the
2 Urban Growth Boundary adding that he was a frequent visitor to the farm; he didn't see the
3 recreational bike course going anywhere as most people would like to see Luscher Farm
4 remain as it currently existed with proposed improvements. He stated that he was in favor of
5 going ahead with this.
6
7 Commissioner Whitman spoke to the spirit of the farm remaining, as was pointed out by one
8 member of the public; adding that he was in favor of this.
9
10 Commissioner Semler stated that he understood the concerns raised by the public. He opined
11 that more people should visit Luscher Farm, but he had never had an issue with the parking
12 while there. He stated that he felt the plan was a sketch, not fully fleshed out, and more
13 concerns would be addressed then.
14
15 Chair Heape asked that the "Meets Criteria" slide be shown again. He opined that most of the
16 criterion had been met, and the overall plan was consistent in keeping with the agricultural
17 nature of the use. The concerns over the athletic use would be dealt with on a case-by-case
18 basis, through a Conditional Use process (this area seemed to be segregated from the
19 agricultural area). Chair Heape pointed to the safety and traffic concerns over the Rosemont
20 access road; adding that he hoped this could be improved. He stated that he was very much
21 in favor of approving the plan, but was a little disappointed over the lack of fire hydrants in the
22 area (he would appreciate having the Fire Marshal address this in the future), and the
23 prioritization of utilities.
24
25 Commissioner Beckett stated that in the coming months, they would begin to look at HB-2001
26 and HB-2003 (measures that would force more density into their urban area). He opined that
27 having Luscher Farm in the City would make it more of a jewel that people would want to
28 come to visit.
29
30 The motion passed 5:0. Mr. Boone directed staff to return with Findings, Conclusion, and
31 Order on February 10, 2020.
32
33 Chair Heape thanked the public for coming out and giving very good testimony.
34
35 Chair Heape ordered a break at 8:21 PM and called the meeting back to order at 8:26 PM.
36
37 7. OTHER BUSINESS
38 7.1 Updates on Project Scoping Only
39 • Seasonal Outdoor Dining Enclosures (PP 20-0001)
40 Mr. Siegel presented an update to the Commissioners noting there ere two restaurant
41 owners who approached the City regarding temporary enclo : seating areas. They were
42 informed it would need to go through the Developmen '-view process, including an
43 application and possible public hearing, or it wou • equire a code change. Staff suggested
44 that more information was needed regardin• e needs' of the business owners, with Evan
45 Fransted reaching out to additional b ess owners and to neighborhood associations. Mr.
46 Siegel noted that they expect to - rn to the Commission with more information on April 13,
47 2020.
48
49 Chair Heape as. -• if any temporary structures had been approved using the current code and
50 process. o iegel replied there were none beyond what the current code allowed, which
51 woul. •e 14 days maximum, with different variations in the Downtown Redevelopment Design
52 e'strict, the Lake Grove Village Center, and the Southwest Employment Area for the farmer's
City of Lake Oswego Planning Commission
Minutes of January 27, 2020 Exhibit C-1/Page 5 of 5
STAFF REPORT
CITY OF LAKE OSWEGO
PLANNING AND BUILDING SERVICES DEPARTMENT
APPLICANT FILE NO.
City of Lake Oswego PP 19-0012
LOCATION STAFF
Luscher Farm Scot Siegel, Planning and Building Services Director
Ivan Anderholm, Parks and Recreation Director
DATE OF REPORT PLANNING COMMISSION HEARING DATE
January 15, 2020 January 27, 2020
I. APPLICANT'S REQUEST
The City of Lake Oswego intends to apply to Metro for a major amendment to the Portland Metro
Urban Growth Boundary(UGB)to add approximately 83.3 acres of City-owned parks and open
spaces ("Luscher Farm")to the UGB.The area consists of six properties bounded by Stafford
Road and Hazelia Field (city park) to the west, Bergis Road and the City of Lake Oswego city
limits to the north, Rosemont Road to the south, and properties zoned Exclusive Farm Use to
the east. See Exhibit A-1, Attachment 1: Luscher Farm Concept Plan.
Metro code requires a concept plan be submitted with applications for major amendments to
the UGB. Therefore, the City is proposing a concept plan for Luscher Farm that will
accommodate the current and long-term needs for integrated open space, park and
recreational uses, including: 1) Urban agriculture uses and programs; 2) Athletic fields; and 3)
Connecting trails and pathways.
The timing of this request is intended to meet Metro's March 15, 2020 deadline for the City to
apply for the UGB amendment. Following Metro approval of the UGB amendment, the City of
Lake Oswego will amend its Comprehensive Plan and Urban Services Boundary so that the
Luscher Farm properties can be annexed to the city (subject to voter approval) and zoned Park
and Natural Area (PNA).
Planning Commission Public Hearing Exhibit D-1 Page 1 of 9 PP 19-0012
01/15/2020
II. APPLICABLE POLICIES AND REGULATIONS
A. City of Lake Oswego Comprehensive Plan
Land Use Planning
Policies D-1
Community Culture
Civic Engagement Policies 1-5, 8-9
Historic Preservation Policy 1
Recreation Policies 1, 4-6
Inspiring Spaces and Places
Goal 1, Policies 6 and 9
Community Health and Public Safety
Access to Local Food, Policy 2
Urbanization
A. Urban Service Boundary and UGB Policies A-1 through A-6
B. Stafford Basin Policies B-1 through B-3
Healthy Ecosystems
Goal 5 Resources, Policies 2, 6, and 11
B. City of Lake Oswego Community Development Code
LOC 50.07.003.16.a Legislative Decisions Defined
LOC 50.07.003.16.c Required Notice to DLCD
LOC 50.07.003.16.d Planning Commission Recommendation Required
LOC 50.07.003.16.e City Council Review and Decision
C. Metro Functional Plan
MC 3.07.1110 Planning for Areas Designated Urban Reserve
III. INTRODUCTION / BACKGROUND INFORMATION
The City is proposing a concept plan and UGB amendment for the Luscher Farm properties at
this time because:
• Luscher Farm provides open space, urban agriculture and recreational opportunities
that cannot be achieved on land inside the existing UGB.
• Allows the City to maintain and expand a unique combination of uses such as urban
agriculture, community gardens, cultural/historic education, interconnected trails, and
appropriate development of passive and active recreational facilities.
• The land is currently zoned Exclusive Farm Use (EFU), which is intended to protect
"commercial agricultural" uses and it does not provide flexibility to accommodate
Planning Commission Public Hearing Exhibit D-1 Page 2 of 9 PP 19-0012
01/15/2020
"urban agriculture", trails and educational uses and programming envisioned at Luscher
Farm.
• Urban facilities and services (sewer and water) cannot be extended to serve land
outside of the UGB. Additionally, System Development Charges (SDC's) cannot be spent
on infrastructure improvements outside of the UGB (such as pathways).
• The City will have more certainty regarding allowable land uses on the properties and
will be able to fully implement the City's overall vision and the Luscher Area Master
Plan.
• The City will be able to incorporate elements of the Luscher Area Master Plan into the
City's Comprehensive Plan and long-range public facility plans such as the
Transportation System Plan, Wastewater System Plan and Water System Plan.
IV. NOTICE OF APPLICATION
A. Newspaper Notice
On January 16, 2020, public notice of the proposed Concept Plan and Planning
Commission public hearing was published in the Lake Oswego Review.
B. DLCD and Metro Notices
Although not specifically required by ORS 197.610 and LOC 50.003.07.16.c, staff has
provided notice of the proposed Concept Plan and hearing to the Oregon
Department of Land Conservation and Development (DLCD). Staff notified Metro as
required by Metro Code.
C. Other Public Notice
Although not required by City Code or Metro Code, thirty-five days prior to the
January 27, 2020 public hearing, the City provided notice of the proposed Concept
Plan and hearing to property owners located within 500 feet of Luscher Farm,
affected neighborhood associations, County citizen participation organizations,
including the Stafford Hamlet, and other public interest organizations on the City's
legislative mailing list. The City also provided information about the proposal on the
City's website.
Planning Commission Public Hearing Exhibit D-1 Page 3 of 9 PP 19-0012
01/15/2020
V. COMPLIANCE WITH APPROVAL CRITERIA
A. City of Lake Oswego Comprehensive Plan
Land Use Planning, Policy D-1
D-1. Coordinate the development and amendment of City plans and actions related
to land use with other affected agencies, including county, state, Metro,federal
agencies and special districts.
Response: The proposed Concept Plan is required by Metro as part of the City's
application for a major amendment of the Portland Metro UGB. The
Concept Plan has been coordinated with the affected agencies,
including Clackamas County, the State of Oregon, Metro, and the
special districts within the Upper Stafford Basin, consistent with Policy
D-1. See also, the documentation of Agency Support in Exhibit A-1,
Attachment 1: Luscher Farm Concept Plan, Appendix A.
Community Culture
Civic Engagement Policies 1-5, 8-9
1. Provide citizen involvement opportunities appropriate to the scale of a given
planning effort, and ensure those affected by a Plan have opportunities to
participate in the planning process.
2. Ensure that information related to land use planning and decision-making is
readily accessible to the public and easy to understand.
3. Utilize City boards and commissions, neighborhood associations, and other
community groups to ensure a diverse and geographically broad range of citizen
input in land use issues.
4. Provide opportunities for citizens to engage in land use planning and decision
making, including opportunities for individual citizens who may not otherwise
participate.
5. Ensure direct and ongoing two-way communications between the City and Lake
Oswego citizens regarding land use issues.
//
8. Define how the public will be engaged in each phase of the land use planning
process at the beginning of the process.
9. Utilize broadly representative, special citizen advisory bodies to provide input on
implementation of the Comprehensive Plan and other related land use planning
matters.
Planning Commission Public Hearing Exhibit D-1 Page 4 of 9 PP 19-0012
01/15/2020
Response: Consistent with the Civic Engagement policies, the Luscher Farm
Concept Plan is based on the Luscher Area Master Plan (LAMP), which
was developed with broad citizen involvement, including oversight by
the Parks and Recreation Advisory Board and Historic Resources
Advisory Board, and input from adjacent property owners and the
general public. See pages 13-14 of the Luscher Farm Concept Plan.
Historic Preservation Policy 1
1. Preserve, enhance, and protect Lake Oswego's historic resources through
procedures and standards designed to identify, restore and protect structures,
sites, objects and districts of historic and cultural value within the city.
Response: The Luscher Farm Concept Plan incorporates the LAMP's
recommendations for historic preservation.
Recreation Policies 1 and 4-6
1. Provide park and recreation opportunities, balancing the provision of children's
play areas, natural areas, and exercise/sports facilities, within one half-mile of as
many residents as possible, as land and resources allow.
//
4. Involve neighborhoods and adjacent property owners in the planning and design
of park and recreation facilities to address compatibility issues and to mitigate
impacts of intensive uses, such as traffic, parking, bright lights and noise, on
residential neighborhoods.
5. Preserve and enhance significant natural resources and historic sites that are
located on parklands.
6. Address the land use, public facility and transportation impacts of park and open
space land acquisition and development through coordination with affected
neighborhoods, state,federal and regional agencies, and other jurisdictions.
Response: The Luscher Farm Concept Plan balances active and passive open space
and recreational uses to meet the needs of area residents and the broader
Lake Oswego community, consistent with Policy 1. The plan preserves
significant natural resources and historic sites and mitigates the impacts of
more intensive uses on these areas, consistent with Policy 4. Proposed
athletic fields and parking are buffered from adjacent residences and
agricultural lands, for example, and the City will be required to mitigate
any impacts of future development through the development review
approval process, per Policies 5 and 6.
Planning Commission Public Hearing Exhibit D-1 Page S of 9 PP 19-0012
01/15/2020
Inspiring Spaces and Places: Goal 1, Policies 6 and 9
6. Improve connections to parks, greenspaces, rivers, water bodies, and other natural
features, where appropriate, by adopting plans, guidelines and other
implementation measures for park*and open space*connectivity.
//
9. Preserve the visual attractiveness of the community by limiting adverse visual
impacts to the City's public spaces and streetscape.
Response: Consistent with Policies 6 and 9, the Luscher Farm Concept Plan
provides for improved connections between parks and natural areas
and preservation of the visual attractiveness of the community.
Community Health and Public Safety: Access to Local Food, Policy 2
2. Preserve agricultural land as designated in the Luscher Farm Master Plan.
Response: Consistent with Policy 2, the Luscher Farm Concept Plan preserves
agricultural land as designated in the Luscher Area Master Plan.
Healthy Ecosystems: Goal 5 Resources, Policies 2, 6, and 11
2. Maintain Resource Protection (RP) district regulations for the protection of
significant streams and wetlands, and their adjacent vegetated corridors, consistent
with Goal 5, Metro Title 3, and Clean Water Act requirements.
6. Maintain Resource Conservation (RC) district regulations that protect wildlife
habitat on public and private open spaces, consistent with Goal 5 and Metro Title 13
requirements;such areas shall receive the highest level of regulatory protection.
11. Ensure natural resources are protected in park and open space master plans.
Response: Consistent with Policies 2 and 6, the Luscher Farm Concept Plan identifies
natural resources that are to be designated as Goal 5 resources when the
City amends its Comprehensive Plan (after Metro amends the UGB) to
include Luscher Farm. These areas would then be protected with Resource
Protection (RP) and Resource Conservation (RC) regulations, respectively,
where the site contains water resource areas and upland wildlife habitat
subject to Metro Titles 3 and 13. The Concept Plan is therefore also
consistent with Policy 11, which requires the City to "Ensure natural
resources are protected in park and open space master plans."
Planning Commission Public Hearing Exhibit D-1 Page 6 of 9 PP 19-0012
01/15/2020
Urbanization
A. Urban Service Boundary and UGB Policies A-1 and A-6
A-1. The City will not expand the existing Urban Service Boundary* (USB) and will
resist efforts to require expansion, except in those areas designated Tier 1 Urban
Reserves as of February 1998, or where properties are needed for the development
of public parks and recreation facilities.
//
A-6. When expanding the USB, inventory historic resources and provide incentives
to designate and preserve the resources as historic landmarks.
Response: Although approval of the Luscher Farm Concept Plan does not change
the City's Urban Service Boundary (USB), the Plan's purpose is to
support a request to Metro to amend the UGB so that the City may
amend the USB and (with voter approval) annex Luscher Farm. The
proposal is consistent with Policy A-1, which supports expansion of the
City's Urban Services Boundary where properties are needed for the
development of public parks and recreation facilities. The proposal is
also consistent with Policy A-6 because the Concept Plan includes an
inventory of historic resources for future landmark designation
consideration.
B. Stafford Basin Policies B-1 through B-3
B-1. Maintain the rural character of the Upper Stafford Basin to support land uses
such as sustainable agriculture and parks in close proximity to the City center,
consistent with the provisions of the Inspiring Spaces & Places chapter.
B-2. In the Upper Stafford Basin, support a rural buffer between any urbanized
areas and the existing communities of Lake Oswego, Tualatin and West Linn to
maintain the individual character of each community.
B-3. If concept planning occurs in the Stafford Basin Urban Reserve;*
a. Participate in a primary decision-making role for Urban Reserves 4A, 4B and
4C.
b. Advocate for the following plan features to be included:
i. A design and development pattern that results in strong transportation
and transit connections to the east and west along 1-205.
ii. Concurrent provision for accommodating increased demand for travel
along 1-205, including transit.
Planning Commission Public Hearing Exhibit D-1 Page 7 of 9 PP 19-0012
01/15/2020
iii. In the Upper Stafford Basin, retention of the rural character and related
land uses (Policy 8-1) and a rural buffer between existing communities
and future urbanized areas (Policy 8-2).
c. Support the area's inclusion in the Urban Growth Boundary only if i-iii, above,
are part of the final plan.
Response: The Luscher Farm Concept Plan is consistent with Policies B-1, B-2, and
B-3, because it maintains the rural character of the Upper Stafford
Basin with parks and agricultural uses and a rural buffer between Lake
Oswego and Tualatin and West Linn. It is also consistent with Policy B-3
as the City of Lake Oswego has taken the lead in developing the
Concept Plan, which complies with the existing intergovernmental
agreements between Lake Oswego, Tualatin, West Linn, Clackamas
County, and Metro regarding the Stafford Urban Reserves and Concept
Planning. See also, the documentation of Agency Support in Exhibit A-1,
Attachment 1: Luscher Farm Concept Plan, Appendix A. (Concurrent
provision of improvements to 1-205 is not a requirement under these
agreements for implementing the City's plans for parks and natural
areas at Luscher Farm.)
B. City of Lake Oswego Community Development Code
LOC 50.07.003.16.a Legislative Decisions Defined
LOC 50.07.003.16.c Required Notice to DLCD
LOC 50.07.003.16.d Planning Commission Recommendation Required
LOC 50.07.003.16.e City Council Review and Decision
Response: Although the Luscher Farm Concept Plan is not a Comprehensive Plan
amendment, zone change, or code amendment, the City has followed the
same noticing and hearing procedures for this proposal that it follows for
legislative land use decisions.
C. Metro Functional Plan
MC 3.07.1110 Planning for Areas Designated Urban Reserve
Response: The Luscher Farm Concept Plan complies with the Metro Functional Plan
requirements for Planning for Areas Designated Urban Reserve. Detailed
findings responding to MC 3.07.1110 are contained in Exhibit A-1,
Attachment 1: Luscher Farm Concept Plan, on pages 30-36.
Planning Commission Public Hearing Exhibit D-1 Page 8 of 9 PP 19-0012
01/15/2020
VI. RECOMMENDATION
Based on the foregoing analysis and findings, staff recommends approval of the Luscher Farm
Concept Plan to support the City's application to Metro for an Urban Growth Boundary
amendment.
EXHIBITS
A. Luscher Farm Concept Plan
A-1 City Council Resolution [Reserved]
Attachment 1: Luscher Farm Concept Plan, Draft 12/23/2019
B. Findings, Conclusions and Order [No current exhibits; reserved for hearing use]
C. Minutes [No current exhibits; reserved for hearing use]
D. Staff Reports [No current exhibits; reserved for hearing use]
E. Graphics/Plans [No current exhibits; reserved for hearing use]
F. Written Materials [No current exhibits; reserved for hearing use]
G. Letters [No current exhibits; reserved for hearing use]
Staff reports and public meeting materials that were prepared for these code amendments can be
found by visiting the project web page for PP 19-0012. Use the link below to visit the City's
"Project" page.
https://www.ci.oswego.orus/all-proiects
(Under "Search" enter PP 19-0012, then press "Enter")
Planning Commission Public Hearing Exhibit D-1 Page 9 of 9 PP 19-0012
01/15/2020
MEMORANDUM
Cf
°REGp,/
TO: Planning Commission
FROM: Scot Siegel, Planning and Building Services Director
SUBJECT: Supplemental Staff Report for Planning Commission Public Hearing
Luscher Farm Concept Plan (PP 19-0012)
DATE: January 23, 2020 MEETING DATE: January 27, 2020
SUPPLEMENTAL STAFF FINDINGS
The January 15, 2020 staff report omits two Comprehensive Plan policies that are relevant to
the Planning Commission's review of the proposed Luscher Farm Concept Plan. These policies,
and staff's analysis/findings, follow:
Inspiring Spaces and Places Policies 1 and 2:
1. Work with Metro to maintain the Metropolitan Area Urban Growth Boundary as a
means to:
a. Reduce urban sprawl and ensure the development of an efficient and compact urban
growth form;
b. Provide a clear distinction between urban and rural lands;
c. Ensure the opportunity for appropriate urban infill and redevelopment;
d. Control costs and public subsidization of development associated with the unnecessary
extension and provision of public facilities and services; and
e. Ensure the maximum efficiency of lands within the Urban Growth Boundary existing
at the time of this policy's adoption.
Response: The Luscher Farm Concept Plan has been coordinated with Metro and is consistent
with Metro's and the City of Lake Oswego's growth management objectives for reducing
sprawl and providing efficient and compact urban form.The intended uses for the subject site
are primarily to serve existing and future residents within Lake Oswego's Urban Services
Boundary. The active and passive recreation, open space, trails, and urban agriculture and
Exhibit D-2/Page 1 of 2
503.635.0215 380 A Avenue PO BOX 369 Lake Oswego, OR 97034 www.ci.oswego.or.us
Page 2
community gardens that exist and are planned for Luscher Farm are unique community assets
and amenities that support regional infill and redevelopment objectives, including cost control
on extension of urban infrastructure, while providing clear separation between urban and
rural lands. The more active uses are concentrated in the western half of the site, along
Stafford Road and closer to the primary site access from Overlook Drive and nearby residential
subdivisions, church, high school and golf course uses. Clustering park and recreational uses
with the other institutional uses provides convenient access and efficiency for neighboring
residents and other users. Intended uses on the subject site will complement existing uses and
expand the availability of community amenities, consistent with the policy of reducing sprawl.
The urban agriculture, garden, and open space and trail uses on the Luscher Farm site will
generally be located closer to the existing farm uses to the south and east, serving as a buffer
and providing a transition between more intense active and passive recreational uses. The
existing farm uses adjacent to the site are generally small in size (most parcels are less than
20 acres) and are not involved in large-scale commercial operations that involve spraying,
movement of large agricultural equipment on local roads, or other intensive agricultural
activities. The community agricultural uses on the subject site, while oriented to residents of
Lake Oswego, will still reflect the rural nature of the area and will provide a softer transition
between urban and rural development instead of a hard "edge" that is visible in many parts
of the region.
2. In the Upper Stafford Basin support a rural buffer between any urbanized areas and the
existing communities of Lake Oswego, Tualatin and West Linn to maintain the individual character
of each community.
Response: The Luscher Farm Concept Plan is consistent with the policy that a buffer be
provided between urbanized areas that maintains individual character of each community. (The
principal of community separation is also contained in the 3-City Agreement for Concept
Planning in the Stafford Basin.)
Council Exhibit D-2/Page 2 of 2
503.635-0290 380 A Avenue PO Box 369 Lake Oswego, OR 97034 www.ci.oswego.or.us
rigi- 4)1411,
1FRIENDS OF LUSCHER FARM
L0.gE DSWEGD..DDEGON • J
FOSTERING&CREATING COMMUNITY CONNECTIONS TO THE HISTORIC LUSCHER FARM IN LAKE OSWEGO
www.luscherfriends.org I P.O. Box 123, Lake Oswego,OR 97034
January 21, 2020
Iris McCaleb,Administrative Assistant
Lake Oswego City Hall
Planning and Building Services
380 A Avenue, Third Floor
PO Box 369
Lake Oswego, Oregon 97034
Dear Planning Commissioners,
The Friends of Luscher Farm is in support of the City of Lake Oswego's plan to
apply to Metro for a major amendment to the Portland Metro Urban Growth
Boundary.
The Luscher Farm Concept Plan dated December 23, 2019 and the staff report
dated January 15,2020 clearly and effectively define the benefits of taking this
next important step to allow for the eventual annexation of Luscher Farm into the
City of Lake Oswego.
Supporters and users of Community Supported Agriculture (CSA), Community
Gardens, Rogerson Clematis Garden, Athletic Fields, trails, students in
education programs, and students of the Luscher School to Farm Internship
program will all benefit when the City of Lake Oswego is able to annex the
property and fully implement the goals and plans of the Luscher Area Master Plan
adopted July 25, 2013.
The level of community participation in developing Master Plans and supporting
Recreation Bonds indicates the high degree of community wide support.
Thank you,
Richard A. Herman
Board President
PP 19-0012 EXHIBIT G-1/PAGE 1 OF 1
Luscher Farm into the UGB.
Dear Planning Commissioners,
I have tried hard to keep this to just a few facts and concerns. Appreciate the chance to
comment.
• Implement Master Plan without impacting our "Legacy" property.
• Be sure traffic issues are in place before development occurs-
Just like the city's IGA agreement of 1205 must be fixed before Concept Planning can be
presented for Stafford Area.
• No further impacts on neighboring properties by implementing Luscher Farm Master Plan.
Our Concerns.
With future implementation of the Master Plan, we cannot afford to lose any more of our
property. Lost a quarter of an acre for the Stafford Rosemont roundabout, lost over 200 vines
in the last "take" of property.
We gave up the most property for the roundabout and impact the area the least amount
compared to Atherton Hts., Luscher Farm programs, and all the city developments that have
occurred over the years. i.e. Terra Bella homes, The Stafford, Church, Dog Park, Hazelia Field,
Lakeridge, Golf course.
(SW corner of the roundabout.)
We have worked well with the city, (not only allowing for County Code violations for programs
currently being run at the farm) but have worked hand in hand with our vison that led to the
creation and development of the Hazelia Agri-Cultural Heritage Trail, with two panels on the
north side of our property.
Cook Family Farm Property- 18451 SW Stafford Rd
• Century Farm 1900- • National Register of Historical Places—
• State of Oregon and Clackamas County Heritage Tree Grove.
(Plaque posted in Stevens Meadow)
We appreciate the fact that the City of Lake Oswego has taken the lead in the Rural/Urban
Interface and encouraging active agricultural in the area, and support of the 3 part IGA.
Traffic is and will be an on-going issue. i.e. $12 million for improvements at Childs and Stafford
roads. That is without the impacts of further development of Luscher farm. If you build it they
will come!
Enough said, I'm sure you get it.
• Implement Master Plan without impacting our "Legacy" property.
• Be sure traffic issues are in place before development occurs-
Just like the city's IGA agreement of 1205 must be fixed before Concept Planning can be
presented for Stafford Area.
PP 19-0012 EXHIBIT G-2/PAGE 1 of 2
You also will want to address the 2010 IGA between Metro and Clackamas County- Planning for
area 4D.
Will need to included Area 4D in the Planning Document-
Urbanization
B. Stafford Basin Policies B-1 through B-3 -
3. If concept planning occurs in the Stafford Basin Urban Reserve;*
Participate in a primary decision-making role for Urban Reserves 4A, 4B and 4C.
Intergovernmental Agreement - Adopted 2010
Metro and Clackamas County
EXHIBIT B
PRINCIPLES FOR CONCEPT PLANNING OF URBAN RESERVES
1. Except for Areas 4A,4C,and 4D concept planning for specific,enumerated Urban Reserves
on the Urban and Rural Reserves map may occur separately and at different times. Concept
planning for Areas 4A,4C,and 4D must be coordinated so that Area 4C(Borland Road)is
planned and developed as the town center serving the vast majority of Area 4A (North
Stafford)and Area 4D(South Stafford).
Appreciate your service on the committee, thank you for taking our concerns into
consideration.
RJ Cook
for entire JP and Susie Cook Family
PP 19-0012 EXHIBIT G-2/PAGE 2 of 2
To: Lake Oswego Planning Commission
From: Nancy Gronowski
Date: January 27, 2020
Subject: Amendment to Portland Metro Urban Growth Boundary
Planning Commission Members:
I am writing in support of the City of Lake Oswego's application to Metro for a major
amendment to the Portland Metro Urban Growth Boundary. This amendment will allow the
described 83.3 acres to be annexed into the city of Lake Oswego and zoned Park and Natural
Area. It will allow the previously approved Luscher Area Master Plan to be implemented.
Residents of Lake Oswego and users of the existing and future facilities at Luscher Farm will all
benefit when these properties are included in the UGB so that they can accommodate the city's
growing recreational and natural area needs.
Hundreds of Lake Oswegans participated in the developing the master plan for the Luscher
Farm Area and want to see it implemented. That can only happen when these properties are
brought into the Urban Growth Boundary.
Thank you.
Nancy Gronowski
Retired Landscape Architect and Former Park Planner
PP 19-0012 EXHIBIT G-3/PAGE 1 OF 1