Turner Downtown Improvement Plan - Oregon.gov

Turner Downtown Improvement Plan

June 2009

Acknowledgements

T u r n e r D o w n t o w n I m p r o v e m e n t P l a n i

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Turner Downtown Development Plan Draft Final Plan

Project Management

Naomi Zwerdling, Oregon Department of Transportation

David Sawyer, City Administrator, City of Turner

Project Area Improvement Committee

Richard Bates, Downtown Committee, LO BO, City of Turner

Michael Dennis, Downtown Committee, CC, City of Turner

Steve Litterll, Downtown Committee, PC, City of Turner

Glean Melow, Downtown Committee, BO, City of Turner

Maria Mitchell, Downtown Committee, HS, City of Turner

Wanda Wendt, Downtown Committee, Cit, City of Turner

Stephen Ko, Business Owner, Turner Market

Russ Squires, Planning Commission, BO, Penetrations Concrete

Carly Strauss, Mayor, City of Turner

Bruce Reed, Key Land Owner, TRH

Dan Peterson, School District, Cascade

Steve Vaezie, Business Owner, Turner Inn

D.J. Thommen, Business Owner, Pacific Sign

Consultant Team

David Siegel, Otak, Project Manager

Jennifer Mannhard, Otak, Planner

Jerry Offer, Otak, Planner

Warren Greaser, Otak, Geographic Information Systems, Planner

Amanda Owings, Otak, Transportation Planner

Martin Glastra von Loon, Otak

Barbara Blair, Otak, Project Assistant

Bendan Buckley, Johnson Reid, LLC, Real Estate Economist

This project is partially funded by a grant from the Transportation and Growth Management

Program (TGM), a joint program of the Oregon Department of Transportation and the

Oregon Department of Land Conservation and Development. This TGM grant is financed,

in part, by the federal Transportation Equity Act for the 21st Century (TEA-21), local

government, and the State of Oregon funds. The contents of this document do not

necessarily reflect views or policies of the State of Oregon.

Table of Contents

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Section 1—Introduction .................................................................................................................... 1

Section 2—Project Objectives Concepts ...................................................................................... 4

Section 3—Regulatory Environment Improvements .................................................................. 6

Section 4—Existing Conditions ....................................................................................................... 8

Section 5—Vision, Goals, and Policy ........................................................................................... 20

Section 6—Downtown Environment Plan Measures ............................................................... 23

Section 7—Implementation Action Plan ..................................................................................... 41

Figures

Figure 1 Turner Downtown Improvement Plan Study Area.................................................... 9

Figure 2 Existing Land Use .............................................................................................................10

Figure 3 Conceptual Sketch Plan ..................................................................................................25

Figure 4 Proposed Comprehensive Plan and Zoning Designations – Downtown ............29

Figure 5 Proposed Comprehensive Plan and Zoning Designations

3rd Street Corridor ..........................................................................................................30

Figure 6 Street Sections ..................................................................................................................32

Figure 7 Downtown Land Use Concept Plan ............................................................................37

Figure 8 Long-Term Downtown Improvement Plan ................................................................38

Appendix

Appendix A Memorandum No.1 – Existing Conditions Analysis

Appendix B Memorandum No. 2 – Redevelopment Potential

Appendix C Community Shopping Survey

Appendix D Memorandum No. 3 – Vision, Goals, and Policies

Appendix E Memorandum No. 4 – Strategies for the Project Area

Appendix F Memorandum No. 5 – Zoning Strategy

Appendix G Memorandum No. 6 – Public Event Summaries

Appendix H Memorandum No. 7 – Recommended Changes to the Regulatory

Environment

Appendix I Memorandum No. 8 – Downtown Plan Implementation Strategy

Appendix J Current City of Turner Comprehensive Plan and Land Use Districts Map

Section 1—Introduction

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The City of Turner’s Downtown Improvement Plan is comprised of two major components:

The Plan and the Technical Appendices. A description of these two components is provided

below.

The Plan – An Overview Document

The Turner Downtown Improvement Plan (TDIP) document is a summary statement of the

community’s vision, direction, and commitment to action for the future of Downtown

Turner. As such, the Plan document itself will also be presented as a summary statement.

This Plan document is focused on providing the vision, goals, and policies that comprise the

plan. The background information providing the foundation for the community’s policy

decisions is contained within a series of technical memoranda attached to this document as

appendices, and will be summarized or referred to in this overview document. The

implementation strategy for carrying out the plan is provided as a separate document, as the

plan is intended to provide direction for the long-term, while the implementation strategy is

intended to be a more dynamic document, frequently referred to and updated annually.

The Technical Appendices – The Foundation

The technical memoranda which comprise the technical foundation for the Plan have been

compiled into nine (9) appendices, as follows:

Memorandum No. 1 (Appendix A) – Existing Conditions Analysis. This memorandum

summarizes and evaluates the existing conditions of the built environment, the regulatory

environment, the transportation and infrastructure systems, and provides a discussion of key

issues and opportunities and constraints found within the project area.

Memorandum No. 2 (Appendix B) – Redevelopment Potential. Memorandum No. 2 addresses

the redevelopment potential of Downtown Turner based upon area demographic and

market conditions, and incorporates comments from the initial Project Area meeting.

Community Shopping Survey (Appendix C). This report provides the results of a community

shopping survey of Turner residents and employees, designed to gauge the interest of local

residents and employees in various small-format retail and commercial service categories in

the Downtown Turner area.

Memorandum No. 3 (Appendix D) – Vision, Goals, and Policies. Memorandum No. 3 provides

the vision, goals, and policies for the Downtown Improvement Plan. The vision statement is

a synopsis of the community’s values for long term development. The supporting goals and

policies frame how that vision can be achieved through urban design, transportation,


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redevelopment, and economic development. Taken together, these provide the guidance for

developing specific concepts and strategies for the Downtown Improvement Plan.

Memorandum No. 4 (Appendix E) – Strategies for the Project Area. This memorandum

provides the long-term improvement plan for Downtown and its recommended land uses. It

describes the strategies that can achieve the vision and goals for Downtown Turner,

informed by the previous technical studies noted above and input received from public

events. It also contains a list of capital improvement projects for carrying out the Plan and

its vision, along with order-of-magnitude, and planning-level cost estimates. This

memorandum also contains a Strategic Business Development Plan to aid in the

development of existing and new businesses Downtown.

Memorandum No. 5 (Appendix F) – Zoning Strategy. Memorandum No.5 analyzes and

provides recommendations for the General Commercial-zoned area along the 3rd Street

corridor north of downtown to ensure that future commercial uses in this area are of a type

and scale that will not compete with downtown commercial uses, and will not lead to strip

development. In addition, this memorandum provides the new zoning districts to be applied

to the Downtown project area.

In addition, the appendices contain three additional documents that support the plan and

help carry it out:

Memorandum No. 6 (Appendix G) – Public Event Summaries. Memorandum No. 6 collects the

summary notes from the public events and Project Area Improvement Committee meetings

that provided the foundation, direction (and ongoing support) for the Downtown

Improvement Plan.

Memorandum No. 7 (Appendix H) – Recommended Changes to the Regulatory Environment.

This memorandum contains the changes to four City of Turner regulatory documents

needed to carry out the Downtown Improvement Plan: 1) the Comprehensive Plan; 2) the

Land Use and Development Code; 3) the Comprehensive Plan and Zoning Districts Map;

and 4) the Transportation System Plan.

Memorandum No. 8 (Appendix I) – Implementation Strategy. Many ideas and suggestions for

improvements and actions to achieve the vision and Plan for Downtown Turner have been

generated through the planning process. This memorandum is a compendium of those

suggested capital improvement projects, organizational actions and/or administrative actions

that have ―risen to the top‖ as the most appropriate or likely to help effect change, with a

recommendation for prioritization and programming. This memorandum is intended to


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serve as a stand-alone tool that is used frequently, and updated annually as the Plan is

incrementally carried out over time.

Taken together, these appendices provide not only the foundation for the plan, but the tools

and recommendations for the community to use to inform their decisions and guide their

actions regarding carrying out the plan.

Section 2—Project Objectives


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Section 2—Project Objectives Concepts

Introduction

The City of Turner has an historic downtown with assorted older commercial buildings with

lots of character; a well-loved park; and small blocks in a grid pattern of public streets– all of

which combine to provide a good foundation upon which to build for the future. This

planning effort will help the community and the City of Turner balance anticipated future

population with land use and transportation goals in the Downtown area.

Objectives

The primary objectives of the Turner Downtown Improvement Plan (TDIP) are threefold.

First and foremost, the TDIP seeks to carry out the City Council’s goal to revitalize

Downtown Turner. Second, the TDIP is a downtown improvement plan, one that builds

upon the good ―bones‖ of the current Downtown area, and that builds upon the sound

foundation of community-based planning to serve as the master conceptual plan for the

area. Third, an overarching objective of the Plan is to ensure that Downtown Turner will

serve the community’s stated desire to be the focal point of a ―good neighbor town.‖

The TDIP aims to provide the blueprint for the evolution of Downtown Turner into a vital,

vibrant, mixed-use, and pedestrian-friendly environment over the next 20-30 years. The

TDIP summarizes the rationale for the conceptual design plan. It identifies development

types and projects that are needed to jumpstart other development in the area and create a

climate for investment. It promotes a multi-modal transportation system that is conducive to

the planned evolution of Downtown. How the neighborhood might change through

property development or redevelopment actions or as a result of transportation projects is

critical to the current and future lifestyle choices within the Downtown area.

The overall goal of the TDIP is to design a Downtown neighborhood that integrates

anticipated and desired changes into a clear and coherent strategy; preserves what is

desirable in the area, and promotes useful and attractive public open spaces having a

character which is consistent with the City of Turner’s standards and its vision for the

community and its Downtown.

The TDIP is intended to prevent development from occurring in an uncoordinated manner,

having the potential to preclude the development of the higher-density, and mix of uses

necessary to ensure a healthy and vibrant Downtown neighborhood. This plan is intended to

respect the flexibility of existing residents and property owners with regard to the use of

their property, while laying the framework for urbanization that will result in a distinctive,

vibrant neighborhood. The TDIP establishes a framework to guide public and private

Section 2—Project Objectives

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investment and development in the Downtown area, resulting in a cohesive, functional, and

attractive and ―uniquely Turner‖ Downtown.

Section 3—Regulatory Environment


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Section 3—Regulatory Environment Improvements

State and Local Plans and Policies

A number of state and local policies provide the context for and/or affect the Downtown

Improvement Plan. These include:

State Policies:

Oregon’s Statewide Planning Goals

Since 1973, Oregon has maintained a strong statewide program for land use planning. The

foundation of that program is a set of 19 Statewide Planning Goals–14 of which are

applicable to Turner. The goals express the state’s policies on land use and on related topics,

such as citizen involvement, housing, and natural resources. The goals are achieved through

local comprehensive planning. State law requires each city and county to adopt a

comprehensive plan and the zoning and land-division ordinances needed to put the plan into

effect.

Oregon Transportation Planning Rule

The Department of Land Conservation and Development (DLCD) created the

Transportation Planning Rule (TRP) in 1991 to guide jurisdictions in meeting the objectives

of Statewide Planning Goal 12–Transportation. The Transportation Planning Rule requires

all Oregon jurisdictions to adopt a Transportation System Plan for coordinated land use and

transportation planning.

Oregon Transportation Plan

The Oregon Transportation Plan (OTP) is the state’s long-range multimodal transportation

plan. The OTP is the overarching policy document among a series of plans that together

form the state transportation system plan. The OTP considers all modes of Oregon’s

transportation system as a single system and addresses the future needs of Oregon’s airports,

bicycle and pedestrian facilities, highways and roadways, pipelines, ports and waterway

facilities, public transportation, and railroads through 2030.

Local Plans and Policies

Turner Comprehensive Plan (2001)

The Turner Comprehensive Plan contains background data and policies regarding the future

growth and development of the community. The Plan provides guidelines for conservation

and development of community resources in compliance with the statewide planning goals.

It is the basis for the City’s more specific regulations and ordinances, which implement the

Plan.

Section 3—Regulatory Environment

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Turner Transportation System Plan (1999)

The Turner Transportation System Plan (TSP) provides the transportation element (Goal

12) of the Turner Comprehensive Plan. It identifies planned transportation facilities and

services needed to support land uses proposed in the Comprehensive Plan in a manner

consistent with the Transportation Planning Rule and the Oregon Transportation Plan. The

TSP guides the management and development of appropriate transportation facilities in

Turner, incorporating the community’s vision, while remaining consistent with state,

regional, and local plans.

• Land Use Development Code – The City of Turner Land Use Development Code

provides the regulations that govern development in the City. As the implementation

tool for the policies contained in the Comprehensive Plan, many sections of the Code

were amended in 2002 to comply with the 2001 update to the Comprehensive Plan.

• Capital Improvement Program – The long range financial plan estimates Turner’s

expenditures for establishing, operating and maintaining public services, and for

constructing capital improvements. The City currently has no funds allocated for

downtown related projects.

City of Turner Parks Master Plan (2005)

The City of Turner Parks Master Plan addresses current and future park needs for the city

and provides a long-term strategy to meet those needs. The plan includes an inventory of

existing parks, goals for the park system, a capital improvement program, short- and long-

term acquisition strategies, and potential funding sources. The plan calls for two to four new

mini-parks of approximately 0.5–5.0 acres in size to be created in Turner in the next 20

years. The eastern portion of the current Downtown Improvement Plan study area was

identified as a potential land acquisition area for a mini-park.

Section 4—Existing Conditions


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Introduction

Downtown Turner is located within a unique setting, and possesses a transportation network

and combination of existing land uses and physical features that present both opportunities

and challenges for planning. This section provides an overview of the physical context for

the TDIP.

Project Area

Plan Area Description

Located approximately eight miles southeast of downtown Salem, Turner’s Downtown core

(―Plan Area‖) is split by 3rd Street (Turner Highway), a Marion County minor arterial road.

The Northern Pacific main west coast rail line provides the western boundary of the

Downtown area. Mill Creek forms the northern and eastern boundaries of the Downtown

area.

Figure 1 indicates the vicinity and boundaries of the TDIP study area.


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Figure No. 1 – Turner Downtown Improvement Plan Study

Area


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Existing Environment

Land Use

Downtown Turner currently has six basic land use types: residential, commercial,

institutional, park, industrial, and vacant, as shown on Figure 2. While the industrial uses are

situated along 3rd Street, the other use types are intermixed throughout the study area.

Burkland Park is the small downtown park. Institutional uses in the study area include a

church, school, government and public service offices, and a youth center.


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Residential districts surround the Downtown core to the north and east across Mill Creek,

and to the south across the old canal. Much of the residential development in the northern

and eastern areas of the Downtown are owned by Turner Retirement Homes and includes

independent living in individual homes and duplexes, and residential care in joint living

facilities. The mill property is to the west and southwest of Downtown.

Infill and Redevelopment Potential

A significant infill and redevelopment potential exists in the study area. Vacant parcels and

large lots provide opportunity to develop new structures and a number of vacant buildings

could be renovated. Overall redevelopment potential is the focus of Memorandum No. 2

(Appendix B) and is more fully described and discussed there.

Existing Plan/Zoning Designations

The City’s Comprehensive Plan land use districts include Single-

Family Residential, Multi-family Residential, General Commercial,

and General Industrial districts. The residential district regulations

call for low density development with 11,000 square foot, 7,500

square foot, and 5,000 square foot minimum lot areas for the R-1

SF, R-2 SF, and R-11 MF zoning districts respectively. The Land

Use Development Code allows a single-family dwelling unit in any

of the residential districts and restricts multi-family units to medium

density development, which is defined as 15 people per acre or less.

The General Commercial Plan designation and C-1 zoning district

allow a full range of commercial activities to serve the needs of area residents. The General

Industrial Plan designation and M-1 zoning district permits light manufacturing and

warehousing activities that have minimal impacts on adjacent non-industrial areas. Other

types of heavier industrial uses may be permitted under a conditional use approval.

Public facilities are allowed as conditional uses in all base zoning districts.

The City’s existing Comprehensive Plan and Zoning Districts Map is included in the

appendices (Appendix J) of this plan.

The Downtown study area falls within the Flood Hazard Overlay zone, which restricts

development in the floodplain. However, the study area is also within the designated

exception area of the overlay, allowing development of vacant parcels, but prohibiting

further subdivision of parcels for development.

Low density single-family

residential in downtown


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Properties with Historic Value

While there are no nationally registered historic places in

Turner, several properties have been identified in the

Historic Context Statement prepared in 1997 as having

historic significance.

Key Project Area Attractors and Community Amenities

Downtown Turner has several attractions within and

adjacent to the study area. The key destinations are parks,

community facilities, retail, employment, religious and

educational institutions, and housing. Parks and open space

are major amenities within and near the study area. Burkland

Park is located within the heart of the Downtown, while the

Turner School recreational fields, the Burkland community

pool, and the open space associated with the Aldersgate

Christian Camp and Conference Center, and Turner

Memorial Tabernacle lie just outside the study area

boundary. Scattered commercial uses in Downtown Turner

provide specialized goods and services including Best Buy

Flooring, Turner Market, Turner Inn, and the businesses in Turner Plaza. Several light

industrial businesses in the Downtown area provide employment destinations including the

Caliber Forest Products Mill and Pacific Sign and Screen Printing. The presence of Turner

Retirement Homes in Downtown Turner provides a built-in downtown area residential

population. Turner Retirement Homes provides two key destinations in Davis Hall and the

Turner Retirement Homes Activity Center. Community facilities that serve Downtown

Turner include the Turner Rural Fire Department Station, Turner Elementary School, and

the community pool.

Existing Infrastructure Conditions

The elements that comprise public infrastructure in Downtown include sanitary sewers,

public water supply lines, storm sewers, roads, street lighting, sidewalks, and bike lanes.

Critical to proper infrastructure sizing is land use zoning and population growth projections.

Except for one block of single-family zoning, the Downtown study area currently falls

within two zones: R-11–Multiple-Family Residential and C-1–Commercial. The expected

population growth over the next 20 years is 3.8 percent. Commercial and industrial uses are

expected to grow at a rate of 4.5 percent per year (Water System Master Plan Update, 2006).

Davis Hall is one of Turner’s

properties of historic significance

Burkland Park


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Sanitary Sewer

Since 2000, Turner has been fully served by sanitary sewers

draining to the City of Salem wastewater treatment plant. Several

streets contain mainline sewers, with the exception of: 1) 2nd Street

between Chicago and Denver Street; 2) 1st Street between Boise

and Chicago Street; and 3) the one block of School Street. Any

redevelopment that may occur within the study area should not

require the existing sanitary system to be upgraded. New

connections to the system and the associated system development

charges and other fees will be applicable when redevelopment or

new construction occurs. Projected growth in the study area is

small compared to the balance of the projected growth elsewhere

within Turner’s city limits. Expansion of the system is not

necessary to accommodate additional growth. Additional wastewater flows from the

underdeveloped parcels will not create a negative impact on the sewer system or

compromise Turner’s intergovernmental agency contract with the City of Salem.

Water System

Turner has received its drinking water from the City of Salem

system since 1941. The Downtown study area is fed through a

distribution system consisting of one-inch to 10-inch pipes. The

Downtown area is located in the ―Low Service Zone,‖ as defined

by elevation from existing reservoirs. Portions of the study area are

not fed by the existing water supply network: 1) 3rd Street from

Boise to Denver; 2) 2nd Street from Boise to Denver; 3) 1st Street

from Boise to Chicago Street; and 4) the whole of Chicago Street.

These streets do not have water pipes within the rights-of-way.

Service to the individual properties along these streets is made through connections to pipes

in the alleys and mains located on Boise and the eastern leg of Denver Street.

Intended capital improvements to the City’s water system are defined in the Water System

Master Plan Update, 2006. Those water system improvements that apply to the study area

are anticipated at the final phase of improvements, to be completed between 2020 and 2026.

The improvements include installation of six-inch and eight-inch diameter pipes on the

portion of streets currently lacking water infrastructure. These improvements will support

new industrial growth and will supplement and reinforce the fire flow potential in these

areas.

Sanitary sewer line at Mill Creek

Water main at Mill Creek


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Storm Sewers

The existing storm sewer system collects stormwater from

the study area and deposits the flows into Mill Creek at

three separate locations. Collected stormwater is not

treated. The collection system consists of catch basins,

manholes, and pipes. There is a catch basin on each block

face of the study area and stormwater laterals serving the

individual lots.

During flood conditions, Mill Creek frequently rises above

the levees on the southeast side of the Downtown area. It is

likely that the storm sewer outfalls are also responsible for flooding when the storm sewer

system surcharges. The groundwater table in Turner consistently rests close to the surface.

Because Turner is located on sandy and gravelly soils at the valley of two hill ranges,

considerable groundwater movement is common.

Transportation System

All of the roadways within the project study area are two lane roads. Within the study area,

the street pavement is in good condition following a repaving effort during the sanitary

sewer installation in 2000. There are few signs of base course failure or settlement. The

problem areas tend to be at the transition points between the public roadway pavement and

the off-street parking pavement. In these areas, there is evidence of cracking, stormwater

ponding, and sub-base failure. Ongoing maintenance, including sweeping, pothole repair,

and resurfacing will prolong the life of the downtown Turner streets.

The recent improvements related to motor vehicle circulation through the Turner

downtown core provided amenities for alternate transportation modes as well. The

improvements added a continuously striped bike lane through the downtown area and

expanded the network of sidewalks where right-of-way width permitted. Additionally, two

crosswalks and signage were installed to alert drivers and pedestrians and reduce conflicts.

Where the improvements ended at each side street, the new sidewalks tied into existing

walks when possible; in cases where no connecting sidewalk exists, an asphalt ramp was

constructed to provide smooth transitions for accessibility to the paved roadway. At several

reconstructed corners, new striping defines the crosswalk. Along the major streets (3rd and

Denver), a sidewalk exists on the east and north sides of the street, closest to the existing

businesses to reduce street crossing conflicts.

The existing local streets within the Turner downtown core have not seen improvements in

some time. While many streets contain sidewalks, sidewalks are intermittent and lack

Stormwater collection on

Denver Street


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Sidewalk along Chicago Street

connectivity. A considerable conflict exists on many side streets with the lack of designation

use areas among the various transportation modes. Angled and 90-degree parking adjacent

to roadways, combine with the limited sidewalks in Downtown to create potential conflict

points between pedestrians and vehicles. At street corners, waiting space for pedestrians is

undefined, reducing the awareness of drivers.

Transit service in Turner is currently provided by the Chemeketa Area Regional

Transportation System (CARTS). Three weekday round-trip options are available for

residents traveling between Salem and Gates with connections in Salem to Salem’s Cherriots

bus service, the Canby Area Transit service, and Wilsonville’s SMART buses. The only bus

stop in Turner is located at Burkland Park. CART plans to add a bus shelter at the park in

the near future. All CART transit vehicles are ADA accessible.

A major improvement for bicycle accessibility in Turner is the recently installed continuously

striped bike lane on Denver and 3rd Streets. Bike lanes do not exist on any of the other

streets within the study area. Bicycle lanes are not required on the side streets, since roadway

surfaces are generally wide enough for shared use among bicycles and vehicles. However, the

angle and 90-degree parking on local streets Downtown still create a safety issue for

bicyclists when vehicles are backing out.

On-street parking exists on all streets in the downtown

core, with the exception in the area of the curve at Denver

and 3rd Streets. With the recent improvements to these two

streets, parallel parking is available along those streets,

truncated by curb extensions. Most of the other streets in

the Downtown have parallel parking available between

building faces and the pavement edge within the 60 to 70-

foot right-of-way. Along Chicago Street, the gravel shoulder

is wide enough for drivers to take advantage of head-in

angle and 90-degree parking. Where angle or 90-degree parking occurs, this compromises

the pedestrian and bicycle routes. At the boundary of the travel lanes of each street, the

remainder of the right-of-way is unclear and becomes a shared use facility among vehicular,

pedestrian, and bicycle modes presenting potential safety issues.

An inventory of existing on- and off-street parking is provided below:

• 3rd Street – Parallel parking exists on the east side only. Adequate area is available on the

west side of the street for parking but property lines are unclear for drivers to make

parking decisions with certainty.


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• Boise Street – Wide gravel shoulders allow for parallel, angle, and 90-degree parking for

the length of Boise Street. Parking spaces are not marked; however, the parking volume

is low, so efficiency is not a necessary priority. Paved spaces are marked for 90-degree

parking at the frontage of Burkland Park. Off-street parking is available using 90-degree

spacing on the north side of Boise Street at the Turner Retirement Homes community

property.

• Chicago Street – Considered off-street parking, 90-degree spaces exist at the business

frontages on the south face of Chicago Street between 3rd Streets and 2nd Street. Spaces

are clearly marked with striping. The north side of Chicago Street contains widened

gravel shoulders which provide parallel parking area between the curb and travel lane.

Chicago Street was flagged in the TSP (1999) as being deficient in off-street parking for

businesses. Since that time, the rerouting of the main traffic pattern through town has

positively affected some businesses, making the lack of on-street parking less dramatic.

Redevelopment of the central properties in the downtown core may require additional

off-street parking options.

• Denver Street – As 3rd Street rounds to Denver Street, on-street parking is prohibited

within the limits of the curve by a narrowing of the curblines. Approximately 130-feet

east of 3rd Street, the curb extensions open to allow parallel parking along the entirety of

Denver Street to approximately 130-feet east of School Street. The corner of each block

face is bookended by curb extensions defining the parking zones. The parking spaces

along this stretch of road are not striped. Off-street parking is provided for each

property via a driveway drop in the curb and sidewalk. Several businesses offer their own

off-street parking.

• School Street: – Paved on-street parking is available. The width of the street offers space

for 90-degree parking on both sides of the street. Since the parking spaces are not

striped; parking efficiency may be an issue during events at the school or swimming

pool. Two parking spaces are designated for ADA parking in front of the Turner School

on the east side of School Street. North of Chicago Street, 90-degree parking is available

on the street, with the spaces clearly marked.

• 1st Street – Between Denver and Chicago Streets parking is available via driveways and

parallel parking along frontages. North of Chicago Street, off-street parking is available

using 90-degree and parallel spacing.

• 2nd Street – On-street parallel parking is available near Denver Street; though spaces are

not striped, the existing curbs clearly define the adequate road width. Parallel parking is


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also utilized in the undefined shoulders of 2nd Street. Off-street parking is available via

garage and driveway spaces. Off-street parking is also available using 90-degree spacing

along the Burkland Park frontage.

Additional parking considerations are the parking needs of the elementary school and public

pool now and into the future. School staff parking already overflows the school’s parking

area. If the pool service is expanded to year round use and/or if the school expands, there

could be a parking shortage in the immediate vicinity for those uses.

The study area does not have a designated city parking lot or park-and-ride area; however,

public comment and the TSP recommend a public parking area at the northwest corner of

2nd Street and Denver Street.

The Transportation System Plan, developed in 1999, lists capital projects. Many relate to the

sidewalk and frontage improvements to the side streets. The existing striping within the

study area is fair; in some cases, striping could be removed since the arterial traffic has since

been redirected to the 3rd Street and Denver Street route.

Opportunities and Constraints

From the analysis of existing conditions the following opportunities and constraints have

been identified and are discussed in the sections that follow.

Opportunities

• Downtown Residents – The Turner Retirement Community and other residents provide

a solid population base to patronize new services and shops.

• Available Land – Vacant and under-developed parcels in the study provide space for

infill and redevelopment. Vacant properties can be evaluated early for feasibility for a

potential public parking area.

• Enhancements on which to Build – The realignment and improvement of 3rd and

Denver Streets provide great pedestrian and bicycle facilities on which to base further

improvements.

• Employment Uses – Industrial facilities in and adjacent to Downtown bring people to

the area. There is vacant industrial land on which to build additional employment uses.


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• Infrastructure Capacity – The public water supply and sewer systems do not pose

significant limits to growth.

• Community Amenities – The study area has several attractors within or adjacent to it,

including the elementary school and play fields, the pool, and Burkland Park.

• Religious Organizations/Facilities – While just outside the Downtown study area, the

Tabernacle and Aldersgate organizations attract and host people from beyond Turner

throughout the year, particularly during the summer; bringing people to the area.

• Mill Creek – Unbuildable land near the creek provides an opportunity to define public

space and/or trail system along the creek.

• Sidewalk Improvements – There is ample right-of-way for sidewalk improvements on all

Downtown area streets.

• Additional Bicycle Facilities – Locate bicycle parking at destination areas.

• Engage and Interface with Marion County – The City of Turner can be proactive and

create partnerships with Marion County.

• Create a Civic Presence – The available land and need for civic services Downtown

combine to create an opportunity to create a civic presence in the Downtown area.

• Review Process – Use lower service development charges (SDCs) as incentives for

development.

Constraints and Needs

• Floodplain – Floodplain levees adjacent to Downtown need to be replaced or upgraded

to help relieve frequent flooding of the area.

• Limited through Traffic – While limited traffic Downtown can be good for pedestrian

and bicycle uses, limited through traffic hinders the viability of some retail and other

commercial uses.

• Cost of Renovation – Several historic properties in the area are currently vacant and in

need of extensive repair and renovation.


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• Truck Traffic – The extensive truck traffic creates ongoing maintenance problems and

degrades the pedestrian and bicycle experience.

• Population – Additional Turner area residents are needed to support more commercial

activity.

• Increase Safety – Improve safety issues by increasing on-street parking efficiencies.

• Water System Additions – Incorporate water capital improvements with roadway

improvements.

• Maintenance – Conduct routine maintenance on the existing public infrastructure to

ensure its longevity.

• Proximity to Salem – Restricts ability to create Turner’s own market in terms of

development incentives.

• Price of Utilities – The cost of utility services can be prohibitive to small businesses.

Conclusions

Land use, along with transportation, economic development, and urban design, is a central

component to creating the best conditions for a vibrant downtown. The current land usage

in Downtown Turner is lacking in both medium to high-density residential dwellings and

retail uses. The Downtown area is dominated by low density residential development and

light industrial buildings with little pedestrian-friendly orientation. The existing buildings in

Downtown do not create a sense of place nor do they create a sense of serving a cohesive

function; rather, the buildings appear to be spread out, non-cohesive, and auto-dependent.

Developing improved vehicular circulation within the downtown area and between

Downtown and other activity centers within the community and improved bicycle and

pedestrian connections are needed to provide for easier access and choice in mobility.

The presence of Mill Creek, its floodplain and associated wetlands present a unique

opportunity for the future Downtown neighborhood. Such close proximity of a quality

environmental resource will allow for recreation and active or passive open space not

frequently seen in a downtown area.

Section 5—Vision, Goals, and Policies


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Section 5—Vision, Goals, and Policy

The Plan’s vision statement is a synopsis of the community’s values for long-term

development. The supporting goals and policies frame how that vision can be achieved

through urban design, land use, transportation, redevelopment, and economic development.

The types and arrangements of land uses, transportation facilities, public and private sector

projects, and activities greatly affect the character of a Downtown. The vision, goals, and

policies were used to guide development of specific concepts comprising the Plan and in

identifying strategies and actions for carrying out the Downtown Improvement Plan. The

vision and accompanying goals and policies are based on the compendium of work

contained within the appendices to this Plan, and meetings with the Project Area

Improvement Committee, elected and appointed officials, and the general public through

events and stakeholder interviews.

Vision and Guiding Principles

The Vision

Following an initial ―grounding,‖ perception-sharing process, and an interactive workshop,

the Project Area Improvement Committee developed a 20- to 30-year vision for Downtown

Turner, as follows:

Downtown Turner will be a complete community with a small town feel. It will continue to be “a

good neighbor town” where residents are familiar and children are safe to ride their bicycles around

town. Downtown Turner will be the heart of the community and boast plentiful amenities and

activities year-round. It will be an economically viable place to do business and shop, attracting new

employment opportunities, residents, and visitors.

Goals and Policies

To ensure that the subsequent planning effort was focused toward achieving the vision, a set

of guiding goals to reflect desired outcomes, and policies for guiding future actions being

taken to achieve them were developed. The goals and policies also served as criteria against,

which the City evaluated the success of the various iterations of the concept plan. These

goals and policies are as follows:

Urban Design – To create an attractive small town environment that facilitates community

activity and interaction for all ages.

• Downtown Turner should be the center of the community. It should contain a space

that is considered the ―heart‖ of town.


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• Open space should be incorporated into the design. The space could be a park, plaza,

amphitheater, event pavilion, or a combination of these. It should allow for community

gathering and events like a festival or farmers market.

• Downtown streetscapes should build upon the recent improvements to 3rd and Denver

Streets and include pedestrian amenities such as benches, decorative lighting, fountains,

and trees.

• A greenway should be developed along the creek or at specific points and should include

a walking and biking pathway.

• Gateways should be developed at the two main entrances to downtown.

• Destinations to enliven downtown should be centrally located. These could include a

new bandstand, dance hall, civic center, museum, library, or a relocated city hall.

• The urban design and arrangement of spaces and buildings in downtown should use

history as an inspiration and also enable community activities.

Land Use – To allow and encourage a mix of uses to create a complete downtown.

• Retail and office uses should be allowed throughout the downtown area.

• Residential uses in and adjacent to Downtown should be preserved and augmented.

• Mixed commercial and residential buildings, such as a shop below or in front of a home,

should be allowed and encouraged throughout the area.

• Light industrial uses should be limited to the area along 3rd Street. Industrial uses in that

area should be allowed to have a commercial component, such as a retail outlet or

showroom, on their property.

• Zoning for the Downtown area should provide for maximum flexibility.

Transportation – To create a safe and inviting multi-modal transportation system and

circulation.

• The entire downtown area should have accessible and continuous sidewalks for

pedestrians with marked crosswalks at appropriate locations.

• A well-designed parking lot should be incorporated into downtown for school, pool, and

other community events. Street parking should be designed to maximize pedestrian and

bicycle safety.

• Bike lanes should be limited to the lanes provided on 3rd and Denver Streets but be

augmented with routes to the school and new community facilities located in the ―heart‖

of downtown.

• Vehicle and truck circulation has been improved with the upgrades to 3rd and Denver

Streets and should be considered along with pedestrian and bicycle circulation in the

development of new parking and community uses.

• A plan for infrastructure maintenance and upgrades should be developed to keep the

streets and pedestrian and bicycle amenities in top shape.


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Redevelopment – To infill vacant land and redevelop vacant, underutilized, or dilapidated

structures to create a more inviting and active environment.

• Efforts should be taken to review the current development process in Turner and to find

ways to streamline review processes and time of review.

• The City should investigate ways to limit the cost of fees for those who seek to

redevelop under-utilized properties.

• The City should create partnerships with area businesses and/or a business community

organization such as a chamber of commerce.

• Public uses should investigate sharing facilities – such as meeting rooms.

• Design standards should guide new development and redevelopment so as to make

Downtown a special and attractive place to visit and do business, as well as to protect

property values.

Economic Development – To maintain and capitalize on small town advantages while

attracting new businesses to the area.

• Prepare a Business Development Strategy (and perhaps consider a Downtown

development or marketing theme).

• Identify niche markets for area businesses.

• Community amenities such as the pool, parks, and the shared facilities of the Turner

Retirement Homes should be maintained.

• Develop additional community amenities–create something unique to Turner which will

attract visitors.

• Older buildings in the Downtown should be refurbished and re-used. New development

should respect the appearance of the older buildings Downtown.

• Create a long-term plan and incremental strategy to reduce flooding and resulting

hazards and damage to downtown.

Taken as a whole, the vision, and the above goals and policies are intended to provide the

direction for guiding future planning and development within Downtown Turner, and

individual development decisions and decisions regarding the programming and funding of

improvements should look to this vision and its supporting goals and policies for guidance

during decision making. The further refinement of these goals and policies into a Downtown

Improvement Plan is described in the section that follows.

Section 6—Downtown Improvement Plan


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Section 6—Downtown Environment Plan Measures

The purpose of this section is to describe the envisioned plan for Downtown Turner and the

strategies that are intended to achieve the vision and goals for the downtown project area.

The Plan is presented in the following manner:

• The Vision and Goals for Downtown – As noted in the preceding section, for a plan to

be successful, it must be vision-based and outcomes-oriented—in other words, ―know

where you want to go‖ and what it is you want to achieve. The vision provides the

direction; the goals provide the statement of desired outcomes. Only then can you know

what steps to take to make progress at achieving the vision and desired outcomes.

• Strategies for Achieving the Vision and Goals – A ―strategy‖ is a systematic plan of

action to achieve desired outcomes. The strategies presented within this Plan are

characterized by the related themes of urban design, land use, transportation,

redevelopment, and business development. These strategies are intended to guide the

development of the initial and future iterations of an incremental implementation plan

for carrying out the vision and goals for the Downtown Improvement Plan.

• Land Use and Improvement Plan – The Land Use Plan and Improvement Plan are

provided to reflect the spatial, land use, and design aspects of the Downtown

Improvement Plan. These Plans, along with the vision, goals, and strategies included in

the above sections serve to guide the preparation of the plan as well as the

recommended changes to the City’s regulatory documents (Comprehensive Plan,

Transportation System Plan, and Zoning and Development Code).

The Vision and Goals for Downtown

The vision for Downtown Turner as it improves over the next 20-years is as follows:

Downtown Turner will be a complete community with a small town feel. It will continue to be a

good neighbor town” where residents are familiar and children are safe to ride their bicycles around

town. Downtown Turner will be the heart of the community and boast plentiful amenities and

activities year-round. Respecting the past and the future, downtown Turner will celebrate its history

while providing an economically viable place to do business and shop, attracting new employment

opportunities, residents, and visitors.

The goals/desired outcomes developed in support of this vision are presented below.


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• Urban Design – To create an attractive small town environment that facilitates

community activity and interaction for all ages.

• Land Use – To allow and encourage a mix of uses to create a complete downtown.

• Transportation – To create a safe and inviting multi-modal transportation system and

circulation.

• Redevelopment – To infill vacant land and redevelop vacant, underutilized, or

dilapidated structures to create a more inviting and active environment.

• Economic Development – To maintain and capitalize on small town advantages while

attracting new businesses to the area.

Specific policies to guide actions in achieving the aforementioned vision and goals are

provided in Section 5, above.

Strategies for Achieving the Vision and Goals

In this section each of the five goals are addressed, in turn, with recommended strategies or

actions for achieving them. These strategies and actions were identified through the planning

process in consultation with the Project Area Improvement Committee and the public

through a series of public events. The resulting collection of strategies and actions provides a

wealth of ideas for carrying out the Downtown Improvement Plan. These strategies and

actions provide items for Turner’s City Council to consider implementing over time and

provided input into the incremental implementation strategy proposed within Appendix I to

this Plan.

Urban Design

Goal – To create an attractive small town environment that facilitates community activity and

interaction for all ages.

Urban design refers to the look and feel of the downtown and addresses the general

arrangement of buildings and spaces. The goals for urban design in Turner call for a new

―heart‖ of the community and to use history as an inspiration. To achieve these goals, the

recommendations that follow focus on elements that will foster a unique identity for the

town, improve the infrastructure for pedestrians, and develop a civic presence and expand

community facilities.


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Early in the planning process, a conceptual urban form sketch diagram was prepared that

depicted some of the key organizational features and concepts that would form the

foundation for the Turner Downtown Improvement Plan. Described briefly, the diagram

shows Downtown Turner nestled in the crook of Mill Creek, with the riparian areas

providing the ―connective tissue‖ of the connected pedestrian network. The main

thoroughfare comprised of 3rd Street and Denver Street (the red line on the diagram) has a

quality of its own, and should have a consistent streetscape treatment through town to

identify it as such, and be anchored by a special ―gateway‖ at each end, welcoming residents

and visitors to Downtown. The two other primary east-west streets have a different

character. Boise Street connects 3rd Street with the park and residential uses, while Chicago

Street connects 3rd Street to commercial, residential, and institutional uses, such as the

school and the pool. Cutting across these three streets is a ―community‖ street, serving as a

sort of ―civic spine,‖ as it connects the downtown to the existing park, to a proposed

pedestrian connection to the future Mill Creek trail, and as it serves as a ―festival street‖ for

future special events, fairs, farmers market, and other occasional uses. Taken together, this

diagram depicts the good ―bones‖ upon which Downtown Turner can hang the new uses

and amenities necessary to generate and maintain a climate of investment and activity in the

area.

Figure No. 3 – Conceptual Sketch Plan


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Create a Unique Identity for Downtown

• Design and construct gateways at/on/over both bridges into Downtown. The gateways

could be a combination of welcome signs and special plantings, lighting, and benches.

• Design and construct a water feature to represent the old mill race. This could include a

diversion of water from Mill Creek following the path of the old mill race if permitting

obstacles can be overcome, or this could be a much smaller water feature representative

of the mill race.

• Use history as inspiration for design guidelines for new or refurbished buildings

Downtown: encourage two-story mixed-use development all along Denver Street and

storefronts for retail/showroom commercial along 3rd Street.

• Install Downtown beautification projects, such as gardens, benches, flower baskets,

decorative lighting fixtures, and way-finding signage. A longer-term program could

involve decorative murals such as the highly popular mural programs in downtown

Silverton and downtown Oregon City.

• Design and construct a multi-use trail along Mill Creek. The trail could be developed in

segments as money becomes available to construct each section.

Improve Infrastructure

• Improve street features and install sidewalks on Chicago, Boise, 1st, 2nd, and School

Streets.

• Design and construct a drop-off and improved streetscape for the pool and school

building entrance; coordinate this with new angled street parking and new parking lot

improvements.

• Develop a pedestrian network that includes the alleys as pedestrian connections,

improved sidewalks, and the proposed multi-use trail along the creek.

Develop a Civic Presence and Improve Community Facilities

• Create a festival street that can serve pedestrian-only traffic at special times via gates or

bollards blocking vehicular traffic, but which will be open at most times to

accommodate vehicles. Potential festival streets are 2nd Street from Denver to Boise and

on Boise from 2nd to 3rd Streets.

• Create a plaza or public square along the proposed 2nd Street festival street.


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• Relocate the City’s administrative functions from the current city hall to a new space

Downtown. This could be done as a two step process; rent a space first and then build a

new City hall or refurbish an existing building into a city hall.

Urban Design Framework

• Construct a new city hall and/or a multi-use civic building near the plaza to create a civic

area.

• Incorporate a public library as part of a new civic building or a separate building in the

civic area.

• Expand the existing community pool facility into a broader based, year-round

community center. Preliminary discussions have focused upon a metal-framed, fabric

covered enclosure for the pool in order to extend its season as an initial step towards

developing a community center.

Land Use

Goal – To allow and encourage a mix of uses to create a complete downtown.

Currently, the City of Turner has one commercial zoning district and a Downtown overlay

that applies to the commercially zoned lots downtown. The current designations do not

provide the focus or flexibility needed for redevelopment. Having the same commercial

zoning applied to the 3rd Street corridor north of the downtown also dilutes the focus

needed for downtown redevelopment. The following Comprehensive Plan, Land

Development Code, and Comprehensive Plan and Zoning Districts Map revisions are

intended to support and implement the urban design and redevelopment goals and to

implement the preferred Land Use Map (see Figure 7). The proposed new zoning

designations provide specific areas of focus for different uses and create a hierarchy of

spaces within the downtown to capitalize on development and design opportunities.

Recommended strategies and potential actions include:

• Create a mixed-use C-2 Downtown Commercial zoning district allowing office, retail,

service, and multi-family residential uses; through Downtown east of 3rd Street and

focused on Denver Street. This area will create a specific focus for the commercial core

of the city, while providing flexibility in the types of the establishments that can locate in

the area.

• For the area south of Denver Street, east of 2nd Street, and north of Mill Creek, the

envisioned future land uses include commercial uses fronting Denver Street. Since the

southern portion of this area is impacted by seasonal flooding, it may be necessary for


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portions of these properties to be kept in resource uses or developed with uses

compatible with seasonal flooding conditions.

• Create a mixed-use M-2 General Employment zoning district allowing office, industrial,

and limited retail uses for the properties Downtown which are located west of 3rd Street.

This zone will maintain the opportunity for a large employment base while allowing for

retail and/or showroom type uses along 3rd Street to contribute to the commercial

vitality of the area.

• Maintain the Turner Retirement Homes properties and the area along Elgin Street with

residential zoning. It is essential to maintain a residential population in the area to

support new Downtown investments.

• Create a P-I Public Institutional zoning district for the school property, parks, the fire

station, churches, and franchise utility yards in the Downtown area. This zone can also

be used for these use types outside of the Downtown. The zone can be expanded in the

future to include new civic uses, such as a new city hall and a library.

• Revisit residential zoning designations and standards over time to phase out single family

uses. While residential uses are desired in the downtown, large-lot single family uses

should be phased into more dense housing types over time to provide a larger and more

diverse downtown population to patronize services.

• Revise zoning along the 3rd Street corridor north of Mill Creek to reduce the amount of

C-1 General Commercial zoning in areas which are currently developed with viable

residential areas. Protect those areas from commercial encroachment through exclusive

residential zoning and by programs to improve the residential streetscape such as street

tree or front yard fencing programs. These changes will improve the 3rd Street ―gateway‖

into downtown Turner from the north.

• Several new policies are recommended to be added to the Comprehensive Plan to

authorize and describe the creation of the new land use districts described above.

Figure Nos. 4 and 5 illustrate the proposed Plan and zoning districts for the Downtown and

3rd Street corridor areas. Note: Appendix F includes alternative maps showing areas for further

discussion and proposed zoning.

Mill Creek

3RD

ST

2ND

ST

1STST

CHICAGO ST

DENVER ST

BOISE ST

GASTON ST

4THST

ELGIN ST

FARGO ST

55THAVE

SCH

OO

LST

ASH ST

DENVER ST

0 100 200 300 400 500

Feet

Proposed Comprehensive Plan and Zoning DesignationsTurner Downtown Improvement Plan

DesignationR-1: Single-family Residential District

R-2: Single-family Residential District

R-11: Multiple-family Residential District

C-1: General Commercial District

C-2: Downtown Commercial District

M-1: General Industrial District

M-2: General Employment District

PI-1: Public Institutional District

Project Boundary

Taxlot

Railroad

Figure 4

Franzen Reservoir

HOLLY LOOP

DELANEY RD

3RDST

5THST

7TH

ST

CEDAR ST

2NDST

ELM ST

9TH

CT

H

ASH ST

WEBB DR EAST

WO

OD

DR

FIR ST

ROCK VIEW DR

OAKWOOD DR

8TH

ST

FEAT

HER

CT

REED WAY

FLYING HUEY CT

Third Street Commercial Corridor

0 100 200 300 400 500

Feet

Proposed Comprehensive Plan and Zoning DesignationsDesignation









Project Boundary

Taxlot

Railroad

Figure 5

Mill Creek


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Transportation

Goal – To create a safe and inviting multi-modal transportation system and circulation.

Downtown Turner area has a well-developed street pattern to accommodate circulation. The

elements needed to achieve the goal are spaces that are welcoming to pedestrians, bicyclists,

and visitors arriving by vehicle. Improvements to these elements, combined with the proper

maintenance of the existing street system, will enhance activity levels, boost the functionality,

and extend the longevity of Downtown Turner.

Turner’s Transportation System Plan (TSP) outlines the functional classification for the

roads within the Downtown study area. Currently, the plan classifies the streets accordingly:

Street Classification

3rd Street (Mill Creek to Denver), Denver Arterial

Chicago Street, School Street, 2nd Street (south of Denver) Collector

Boise, 2nd Street (north of Denver), 1st Street, Elgin, Fargo, Gaston, 3rd

Street (Denver to Gaston)

Standard Local

Transportation enhancements to Downtown Turner do not require revisions to the TSP

classifications, with the exception of altering 2nd Street north of Denver Street from a

standard Local Street to a ―Significant Local Street.‖ The length of 2nd Street from Denver

to Boise Streets is the proposed location for a retail/commercial center, civic area, and/or

festival street. Significant Local Streets, such as 5th Street, west of downtown, are ―important

to the community‖ due to their connectivity to desirable destinations. Altering the

designation of 2nd Street north of Denver Street will give license to unique design selections.


• For the remaining local streets, their designation will remain as a standard section. As

stated in the TSP, there are two options for development of standard local streets.

Considering that Turner’s downtown will be a new destination, local streets north of

Denver Street should reflect the 50-ft right-of-way design. The streets south of Denver

Street, with a focus on residential use, may consider the ―skinny street‖ option with 40-ft

right-of-way. The street sections provided in Figure No. 6 are conceptual drawings of

what the future conditions may reveal.

• The primary transportation enhancements in Downtown will consist of sidewalk and

parking improvements. While traffic volumes are currently low off of the arterial route,

the safety of pedestrians and bicyclists is compromised due to a lack of sidewalks and

improper crossing opportunities. As Turner grows or attracts more visiting traffic,

parking patterns will also need revisions to maintain a level of safety and efficiency.


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Protecting the existing traffic patterns and parking opportunities for residents is also a

factor in the balance of transportation needs. As streets develop, it is recommended that

all driveways and alleys be retained as streets develop. Establishing a festival street may

temporarily restrict access to some properties along 2nd Street.

Figure No. 6: Street Sections


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• The TSP should be revised to reflect all streets in the downtown area be improved with

sidewalks. Missing links in the sidewalk system will be eliminated for the future

condition. The TSP should also be updated to include multi-modal trails on the

pedestrian and bicycle plan.

• The overhead utility lines along Turner’s street network provides electricity and

telecommunications services to the residents in the immediate area as well as serving as a

conduit to the outlying areas. As Turner experiences land use changes occurring

throughout the downtown core, the overhead infrastructure will become more intrusive

upon the landscape, impacting trees and building frontages as poles and guy anchors are

relocated. In the short-term, the City should begin working with the franchise utility

companies on the process of placing much of this infrastructure below ground. With the

long-term goal of placing power and telecommunication lines below ground, Turner’s

Downtown core can redevelop with a clean streetscape.

Redevelopment

Goal – To infill vacant land and redevelop vacant, underutilized, or dilapidated structures to

create a more inviting and active environment.

Downtown Turner has a fair amount of vacant and underutilized space to offer. However,

redevelopment is not always viable from a market perspective, particularly in a difficult

business climate, where rent levels may not be high enough to compensate for major

investment in a property. Under the current conditions, redevelopment in Downtown

Turner is likely to take the form of rehabilitation and reuse of existing properties, as the

most cost effective way to provide rentable space.

As Turner grows, new development will become more feasible. In the near future, new

development in Downtown Turner is likely to be single-story, wood-frame construction,

reliant on surface and/or street parking for customers and employees. Two-story structures

are possible and will become more likely as Downtown Turner builds new commercial

activity over the long-term, which will spur the need for more density.

The following are some potential strategies and actions that Turner should pursue to

improve the atmosphere for redevelopment activity to occur.

• Create a Unique Identity and Create Design Guidelines – Create a set of design guidelines

which clearly and concisely describe the vision for new and rehabilitated buildings in

Central Turner (see Urban Design strategies). Design guidelines should reflect the


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community’s vision, but keep additional building requirements realistic and inexpensive

for the developer.

• Develop a Property Improvement Program – Develop a façade, signage, and landscaping

improvement program for commercial and retail properties located in the study area.

The program should be designed to enhance existing buildings, storefronts, signs, etc.,

and could be implemented as a low interest loan or matching grant program. The

program should be directed towards existing businesses or properties where such

improvements are considered very likely to attract businesses.

• Complete Public Infrastructure Projects – Implement the improvements to public

infrastructure (roads, sidewalks) as well as beautification initiatives (flower baskets,

benches, street trees and landscaping) described in this memorandum to the extent

possible. Public investment demonstrates to private property owners that the city is

engaged and changes are taking place.

• Target Public Investment – Select a core area of commercial and civic concentration in

which to target public investment, programs, and community activities. As public

resources are likely to be limited for some time in Turner, it will be important to target

limited improvements to those blocks where change is most desired. Adjacent areas will

experience positive overflow effects from this area of concentration.

• Examine the Development Permitting Process – The City should closely examine the

permitting process to optimize consistency, timing and responsiveness, while reducing

regulatory and paperwork burdens. The process should be standardized, to the extent

possible, so that applicants are treated consistently and subjectivity is removed from the

process. The required steps and paperwork of the application process should be easily

describable to applicants in a one-page checklist.

Economic and Business Development

Goal

To maintain and capitalize on small town advantages while attracting new businesses to the

area.

Turner has strong potential for the robust household growth it has experienced since 2000

to continue into the future. The greatest factor in increasing demand for small-scale retail

and commercial services in the local area is a growing customer base of households.

Households in the area tend to have a relatively high average income for Marion County,

and have significant buying power. Currently, most of this spending is taking place outside


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of the Turner area. Some retail categories require larger markets to freeway locations, and are

therefore not realistic in Turner. But there is still excellent potential for businesses in Turner

(existing and new) to catch a share of the spending that is currently ―leaking‖ out of the

community.

In addition, and aside from retail and service businesses for the local community, Turner is a

good location for commercial service, construction, and manufacturing businesses seeking a

location in the central Willamette valley, with highly competitive property costs and relatively

convenient access to the regional transportation infrastructure.


• Undertake a feasibility study for forming an Urban Renewal Area in Downtown Turner.

Urban renewal is a key public financing tool available to Oregon jurisdictions. It

provides for keeping the future growth of property tax revenues within the district itself

to help accomplish the goals of an adopted urban renewal plan.

• Form a standing body of local business people to discuss and represent the business

community in Turner (perhaps a Chamber of Commerce or similar body). This group

should have active participation in the further evolution and implementation of the

Downtown Plan.

• Maintain a current list of business and property owners, complete with pertinent contact

information and estimated employment level.

• Develop a marketing plan for downtown, focusing upon outreach to residents and

surrounding communities and how to leverage existing attractions within the region into

increased visibility and business for Downtown Turner.

• Continue participation in the Oregon Main Street program, and pursue increasing the

level of participation in order to become eligible for technical assistance in implementing

strategies for Downtown improvement.

• Establish a property improvement program for enhancing and improving commercial

and retail buildings, storefronts and facades, landscaping, signs, etc. within the

Downtown area to help increase both visibility and value.

• Establish a small or micro-business revolving loan fund designed to assist downtown

businesses with small business development, real estate property acquisition,


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construction or rehabilitation, development and mitigation fees, architectural and

engineering services, and etc.

• Create a list of support programs available at the local, regional, state or federal level

available to local businesses and make the information widely available.

• Maintain and maximize involvement in local and regional economic development

organizations and efforts.

There are a number of tools and funding sources available for carrying out the overall

business development goal of maintaining and capitalizing on Downtown Turner’s small

town advantages which are attracting new business. These are presented and discussed in

detail in Appendix E to this document (see the Strategic Business Development Plan within

Memorandum No. 4 – Strategies for the Project Area).

Land Use Plan and Downtown Improvement Diagram

The vision, goals and policies developed through the public process associated with the

Downtown Improvement Plan provided the direction for the preparation of a Land Use

Plan and Downtown Improvement Diagram directing and depicting the form of future

development within Downtown Turner.

Land Use Plan

Based upon the vision, goals, and recommendations developed by the Project Area

Improvement Committee, a Land Use Plan for Downtown Turner has been developed

which indicates the location and organization of future development and redevelopment

within the project area. This Downtown Land Use Concept Plan is depicted in Figure No. 7,

below.


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Downtown Improvement Plan Diagram

The diagram shown in Figure No. 8 depicts the full set of physical improvements and future

land uses recommended to be carried out over time during the twenty-year planning period,

as discussed within the previous sections of this document.

Figure No. 7 – Downtown Land Use Concept Plan


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Initial Implementation Concepts

This section discusses potential concepts and strategies for carrying out the goals and

objectives discussed above. The following matrix is a summary of the action items for the

City and its council to consider in accomplishing the long-term vision of downtown Turner.

Each item is defined as a short or mid-term action, one that should be completed within the

next six years, or long-term action, one that can be completed over the next 20 years.

Organized by strategy, each action considers funding streams and public impact in its

timeframe. For the most part, the short-term actions consist of public infrastructure

upgrades; these will be the most visible signs of renewal and success in Turner. The long-

term actions are those items that will sustain Turner and retain a level of growth as the

council sees fit.

Figure No. 8 – Long-term Downtown Improvement Plan


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Strategy Short/mid-term Long-term

Essential

Infrastructure

• Create a maintenance fund

• Install sidewalks, curb extensions

(prioritize installation: school routes,

local streets, business frontages,

festival streets)

• Improve Chicago Street with new

sidewalks and parking

• Modify the designation of 2nd Street to

a ―Significant Local Street‖

• Improve gravel streets (3rd to Elgin)

• Conduct routine maintenance (i.e.

slurry seals, grind and overlay)

• Begin discussion with PGE of power

pole relocation or underground

placement of power lines and

telephone lines

• Design and construct

public parking lot

• Flood control,

stormwater

management, dike

reconstruction

• Drop-off area for the

school and pool

• Place electrical and

telecommunication lines

below ground as streets

are reconstructed

• Require underground

utility connections

Infrastructure

Enhancements

• Develop segments of trail along Mill

Creek on public owned properties

• Create pedestrian trail network

(construct in segments: 3rd Avenue to

community pool, community pool to

Denver Street, Denver Street to 55th

Avenue)

• Create a gateway to downtown at both

bridges over Mill Creek

• Improve parking at school and pool

• Create a water feature to represent the

mill race

• Make the Mill Creek trail

a continuous pedestrian

path

• Construct connecting

bridges to complete a

looped pedestrian trail

system

• Improve upon gateways

with more permanent

structure or sign

• Uncover mill race or add

to the representational

water feature

Civic Presence

and

Community

Places

• Convert a vacant structure downtown

into a new City Hall and meeting

facility

• Convert 2nd Street right-of-way into a

festival street

• Build a new City Hall

and library complex

• Cover and expand pool

facility

• Develop a plaza that

connects civic uses and

Burkland Park


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Business

Development

• Replace the Downtown Commercial

District overlay with a

commercial/residential mixed-use

zone

• Create an employment/retail

/industrial mixed-use zone for the

area along 3rd Street.

• Create a Public/Institutional zoning

district and apply it to the school, fire

station, parks, churches, and other

public and semi-public use sites.

• Façade/sidewalk/landscape

improvement program

• Target public investment in core area

• Review the permitting process

• Create a standing body to represent

Turner business

• Maintain a list of local businesses and

contacts

• Develop a marketing plan for

Downtown Turner

• Implement a small business loan

program

• Market new business support

programs

• Maximize involvement in regional

economic development efforts

• Phase out unwanted uses

(SFR) from the

downtown

Programs for Business

There are a wide range of programs available for businesses to aid in training, expansion,

property acquisition, and repair among other activities. These programs are aimed at

businesses from brand new ventures, to larger established companies. A discussion of these

programs and tools and strategies for deploying them is provided within the Strategic

Business Development Plan (see Appendix E).

Section 7—Implementation Action Plan


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Introduction

The Downtown Improvement Plan (TDIP) is an action-oriented plan, focusing upon the

projects and actions needed to be undertaken to carry out a clearly defined vision, a set of

goals and policies, and a long-term conceptual improvement plan. The TDIP will be

implemented in pieces, or components, over the course of the next several years. Some

actions will be initiated in 2009 others will be initiated in the years to follow.

How Will The Plan Be Carried Out?

As mentioned above, the TDIP will be implemented in pieces, over time. Some of the

projects identified as being catalytic in their ability to ―jumpstart‖ other development or

create a climate for investment will require a refinement study or preliminary engineering to

pin down a concept, a location, a footprint, or criteria for subsequent development

proposals.

In addition, the identified projects will require the application of staffing resources to

establish programs, criteria, and to undertake preliminary tasks to enable projects to move

forward (e.g., land assembly, property owner coordination, etc.). The Plan recommends a

number of amendments to the City’s Comprehensive Plan and Land Development Code (to

provide greater recognition of Downtown, reflect objectives of the TDIP, etc.), as well to

create several new zoning districts to carry out the intent of the Plan and to achieve the

planned uses, character, and densities envisioned. The suggested amendments to the City’s

Comprehensive Plan and Land Development Code will be among the first recommended

actions to occur, as they will set the stage and enable other actions to follow.

It is anticipated that the City will begin talking with potential development interests

regarding making the Plan a reality. Certain major improvements will be made by the City of

Turner through a variety of funding sources, including urban renewal, if approved by the

City Council. Other improvements will be the responsibility of proposers of specific

development activities. One or more of the recommended projects may come about as a

result of a ―public-private partnership,‖ a contractual arrangement tailor-made for each

situation by which the public sector authority assigns certain functions or responsibilities to a

private developer.

The important point is that the TDIP is a long-term plan for the revitalization and growth of

Downtown Turner over the course of the next 20-30 years, in alignment with a vision for

the future established by the community.


Continued


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Implementation Action Plan

For a plan to be the ―chart for change‖ it is intended to be, it must be accompanied by an

implementation program; a program indicating the appropriate tools, actions and timelines

for carrying out the plan. The Implementation Action Plan being recommended to carry out

the TDIP focuses on the following:

• Recommended future transportation system improvements and any suggested changes

to the City’s Transportation System Plan;

• Recommended changes to the City’s Comprehensive Plan, zoning code and

implementing ordinances;

• Recommended development and community projects important for creating a climate of

investment Downtown;

• Recommended sources of funding for TDIP-related improvements; and

• Suggested time frame for initiating key actions and projects.

These areas of focus have been discussed in depth in the technical memoranda

accompanying the Plan, and found within the Plan’s appendices.

As an effective action plan must be dynamic and open for change as funding, changes in

project priority, refinement studies and changes in community desires dictate, the

Implementation Action Plan is not contained within this overview Plan document. An initial

TDIP Implementation Strategy is provided as Appendix I to this Plan. An updated TDIP

Implementation Strategy will be maintained and kept up-to-date by City staff and will be

evolving as progress and change require.

Programming Recommendations

The suggested and recommended actions, next steps, and projects generated through the

process of developing this Plan have been compiled in the material within the TDIP’s

appendices, particularly Memorandum No. 4, Strategies for the Project Area. These

recommended actions and projects have been evaluated, refined and prioritized with regard

to relative timing over the short-term (1-3 years), mid-term (4-6 years), and longer-term (7

years or more). In addition, those short-term actions needing to occur in each of the next

three years have been determined.

It is recommended that the City of Turner develop and maintain a short-term strategic

action plan for incrementally implementing the TDIP’s recommendations for improvements


Continued


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and actions. It is envisioned that this would be viewed as an ―Incremental Implementation

Strategy.‖

Short-Term Incremental Implementation Strategy

The City of Turner will be maintaining a short-term strategic action plan for incrementally

carrying out the TDIP’s recommendations for improvements and actions. This short-term

action plan will be known as the ―Incremental Implementation Strategy;‖ a three year,

renewable/rolling, short-term action plan that would be regularly updated, with a regularly

scheduled monitoring and updating process and a supporting budget.

By way of example, in updating this Incremental Implementation Strategy, each of the

TDIP’s goals would be examined on a regular basis to ascertain the current status of

progress in achieving them, and actions for moving ahead in each of the next three years

would be identified and planned for. The activities for Year 1 would be tied to the City’s

annual operating budget. The activities identified for Year 2 and Year 3 would serve as a

placeholder or indication of anticipated action-related resource needs for the coming two

years. Once Year 1 is nearly complete, the status of activities would be reviewed, and the

activities for Year 2 would be adjusted as necessary, as it will become the new, Year 1. Year

3 would be adjusted as appropriate in readiness for it’s becoming the new, Year 2, and

activities for a new, Year 3 would be identified. The City would identify a coordinating body

(the City Council or other special committee) responsible for the monitoring, development

and update of the Incremental Implementation Strategy, and for the coordination of the

various City activities to fund and/or carry out the strategy. City staff or the identified

coordinating body would provide the City Council with a regularly scheduled status report

on implementation activities. This regular monitoring, reporting and updating helps to keep

the TDIP flexible and current, keeps the City focused on carrying out of this important

public policy objective, and keeps the TDIP and its implementation on the ―front burner.‖

In addition, it is recommended that the City review the TDIP on a regularly-scheduled basis,

and make amendments as opportunity or changing community and economic circumstances

necessitates. Should there be a desire to change the goals or shift the emphasis of a particular

project, this plan-update process provides the mechanism for doing so within the context of

reviewing the plan as a whole.


Continued


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Programming Concept and Conclusion

Programming Concept

A substantial number of actions, programs, and projects are being recommended to carry

out the TDIP. Not all of these can be done at once, and consideration needs to be given at

the outset and during the regularly scheduled TDIP and Implementation Strategy update

process to the grouping, phasing, or timing of particular actions. It is recommended that the

community program available/limited resources where they can do the most good, where

they can leverage other resources or supporting activities or provide the ―biggest bang for

the buck,‖ or where they can be concentrated to focus on a designated geographic target

area.

Conclusion

In conclusion, the Turner Downtown Improvement Plan represents the community’s

official framework for the revitalization of Downtown Turner into a thriving neighborhood.

As this plan represents the expression of the community’s vision and desired outcomes for

Downtown, the Plan must be a dynamic and responsive policy framework—one that

changes as needed to keep pace of changing community values and external factors, and as

opportunities arise. Over time, the TDIP is intended to continue to evolve, serving as the

framework for further refinement according to the wishes of the community.

Appendix A

Memorandum No. 1 – Existing Conditions Analysis

Turner Downtown Improvement Plan Memorandum #1 – Existing Conditions Analysis

Turner Downtown Improvement Plan Final Memorandum #1 – Existing Conditions Analysis December 12, 2008

17355 SW Boones Ferry Rd. Lake Oswego, OR 97035

Phone (503) 635-3618 Fax (503) 635-5395

Project Team:

David Siegel, FAICP Jennifer Mannhard, AICP

Amanda Owings, P.E. Warren Greaser

This memorandum is a summary and evaluation of the existing conditions, relevant background policies, and key issues, opportunities and constraints for the Turner Downtown Improvement Plan and incorporates comments received from the Project Advisory Committee Meeting #1. Submission of this memorandum satisfies, in part, subtask 2.8 of the Work Order Contract. Contents Introduction Page 1 Key Issues 2 Summary of Relevant State and Local Plans and Policies 2 Existing Land Use Conditions 4 Existing Infrastructure Conditions 6 Existing Multi-modal Transportation Circulation 8 Existing Parking Inventory 10 Opportunities and Constraints 12 Exhibits 14 Introduction Turner is a longstanding residential community whose downtown has experienced a lack of commercial activity for years. It includes many vacant properties and buildings and has only five retail operations. However, Turner has some resources on which to build including

To: David Sawyer, City Administrator, TurnerNaomi Zwerdling, Senior Planner, ODOT

From: Jennifer Mannhard, Senior Planner, Otak

Date: December 12, 2008

Subject: Final Existing Conditions Analysis Deliverable 2.H Turner Downtown Improvement Plan

Page 2


existing employment, a newly enhanced corridor through town, downtown residents, and public park space. The Downtown Improvement Plan will create a comprehensive concept for land use, urban design and transportation to support revitalization of the downtown area. It will provide a strategy to increase downtown commercial viability, encourage a mix of uses, and provide multi-modal transportation enhancements. Key Issues 1. Through an ODOT Transportation Enhancement grant, the

City of Turner realigned 3rd and Denver Streets, eliminating two 90 degree turns. Land use planning was not part of the transportation enhancement project.

2. Population remained consistent for years, but began to grow when the municipal sewer system was installed in 2000.

3. Two operational gravel pits outside Turner create extensive truck traffic through town on 3rd and Denver Streets.

4. The downtown area is within the flood plain and has been subjected to numerous catastrophic floods. Large sections of the Mill Creek levees need to be replaced or upgraded.

5. Downtown currently has insufficient pedestrian amenities. There are few sidewalks in the area other than those recently installed as part of the enhancement of 3rd and Denver Streets.

State and Local Plans and Policies A number of state and local policies affect the Downtown Improvement Plan. These include: State Policies: Oregon’s Statewide Planning Goals

Since 1973, Oregon has maintained a strong statewide program for land use planning. The foundation of that program is a set of 19 Statewide Planning Goals, 14 of which are applicable to Turner. The goals express the state’s policies on land use and on related topics, such as citizen involvement, housing, and natural resources. The goals are achieved through local comprehensive planning. State law requires each city and county to adopt a comprehensive plan and the zoning and land-division ordinances needed to put the plan into effect.

New 3rd & Denver Street improvements and local truck traffic

Lack of sidewalks throughout the area

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Oregon Transportation Planning Rule The Department of Land Conservation and Development (DLCD) created the Transportation Planning Rule (TRP) in 1991 to guide jurisdictions in meeting the objectives of Goal 12– Transportation– of the Statewide Planning Goals. This administrative rule requires jurisdictions to adopt a Transportation System Plan for coordinated land use and transportation planning.

Oregon Transportation Plan The Oregon Transportation Plan (OTP) is the state’s long-range multimodal transportation plan. The OTP is the overarching policy document among a series of plans that together form the state transportation system plan. The OTP considers all modes of Oregon’s transportation system as a single system and addresses the future needs of Oregon’s airports, bicycle and pedestrian facilities, highways and roadways, pipelines, ports and waterway facilities, public transportation, and railroads through 2030.

Local Plans and Policies: Turner Comprehensive Plan (2001)

The Turner Comprehensive Plan contains background data and policies regarding the future growth and development of the community. It is the first complete update of the Plan since its acknowledgement by the State in 1983. The Plan provides guidelines for conservation and development of community resources in compliance with the statewide planning goals. It is the basis for the City’s more specific regulations and ordinances, which implement the Plan.

Turner Transportation System Plan (1999)

The Turner Transportation System Plan (TSP) fulfills the transportation element (Goal 12) of the Turner Comprehensive Plan. It identifies planned transportation facilities and services needed to support land uses proposed in the Comprehensive Plan in a manner consistent with the Transportation Planning Rule and the Oregon Transportation Plan. The TSP guides the management and development of appropriate transportation facilities in Turner, incorporating the community’s vision, while remaining consistent with state, regional and local plans.

Land Use Development Code

The City of Turner Land Use Development Code provides the regulations that govern development in the City. As the implementation tool for the policies contained in the Comprehensive Plan, many sections of the Code were amended in 2002 to comply with the 2001 update to the Comprehensive Plan.

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Capital Improvement Program

The long range financial plan estimates Turner’s expenditures for establishing, operating and maintaining public services and for constructing capital improvements. The City currently has no funds allocated for downtown related projects.

City of Turner Parks Master Plan (2005)

The Parks Master Plan addresses current and future park needs for the city and provides a long-term strategy to meet those needs. The plan includes an inventory of existing parks, goals for the park system, a capital improvement program, short and long-term acquisition strategies, and potential funding sources. The plan calls for two to four new mini-parks of approximately 0.5 – 5.0 acres in size to be created in Turner in the next 20 years. The eastern portion of the current Downtown Improvement Plan study area was identified as a potential land acquisition area for a mini-park.

Existing Land Use Conditions Existing and Outmoded Land Uses Downtown Turner currently has six land uses: residential, commercial, institutional, park, industrial, and vacant, as shown on Exhibit 1.1. While the industrial uses are situated along 3rd Street, the other use types are intermixed throughout the study area. Burkland Park is the small downtown park and the institutional uses include a church and a youth center. Outmoded uses are those that are incompatible with the general goals and objectives of Downtown revitalization, underdeveloped land, or vacant land. Of the six uses present, the vacant land and buildings only should be considered outmoded uses. While industrial uses are not generally thought of as compatible uses in downtown, the mill and other manufacturers have long been a fixture of downtown Turner and provide critical employment and bring people to the area. Also, while residences are not an outmoded use for downtown, the size of the residential lots may be. Higher density residential development would bring additional people to the downtown area and with the new municipal sewer system the large lots are no longer a necessity.

Industrial uses congregate along 3rd Street

A few commercial uses are sprinkled throughout the study area.

Single-family homes exist throughout the downtown area

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Infill and Redevelopment Potential Infill and redevelopment potential exists in the study area. Vacant parcels and large lots provide opportunity to develop new structures and a number of vacant buildings could be renovated. Overall redevelopment potential is the focus of Memorandum #2 and will be fully analyzed there. Land Development Code The City’s Comprehensive Plan districts are also Turner’s zoning districts and include single-family residential, multiple-family residential, general commercial, and general industrial districts. These districts are shown in Exhibit 1.2. The residential districts’ regulations call for low density development with 11,000 square foot, 7,500 square foot, and 5, 000 square foot minimum lot areas for the R-1 SF, R-2 SF, and R-11 MF districts respectively. The Land Use Development Code allows a single-family dwelling unit in any of the residential districts and restricts multiple-family units to medium density development, which is defined as 15 people per acre or less. A “home occupation” is a conditional use in all residential districts. The General Commercial district allows a full range of commercial activities to serve the needs of area residents. The General Industrial district permits light manufacturing and warehousing activities that have minimal impacts on adjacent non-industrial areas. Other types of more heavy industrial uses may be permitted under a conditional use. The study area falls within the Flood Hazard Overlay zone, which restricts development in the floodplain. However, the study area is also within the designated exception area of the overlay, allowing development of vacant parcels, but prohibiting subdivision of parcels for development. Properties with Historic Value While there are no nationally registered historic places in Turner, several properties have been identified in the Historic Context Statement prepared in 1997 as having historic significance. These properties are shown in Exhibit 1.3.

Low density single-family residential in downtown

Davis Hall is one of Turner’s properties of historic significance

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Key Project Area Attractors and Community Amenities Downtown Turner has several attractions within and adjacent to the study area. These destinations are shown in Exhibit 1.4. The key destinations are parks, community facilities, retail, employment, religious and educational institutions, and housing. Parks and open space are major amenities near the study area. Burkland Park lies within the study area while the Turner School recreational fields and open space associated with the Aldersgate Christian Camp and Conference Center and Turner Memorial Tabernacle lie just outside the study area boundary. The presence of Turner Retirement Homes in Downtown Turner provides a built in downtown residential population and two key destinations in Davis Hall and the Turner Retirement Homes Activity Center. Several light industrial businesses in downtown Turner provide employment destinations including the Caliber Forest Products Mill and Pacific Sign and Screen Printing. Scattered commercial in Downtown Turner provides some specialized goods and services including Best Buy Flooring, Turner Market, Turner Inn, and the businesses in Turner Plaza. The community facilities that serve Downtown Turner include the Turner Fire Station, Turner School, and Community Pool. Existing Infrastructure Conditions The elements that comprise the infrastructure category include sanitary sewer, water system, storm sewer, road pavement, and street lighting. Sidewalks and bike lanes will be discussed separately in this memorandum. Critical to proper infrastructure sizing is land use zoning and population growth projections. Except for one block of single-family zoning, the study area falls within two zones: R-11 – Multiple-Family Residential and C-1 – Commercial. The expected population growth over the next 20 years is 3.8%. Commercial and industrial uses are expected to grow at a rate of 4.5% per year (Water System Master Plan Update, 2006). Sanitary Sewer Since 2000, the city of Turner has been fully served by sanitary sewer pipes, draining to the Salem treatment facility. Several streets contain a mainline, with the exception of 2nd Street between Chicago and Denver Street and 1st Street between Boise and Chicago Street and the one block of School Street. The redevelopment that may occur within the study area will not require the existing sanitary system to be upgraded. New connections and their associated fees will be applicable when redevelopment or new construction occurs. Projected growth in the study area is small

Burkland Park

Sanitary sewer line at Mill Creek

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compared to the larger potential within Turner’s city limits; the existing sewer system was designed and constructed to accommodate growth from those areas. Expansion of the system is not necessary, and the additional flow from the underdeveloped parcels will not create a negative impact on the sewer system or compromise Turner’s intergovernmental agency contract with the City of Salem. Water System Turner has received its drinking water from the City of Salem system since 1941. The study area is fed through a distribution system consisting of 1” to 10” pipes and is located in the “Low Service Zone,” as defined by elevation from existing reservoirs. Portions of the study area are not fed by the existing network: 3rd Street from Boise to Denver, 2nd Street from Boise to Denver, 1st Street from Boise to Chicago Street, and the whole of Chicago Street. These streets do not have water pipes within the rights-of-way. Service to the individual properties is made through connections to pipes in the alleys and mains located on Boise and the eastern leg of Denver. Capital improvements to the City’s water system are defined in the Water System Master Plan Update, 2006. Those that apply to the study area are anticipated at the final phase of improvements, to be completed between 2020 and 2026. The improvements include installation of 6” and 8” diameter pipes on the portion of streets currently lacking water infrastructure. These improvements will support new industrial growth and will supplement and reinforce the fire flow potential in these areas. However, there is no immediate need to upgrade the infrastructure in the study area. Storm Sewer The existing storm sewer system collects stormwater from the study area, and deposits the flows into Mill Creek at three separate locations. The stormwater is not treated and it is unknown if flow controls exist at the outfall locations. The collection system consists of catch basins, several of which are flow-through structures, manholes and pipes. There is a catch basin on each block face of the study area and laterals serving the individual lots. During flood conditions, Mill Creek rises above the levees on the southeast side of the downtown area. It is likely that the outfalls are also responsible for flooding when the storm sewer system surcharges. The groundwater table in Turner consistently rests close

Stormwater collection on Denver Street

Water main at Mill Creek

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to the surface. Because Turner is located on sandy and gravelly soils at the valley of two hill ranges, considerable groundwater movement is common. Road Pavement Within the study area, the street pavement is in good condition following a repaving effort during the sanitary sewer installation in 2000. . There are few signs of base course failure or settlement. The problem areas tend to be at the transition points between the public roadway pavement and the off-street parking pavement. In these areas, there is evidence of cracking, stormwater ponding, and subbase failure. Ongoing maintenance, including sweeping, pothole repair, and resurfacing will prolong the life of the downtown Turner streets. The Transportation System Plan, developed in 1999, lists capital projects that match the deficiencies found in the walk through. Many relate to the sidewalk and frontage improvements to the side streets. The existing striping within the study area is fair; in some cases, striping could be removed since the arterial traffic has since been redirected to the 3rd and Denver route. Street Lighting The street lighting system in Turner was recently upgraded with the improvements to 3rd and Denver Streets. Black acorn-style luminaries were installed with an added structural member to support hanging floral baskets. These ornamental lights are fed through undergrounded power source. The remainder of the streets in the study area are lit using cobra-style lights mounted to existing power poles containing the aerial transmission and distribution system. Existing Multi-modal Transportation Circulation The recent improvements to the vehicular circulation through the Turner downtown core provided amenities for alternate transportation modes as well. The improvements added a continuously striped bike lane through the downtown area, and expanded the network of sidewalks where right-of-way space permitted. Additionally, two crosswalks and signage were installed to alert drivers and pedestrians and reduce conflict. Where the

New luminaries with hanging baskets along 3rd & Denver Streets

New 3rd & Denver Streets

New bike lanes, sidewalks, and crosswalks on 3rd Street

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Sidewalk along Chicago Street

improvements ended at each side street, the new sidewalks tied into existing walks when possible; in cases where no connecting sidewalk exists, an asphalt ramp was constructed to provide smooth transitions for accessibility to the paved roadway. At several reconstructed corners, new striping defines the crosswalk. Along the major streets (3rd and Denver), a sidewalk exists on the east and north sides of the street, closest to the businesses to reduce crossing conflicts. The multi-modal transportation facilities and circulation are shown in Exhibit 1.5. The existing local streets within the Turner downtown core have not seen improvements. While many streets contain sidewalks, they are intermittent and lack connectivity. A considerable conflict exists on many side streets with the lack of designation between rights-of-way among the various modes. Angled and 90-degree parking within the shoulder spaces, combined with the limited sidewalks create potential conflict points with pedestrians and drivers, particularly those drivers backing out of a parking space. At street corners, waiting space for pedestrians is undefined, reducing the awareness of drivers. Transit service in Turner is currently served by the Chemeketa Area Regional Transportation System (CARTS). Presently, three weekday round-trip options are available for residents traveling between Salem and Gates, with connections to Cherriots, Canby Area Transit, TriMet, and Wilsonville’s SMART buses. The bus stop is located at Burkland Park, and CART plans to add a shelter in the near future. All CART transit vehicles are ADA accessible. A major improvement to bicycle accessibility is the continuously striped bike lane on Denver and 3rd Streets. This solves the issue of connectivity that barred bicyclists from traveling safely through Turner. Bike lanes do not exist on any of the other streets within the study area. Bicycle lanes are not required on the side streets, as the roadway surface is wide enough for shared use among bicycles and vehicles. However, the angle and 90-degree parking still create a safety issue for bicyclists when vehicles are backing out. Of the sidewalks that exist on the minor streets, most are in poor condition and are not ADA accessible at the corners. The width of the sidewalks vary, with some as narrow as 3 feet. An inventory of sidewalks and their condition is detailed below; Exhibit 1.5 provides a graphic of the inventory.

3rd Street: new curb-tight sidewalks constructed on the east side of street from Mill Creek south to Denver Street. Accessible curb ramps across all new construction. Striped crosswalk at Chicago Street.

Angled parking within the right-of-way

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Boise Street: Sidewalks exist intermittently from 3rd Street to 2nd Street. Due to the large pavement width in the roadway to accommodate travel lanes and 90-degree parking, the sidewalks are nearly invisible. Paved sidewalk exists along the frontage of Burkland Park. Sidewalks also exist on both sides of Boise from 2nd Street to 1st Street; again, these are hidden beyond the large roadway shoulders.

Chicago Street: The sidewalk situation on Chicago Street mimics that on Boise Street: sidewalks exist along the entirety of Chicago Street but are hidden beyond the roadway shoulders. The block nearest 3rd Street contains curb-tight sidewalks on the north side of the street, and sidewalks exist adjacent to the businesses’ off-street parking spaces.

Denver Street: For its entirety, Denver Street contains new curb-tight sidewalks with well-designed curb extensions and ADA access ramps. A striped crosswalk is located at 1st Street and is well signed to alert motorists on Denver Street.

School Street: As a pedestrian leaves Denver Street for School Street, there are ADA access ramps and a striped crosswalk. North of Denver, there are no sidewalks on the west side of School Street, and a minor sidewalk exists beyond the business’ off-street parking spaces on the east side of the street. Another striped crosswalk exists at Chicago Street, directing pedestrians to the entrance of the Turner School building.

1st Street: Sidewalks only exist on 1st Street between Chicago and Boise streets. The remaining frontages are relatively flat with little landscaping and provide an intermediary pedestrian pathway.

2nd Street: Sidewalks exist along 2nd Street but are intermittent and of poor quality. Accessibility is compromised by the lack of ADA ramps and smooth transitions between adjacent property improvements. Along the eastern frontage of 2nd Street between Chicago and Denver, the building entrances do not meet ADA accessibility.

Existing Parking Inventory On-street parking exists on all streets in the downtown core, with the exception of the curve at Denver and 3rd Street. With the recent improvements to these two streets, parallel parking is available along the streets, truncated by curb extensions. The remaining streets have parallel parking available between building faces and the pavement edge within the 60 to 70-foot right-of-way. Along Chicago Street, the gravel shoulder is wide enough for drivers to take advantage of head-in angle and 90-degree parking. Where angle or 90-degree parking occurs, this compromises the pedestrian and bicycle routes. At the boundary of the travel lanes of each street, the remainder of the right-of-way is unclear and becomes a shared use facility among vehicular, pedestrian and bicycle modes, presenting potential safety issues.

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The study area does not have a designated city parking lot or park-and-ride area; however, public comment and the TSP recommend a public parking area at the northwest corner of 2nd and Denver. See Exhibit 1.5 for the approximate number of public parking spaces available throughout the study area. An inventory of existing on- and off-street parking is provided below:

3rd Street: parallel parking exists on the east side only. Adequate spaces available on the west side but property lines are unclear for drivers to make parking decisions with certainty.

Boise Street: wide gravel shoulders allow for parallel, angle, and 90-degree parking for the length of Boise Street. Parking spaces are not marked; however, the parking volume is low, so efficiency is not a necessary priority. Paved spaces are marked for 90-degree parking at the frontage of Burkland Park. Off-street parking is available using 90-degree spacing on the north side of Boise at the Turner Retirement Homes community property.

Chicago Street: Considered off-street parking, 90-degree spaces exist at the business frontages on the south face of Chicago between 3rd Street and 2nd Street. Spaces are clearly marked with striping. The north side of Chicago contains widened shoulders for parallel parking between the curb and travel lane. Chicago Street was flagged in the TSP (1999) as deficient in off-street parking for businesses. Since that time, the reroute of the main traffic pattern has affected some businesses, making the lack of off-street parking less dramatic. Redevelopment of the central properties in the downtown core will require additional off-street parking options.

Denver Street: As 3rd Street rounds to Denver, on-street parking is prohibited within the limits of the curve by a narrowing of the curblines. Approximately 130-feet east of 3rd Street, the curb extensions open to allow parallel parking along the entirety of Denver to approximately 130-feet east of School Street. The corner of each block face is bookended by curb extensions, defining the parking zones. The spaces are not striped. Off-street parking is provided for each property via a driveway drop in the curb and sidewalk. Several business offer off-street parking.

School Street: Paved on-street parking is available; the width of the street offers space for 90-degree parking on both sides of the street. Since the spaces are not striped; parking efficiency may be an issue during events at the school or swimming pool. In front of the Turner School on the east side of School Street, two spaces are designated for ADA parking. North of Chicago Street, 90-degree parking is available on the street; spaces are clearly marked.

1st Street: Between Denver and Chicago Streets, parking is available via driveways and parallel parking along frontages. North of Chicago Street, off-street parking is available using 90-degree and parallel spacing.

2nd Street: on-street parallel parking is available near Denver Street; though spaces are not striped, the existing curbs clearly define the adequate road width. Parallel parking is also

Page 12


utilized in the undefined shoulders of 2nd Street. Off-street parking is available via garage and driveway spaces. Off-street parking is also available using 90-degree spacing along the Burkland Park frontage.

An additional parking consideration is the needs of the elementary school and public pool now and into the future. School staff already overflows the parking area. If the pool service is expanded to year round use and/or if the school expands, there could be a parking shortage in the immediate vicinity for those uses. Opportunities and Constraints From the analysis of existing conditions the following opportunities and constraints have been derived and will be considered in the next steps of the Downtown Improvement Plan. Opportunities Downtown residents: The Turner Retirement Community and other residents provide a solid

population base to patronize new services and shops. Available land: Vacant parcels in the study provide space for infill and redevelopment. Vacant

properties can be evaluated early for public parking area feasibility. Enhancements on which to build: The realignment and improvement of 3rd & Denver Streets

provide great pedestrian and bicycle facilities on which to base further improvements. Employment uses: The industrial facilities bring people to the area. There is vacant land on

which to build additional employment uses. Infrastructure capacity: Growth is not hindered by the water and sewer systems.

Community amenities: The study area has several attractors within or adjacent to it, including the

elementary school and play fields, pool, and park. Large religious organizations/facilities: While just outside the study area, the Tabernacle and

Aldersgate organizations attract and host people from beyond Turner throughout the year, particularly the summer, bringing people to the area.

Mill Creek: Unbuildable land near the creek provides an opportunity to define public space

and/or trail system along the creek.

Page 13


Sidewalk improvements: There is ample right-of-way for sidewalk improvements. Additional bicycle facilities: Locate bicycle parking at destination areas.

Engage and interface with Marion County: Turner can be proactive and create partnerships with

Marion County. Create a civic presence: The available land and need for civic services downtown combine to

create an opportunity to create a civic presence in the downtown area. Review process: Use lower service development charges (SDCs) as an incentive for

development. Constraints and Needs Floodplain: Development within the floodplain downtown will be difficult. Levees need to be

replaced or upgraded to help relieve frequent flooding of the area. Limited through traffic: While limited traffic can be good for pedestrian and bicycle uses, limited

through traffic hinders the viability of some retail and other commercial uses. Cost of renovation: Several historic properties in the area are currently vacant and in need of

extensive repair and renovation. Truck traffic: The extensive truck traffic creates ongoing maintenance problems and degrades

the pedestrian and bicycle experience. Population: Additional Turner residents are needed to support more commercial activity.

Increase safety: Improve safety issues by increasing on-street parking efficiencies.

Water system additions: Incorporate water capital improvements with roadway improvements.

Maintenance: Conduct routine maintenance on the existing infrastructure to ensure longevity.

Proximity to Salem: Restricts ability to create Turner’s own market in terms of development

incentives. Price of utilities: The cost of utilities service can be prohibitive to small businesses.

Page 14


Exhibits The following maps graphically summarize much of the existing conditions in the study area. Exhibit 1.1 Existing Land Use Exhibit 1.2 Existing Comprehensive Plan and Zoning Designations Exhibit 1.3 Properties with Historic Value Exhibit 1.4 Key Project Area Attractors and Community Amenities Exhibit 1.5 Transportation Circulation and Parking Inventory

Mill Creek

3RD

ST

2ND

ST

1ST ST

CHICAGO ST

DENVER ST

ASH ST

BOISE ST

GASTON ST

4TH ST

ELGIN ST

FARGO ST

55TH AV

MARION RD

SCH

OO

L ST


0 300 600Feet

1 inch = 300 feet

Existing Land UseExhibit 1.1

Land Use

Residential

Office

Commercial

Industrial

Institutional / Public

Improvement Plan Boundary

Taxlot

Vacant Building

Vacant Land

Railroad

Mill Creek

3RD

ST

2ND

ST

1ST ST

CHICAGO ST

DENVER ST

ASH ST

BOISE ST

GASTON ST

4TH ST

ELGIN ST

FARGO ST

55TH AV

MARION RD

SCH

OO

L ST


0 300 600Feet

1 inch = 300 feet

Existing Comprehensive Plan and Zoning DesignationsDesignation







Taxlot

Vacant Building

Vacant Land

Railroad

Exhibit 1.2

Mill Creek

UV3

UV5

UV4

UV1

UV2

3RD

ST

2ND

ST

1ST ST

CHICAGO ST

DENVER ST

ASH ST

BOISE ST

GASTON ST

4TH ST

ELGIN ST

FARGO ST

55TH AV

MARION RD

SCH

OO

L ST


0 300 600Feet

1 inch = 300 feet

Properties with Historic ValueExhibit 1.3

Dance Hall1

Old Church2

Service Station3

Turner Memorial Tabernacle4

Turner Retirement Homes Davis Hall5

UV1

UV6

UV3

UV14

UV5UV2

UV13

UV9 UV11

UV12

UV8UV4

UV7

UV10

Mill Creek

3RD

ST

2ND

ST

1ST ST

CHICAGO ST

DENVER ST

ASH ST

BOISE ST

GASTON ST

4TH ST

ELGIN ST

FARGO ST

55TH AV

MARION RD

SCH

OO

L ST


0 300 600Feet

1 inch = 300 feet

Key Project Area Attractors and Community AmenitiesExhibit 1.4

Turner Plaza11

Turner Retirement Homes Activity Building12

Turner School14

Turner Memorial Tabernacle10

Turner Retirement Homes Davis Hall13

Burkland Park2

Caliber Forest Products Offices4

Community Pool5

Fire Station6

Pacific Sign & Screen Printing7

Turner Inn8

Turner Market9

Aldersgate Christian Camp and Conference Center1

Caliber Forest Products3

k

k

Mill Creek

")6")4

")7")6

")3")4

")4

")13

")10")6 ")14

")15

")10 ")14

")13")9

")12")8

")10")10

")10 ")8")6

")6")11")14 ")12

")10")20

")3

")19")19

")25")15

¬«5¬«4

¬«6

¬«3

¬«10

")12

SCHOOL

MARION RD

ELGIN ST

BOISE ST

ASH ST

DENVER ST

CHICAGO ST

1ST ST

2ND ST

3RD ST

4TH ST

55TH AV


0 300 600Feet

1 inch = 300 feet

Transportation Circulation and Parking InventoryStreet Classification

Major Arterial

Local Street

Designated Bicycle FacilitiesBike Lane

Low Traffic Street

Pedestrian ImprovementsExisting Crosswalk

Existing Sidewalk


k CARTS Bus Stop

k Public Parking Lot Site Recommended in TSP

Number of Parking Spaces

Exhibit 1.5

On-street Parking per Block Face")6Off-street Parking per Surface Lot¬«5

Appendix B

Memorandum No. 2 – Redevelopment Potential

Turner Downtown Improvement Plan Memorandum #2 – Redevelopment Potential

Turner Downtown Improvement Plan Final Memorandum #2 – Project Area Redevelopment Potential December 12, 2008


Phone (503) 635-3618 Fax (503) 635-5395

Project Team:



Brendan Buckley

Johnson Gardner , LLC

The attached memorandum prepared by Johnson Gardner addresses the redevelopment potential of Downtown Turner and incorporates comments received from the Project Advisory Committee Meeting #1. Submission of this memorandum satisfies, in part, subtask 2.8 of the Work Order Contract. Attachments Johnson Gardner Memorandum: Final Analysis of Redevelopment Potential, Downtown Turner

To: David Sawyer, City Administrator, TurnerNaomi Zwerdling, Senior Planner, ODOT



Subject: Final Project Area Redevelopment Potential Deliverable 2.H Turner Downtown Improvement Plan

319 SW Washington Street, Suite 1020 Portland, OR 97204 503/295-7832 503/295-1107 (fax)

MEMORANDUM

DATE: December 10, 2008 PREPARED FOR: The City of Turner, Oregon 7250 3rd Street SE

Turner, OR 97392 FROM: JOHNSON GARDNER, LLC SUBJECT: Analysis of Redevelopment Potential, Downtown Turner This memorandum addresses the redevelopment potential of the Downtown Turner area, which serves as the current and historical commercial node for the small but growing community of Turner, Oregon. This memo is one component of a larger multi-disciplinary project considering the revitalization of the Downtown from urban planning and economic perspectives. The project is funded by the SAFETEA-LU act, with additional support from the State of Oregon through the Transportation & Growth Management program. This memo provides analysis of the current and projected redevelopment potential in Downtown Turner based on demographic and market conditions in the area, and the economics of real estate development. The memo is organized as follows:

I. EXECUTIVE SUMMARY

II. MARKET CONDITIONS

III. RETAIL MARKET CONDITIONS

IV. REAL ESTATE AND REDEVELOPMENT MARKET CONDITIONS

V. POTENTIAL AREAS OF FOCUS

VI. REGULATORY IMPACTS ON REDEVELOPMENT

VII. CONCLUSIONS

I. EXECUTIVE SUMMARY Based on our analysis of market conditions in and around Downtown Turner we find positive indicators for the addition of new business over the coming years. The following is a summary of the conclusions presented in this report:

DOWNTOWN TURNER – ANALYSIS OF REDEVELOPMENT POTENTIAL PAGE 2

JOHNSON GARDNER foresees the potential for the robust growth rate that Turner has experienced since 2000 to continue into the future. As the community grows with new households, there will be greater demand for small-scale retail and commercial services serving the local area.

Households in the area tend to have a relatively high average income for Marion County, and have significant buying power. Currently, most of this spending is taking place outside of the Turner area. Some retail categories require larger markets to freeway locations, and are therefore not realistic in Turner. But there is still excellent potential for businesses in Turner (existing and new) to catch a share of the spending that is currently “leaking” out of the community.

JOHNSON GARDNER estimates that Turner could support roughly 10,000 to 15,000 square feet of new business over the next ten years. These business would be located both in existing and new commercial properties.

The lack of recent property sales in the Downtown area complicates the task of estimating land and property values. The presence of vacant land and structures denotes a current shortage of economic uses for these properties, which depresses achievable values and rents through oversupply.

Under the current conditions, redevelopment in central Turner is likely to take the form of rehabilitation and reuse of existing properties, as the most cost effective way to provide rentable space.

As Turner grows, new development will become more feasible. In the near future, new development in Downtown Turner is likely to be single-story, wood-frame construction, reliant on surface and/or street parking for customers and employees. Two-story structures are possible, and will become more likely as central Turner builds new commercial activity over the long-term, which will spur the need for more density.

We recommend that 2nd Street between Boise Street and Denver Street remain the focus of town center planning efforts, as recommended in the 2002 Resource Team Report. In addition, the larger vacant parcel at 3rd and Chicago owned by the mill operation offers a possible redevelopment site. Due to the limited amount of commercial activity in central Turner, either could bring needed services and shopping options, however each development scenario may also slow the realization of the other.

The “General Commercial Zone” is flexible enough to allow for a range of retail and office development in the Downtown area. One of the simplest ways for a local government to encourage development is to remove uncertainty and subjectivity from the permitting and approval process, to the greatest extent possible. A well-defined, formal application and review procedure removes costly time and uncertainty for developers and makes them aware of the standards they must meet, the documents they must provide, and how the process will precede.

The community should also consider how public investment, from street improvements to a new City Hall, can strategically focus attention of private business and developers on key blocks.


II. MARKET CONDITIONS This study focuses primarily on the development of commercial uses in the Downtown area, and therefore the market area considered is the geography from which prospective customers might be expected to travel into Turner in order to visit small-scale retail and commercial services. The area selected includes the limits of the City of Turner, but also beyond, constituting roughly a five-minute drive time to the center of town. The following map presents the Primary Market Area:

FIGURE 2.1: PRIMARY MARKET AREA

Primary Market Area

The market area is truncated at roughly half the distance to the I-5 freeway to the west, and half the distance to Aumsville to the east. The market area stops at the city limits to the north, due to the significantly stronger “draw” of retail options in Salem – households living north of Turner will be expected to visit Salem for a preponderance of their retail needs.


Market Area Household Characteristics The following table presents the household demographic characteristics from the market area.

FIGURE 2.2: HOUSEHOLD DEMOGRAPHICS, PRIMARY MARKET AREA Household Trends 2000 2008 Growth Rate 2013 Growth Rate

(Census) (Est.) 00-08 (Proj.) 08-13

Population 1,601 2,172 3.9% 2,621 3.8%Households 630 865 4.0% 1,048 3.9%Families 454 624 4.1% 755 3.9%Housing Units 662 911 4.1% 1,105 3.9%

Household Size 2.54 2.51 -0.1% 2.50 -0.1%

Sources: Claritas Inc., JOHNSON GARDNER LLC Note that the estimated population in the City of Turner was 1,690 in 2007 (PSU Population Research Center). Because the market area extends beyond Turner city limits it includes roughly 400 additional people in roughly 170 additional households. The market area has an average household size roughly equal to the statewide average, but smaller than the Marion County average household size (2.51 people compared to 2.72 in the county). Growth: Turner has long maintained a stable population, hovering around 1,200 people between 1990 and 2000. Census data indicates that the community may have even shrunk slightly over that time. However, the upgrading of sewer and water infrastructure in 2000, has allowed the community to begin growing a brisk pace during this decade. The city itself grew at an estimated 5% per year between 2000 and 2008, while the overall market area grew at a still robust 4% per year. Given the pleasant rural landscape and hills that surround Turner, it can be expected to remain an attractive community for households employed in the immediate area, as well as in Salem and the elsewhere in the I-5 corridor. JOHNSON GARDNER projects it will continue to grow at a similar robust pace over the next five to ten years. The large mixed-use development planned on the former quarry site in north Turner would account for much of this five-year growth by itself. The recent growth and projected future growth will greatly benefit the viability of small-scale retail and commercial services in Turner over time. Income Characteristics The following table presents income characteristics from the market area.

FIGURE 2.3: HOUSEHOLD INCOME STATISTICS, PRIMARY MARKET AREA Income Trends 2000 2008 Growth Rate 2013 Growth Rate

(Census) (Est.) 00-08 (Proj.) 08-13

Per Capita ($) $23,127 $26,493 1.7% $28,943 1.8%Median HH ($) $43,611 $49,121 1.5% $55,195 2.4%Average HH ($) $58,291 $66,591 1.7% $72,273 1.7%

Sources: Claritas Inc., JOHNSON GARDNER LLC


The Turner area enjoys relatively high household incomes relative to Marion County and the State of Oregon. The median household income is roughly 5% higher than the county median, and 3% higher than the state median. The disparity is even greater for the average (mean) household income, which is 16% higher in the Turner area than the rest of Marion County. In general, one would expect to find below average income levels in small-city, semi-rural locations, and above-average income levels in larger cities, due to cost of living disparities. The relatively high income levels in Turner suggest that the community serves as a bedroom community for above-average earners from the broader area, many employed in Salem. 2006 data from the U.S. Census Bureau reports that 42% of Turner area residents were employed in Salem, and over 30% were employed outside of Marion County. Other than Salem, a majority of residents were employed in the unincorporated areas of Marion County surrounding Turner, and in Aumsville and Stayton. The data suggest that relatively few local residents are actually employed in Turner. A majority of employees at local businesses commute to Turner from out of town, according to the Census. In 2006, there were an estimated 390 jobs in Turner – 36% filled by Salem residents, 6% by Keizer residents. The Census reports that only around 2% of these jobs are filled by Turner residents. However, the largest share of these jobs (43.4%) is filled by residents of “other locations” which includes the county lands surrounding Turner, so many of these employees may live very close to the city. As with the strong growth rate, the relatively high income levels of local households are a positive indicator for the viability of future retail and commercial services in Turner.

III. RETAIL MARKET CONDITIONS Retail is sometimes described as working on a “gravity model”, where larger clusters of shopping and service options exert more “gravity” on prospective customers than smaller nodes of retail. In general, a customer will not drive past one retail option in order to reach what they see as an equal or lesser retail option. The retail and service options located in South Salem, particularly around the I-5, Santiam Highway intersection exert significant gravity on the households in the Turner market area, offering the nearest options for full-service grocers, discount stores, home supply stores, clothing, and general merchandise. The location in the larger Salem market, and near major transportation routes, makes it natural for a large-scale commercial agglomeration. The City of Turner, being located off of a major freeway or highway, and featuring a modest but growing population is a difficult environment for large- or medium-scale retail. Traffic through Turner is largely local, as even other small cities in the area, such as Aumsville, have a more direct route in the Santiam Highway which takes them around Turner. Therefore, Turner is a good location for small-scale retail and services which serve the residents and employees in the immediate Turner area. (The market area used in this analysis is delineated to include roughly a five minute drive time from Downtown.)


Current Retail Conditions Downtown Turner is currently the center for the city’s commercial activity. Current retail operations in Downtown Turner include:

Turner Market, convenience and small goods store Turner Inn, tavern and restaurant M.T.A. gas station and auto shop Best Buys Flooring company True Reflections beauty salon A home-based nursery operation

There were no commercial services identified in the Downtown area, though there are some non-profit and/or faith-based services in the area. In the past, Turner supported a more intensive historical Downtown, which has since disappeared under waves of redevelopment. The existing businesses provide a good core of commercial activity in central Turner. They are all located relatively near each other on Chicago and Denver Streets. There are, however, multiple vacant buildings, or vacant lots scattered throughout the study area. The presence of inactive space changes the retail environment, and affects the economics of redevelopment (discussed in more detail below). Household Retail Spending and “Leakage” An analysis of spending by local households offers a snapshot of how much of their retail business is being conducted inside Turner, and how much outside of Turner. This is an indicator of the spending power that new businesses in Turner can hope to tap into. The following data on household spending is provided by Claritas Inc. market research firm. The first column represents all the spending done by households residing in the market area. The second column presents the amount of spending actually done within the market area itself. It is estimated that area households spend more than $25 million per year. This represents significant buying power that new businesses in Turner can seek to tap.

FIGURE 3.1: HOUSEHOLD SPENDING, TOTAL & IN MARKET AREA Turner Share of Turner Share of

Household Overall Trade Area HHNAICS Category Spending Spending Sales Spending

441 Automotive Parts, Accessories & Tire Stores $6,412,062 25% $252,633 4%442 Furniture & Home Furnishings Stores $762,846 3% $278,701 37%443 Electronics & Appliance Stores $705,019 3% $0 0%444 Building Materials & Garden Equipment $3,505,011 14% $248,367 7%445 Food & Beverage Stores $3,839,835 15% $707,754 18%446 Health & Personal Care Stores $1,567,217 6% $0 0%448 Clothing & Clothing Accessories Stores $1,272,877 5% $0 0%451 Sporting Goods, Hobby, Book & Music Stores $553,705 2% $0 0%452 General Merchandise Stores $3,631,440 14% $1,437,977 40%453 Miscellaneous Store Retailers $799,160 3% $394,589 49%722 Foodservices & Drinking Places $2,751,257 11% $192,984 7%

Totals/Weighted Averages $25,800,429 100% $3,513,005 14%

SOURCE: Claritas, Inc. and Johnson Gardner, LLC

Existing Population Retail Spending 1/


Meanwhile, there is roughly $3.5 million in retail spending within the market area itself (spending both by local households and outsiders). While the Claritas data provide a good general snapshot, there is reason to believe that the amount of spending found within the market area is actually overstated. In particular, Claritas found large amount of spending in the “warehouse club/superstore” category, and the “home furnishings” category. It seems likely that spending data from larger stores in the Salem area is bleeding into these numbers. Therefore the amount of spending taking place in Turner is likely even a good deal less than the amount shown here. Either way, the difference between overall household spending and the spending taking place locally is large, and it is an indicator of the amount of business “leaking” from the area. In truth, it is very difficult for any local area to capture all, or even a majority of the spending by local households, be it in a small town or a neighborhood in a large city. The variety and quantity of household expenditures is too great. However, capturing even a modest share of the spending that is leaving the area can amount to a significant amount of business, particularly in a smaller market. The following table presents the amount of spending leaking from the area (overall spending minus spending within the trade area). It also converts the leakage into an estimated amount of retail floor space, based on statistics of average sales figures per square feet.

FIGURE 3.2: RETAIL SPENDING LEAKAGE OUT OF THE AREA, AND ESTIMATED SPENDING RECAPTURE

Trade AreaSpending Total Recapture Recapture

NAICS Category Leakage Factor 2/ 100% 10% 25%

441 Automotive Parts, Accessories & Tire Stores $6,159,400 $169 36,400 3,600 9,100442 Furniture & Home Furnishings Stores $484,100 $211 2,300 200 600443 Electronics & Appliance Stores $705,000 $244 2,900 300 700444 Building Materials & Garden Equipment $3,256,600 $156 20,900 2,100 5,200445 Food & Beverage Stores $3,132,100 $380 8,200 800 2,100446 Health & Personal Care Stores $1,567,200 $280 5,600 600 1,400448 Clothing & Clothing Accessories Stores $1,272,900 $264 4,800 500 1,200451 Sporting Goods, Hobby, Book & Music Stores $553,700 $237 2,300 200 600452 General Merchandise Stores $2,193,500 $169 13,000 1,300 3,200453 Miscellaneous Store Retailers $404,600 $234 1,700 200 400722 Foodservices & Drinking Places $2,558,300 $287 8,900 900 2,200

Totals/Weighted Averages $22,287,400 $208 107,000 10,700 26,700

1/ Claritas, Inc. for the Turner market area

SOURCE: Claritas, Inc. and Johnson Gardner, LLC

2/ Average retail sales per square feet of retail space, based on national averages derived from "Dollars & Cents of Shopping Centers," Urban Land Institute, 2004, adjusted to 2008 dollars

Existing Population Retail Spending 1/ Sales Support

Existing Retail Space Leakage (Sq.Ft.)

There is an estimated $22 million in spending leaking from the area, representing an estimated 107,000 square feet of potential business. If Turner were to capture just 10% of this spending, it might support roughly 10,500 square feet of additional business in the area.


Additional Spending Activity In addition to local households, there are additional sources of potential spending in Turner, including year-round employees and visitors to the local faith-based meeting and retreat centers. As noted above, there are an estimated 400 employees in Turner, most of who live outside of the city. Therefore there is limited overlap between these employees and local resident households. The retreat centers in Turner, and just outside of Turner, attract an estimated 6,000 adults throughout the year, mostly on weekends, in addition to 1,700 youth during the summer weekdays. These employees and visitors all represent important potential customers for retail options in Turner, particularly new dining options. Affordable and relatively quick lunch dining options are the most likely to tap into local employee spending. Growing Into Retail The best way to think about this potential spending is not that the Turner community should attempt to capture large portions of it all at once, but rather that this supports a healthy reservoir that strategic small businesses can take advantage of over the next five to ten years. Combined with the projected growth in the number of households over this time, there is good potential to generate new business in Downtown Turner over that timeframe. (Retail needs and preferences of the Turner community are being surveyed as part of the larger revitalization project and will be reported separately. The results presented here will be compared with preferences to provide context.)

IV. REAL ESTATE AND REDEVELOPMENT MARKET CONDITIONS Real estate development in central Turner has been a slow and steady affair for years if not decades. The city maintained a very stable population before completing improvements to its water and sewer infrastructure in 2000. Since then, the community has experienced residential growth, and some employment growth, mostly in the light-industrial, manufacturing sectors. Even after recent growth, however, an inventory of the Downtown area reveals multiple vacant or underutilized properties in the area. Prominent examples are the former bank building built at the corner of 3rd and Boise in 1978, the former gas station at the southwest corner of 2nd and Chicago, and the two-story building across the street attached to the auto garage. The selection of vacant structures offers location opportunities for prospective new businesses in central Turner. It can also complicate the feasibility of building new commercial space, if it has to compete with cheaper existing vacancies for tenants. Sales Activity A search of the Regional Multiple Listing Service returned no records of commercial property sales in the recent past. Activity in the area consists largely of sales of single family homes, industrial properties along the 3rd Street corridor, and some land purchases for subdivision. There has been one recent sale in the Downtown area, of a previous residential home, which has been converted into office space (roughly across the street from the Turner Inn). The building sold in 2007 for below the assessed real market value of the Marion County assessor’s office.


Marion County tax lot records document two fairly recent sales of adjacent properties. One is the former gas station property on the southwest corner of 2nd Street and Chicago. The county lists an “unconfirmed sale” of this property in August 2007. The adjacent parcels to the south, which house an older garage structure and parking lot were sold in 2005. These sales support an estimated value of commercial land in central Turner of $5.25 per square foot. This estimate was used as a guide to assess the feasibility of different development types in Turner, discussed more below. The low number of recent property sales in the Downtown area complicates the task of estimating land and property values. The presence of vacant land and structures denotes a current shortage of economic uses for these properties, which depresses achievable values and rents through oversupply. Feasibility of Development Under the current conditions, redevelopment in central Turner is likely to take the form of rehabilitation and reuse of existing properties, as the most cost effective way to provide rentable space. Some properties, like the former bank building, will be close to tenant-ready, while others, such as the former gas station, would require some level of renovation to be suitable for a new use. As noted, the Downtown area fortunately has sufficient buildings available to accommodate some new business at this lowest cost of entry. In order for complete teardown and redevelopment to be economically feasible, the value of the property (land & building) must be low enough that the buyer can pay that price in order to only use the land. Therefore, a property may have an old and vacant structure on it, but that structure may still retain just enough intrinsic value to make the entire property too expensive to purchase just to reuse the land. The following table presents a general picture of the types of redevelopment, from the least expensive to the most expensive. The specifics of every individual project are always unique, so this is just a general picture. (One important caveat is that saving and reusing buildings can be more expensive than new construction depending on the level of deterioration.)

FIGURE 4.1: TYPES OF REAL ESTATE REUSE OR REDEVELOPMENT

1 Release of existing vacant commercial space2 Substantial interior renovation/rehabilitation of existing commercial space3 Substantial interior and exterior renovation/rehabilitation4 New development on vacant land5 New development on vacant land, after teardown

Economic Reuse (Least to Most Expensive)

Source: JOHNSON GARDNER

JOHNSON GARDNER anticipates re-leasing of existing space, and some renovation to be the most likely commercial real estate activity in Turner for the next five years. More intensive renovation and new development will become more feasible after some additional commercial activity is generated.


Likely Form of New Development As Turner grows, new development will become more feasible. Currently, estimated land costs in central Turner are quite low making new construction somewhat feasible. However, achievable rent levels and the supply of existing space will make it difficult for the development of new commercial space to pencil out. As business activity increases and available space is reused or retired, land values can be expected to climb. This will be a positive indicator that the business climate has improved, and higher lease rates are possible. For the foreseeable future, if new development occurs in Downtown Turner it is likely to be single-story, wood-frame construction, reliant on surface and/or street parking for customers and employees. Two-story structures are possible, and will become more likely as central Turner builds new commercial activity over the long-term, which will spur the need for more density. Single story wood-frame construction allows for a range of attractive design types including the classic storefront architecture found in many small historical downtowns. As two-story construction becomes feasible in the future, mixed-use buildings will be possible, with office use over retail being the most likely. Residential use encounters more conflicts with ground-floor commercial uses, and with the current selection of residential options in Turner, residential flats are unlikely for the foreseeable future. New residential uses can become more feasible as the area develops new amenities, shopping and dining choices.

V. POTENTIAL AREAS OF FOCUS The project area examined in this study includes roughly 10 blocks in central Turner, along the east/west axis of Chicago and Denver Streets. The area is bounded by School Street to the east, and 3rd Street to the west, but also includes a largely vacant parcel of land on the northwest corner of Chicago and 3rd Streets. This parcel of roughly two blocks is owned by the Caliber Forest Products operation located across Chicago St. to the south. This study area includes a majority of the existing commercial activity in central Turner, including the Turner Market, Turner Inn, gas station, and Turner Plaza, which houses multiple businesses. Our assessment of the current retail and real estate conditions suggests that the community should expect commercial development in Turner to happen slowly and incrementally. While any commercial development in the Downtown will be a positive sign, the more closely that commercial activity is “clustered” the better to kindle subsequent activity. 2nd Street vs. Denver Street The recent realignment of the Denver/3rd Street intersection allows truck traffic to move more smoothly and quickly through the Downtown area. However, it has also shifted some traffic off the traditional route onto Chicago and 2nd Street, which brought prospective customers past the Turner Market and Turner Inn.


Retail activity thrives best on well-trafficked routes. This includes pedestrian and bike traffic, but automobile traffic is important, and cars and customer parking should never be eliminated from a retail district if it is expected to do well.

FIGURE 5.1: POTENTIAL AREAS OF FOCUS FOR REDEVELOPMENT

DOWNTOWN TURNER

2nd Street focus areaDenver Street focus areaMill Property focus area

When we consider the best location in Downtown Turner for hypothetical development to occur, there are three related but different visions to choose from. The three are presented below, and then compared and recommendations are presented: The first vision was presented in the Resource Team Report prepared for Turner by the Oregon

Downtown Development Association in 2002.

This report recommended focusing on 2nd Street between Boise Street to the north, and Denver Street to the south. A vision was presented of new and rehabilitated storefronts, complimented by civic uses, creating two active blocks in the center of town. At the time the Resource Team Report was written, traffic from 3rd Street to Denver was still mostly diverted onto Chicago St. and 2nd Street, increasing the visibility of businesses on these blocks. This is no longer the case. Despite this, there is still much to support this area for future commercial cluster.

The second area of consideration is the western end of Denver Street roughly between 1st and 3rd

Streets. This area benefits from increased traffic, meaning better visibility for businesses located


here. Over the long term this area could fill in with additional businesses creating a small shopping street as the main commercial cluster in Downtown Turner.

There are some disadvantages to this scenario, however. Current commercial uses in this area are somewhat dispersed, and separated by residential uses. For economic reasons discussed in the following section, there is no compelling reason to expect redevelopment of the homes along this stretch in the foreseeable future. Given this case, the vision of enough business development along these blocks to create a true town center atmosphere may be a long-term aspiration, requiring many decades of community growth.

The last potential area of focus is the large, mostly vacant parcel at the northwest corner of 3rd

and Chicago Streets. This parcel is owned by the adjacent mill operation, and owners have expressed interest in redeveloping in the past.

The combination of a large parcel with an interested owner, make this a compelling opportunity to develop a modest commercial center all at once, rather than relying on piecemeal redevelopment along 2nd or Denver Streets. Commercial space on this parcel could be oriented towards the corner of 3rd and Denver, creating a clustering affect with the Turner Market across the intersection, as well as the bank building across 3rd Street (currently vacant).

Comparison of Potential Redevelopment Areas Private real estate development tends to occur piecemeal and in a sometimes unpredictable sequence, due to the differences in ownership, property condition, value of the current use, etc. It is important to keep in mind the limitations the public sector faces in causing development to occur in any preferred manner. However, visioning and planning is an essential city function, and provides a framework to imagine and guide community growth. Turner should consider these potential redevelopment possibilities, and consider how future civic building investments, street improvements, and other public investment might influence development choices in the future. In considering the three potential scenarios described above, JOHNSON GARDNER recommends

continued focus on 2nd Street between Boise and Denver for commercial planning purposes. This is a compact area, with existing vacant parcels and buildings and a history of commercial use. It provides a small canvass on which to focus attention.

While Denver Street would not be the focus, any future commercial development on this strip would of course be beneficial to the overall Downtown core. For planning purposes, the property at the northwest corner of Denver and 2nd, which currently features a surface parking lot and vacant warehouse structure, would be a key location to tie Denver and 2nd together.

To improve the business environment, public improvements should be considered which continue to encourage car traffic to turn onto Chicago and 2nd Streets, rather than turning directly onto 3rd from Denver and vice versa. That intersection could perhaps be emphasized as a truck route.


Future civic improvements, such as a new City Hall, police station, library, or the like should be focused around these blocks to compliment the commercial businesses and generate visitors and activities in the area.

The large mill parcel at 3rd Street and Chicago Street presents a different sort of opportunity, which is the development of a significant amount of new commercial space at once, in one location, rather than gradual redevelopment of multiple parcels. Given the estimated amount of commercial square footage that can be absorbed in Turner over the next decade, such a development may well account for most or all of it, dampening the prospects for other commercial properties. At the same time, it could bring new retail and services to Downtown and is still located near the current commercial hub which includes the market and Turner Inn.

This redevelopment opportunity at the large mill-owned parcel, and the potential for redevelopment along 2nd Street must be understood to exist in tandem. Due to the limited amount of commercial activity in central Turner, either could bring needed services and shopping options, however each development scenario may also slow the realization of the others.

VI. REGULATORY IMPACTS ON REDEVELOPMENT Zoning A review of the City of Turner Development Code does not reveal any significant regulatory barriers to redevelopment in central Turner. The “General Commercial Zone” is flexible enough to allow for a range of retail and office development in the Downtown area. The City employs brief code language to establish permissible uses and basic development standards, followed by Site Plan Review and Planning Commission review of development specifics. The larger parcel, owned by the mill operation, is currently zoned M1 for industrial use. For a retail/commercial development to happen here would require a rezone to allow this use. Site Plan Review Plan review is an important city function which ensures that new development meets the community’s standards and goals. It is important to remember that for a private developer, the time spent in review and receiving the applicable permits quite literally costs money. The property under development is often secured with a loan, or with an option-to-purchase which the developer must pay even in the predevelopment phase. Therefore, one of the simplest ways for a local government to encourage development is to encourage transparency and predictability in the application, review and permitting process to the greatest extent possible. The current process in Turner is somewhat informal, without clearly defined standards for the development itself, and for the materials the applicant is expected to provide. A more formal, well-defined process would help create predictability and remove subjectivity from the review process for developers. The creation of new standards, forms, and procedures should still be balanced with the need to keep the process as streamlined as possible. Particularly in a slow development environment such as Turner, it is best to send the signal that the process will be as efficient as possible. Public Investment Decisions Finally, the investment decisions made by the city, county or other local jurisdiction can affect private redevelopment decisions. This can be through direct incentives, such as waivers of


development fees, development subsidy programs or the like, but these measures are hard to achieve in smaller communities due to funding issues. A simpler approach is to ensure that the public improvement decisions that are made focus on the areas where the community would like to see redevelopment take place. Decisions from where to plant street trees or install a bench, to where to locate a new City Hall should take a strategic look at where you would like to focus attention of the private business and development communities.

VII. CONCLUSIONS JOHNSON GARDNER foresees the potential for the robust growth rate that Turner has

experienced since 2000 to continue into the future. As the community grows with new households, there will be greater demand for small-scale retail and commercial services serving the local area.


JOHNSON GARDNER estimates that Turner could support roughly 10,000 to 15,000 square feet of new business over the next ten years. These business would be located both in existing and new commercial properties.

The lack of recent property sales in the Downtown area complicates the task of estimating land and property values. The presence of vacant land and structures denotes a current shortage of economic uses for these properties, which depresses achievable values and rents through oversupply.

Under the current conditions, redevelopment in central Turner is likely to take the form of rehabilitation and reuse of existing properties, as the most cost effective way to provide rentable space.


We recommend that 2nd Street between Boise Street and Denver Street remain the focus of town center planning efforts, as recommended in the 2002 Resource Team Report. In addition, the larger vacant parcel at 3rd and Chicago owned by the mill operation offers a possible redevelopment site. Due to the limited amount of commercial activity in central Turner, either could bring needed services and shopping options, however each development scenario may also slow the realization of the other.

The “General Commercial Zone” is flexible enough to allow for a range of retail and office development in the Downtown area. One of the simplest ways for a local government to encourage development is to remove uncertainty and subjectivity from the permitting and approval process, to the greatest extent possible. A well-defined, formal application and review procedure removes costly time and uncertainty for developers and makes them aware of the standards they must meet, the documents they must provide, and how the process will precede.


The community should also consider how public investment, from street improvements to a new City Hall, can strategically focus attention of private business and developers on key blocks.

Appendix C

Community Shopping Survey

Turner Downtown Improvement Plan Memorandum

Turner Downtown Improvement Plan Survey Response Report December 31, 2008


Phone (503) 635-3618 Fax (503) 635-5395

Project Team:



Brendan Buckley


The attached report prepared by Johnson Gardner provides the results of the Community Shopping Survey for both residents and employees and incorporates comments received on the draft version. Submission of this memorandum completes subtask 2.8 of the Work Order Contract. Attachments Johnson Gardner Report on Survey Results

To: Naomi Zwerdling, Senior Planner, ODOTDavid Sawyer, City Administrator, Turner



Subject: Final Survey Report Deliverable 2.H Turner Downtown Improvement Plan


MEMORANDUM

DATE: December 29, 2008 PREPARED FOR: The City of Turner, Oregon 7250 3rd Street SE

Turner, OR 97392 FROM: JOHNSON GARDNER, LLC SUBJECT: Report on the Results of Surveys of Turner Residents and Employees

Report on Survey Results This memorandum discusses the results of a brief survey administered to residents and employees in Turner, Oregon. This memo is one component of a larger multi-disciplinary project considering the revitalization of the Downtown from urban planning and economic perspectives. The project is funded by the SAFETEA-LU act, with additional support from the State of Oregon through the Transportation & Growth Management program. The survey was designed to gauge the interest of local residents and employees in various small-format retail and commercial service categories in the Downtown Turner area. The survey was distributed to Turner residents by mail, and to local businesses which agreed to participate. There were 155 responses from residents and 73 responses from the employees of local businesses. While the surveys for residents and employees are similar to each other, they do differ somewhat. The responses from residents and employees are presented separately below, with brief discussion of the significance of the results. Summary of Conclusions

There is strong interest among both residents and employees in Turner for more retail or commercial service options.

Most agree it is needed or “desperately needed.” Only a small percentage feel that no more options are needed.

Most respondents live within walking distance of central Tuner. When ranking potential retail/service types, residents have fairly well distributed preferences.

Food service options, a bank, drugstore, or hardware store were the most preferred. In additional comments the need for a grocery store, fast food and a full-service library were cited.

Employees tend to rank any potential new food service options highly, and other types of retail/services less so.

DOWNTOWN TURNER – REPORT ON SURVEY RESULTS PAGE 2

Survey of Turner Residents Number of responses: 155 1) How many people are in your household?

27%

48%

8%

8%

8%

One person

Two people

Three

Four

Five or more

Most respondents (75%) were from one or two person households. This may indicate a disproportionate response from the retirement community in central Turner. 2) How far do you live from Downtown Turner (3rd and Denver area):

73%

27%

Walking distance

Driving distance

Most respondents live within what they consider walking distance from central Turner. Presumably most of the remaining respondents live within a very short drive of central Turner. 3) How interested would you be in additional retail and service options in Downtown

Turner?

59%30%

5%4% 2%

Very interested

Interested

No opinion

Would rarely visit

Would never visit


A majority of residents reported being “very interested” in new commercial options in Downtown Turner. A total of 89% reported being “interested” or “very interested.” Only 6% indicated that they would rarely or never visit new retail or service options. 4) Which best describes your opinion about retail and service options in Turner?

48%

39%

6%5%

2%

Desperately need more retail

More would be nice

No strong opinion

I don't need more retail

Turner doesn't need more retail

Nearly 50% of respondents felt that Turner “desperately” needs more retail. A total of 87% were favorable or very favorable. Only 7% felt that Turner doesn’t need additional retail options. Combined with the results of Question 3, we see strong interest and an identified need for additional retail and service options among residents. Preference for Specific Retail and Service Categories Residents were asked to rank the specific retail and service types listed in the table below from 1 to 15 in order of greatest preference. The results have been weighted to give the greatest weight to first place votes and the lowest to last place votes. The results show a fairly even distribution across categories. “Bank Services” and “Full Service Restaurant” have the most reported interest. However, a closer examination shows that 4 of the top 6 categories are food service options. Residents report a high likelihood of using these options if they were available. While the bank option is popular, only 66% of respondents said they’d be likely to frequent such a business. A drugstore and hardware store are also ranked fairly high, with residents reporting that they would likely shop there.


Preference for Specific Retail and Service Categories

Bank Services 10% 66%Full Service Restaurant 10% 91%Sandwich/Lunch Restaurant 9% 94%Café/ Coffee Shop 8% 86%Drugstore 8% 83%Pizza Shop 7% 85%Hardware Store 7% 83%Video Rental 6% 58%Garden/Farm Supply Shop 6% 79%Medical Office 6% 36%Unisex Hair Salon 5% 37%Dental Office 5% 36%Christian book and supply store 5% 48%Insurance Services 5% 8%

2nd Hand / Consignment Shop 4% 67%

* Of those who responded.

Retail CategoryWeighted Interest

Would you shop here? (% Yes)*

Other Resident Comments Residents offered a wide variety of other comments summarized below. The preferences mentioned the most often were the desire for a full-sized grocery store, competitive gas stations, a fast food option, and a library. Comments and preferences are listed below in the order they were compiled.

2nd hand books

Antiques/collectibles

Bakery

Grocery store (20)

Bi-Mart

Car wash

Gas stations (8)

Dry cleaner

Fast food (10)

Garden produce

Gun smith

Gym/ health club

Quilt or fabric shop

Red Box video rental


Lumber yard

Roller rink

Public transportation

Youth center

Arcade for kids

Auto/truck repair

Car lot

Community center

Dollar Stores

Farmers market

Ice cream shop

Lawn mower repair

Library (6)

Mexican food restaurant

Motel

Oriental restaurant

Pet grooming

Veterinarian One strip mall would accommodate all the goods and services I have indicated. Most people I believe (myself

included) would frequently shop at a central place, strip mall. 24 hr market, 24 hr gas station, movie/dinner theater (northern lights style), indoor swimming pool, athletic

club (Courthouse), golf course All of these businesses listed would be a great asset. Transportation of some kind - those of us who no longer

drive are pretty well stranded. Thank you for all you have done. Looking forward to some of these suggestions

All or anything would be good - I know you are trying hard to get our town going. I appreciate your efforts! Automotive repair, café with daily specials for breakfast, lunch, dinner. Any business is going to have a hard

time competing when we have a Wal-mart on Mission Street in Salem. Need cooperation from property owners in downtown section to lower their rent. No business can get started if renting or leasing fee is so excessive.

Clothing boutiques, general retail bookstore, large grocery store, library, ice cream parlor, sports park, car wash

Computer repair Dance classes or exercise classes for kids and adults; maybe even as a Chemeketa Community College

location. Day care center or Montessori school Desperately need library services!! If Turner could negotiate an arrangement with Salem Library for full

service access it would greatly improve my quality of life. Currently only 1 book or tape at a time is too restrictive! A 20 minute drive to North Salem is required to return one book and get another. Could Turner find a better arrangement for Library Services?

Drop box to pay phone bills/garbage bills (we do not have a computer!!) How about and "old fashioned" drug store that would have a counter and stools - selling milk shakes--cokes--a friendly place where kids, parents, grandparents could meet?

Have already had all the choices but they did not get enough support to stay here; too close to Salem

I really appreciate CARTS service, Our thoughts and prayers are with this community.

Knick, knack shops (like Sisters, OR), chocolate shop

Large chain like Safeway, Roth's, or Alberstons. If this was included on the list would be my No. 1

Local family doctor of ophthalmology


Organic grocery; not so expensive place to eat; coffee shop like "Rosie's" in Mill City sit down, not drive through - that would be great, instead of driving into Salem for a date night with my husband

Place for family's and/or kids to gather Public basketball court/tennis court/picnic area. It would be nice to have a place to eat after a ball game at

Cascade and a place for the kids to hang out after games. Would be great to have a place to have breakfast on Sunday mornings. The restaurant could even offer delivery service to Turner residents.

Since most people living in Turner, who work outside the home, drive to Salem daily, how would Turner be able to support ANY of the above mentioned business? We shop in Salem where prices are lowest for the things we need. We already have places to get a quick gallon of milk, etc. in a pinch. What would happen to the existing businesses if you brought in others? You might be putting them out of business. It doesn't seem very neighborly to me! If people wanted easy access to these services, it would be cheaper for them to live in Salem. Let's keep Turner special; a small town.

Since Turner is the start of the Silver Creek Falls route, it would be nice to start transitioning the community towards an art community like Sisters, Oregon. Difficult task and probably not achievable, but with the traffic that goes through here, you think we could make Turner more of a tourism community which would be good for all retail businesses.

Something for kids

Sports tournaments at the old park again - would use bank services depending on what bank it was We have to go to Salem or Stayton. It would be great to be able to bank and shop in Turner. The older

people would sure use a bank and drug store. Most don't drive! The folks most apt to use the businesses listed above are those younger than myself who still garden and or

need a hardware store or carpenter. Thrift and gift shop (consignment) since we don't have the flea market at the retirement homes anymore Turner is just the right size now, we don't need more traffic, noise, nor crime. No new housing nor

development. Update Burkland Park with more things for kinds to play on (swings, etc.)


Survey of Turner Employees Number of responses: 73 1) How many days a week do you work in/visit Turner?

6%4%

4%1%

56%

15%

14%

1 day

2 days

3 days

4 days

5 days

6 days

7 days

85% of employee respondents work at least 5 days a week in Turner, and a surprising 29% report working 6 or 7 days per week. These employees represent a ready customer base for new businesses which meet their needs and preferences. 2) How far do you work from Downtown Turner (3rd and Denver area):

70%

30%

Walking distance

Driving distance

70% of employee respondents report working very near Downtown Turner, similar to the results from residents of Turner. Businesses locating there would be convenient for customers using a range of transportation modes.


3) In the average week, how often do you buy goods, services, food or drink in Turner?

15%

5%

11%

32%

37% 4 or more times

3 times

2 times

1 time

Never

Most respondents (69%) report buying goods or services in Turner, rarely or never. Only 20% use local businesses 3 or more times per week. This likely indicates that current offerings aren’t meeting their needs. As the following question demonstrates there is interest. 4) How interested would you be in additional retail and service options in Downtown

Turner?

29%

46%

17%

6%

3%

Very interested

Interested

No Opinion

Would rarely visit

Would never visit

As with Turner residents, a large percentage (75%) of the employees who responded report being “interested” or “very interested” in new retail or service options in Downtown Turner. Only 9% reported that they would rarely or never visit businesses in Downtown. 5) Which best describes your opinion about retail and service options in Turner?

26%

58%

10%

4% 1%

Desperately need more retail

More would be nice

No strong opinion

I don't need more retail

Turner doesn't need more retail


As with Turner residents, a large percentage (84%) of employees are favorable to more retail, with the largest percentage indicating that more options “would be nice.” A smaller proportion indicated that more retail was “desperately needed.” This seems to indicate that employees are generally open to frequenting new businesses if they meet their needs. Preference for Specific Retail and Service Categories Employees in Turner were asked to rank the specific retail and service types listed in the table below from 1 to 15 in order of greatest preference. The results have been weighted to give the greatest weight to first place votes and the lowest to last place votes. Unlike the survey of residents, the responses of employees show a stronger preference. The first four categories selected are food service options. Employees indicated a strong willingness to visit these businesses. A bank, drugstore, or hardware store were secondary preferences, but employees indicated less enthusiasm to shop at such businesses.

Preference for Specific Retail and Service Categories

Sandwich/Lunch Restaurant 17% 94%Full Service Restaurant 15% 92%Café/ Coffee Shop 11% 83%Pizza Shop 10% 86%Bank Services 7% 60%Drugstore 6% 53%Hardware Store 6% 62%Video Rental 4% 46%Christian book and supply store 4% 48%Medical Office 4% 24%Garden/Farm Supply Shop 4% 49%2nd Hand / Consignment Shop 4% 46%Dental Office 3% 19%Unisex Hair Salon 3% 25%Insurance Services 2% 8%

* Of those who responded.

Retail CategoryWeighted Interest

Would you shop here? (% Yes)*


Other Employee Comments Employees offered a other comments, though fewer than residents and with less detail. The preferences mentioned the most often were the desire for fast food restaurants and a grocery store.

Animal clinic Book store (2) Donut shop Fast food (12) Gift shop Grocery store (6) Library (2) Museum (2) Propane fuel Sport store Youth center Bakery Coffee shop Convenience store Theme buildings (i.e., all old west, like Sisters or all English Tudor, Bavarian), Weekly Farmers

Market, Boutique gift/local artist store (catering to locals and Aldersgate Conference Center, visitors)

Wal-mart (Borders), Drugstore (Walgreens) A better convenient store like a 7-11 or Circle K with more options. A library or even a bookmobile; a coffee shop open after 3pm so people could stop on the way

home from work Bi-Mart, Office Supplies Burger King Good fast food, Circle K or 7-11 More lunch options More lunch options such as fast food Pizza Hut, Starbucks Places to eat lunch/dinner Understands and expects to pay more for goods and services but quality of goods matters a lot. Want a Bank only if its WAMU. Want a Garden/Farm Supply if they have what they need at good

price like Wilco. Would never shop in town because of the number of warnings and tickets written; several people

avoid Turner at all costs for this reason. Would never invite a friend to this town.

Appendix D

Memorandum No. 3 – Vision, Goals, and Policies

Turner Downtown Improvement Plan Memorandum #3 – Vision, Goals, and Policies

Turner Downtown Improvement Plan Final Memo #3 – Vision, Goals, and Policies - March 3, 2009 L:\Project\14800\14840\Planning\Task 4 - Goals and Policies\Turner Final Memo3 - 030309.doc


Phone (503) 635-3618 Fax (503) 635-5395

Project Team:



Brendan Buckley

Johnson Reid , LLC

This memorandum states the vision, goals, and policies for the Downtown Improvement Plan. The contents were reviewed and discussed by the City Council, Planning Commission, and Project Advisory Committee at the downtown planning work session on February 26, 2009. The vision, goals, and policies are based on the Improvement Plan work to date including the Existing Conditions and Redevelopment Potential memorandums, Community Shopping Survey Response Report, the Project Advisory Committee meeting, and Public Event #1. This revised version also incorporates comments received from the participants of the work session and insight gleaned from the stakeholder interviews. The vision statement is a synopsis of the community’s values for long term development. The supporting goals and policies frame how that vision can be achieved through urban design, land use, transportation, redevelopment, and economic development. The vision, goals, and policies will be used to guide the development of specific concepts and strategies for the Downtown Improvement Plan.

To: Naomi Zwerdling, Senior Planner, ODOT David Sawyer, City Administrator, Turner

From: Jennifer Mannhard, Senior Planner, Otak Brendan Buckley, Senior Associate, Johnson-Reid

Date: March 3, 2009

Subject: Final Memo #3 – Plan Goals and Policies Turner Downtown Improvement Plan Deliverable 4.D

Page 2

Turner Downtown Improvement Plan Final Memo #3 – Vision, Goals, and Policies – March 3, 2009 L:\Project\14800\14840\Planning\Task 4 - Goals and Policies\Turner Final Memo3 - 030309.doc

Vision: Downtown Turner will be a complete community with a small town feel. It will continue to be “a good neighbor town” where residents are familiar and children are safe to ride their bicycles around town. Downtown Turner will be the heart of the community and boast plentiful amenities and activities year-round. Respecting the past and the future, downtown Turner will celebrate its history while providing an economically viable place to do business and shop, attracting new employment opportunities, residents, and visitors.

Goals and Policies: Urban Design: To create an attractive small town environment that facilitates community activity and interaction for all ages.

Downtown Turner should be the center of the community. It should contain a space that is considered the “heart” of town.

Open space should be incorporated into the design. The space could be a park, plaza, amphitheater, event pavilion, or a combination of these. It should allow for community gathering and events like a festival or farmers’ market.

The streetscape should build upon the recent improvements to 3rd and Denver Streets and include pedestrian amenities such as benches, decorative lighting, fountains and trees.

A greenway should be developed along the creek or at specific points and should include a walking and biking pathway.

Gateways should be developed at the two main entrances to downtown. Destinations to enliven downtown should be centrally located. These could include a new

bandstand, dance hall, civic center, museum, library, or relocated city hall. The urban design and arrangement of spaces and buildings in downtown should use history as

an inspiration, enable community activities, and provide a sense of identity and continuity. Land Use: To allow and encourage a mix of uses to create a complete downtown. Retail and office uses should be allowed throughout the downtown area. Residential uses should be preserved and augmented. Mixed commercial and residential buildings, such as a shop below or in front of a home, should

be allowed and encouraged throughout the area. Light industrial uses should be limited to the area along 3rd Street. These industrial uses should

be allowed to have a commercial component, such as a retail outlet or showroom, on their property.

Zoning should provide for maximum flexibility. Transportation: To create a safe and inviting multi-modal transportation system and circulation. The entire downtown area should have accessible and continuous sidewalks for pedestrians,

including marked crosswalks at appropriate locations.

Page 3


A well-designed parking lot should be incorporated into downtown for school, pool, and other community events. Street parking should be designed to maximize pedestrian and bicycle safety.

Bike lanes should be limited to the lanes provided on 3rd and Denver Streets but be augmented with routes to the school and new community facilities located in the “heart” of downtown.

Encourage bicycle transportation to local attractions/trip generators by installing bicycle parking amenities.

Vehicle and truck circulation has been improved with the upgrades to 3rd and Denver Streets and should be considered along with pedestrian and bicycle circulation in the development of new parking and community uses.

Expand transit options in association with pedestrian amenities at trip generators. A plan for infrastructure maintenance and upgrades should be developed to keep the streets and

pedestrian and bicycle amenities in top shape. Limit through traffic on interior streets. Create a pedestrian network. Downtown should be a pedestrian hub from which paths originate

and link with existing paths. A walking or multi-use path should be added along the creek as part of this network.

Redevelopment: To infill vacant land and redevelop vacant, underutilized, or dilapidated structures to create a more inviting and active environment. The community’s vision for building character and streetscape should be clear to those

undertaking development projects. The City should establish and communicate a clear development application process, with

standardized steps and forms. Subjectivity should be removed from the development review process to the extent possible. Development charges and fees should be reasonable and not deter development. Public investment should be focused on those areas where redevelopment is most desired. Public space enhancements should add value to surrounding properties, and facilitate visibility

for businesses, and multi-modal traffic and parking. Economic Development: To maintain and capitalize on small town advantages while attracting new businesses to the area. The broader community identity or theme in Turner should be clear to business people

considering locating there. The City should maintain and provide up-to-date basic information about the local workforce

and a town profile. An on-going partnership, with regular meetings, should be formed between officials, the

community, local businesspeople. Redevelopment and refurbishment of older buildings should be encouraged to the extent

possible.

Page 4


There should be promotion and outreach to local residents encouraging them to use local businesses.

Identify and pursue possible funding programs which help businesses locate and thrive in Turner.

Create a long-term plan and incremental strategy to reduce flooding and resulting hazards and damage to downtown.

Provide incentives to current businesses to contribute to plan implementation. Increase visibility and street presence of existing businesses.

Appendix E

Memorandum No. 4 – Strategies for the Project Area


Memorandum #4 – Strategies for Project Area


Final Memo #4 – Strategies for Project Area – June 9, 2009

L:\Project\14800\14840\Planning\Task 5 - Recommendations\Turner Draft Memo4-060909.doc

17355 SW Boones Ferry Rd.

Lake Oswego, OR 97035

Phone (503) 635-3618

Fax (503) 635-5395

Project Team:

David Siegel, FAICP

Jennifer Mannhard, AICP

Amanda Owings, PE

Brendan Buckley

Johnson Reid, LLC

The purpose of this memorandum is to describe the strategies that will

achieve the vision and goals for the downtown Turner project area.

The strategies are characterized by the related themes of urban design,

land use, transportation, redevelopment, and business development.

They are informed by the Existing Conditions, Redevelopment

Potential, Vision, Goals and Policies memorandums, Shopping Survey

Response Report, Stakeholder Interviews Report, and input received

at public events. The substance of this memorandum will be the

foundation for the Draft Plan and Draft Implementation Strategy

documents.

This memorandum is organized into subheadings by strategy. Each strategy and its overarching goal

are presented in detail, using bulleted lists of descriptive action items targeted to achieve the goal.

The culmination of the effort within the four strategy areas are consolidated in the Implementation

Strategies section, accompanied by illustrative plans and a practical matrix. The programmatic

details directed at business and community enterprises are described in an appendix (Appendix A) to

this memorandum, and satisfy the project’s scope of work requirement for a Strategic Business

Development Plan. This Strategic Business Development Plan identifies Downtown Turner’s

business development constraints and opportunities, discusses potential future retail opportunities,

and presents implementation strategies and tools for carrying out the business development

objectives of the Downtown Plan (see Appendix A).

To: David Sawyer, City Administrator, Turner

From: David Siegel, Principal, Otak

Date: June 9, 2009

Subject: Final Memo #4 – Strategies for Project Area


Page 2




The vision for Downtown Turner as it improves over the next 20-years was presented to and

approved by the attendees of the Downtown Planning Session on February 26, 2009 (see Public

Event #2 Summary). The vision states:

Downtown Turner will be a complete community with a small town feel. It will continue to be “a good neighbor town”

where residents are familiar and children are safe to ride their bicycles around town. Downtown Turner will be the

heart of the community and boast plentiful amenities and activities year-round. Respecting the past and the future,

downtown Turner will celebrate its history while providing an economically viable place to do business and shop,

attracting new employment opportunities, residents, and visitors.

The following recommendations are intended to implement this vision and the specific goals and

policies that support it. They include strategies that the City of Turner could implement immediately

or in the short term, as well as long-term ideas that will unfold over the 20-year planning horizon.

The recommendations generally fall into four categories:

• Maintain and upgrade the essential infrastructure, including pedestrian network, streets and

parking, and the water, sewer, and stormwater system.

• Create a distinct identity for downtown, enhancing infrastructure with quality amenities.

• Develop a civic presence and community places and activities.

• Support business retention, expansion and, recruitment.

Page 3




I. Urban Design

Goal: To create an attractive small town environment that facilitates community activity and

interaction for all ages.

Urban design refers to the look and feel of the downtown and addresses the general arrangement of

buildings and spaces. The goals for urban design in Turner call for a new “heart” of the community

and to use history as an inspiration. To achieve these goals, the recommendations that follow focus

on elements that will foster a unique identity for the town, improve the infrastructure for

pedestrians, and develop a civic presence and expand community facilities.


• Design and construct gateways at/on/over both bridges into Downtown.

• Design and construct a water feature to represent the mill race.

• Use history as inspiration for design guidelines: encourage two-story mixed-use development all

along Denver Street and storefronts for retail/showroom commercial along 3rd Street.

• Begin beautification projects, such as benches, flower baskets, and wayfinding signage.

• Design and construct a multi-use trail along Mill Creek.

Urban Design Framework

Page 4





• Improve street features and install sidewalks on Chicago, Boise, 1st, 2nd, and School Streets.

• Design and construct a drop off and improved streetscape for the pool and school building

entrance – coordinate with new angled street parking and a new parking lot improvements.

• Develop a pedestrian network that includes the alleys as pedestrian only connections, improved

sidewalks, and the proposed multi-use trail along the creek.

Develop a Civic Presence and Improve Community Facilities

• Create a “festival street” or plaza street that serves pedestrian-only traffic via gates or bollards,

yet can be opened to accommodate cars. Potential streets are 2nd Street from Denver to Boise

and on Boise from 2nd to 3rd Streets.

• Create a plaza or public square along the proposed 2nd Street festival street.

• Construct a new city hall and/or multi-use civic building near the plaza to create a “civic area.”

• Incorporate a public library as part of a new civic building or a separate building in the “civic

area.”

• Expand the pool into a community center facility.

II. Land Use

Goal: To allow and encourage a mix of uses to create a complete downtown.

Currently, the City of Turner has one commercial zone and an overlay that applies to the

commercially zoned lots downtown. The current designations do not provide the focus or flexibility

needed for redevelopment. Having the same commercial zoning applied to the 3rd Street corridor

north of the downtown also dilutes the focus needed for downtown. The following recommended

land use revisions are intended to support and implement the urban design and redevelopment

goals. The recommended zones provide specific areas of focus for different uses and create a

hierarchy of spaces within the downtown to capitalize on development and design opportunities.

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Recommended Land Uses

• Create a mixed-use zone– allowing commercial, retail and residential – through Downtown east

of 3rd and focused on Denver Street. This creates a specific focus for the commercial core of the

city, while providing flexibility in the types of the establishments that can locate in the area. The

recommended land uses also provide an access corridor to the creek.

• For the area south of Denver Street, east of 2nd Street, and north of Mill Creek, the envisioned

future land uses include commercial uses fronting Denver Street, with the southerly portion of

those properties fronting Denver Street being developed into residential use over time. As

portions of this area are impacted by seasonal flooding, it may be necessary for portions of these

properties to be kept in a resource use or developed with a use compatible with seasonal

flooding conditions.

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• Create a mixed-use zone – allowing employment, industrial, and retail – west of 3rd. This

maintains the opportunity for a large employment base while allowing for retail and/or

showroom type uses along 3rd Street to contribute to the commercial vitality of the area.

• Maintain Turner Retirement Homes and area around Elgin Street property as residential. It is

essential to maintain a resident population in the area to support new downtown investments.

• Create an institutional/civic zone for uses such as the school property and parks. The zone can

be expanded in the future to include new civic uses, such as city hall and a library.

• Revisit residential zoning designations and standards over time to phase out single family uses.

While residential uses are desired in the downtown, large lot single family uses should be phased

into more dense housing types over time to provide a larger and more diverse downtown

population to patronize services.

• Review land uses and zoning along 3rd street corridor with an eye toward determining what uses

are appropriate for this “gateway” into downtown Turner from the north.

III. Transportation

Goal: To create a safe and inviting multi-modal transportation system and circulation.

The downtown Turner area has a well-developed street pattern to accommodate circulation. The

elements needed to achieve the goal are spaces that are welcoming to pedestrians, bicyclists, and

visitors arriving by vehicle. Improvements to these elements, combined with the proper

maintenance of the existing street system, will enhance activity levels, boost the functionality, and

extend the longevity of downtown Turner.

Turner’s Transportation System Plan (TSP) outlines the functional classification for the roads within

the downtown study area. Currently, the plan classifies the streets accordingly:

Street Classification

3rd Street (Mill Creek to Denver), Denver Arterial

Chicago Street, School Avenue, 2nd Street (south of Denver) Collector

Boise, 2nd Street (north of Denver), 1st Street, Elgin, Fargo, Gaston, 3rd Street

(Denver to Gaston)

Standard Local

Transportation enhancements to downtown Turner do not require revisions to the TSP

classifications, with the exception of altering 2nd Street from a standard Local Street to a “Significant

Local Street.” The length of 2nd Street from Denver to Boise is the proposed location for a

retail/commercial center, civic area, and/or festival street. Significant Local Streets, such as 5th

Street, west of downtown, are “important to the community” due to their connectivity to desirable

destinations. Altering the designation of 2nd Street would give license to unique design selections.

Page 7




For the remaining local streets, their designation shall remain as a standard section. As stated in the

TSP, there are two options for development of standard local streets. Considering that Turner’s

downtown will be a new destination, we recommend that the local streets north of Denver reflect

the 50-ft right-of-way design. The streets south of Denver, with a focus on residential use, may

consider the “skinny street” option with 40-ft right-of-way. The street sections provided in Figure 1

are concept drawings of what the future conditions may reveal.

Figure 1: Street Sections

Page 8




The primary transportation enhancement will be the sidewalk and parking improvements. While

traffic volumes are currently low outside of the arterial route, safety of pedestrians and bicyclists is

compromised due to lack of sidewalks and improper crossing opportunities. As Turner grows or

attracts more visiting traffic, parking will also need revisions to maintain a level of safety and

efficiency. Protecting the existing traffic patterns and parking opportunities for residents is also a

factor in the balance of transportation needs; recommendations call for retaining all driveways and

alleys as streets develop. Establishing a festival street may temporarily restrict access to some

properties along 2nd Street.

The TSP may be revised to reflect all streets in the downtown area be improved with sidewalks. The

missing links in the sidewalk system would be eliminated for the future condition. The TSP may also

be updated to include multi-modal trails on the pedestrian and bicycle plan.

The aerial infrastructure along Turner’s street network provides electricity to the residents in the

immediate area as well as serving as a conduit to the outlying areas. As Turner finds land use

changes occurring throughout the downtown core, the aerial infrastructure will become more

intrusive on the landscape, impacting trees and building frontages as poles and guy anchors are

relocated. In the short term, the City can begin the process of undergrounding much of this

infrastructure through continuous communication and planning events with the primary utility

companies. With the long term goal of undergrounding the power and communication lines,

Turner’s downtown core can redevelop with a clean streetscape.

IV. Redevelopment

Goal: To infill vacant land and redevelop vacant, underutilized, or dilapidated structures to create a

more inviting and active environment.

Downtown Turner has a fair amount of vacant and underutilized space to offer. However,

redevelopment is not always viable from a market perspective, particularly in a difficult business

climate, where rent levels may not be high enough to compensate for major investment in a

property.

Under the current conditions, redevelopment in Downtown Turner is likely to take the form of rehabilitation and reuse of existing properties, as the most cost effective way to provide rentable space. As Turner grows, new development will become more feasible. In the near future, new development in Downtown Turner is likely to be single-story, wood-frame construction, reliant on surface and/or street parking for customers and employees. Two-story structures are possible, and will become more likely as Downtown Turner builds new commercial activity over the long-term, which will spur the need for more density.

Page 9




The following are some potential strategies that Turner can pursue to improve the atmosphere for

redevelopment activity to occur.


• Create Design Guidelines: Create a set of design guidelines which clearly and concisely describe

the vision for new and rehabilitated buildings in Central Turner (see Urban Design strategies).

Design guidelines should reflect the community’s vision, but keep additional building

requirements realistic and inexpensive for the developer.


• Develop a Property Improvement Program: Develop a façade, signage, and landscaping

improvement program for commercial and retail properties located in the study area. The

program should be designed to enhance existing buildings, storefronts, signs, etc., and could be

implemented as a low interest loan or matching grant program. The program should be directed

towards existing businesses or properties where such improvements are considered very likely to

attract businesses.

• Complete Public Infrastructure Projects: Implement the improvements to public infrastructure

(roads, sidewalks) as well as beautification initiatives (flower baskets, benches, street trees and

landscaping) described in this memorandum to the extent possible. Public investment

demonstrates to private property owners that the city is engaged and changes are taking place.

• Target Public Investment: Select a core area of commercial and civic concentration in which to

target public investment, programs, and community activities. As public resources are likely to

be limited for some time in Turner, it will be important to target limited improvements to those

blocks where change is most desired. Adjacent areas will experience positive overflow effects

from this area of concentration.

Support business retention, expansion and recruitment

• Examine Permitting Process: Examine the permitting process to optimize consistency, timing

and responsiveness, while reducing regulatory and paperwork burdens. The process should be

standardized to the extent possible, so that applicants are treated consistently, and subjectivity is

removed from the process. The required steps and paperwork of the application process should

be easily describable to applicants in a one-page checklist.

V. Business Development

Goal: To maintain and capitalize on small town advantages while attracting new businesses to the

area.

Turner has strong potential for the robust household growth it has experienced since 2000 to continue into the future. A growing customer base of households will be the greatest factor in increasing demand for small-scale retail and commercial services in the local area.

Page 10





Aside from retail and service businesses for the local community, Turner is a good location for

commercial service, construction, and manufacturing businesses seeking a location in the central

Willamette valley, with highly competitive property costs and relatively convenient access to the

regional transportation infrastructure.

Support business retention, expansion and recruitment

There are a number of recommended strategies for carrying out the overall business development

goal for maintaining and capitalizing on Downtown Turner’s small town advantages which attracting

new business, and these are presented and discussed in detail in Appendix A to this document, the

Strategic Business Development Plan.

VI. Initial Implementation Concepts

This section discusses potential concepts and strategies for carrying out the goals and objectives

discussed above. Information is provided in three components:

1. Long-term Improvement Plan

2. Short-term Improvement Plan

3. Initial Implementation Strategies

Long-term Improvement Plan

The diagram shown in Figure 2 depicts the full set of physical improvements and future land uses

recommended to be carried out overtime during the twenty-year planning period, as discussed

within the previous sections of this document.

Short-term Improvement Plan

Figure 3 depicts the subset of the physical improvements shown in the Long-term Improvement

Plan (Figure 2) that are suggested for completion within the short-term. These initial improvements

are recommended to be initiated or completed within the first six years following adoption of the

Downtown Improvement Plan.

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Figure 3: Short-term Improvement Plan

Figure 2: Long-term Improvement Plan

Page 12




Recommended Initial Implementation Strategies

The following matrix is a summary of the action items for the City and its council to consider in

order to accomplish the long-term vision of downtown Turner. Each item is defined as a short-term

action, one that should be completed within the next six years, or long-term action, one that can be

completed over the next 20 years. Organized by strategy, each action considers funding streams and

public impact in its timeframe. For the most part, the short-term actions consist of public

infrastructure upgrades; these will be the most visible signs of renewal and success in Turner. The

long-term actions are those items that will sustain Turner and retain a level of growth as the council

sees fit.

Strategy Short-term Long-term

Essential

Infrastructure



(prioritize installation: school routes, local

streets, business frontages, festival streets)




“Significant Local Street”


• Conduct routine maintenance (i.e. slurry

seals, grind and overlay)

• Begin discussion with PGE of power pole

relocation or undergrounding of power

lines

• Design and Construct Public

Parking Lot

• Flood control, stormwater

management, dike

reconstruction

• Drop-off area for the school

and pool

• Underground utility systems

as streets are reconstructed

• Require underground utility

connections

Infrastructure

Enhancements

• Develop trail along Mill Creek on public

properties

• Create pedestrian trail network (construct

in segments: 3rd Avenue to community

pool, community pool to Denver Street,

Denver Street to 55th Avenue)




• Create a water feature to represent the mill

race

• Make Mill Creek trail a

continuous pedestrian path




system


with more permanent

structure or sign

• Uncover mill race or add to

the representational water

feature

Civic Presence

& Community

Places

• Convert a vacant structure into a City Hall

and meeting facility

• Convert 2nd Street R.O.W. into a festival

street

• Build a new City Hall and

library complex


facility

Page 13




Strategy Short-term Long-term



Burkland Park

Business

Development


District overlay with a commercial/retail

mixed-use zone

• Create an employment/retail /industrial

mixed-use zone for the area along 3rd

• Façade/sidewalk/landscape improvement

program




Turner business


contacts

• Develop a marketing plan for Downtown

Turner

• Implement a small business loan program

• Market new business support programs




(SF) from the downtown

Programs for Business

There are a wide range of programs available for businesses to aid in training, expansion, property acquisition, and repair among other activities. These programs are aimed at businesses from brand new ventures, to larger established companies. A discussion of these programs and tools and strategies for deploying them is provided within the Strategic Business Development Plan (see Appendix A).

VII. Downtown Capital Improvements

The following table is a summary of the capital improvements for the City and its council to

consider programming in order to accomplish the long-term vision of downtown Turner. Projects

are loosely organized by project type: streets, sidewalks, trails, and civic improvements. Each item is

also identified by program year, corresponding to short-term (completed within the next six years)

and long-term (completed over the next 20 years) projects. Finally, each project is further organized

by rank, giving priority to the projects within their subcategories. The attached map highlights the

project types and their locations.

Page 14




Capital improvement costs were estimated as the total of construction cost, contingency and allied

costs. In creating this table, 2008 construction data from ODOT Region 2 contracts was used. The

associated costs include contractor mobilization, necessary traffic control and survey elements, and

construction materials. Planning-level contingencies were also added to the cost to address

preliminary character of the designs and the changing nature of construction. This contingency also

accounts for construction engineering, contract administration, legal, finance, and associated project

development costs. For those projects that were simply planning or design (no construction), the

cost reflects 15% of the proposed construction cost.

The cost estimates were for surface improvements only. Adjacent infrastructure upgrades or

detailed property improvements were not estimated. Further assumptions include:

• No right-of-way acquisition is included in this estimate of costs. Preliminary engineering will

include field survey to locate property lines.

• Geotechnical stability is adequate for all proposed improvements

• Hydraulic studies will be performed prior to or in conjunction with pedestrian bridge design.

• Environmental studies, including rare plant and threatened/endangered species, historical, and

archaeological, will be conducted under a separate phase prior to design for capital

improvements.

• Utility relocation will be addressed separately and prior to capital improvement construction

• Public utility upgrades will be handled through a separate funding source.

• Undergrounding of aerial utilities shall be designed and financed by individual utility companies.

• Estimates do not reflect reporting requirements pertaining to funding sources.

.

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Turner Downtown Improvement Plan Proposed Capital Improvements

Project

Number Project Name, Category Location

Estimated

Cost

Program

Years Rank Potential Funding Sources

1a Plan, design, and construct festival streets 2nd Street (Boise to Denver) $365,400 1 - 3 1 Urban Renewal; Comm. Dev. Block Grants (CDBG)

1b Boise Street (3rd to 2nd) $161,200 3 - 6 2

2a Plan, design, and construct sidewalks, curb extensions

School Street (Denver to Chicago) $66,000 1 - 3 1 Urban Renewal; CDBG; ODOT Trans. Enhancements Program; Local Improvement District (LID); Statewide Transportation Improvement Program (STIP); Safe Routes to Schools (SRTS);

2b 1st Street (Boise to Denver) $123,200 3 - 6 2

2c Boise Street (2nd to 1st) $73,900 3 - 6 2

2d 1st Street (Elgin to Denver) $55,700 6 - 20 3

2e 2nd Street (Elgin to Denver) $54,600 6 - 20 3

2f Elgin Street (3rd to 1st) $171,700 6 - 20 3

3a Improve Chicago Street with sidewalks, parking

(3rd to School) $400,000 1 - 3 1 Urban Renewal; CDBG; STIP; LID; SRTS; Business Improvement District (BID)

3b Improve gravel streets (3rd to Elgin) $138,100 3

4a Planning effort for Turner trail network Trail from 3rd/Mill Creek to 55th/Mill Creek

$27,000 1 - 3 1 Urban Renewal; CDBG

4b Design effort for Turner trail network Trail from 3rd/Mill Creek to 55th/Mill Creek

$40,500 3 - 6 2

4c Construct Turner trail network segments (3rd to Community Pool) $93,400 6 - 20 3 Urban Renewal; CDBG; STIP; LID

4d (Community Pool to Denver Street) $96,800 6 - 20 3

4e (Denver to 55th Avenue) $79,700 6 - 20 3

4f Construct bridges for Turner trail network Up to three locations $87,500 6 - 20 3

5a Plan and design Gateway to downtown (3rd/Mill Creek) $48,000 1 - 3 1 Urban Renewal; CDBG; LID; BID

5b (Denver/Mill Creek) $48,000 1 - 3 1

6a Cover Community Pool $210,000 3 - 6 2 Urban Renewal; CDBG; LID; BID

6b Improve parking at school and pool area End of Chicago Street $65,200 3 - 6 2

6c Design and construct a public parking area West side of 3rd Street at Chicago $225,700 3 - 6 2

Grand Total $2,631,600

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319 SW Washington Street, Suite 1020 Portland, OR 97204 503/295‐7832 503/295‐1107 (fax)

APPENDIX A:

STRATEGIC BUSINESS DEVELOPMENT PLAN

DOWNTOWN TURNER, OREGON


STRATEGIC BUSINESS DEVELOPMENT PLAN DOWNTOWN TURNER, OREGON

MAY 2009

I. INTRODUCTION

This document presents a succinct Plan to aid in the development of existing and new businesses in the City of Turner, Oregon. This memorandum represents a compilation of findings and recommendations related to business development that have been completed over the course of the larger Downtown planning effort. These findings are combined here with specific objectives and recommendations aimed at business development. The recommendations presented in this Plan are designed to be as practical as possible, reflecting what is realistic and achievable in a city the size of Turner, with the human and financial resources available. The document first discusses findings on business market conditions and potential small business types in Downtown Turner. It then progresses into an Implementation Strategy, which addresses the specific objectives and recommended action items of this business development plan. It is organized as follows:

I. INTRODUCTION 1

II. SUMMARY OF MARKET OPPORTUNITIES AND CONSTRAINTS 2

III. POTENTIAL RETAIL AND COMMERCIAL SERVICE MIX 3

IV. IMPLEMENTATION STRATEGY 5

V. IMPLEMENTATION TOOLS FOR BUSINESS: TABLE 9

VI. IMPLEMENTATION TOOLS FOR PUBLIC FUNDING: TABLE 14

VII. FOCUS ON URBAN RENEWAL 20

DOWNTOWN TURNER – STRATEGIC BUSINESS DEVELOPMENT PLAN Page 2

II. SUMMARY OF MARKET OPPORTUNITIES AND CONSTRAINTS

This section summarizes the major conclusions of Memorandum 2: “Analysis of Redevelopment Potential”, presented previously as part of the Downtown Improvement Planning process. Based on our analysis of market conditions in and around Downtown Turner we find positive indicators for the addition of new business over the coming years. The following is a summary of the conclusions presented in that report:

The potential for the robust growth rate that Turner has experienced since 2000 is likely to continue into the future. As the community grows with new households, there will be greater demand for small-scale retail and commercial services serving the local area.

Households in the area tend to have a relatively high average income for Marion County, and have significant buying power. Currently, most of this spending is taking place outside of the Turner area.

Some retail categories require larger markets and prefer freeway locations, and are therefore not realistic in Turner. But there is still excellent potential for businesses in Turner (existing and new) to catch a share of the spending that is currently “leaking” out of the community. (See suggested Retail Mix below).

In addition to local households, there are additional sources of potential spending in Turner, including year-round employees and visitors to the local faith-based meeting and retreat centers.

Our estimates indicate that Turner could support roughly 10,000 to 15,000 square feet of new business over the next ten years. These businesses would be located both in existing and new commercial properties.

Under the current conditions, redevelopment in central Turner is likely to take the form of rehabilitation and reuse of existing properties, as this is the most cost effective way to provide rentable space.



III. POTENTIAL RETAIL AND COMMERCIAL SERVICE MIX Downtown is a good location for small-scale retail and services which serve the residents and employees in the immediate Turner area. The existing businesses provide a good core of commercial activity in central Turner. They are all located relatively near each other on Chicago and Denver Streets. This section concentrates on retail and businesses providing commercial services directly to customers and does not include the economic development of manufacturing or industrial businesses. (These are addressed to some extent in the Implementation Strategies section below.) Growing Into Retail It is very difficult for any local area to capture all, or even a majority of the spending by local households, be it in a small town or a neighborhood in a large city. The variety and quantity of household expenditures is too great. However, capturing even a modest share of the spending that is currently leaving the area can amount to a significant amount of business, particularly in a smaller market. The best way to think about this potential spending is not that the Turner community should attempt to capture large portions of it all at once, but rather that this supports a healthy reservoir that strategic small businesses can take advantage of over the next five to ten years. Combined with the projected growth in the number of households over this time, there is good potential to generate new business in Downtown Turner over that timeframe. Local Preferences As part of the larger Downtown Improvement Planning process, a survey was submitted to Turner residents and employees regarding their perceptions and preferences for needed businesses in Turner. The survey elicited a total of 228 responses. By the way of summary: There is strong interest among both residents and employees in Turner for more retail or

commercial service options. Most agree it is needed or “desperately needed.” Only a small percentage feels that no more

options are needed. In general, residents and employees in Turner must leave the city in order to obtain many basic services such as banking or full-service grocery.

Most respondents live within walking distance of central Turner. When ranking potential retail/service types, residents have fairly well distributed

preferences. Food service options, a bank, drugstore, or hardware store were the most preferred. In additional comments the need for a grocery store, fast food and a full-service library were cited.

Employees tend to rank any potential new food service options highly, and other types of retail/services less so.

Local Potential Turner has stronger potential to attract some types of businesses than others, in the five-to-ten year timeframe. Due to its size and location off of the major highway system, the city will have some difficulty adding some types of shops and services until the number of local households grows significantly.


Because the business mix in a community is ultimately determined by countless separate decisions by multiple entrepreneurs and customers, it is impossible to plan for a specific future business mix and have it come to fruition. However, our analysis of local spending, growth, and preferences can inform some recommendations on businesses which will have stronger potential than others. In general, those recommended below are those which can serve a small market the size of Turner, while those indentified as weak candidates, generally need a larger market area to serve.

Stronger Candidates Weaker Candidates

Full service restaurant Sandwich/lunch restaurant

(one has recently been opened) Sit-down café/coffee shop Ice cream/candy shop Independent video rental Local general practice doctor Local insurance agent Modest library branch Farmers market Veterinarian Hardware/garden/farm supply shop

Bank services Full grocery store Fast food franchise Dry cleaner Motel Dental office Drugstore Dollar store Book store


IV. IMPLEMENTATION STRATEGY

This section represents the action-oriented portion of this Strategic Business Development Plan. It outlines specific objectives related to growing existing businesses and attracting new ones to Downtown Turner. This Plan focuses mainly on the types of retail and commercial service businesses which will fit into the Downtown environment, but many of the recommendations found here would also contribute positively to development of industrial and/or office-type businesses.

The following is a list of recommended action items to address business development. Each recommendation is followed by a description, and a list of possible funding sources if appropriate. (The funding sources mentioned are all detailed in the following two sections of this report, which provide detailed tables on programs available for businesses, and sources of public funding, respectively.) Recommendation 1: Study Feasibility of Urban Renewal in Turner Undertake a feasibility study of the formation of an Urban Renewal Area in Turner. This district or districts may include up to 15% of the total land area in Turner. Urban Renewal is a key public financing tool available to jurisdictions in Oregon. It provides for keeping the future growth in property tax revenue within the district itself, to accomplish the goals of an adopted Urban Renewal Plan. The goal of forming an Urban Renewal Area (URA) that encompasses Downtown Turner would be to provide for a dedicated source of funding to spend on projects identified in the Downtown Improvement Plan, as well as those identified in this Strategic Business Development Plan. In general, Urban Renewal revenues must be used to make physical improvements to public and private property.

The first step in this process is for the community and its governing body to decide to pursue an Urban Renewal study, and delineate the basic preliminary outline of the district.

The next step is to identify funding for an Urban Renewal Feasibility Study which examines existing conditions, determine if the area meets the statutory definition of “blighted” and generate estimates of possible revenue from the URA.

If the Feasibility Study is positive, an official Urban Renewal Plan and Report must be written and adopted to establish the URA and specify its goals.

As this is a key recommendation of this Plan, a separate section discussing Urban Renewal is provided below, as part of the discussion of available funding tools. See “Section IV: Focus on Urban Renewal” below for more detail. Potential Funding Source: The Regional Investment Fund (MWVCOG) offers assistance in creation of Urban Renewal Areas.


Recommendation 2: Create a Standing Body to Represent Turner Business Form a standing body of local business people to discuss and represent the business community in Turner. This organization could range from a new Chamber of Commerce representing Turner and perhaps one or more adjacent cities, to a smaller less-formal group of Central Turner business owners. This body should have active participation in future steering committees for the Downtown and/or the implementation of the Downtown Improvement Plan. Potential Funding Sources: These types of community building activities are longest lasting if self-organized by the business members themselves. However, some assistance is available for organizing, and possible start-up costs. Currently, members of the Turner community are participating with the Ford Family Foundation of Roseburg, Oregon on community-building activities. They provide one source of assistance in community organizing. The Marion County Video Lottery Grant is another potential funding source. An Economic Improvement District, if established, could cover some organizing and marketing costs, as could an annual business license fee. Generally, the city should facilitate these efforts by offering meeting space and perhaps office resources to aid private members of the business community in organizing. Recommendation 3: Maintain a List of Local Businesses Maintain a current list of business owners and property owners in Turner, complete with mailing and emailing information, and estimated employment level if available. Entries on the list might be categorized by location (Downtown Turner, 3rd Street, etc.) Potential Funding Source: Costs are minimal. This list should be maintained by the local business organization as part of their on-going duties. Pending the establishment of a business organization, City staff should compile such a list and update it quarterly or semi-annually.

Recommendation 4: Develop a Marketing Plan for Downtown Turner The marketing plan can begin simply with outreach to residents and surrounding communities to

promote existing community events such as the Lamb and Wool Show. Marketing efforts should

address how to leverage such existing draws as the festival, the creek, or the swimming pool into

increased visibility and business for Downtown Turner.

As the marketing plan will be representing Turner to the broader region, it should be a collaboration of the efforts of the local business organization and the community. Potential Funding Sources: If an organized body, such as a Chamber of Commerce is formed, it might undertake these efforts with its own resources. A grant from the Ford Family Foundation is one potential resource for this type of effort. The Marion County Video Lottery Grant is another potential funding source. An Economic Improvement District, if established, could cover some organizing, operational, and marketing costs, as could an annual business license fee.


Recommendation 5: Continue Participation in the Oregon Main Street Program Turner has recently been selected for participation in the Oregon Main Street Program at the

“Exploring Downtown” level. The Main Street Approach is an established national approach to

revitalization of core commercial districts. Over the coming years, Turner should pursue moving to

the “Transforming Downtown” level which can provide technical assistance in implementing many

of the strategies recommended here.

Potential Funding Source: The Oregon Main Street Program (State of Oregon)

Recommendation 6: Implement a Property Improvement Program Develop a façade, signage and landscaping improvement program for commercial and retail

properties located in the study area. The program should be designed to enhance existing

buildings, storefronts, signs, etc., and could be implemented as a low interest loan or matching

grant program. The program should be directed towards existing businesses or properties where

such improvements are considered very likely to attract businesses

Low visibility and insufficient signage were identified as issues in Central Turner. In combination

with the creation of “gateways” to the area, improved business visibility will help establish

Downtown Turner as its own place.

Potential Funding Source: Grant programs or Revolving Loan Funds must be capitalized at the outset. Such improvement programs are often funded through Urban Renewal programs such as the one recommended above. Community Development Block Grants, or local improvement districts, can also provide a source of funding to establish a revolving loan fund.

Recommendation 7: Implement a Small or Micro-Business Loan Program Establish a Revolving Loan Fund (RLF) designed to assist City businesses with financing needs for

small business development, with funds available for real estate property acquisition, construction

or rehabilitation, development and mitigation fees, working capital/lines of credit, equipment

purchase, furniture and fixtures, and architectural and engineering services. Their capital base,

once it has been depleted, is replenished by principal repayments, interest income, and fees, which

are then loaned again. Loan Funds are an important source of financing for microenterprises and

small businesses that are unable to obtain credit from commercial lenders.

Potential Funding Source: Revolving Loan Funds must be capitalized at the outset. Such improvement programs are often funded through Urban Renewal programs such as the one recommended above. Community Development Block Grants, or local improvement districts, can also provide a source of funding to establish a revolving loan fund.


Recommendation 8: Market Business Support Programs Expand awareness and/or availability of business support programs. Create a list of programs

available to local business people, be it on the federal, state, regional or local level. Such programs

take the form of tax incentives, loan or grant programs, and training or education programs. Some

programs are available to existing businesses, while others are geared towards creating new jobs.

Potential Funding Source: Costs of maintaining a list should be minimal. This list should be maintained by the local business organization or by city staff. An annual business license fee could be a source of revenue to help fund this activity. The following section of this report “Implementation Tools for Businesses” provides such a list of programs. The Mid-Willamette Valley Council of Government is another important regional resource for economic development information. Active marketing or dissemination of these resources may be undertaken by the local business organization or city.

Recommendation 9: Maximize Involvement in Regional Economic Development Efforts Turner should maintain an active involvement in any economic development programs

administered by the Mid-Willamette Valley Council of Governments, and Marion County. MWVCOG

serves as the regional administrator for multiple federal and state economic development

programs. Turner officials should keep abreast of what initiatives are being undertaken, and what

programs are available regionally, and ensure that Turner is represented in any regional marketing

efforts, inventories of available lands, and the like.

Potential Funding Source: No costs other than staff time.


V. IMPLEMENTATION TOOLS FOR BUSINESS

The following table presents a wide range of program available for businesses to aid in training, expansion, property acquisition and repair, among other activities. These programs are aimed at businesses ranging from brand new ventures, to larger established companies. Programs from the federal, state, regional and county level are represented. There are two major sources for Economic Development assistance in the Turner area. One source is the State of Oregon which offers programs to aid in economic development across the state. These programs are generally administered through the Oregon Economic & Community Development Department (http://econ.oregon.gov), which offers options both to businesses and communities. The other major source for Economic Development is the Mid-Willamette Valley Council of Governments (www.mwvcog.org). MWVCOG serves as a central contact for businesses and governments in Marion, Polk and Yamhill counties seeking economic development assistance. This regional body is a designated Economic Development District for the administration of federal Economic Development Administration programs, as well as a designated Regional Investment Board for the administration of state Regional Investment Fund and Rural Investment Fund. (These programs are technically administered by the MWV Community Development Partnership, housed and staffed by MWVCOG.) The list below is meant to serve as an introduction and general description of these programs.


TOOLS FOR BUSINESSES – LOAN AND GRANT PROGRAMS TYPE OF FUNDING SOURCE DESCRIPTION POTENTIAL USES CONTACT

Rural Community Loan Fund

MWVCOG Businesses in communities of 25,000 or fewer people.

Direct loans for 50% of project cost, up to $150,000, for property acquisition, construction or working capital. Must create 1 job per $25,000 loaned.

MWVCOG: www.mwvcog.org/loans/govloantable.asp

Regional Revolving Loan Fund

MWVCOG Manufacturing or agriculture-related businesses.

Direct loans for 33% of project cost (from $5k to $300k) for property acquisition, new construction, equipment or working capital. Must create 1 job per $15,000 loaned.


Local Revolving Loan Fund (Proposed)

Turner Local RLF programs often target micro- or small businesses. A newly established program can be designed to target specific businesses, and a range of goals. Such a fund might be used for a property improvement program, or a business small loan program.

A local fund created to help provide modest loans to small businesses for a range of possible uses: real estate property acquisition, construction or rehabilitation, development and mitigation fees, working capital/lines of credit, equipment purchase, furniture and fixtures, and architectural and engineering services. Their capital base, once it has been depleted, is replenished by principal repayments, interest income, and fees, which are then loaned again. A RLF needs initial capitalization, which might be achieved through a range of funding sources, including Urban Renewal, Community Development Block Grants, improvement districts, general fund, etc. Other possible sources are the federal Housing and Urban Development, Economic Development Administration, USDA Rural and Economic Community Development Association, or the Oregon Economic and Community Development Department. (See following section for potential public funding sources.)

Proposed


TOOLS FOR BUSINESSES – LOAN AND GRANT PROGRAMS (Continued) TYPE OF FUNDING SOURCE DESCRIPTION POTENTIAL USES CONTACT

Marion County Video Lottery Grant

Marion County

Businesses, business associations, local governments, educational entities

Grant funds available for a range of uses, related to creating or retaining jobs on Marion County. This program provides funds for direct and indirect job creation and retention (up to $5,000 for new jobs, $2,500 for retained jobs). Local governments, business associations, and other institutions can apply to fund ancillary activities and studies aimed at job creation and retention. Matching funds may be required. Property acquisition is ineligible.

Marion County www.co.marion.or.us

Oregon Capital Access Program

State of Oregon

Small profit and non-profit businesses seeking loans or lines of credit for most business purposes.

This program offers State matching funds to local lenders, and matches them with applicants for business funds.

Oregon Economic and Community Development Department (OECDD): www.oregon4biz.com/p/CAPapp.pdf

Oregon Credit Enhancement Fund

State of Oregon

Manufacturing, production and processing companies of less than 200 employees, in a distressed area, or to clean up a brownfield site. For applicants with credit issues.

This program offers State guarantees of up to 90% of qualified loans to provide insurance to lenders. Matches applicants and lenders.

OECDD: www.oregon4biz.com/p/CEFapp.pdf

Entrepreneurial Development Loan Fund

State of Oregon

Start-up micro- and small businesses with difficulty accessing financing

Direct loans and small business counseling up to $25,000 initially, with $15,000 potential follow-up. Applicant must be enrolled in business counseling and have a developed business plan.

OECDD: www.oregon4biz.com/p/EDLFapp.pdf

Oregon Business Development Fund

State of Oregon

Traded-sector manufacturing or processing companies with fewer than 50 employees, newly locating or expanding in a qualified area.

A revolving loan fund which provides permanent fixed-rate financing for land, buildings, equipment, and working capital. Prioritizes rural and distressed areas and Enterprise Zones. Up to $500,000, or 40% of project cost.

OECDD: www.oregon4biz.com/p/OBDF_biz_app.pdf

Oregon Business Retention Fund

State of Oregon

Existing companies in "difficult times" facing distress.

Provides funding for expert consultants (up to $5,000) or feasibility study (up to $30,000) to assist the applicant in business assistant.

OECDD: www.oregon4biz.com/brs.htm


TOOLS FOR BUSINESSES – LOAN AND GRANT PROGRAMS (Continued) TYPE OF FUNDING SOURCE DESCRIPTION POTENTIAL USES CONTACT

Governor's Strategic Training Fund

State of Oregon

Businesses which will benefit from skills training for their employees in order to remain competitive, retain business or workers.

Funding for training of current workers to upgrade skills, gain certification, learn new equipment and technology, and remain competitive.

Work Source Oregon: www.worksourceoregon.org

Brownfield Redevelopment Fund

State of Oregon

Private persons, businesses or municipalities. Applicant may be owner, buyer or other vested interest in the redevelopment of a suspected brownfield site. A brownfield is a site with environmental contamination, often from a past land use on the property or nearby properties.

A direct loan or grant program to help evaluate and clean-up brownfield sites, to allow redevelopment. Redevelopment must be for economic development purposes. Housing is generally ineligible.

OECDD: www.oregon.gov/ECDD/IF/program/brownfields.pdf

SBA 504 Loan Program

MWVCOG (SBA)

For-profit small businesses. Loans for up to 40% of project cost for property acquisition, new construction, or equipment, through local lending partners. Must create 1 job per $35,000 loaned. Up to $1.5 million for regular projects. Up to $2 million with a public policy component. Up to $4 million for manufacturing projects. The MWVCOG Economic Development department can help regional businesses learn about and access this program.


Community Reinvestment Fund

MWVCOG (SBA)

Small businesses not eligible for SBA 504 funds.

Direct loans for 35% of project cost (from $100k to $1.5 million) for property acquisition, construction, remodeling and fixtures. The MWVCOG Economic Development department can help regional businesses learn about and access this program.



TOOLS FOR BUSINESSES – TAX INCENTIVE PROGRAMS TYPE OF FUNDING SOURCE DESCRIPTION POTENTIAL USES CONTACT

Enterprise zone incentives

State of Oregon

New and expanding commercial businesses, such as office or industrial employers, making capital investments in property and equipment. Retail businesses are generally not eligible.

Tax incentives for (non-retail) businesses to locate or expand in a designated Enterprise Zone. New capital investments in property and equipment may be exempt from local property tax liability for 3-5 years under the standard program, or up to 15 years in the rural program. Enterprise Zones are designated through a periodic statewide application process. Establishment of an Enterprise Zone creates an economic development tool to market to prospective businesses and expanding businesses.

OECDD: www.oregon4biz.com/enterthezones

Strategic Investment Program

State of Oregon

This program will typically apply to large employers moving into an area, or making major investments in expansion of current facilities.

The portion of eligible capital investments over $25 million will be tax-exempt for 15 years. The taxable portion grows at 3% per year during that time, and the business pays a fee equal to 25% of the tax savings they area achieving. (Effectively, the amount over the investment threshold is 75% tax exempt.)

OECDD: www.oregon4biz.com/p/sip.pdf

Construction-in-Progress Program

State of Oregon

Employers constructing new facilities, including equipment.

Property tax exemption for buildings under construction on January 1st of the claimed year, for up to 2 years. Applies to Enterprise Zone projects.

Oregon Dept. of Revenue: www.oregon.gov/DOR/PTD/docs/310-020.pdf

Food processor exemption

State of Oregon

Food processing businesses with newly acquired food processing equipment.

Property tax exemption for up to five years on food processing equipment which is certified by Oregon Department of Agriculture.

Oregon Dept. of Revenue: www.oregon.gov/DOR/PTD/docs/303-085-1.pdf


VI. IMPLEMENTATION TOOLS FOR PUBLIC FUNDING

The following table presents a wide range of funding and financing mechanisms available for a local jurisdiction like Turner to pursue the types of improvements described in this memo. Physical improvements to transportation, streetscapes, public and private facilities can be costly and take the investment of money, time and community dedication to make a reality. By considering which of these mechanisms might be feasible in Downtown Turner, the community can begin to predict the amount and type of resources which might be available, which will greatly aid in prioritizing and completing individual projects. As with the business programs discussed above, the tools described below come from a variety of levels including state, regional, and potential local actions. The following table presents an introduction and description of each funding tool. This section is followed by a more in-depth overview of Tax Increment Financing (Urban Renewal) as a specifically recommended tool for Downtown Turner.


TOOLS FOR FUNDING PUBLIC ECONOMIC DEVELOPMENT TYPE OF FUNDING

SOURCE DESCRIPTION POTENTIAL USES CONTACT

Tax Increment Financing (Urban Renewal)

Turner Tax Increment Financing, is the funding mechanism behind “Urban Renewal”. Urban Renewal is a long-established method for planning improvements in a specified district, and then dedicating future tax revenue to making those improvements happen. When an urban renewal district is established, the current tax base is “frozen” and the city and other taxing districts will receive the same amount of tax revenue from that district for the duration of the Urban Renewal Area (URA). The additional tax revenue above and beyond the frozen base accrues to the URA for improvements in support of the goals and objectives of the UR Plan. The UR program is overseen by the designated UR commission, which often has the same membership as the city council, but not always. (Please see the more in-depth discussion of Urban Renewal following this table.)

Urban Renewal funds must generally be used for physical improvements to land and property, which may be public or private. In support of these goals, the UR agency can contribute to related actions such as direct acquisition or pre-development phases such as feasibility and design. Public projects in support of URA goals,

including infrastructure improvements, streetscape and beautification projects, creation of parks and community facilities, transportation improvements.

Acquisition of land for UR projects. Participation in public/private

partnerships, including subsidies and direct involvement of development.

Creation of grant or loan programs for a range of uses, including: - Storefront/façade improvement - Assessment of development

opportunities - Development in support of job

creation - General property rehabilitation

The power of Eminent Domain is often specifically authorized or prohibited in the Urban Renewal Plan, based on community sentiment towards its use.

(Please see the more in-depth discussion of Urban Renewal following this table.)

OR Department of Revenue, Urban Renewal primer: www.oregon.gov/DOR Association of Oregon Redevelopment Agencies, :Resources: section: www.orurbanrenewal. org “Urban Renewal in Oregon” Report: www.pdc.us


TOOLS FOR FUNDING PUBLIC ECONOMIC DEVELOPMENT (Continued)

TYPE OF FUNDING


Local Improvement Districts

Turner A Local Improvement District is a special geographic area in which the property owners are assessed an additional tax in order to pay for specific improvements which benefit that area. Owners are charged proportionally to how their property is benefited by the improvement. Once the agreed upon improvements are completed, the LID expires. This is a method which focuses the costs of certain public improvements on the area which will benefit from it. It is often used in the case of larger new land development to ensure that the developer and/or new residents pay for new sidewalks and other public improvements.

Construction of public right-of-way improvements such as streets, sidewalks, planter areas, and storm water management are the most common uses of an LID.

Water and sewer lines Streetscape and way-finding

improvements, such as special streetlights, benches, or signage

Traffic signals and other traffic management

An indirect improvement which may not be located in the LID itself, but the benefit of which to the LID is established. For instance, a catch basin for storm water located downhill from the LID.

Potentially formed by city

Economic Improvement Districts (Business Improvement District)

Turner This mechanism is much like a Local Improvement District, however, in this case commercial property owners are levied to share the costs of projects which benefit them or the business district as a whole.

See LID eligible projects above EID are often used to for business-specific

projects which improve the business climate and improve access for customers

Often public improvements are incorporated into an image or promotion effort for the shopping district

Funds can be used for non-capital improvements such as staffing a Downtown Association, or marketing efforts.

Potentially formed by city


TOOLS FOR FUNDING PUBLIC ECONOMIC DEVELOPMENT (Continued) TYPE OF FUNDING


Regional Investment Fund

MWVCOG The Mid-Willamette Valley Development Partnership, staffed by MWVCOG, serves as Regional Investment Board to distribute state lottery funds from the Regional Investment Fund, and the Rural Investment Fund. The focus of these programs is job creation, particularly in traded-sector industries. Opportunities for immediate job creation may be given priority.

This funding has been used for a flexible range of community planning and capital projects in the region. These range from infrastructure projects to feasibility studies, engineering and planning projects. Potential uses might include: Creation of a Revolving Loan Fund for business

improvements or assistance. Specific street, water, sidewalk improvements

related to new or expanding business. Assistance with creation of an Improvement

District, or Urban Renewal District Feasibility study for a Business Incubator.

This funding is used flexibility and is a potential source for many economic development initiatives. In addition, MWVCOG offers funding programs directly to businesses. (See Programs for Business section of this memo.)

MWV Development Partnership Via: MWVCOG www.mwvcog.org

Enterprise Zone

State of Oregon

Enterprise Zones give local jurisdictions a way to offer tax incentives and other assistance to attract new employers and encourage expansion of existing employers in economic distressed areas. New Enterprise Zones are created through a periodic statewide application process. Enterprise Zones for smaller and “rural” towns tend to encompass the whole UGB area. While the tax incentive provides the main impact behind an EZ, these zones can also provide a unified foundation for economic development and promotional efforts.

Offers abatement from local property tax on new or expanded property and equipment, with demonstrated job growth.

Applies mainly to non-retail commercial and industrial businesses.

The standard program offers a 3-5 year abatement The rural program offers up to 15 years of

abatement. The Oregon enterprise zone is designed to: Encourage local entrepreneurship Prompt larger investments than might otherwise

occur Increase employment (some job growth is

required) Allow higher levels of employee compensation

Oregon Economic & Community Development Department

www.oregon4biz.com/enterthezones




Community Development Block Grants (CDBG)

State of Oregon

Community Development Block Grants are distributed by HUD to entitled municipalities, which are given significant flexibility in how they are used locally for community and economic development purposes. Oregon administers the CDBG for most counties and cities in Oregon (aside from the largest jurisdictions). Funds are granted annually through an application process. Each year the State refines a Method of Distribution program that specifies the goals of the CDBG program and ensures it is in agreement with federal and state objectives. Maximum funding levels differ by type of project. (See state website) MWVCOG offers assistance to local jurisdictions in applying for these funds.

Public property acquisition or rehabilitation, or extension of infrastructure (economic development related).

Establishment of a Revolving Loan Fund for businesses, for a range of uses including property improvement.

Business assistance such as training, planning and marketing,

Public Works including Downtown Revitalization, and brownfield redevelopment.

Community facilities such as community centers, libraries, shelters and food banks.

Rehabilitation of low-income housing (through OHCD).

Oregon Economic & Community Development Department http://econ.oregon.gov/ MWVCOG Community Services www.mwvcog.org

Brownfields Redevelopment Fund

State of Oregon

A direct loan (or occasional grant) program to help evaluate and clean-up brownfield sites, to allow redevelopment. Private persons, businesses or municipalities are eligible. Applicant may be owner, buyer or other vested interest in the redevelopment of a suspected brownfield site. A brownfield is a site with environmental contamination, often from a past land use on the property or nearby properties. Allowable funding levels are unspecified.

Evaluation of a suspected brownfield site. Feasibility study of remediation (clean-

up) and redevelopment. Remediation of a brownfield. Actual development costs are ineligible. Housing properties are generally ineligible. Mixed-use developments are eligible as part

of downtown revitalization.

Oregon Economic & Community Development Department http://econ.oregon.gov/




Special Public Works Fund

State of Oregon

This is a revolving loan fund for planning, designing, purchasing, improving and constructing publicly-owned facilities in support of economic development initiatives related to “traded-sector” employment. Traded sector companies sell their goods or services in national or international competitive markets. This program offers loans or grants for multiple aspects of public facility planning, purchase or construction. Planning funds are available at $200 per acre, up to $20,000 for loans, and $40,000 for grants (maximum 85% of project cost.) Design and construction loans are available at $100k to $15 million, with low interest rates. Grants can be up to $500k or 85% of project cost ($5,000 per job created or retained.)

Airport facilities Buildings and associated equipment Mitigation of environmental conditions on

industrial lands Port facilities, wharves and docks Purchase of land, rights of way and

easements necessary for a public facility Telecommunications facilities Railroads Roadways, bridges, etc Solid waste disposal sites Storm drainage systems Wastewater systems Water systems

Oregon Economic & Community Development Department http://econ.oregon.gov/


VII. FOCUS ON URBAN RENEWAL (TAX INCREMENT FINANCING) This section provides some extra detail on Tax Increment Financing (TIF) and on Urban Renewal planning and implementation. This is a recommended financing tool for implementing the improvements discussed in this memorandum, and the subsequent Turner Downtown Improvement Plan which will develop from these strategies. As the preceding table suggests, TIF is just one funding mechanism out of many, and can be used in conjunction with other programs to achieve the community’s objectives. What is Urban Renewal? Urban Renewal is a set of tools which allow cities and counties to take a more active role in redevelopment and revitalization of specific districts. Urban Renewal uses TIF to build a dedicated revenue source for the projects described in the Urban Renewal Plan. In addition, it provides additional flexibility for buying and redeveloping sites, and participating in public/private development partnerships. Urban Renewal (UR) now has a long history in Oregon, dating to the 1950’s. At first, the tool was used mainly in the City of Portland. Like many cities of the 50’s and 60’s era, Portland pursued some controversial redevelopment projects which involved largely clearly existing neighborhoods and beginning anew. Nationwide, established neighborhoods were often replaced by large housing projects, large civic and institutional uses, and generally a type of formal land use planning which has not always aged well. Unfortunately, this early era earned “Urban Renewal” a negative connotation that persists until this day. However, since this early era, the use of this tool has been greatly refined, while respect for existing communities and advancements in land use planning have allowed for neighborhoods to actually be revitalized from within rather than cleared and replaced. The modern use of UR is very different from that early era. Some jurisdictions simply use the term “Tax Increment Financing” instead to indicate this break from the past. Now Urban Renewal is used across the state by cities large and small, and in counties both urban and rural. It has been applied in all types of neighborhoods, including downtowns, residential, commercial, and industrial areas. How does Tax Increment Financing work? The main functional force behind Urban Renewal (UR) is Tax Increment Financing. TIF works by “freezing” the current property tax base in the UR district, and assigning the future tax growth to the UR district itself to pursue the identified projects. The current local taxing jurisdictions (the city, county, schools, fire districts, etc.) continue to receive the “frozen” amount of taxes throughout the life of the UR district. However, the property tax base within the district will continue to grow through appreciation, and if the UR program is successful, through new development. The UR agency uses that new “tax increment” to implement the UR Plan and meet its goals over the life of the district.


The UR agency might choose to wait for TIF revenue to grow over time before undertaking projects, but many bond or borrow against the future TIF revenue, in order to begin projects sooner. These early projects are geared towards spurring private investment and redevelopment. Thus, Urban Renewal can be “self-fulfilling” in the sense that borrowing against future TIF revenue allows for the completion of projects which will bring that future tax growth about. How is Urban Renewal implemented? A community instituting an Urban Renewal Area (URA) typically follows the following process:

1) The community, and local governing body, decides it would like to explore the use of Urban Renewal and outlines the rough boundaries of the prospective district.

2) Undertake a Feasibility Study of the area to inventory existing conditions and determine if it is eligible for Urban Renewal. The study must address whether or not there is basis for calling the area “blighted”. This study may also make preliminary estimates of the potential TIF generation in the area. The governing body assesses this study, and makes a determination to proceed or not proceed.

3) Prepare an Urban Renewal Plan and Report. These documents are required by state law in the creation of a URA. This is a public planning process and must allow for public input at each stage. The affected taxing districts are notified and allowed to comment and/or object. The Plan specifies the specific district boundaries, the goals and objectives, specific projects to be undertaken, spending limits, and rules on the acquisition and disposition of land. The Report provides technical information, including documentation of blight, detailed financing projections and impacts on overlapping taxing jurisdictions. The Plan and Report are presented to the Planning Commission for recommendations, giving a public hearing, and then adopted by the governing body.

4) State law requires the creation of a separate Urban Renewal Agency, which is activated at the time the Urban Renewal program is adopted. Often the membership of the UR Agency is the same as the governing body of the city or county. It holds separate meetings specifically for UR business. Other jurisdictions choose to create a UR Agency with independent membership. The justification for this is often to shield redevelopment decisions from politics.

5) Once the UR program is established, the UR Agency oversees the implementation over the life of the district (commonly 20 years.) The UR Plan and the projects and rules laid out within it serve as the guiding document. The Plan also describes procedures for amending it to address unforeseen contingencies over the long lifespan of the district.


Eligible Uses of Urban Renewal: Urban Renewal funds must generally be used for physical improvements to land and property, which may be public or private. In support of these goals, the UR agency can contribute to related actions such as direct acquisition or pre-development phases such as feasibility and design.

Public projects in support of UR goals, including infrastructure improvements, streetscape and beautification projects, creation of parks and community facilities, transportation improvements.

Acquisition and improvement of land for UR projects. Participation in public/private partnerships, including subsidies and direct

involvement of development. Creation of grant or loan programs in support of UR goals, including:

- Storefront/façade improvement - Assessment of development opportunities - Development in support of job creation - General property rehabilitation

The power of Eminent Domain is often specifically authorized or prohibited in the Urban Renewal Plan, based on community sentiment towards its use.

Other Considerations:

The definition of “blight” for establishing Urban Renewal Areas has been interpreted

very broadly. It generally refers to deteriorated properties and lack of adequate

infrastructure. The term “blight” has very negative connotations, but it is used as a

technical term in this case, and shouldn’t be taken as an implication that the

community is blighted in the familiar sense.

Projects undertaken which have broader benefits for the community beyond the UR

district, i.e. a new City Hall or library, must have a clear connection to the goals and

objectives of the UR district itself. Sometimes TIF revenue is allocated to such

projects in proportion to the expected benefit to the UR district, and other funds are

allocated to represent the broader community benefit.

Consultants are often retained to conduct the feasibility study, run the planning

process, and create the eventual Plan and Report documents. The Regional

Investment Fund administered by MWVCOG is one potential source for funding

these implementation activities.

VIII. CONCLUSION This Strategic Business Development Plan has been prepared in conjunction with the Downtown Turner Improvement Plan process, undertaken in 2008/2009. The project is funded by the SAFETEA-LU act, with additional support from the State of Oregon through the Transportation & Growth Management program.


Appendix F

Memorandum No. 5 – Zoning Strategy


Memorandum #5 – Zoning Strategy


Final Memo #5 – 3rd Street Zoning Plan – June 11, 2009

L:\Project\14800\14840\Planning\Task 6 - Final Plan\Appendix\Appendix F.doc



Phone (503) 635-3618

Fax (503) 635-5395

Project Team:

David Siegel, FAICP


Amanda Owings, P.E.

Warren Greaser

Jerry Offer

Brendan Buckley Johnson Reid ,LLC

Purpose of Task 9

To analyze and provide recommendations for the General

Commercial zoned area along the 3rd Street corridor north of

Downtown that will ensure that the commercial uses are of a type

and scale that won’t compete with downtown commercial uses and

will not lead to commercial strip development. The City currently

has only one commercial zoning designation and wants to provide

more than one commercial zone to encourage appropriate

commercial uses in the downtown area versus allowing all

commercial uses to locate in the 3rd Street Study Area.

An emphasis of this land use analysis will be to support the

implementation of the Downtown Improvement Plan

recommendations and objectives. The 3rd Street Study Area

boundary is shown on the project area map.

In addition, attention will be paid to the following additional

objectives:

• Discourage strip development;

• Maintain active residential uses and neighborhoods where they

currently exist along the 3rd Street corridor;

• Enhance the 3rd Street area as a gateway to Downtown

To: Naomi Zwerdling, Senior Planner, ODOT

David Sawyer, City Administrator, Turner

From: David Siegel, Planning Manager, Otak

Jerry Offer, Senior Planner, Otak

Brendan Buckley, Senior Associate, Johnson-Reid

Date: June 11, 2009

Subject: Task 9/Final Memo #5 – North 3rd Street Zoning

Recommendations

Naomi Zwerdling, ODOT

David Sawyer, City of Turner Page 2

Turner Downtown Improvement Plan Memorandum #5 – Zoning Strategy June 11, 2009




Contents of This Memorandum

First, this memorandum discusses the existing land use patterns in Downtown and in the 3rd Street

commercial corridor, as well as the existing zoning for those areas. Second, this memorandum refers

to the adopted vision and some of the recommended goals and policies from Project Memorandum

#3 which have been determined to provide the most succinct direction for the Downtown

Improvement Plan related to the zoning for Downtown Turner, and which accordingly may relate to

zoning elsewhere in the city – most notably the current C-1 zoning along 3rd Street north of

Downtown.

Thirdly, Johnson-Reid LLC has provided a discussion of the typical distinctions between a typical

downtown storefront-style of development as compared to the style of commercial development

which would be anticipated to occur along an arterial street such as the northern segment of 3rd

Street.

In looking at the potential effects of the General Commercial zoning district along that portion of

3rd Street north of Downtown upon the implementation of the Downtown Improvement Plan, it is

necessary that the TAC also be familiar with the overall zoning recommendations for the

Downtown area. To that end, this memorandum presents the proposed revisions to the zoning

ordinance to add a new C-2 Downtown Mixed-Use zoning district for the “heart” of downtown and

a new M-2 Employment district which mixes industrial and commercial uses. The C-2 and M-2

zoning districts would replace the existing Downtown Commercial (DC) district. In addition, a new

P-I Public Institutional zoning district is proposed to designate properties which are in public use

such as the fire station, elementary school, parks, and the City of Salem water reservoir and semi-

public uses such as churches and franchise utility service yards. The proposed revisions are described

below in the Recommendations section of this memorandum. The proposed revisions to the zoning

ordinance text to create these districts are attached to this memorandum as Exhibit 1. Language to

be added to the zoning ordinance is highlighted and underlined in the draft revision package.

In addition, draft revisions to the City’s zoning map to apply these new districts is attached in two

parts, Exhibit 2A – Turner Downtown Improvement Plan Proposed Comprehensive Plan and

Zoning Designations, and Exhibit 3A – Third Street Commercial Corridor Proposed

Comprehensive Plan and Zoning Designations. The rationale for the proposed map revisions is

explained below in the recommendations section of this memorandum.

As background for your review of this memorandum and the proposed revisions to the zoning

ordinance and zoning map, Exhibits 2B and 3B present the Existing Comprehensive Plan and

Zoning Designations maps for Downtown and the 3rd Street Corridor. Exhibits 2C and 3C are







aerial photos of those portions of the City for your use in looking at the existing land uses in the

affected areas. Exhibit 4 is the official City of Turner Comprehensive Plan and Zoning Districts

Map for the entire city.

I. Existing Land Use and Zoning

As noted above, Exhibits 2C and 3C are aerial photos which illustrate the existing land uses in the

city and Exhibit 4 is the existing City of Turner zoning map. As can be seen by looking at these

maps, there is a very large area of C-1 General Commercial zoning nearly lining 3rd Street and

Denver Street as they head through the City from north-to-south. Most of the C-1 zoning is only

one parcel deep along the roads, except in the heart of the Downtown area. The M-1 General

Industrial district is currently utilized generally in the area of the mill on both sides of the railroad

tracks south to the southern city limits, and also further north in the area of Action Wood Products

and Pick-A-Part on the west side of 3rd Street and the Santiam Homes facility on the east side of 3rd

Street. There is one small area on the east side of 3rd Street on either side of Elm Street which has

residential zoning with the R-2 and R-11 zoning districts, even though the primary land uses along

3rd Street north of Mill Creek to Val View Road are detached single-family residences.

II. Objectives of the Draft Downtown Improvement Plan

The draft Downtown Improvement Plan’s vision statement is a synopsis of the community’s values

for long-term development. The supporting goals and policies frame how that vision can be

achieved through urban design, land use, transportation, redevelopment, and economic

development. The vision, goals, and policies will be used to guide the development of specific

concepts and strategies for the Downtown Improvement Plan.

Vision: Downtown Turner will be a complete community with a small town feel. It will continue to be “a good

neighbor town” where residents are familiar and children are safe to ride their bicycles around town. Downtown Turner

will be the heart of the community and boast plentiful amenities and activities year-round. Respecting the past and the

future, downtown Turner will celebrate its history while providing an economically viable place to do business and shop,

attracting new employment opportunities, residents, and visitors.

Goals and Policies:

Below are selected goals and policies of the draft Turner Downtown plan which are specifically

related to the issues of zoning for the Downtown and the northern 3rd Street corridor:

Urban Design: To create an attractive small town environment that facilitates community activity and interaction

for all ages.







• Downtown Turner should be the center of the community. It should contain a space that is considered the “heart”

of town.

• Destinations to enliven downtown should be centrally located. These could include a new bandstand, dance hall,

civic center, museum, library, or relocated city hall.

• The urban design and arrangement of spaces and buildings in downtown should use history as an inspiration,

enable community activities, and provide a sense of identity and continuity.

Land Use: To allow and encourage a mix of uses to create a complete downtown.

• Retail and office uses should be allowed throughout the downtown area.

• Residential uses should be preserved and augmented.

• Mixed commercial and residential buildings, such as a shop below or in front of a home, should be allowed and

encouraged throughout the area.

• Light industrial uses should be limited to the area along 3rd Street. These industrial uses should be allowed to

have a commercial component, such as a retail outlet or showroom, on their property.

• Zoning should provide for maximum flexibility.

Redevelopment: To infill vacant land and redevelop vacant, underutilized, or dilapidated structures to create a

more inviting and active environment.

• The community’s vision for building character and streetscape should be clear to those undertaking development

projects.

• The City should establish and communicate a clear development application process, with standardized steps and

forms.

• Subjectivity should be removed from the development review process to the extent possible.

Economic Development: To maintain and capitalize on small town advantages while attracting newbusinesses

to the area.

• The broader community identity or theme in Turner should be clear to business people considering locating there.

• Redevelopment and refurbishment of older buildings should be encouraged to the extent possible.

• Increase visibility and street presence of existing businesses.

III. Downtown Main Street vs. Arterial Street Commercial Environments

The type of commercial uses one might find in a historical downtown environment versus an arterial

commercial street environment differs in key ways. As the following discussion makes clear, the

issues of form and function are closely related:







• Street Orientation of Buildings: The first difference one might encounter is in the physical or

visual differences between businesses in these two environments. The classic physical unit of

downtown “main street” business is the storefront. Oriented very close to the sidewalk, often

with large windows looking into the business itself, storefront buildings are sometimes said to

have “pedestrian scale,” meaning they’re oriented towards people walking by and stopping in.

Effective storefront atmospheres have these buildings located immediately adjacent to each

other in a row, or with any gaps kept to a minimum. This creates a contiguous pedestrian

experience.

In contrast, on arterial commercial streets businesses are physically designed with the

assumption that most customers will be arriving by car. This very often means that parking is

located between the building and the street itself. For the reasons that the classic storefront

model is good for pedestrians, the auto-oriented commercial model is not. This should not be

seen as a negative, as some business types will be better suited for auto access than pedestrian

access. However, a city should recognize the differences between the styles of development and

provide zoning for each.

• Scale: Larger businesses tend to require more parking for customers, more space for deliveries

and/or outdoor storage. Therefore, these businesses will tend to locate where larger sites and

more parking are available, as on an arterial commercial strip. Classic main street retail space will

tend to appeal to smaller-scale businesses which rely on street parking and pedestrian traffic.

• Customer Base: The scale and parking orientation of businesses is related to the customer base

the business is hoping to attract. Smaller scale main street businesses tend to rely more on

serving local households and employees in the area, hoping that this more intimate customer

base is sufficient to sustain a modestly sized business. The types of services offered here will

reflect this local orientation.

While many locally-focused businesses do locate on arterial commercial streets, these streets are

well-suited to serving a larger customer base, which typically arrives by car. This auto-orientation

means that customers from further away can access the business more quickly and efficiently.

This larger customer base is symbiotic with the larger scale of businesses possible on the arterial.

IV. Recommendations

A. Modifications to the Zoning Ordinance

The biggest threat to achieving a reinvigorated Downtown is for commercial businesses which might

be interested in locating in the downtown choosing to locate elsewhere. While we can’t do much






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about businesses which choose to locate totally outside of the community, the City can tailor its

Zoning Map and Zoning Ordinance to direct commercial uses with differing needs and markets to

different locations in the community and to allocate an appropriate amount of land for each of these

uses.

To that end, it is recommended that the Zoning Ordinance be amended to create a new C-2

Downtown Mixed Use zoning district and a new M-2 Downtown General Employment zoning

district. These new zoning districts are intended to provide for desirable downtown-sized retail and

office uses. The C-2 zoning district would also allow for a variety of multifamily residential uses

Downtown–both freestanding and on upper floors above retail or office uses. The M-2 district

would allow light industrial uses which occur wholly within a building and which may be combined

with an associated retail or office use. The recommended text for these new zoning districts is

attached in Exhibit 1 to this memorandum, along with recommended revisions to the

Comprehensive Plan and Zoning Designations map which illustrates where the project team

recommends that these new zoning districts be applied. In addition, the recommended Zoning Map

revisions include recommendations for fine-tuning the residential zoning districts adjacent to the

Downtown area.

The primary difference between the proposed C-2 Downtown Mixed-Use zoning district and the

C-1 General Commercial district is that the C-2 district intends to create a typical downtown with

storefront buildings located close to the sidewalk, a mix of land uses, and a convenient pedestrian

environment. In order to achieve these purposes, the C-2 district uses design standards and

guidelines to encourage the development of typical storefront buildings similar to what downtown

Turner used to have, and also through allowing individual uses of less than 4,000 square feet from

having to provide on-site parking. It is believed that the current supply of on-street parking spaces in

downtown should be sufficient to serve the needs of the smaller uses downtown. The purpose

statement for the C-1 zone would be modified to explain that the C-1 zone is to be utilized in

locations where the City wishes to direct commercial uses which require on-site parking and uses

which may desire land for outdoor display of goods or materials.

The primary difference between the proposed M-2 Downtown Employment zoning district and the

current M-1 General Industrial district is that the M-2 district will allow a mixture of light industrial,

office, and storefront retail uses. Uses which combine industrial assembly with associated storefront

retail areas are a primary target of this district. The design guidelines in the M-2 district encourage

the development of storefront buildings located close to the sidewalk with parking areas to be kept

to the side or rear of the building. These guidelines are, for the most part, voluntary guidelines as

opposed to the mandatory design standards of the C-2 district. At the Turner Downton Plan Public

Event #4 on May 21, 2009, it was recommended that the M-2 zone will require additional discussion

prior to adoption.







In addition to the C-2 and M-2 zoning districts, a new PI Public Institutional zoning district is

proposed which is intended to be applied to existing public uses and/or properties owned by public

institutions for future use as well as properties owned by semi-public entities such as churches and

franchise utility providers. The PI district is intended to be applied to the fire station, parks, existing

churches, the elementary school property, and utility services such as the Verizon switching facility

on Chicago Street and sewer and water pumping stations.

B. Modifications to the Zoning Map

In addition, the project team was struck by the amount of land which is currently designated

General Commercial, C-1. This significant amount of C-1 zoned land provides too many

opportunities for potential commercial land users to choose somewhere other than the Downtown

area. In addition to the majority of the Downtown area, the C-1 district extends up most of both

sides of 3rd Street to Action Wood Products, creating the potential for a significant stretch of strip

commercial development–but an area which would likely be intermixed with residential uses because

there simply will not be enough commercial demand to convert this entire area to commercial uses.

There currently is very little commercial development within the area north of Mill Creek. The

development team believes that it is unlikely that much of this area will redevelop with commercial

uses due to: 1) potential conflicts with the predominantly residential uses in this area; 2) the limited

depth of these parcels and the limited size of individual parcels; and most importantly, 3) limited

demand for commercial land in Turner.

In order to focus the limited demand for commercial land on the Downtown area and in areas along

3rd Street which are already predominantly commercial, it is recommended that the most of the

existing C-1 zoned property on the east side of 3rd Street to just beyond Elm Street be rezoned R-2

Single-Family Residential. The only exception would be the site of Perky’s restaurant and nine other

relatively small properties on the east side of the Delaney Road/3rd Street intersection, which would

remain zoned C-1. The TAC noted that those properties were a logical extension for nodal

commercial development at this important intersection. R-2 zoning would be reflective of the

existing uses of those properties and would be consistent with the zoning of neighboring properties

to the east. Slightly north of Elm Street on the east side of 3rd Street, it is recommended that

properties be rezoned to R-11, Multifamily Residential up to and including the existing City Hall

property in order to connect some existing areas of R-11 zoning, and to hopefully spur

redevelopment of this area. The four properties around the Post Office would remain zoned C-1.

The proposed rezoning of the current City Hall property to R-2 recognizes the Downtown

Improvement Plan’s recommendation to relocate the City administrative functions to downtown in

the near future.






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On the west side of 3rd Street, it is recommended that C-1 zoning be retained for the mostly

commercial uses from Mill Creek up to and including Classic Auto Storage and Sales. Beyond that

point, there is a solid stretch of well kept single-family homes, up to Triple D Windows. It is

recommended that this area be zoned R-2 in recognition of its existing uses and to preserve this

small neighborhood. The area including and northward of Triple D Windows to just short of the

Action Wood Products is recommended to retain C-1 zoning in recognition of the mostly

commercial land uses in this area. In addition, the generally larger parcel sizes and increased depth

between the road and the railroad makes these parcels attractive for potential redevelopment with

commercial uses which require room for customer parking and/or outdoor display or storage of

materials.

In addition, fine tuning of the commercial zoning on the southern edge of Downtown is suggested

to rezone several properties fronting on Elgin Street from the existing C-1 zoning district to R-11.

These properties are currently in residential usage and are unlikely to be redeveloped with

commercial uses due to their not being located on a major through street or within the planned

Downtown improvement area.

Areas within the Downtown and 3rd Street corridor which are recommended to be zoned P-I include

Burkhardt Park, the elementary school, the Burkhardt pool, the fire station, and the Verizon

switching facility.

C. Additional Recommendations

In addition to revising the zoning for properties along the northern 3rd Street corridor to residential,

it is recommended that the City investigate ways to strengthen the existing single-family

neighborhood within that corridor. This could be as basic as having a meeting (or a neighborhood

picnic) to discuss any issues which those residential neighbors have with the nearby commercial

development and with regard to traffic on 3rd Street. There may not be much that can be done about

those concerns, but at least it will be valuable to hear what the residents’ concerns are. There may be

some surprise concerns, or there may be some surprise solutions.

Also, the City should look at methods of creating an enhanced identity for the residential

neighborhood along 3rd Street. Two simple ides may be to: 1) plant street trees to help create a visual

break from the commercial development; and 2) encourage the development of short, open fences

to separate the homes yards from the sidewalk. The fences could be picket fences or wrought iron

style aluminum fences which will provide the desired separation of the yards from the street while

not creating an unfriendly feeling as might be found with solid fences or chain link fences. The City

could investigate whether there are grant funds available for the fencing and street trees, or the City







could investigate the creation of a low interest loan program for residential streetscape

improvements.

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Exhibit 1 – Proposed Zoning Ordinance Amendments Proposed revisions to the zoning ordinance are underlined and highlighted. SECTION 4.131 GENERAL COMMERCIAL DISTRICT C-1 (1) Purpose. The General Commercial District is intended to provide areas appropriate for the

full range of commercial activities to serve the needs of area residents and employees. The C-1 District is well suited for areas having access from the City's major thoroughfares that are free from conflict with non-compatible land uses. The C-1 district is intended primarily for commercial uses which may be of a larger scale and require more extensive parking than do uses in the C-2 Downtown Mixed-use District.

(2) Permitted Uses. In a C-1 District, the following uses and their accessory uses are

permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code, provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building:

(a) Retail stores or shops. (b) Personal or business service. (c) Repair shops (See 3 (b) below). (d) Eating or drinking establishments. (e) Offices, business or professional. (f) Financial institutions. (g) Indoor commercial amusement or recreation establishments. (h) Public or semi-public buildings and uses. (i) Residential Care Facility for 15 or less people as provided in ORS 197.660 - 670. (j) Group Child Care Center for 13 or more children as provided in the applicable

provisions of ORS 657 A. (k) Second story residences located above a ground floor commercial use in accordance

with Section 6.201. (Amended by Ord. 02-105 Attachment “A”) (l) Conversion of residence to a permitted commercial use in accordance with Section

6.201. (Amended by Ord. 02-105 Attachment “A”)

(3) Conditional Uses. In a C-1 District, the following uses and their accessory uses may be permitted in conformance with the conditional use provisions of Section 2.500 and the applicable Use Standards of Article 6.

(a) Automotive, truck or RV service facilities with access from a designated arterial street.


(b) Automotive, truck, RV, equipment or other repair shops which possess nuisance characteristics or emissions potentially detrimental to Public health, safety and general welfare of the community such as noise, vibrations, smoke, odor, fumes, dust, heat, glare or electromagnetic interference shall not be permitted unless additional safeguards are specified by the Planning Commission. The applicant shall accurately specify the extent of emissions and nuisance characteristics relative to the proposed use.

(c) Permitted uses listed in (2) above, requiring open display or storage, including but not limited to, automobile or equipment sales.

(4) Development Standards.

(a) Minimum lot area and configuration - Lots within a General Commercial District are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access and pedestrian circulation including persons with disabilities.

(b) Yards:

1. Exterior yard setbacks - none required. See Section 5.116 for additional street setbacks.

2. Interior yard setbacks - 5 feet where abutting residential property and zero where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.

(c) Maximum building height - two and one-half stories to a maximum of 35 feet. (d) Access shall be designed to cause a minimum interference with traffic and may be

subject to the review and approval of the County Engineer or State Department of Transportation. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(e) See Article 5 for additional General Development Standards and Article 6 for Use Standards that may apply in the C-1 District.


SECTION 4.136 DOWNTOWN MIXED-USE DISTRICT C-2 (1) Purpose. The Downtown Mixed-use District applies to the historic central business district

of the City of Turner in the area south and west of Mill Creek and east of 3rd Street. The Downtown Mixed-use District is intended to be the City of Turner’s center of vital retail activity, services, housing, civic buildings, and public spaces. Developments which mix these uses vertically or horizontally are encouraged in the Downtown Mixed-use District.

The C-2 district is intended primarily for commercial uses which are generally of a smaller

scale than uses located in the C-1 General Commercial District and uses which require less in the way of off-street automobile parking. Certain smaller scale uses in the C-2 District are not required to provide on-site parking, and instead are encouraged to utilize on-street parking and shared parking agreements with other nearby uses.

The C-2 District is also intended as the primary location of civic uses in the City of Turner.

Due to the public assembly aspect of these uses, off-street parking will generally be required for most civic uses.

In order to promote the development of a pedestrian-oriented environment and to promote

the development of a storefront character reminiscent of the historic downtown Turner, special design standards and guidelines are established for development in the C-2 District.

(2) Permitted Uses. In the C-2 Downtown Mixed-use District, the following uses and their

accessory uses are permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions, and exceptions set forth in this Code; provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building:

(a) Retail stores or shops. (b) Personal or business service. (c) Repair shops. (d) Eating or drinking establishments. (e) Offices, business or professional. (f) Financial institutions. (g) Indoor commercial amusement or recreation establishments. (h) Temporary vendors such as a farmers market, flea market, or food vending cart. (i) Conversion of residence to a permitted commercial use in accordance with Section

6.201. (j) Residential Care Facility for 15 or less people as provided in ORS 197.660 - 670. (k) Group Child Care Center for 13 or more children as provided in the applicable

provisions of ORS 657 A. (l) Second story residences located above a ground floor commercial use in accordance

with Section 6.201.


(m) Public or semi-public buildings and uses, including city hall, administrative offices, libraries, community centers, parks subject to the development standards in Section 6.301.

(n) Multi-family residential uses subject to the development standards of the R-11 district in Section 4.121(4) and the multi-family residential standards of Section 6.104.

(3) Conditional Uses. In the C-2 District, the following uses and their accessory uses may be

permitted in conformance with the conditional use provisions of Section 2.500 and the applicable Use Standards of Article 6. (a) Surface parking lot of any size (when not in conjunction with a permitted or

conditional use). (b) Surface parking lots with more than six parking spaces, if the parking lot is in

conjunction with a permitted or conditional use. (c) Automotive, truck, or RV service facilities. (d) Automotive, truck, RV, equipment, or other repair shops.

(4) Prohibited Uses. In the C-2 District, the following uses are specifically prohibited:

(a) Manufacturing, warehousing, wholesaling, compounding, assembling, processing, storing, researching, or testing.

(b) Scrap, waste, recycling, or wrecking yards. (c) Quarrying and related activities subject to the requirements of Statewide Planning Goal

5 and OAR 660-23-180 for Mineral and Aggregate Resources. (d) Waste or hazardous material processing, storage, or disposal. (e) Heavy equipment sales or repair. (f) Trucking operations. (g) Auto storage, towing, or wrecking yards. (h) New automotive service or sales (i) Adult video or goods.

(5) Development Guidelines and Standards. All development in the C-2 District shall

comply with the applicable provisions of the Turner Zoning Code. Where the standards of the C-2 District zone and other provisions of the Code, the standards of the C-2 District shall prevail. Standards listed in this section as “shall” are mandatory standards. Guidelines which state “should” or “encouraged” are not mandatory, but are considered desirable by the City.

(a) Purpose.

i) The purpose of these development standards is to guide the design of buildings

constructed in the C-2 district to ensure that, through appropriate use of facades, windows, building orientation, architectural details, new structures, and alterations of existing structures are physically and visually compatible with other buildings within the downtown business district.


ii) These standards are intended to encourage good quality design in new building construction, enhance street safety, and provide a comfortable street environment by providing features of interest to pedestrians. Good design results in buildings that are in visual harmony with nearby buildings, leading to a downtown that is attractive, interesting, active, and safe. These qualities, in turn, contribute to the creation of a downtown core which facilitates easy pedestrian movement and establishment of a rich mixture of uses.

iii) In order to encourage the development of small businesses typical of the historic character of the downtown area and to promote a denser development pattern, certain uses will be exempted from the minimum on-site parking requirements of Section 15.121 of this Code.

(b) Applicability.

i) The provisions of this ordinance shall apply to the following activities within the

C-2 District: 1. All new building construction; 2. Any exterior building or site modification that requires a building permit;

and, 3. All new signage.

ii) This ordinance shall not apply to the following activities or uses:

1. Maintenance of the exterior of an existing structure, such as re-roofing, re-siding, or repainting where similar materials and colors are used that comply with this ordinance;

2. Interior remodeling; and, 3. Exterior remodels to exclusive single-family residential homes, are exempt

from the provisions of this chapter. Single-family homes that are used for businesses or home occupations are not exempt.

iii) This ordinance shall apply only to those portions of a building or sign that are

proposed for construction or modification and shall not extend to other elements of the building or sign that may be out of compliance with the requirements of this ordinance (i.e., a permit to replace a single window shall not require that all other windows on the building that may be out of compliance with this ordinance to be replaced, unless such action is initiated by the property owner). However, if a building should be destroyed due to fire, accident, or an act of God, the new or replacement structure shall be rebuilt to conform to the requirements of this ordinance.

(c) General Standards. These standards to all uses in the C-2 District except for detached

single-family residences and multi-family development.


i) Minimum lot area and configuration - Lots within the C-2 Downtown Mixed-use District are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, needed parking, service access, and pedestrian circulation to provide for the needs of persons with disabilities.

ii) Yards:

1. Front yard setback - none required, 10-foot maximum allowed. See Section

5.116 for additional street setbacks. 2. Side and rear setback – minimum 5 feet where abutting residential property

and zero where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.

iii) Maximum building height - three stories to a maximum of 35 feet.

iv) Access shall be designed to cause a minimum interference with traffic and may be subject to the review and approval of the County Engineer or State Department of Transportation. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

v) See Article 5 for additional General Development Standards and Article 6 for

Use Standards that may apply in the C-2 District. (6) Design Guidelines or Standards. All development, EXCEPT for existing detached single family homes and multi-family

development shall be subject to the C-2 District design guidelines and standards listed below.

(a) Standards. Standards for new construction shall require builders to conform to the

architectural form of Turner’s historic period (1880s through 1940s) when downtown Turner had more of a typical downtown character. As such, new construction shall conform to the following standards and guidelines listed below. Reference is made to Turner’s historic period, and to buildings which display basic storefront design characteristics of that period. The following building displays characteristics intended by the standards. Other buildings, including those in other nearby communities, may also be used to demonstrate the requiredelements and/or the basis for visual compatibility.

The best existing example of a storefront building to be looked at for determining compatibility with the design standards is the Turner bank building at 3rd Street and Boise Street.


1. Site Development. a. Building fronts and entrances shall be oriented toward the street.

Buildings with frontages on two or more streets shall be oriented to at least one street.

b. Building facades should be set at the property edge along the sidewalk. A maximum setback of up to ten feet shall be permitted when occupied by pedestrian amenities (e.g., plaza, outdoor seating). Buildings with frontages on two or more streets should be set at the property edge on at least one street.

c. Site development should, as applicable and as practical, utilize the alley in the rear of the site for service access - such as for deliveries, trash and recycling pick-up, and employee parking. Buildings shall include doors to alley rights-of-way even if alleys are not currently in use.

2. Building Scale.

a. The overall size and proportion of new structures shall be compatible with the scale of nearby traditional storefront buildings. This standard may be met by either designing the building’s size and proportions to be similar to comparable structures in the downtown, or by the design of the façade so that it breaks a larger mass into smaller units that are similar to comparable historic structures.

b. If practical, new buildings should have the same floor height as adjoining buildings in case there is ever a desire to link the storefronts.

c. The relationship between the height and width of the main facade of the building shall be visibly compatible with adjoining or nearby buildings of the historic period or style. As with subsection (2)(i) of this section, this standard may be met through either similar height and width or, through design elements that provide visual continuity with the height and width of adjoining or nearby buildings of the historic period.

3. Building Height.

a. New buildings of at least two stories in height are encouraged. b. As specified in Section 4.136.C.3, the height of all buildings shall be

one to three stories and not more than 35 feet in maximum height.

4. Building Width. a. All new buildings should maximize lot frontage as much as is

practicable. b. New buildings whose street frontage is more than 50 feet wide shall

be designed to convey a sense of division through the use of pilasters, windows and door openings, recessed entries, off-sets, or other architectural details.


5. Storefronts.

a. Primary entrances shall be oriented to the street. Corner buildings shall have corner entrances, or shall provide at least one entrance within 20 feet of the street corner or a corner plaza.

b. Street-facing upper windows of multi-story buildings shall use multi-pane double-hung sash windows or the equivalent style.

c. The relationship between solid walls and window and door openings on the main facade shall be visually compatible with adjoining or nearby structures from the historic period or style. Ideally, first floor storefronts should be about 80 percent glass from approximately 2 feet above grade to approximately 10 feet above grade.

d. The relationship of width and height of window and door openings shall be visually compatible with adjoining or nearby buildings from the historic period or style.

e. Blank walls, walls without window or door openings, are not permitted along public streets.

f. Windows and doorways shall not be covered over with paper, boards, or cardboard except during times of construction or remodeling and shall be limited to a period of 120- days unless an extension is otherwise granted by the city manager.

g. Doors shall match the materials, design, and character of the display window framing.

h. Architectural features such as awnings, windows, cornices, etc., shall be provided at the second floor to differentiate the storefront from the upper levels of the building, to add visual interest, and to allow the storefront to function as the base for the rest of the building.

6. Facade Materials and Texture.

a. The materials and texture of the facade shall be compatible with those on buildings constructed during the historic period.

b. Permitted exterior facade materials include: brick, cast iron, relatively narrow horizontal wood or masonry siding, and stucco. Plywood siding, T-111, and vertical board and batten are prohibited.

c. Exposed concrete block facades facing the street are not allowed. Split-face or scored-face block may be used in small quantities for foundations or other non-dominant features.

d. All main facade materials shall be painted (except brick, for which painting is optional).

e. Metal siding shall not be used as a building material on the facade facing a street.

7. Windows.

a. Windows which allow views to the interior activity or display areas are encouraged. Windows shall include sills at the bottom and


pediments at the top. Glass curtain walls, reflective glass, and painted or darkly tinted glass shall not be used on the first floor.

b. Ground Floor Windows. All new buildings must provide ground floor windows along adjacent street rights-of-way. i. Required window areas must be either windows that allow views

into working areas or lobbies, pedestrian entrances, or display windows.

ii. Required windows must have a sill no more than four feet above grade. Where interior floor levels prohibit such placement, the sill must be raised to allow it to be no more than two feet above the finished floor level, up to a maximum sill height of six feet above grade.

iii. Glass curtain windows are not permitted. iv. Darkly tinted windows and mirrored windows that block two-

way visibility are prohibited as ground floor windows along street facades.

v. Any wall that faces a public right-of-way must contain at least 20 percent of the ground floor wall area in display areas, windows, or doorways. Blank walls are prohibited.

c. Upper Floor Window Standards. i. Glass area dimensions shall not exceed 5'x7'. (The longest

dimension may be taken either horizontally or vertically.) ii. Windows must have trim or molding at least two inches wide

around their perimeters iii. At least half of all the window area in upper floors must be made

up of glass panes with dimensions no greater than 2.5'x3.5'.

8. Roofs. a. Main facade roofs (lower than a 6:12 pitch) shall be concealed behind

a square or stepped parapet. Flat roofs are permitted behind a parapet.

b. All HVAC systems located on top of a roof shall be located and/or screened so that they are not visible from the street. Dish-style antennas shall be located and/or screened so that they are not visible from the street. All screening material shall be natural and shall be compatible with the facade of the front of the building.

c. New roofs on existing buildings or on additions to existing buildings, shall match the pitch and form of the original roof.

d. Shed roofs are permitted on one-story rear additions. e. Back-lit or internally illuminated roofs are prohibited.

9. Awnings and Canopies.

a. The use of awnings or canopies over sidewalks is encouraged.


b. Awnings shall extend out from the building front to cover at least two-thirds of the sidewalk unless it is shown that such a distance will interfere with existing trees, poles, etc., to provide pedestrian protection from the elements.

c. Awnings shall be flat or sloping. Awnings shall be made of metal, wood, canvas, or similar materials. Rounded bubble or plastic awnings are prohibited. Fully glazed awnings are not permitted.

d. Awnings shall fit within the window bays (either above the main glass or the transom light) so as not to obscure or distract from significant architectural features.

e. The color of the awning shall be compatible with its attached building.

f. Awnings shall not be internally illuminated. However, lighting which is intended to provide illumination to the sidewalk and signage is permitted.

g. Awnings shall be a minimum of eight feet above the sidewalk. h. Where feasible, awnings shall be placed at the same height as those

on adjacent buildings in order to maintain a consistent horizontal rhythm along the street front.

10. Color.

a. The painting of brick walls is permitted. b. Subtle or subdued tones commonly used during the historic period

shall be used. Bright or neon colors are prohibited. c. Different colors shall be used to accentuate and highlight trim,

windows, and other building features.

11. Site Design. a. Landscaping shall not obliterate street and sidewalk views of signage

or architectural features on historic buildings.

12. Parking. a. Individual permitted uses listed in Section 4.136 (2) (a) through (h) of

less than 4,000 sq. ft. of building area are not required to provide off-street parking spaces. It is intended that such uses shall be provided with sufficient on-street parking.

b. If off-street parking lots are provided, they shall be designed consistent with the following standards: i. Parking areas shall not be located between the front of the

building and the street. ii. Alley access to the parking lot is encouraged. iii. Street side parking lots shall be set back a minimum of five feet

from a public sidewalk.


iv. Parking areas with more than 12 spaces shall be divided by landscaped areas or walkways, or by a building or group of buildings.

v. Parking lot landscaping shall consist of a minimum of 10 percent of the total parking area. A minimum of one tree for every 10 parking spaces shall be provided.

vi. Knee walls are required to screen street side parking lots. Knee walls shall not exceed three feet in height and shall be constructed with masonry. Alternatively, a combination of a wall or fence and landscaping may be approved if they provide an effective buffer and low-level screen of the parking area.

13. Drive-up service windows a. Drive-up service windows are not permitted.

14. Signs.

Signs shall be subject to Section 5.136.

15. Landscaping. Landscaping is subject to the C-2 District design guidelines and standards of Section 3.107.07.

16. External Storage of Merchandise. The external storage of merchandise

and/or materials, directly or indirectly related to a business, is hereby prohibited within the C-2 District.

17. Outdoor Displays of Merchandise. Outdoor displays of merchandise are

permitted during business hours only and shall not exceed ten percent of the total retail sales area. Displays of merchandise on public sidewalks may not reduce usable walking area widths to less then six feet.

18. Outdoor Eating Areas. Outdoor dining areas are encouraged, and are

permitted on public sidewalks. Outdoor food vending carts are permitted. Eating areas and/or vending carts may not reduce usable walking area widths on public sidewalks to less than six feet.

19. Wall Murals. The use of non-advertising wall murals representing the area’s

cultural heritage or historic events are encouraged, as well as the use of artistic wall murals. A wall mural is an expression of public art painted directly on the exterior of a building or on a backing that is affixed to the building and is sanctioned by the property owner.

The City discourages the painting of murals on the actual surface of a building but instead encourages that murals be painted on boards or ceramic panels attached to a building wall. This can help avoid problems


down the road with needing to strip, sandblast, or pressure wash brick walls to remove a mural. The use of applied panels also will allow quick removal of the panel for restoration when a mural has been tagged with graffiti. a. A sign permit is not required for a wall mural. b. Wall murals are not permitted on the exterior wall containing the

main entrance to the building. c. Wall murals may be installed and maintained in an area not exceeding

a maximum area of 80 percent of the exterior wall area of the first three stories upon the wall or façade where the mural is located.

d. Murals may not be used for any form of commercial advertising or public information or solicitation of any kind. A mural shall be considered a wall sign if it contains words, logos, trademarks or graphic representations of any person, product, or service that identify or advertise a business.

e. Up to 10 percent of the wall mural area, at the lowest border of a mural, may be utilized as an acknowledgement recognizing the sponsor of the mural or for a signature by the mural artist. The designated area for the acknowledgement or signature must not exceed a maximum area of 6 square feet.

SECTION 4.139 PUBLIC INSTITUTIONAL DISTRICT PI (1) Purpose. The Public Institutional (PI) zoning district is intended to provide areas for civic,

public safety, or public utility uses. Such uses include schools, public administrative offices, fire stations, police stations, parks, public parking facilities, and water supply reservoirs. Development within the Public Institutional zone requires a conditional use permit to ensure compatibility with adjacent residential neighborhoods, business, or industrial areas and to minimize potential adverse impacts upon those adjacent uses and other public facilities such as roads.

(2) Permitted Uses. In the PI district, any use which has previously been approved as a

conditional use or was in existence upon the application of the PI zoning district to the property, shall be considered a permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code, provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building. This does not exempt such uses from the need to apply for conditional use approval subject to Section 2.500 to expand or alter such use.

(3) Conditional Uses. In the PI district, establishment of the following uses and their accessory uses may be permitted in conformance with the conditional use provisions of Section 2.500 and the applicable Use Standards of Article 6.


(a) Indoor recreation establishments, such as public pools, gymnasiums, and community

centers. (b) Public or semi-public buildings and uses such as schools, churches, libraries, public

administrative offices, police stations, and fire stations. (c) Parks and typical park structures such as rest room buildings, picnic shelters, gazebos,

and park materials/vehicle storage buildings. Cconcession stands shall be allowed in parks in the (PI) district as an accessory use, provided such use does not occupy more than 500 square feet.

d. Public works yards and buildings. e. Public or private water supply reservoirs, pumping stations, and treatment facilities. f. Public or private wastewater pumping stations and treatment facilities. g. Public or private utility electrical substations, phone switching stations, and similar

facilities. (4) Development Standards.

(a) Minimum lot area and configuration - Lots within the Public Institutional district are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access, and pedestrian circulation including persons with disabilities.

(b) Yards:



(c) Maximum building height - two and one-half stories to a maximum of 35 feet. (d) Access shall be designed to cause a minimum interference with traffic and may be

subject to the review and approval of the County Engineer or State Department of Transportation. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(e) See Article 5 for additional General Development Standards and Article 6 for Use Standards that may apply in the PI District.

(f) New buildings for institutional uses which are located or are to be established on properties located immediately adjacent to properties within the C-2 or M-2 zoning districts shall be subject to the development standards of those districts.

SECTION 4.141 GENERAL INDUSTRIAL DISTRICT M-1 (1) Purpose. The General Industrial District is intended to protect and preserve areas suitable

for industrial development to assist in supporting the area's economy. The M-1 District is suitable for light manufacturing and warehousing activities having minimal emissions or


nuisance characteristics that could impact adjacent non-industrial areas. The M-1 District is well suited for areas having highway and rail access that are free from conflict with non-compatible land uses.

(2) Permitted Uses. In an M-1 District, the following uses and their accessory uses are

permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code. (a) Interim farm use. (b) All manufacturing, warehousing, wholesaling, compounding, assembling, processing,

storing, researching, or testing uses provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building unless approved by the Planning Commission, and provided there are no emissions or nuisance characteristics discernible without instruments at the property line. See Section 2.140 Item (21).

(c) Public or semi-public buildings and uses. (3) Conditional Uses. In an M-1 District, the following uses and their accessory uses may be

permitted, subject to the provisions of Section 2.500.

(a) Manufacturing, warehousing, wholesaling, compounding, assembling, processing, storing, researching, or testing uses having emissions or nuisance characteristics discernible without instruments at the property line or uses requiring a permit from a local, state or federal agency.

(b) Scrap, waste, recycling or wrecking yards. (c) Quarrying and related activities subject to the requirements of Statewide Planning Goal

5 and OAR 660-23-180 for Mineral and Aggregate Resources. (d) Waste or hazardous material processing, storage or disposal. (e) Commercial activities in association with an approved industrial use. (f) A manufactured dwelling for the owner or caretaker whenever an on-site residence is

necessitated by such use. The manufactured dwelling shall comply with the standards of Article 6.

(Amended by Ord. 02-105 Attachment “A”)

(4) Development Standards. (a) Minimum lot area and configuration - Lots within a General Industrial District are

approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access and pedestrian circulation including persons with disabilities

(b) Yards: ii) Exterior yard setbacks - 30 feet. See Section 5.116 for additional street setbacks. iii) Interior yard setbacks - 50 feet where abutting residential property and zero

where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.


(c) Maximum Building Height - 45 feet unless a greater height is approved by the Planning Commission with conditions of approval as part of the Site Plan Review procedures of Section 2.400.

(d) (Access shall be designed to cause a minimum interference with traffic and may be subject to the review and approval of the County. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(Amended by Ord. 02-105 Attachment “A”) (e) See Article 5 for additional General Development Standards and Article 6 for Use

Standards that may apply in the M-1 District.

SECTION 4.143 DOWNTOWN GENERAL EMPLOYMENT DISTRICT M-2 (1) Purpose. The Downtown General Employment District is intended to provide areas

suitable for industrial or office employment development to assist in supporting the area's economy. The M-2 District is suitable for light manufacturing and warehousing activities having minimal emissions or nuisance characteristics that could impact adjacent non-industrial areas. The M-2 District is also well suited for office and limited commercial uses that will be compatible with existing and planned neighboring industrial land uses and with the uses in the neighboring Downtown area. The M-2 district is suitable for combined industrial and retail uses which utilize showrooms to display products which may have been constructed or assembled on the premises.

(2) Permitted Uses. In the M-2 District, the following uses and their accessory uses are

permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code. (a) All manufacturing, warehousing, wholesaling, compounding, assembling, processing,

storing, researching, or testing uses provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building unless approved by the Planning Commission, and provided there are no emissions or nuisance characteristics discernible without instruments at the property line. See Section 2.140 Item (21).

(b) Offices, business or professional. (c) Personal or business service. (d) Repair shops. (e) Retail uses with associated onsite manufacture or repair or other permitted use, such as

a furniture manufacturer with a retail showroom or resale of repaired items like computers.

(3) Conditional Uses

(a) Automotive, truck, or RV service facilities. All outdoor storage to be screened.


(b) Automotive, truck, RV, equipment or other repair shops. All outdoor storage to be screened.

(c) Surface parking lots with more than 20 parking spaces.

(4) Prohibited Uses. In an M-2 District, the following uses and their accessory uses are

specifically prohibited.


(b) Scrap, waste, recycling, or wrecking yards. (c) Towing yard. (d) Quarrying and related activities subject to the requirements of Statewide Planning Goal

5 and OAR 660-23-180 for Mineral and Aggregate Resources. (e) Waste or hazardous material processing, storage or disposal. (f) Auto, motorcycle, truck, agricultural equipment, or boat sales with outdoor storage of

vehicles or boats. (g) Residential use of any kind.

(5) Development Standards and Guidelines.

(a) Purpose.

i) The purpose of these development standards and guidelines is to guide the design of buildings constructed in the M-2 district located adjacent to Downtown to ensure that, through appropriate use of building orientation and basic architectural details, new structures, and alterations of existing structures are physically and visually compatible with buildings within the adjacent downtown business district.

ii) These standards are intended to encourage good quality design in new building

construction, enhance street safety, and provide a comfortable street environment by providing features of interest to pedestrians. Good design results in buildings that are in visual harmony with nearby buildings, leading to a downtown that is attractive, interesting, active, and safe. These qualities, in turn, contribute to the creation of a downtown core which facilitates easy pedestrian movement and establishment of a rich mixture of uses.

(b) Applicability.

i) All development in the M-2 District shall comply with the applicable provisions

of the Turner Zoning Code. Where the standards of the M-2 District zone and


other provisions of the Code, the standards of the M-2 District shall prevail. Standards listed in this section as “shall” are mandatory standards. Guidelines which state “should” or “encouraged” are not mandatory, but are considered desirable by the City.

1. The provisions of this ordinance shall apply to the following activities

within the M-2 District: a. All new building construction; b. Any exterior building or site modification that requires a building

permit; and, c. All new signage.

2. This ordinance shall not apply to the following activities or uses:

a. Maintenance of the exterior of an existing structure, such as re-

roofing, re-siding, or repainting where similar materials and colors are used that comply with this ordinance;

b. Interior remodeling.

3. This ordinance shall apply only to those portions of a building or sign that are proposed for construction or modification and shall not extend to other elements of the building or sign that may be out of compliance with the requirements of this ordinance (i.e., a permit to replace a single window shall not require that all other windows on the building that may be out of compliance with this ordinance to be replaced, unless such action is initiated by the property owner). However, if a building should be destroyed due to fire, accident, or an act of God, the new or replacement structure shall be rebuilt to conform to the requirements of this ordinance.

(6) General Guidelines and Standards

(a) Minimum lot area and configuration - Lots within the General Employment District

are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access, and pedestrian circulation including persons with disabilities.

(b) Yards: ii) Exterior yard setbacks - zero. Minimal setbacks from adjacent streets are

encouraged. See Section 5.116 for possible additional street setbacks. iii) Interior yard setbacks - 20 feet where abutting residential property and zero

where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.



(d) Access shall be designed to cause a minimum interference with traffic and may be subject to the review and approval of the County. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(e) See Article 5 for additional General Development Standards and Article 6 for Use Standards that may apply in the M-2 District.

(7) Design Guidelines and Standards.

(a) Site Development.

i) Building fronts and entrances shall be oriented toward the street. Buildings with frontages on two or more streets shall be oriented to at least one street.

ii) Building facades should be set at the property edge along the sidewalk. Buildings with frontages on two or more streets should be set at the property edge on at least one street.

(b) Building Scale.

i) The overall size and proportion of new structures should be compatible with the scale of nearby traditional storefront buildings. This standard may be met by either designing the building’s size and proportions to be similar to comparable structures in the downtown area, or by the design of the façade so that it breaks a larger mass into smaller units.

(c) Building Height. i) New buildings of at least two stories in height are encouraged. ii. As specified in Section 4.141.(c), the height of all buildings shall be one to three

stories and not more than 35 feet in maximum height, unless a greater height is approved by the Planning Commission with conditions of approval as part of the Site Plan Review procedures of Section 2.400.

(d) Building Width.

i) All new buildings should maximize lot frontage use as much as is practicable. ii) New buildings whose street frontage is more than 50 feet wide should be

designed to convey a sense of division through the use of pilasters, windows and door openings, recessed entries, off-sets or other architectural details.

(e) Storefronts.

i) Primary entrances shall be oriented to the street. ii) The upper windows of multi-story buildings shall use multi-pane double-hung

sash windows or the equivalent style. iii) The relationship between solid walls and window and door openings on the main

facade shall be visually compatible with adjoining or nearby structures from the historic period or style.

iv) Blank walls, walls without window or door openings, are not permitted along public streets.


v) Windows and doorways shall not be covered over with paper, boards, or cardboard except during times of construction or remodeling and shall be limited to a period of 120 days unless an extension is otherwise granted by the city manager.

vi) Doors should match the materials, design, and character of the display window framing.

vii) vii. Architectural features such as awnings, windows, cornices, etc., should be provided at the second floor to differentiate the storefront from the upper levels of the building, to add visual interest, and to allow the storefront to function as the base for the rest of the building.

(f) Facade Materials and Texture.

i) Permitted exterior facade materials include: brick, cast iron, relatively narrow horizontal wood or masonry siding, and stucco. Plywood siding, T-111, and vertical board and batten are prohibited.

ii) Exposed concrete block facades facing the street are not allowed. Split-face or scored-face block may be used in small quantities for foundations or other non-dominant features.

iii) All main facade materials shall be painted (except brick, for which painting is optional).

iv) Metal siding shall not be used as a building material on the facade facing a street.

(g) Windows. i) Windows which allow views to the interior activity or display areas are

encouraged. Glass curtain walls, reflective glass, and painted or darkly tinted glass should not be used on the first floor.

ii) Ground Floor Windows. All new buildings are encouraged to provide ground floor windows along adjacent street rights-of-way.

(h) Roofs. i) Main facade roofs (lower than a 6:12 pitch) shall be concealed behind a square or

stepped parapet. Flat roofs are permitted behind a parapet. ii) All HVAC systems located on top of a roof should be located and/or screened

so that they are not visible from the street. Dish-style antennas shall be located and/or screened so that they are not visible from the street. All screening material shall be compatible with the facade of the front of the building.

iii) New roofs on existing buildings, or on additions to existing buildings, shall match the pitch and form of the original roof.

iv) Shed roofs are permitted on one-story rear additions.

(i) Awnings and Canopies. i) The use of awnings or canopies over sidewalks is encouraged. ii) Awnings shall be flat or sloping. Awnings shall be made of metal, wood, canvas

or similar materials. Rounded bubble or plastic awnings are prohibited. Fully glazed awnings are not permitted.


iii) The color of the awning shall be compatible with its attached building. iv) Awnings shall not be internally illuminated. However, lighting which is intended

to provide illumination to the sidewalk and signage is permitted. v) Awnings shall be a minimum of eight feet above the sidewalk.

(j) Color.

i) The painting of brick walls is permitted. ii) Subtle or subdued tones shall be used. Bright or neon colors are prohibited. iii) Different colors shall be used to accentuate and highlight trim, windows, and

other building features.

(k) Site Design. i) Landscaping shall not obliterate street and sidewalk views of.

(l) Parking.

i) Individual permitted uses listed in Section 4.136 (2) (a) through (h) of less than 4,000 sq. ft. of building area are not required to provide off-street parking spaces. It is intended that such uses shall be provided with sufficient on-street parking.

ii) If off-street parking lots are provided, they shall be designed consistent with the following standards: 1. Parking areas shall not be located between the front of the building and the

street. 2. Street side parking lots shall be set back a minimum of five feet from a

public sidewalk. 3. Parking areas with more than 12 spaces shall be divided by landscaped

areas or walkways, or by a building or group of buildings. 4. Parking lot landscaping shall consist of a minimum of 10 percent of the

total parking area. A minimum of one tree for every 10 parking spaces shall be provided.

5. Knee walls are required to screen street side parking lots. Knee walls shall not exceed three feet in height and shall be constructed with masonry. Alternatively, a combination of a wall or fence and landscaping may be approved if they provide an effective buffer and low-level screen of the parking area.

(m) Drive up businesses i) Drive up service windows are not permitted.

(8) Signs.

Signs shall be subject to Section 5.136. (9) Landscaping.

Landscaping is subject to the M-2 District design guidelines and standards of Section 3.107.07.


(10) External Storage of Merchandise. The external storage of merchandise and/or materials, directly or indirectly related to a business, is hereby prohibited within the M-2 District, unless such storage is completely screened from views from adjacent streets or properties by a minimum 6-foot high sight obscuring fence.

(11) Outdoor Displays of Merchandise. Outdoor displays of merchandise are permitted during business hours only and shall not exceed ten percent of the total retail sales area. Displays of merchandise on public sidewalks may not reduce usable walking area widths to less then six feet.


(13) Wall Murals. The use of non-advertising wall murals representing the area’s cultural heritage or historic events are encouraged, as well as the use of artistic wall murals. A wall mural is an expression of public art painted directly on the exterior of a building or on a backing that is affixed to the building and is sanctioned by the property owner.

The City discourages the painting of murals on the actual surface of a building but instead encourages that murals be painted on boards or ceramic panels attached to a building wall. This can help avoid problems down the road with needing to strip, sandblast or pressure wash brick walls to remove a mural. The use of applied panels also will allow quick removal of the panel for restoration when a mural has been tagged with graffiti.

(a) Sign permit is not required for a wall mural. (b) Wall murals are not permitted on the exterior wall containing the main entrance to the

building. (c) Wall murals may be installed and maintained in an area not exceeding a maximum area

of 80 per cent of the exterior wall area of the first three stories upon the wall or façade where the mural is located.

(d) Murals may not be used for any form of commercial advertising or public information or solicitation of any kind. A mural shall be considered a wall sign if it contains words, logos, trademarks or graphic representations of any person, product or service that identify or advertise a business.

(e) Up to 10 percent of the wall mural area, at the lowest border of a mural, may be utilized as an acknowledgement recognizing the sponsor of the mural or for a signature by the mural artist. The designated area for the acknowledgement or signature must not exceed a maximum area of 6 square feet.

Turner Downtown Improvement Plan Exhibit 2A Proposed Comprehensive Plan and Zoning Designations @ Designation

R-I : Single-family Residential District

R-2: Single-family Residential District - R-I I : Multiplefamily Residential District

C-I : General Commercial District


M-I : General Industrial District


PI-I : Public Institutional District

Mill Creek

0 Project Boundary

Taxlot

- Railroad 0 I00 200 300 400 500 - - - I

Feet

1 inch = I00 feet at 22x34" Plot Size

Third Street Commercial Corridor Exhibit 3A Proposed Comprehensive Plan and Zoning Designations @ Designation

R-I : Single-family Residential Districf


R-I I : Multiplefamily Residential District






Mill Creek

0 Project Boundary

- Railroad 0 100 200 300 400 500 - I

Feet


Turner Downtown Improvement Plan Exhibit 2, Existing Comprehensive Plan and Zoning Designations @ Designation


R-2: Single-family Residential District - R-I 1 : M ultipl~family Residential District



Mill Creek

0 Project Boundary

Taxlot

Railroad 0 100 200 300 400 500 - - - I

Feet


Third Street Commercial Corridor Exhibit 3B Existing Comprehensive Plan and Zoning Designations @ Designation - R-I : Single-family Residential District


R-I 1 : Multipl~family Residential District



Mill Creek

0 Project Boundary

- Railroad 0 100 200 300 400 500 - I

Feet

1 inch = 150 feet at 22x34" Plot Size

Turner Downtown Improvement Plan Exhibit 2C Aerial Photo @

Project Boundary

Taxlot

+ Railroad

o 100 200 300 400 500 - - - Feet

1 inch = 100 feet at 22x34" Plot Size

Third Street Commercial Corridor Aerial Photo

Exhibit 3C

Project Boundary

Taxlot

* Railroad

0 100 200 300 400 500 - I

Feet


Turner Downtown Improvement Plan Exhibit 2A-2 Proposed Comprehensive Plan and Zoning Designations @ Designation


R-2: Single-family Residential District - R-I I : Multiple-family Residential District






Study Area

Mill Creek

0 Project Baundaty

Railroad - - - I

Feet


Third Street Commercial Corrido~ Exhibit 3A-2 Proposed Comprehensive Plan and Zoning Designations @ Designation



R-I I : Multiple-family Residential District






Study Area

Mill Creek

0 Project Boundary

- Railroad 0 100 200 300 400 500 - I

Feet


Appendix G

Memorandum No. 6 – Public Event Summaries

Turner Downtown Improvement Plan Memorandum – Public Event #1 Summary

Turner Downtown Improvement Plan Memorandum – Public Event #1 Summary February 4, 2009


Phone (503) 635-3618 Fax (503) 635-5395

Project Team:



Brendan Buckley


Public Event #1 for the Turner Downtown Improvement Plan took place on January 20, 2009 in the cafeteria of the Turner Elementary School. The event was slated to be an open house in which people could come and go throughout the two hour allotted time period. The City advertised the event through several venues and hoped to attract a cross section of residents including young families and retirees. About 15 people attended the event, including several from the Turner Retirement Community, the Turner School Principal, several PAC members, a couple younger residents, and the State Representative for the area. First on the agenda was a short presentation of the project including a welcome, introductions, and slide show of project objectives. The theme of the evening was Turner past, present and future, with “stations” for each era. At each station, participants were encouraged to comment by writing or drawing on the graphics, maps or blank sheets provided. After the slide show, we intended for people to circulate around the room to look at and comment on materials posted; however, attendees were more inclined to have a group discussion for the remainder of the evening. While the evening did not unfold as planned, the discussion was animated and fruitful. Participants commented on their vision for the future of Turner, focusing mainly on business recruitment and retention and marketing or branding. Notes and conclusions from the discussion are provided below. The general tone of the discussion

To: Naomi Zwerdling, Senior Planner, ODOTDavid Sawyer, City Administrator, Turner


Date: February 4, 2009

Subject: Public Event #1 Summary Deliverable 3.D

Page 2


was to keep a small town feel in Turner, while encouraging new small, local businesses to open downtown. Desired amenities focused on the community pool and an accessible walking environment. Presentation Welcome and introductions by Mayor Strauss Purpose of and agenda for the evening by David Sawyer, City Manager Overview of the Plan and process by Jennifer Mannhard, Otak

o What is the Downtown Improvement Plan? o What will it contain? o Why are we doing this now? o How will we go about putting it together? o What’s the schedule and where are we in the process? o How you can be involved in the process. o How has this worked in other similar communities?

Silverton, Oregon (same planning process) Elgin, Oregon (small town with a big idea)

o What are we doing this evening? Use the blank paper and maps on the walls and tables to tell us your

thoughts. o How will we use this information and what are the next steps.

We will compile all your comments and distill a vision and goals to guide the rest of the planning effort.

Questions/Discussion Large Format Presentation Materials Large format graphics were prepared and hung at “stations” around the room to represent the past, present and future of downtown Turner. Past – Two boards displayed historic photos of

the area. Present – The boards included the existing

conditions analysis maps from Memo #1 and a photo board of current images of the area.

Future – The Turner Elementary School children drew pictures of their vision of Turner in the future. The kids’ drawings were intended to inspire creativity and spark ideas.

Station set-up

Page 3


Discussion Notes Create a theme or marketing concept for Turner

o Independence’s amphitheater and movies o Folsom, California renovated older buildings with antique shops on the ground floor

and theaters and restaurants above o Leavenworth, Oregon o Sisters, Oregon o Pendleton street shut-down for festival

Create something unique o sports complex/pool o Need to target specific economic development plan

Other themes o health: kids, water, outdoor activities, food store with local healthy food o Design downtown around kids?

Good neighbor town o Community involvement – all ages are involved o Kids can ride their bikes to store, etc. – public safety o Neighborhood watch o Want to be out, live outside of house, need safety and security

Keep small town feel o Small agricultural town o Smaller shops with character o Capture thru traffic that will spend money but not stay

Community amenities o Pool activity center

Children’s Vision Drawings for Downtown

Page 4


o Create a new bigger park close to creek that is accessible from downtown Covered area BBQ area

o Bike/walking path along the creek Wheelchair accessible

o Kiosks – message boards for the community o Outside amphitheater o RV camping area for out-of-towners o Library o Parks, meeting space, grandstand

Infrastructure and maintenance o Fix other streets o Amenities must be well maintained o Chicago street – fix to make accessible to retirement community o Improve what is currently here: pool and park

Festivals and community activities o Friday night festival street for social life and activity – live music o Lamb festival in June, bbq, car show, band

Working towards more community involvement, buy-in Economic development

o Businesses can’t complete with Salem offerings, everything’s cheaper

Buying power, co-ops? Niche markets– what will people pay

more for if it’s close? Small bedroom community offerings

o What do we have now – swimming pool, grange, creek, festival, barbeque area

o Need people before business – critical mass o Need to maintain small town advantages

Notes from the comment forms We could turn the old dance hall into an artisan shop for

crafts people, etc. Improve downtown core area (public improvement

project) Improve pool facilities and common areas (long term

redevelopment opportunities)

Meeting Participants

Turner Downtown Improvement Plan Memorandum – Public Event #2 Summary

Turner Downtown Improvement Plan Memorandum – Public Event #2 Summary – March 18, 2009 L:\Project\14800\14840\Admin\Meetings\022609 Public Event #2\Turner Public Event 2 Summary Memo-031809.doc


Phone (503) 635-3618 Fax (503) 635-5395

Project Team:


Amanda Owings, P.E. Martin Glastra van Loon

Brendan Buckley

Johnson Reid, LLC

Public Event #2 for the Turner Downtown Improvement Plan took place on February 27, 2009 in the Main Hall of the Aldersgate Retreat Center. The event was a joint work session for the members of Turner’s City Council and Planning Commission as well as the Project Advisory Committee. It was well attended by the invited members and members of the general public. The objectives of the evening were to: 1) receive confirmation of the draft vision, goals and policies; 2) solicit input for improvement of the vision, goals, and policies; and 3) brainstorm ideas for bringing the vision and goals to fruition. The agenda was as follows: 1) Welcome: Introductions, agenda overview, work session

objectives, and project status update 2) Vision, Goals and Policies: Review draft vision, goals and

policies memo, discussion and Q&A 3) Brainstorm Implementation Concepts: Quick review of concept

categories and small group work 4) Share Ideas & Wrap Up: Short reports from each group on the

ideas generated and next steps 5) Adjourn



Date: March 18, 2009

Subject: Public Event #2 Summary Deliverable 4.C – with updated graphic

Page 2


Vision, Goals and Policies Review and Discussion After giving a brief project status report to remind participants of the planning process and objectives, the consultant team presented the draft vision and goals. The meeting participants received the draft memorandum ahead of time, so they were not seeing the material for the first time. I explained how we wrote the vision statement and goals using information we had heard the community say at the Project Advisory Committee meeting, public event, and stakeholder interviews. The group confirmed the vision statement was appropriate and had only one suggestion for improvement. The request was to add a statement to the vision that speaks to the ideas of “preserve the old, merge with the new” and “celebrate history.” Although the policy of using history as inspiration was included in the urban design section, the group consensus was to include the idea in the vision statement as well. We presented each topic area of the goals individually, allowing for discussion and questions after each. Overall, the group confirmed the goals and policies were appropriate and correct. The comments and requests for additions were to improve upon the policies. The following bullet points reflect the comments made for each topic.

Urban design There should be a statement about continuity and how things should flow.

Transportation Limit through traffic on interior streets. Add walking or multi-use paths – take advantage of the creek– create a pedestrian network Use Downtown as a pedestrian hub from which paths originate, link with existing paths

Economic Development Provide incentives to current businesses to contribute to plan implementation. For example,

sidewalks or landscaping in front of businesses is ordinarily done only for a new development, but the city could provide an incentive or grant for existing businesses to improve their streetscape frontage.

Through the discussion there were several comments and questions related to economic and business development. We need someone to market Turner. We need to create our vision (the community’s and city’s). This will provide direction for our

marketing efforts.

Page 3


Focus should be on fixing the streets and sidewalks. Make the town look better, and make it business-friendly and hassle-free.

What are some funding sources? o Urban renewal o Local improvement districts o State programs o Possibly stimulus package money (The Mayor comments that Chicago Street

improvements may come out of the greater county’s share of the stimulus package.) What did Silverton do? Where did they get money?

o The plan itself and a follow up redevelopment study were done through a TGM grant. We can follow up on this.

Are private foundations (such as Fred Meyer) an option as a funding source? o They are not really a viable option because they are so site specific.

Brainstorming The participants were split into three small groups, each facilitated by a member of the consultant team. A fourth member of the consultant team also rotated among the three tables to help guide discussion of urban design concepts. The facilitators led the participants in a brainstorming session to identify concepts that would fulfill the vision and goals. They prompted the participants with questions like the following and took notes on large maps provided. What do residents consider the “heart” of downtown? Where is the new town plaza, event pavilion, or amphitheater? What tells people they’ve entered downtown Turner? What uses are along Denver, Chicago, 2nd? What do the sidewalks look like? What do the buildings look like? Where is the trail that connects to the creek? What brings people to downtown on a Saturday? What now occupies the vacant land next to the mill building? Where do people park their bikes? Their cars? How has the community pool been improved? How do people travel between Turner and neighboring communities? Where is city hall? the community center?

Page 4


After about 40 minutes of brainstorming and discussion, each team reported their ideas to the larger group. Several similarities were evident among the groups and provide general direction for the development of concepts. The attention paid to the area along 2nd Street between Denver and Boise Streets, which

indicates where the center, or heart, of downtown should be located A trail along the creek A fully or partially pedestrian street Commercial and mixed use along Denver Street A civic area or city hall in the vicinity of 2nd & Chicago Streets Streetscape improvements on Chicago Street Redevelopment of the vacant lot north of the mill – ideas for the appropriate use differed Maintain housing south of Denver Street (mixed use on fronting Denver) Gateway treatments on the bridges that cross Mill Creek

Figure 1: Similar/Overlapping ideas from the three brainstorming groups

Page 5


Specific notes from the three groups and their maps follow. Group A Notes Focus a retail core at the intersection of 2nd/Chicago. Retail/businesses will extend one block in

all four directions. Storefronts should be dense, wide sidewalks New building at 2nd/Denver could be “courtyard style” and house several businesses. Propose a new civic building at NW corner of 2nd/Chicago Consider mixed use buildings in the retail core and along Denver Street Maintain housing south of Denver Street Create a public parking lot along 3rd Street between Chicago and Boise. Install benches at curb extensions. Install benches and picnic tables between pool and creek. Build a trail along Mill Creek:

o North side of creek from 3rd Street bridge to Marion Road bridge o North or south side of creek surrounding school property o Southside of creek from Marion Road bridge to 55th Street (need to bridge!)

Do not touch: Burkland Park, mechanic’s building, old gas station, mill property, TRH greenway.

Keep light industrial businesses near the mill property and railroad. Infill the downtown area sidewalks with a similar streetscape as along 3rd/Denver On-street parking should be parallel at the retail core, angle parking everywhere else. Consider festival streets within the retail core Desired businesses: bank, library, coffee shop, lunchtime delicatessen, farmers’ market

Group B Notes The “*” indicates where the participants felt the center or heart of downtown is or should be.

o The intersection of 3rd and Denver Streets is important because that was the historic core – where the old flour mill was

o The intersection of Boise and 2nd Streets – next to Burkland Park The large vacant parcel north of the mill should be a mixed use area – could incorporate retail

and civic uses. It could be like Bridgeport Village in Tigard, but on a much smaller, Turner scale – with open walkways, fountains, benches, etc.

The vacant bank building on the corner of Boise and 3rd or the vacant church building on the corner of 1st and Denver could be refurbished into a new City Hall.

Davis Hall (currently owned by Turner Retirement Community) was the original Turner Library.

Page 6


Open the old mill race – the green dashed line that cuts through the vacant mill property and runs down 3rd, Elgin, and 2nd over to the creek indicates its original location.

Create a trail along the creek – but how do you accommodate the yearly high water? Turner Retirement Community is not opposed to a trail along the creek but does have concerns about the proximity to their extended care facility.

Focus some redevelopment effort on the properties between Denver and Chicago and 2nd Streets. Close off part of 2nd Street to create a pedestrian walkway or plaza.

The Lamb Festival parade comes down Marion Road and cuts in front of the school to Chicago Street and up 2nd to the Burkland Park area. Events take place on the school grounds and a closed off section of Boise Street in front of the Park.

Group C Notes Participants talked at length about a continuous walking path around the city center, which

would loop from the tabernacle around the school and retirement center and through downtown as shown on the map.

The town “core” was thought to be the blocks between 3rd and 1st, and Denver and the Creek. A future civic use (city offices, police, etc. was envisioned at the north end of this core, near the

creek. The retail core was envisioned around where current shops are found, as well as the vacant mill

site at 3rd and Chicago. The church was discussed as a building to reuse for its historical nature. We discussed the importance of improved sidewalks and accessibility of pedestrians and bikes. Two blocks were identified as potential shared street, allowing cars but with a heavy multi-use

design. We discussed opening up some of the former Mill race loop, perhaps as just a water feature. We discussed the importance of connecting the core, the retirement community and the school. The owner of the vacant 2-story former “dance hall” building is considering redeveloping it as a

car wash. Potential gateways were identified as visitors cross the Creek on 3rd, and on Denver (by

Tabernacle).

group A 1 inch = 100 feet Q

0 100 200 NX) 400 500 -- - Feet

Turner Downtown Improvement Plan Future Downtown Turner

group B

Exhibit 1.6 ,

1 inch = 1W feet

0 100 200 300 400 500

Feet

Turner Downtown Improvement Plan Future Downtown Turner

group c

Exhibit 1.6

1 inch = I00 feet @ 0 100 ZW 300 400 5W

Feet


Memorandum – Public Event #3 Summary


Memorandum – Public Event #2 Summary – March 18, 2009

L:\Project\14800\14840\Admin\Meetings\Public Event #3\Turner Public Event 3 Summary Memo-050509.doc



Phone (503) 635-3618

Fax (503) 635-5395

Project Team:

David Siegel, FAICP


Amanda Owings, P.E.

Martin Glastra van Loon

Brendan Buckley

Johnson Reid, LLC

Public Event #3 for the Turner Downtown Improvement Plan took

place on April 15, 2009 at the Turner Fire Hall, and served as both

Public Event #3 and Project Advisory Committee Meeting #2. The

objectives of the meeting were to: 1) provide a recap of the previous

agreements and direction on project vision and goals; 2) confirm

direction received at the previous workshop on plan concepts; and 3)

receive comments on Technical Memorandum #4, the proposed

strategies for achieving the project’s vision and goals.

The agenda for the meeting was as follows:

1) Welcome

• Introductions

• Agenda overview

• Meeting objectives

2) Project Status Update

3) Review Vision and Goals

4) Draft Recommendations

• Urban design

• Land use

• Transportation

• Redevelopment

• Business development

5) Draft Implementation Strategies

6) Share Ideas

7) Next Steps

8) Adjourn

A summary overview of the meeting is provided below.


From: David Siegel, Principal, Otak

Date: May 5, 2009

Subject: Public Event #3 Summary

Turner Downtown Improvement Plan Memorandum Page 2

Public Event #3 Summary May 5, 2009




Project Update and Review of Vision and Goals

After providing an update on the status of the project, David Siegel provided a presentation that

recapped the project’s vision and goals, and reviewed the major comments provided in the previous

work session addressing plan ideas and concepts. Those in attendance were asked if these still rang

true, and a positive acknowledgement was received.

Draft Recommendations and Implementation Strategies

Following the summary of previous steps, David Siegel and Brendan Buckley presented a summary

of the strategies that were covered in Technical Memorandum #4, and gave each of the group a

summary sheet that provided room for written comments. The strategies for each of the five themes

(Urban design, Land use, Transportation, Redevelopment, Business development) was discussed in

turn, with the consultants pausing after each segment of the presentation to ask the group for their

comments or questions about each of the segments. There was good discussion amongst the group

about each of the five themes. The following points were raised during the discussion:

• Third Street North. The consultant team questioned those present regarding the commercially-

zoned area north of downtown, asking if there were thoughts about how to ensure that the

commercial uses that could occur in this area in the future would be of a type and scale that

would not compete with desired Downtown commercial uses. The group had a discussion

regarding the sorts of commercial uses that would benefit or conflict with what was envisioned

for downtown. They generally agreed that the two areas were different, and picked up on the

idea of developing a different zone unique to the downtown. People liked the idea of pursuing

design guidelines…not a theme, but written guidance that would yield more attractive

development. The consultant team noted that the development of design guidelines was going to

be among the recommendations for short-term implementation actions, and that this was

something the City might wish to consider preparing in the near-term, following Plan adoption.

• Festival Street and Creekside Trail. A concern was noted about how proposals like a creek side

trail or a festival street closure might affect some of the Turner retirement home units. David

Siegel indicated that public trails almost always abut someone’s private property, and that they

were normally sited on easements obtained from private property owners. With regard to

potential concerns over privacy or trespassing, it was noted that sometimes fencing, landscaping,

or other techniques were used to provide a physical separation between a trail/pathway and

private property. Among the short term actions for implementation will be the initial planning

for the creek side trail, which will include the examination of how to ensure the trail is a good

neighbor to abutting properties. With regard to the occasional closure of the Festival Street with

bollards, it was explained that the closure would only affect a small segment of the street, and

not preclude emergency vehicle access to any part of downtown; in addition, the bollards can

easily be removed for emergency access to the temporary festival area.






• Parking. The group discussed the issue of parking or the lack thereof, and reviewed the proposed

street cross-sections and provisions for parking. Mayor Strauss noted that the city is already

working on the issue of street redesign, and that the City’s efforts were consistent with what is

being recommended by the consultants.

• Implementation Strategies. The consultants presented Implementation Strategies and the group

discussed the proposed short-term and longer term actions, and the need for the community to

prioritize. Mayor Strauss emphasized the need for prioritizing actions while retaining the

flexibility to respond to immediate opportunities.

As noted above, the group was provided with comment forms to note suggestions during the

meeting. A summary of the comments received is as follows:

• Move the following implementation actions/strategies from ―long-term‖ to ―short-term‖:

o Undergrounding of existing utility systems and requiring new development to locate utilities

underground.

o Development of the Mill Creek trail into a continuous pedestrian path (including the bridges

to create a complete, looped system).

o Expanding and covering the pool facility should be among the short-term actions.

o Developing the plaza to connect proposed future civic uses to Burkland Park.

• Consider partnering with Aumsville to create a Chamber of Commerce.

• Recreate the gazebo/jail seen in the historical photographs of Turner.

• Creating a standing body to represent and promote Turner businesses should be an immediate

action.

• Rather than relocating City Hall to a downtown location to establish a civic presence prior to

identifying a permanent site, consider constructing a new City Hall downtown as a short-term

objective.

• When considering urban design treatments and actions, ensure that trees, landscaping and green

spaces are included. Consider the use of green streets for their double benefit: greenery and

stormwater management.

• Establishing/locating a farmers market and/or other events within the Downtown ought to be

among the short-term actions. Events should be held frequently.

• Improve signage directing visitors to Downtown.

• Consider an additional Gateway at Chicago Street.

• Allow angle parking in front of the Turner Market convenience store.

• The City needs to look at urban renewal as a tool to encourage development and redevelopment,

and needs to do so in the short-term.

• Initiate the discussions and planning on flood control






In summary, the evening’s discussion indicated agreement with the suggested strategies within each

of the five themed categories. David Siegel wrapped up the evening’s discussion by noting that the

next step in the process will be the preparation of the draft plan, reflecting the vision, goals, plan

concept, and implementing strategies prepared to-date. He also noted that the final plan

recommendations will emphasize actions and priorities in three categories—organizational (things

that businesses can do together), physical improvements (infrastructure, etc.), and administrative

(actions the city can take such as streamlining permitting, amending the zoning ordinance and

Transportation System Plan, etc.).

The meeting was adjourned at 9:00 p.m.


Memorandum – Public Event #4 Summary


Memorandum – Public Event #4 Summary – June 9, 2009

L:\Project\14800\14840\Admin\Meetings\Turner Public Event 4 Summary Memo-060909 (2).doc



Phone (503) 635-3618

Fax (503) 635-5395

Project Team:

David Siegel, FAICP


Amanda Owings, P.E.

Jerry Offer

Martin Glastra van Loon

Brendan Buckley

Johnson Reid, LLC

Public Event #4 for the Turner Downtown Improvement Plan took

place on May 21, 2009 at 7:00 PM in City Hall. The event was open

to the public, the City Council, the Planning Commission, and the

Project Advisory Committee. The meeting was moderately attended.

A new task had been added to the scope of work for the Downtown Improvement Plan: to analyze

and provide recommendations for the General Commercial-zoned area along the 3rd Street corridor

north of Downtown that will ensure that the commercial uses are of a type and scale that will not

compete with downtown commercial uses and will not lead to commercial strip development.

The purpose of the event was twofold: 1) to present and discuss suggested revisions to the zoning

code; and 2) to present and discuss changes to the City’s zoning map being recommended for both

the Downtown area and for the area referred to as the “3rd Street Corridor” north of Downtown for

achieving the objectives of the Downtown Improvement Plan. The agenda for the meeting was as

follows:

1) Welcome

• Introductions

• Agenda Overview

• Work Session Objectives

• Project Status Update

2) Overview and Status of Draft Plan

3) Draft Changes to Zone Code

4) Application of Zoning to 3rd Street Corridor

5) Application of Zoning to Downtown

6) Wrap Up and Adjourn


David Sawyer, City Administrator, City of Turner

From: David Siegel, Project Manager, Otak

Date: June 9, 2009

Subject: Public Event #4 Summary

3rd Street Corridor Land Use & Zoning Analysis

Project Deliverable 9.E


Public Event #4 Summary June 9, 2009




Welcome, Overview and Status

A brief project status report and presentation was provided by the consultant team to remind

participants of the planning process and the Plan’s vision, goals, and objectives. The scope of the

new task regarding the analysis and recommendations for land use and zoning along the 3rd Street

corridor was reviewed. In discussing the scope, the team mentioned that attention had been paid to

the following three objectives:

• Discouraging strip commercial development;

• Maintaining active residential uses and neighborhoods where they currently exist along the

corridor; and

• Enhancing the 3rd Street corridor as a gateway to Downtown Turner.

Brendan Buckley made a brief presentation regarding the differences between the types of

commercial uses one typically finds in a historical downtown environment versus what is typically

found in an arterial street commercial environment. This portion of the presentation focused upon a

number of topics including:

• The street orientation of buildings;

• Parking;

• Scale; and

• Customer base.

Draft Changes to Zone Code

The consultant team presented the draft changes to the City’s zoning code, discussing the creation

of two new zoning districts: a C-2 Downtown Mixed-Use district and an M-2 Downtown General

Employment district. The consultant team’s presentation focused upon the intent of the proposed

zones and the various uses recommended to be permitted or excluded from each zoning district,

with discussion regarding allowed uses, prohibited uses, conditional uses, and the various standards

contained within the zones. Those attending had received ahead of time a draft memorandum

summarizing the proposed districts, a draft of the proposed zoning code language for each of the

districts, and proposed zoning maps.

Among the topics discussed or points made during the discussion of the districts included the

following:

Parking

• Advantages and disadvantages of angle and parallel parking (discussion).

• Whether there was enough parking downtown for envisioned commercial and residential uses.

Conclusion–yes. Actual individual future development projects cannot be known at this time,

and although parking appears to be ample for the amount of development that is reasonably






projected to occur, this can be evaluated again in the future once actual development begins to

occur.

Housing

• Should new, individual single-family housing be permitted within a downtown commercial zone?

Conclusion–single-family residential should not be permitted. Multifamily residential should be

permitted downtown, and is to be encouraged. The proposed zoning ordinance will need to be

revised accordingly.

Design Standards

• Discussion of building heights. Consensus was to continue with a maximum allowed building

height of 35 feet –same as the C-1 district.

• Discussion of proposed standard requiring double-hung windows or the appearance of double-

hung windows for upper story windows in the C-2 and M-2 districts. Consensus was to keep this

standard.

• The proposal “drive-through business” prohibition for the C-s and M-2 districts was discussed.

Consensus was to modify this to prohibit drive-through windows so to not prohibit drive-

through garages or car washes.

• General approval of design standards was discussed. The attendees said that it was necessary to

have a clear physical vision for Downtown and that the proposed standards helped promote that

vision. The former Turner bank building was discussed as a good example of what the ordinance

was trying to achieve. That building has been modified through the years so that it no longer has

all of its original historic character, but it still has the storefront character which the proposed

design standards are trying to achieve.

• It was suggested that illustrations be provided within the revised zoning ordinance zones to help

convey the intention and desired result of the design standards.

• Agreement that clear standards were desired, and that downtown design standards should be

strong and capable of achieving the vision, not be watered down.

Economic Implications of Detail within Regulations

• In response to a question of what the economic implications of providing more detail within

zoning regulations might be, the consultant team replied:

o Following regulations can sometimes be more costly than not, but you gain from having

greater predictability in what the City will see in its new development.

o The proposed regulations will likely not to be a roadblock for new development, because

there are economic benefits from locating downtown, and within these new zones. You get

the benefits of the close proximity to a number of businesses and the benefit of more public

investment in infrastructure and amenities.






o Property owners gain from having greater predictability in what to expect to see from new

development near and around them, and that this also helps preserve and protect the

investments they’ve made.

Prohibited Uses

Add “towing” to the list of prohibited uses within the M-2 zone.

As a result of the above discussion, the team made note of the above and indicated that changes

would be made to the individual zones to reflect the discussion.

Application of Zoning to 3rd Street Corridor

The consultant team moved on to the application of zoning districts to the 3rd Street corridor.

There was a brief discussion of history and why the current zoning had been put in place. The team

led those in attendance in a review of two maps; one with the current zoning, and one with the

proposed zoning; and led a property-by-property discussion of where they were recommending the

current zoning designations be retained, and where a change in designation was being

recommended.

Historically, the C-1 Commercial district has been applied to most of both sides of the 3rd Street

corridor, creating the potential for significant stretches of strip commercial development in the

future. In order to focus the limited demand for commercial land in Turner upon the Downtown

area and in areas along 3rd Street which are already in predominantly commercial use, the consultant

team recommended that a number of the existing C-1 zoned properties on the east side of 3rd Street

to just beyond Elm Street be rezoned to R-11 Single-Family Residential, as such zoning would be

reflective of the existing uses and zoning of these properties, and of neighboring properties to the

east. The property upon which the current City Hall is sited was proposed for rezoning to R-11, in

response to the draft Downtown Improvement Plan’s recommendation to relocate City Hall to a

downtown location in the future and thereby providing for the existing City Hall site to be

redeveloped. For the west side of 3rd Street, it was recommended that C-1 zoning be retained for the

mostly commercial uses from Mill Creek up to and including the Classic Auto Storage and Sales site.

Beyond that point, there is a solid stretch of single-family homes up to Triple D Windows. It was

recommended that this area be rezoned to R-2 to maintain the existing single-family uses and to help

preserve this small neighborhood. By and large, the recommended zoning was acknowledged as

being appropriate by those in attendance at the meeting, with the following exception: since the

intersection of 3rd Street and Delaney will likely be the site of a future traffic signal, and since much

of the property on the corners of this intersection were already commercial, it made sense for all of

the properties at this corner to be designated as commercial, as well. The consultant team

acknowledged the direction received and will make changes to the recommended zoning map as

noted.






Application of Zoning to Downtown

The consultant team then addressed the application of the zoning districts discussed earlier in the

meeting to the Downtown Improvement Plan project area. The team again led a review of two

maps, one with the current zoning, and one with the proposed zoning, and led a property-by-

property discussion of where they were recommending the current zoning designations be retained,

and where a change in designation was being recommended. Discussion focused upon a few areas,

including:

• Application of the C-2 Downtown Mixed-Use District appeared appropriate in most areas for

which it was suggested. The C-2 district is intended to replace the C-1 zoning Downtown, as

well as the Downtown overlay zone.

• Several properties fronting on Elgin Street (and right as it transitions to become 3rd Street at the

curve) are proposed to be rezoned from the existing C-1 district to R-11, given their current

residential use and the unlikelihood of their being redeveloped with commercial uses in the

future, as they are not within what would be considered the Downtown’s core commercial

component.

• The southern portions of properties located on the south side of Denver Street between 1st

Street and Mill Creek were being considered for residential designation. However, as the portion

of these properties fronting on Denver Street are proposed for the C-2 designation, and given

that the southern portions of these properties were in areas subject to flooding and unlikely to

develop, it made sense for the southern portions of these properties to also be zoned the same

as the northern portion fronting Denver Street.

• The M-2 Downtown General Employment District was proposed for application to that area

west of 3rd Street and north of Chicago Street. There was agreement that the M-2 district was

appropriate, but that providing the City with additional flexibility to consider a broader range of

uses might be desired. The consultant team indicated they’d look into this. The City

Administrator indicated he would be in contact with the owners of this property to have a

discussion regarding their preferences and their plans for the future.

• Application of the M-1 General Industrial District to the property south of Chicago Street and

west of 3rd Street (and south of Elgin Street and west of 2nd Street) was discussed at some length,

and it was agreed that this designation was appropriate for the moment. Given the current

economic uncertainty of the current use on the property, the issue of zoning designations might

need to be addressed again in the near future.

It was suggested that two zoning maps be prepared. The first map would show the “initial proposed

zoning” (reflecting the consultant team’s initial draft recommendations, as amended by the

discussion at the work session); the second map would show the same designations, but with cross-

hatching provided over any areas where there was a need for more discussion prior to a decision






being made. This cross-hatching would be placed upon the area designated M-2 Downtown General

Employment, and the area designated M-1 General Industrial.

Wrap-up and Adjournment

After concluding remarks by the City Administrator and the consultant team, the meeting was

adjourned at 9:15 p.m.

Appendix H

Memorandum No. 7 – Recommended Changes to

Regulatory Environment


Memorandum #7 – Regulatory Amendments


Memo #7 – Regulatory Amendments – June 16, 2009

L:\Project\14800\14840\Planning\TurnerRegulatoryAmendMemo 7 061609.doc



Phone (503) 635-3618

Fax (503) 635-5395

Project Team:

David Siegel, FAICP


Amanda Owings, P.E.

Warren Greaser

Jerry Offer

Brendan Buckley Johnson Reid ,LLC

Purpose of this Memorandum

This memorandum is intended to pull together the recommended amendments to the City of

Turner Comprehensive Plan, the Land Use and Development Code, the Comprehensive Plan and

Zoning Districts Map, and the Transportation Systems Plan into one package of potential

amendments to the regulatory documents of the City of Turner in order to implement the Turner

Downtown Improvement Plan.

The proposed amendments are described in brief below, with four attachments related to 1) the

Comprehensive Plan; 2) the Land Use Development Code; 3) the Comprehensive Plan and Zoning

Districts Map; and 4) the Transportation System Plan. In the attachments related to the

Comprehensive Plan, Land Use and Development Code, and the Transportation System Plan,

language to be added to is highlighted and underlined in the draft revision packages attached to this

memo. Language to be deleted is shown in [brackets and highlighted].

Draft revisions to the Comprehensive Plan and Zoning Districts Map are presented on two maps,

Exhibit 2A – Turner Downtown Improvement Plan Proposed Comprehensive Plan and Zoning

Designations, and Exhibit 3A – Third Street Commercial Corridor Proposed Comprehensive Plan

and Zoning Designations.





Date: June 16, 2009

Subject: Memo #7 – Regulatory Amendments



Turner Downtown Improvement Plan Memorandum #7 – Regulatory Amendments June 16, 2009

I. Amendments to the Comprehensive Plan Text (Attachment One)

Recommended amendments to the Comprehensive Plan text are few. No conflicts were found with

anything which is currently in the Comprehensive Plan so nothing needs to be deleted from the

Plan. A few amendments are necessary to establish new land use districts recommended by the

Turner Downtown Improvement Plan and to carry other recommendations of the Downtown Plan

into the Comprehensive Plan.

First, the proposed Comprehensive Plan amendments include two new policies to Section 9.390,

Population and Economy Goals and Policies, to establish the proposed new C-2 Downtown

Commercial land use district and the M-2 General Employment District and to direct that these

districts be utilized in the downtown and adjacent to the downtown area. An amendment is

proposed to existing policy 6 of this section to 1) encourage development of multi-family residential

development in the downtown, and 2) to encourage land intensive uses or uses which need large

parking lots to locate in the 3rd Street commercial corridor.

Second, a new land use district, Public Institutional, is proposed to be created in Section 9.590, Land

Use Goals and Policies, for properties in public or semi-public use such as schools, parks, fire

stations, churches, and major utility facilities.

Third, other recommended Plan policy changes to Section 9.590 include an amendment to: 1) clarify

that multifamily housing is encouraged to occur in the downtown area; 2) to direct the City to

establish a festival street on a portion of 2nd Street for farmers markets, art shows, music events, and

other activities; and 3) to direct the City of Turner to seek to move the City’s offices to the

downtown area.

II. Amendments to the Land Use and Development Code (Attachment Two)

The biggest threat to achieving a reinvigorated Downtown is for commercial businesses which might

be interested in locating in the downtown choosing to locate elsewhere. While we can’t do much

about businesses which choose to locate totally outside of the community, the City of Turner can

tailor its Land Use and Zoning Districts Map and the Land Use and Development Code to direct

commercial uses with differing needs and markets to different locations in the community and to

allocate an appropriate amount of land for each of these uses. To that end, it is recommended that

the Land Use and Development Code be amended to create a new C-2 Downtown Mixed Use

zoning district to replace Chapter 4.132 –the Downtown Commercial District and a new M-2

Downtown General Employment zoning district. These new zoning districts are intended to provide

for desirable downtown-sized retail and office uses. The C-2 zoning district would also allow for a

variety of multifamily residential uses Downtown–both freestanding and on upper floors above

retail or office uses. The M-2 district would also allow light industrial uses which occur wholly

within a building and which may be combined with an associated retail or office use. The




recommended text for these new zoning districts is included in Attachment Two to this

memorandum.

The primary difference between the proposed C-2 Downtown Mixed-Use zoning district and the

C-1 General Commercial district is that the C-2 district intends to create a typical downtown with

storefront buildings located close to the sidewalk, a mix of land uses, and a convenient pedestrian

environment. In order to achieve these purposes, the C-2 district uses design standards and

guidelines to encourage the development of typical storefront buildings similar to what downtown

Turner used to have, and also through allowing individual uses of less than 4,000 square feet from

having to provide on-site parking. It is believed that the current supply of on-street parking spaces in

downtown should be sufficient to serve the needs of the smaller uses downtown. In addition, the

purpose statement for the C-1 zone would be modified to explain that the C-1 zone is to be utilized

in locations where the City wishes to direct commercial uses which require on-site parking and uses

which may desire land for outdoor display of goods or materials.

The primary difference between the proposed M-2 Downtown Employment zoning district and the

current M-1 General Industrial district is that the M-2 district will allow a mixture of light industrial,

office and storefront retail uses. Uses which combine industrial assembly with associated storefront

retail areas are a primary target of this district. The design guidelines in the M-2 district encourage

the development of storefront buildings located close to the sidewalk with parking areas to be kept

to the side or rear of the building. These guidelines are, for the most part, voluntary guidelines as

opposed to the mandatory design standards of the C-2 district. At the Turner Downtown Plan

Public Event #4 on May 21, 2009, it was recommended that the M-2 zone will require additional

consideration prior to adoption, and may require modifications from what is being presented in this

plan.

In addition to the C-2 and M-2 zoning districts, a new PI Public Institutional zoning district is

proposed which is intended to be applied to existing public uses and/or properties owned by public

institutions for future use as well as properties owned by semi-public entities such as churches and

franchise utility providers. The PI district is intended to be applied to the fire station, parks, existing

churches, the elementary school property and the adjacent public swimming pool, and utility services

facilities such as the Verizon switching facility on Chicago Street and sewer and water pumping

stations. The scope of this project included only downtown and the 3rd Street corridor. The City

should also consider applying this zone to other public and semi-public facilities outside of those

areas.

The final recommended amendments to the Land Use Development Code are minor amendments

to: 1) Section 4.010 to simply list the proposed new land use districts in a table; and 2) to Section

5.010 Development Standards Matrix to list the proposed new C-2, M-2, and P-I land use districts




and summarize the applicable primary development standards for these districts in an existing table

which lists all the applicable basic development standards for all of the land use districts in the City

of Turner.

III. Amendments to the Land Use Districts and Zoning Map (Attachment Three)

In order to focus the limited demand for commercial land in the Downtown area and in areas along

3rd Street which are already predominantly commercial, it is recommended that most of the existing

C-1 General Commercial zoned property on the east side of 3rd Street to just beyond Elm Street be

rezoned R-2 Single-Family Residential. The only exception would be the site of Perky’s restaurant

and nine other relatively small properties on the east side of the Delaney Road/3rd Street

intersection, which would remain zoned C-1. The Technical Advisory Committee (TAC) noted that

those properties were a logical extension for nodal commercial development at this important

intersection. It is noted that the TAC would like to further consider the rezoning of the properties at

the intersection of Delaney Road and 3rd Street so those areas are illustrated with a “study area”

designation on Proposed Comprehensive Plan and Zoning Designation Map Exhibit 2A-2. Further

north along 3rd Street, R-2 zoning is recommended as reflective of the existing uses of those

properties and would be consistent with the zoning of neighboring properties to the east. Slightly

north of Elm Street on the east side of 3rd Street, it is recommended that properties be rezoned to

R-11, Multifamily Residential up to and including the existing City Hall property in order to connect

some existing areas of R-11 zoning, and to hopefully spur redevelopment of this area. The four

properties around the Post Office would remain zoned C-1. The proposed rezoning of the current

City Hall property to R-2 recognizes the Downtown Improvement Plan’s recommendation to

relocate the City administrative functions to downtown in the near future.

On the west side of 3rd Street, it is recommended that C-1 zoning be retained for the mostly

commercial uses from Mill Creek up to and including Classic Auto Storage and Sales, with the

exception of the Fire Station property being zoned P-I (see below). Beyond that point, there is a

solid stretch of well kept single-family homes, up to Triple D Windows. It is recommended that this

area be zoned R-2 in recognition of its existing uses and to preserve this small neighborhood. The

area including and northward of Triple D Windows to just short of the Action Wood Products is

recommended to retain C-1 zoning in recognition of the mostly commercial land uses in this area. In

addition, the generally larger parcel sizes and increased depth between the road and the railroad

makes these parcels attractive for potential redevelopment with commercial uses which require

room for customer parking and/or outdoor display or storage of materials.

As illustrated on the Proposed Comprehensive Plan and Zoning Districts Map Exhibit 2A-1 for the

downtown area, the current DC zoned area south of Mill Creek is proposed to be rezoned C-2,

Downtown Mixed-Use District. The properties on the west side of 3rd Street between Chicago Street




and Mill Creek are proposed to be rezoned from M-1 General Industrial to the new M-2 General

Employment District.

In addition, fine tuning of the commercial zoning on the southern edge of Downtown is suggested

to rezone several properties fronting on Elgin Street from the existing C-1 zoning district to R-11.

These properties are currently in residential usage and are unlikely to be redeveloped with

commercial uses due to their not being located on a major through street or within the planned

Downtown improvement area. Also, one Turner Retirement Homes-owned property on the south

side of Chicago Street just west of the Verizon switching yard is recommended to be rezoned from

R-2 to R-11 so as to be consistent with the remainder of the residential property downtown between

the C-2 area to the west and the school property to the east.

Lastly, areas within downtown and within the 3rd Street corridor which are recommended to be

zoned P-I Public-Institutional on the Comprehensive Plan and Zoning Districts Map include

Burkhardt Park, the elementary school, the Burkhardt pool, the fire station, and the Verizon

switching facility. As noted above, it is recommended that the City also consider whether there are

other public or semi-public owned properties outside of the study area which should also be re-

designated with the P-I land use and zoning district.

IV. Amendments to the Transportation System Plan (Attachment Four)

Recommended changes to the Transportation System Plan (TSP) are fairly minor and limited in

scope. First, an amendment to the Functional Street Classification table in Section 6-4A is

recommended to designate the section of 2nd Street between Denver Street and Fargo Street as a

collector street. In addition, it is recommended that this table designate the segment of 2nd Street

between Boise Street and Denver Street as a significant local street, along with the segment of Boise

Street between 3rd and 2nd Streets. It is recommended that the City have the Mid-Willamette Valley

Council of Governments revise the Turner Street System Map, Map 6-4 of the TSP to correspond

with those changes.

Second, TSP text changes are recommended in two places to describe where continuous sidewalks

are desirable in the downtown area and that such sidewalks will either be built as part of property

development or through the City’s Capital Improvement Program.

Lastly, the TSP’s discussion of trails is recommended to briefly discuss the future development of a

trail along Mill Creek in four separate segments.

Attachment One

Recommended Comprehensive Plan Text Amendments


Date Issued – June 16, 2009

Amendment Date Approved – ________

C i t y o f T u r n e r , O r e g o n 1

otak

L:\Project\14800\14840\Planning\RecommendedCompPlanAmendments _ DRAFT_v1_061609.doc

The City of Turner Comprehensive Plan has been reviewed for possible conflicts with the

proposals included in the Turner Downtown Improvement Plan. No conflicts were found.

However, several changes to the existing plan policies are recommended in order for the

Comprehensive Plan to be reflective of the Downtown Improvement Plan. The

recommended changes are shown below with recommended deletions [highlighted and

bracketed] and added language highlighted and underlined. In addition, places where the

plan text and tables needs to be updated at the next Periodic Review are also noted below.

Section 9.390 Population & Economy Goals And & Policies

6. The City recognizes the downtown central business district as the dominant

commercial area in Turner and shall encourage new retail, office and service

commercial developments to locate there. Multifamily residential development on the

first floor or above shall be encouraged in the central business district. Commercial

development which needs larger areas or extensive parking lots shall be encouraged to

be located along the 3rd Street commercial corridor.

13. The City of Turner shall maintain two commercial land use districts. The C-1 General

Commercial district is intended to accommodate larger retail uses and/or uses which

utilize large parking lots. The C-2 Downtown Commercial district is intended to

accommodate primarily smaller retail, office, and service uses within the historic

downtown center of Turner. No off-street parking will be required for smaller uses in

the C-2 district. A set of design standards and guidelines for the C-2 district is intended

to encourage a downtown storefront character for the C-2 district, reminiscent of the

early years of downtown Turner.

14. The City of Turner shall maintain two industrial land use districts. The M-1 General

Industrial district is intended to accommodate larger industrial uses and/or uses which

have external impacts such as noise, odors, etc. The M-2 General Employment district

is intended to accommodate primarily smaller industrial and service, or mixed

industrial/retail uses. The M-2 district is intended to be located next to downtown. A

set of design standards and guidelines for the M-2 district is intended to allow

development which will coordinate with the primarily retail uses in the adjacent

downtown area.



Amendment Date Approved – ________ Continued

Section 9.500 LAND USE

The statistics regarding various land use districts in this Section will be out of date when the

zoning code and the land use and zoning map are amended to create the proposed new C-2,

M-2, and P-I land use districts and some properties are removed from the existing districts

and are redesignated with the new districts. At this point, the beginning of this chapter

should be amended to state the following:

The statistics in this chapter were generally valid as of June 28, 2001. The land use inventory

and statistics reported in this chapter will need to updated at the next Periodic Review of the

City’s Plan and land use regulations to reflect amendments to the Turner Comprehensive

Plan, Land Use Development Code, and Land Use and Zoning Map adopted in 2009.

Section 9.590 – Land Use Goals and Policies

Commercial Land Use

2. The downtown area shall be reinforced as the primary commercial area in turner.

Adequate parking shall be provided, multifamily housing shall be encouraged [on the

perimeter] and pedestrian-access businesses should be encouraged.

8. The City shall develop a festival street on a portion of 2nd Street as a location for

events such as farmers markets, art shows, music events, and other activities to bring

people into the downtown area.

9. The City of Turner will seek to move city administrative offices to the downtown area.

Add new category of land use policies

Public Institutional

1. The City shall designate publicly and semi-publicly owned properties such as parks,

schools, fire stations, churches, and utility service facilities with the Public-Institutional

land use district, unless such properties are intended to be converted to non-public

uses within a reasonable time.




Section9.800

The findings of Sections 9.840 and 9.850 and Tables 9.800 and 9.800B should be modified at

the time of the next Periodic Review of the Comprehensive Plan and land use regulations to

show current acreage figures for distributions for different land use districts and land use

needs.

Attachment Two

Proposed Land Use Development Code

Proposed Land Use Development Code Date Issued – June 16, 2009

Amendment Date Approved – _________

C i t y o f T u r n e r , O r e g o n 1 otak

L:\Project\14800\14840\Planning\DraftZoningRevisions061609.doc

Proposed revisions to the zoning ordinance are underlined and highlighted. Deletions are [bracketed and highlighted]. ARTICLE 4 ZONING DISTRICTS SECTION 4.010 CLASSIFICATION OF LAND USE DISTRICTS For the purpose of this Code the following Primary Land Use Districts are hereby

established:

ABBREVIATED PRIMARY DISTRICTS DESIGNATION Single-family Residential R-1

Single-family Residential R-2

Multiple-family Residential R-11

General Commercial C-1

Downtown Commercial C-2

Public-Institutional P-I

General Industrial M-1 General Employment M-2 SECTION 4.131 GENERAL COMMERCIAL DISTRICT C-1 (1) Purpose. The General Commercial District is intended to provide areas appropriate

for the full range of commercial activities to serve the needs of area residents and employees. The C-1 District is well suited for areas having access from the City's major thoroughfares that are free from conflict with non-compatible land uses. The C-1 district is intended primarily for commercial uses which may be of a larger scale and require more extensive parking than do uses in the C-2 Downtown Mixed-use District.

(2) Permitted Uses. In a C-1 District, the following uses and their accessory uses are

permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code, provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building:

(a) Retail stores or shops. (b) Personal or business service. (c) Repair shops (See 3 (b) below). (d) Eating or drinking establishments.



Continued



(e) Offices, business or professional. (f) Financial institutions. (g) Indoor commercial amusement or recreation establishments. (h) Public or semi-public buildings and uses. (i) Residential Care Facility for 15 or less people as provided in ORS 197.660 -

670. (j) Group Child Care Center for 13 or more children as provided in the applicable

provisions of ORS 657 A. (k) Second story residences located above a ground floor commercial use in

accordance with Section 6.201. (Amended by Ord. 02-105 Attachment “A”) (l) Conversion of residence to a permitted commercial use in accordance with

Section 6.201. (Amended by Ord. 02-105 Attachment “A”)

(3) Conditional Uses. In a C-1 District, the following uses and their accessory uses may be permitted in conformance with the conditional use provisions of Section 2.500 and the applicable Use Standards of Article 6.

(a) Automotive, truck or RV service facilities with access from a designated arterial

street. (b) Automotive, truck, RV, equipment or other repair shops which possess

nuisance characteristics or emissions potentially detrimental to Public health, safety and general welfare of the community such as noise, vibrations, smoke, odor, fumes, dust, heat, glare or electromagnetic interference shall not be permitted unless additional safeguards are specified by the Planning Commission. The applicant shall accurately specify the extent of emissions and nuisance characteristics relative to the proposed use.

(c) Permitted uses listed in (2) above, requiring open display or storage, including but not limited to, automobile or equipment sales.

(4) Development Standards.

(a) Minimum lot area and configuration - Lots within a General Commercial District are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access and pedestrian circulation including persons with disabilities.

(b) Yards:




Continued




(c) Maximum building height - two and one-half stories to a maximum of 35 feet. (d) Access shall be designed to cause a minimum interference with traffic and may

be subject to the review and approval of the County Engineer or State Department of Transportation. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(e) See Article 5 for additional General Development Standards and Article 6 for Use Standards that may apply in the C-1 District.

[Delete all of Section 4.132 Downtown Commercial district]. SECTION 4.136 DOWNTOWN MIXED-USE DISTRICT C-2 (1) Purpose. The Downtown Mixed-use District applies to the historic central business

district of the City of Turner in the area south and west of Mill Creek and east of 3rd Street. The Downtown Mixed-use District is intended to be the City of Turner’s center of vital retail activity, services, housing, civic buildings, and public spaces. Developments which mix these uses vertically or horizontally are encouraged in the Downtown Mixed-use District.

The C-2 district is intended primarily for commercial uses which are generally of a

smaller scale than uses located in the C-1 General Commercial District and uses which require less in the way of off-street automobile parking. Certain smaller scale uses in the C-2 District are not required to provide on-site parking, and instead are encouraged to utilize on-street parking and shared parking agreements with other nearby uses.

The C-2 District is also intended as the primary location of civic uses in the City of

Turner. Due to the public assembly aspect of these uses, off-street parking will generally be required for most civic uses.

In order to promote the development of a pedestrian-oriented environment and to

promote the development of a storefront character reminiscent of the historic downtown Turner, special design standards and guidelines are established for development in the C-2 District.



Continued



(2) Permitted Uses. In the C-2 Downtown Mixed-use District, the following uses and their accessory uses are permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions, and exceptions set forth in this Code; provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building:

(a) Retail stores or shops. (b) Personal or business service. (c) Repair shops. (d) Eating or drinking establishments. (e) Offices, business or professional. (f) Financial institutions. (g) Indoor commercial amusement or recreation establishments. (h) Temporary vendors such as a farmers market, flea market, or food vending

cart. (i) Conversion of residence to a permitted commercial use in accordance with

Section 6.201. (j) Residential Care Facility for 15 or less people as provided in ORS 197.660 -

670. (k) Group Child Care Center for 13 or more children as provided in the applicable

provisions of ORS 657 A. (l) Second story residences located above a ground floor commercial use in

accordance with Section 6.201. (m) Public or semi-public buildings and uses, including city hall, administrative

offices, libraries, community centers, parks subject to the development standards in Section 6.301.

(n) Multi-family residential uses subject to the development standards of the R-11 district in Section 4.121(4) and the multi-family residential standards of Section 6.104.

(3) Conditional Uses. In the C-2 District, the following uses and their accessory uses

may be permitted in conformance with the conditional use provisions of Section 2.500 and the applicable Use Standards of Article 6. (a) Surface parking lot of any size (when not in conjunction with a permitted or

conditional use). (b) Surface parking lots with more than six parking spaces, if the parking lot is in

conjunction with a permitted or conditional use. (c) Automotive, truck, or RV service facilities. (d) Automotive, truck, RV, equipment, or other repair shops.



Continued



(4) Prohibited Uses. In the C-2 District, the following uses are specifically prohibited:

(a) Manufacturing, warehousing, wholesaling, compounding, assembling, processing, storing, researching, or testing.

(b) Scrap, waste, recycling, or wrecking yards. (c) Quarrying and related activities subject to the requirements of Statewide

Planning Goal 5 and OAR 660-23-180 for Mineral and Aggregate Resources. (d) Waste or hazardous material processing, storage, or disposal. (e) Heavy equipment sales or repair. (f) Trucking operations. (g) Auto storage, towing, or wrecking yards. (h) New automotive service or sales (i) Adult video or goods.

(5) Development Guidelines and Standards. All development in the C-2 District

shall comply with the applicable provisions of the Turner Zoning Code. Where the standards of the C-2 District zone and other provisions of the Code, the standards of the C-2 District shall prevail. Standards listed in this section as “shall” are mandatory standards. Guidelines which state “should” or “encouraged” are not mandatory, but are considered desirable by the City.

(a) Purpose.

i) The purpose of these development standards is to guide the design of

buildings constructed in the C-2 district to ensure that, through appropriate use of facades, windows, building orientation, architectural details, new structures, and alterations of existing structures are physically and visually compatible with other buildings within the downtown business district.


iii) In order to encourage the development of small businesses typical of the historic character of the downtown area and to promote a denser development pattern, certain uses will be exempted from the minimum on-site parking requirements of Section 15.121 of this Code.



Continued



(b) Applicability.

i) The provisions of this ordinance shall apply to the following activities within the C-2 District: 1. All new building construction; 2. Any exterior building or site modification that requires a building

permit; and, 3. All new signage.

ii) This ordinance shall not apply to the following activities or uses:

1. Maintenance of the exterior of an existing structure, such as re-roofing, re-siding, or repainting where similar materials and colors are used that comply with this ordinance;

2. Interior remodeling; and, 3. Exterior remodels to exclusive single-family residential homes, are

exempt from the provisions of this chapter. Single-family homes that are used for businesses or home occupations are not exempt.

iii) This ordinance shall apply only to those portions of a building or sign

that are proposed for construction or modification and shall not extend to other elements of the building or sign that may be out of compliance with the requirements of this ordinance (i.e., a permit to replace a single window shall not require that all other windows on the building that may be out of compliance with this ordinance to be replaced, unless such action is initiated by the property owner). However, if a building should be destroyed due to fire, accident, or an act of God, the new or replacement structure shall be rebuilt to conform to the requirements of this ordinance.

(c) General Standards. These standards to all uses in the C-2 District except for

detached single-family residences and multi-family development.

i) Minimum lot area and configuration - Lots within the C-2 Downtown Mixed-use District are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, needed parking, service access, and pedestrian circulation to provide for the needs of persons with disabilities.



Continued



ii) Yards:

1. Front yard setback - none required, 10-foot maximum allowed. See Section 5.116 for additional street setbacks.

2. Side and rear setback – minimum 5 feet where abutting residential property and zero where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.

iii) Maximum building height - three stories to a maximum of 35 feet.

iv) Access shall be designed to cause a minimum interference with traffic and may be subject to the review and approval of the County Engineer or State Department of Transportation. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

v) See Article 5 for additional General Development Standards and Article

6 for Use Standards that may apply in the C-2 District. (6) Design Guidelines or Standards. All development, EXCEPT for existing detached single family homes and multi-

family development shall be subject to the C-2 District design guidelines and standards listed below.

(a) Standards. Standards for new construction shall require builders to conform to

the architectural form of Turner’s historic period (1880s through 1940s) when downtown Turner had more of a typical downtown character. As such, new construction shall conform to the following standards and guidelines listed below. Reference is made to Turner’s historic period, and to buildings which display basic storefront design characteristics of that period. The following building displays characteristics intended by the standards. Other buildings, including those in other nearby communities, may also be used to demonstrate the required elements and/or the basis for visual compatibility.

The best existing example of a storefront building to be looked at for determining compatibility with the design standards is the Turner bank building at 3rd Street and Boise Street.

1. Site Development.



Continued



a. Building fronts and entrances shall be oriented toward the street. Buildings with frontages on two or more streets shall be oriented to at least one street.

b. Building facades should be set at the property edge along the sidewalk. A maximum setback of up to ten feet shall be permitted when occupied by pedestrian amenities (e.g., plaza, outdoor seating). Buildings with frontages on two or more streets should be set at the property edge on at least one street.

c. Site development should, as applicable and as practical, utilize the alley in the rear of the site for service access - such as for deliveries, trash and recycling pick-up, and employee parking. Buildings shall include doors to alley rights-of-way even if alleys are not currently in use.

2. Building Scale.

a. The overall size and proportion of new structures shall be compatible with the scale of nearby traditional storefront buildings. This standard may be met by either designing the building’s size and proportions to be similar to comparable structures in the downtown, or by the design of the façade so that it breaks a larger mass into smaller units that are similar to comparable historic structures.

b. If practical, new buildings should have the same floor height as adjoining buildings in case there is ever a desire to link the storefronts.

c. The relationship between the height and width of the main facade of the building shall be visibly compatible with adjoining or nearby buildings of the historic period or style. As with subsection (2)(i) of this section, this standard may be met through either similar height and width or, through design elements that provide visual continuity with the height and width of adjoining or nearby buildings of the historic period.

3. Building Height.

a. New buildings of at least two stories in height are encouraged.

b. As specified in Section 4.136.C.3, the height of all buildings shall be one to three stories and not more than 35 feet in maximum height.



Continued



4. Building Width. a. All new buildings should maximize lot frontage as much as is

practicable. b. New buildings whose street frontage is more than 50 feet

wide shall be designed to convey a sense of division through the use of pilasters, windows and door openings, recessed entries, off-sets, or other architectural details.

5. Storefronts.

a. Primary entrances shall be oriented to the street. Corner buildings shall have corner entrances, or shall provide at least one entrance within 20 feet of the street corner or a corner plaza.

b. Street-facing upper windows of multi-story buildings shall use multi-pane double-hung sash windows or the equivalent style.

c. The relationship between solid walls and window and door openings on the main facade shall be visually compatible with adjoining or nearby structures from the historic period or style. Ideally, first floor storefronts should be about 80 percent glass from approximately 2 feet above grade to approximately 10 feet above grade.

d. The relationship of width and height of window and door openings shall be visually compatible with adjoining or nearby buildings from the historic period or style.

e. Blank walls, walls without window or door openings, are not permitted along public streets.

f. Windows and doorways shall not be covered over with paper, boards, or cardboard except during times of construction or remodeling and shall be limited to a period of 120- days unless an extension is otherwise granted by the city manager.

g. Doors shall match the materials, design, and character of the display window framing.

h. Architectural features such as awnings, windows, cornices, etc., shall be provided at the second floor to differentiate the storefront from the upper levels of the building, to add visual interest, and to allow the storefront to function as the base for the rest of the building.

6. Facade Materials and Texture.

a. The materials and texture of the facade shall be compatible with those on buildings constructed during the historic period.



Continued



b. Permitted exterior facade materials include: brick, cast iron, relatively narrow horizontal wood or masonry siding, and stucco. Plywood siding, T-111, and vertical board and batten are prohibited.

c. Exposed concrete block facades facing the street are not allowed. Split-face or scored-face block may be used in small quantities for foundations or other non-dominant features.

d. All main facade materials shall be painted (except brick, for which painting is optional).

e. Metal siding shall not be used as a building material on the facade facing a street.

7. Windows.

a. Windows which allow views to the interior activity or display areas are encouraged. Windows shall include sills at the bottom and pediments at the top. Glass curtain walls, reflective glass, and painted or darkly tinted glass shall not be used on the first floor.

b. Ground Floor Windows. All new buildings must provide ground floor windows along adjacent street rights-of-way. i. Required window areas must be either windows that

allow views into working areas or lobbies, pedestrian entrances, or display windows.

ii. Required windows must have a sill no more than four feet above grade. Where interior floor levels prohibit such placement, the sill must be raised to allow it to be no more than two feet above the finished floor level, up to a maximum sill height of six feet above grade.

iii. Glass curtain windows are not permitted. iv. Darkly tinted windows and mirrored windows that block

two-way visibility are prohibited as ground floor windows along street facades.

v. Any wall that faces a public right-of-way must contain at least 20 percent of the ground floor wall area in display areas, windows, or doorways. Blank walls are prohibited.

c. Upper Floor Window Standards. i. Glass area dimensions shall not exceed 5'x7'. (The longest

dimension may be taken either horizontally or vertically.) ii. Windows must have trim or molding at least two inches

wide around their perimeters



Continued



iii. At least half of all the window area in upper floors must be made up of glass panes with dimensions no greater than 2.5'x3.5'.

8. Roofs.

a. Main facade roofs (lower than a 6:12 pitch) shall be concealed behind a square or stepped parapet. Flat roofs are permitted behind a parapet.

b. All HVAC systems located on top of a roof shall be located and/or screened so that they are not visible from the street. Dish-style antennas shall be located and/or screened so that they are not visible from the street. All screening material shall be natural and shall be compatible with the facade of the front of the building.

c. New roofs on existing buildings or on additions to existing buildings, shall match the pitch and form of the original roof.

d. Shed roofs are permitted on one-story rear additions. e. Back-lit or internally illuminated roofs are prohibited.

9. Awnings and Canopies.

a. The use of awnings or canopies over sidewalks is encouraged. b. Awnings shall extend out from the building front to cover at

least two-thirds of the sidewalk unless it is shown that such a distance will interfere with existing trees, poles, etc., to provide pedestrian protection from the elements.

c. Awnings shall be flat or sloping. Awnings shall be made of metal, wood, canvas, or similar materials. Rounded bubble or plastic awnings are prohibited. Fully glazed awnings are not permitted.

d. Awnings shall fit within the window bays (either above the main glass or the transom light) so as not to obscure or distract from significant architectural features.

e. The color of the awning shall be compatible with its attached building.

f. Awnings shall not be internally illuminated. However, lighting which is intended to provide illumination to the sidewalk and signage is permitted.

g. Awnings shall be a minimum of eight feet above the sidewalk. h. Where feasible, awnings shall be placed at the same height as

those on adjacent buildings in order to maintain a consistent horizontal rhythm along the street front.



Continued



10. Color. a. The painting of brick walls is permitted. b. Subtle or subdued tones commonly used during the historic

period shall be used. Bright or neon colors are prohibited. c. Different colors shall be used to accentuate and highlight

trim, windows, and other building features.

11. Site Design. a. Landscaping shall not obliterate street and sidewalk views of

signage or architectural features on historic buildings.

12. Parking. a. Individual permitted uses listed in Section 4.136 (2) (a)

through (h) of less than 4,000 sq. ft. of building area are not required to provide off-street parking spaces. It is intended that such uses shall be provided with sufficient on-street parking.

b. If off-street parking lots are provided, they shall be designed consistent with the following standards: i. Parking areas shall not be located between the front of

the building and the street. ii. Alley access to the parking lot is encouraged. iii. Street side parking lots shall be set back a minimum of

five feet from a public sidewalk. iv. Parking areas with more than 12 spaces shall be divided

by landscaped areas or walkways, or by a building or group of buildings.

v. Parking lot landscaping shall consist of a minimum of 10 percent of the total parking area. A minimum of one tree for every 10 parking spaces shall be provided.

vi. Knee walls are required to screen street side parking lots. Knee walls shall not exceed three feet in height and shall be constructed with masonry. Alternatively, a combination of a wall or fence and landscaping may be approved if they provide an effective buffer and low-level screen of the parking area.

13. Drive-up service windows a. Drive-up service windows are not permitted.

14. Signs.

Signs shall be subject to Section 5.136.



Continued



15. Landscaping.

Landscaping is subject to the C-2 District design guidelines and standards of Section 5.134.

16. External Storage of Merchandise. The external storage of

merchandise and/or materials, directly or indirectly related to a business, is hereby prohibited within the C-2 District.

17. Outdoor Displays of Merchandise. Outdoor displays of

merchandise are permitted during business hours only and shall not exceed ten percent of the total retail sales area. Displays of merchandise on public sidewalks may not reduce usable walking area widths to less then six feet.

18. Outdoor Eating Areas. Outdoor dining areas are encouraged, and

are permitted on public sidewalks. Outdoor food vending carts are permitted. Eating areas and/or vending carts may not reduce usable walking area widths on public sidewalks to less than six feet.

19. Wall Murals. The use of non-advertising wall murals representing

the area’s cultural heritage or historic events are encouraged, as well as the use of artistic wall murals. A wall mural is an expression of public art painted directly on the exterior of a building or on a backing that is affixed to the building and is sanctioned by the property owner.

The City discourages the painting of murals on the actual surface of a building but instead encourages that murals be painted on boards or ceramic panels attached to a building wall. This can help avoid problems down the road with needing to strip, sandblast, or pressure wash brick walls to remove a mural. The use of applied panels also will allow quick removal of the panel for restoration when a mural has been tagged with graffiti. a. A sign permit is not required for a wall mural. b. Wall murals are not permitted on the exterior wall containing

the main entrance to the building. c. Wall murals may be installed and maintained in an area not

exceeding a maximum area of 80 percent of the exterior wall area of the first three stories upon the wall or façade where the mural is located.



Continued



d. Murals may not be used for any form of commercial advertising or public information or solicitation of any kind. A mural shall be considered a wall sign if it contains words, logos, trademarks or graphic representations of any person, product, or service that identify or advertise a business.

e. Up to 10 percent of the wall mural area, at the lowest border of a mural, may be utilized as an acknowledgement recognizing the sponsor of the mural or for a signature by the mural artist. The designated area for the acknowledgement or signature must not exceed a maximum area of 6 square feet.

SECTION 4.139 PUBLIC INSTITUTIONAL DISTRICT P-I (1) Purpose. The Public Institutional (P-I) zoning district is intended to provide areas

for civic, public safety, or public utility uses. Such uses include schools, public administrative offices, fire stations, police stations, parks, public parking facilities, and water supply reservoirs. Development within the Public Institutional zone requires a conditional use permit to ensure compatibility with adjacent residential neighborhoods, business, or industrial areas and to minimize potential adverse impacts upon those adjacent uses and other public facilities such as roads.

(2) Permitted Uses. In the P-I district, any use which has previously been approved as

a conditional use or was in existence upon the application of the PI zoning district to the property, shall be considered a permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code, provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building. This does not exempt such uses from the need to apply for conditional use approval subject to Section 2.500 to expand or alter such use.

(3) Conditional Uses. In the PI district, establishment of the following uses and their accessory uses may be permitted in conformance with the conditional use provisions of Section 2.500 and the applicable Use Standards of Article 6.

(a) Indoor recreation establishments, such as public pools, gymnasiums, and

community centers. (b) Public or semi-public buildings and uses such as schools, churches, libraries,

public administrative offices, police stations, and fire stations. (c) Parks and typical park structures such as rest room buildings, picnic shelters,

gazebos, and park materials/vehicle storage buildings. Cconcession stands shall



Continued



be allowed in parks in the (PI) district as an accessory use, provided such use does not occupy more than 500 square feet.

d. Public works yards and buildings. e. Public or private water supply reservoirs, pumping stations, and treatment

facilities. f. Public or private wastewater pumping stations and treatment facilities. g. Public or private utility electrical substations, phone switching stations, and

similar facilities. (4) Development Standards.

(a) Minimum lot area and configuration - Lots within the Public Institutional district are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access, and pedestrian circulation including persons with disabilities.

(b) Yards:



(c) Maximum building height - three stories to a maximum of 35 feet. (d) Access shall be designed to cause a minimum interference with traffic and may

be subject to the review and approval of the County Engineer or State Department of Transportation. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(e) See Article 5 for additional General Development Standards and Article 6 for Use Standards that may apply in the P-I District.

(f) New buildings for institutional uses which are located or are to be established on properties located immediately adjacent to properties within the C-2 or M-2 zoning districts shall be subject to the development standards of those districts.

SECTION 4.141 GENERAL INDUSTRIAL DISTRICT M-1 (1) Purpose. The General Industrial District is intended to protect and preserve areas

suitable for industrial development to assist in supporting the area's economy. The M-1 District is suitable for light manufacturing and warehousing activities having minimal emissions or nuisance characteristics that could impact adjacent non-



Continued



industrial areas. The M-1 District is well suited for areas having highway and rail access that are free from conflict with non-compatible land uses.

(2) Permitted Uses. In an M-1 District, the following uses and their accessory uses are

permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code. (a) Interim farm use. (b) All manufacturing, warehousing, wholesaling, compounding, assembling,

processing, storing, researching, or testing uses provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building unless approved by the Planning Commission, and provided there are no emissions or nuisance characteristics discernible without instruments at the property line. See Section 2.140 Item (21).

(c) Public or semi-public buildings and uses. (3) Conditional Uses. In an M-1 District, the following uses and their accessory uses

may be permitted, subject to the provisions of Section 2.500.


(b) Scrap, waste, recycling or wrecking yards. (c) Quarrying and related activities subject to the requirements of Statewide

Planning Goal 5 and OAR 660-23-180 for Mineral and Aggregate Resources. (d) Waste or hazardous material processing, storage or disposal. (e) Commercial activities in association with an approved industrial use. (f) A manufactured dwelling for the owner or caretaker whenever an on-site

residence is necessitated by such use. The manufactured dwelling shall comply with the standards of Article 6.

(Amended by Ord. 02-105 Attachment “A”)

(4) Development Standards. (a) Minimum lot area and configuration - Lots within a General Industrial District

are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access and pedestrian circulation including persons with disabilities

(b) Yards: ii) Exterior yard setbacks - 30 feet. See Section 5.116 for additional street

setbacks.



Continued



iii) Interior yard setbacks - 50 feet where abutting residential property and zero where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.


(d) (Access shall be designed to cause a minimum interference with traffic and may be subject to the review and approval of the County. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(Amended by Ord. 02-105 Attachment “A”) (e) See Article 5 for additional General Development Standards and Article 6 for

Use Standards that may apply in the M-1 District.

SECTION 4.143 DOWNTOWN GENERAL EMPLOYMENT DISTRICT M-2 (1) Purpose. The Downtown General Employment District is intended to provide areas

suitable for industrial or office employment development to assist in supporting the area's economy. The M-2 District is suitable for light manufacturing and warehousing activities having minimal emissions or nuisance characteristics that could impact adjacent non-industrial areas. The M-2 District is also well suited for office and limited commercial uses that will be compatible with existing and planned neighboring industrial land uses and with the uses in the neighboring Downtown area. The M-2 district is suitable for combined industrial and retail uses which utilize showrooms to display products which may have been constructed or assembled on the premises.

(2) Permitted Uses. In the M-2 District, the following uses and their accessory uses are

permitted subject to the Site Plan Review provisions of Section 2.400 and the standards, provisions and exceptions set forth in this Code. (a) All manufacturing, warehousing, wholesaling, compounding, assembling,

processing, storing, researching, or testing uses provided all operations except off-street parking and temporary activities shall be conducted entirely within an enclosed building unless approved by the Planning Commission, and provided there are no emissions or nuisance characteristics discernible without instruments at the property line. See Section 2.140 Item (21).

(b) Offices, business or professional.



Continued



(c) Personal or business service. (d) Repair shops. (e) Retail uses with associated onsite manufacture or repair or other permitted use,

such as a furniture manufacturer with a retail showroom or resale of repaired items like computers.

(3) Conditional Uses

(a) Automotive, truck, or RV service facilities. All outdoor storage to be screened. (b) Automotive, truck, RV, equipment or other repair shops. All outdoor storage

to be screened. (c) Surface parking lots with more than 20 parking spaces.

(4) Prohibited Uses. In an M-2 District, the following uses and their accessory uses are

specifically prohibited.


(b) Scrap, waste, recycling, or wrecking yards. (c) Towing yard. (d) Quarrying and related activities subject to the requirements of Statewide

Planning Goal 5 and OAR 660-23-180 for Mineral and Aggregate Resources. (e) Waste or hazardous material processing, storage or disposal. (f) Auto, motorcycle, truck, agricultural equipment, or boat sales with outdoor

storage of vehicles or boats. (g) Residential use of any kind.

(5) Development Standards and Guidelines.

(a) Purpose.

i) The purpose of these development standards and guidelines is to guide the design of buildings constructed in the M-2 district located adjacent to Downtown to ensure that, through appropriate use of building orientation and basic architectural details, new structures, and alterations of existing structures are physically and visually compatible with buildings within the adjacent downtown business district.



Continued




(b) Applicability.

i) All development in the M-2 District shall comply with the applicable

provisions of the Turner Zoning Code. Where the standards of the M-2 District zone and other provisions of the Code, the standards of the M-2 District shall prevail. Standards listed in this section as “shall” are mandatory standards. Guidelines which state “should” or “encouraged” are not mandatory, but are considered desirable by the City.

1. The provisions of this ordinance shall apply to the following

activities within the M-2 District: a. All new building construction; b. Any exterior building or site modification that requires a

building permit; and, c. All new signage.

2. This ordinance shall not apply to the following activities or uses:

a. Maintenance of the exterior of an existing structure, such as

re-roofing, re-siding, or repainting where similar materials and colors are used that comply with this ordinance;

b. Interior remodeling.

3. This ordinance shall apply only to those portions of a building or sign that are proposed for construction or modification and shall not extend to other elements of the building or sign that may be out of compliance with the requirements of this ordinance (i.e., a permit to replace a single window shall not require that all other windows on the building that may be out of compliance with this ordinance to be replaced, unless such action is initiated by the property owner). However, if a building should be destroyed due to fire, accident, or an act of God, the new or replacement structure shall be rebuilt to conform to the requirements of this ordinance.



Continued



(6) General Guidelines and Standards (a) Minimum lot area and configuration - Lots within the General Employment

District are approved by the Planning Commission as part of the Site Plan Review procedures of Sections 2.400. Lots are required to be large enough to accommodate the building, sewage disposal system, required parking, service access, and pedestrian circulation including persons with disabilities.

(b) Yards: ii) Exterior yard setbacks - zero. Minimal setbacks from adjacent streets are

encouraged. See Section 5.116 for possible additional street setbacks. iii) Interior yard setbacks - 20 feet where abutting residential property and

zero where abutting commercial or industrial property subject to the requirements for building construction specified in the Oregon Structural Specialty Code.


(d) Access shall be designed to cause a minimum interference with traffic and may be subject to the review and approval of the County. The dedication of additional right-of-way and construction of street improvements by the applicant may be required in order to facilitate traffic circulation.

(e) See Article 5 for additional General Development Standards and Article 6 for Use Standards that may apply in the M-2 District.

(7) Design Guidelines and Standards.

(a) Site Development.

i) Building fronts and entrances shall be oriented toward the street. Buildings with frontages on two or more streets shall be oriented to at least one street.

ii) Building facades should be set at the property edge along the sidewalk. Buildings with frontages on two or more streets should be set at the property edge on at least one street.

(b) Building Scale.

i) The overall size and proportion of new structures should be compatible with the scale of nearby traditional storefront buildings. This standard may be met by either designing the building’s size and proportions to be similar to comparable structures in the downtown area, or by the design of the façade so that it breaks a larger mass into smaller units.



Continued



(c) Building Height. i) New buildings of at least two stories in height are encouraged. ii. As specified in Section 4.141.(c), the height of all buildings shall be one

to three stories and not more than 35 feet in maximum height, unless a greater height is approved by the Planning Commission with conditions of approval as part of the Site Plan Review procedures of Section 2.400.

(d) Building Width.

i) All new buildings should maximize lot frontage use as much as is practicable.

ii) New buildings whose street frontage is more than 50 feet wide should be designed to convey a sense of division through the use of pilasters, windows and door openings, recessed entries, off-sets or other architectural details.

(e) Storefronts.

i) Primary entrances shall be oriented to the street. ii) The upper windows of multi-story buildings shall use multi-pane double-

hung sash windows or the equivalent style. iii) The relationship between solid walls and window and door openings on

the main facade shall be visually compatible with adjoining or nearby structures from the historic period or style.

iv) Blank walls, walls without window or door openings, are not permitted along public streets.

v) Windows and doorways shall not be covered over with paper, boards, or cardboard except during times of construction or remodeling and shall be limited to a period of 120 days unless an extension is otherwise granted by the city manager.

vi) Doors should match the materials, design, and character of the display window framing.

vii) vii. Architectural features such as awnings, windows, cornices, etc., should be provided at the second floor to differentiate the storefront from the upper levels of the building, to add visual interest, and to allow the storefront to function as the base for the rest of the building.

(f) Facade Materials and Texture.

i) Permitted exterior facade materials include: brick, cast iron, relatively narrow horizontal wood or masonry siding, and stucco. Plywood siding, T-111, and vertical board and batten are prohibited.

ii) Exposed concrete block facades facing the street are not allowed. Split-face or scored-face block may be used in small quantities for foundations or other non-dominant features.



Continued



iii) All main facade materials shall be painted (except brick, for which painting is optional).

iv) Metal siding shall not be used as a building material on the facade facing a street.

(g) Windows.

i) Windows which allow views to the interior activity or display areas are encouraged. Glass curtain walls, reflective glass, and painted or darkly tinted glass should not be used on the first floor.

ii) Ground Floor Windows. All new buildings are encouraged to provide ground floor windows along adjacent street rights-of-way.

(h) Roofs. i) Main facade roofs (lower than a 6:12 pitch) shall be concealed behind a

square or stepped parapet. Flat roofs are permitted behind a parapet. ii) All HVAC systems located on top of a roof should be located and/or

screened so that they are not visible from the street. Dish-style antennas shall be located and/or screened so that they are not visible from the street. All screening material shall be compatible with the facade of the front of the building.

iii) New roofs on existing buildings, or on additions to existing buildings, shall match the pitch and form of the original roof.

iv) Shed roofs are permitted on one-story rear additions.

(i) Awnings and Canopies. i) The use of awnings or canopies over sidewalks is encouraged. ii) Awnings shall be flat or sloping. Awnings shall be made of metal, wood,

canvas or similar materials. Rounded bubble or plastic awnings are prohibited. Fully glazed awnings are not permitted.

iii) The color of the awning shall be compatible with its attached building. iv) Awnings shall not be internally illuminated. However, lighting which is

intended to provide illumination to the sidewalk and signage is permitted. v) Awnings shall be a minimum of eight feet above the sidewalk.

(j) Color.

i) The painting of brick walls is permitted. ii) Subtle or subdued tones shall be used. Bright or neon colors are

prohibited. iii) Different colors shall be used to accentuate and highlight trim, windows,

and other building features.



Continued



(k) Site Design. i) Landscaping shall not obliterate street and sidewalk views of.

(l) Parking.

i) Individual permitted uses listed in Section 4.136 (2) (a) through (h) of less than 4,000 sq. ft. of building area are not required to provide off-street parking spaces. It is intended that such uses shall be provided with sufficient on-street parking.

ii) If off-street parking lots are provided, they shall be designed consistent with the following standards: 1. Parking areas shall not be located between the front of the building

and the street. 2. Street side parking lots shall be set back a minimum of five feet

from a public sidewalk. 3. Parking areas with more than 12 spaces shall be divided by

landscaped areas or walkways, or by a building or group of buildings.

4. Parking lot landscaping shall consist of a minimum of 10 percent of the total parking area. A minimum of one tree for every 10 parking spaces shall be provided.

5. Knee walls are required to screen street side parking lots. Knee walls shall not exceed three feet in height and shall be constructed with masonry. Alternatively, a combination of a wall or fence and landscaping may be approved if they provide an effective buffer and low-level screen of the parking area.

(m) Drive up businesses i) Drive up service windows are not permitted.

(8) Signs.

Signs shall be subject to Section 5.136. (9) Landscaping.

Landscaping is subject to Section 5.134. (10) External Storage of Merchandise. The external storage of merchandise and/or

materials, directly or indirectly related to a business, is hereby prohibited within the M-2 District, unless such storage is completely screened from views from adjacent streets or properties by a minimum 6-foot high sight obscuring fence.

(11) Outdoor Displays of Merchandise. Outdoor displays of merchandise are permitted during business hours only and shall not exceed ten percent of the total



Continued



retail sales area. Displays of merchandise on public sidewalks may not reduce usable walking area widths to less then six feet.


(13) Wall Murals. The use of non-advertising wall murals representing the area’s cultural heritage or historic events are encouraged, as well as the use of artistic wall murals. A wall mural is an expression of public art painted directly on the exterior of a building or on a backing that is affixed to the building and is sanctioned by the property owner.

The City discourages the painting of murals on the actual surface of a building but instead encourages that murals be painted on boards or ceramic panels attached to a building wall. This can help avoid problems down the road with needing to strip, sandblast or pressure wash brick walls to remove a mural. The use of applied panels also will allow quick removal of the panel for restoration when a mural has been tagged with graffiti.

(a) Sign permit is not required for a wall mural. (b) Wall murals are not permitted on the exterior wall containing the main

entrance to the building. (c) Wall murals may be installed and maintained in an area not exceeding a

maximum area of 80 per cent of the exterior wall area of the first three stories upon the wall or façade where the mural is located.

(d) Murals may not be used for any form of commercial advertising or public information or solicitation of any kind. A mural shall be considered a wall sign if it contains words, logos, trademarks or graphic representations of any person, product or service that identify or advertise a business.

(e) Up to 10 percent of the wall mural area, at the lowest border of a mural, may be utilized as an acknowledgement recognizing the sponsor of the mural or for a signature by the mural artist. The designated area for the acknowledgement or signature must not exceed a maximum area of 6 square feet.



Continued



ARTICLE 5 GENERAL DEVELOPMENT STANDARDS SECTION 5.010 DEVELOPMENT STANDARDS MATRIX

STANDARDS PRIMARY LAND USE DISTRICTS

R-1 R-2 R-11 C-1 C-2

Sec 4.111 Sec 4.112 Sec 4.121 Sec 4.131 Sec 4.136

Site Standards Minimum Lot Size 11,000 sf 7,500 sf 5,000 sf By Use - PC By Use - PC Minimum Width 70 ft 60 ft 50 ft By Use - PC By Use - PC Maximum Depth - - By Use - PC By Use - PC

Exterior Yard 20 ft 20 ft 15 ft 0 ft 0 ft Interior Yard 5 ft - 7.5 ft 5 ft - 7.5 ft 5 ft 0 ft 0 ft Abutting Residential 5 ft 5 ft Rear Yard 0 ft 0 ft

Primary Building 20 ft 20 ft 15 ft

Accessory Building 5ft 5ft 5ft Maximum Structure Height 35 ft 35 ft 3 St or 45 ft 2.5 St or 35 ft 3 St or 35 ft

Maximum Bldg Coverage 50% 75% 50% By Use - PC N/A

Overlay Districts

Flood Hazard- FH Sec 4.210 Sec 4.210 Sec 4.210 Sec 4.210 Sec 4.210 Wetlands - WL Sec 4.220 Sec 4.220 Sec 4.220 Sec 4.220 Sec 4.220 Hillside Development- HD Sec 4.230 Sec 4.230 Sec 4.230 Mineral & Agg Resource- MAR

Sec 4.240 Sec 4.240

Historic Preservation- HP Sec 4.250 Sec 4.250 Sec 4.250 Sec 4.250 Sec 4.250 Planned Development- PD Sec 4.260 Sec 4.260 Sec 4.260 Sec 4.260 Sec 4.260

Development Standards

Parking Sec 5.120 Sec 5.120 Sec 5.120 Sec 5.120 Sec 5.120* Access & Vision Clearance Sec 5.122 Sec 5.122 Sec 5.122 Sec 5.122 Sec 5.122 Landscaping Sec 5.134 Sec 5.134 Sec 5.134 Sec 5.134 Sec 5.134 Signs Sec 5.136 Sec 5.136 Sec 5.136 Sec 5.136 Sec 5.136

Use Standards

Home Occupations Sec 6.101 Sec 6.101 Sec 6.101 Residential Care Homes Sec 6.102 Sec 6.102 Sec 6.102 Sec 6.102 Sec 6.102 Residential Care Facility Sec 6.103 Sec 6.103 Sec 6.103 Sec 6.103 Sec 6.103 Multiple-family Sec 6.104 Manufactured Housing Sec 6.110 Sec 6.110 Sec 6.110 Sec 6.110 Sec 6.110 Residential/Commercial Use Sec 6.201 Sec 6.201 Public Use Sec 6.301 Sec 6.301 Sec 6.301 Sec 6.301 Sec 6.301 Agricultural Use Sec 6.401 Sec 6.401 Sec 6.401 Sec 6.401 Sec 6.401



Continued



STANDARDS PRIMARY LAND USE DISTRICTS

R-1 R-2 R-11 C-1 C-2

Sec 4.111 Sec 4.112 Sec 4.121 Sec 4.131 Sec 4.136

Procedures

Applications Sec 2.130 Sec 2.130 Sec 2.130 Sec 2.130 Sec 2.130 Land Divisions Sec 2.300 Sec 2.300 Sec 2.300 Sec 2.300 Sec 2.300 Site Plan Review Sec 2.400 Sec 2.400 Sec 2.400 Sec 2.400 Sec 2.400 Conditional Use Sec 2.500 Sec 2.500 Sec 2.500 Sec 2.500 Sec 2.500 Variances Sec 2.600 Sec 2.600 Sec 2.600 Sec 2.600 Sec 2.600 Amendments Sec 2.700 Sec 2.700 Sec 2.700 Sec 2.700 Sec 2.700

Definitions Sec 1.200 Sec 1.200 Sec 1.200 Sec 1.200 Sec 1.200

* Parking required for uses less than 4,000 sq. ft.

STANDARDS Primary Land Use

P-I M-1 M-2

Sec 4.139 Sec 4.141 Sec 4.143

Site Standards Minimum Lot Size By Use PC By Use - PC By Use - PC Minimum Width By Use PCt By Use - PC By Use - PC Maximum Depth By Use PC By Use - PC By Use - PC

Exterior Yard 0 ft 30 ft 0 ft Interior Yard 5 ft 0 ft 0 ft Abutting Residential 50 ft 20 ft Rear Yard 0 ft 0 ft

Primary Building 0 ft

Accessory Building 0 ft Maximum Structure Height 3 St or 35 ft 45 ft 35 ft or By PC

Maximum Bldg Coverage N/A By-Use - PC By-Use - PC

Overlay Districts

Flood Hazard- FH Sec 4.210 Sec 4.210 Sec 4.210 Wetlands - WL Sec 4.220 Sec 4.220 Sec 4.220 Hillside Development- HD Sec 4.230 Mineral & Agg Resource- MAR

Sec 4.240 Sec 4.240

Historic Preservation- HP Sec 4.250 Sec 4.250 Sec 4.250 Planned Development- PD Sec 4.260 Sec 4.260 Sec 4.260

Development Standards

Parking Sec 5.120 Sec 5.120 Sec 5.120* Access & Vision Clearance Sec 5.122 Sec 5.122 Sec 5.122 Landscaping Sec 5.134 Sec 5.134 Sec 5.134 Signs Sec 5.136 Sec 5.136 Sec 5.136



Continued



STANDARDS Primary Land Use

P-I M-1 M-2

Sec 4.139 Sec 4.141 Sec 4.143

Use Standards

Home Occupations Sec 6.101 Residential Care Homes Sec 6.102 Residential Care Facility Sec 6.103 Multiple-family Manufactured Housing Sec 6.110 Sec 6.110 Sec 6.110 Residential/Commercial Use Public Use Sec 6.301 Sec 6.301 Sec 6.301 Agricultural Use Sec 6.401 Sec 6.401 Sec 6.401

Procedures

Applications Sec 2.130 Sec 2.130 Sec 2.130 Land Divisions Sec 2.300 Sec 2.300 Sec 2.300 Site Plan Review Sec 2.400 Sec 2.400 Sec 2.400 Conditional Use Sec 2.500 Sec 2.500 Sec 2.500 Variances Sec 2.600 Sec 2.600 Sec 2.600 Amendments Sec 2.700 Sec 2.700 Sec 2.700

Definitions Sec 1.200 Sec 1.200 Sec 1.200

* Parking required for uses less than 4,000 sq. ft.

Attachment Three

Amendments to the Land Use Districts and Zoning Map Date Issued – June 16, 2009

Amendment Date Approved – ______________

Turner Downtown Improvement Plan Exhibit 2A Proposed Comprehensive Plan and Zoning Designations @ Designation - R-I : Single-family Residential District

R-2: Single-family Residential District - R-11 : Multiple-family Residential District






Mill Creek

0 Project Boundary

- Railroad

Feet

1 inch = 100 feet at 22x34 Plot Size

Third Street Commercial Corridor Exhibit 3A Proposed Comprehensive Plan and Zoning Designations @ Designation



R-11 : Multiple-family Residential District






Mill Creek

0 Project Boundary

- Railroad 0 100 200 300 400 500 - I

Feet

1 inch = 150 feet at 22x34 Plot Size

Attachment Four

Amendments to the Transportation System Plan

Recommended Transportation System Plan Amendments


Amendment Date Approved – ________

C i t y o f T u r n e r , O r e g o n 1

otak

L:\Project\14800\14840\Planning\Task 5 - Recommendations\TSP Amendments _ DRAFT_v1_061509.doc

The City of Turner Transportation System Plan has been reviewed for possible conflicts

with the proposals included in the Turner Downtown Improvement Plan. Minor conflicts

were found. Four changes to the existing plan policies are recommended in order for the

Transportation System Plan to be reflective of the Downtown Improvement Plan. The

recommended changes are shown below with recommended deletions [highlighted and

bracketed] and added language highlighted and underlined.

In addition to the text changes noted below, the Transportation System Plan’s maps will

need to be updated at the next Periodic Review of the Plan and land use regulations.

Section Location

Section 6-4A. Street Network Plan, page 42.

Language, Table to Be Amended

Table of Functional Classification, Street Name, Limits

Add the following items to the table:

Functional Classification Street Name Limits

Arterial Streets

(Commercial Corridor) 3rd Street Turner Road to Denver Street

(Commercial Corridor) Denver Street 3rd Street to Mill Creek Bridge

Marion Road Mill Creek Bridge to UGB

Delaney Road 3rd Street to W. UGB

Collector Streets

Chicago Street Wipper Road to School Street

Witzel Road Marion Creek Road to NE UGB

Wipper Road Chicago Street to SW UGB

55th Avenue Elgin Street to SE UGB

Val View Drive 3rd St to Witzel Road

Delaney Road

3rd Street to Witzel Road

(future expansion)

2nd Street Denver Street to Fargo Street

Significant Local Streets

5th Street City park to Elgin Street

2nd Street Boise Street to Denver Street

Boise Street 3rd St. to 2nd St.

Local Streets All other Streets




Justification for Amendment

During public involvement events held by the City to obtain input into the Downtown

Improvement Plan, elected and appointed officials and community residents discussed a

wide variety of transportation and land use planning issues. These issues included future

desired development, streetscape amenities, and public infrastructure improvements. The

topic of streets and functional classification are further described in the Turner Downtown

Improvement Plan, 2009.

Paragraph/Section Location

Section 6-3B. Pedestrian and Bicycle Facilities Needs, page 36.

Language, Table to Be Amended

Section “Sidewalk Needs,” first paragraph.

Modify the sentence beginning with, “Continuous sidewalks are needed the most…”

Replace with the following sentence:

Continuous sidewalks are needed the most throughout the downtown area, as identified in

the Turner Downtown Improvement Plan, 2009, and on 3rd Street, Denver Street, Chicago

Street, Delaney Road and 5th Street.

Modify the sentence beginning with, “Sidewalks will be built…”

Replace with the following sentence:

Sidewalks will be built as a part of [all new developments] new, fronting property

development where the sidewalk is substandard or does not exist. Sidewalks may also

be constructed through the City’s Capital Improvements Program.

The complete paragraph will now read:



Street, Delaney Road and 5th Street. Sidewalks will be built as a part of new, fronting

property development where the sidewalk is substandard or does not exist. Sidewalks may

also be constructed through the City’s Capital Improvements Program.








desired development, streetscape amenities and public infrastructure improvements. The

topic of the need for a continuous network of sidewalks is further described in the Turner

Downtown Improvement Plan, 2009.


Section 6-3B. Pedestrian/Bicycle Plan, page 47.

Language, Table to Be Amended:

Section “Sidewalks and Crosswalks,” first paragraph

The same two sentences described above are used in this paragraph of page 47. The

sentences should be amended as described above. The revised paragraph would read:



Street, Delaney Road and 5th Street. Sidewalks will be built as a part of [all new

developments] new, fronting property development where the sidewalk is substandard or

does not exist. Sidewalks may also be constructed through the City’s Capital Improvements

Program. At intersections, ADA ramps need to be built as part of new sidewalk

improvements to allow access for all residents. The major intersections should be striped for

crosswalks to minimize conflicts between the movements of automobiles, pedestrians, and

bicyclists, especially at the 3rd Street/Chicago Street intersection.






topic of the need for a continuous network of sidewalks is further described in the Turner

Downtown Improvement Plan, 2009.





Section 6-3B. Pedestrian/Bicycle Plan, page 48.

Language, Table to Be Amended:

Modification of bullet

Modify the fourth bullet’s title from Multi-use Paths to: Trails and Multi-use Paths.

Delete the last sentence under the Trails and Multi-use Paths bullet: [“This type of facility

is usually paved and about ten feet wide.”] Insert the following sentences:

Trails and multi-use paths are an integral component of an interconnected pedestrian

and bicycle network throughout Turner. Trails will normally be constructed through

the City’s Capital Improvement Program. Trails and multi-use paths may be paved or

surfaced with natural, pervious materials compacted to provide a solid surface for

ADA accessibility wherever possible. A typical trail/path is a minimum of 10 feet in

width, providing enough room to allow passage of two pedestrians/bicyclists traveling

in opposite directions.

The total bullet heading will now read:

Trails and Multi-use Paths are separated from vehicular traffic. They are two-way

pathways used by pedestrians, bicyclists and joggers. Trails and multi-use paths are an

integral component of an interconnected pedestrian and bicycle network throughout Turner.

Trails will normally be constructed through the City’s Capital Improvement Program. Trails

and multi-use paths may be paved or surfaced with natural, pervious materials compacted to

provide a solid surface for ADA accessibility wherever possible. A typical trail/path is a

minimum of 10 feet in width, providing enough room to allow passage of two

pedestrians/bicyclists traveling in opposite directions.

Add the subheading, Mill Creek – North Trail, before the paragraph beginning,

“From Turner…”

Add the subheading and paragraph before the paragraph beginning, “Map 6-5…”

Mill Creek – Downtown Trail

The Turner Downtown Improvement Plan, 2009 identifies three trail segments:

• From 3rd Avenue to Community Pool along the south side of Mill Creek.




• From Community Pool around elementary school property to Denver Street/Mill

Creek Bridge along the south and west side of Mill Creek.

• From Denver Street/Mill Creek Bridge south to 55th Avenue along the south side

of Mill Creek.

To provide safe pedestrian crossings over Mill Creek, it will be necessary to design and

construct bridges at appropriate crossing locations.






topic of trails and multi-use paths are further described in the Turner Downtown

Improvement Plan, 2009.

Appendix I

Memorandum No. 8 – Downtown Plan

Implementation Strategy


Memorandum #8 – Downtown Plan

Implementation Strategy


Final Memo #8 – Downtown Plan Implementation Strategy – June 26, 2009

L:\Project\14800\14840\Planning\TurnerDowntownPlanImplementationStrategy FINAL Memo 8 061609.doc



Phone (503) 635-3618

Fax (503) 635-5395

Project Team:

David Siegel, FAICP


Amanda Owings, P.E.

Warren Greaser

Jerry Offer

Brendan Buckley Johnson Reid, LLC

Introduction

The City of Turner has been involved in planning for the future of the community and its

downtown prior to the initiation of the most recent effort, the Turner Downtown Improvement

Plan (TDIP), in 2008. With the receipt of a grant from Oregon’s Transportation and Growth

Management program, a work program was initiated for building upon previous plans and studies

and working with the community to develop a downtown improvement plan and an implementing

strategy for carrying it out. Accordingly, the City of Turner directed the Otak consulting team in

applying its expertise to help the community develop its vision and plan for improving Downtown

Turner. The TDIP is a long-range (20-30 year) plan for the future growth and improvement of

Downtown Turner, consistent with the vision and goals adopted by the City.

Any good plan is accompanied by an implementation program–a program indicating the appropriate

tools and actions for carrying out the plan. The Downtown Improvement Plan is an action-oriented

plan, focusing upon the projects and actions needing to be undertaken to carry out a clearly defined

vision, a set of goals and policies, and a long-term conceptual improvement plan.

All too often, the best-intended plans are approved without an action plan for implementation,

without a system or process for monitoring progress, and without a time frame for checking back in

and updating the plan to reflect progress made or changing conditions. The scope of work for

developing the Downtown Improvement Plan calls for preparation of an implementation strategy;

an assemblage of objectives and a game plan of short-term and medium-range actions for achieving





Date: June 26, 2009

Subject: Memo #8 – Downtown Plan Implementation Strategy



Turner Downtown Improvement Plan Memorandum #8 – Downtown Plan Implementation Strategy

June 16, 2009




them. The TDIP will be implemented in pieces, over time. Some actions will be initiated in 2009;

others will be initiated in the years to follow. Some of the projects identified as being catalytic in

their ability to ―jumpstart‖ other development or create a climate for investment will require a

refinement study or preliminary engineering to pin down a concept, a location, a footprint or criteria

for subsequent development proposals.

The Downtown Plan Implementation Strategy is a document to guide the City’s actions to translate

the vision for downtown into a reality. It incorporates the policy objectives of the Turner

Downtown Improvement Plan into a strategy and set of programmed actions (short-term, mid-term

and longer-term) the City should take to carry out the Plan. This Strategy was developed by

analyzing the Downtown Improvement Plan and its supporting appendices and determining which

of the many potential actions for helping to improve Downtown could be organized into the most

effective, initial program of actions for generating momentum and a climate for investment.

The purpose of this initial Downtown Plan Implementation Strategy is threefold:

• To collect the recommended actions and projects in location and roughly prioritize them;

• To identify those that are suggested as being appropriate for initiating at this time and

recommending how the short-term actions are further broken down into those steps needing to

be taken in each of the initial three years; and

• To separate the key actions identified within this initial Downtown Plan Implementation

Strategy into three categories when appropriate:

o Process Improvements

o Projects and Actions

o Organizational Improvements

Context

To help understand why certain actions have been suggested, it is appropriate to provide some

foundational context. Early in the planning process, the consulting team worked with the City staff

and Project Area Committee in a workshop setting to develop a vision for Downtown Turner–for

what the downtown would be like in 20-30 years. The following vision arose from these discussions:

Downtown Turner will be a complete community with a small town feel. It will continue to be a good neighbor

town” where residents are familiar and children are safe to ride their bicycles around town. Downtown Turner

will be the heart of the community and boast plentiful amenities and activities year-round. Respecting the past

and the future, downtown Turner will celebrate its history while providing an economically viable place to do

business and shop, attracting new employment opportunities, residents, and visitors.




June 16, 2009




To ensure the planning effort was focused toward achieving the vision, a set of aspirational goals

were developed, as follows:

• Urban Design – To create an attractive small town environment that facilitates community

activity and interaction for all ages.

• Land Use – To allow and encourage a mix of uses to create a complete downtown.

• Transportation – To create a safe and inviting multi-modal transportation system and circulation.

• Redevelopment – To infill vacant land and redevelop vacant, underutilized, or dilapidated

structures to create a more inviting and active environment.

• Economic Development – To maintain and capitalize on small town advantages while attracting

new businesses to the area.

This vision and set of goals provide the foundation for the actions needing to be taken to achieve

desired change. For a plan to be the ―chart for change‖ it is intended to be, it must be accompanied

by an implementation program; a program indicating the appropriate projects, tools, actions and

timelines for carrying out the plan.

Programming Concept

A substantial number of actions, programs, and projects are being recommended to carry out the

TDIP. Not all of these can be done at once, and consideration needs to be given at the outset and

during the regularly scheduled TDIP and Implementation Strategy update process to the grouping,

phasing or timing of particular actions. It is recommended that the community program

available/limited resources where they can do the most good, where they can leverage other

resources or supporting activities or provide the ―biggest bang for the buck,‖ or where they can be

concentrated to focus on a designated target area. As opportunities and priorities change, or as

additional funding becomes available, there may very well be the desire to change the focus for

carrying out components of the TDIP. The Implementation Strategy and its recommended periodic

review are intended to allow for and accommodate just this sort of flexibility.

The suggested and recommended actions, next steps, and projects generated through the process of

developing this Plan have been compiled in the material within the TDIP’s appendices, particularly

Memorandum #4, Strategies for the Project Area. These recommended actions and projects have

been evaluated, refined and prioritized with regard to relative timing over the short-term (1-3 years),




June 16, 2009




mid-term (4-6 years), and longer-term (7 years or more). In addition, those short-term actions

needing to occur in each of the next three years have been determined.

It is recommended that the City of Turner develop and maintain a short-term strategic action plan

for incrementally implementing the TDIP’s recommendations for improvements and actions. It is

envisioned that this would be viewed as the ―Downtown Plan Implementation Strategy.‖

Short-Term Implementation Strategy

The City of Turner will be maintaining a short-term strategic action plan for incrementally carrying

out the TDIP’s recommendations for improvements and actions. This short-term action plan will be

known as the ―Implementation Strategy‖–a three year, renewable/rolling, short-term action plan

that would be regularly updated, with a regularly scheduled monitoring and updating process and a

supporting budget.

By way of example, in updating this Implementation Strategy, each of the TDIP’s goals would be

examined on a regular basis to ascertain the current status of progress in achieving them and actions

for moving ahead in each of the next three years would be identified and planned for. The activities

for Year 1 would be tied to the City’s annual operating budget. The activities identified for Year 2

and Year 3 would serve as a placeholder or indication of anticipated action-related resource needs

for the coming two years. Once Year 1 is nearly complete, the status of activities would be reviewed,

and the activities for Year 2 would be adjusted as necessary, as it will become the new, Year 1. Year

3 would be adjusted as appropriate in readiness for it’s becoming the new, Year 2, and activities for a

new, Year 3 would be identified. The City would identify a coordinating body (the City Council or

other special committee) responsible for the monitoring, development, and update of the

Implementation Strategy, and for the coordination of the various City activities to fund and/or carry

out the strategy. City staff or the identified coordinating body would provide the City Council with a

regularly scheduled status report on implementation activities. This regular monitoring, reporting,

and updating helps to keep the TDIP flexible and current, keeps the City focused on carrying out of

this important public policy objective, and keeps the TDIP and its implementation on the ―front

burner.‖

In addition, it is recommended that the City review the TDIP on a regularly-scheduled basis and

make amendments as opportunity or changing community and economic circumstances necessitates.

Should there be a desire to change the goals or shift the emphasis of a particular project, this plan-

update process provides the mechanism for doing so within the context of reviewing the plan as a

whole.




June 16, 2009




Action Plan

As mentioned earlier, the memoranda accompanying the Plan contain discussion and

recommendations for short- to medium- and longer term projects, improvements, and actions. As

these have been covered in detail elsewhere, this discussion will not be repeated here. A summary

listing of the recommended projects and actions is included within a summary matrix below, along

with an indication of their relative priority. This will be followed by a more detailed programming of

those key actions recommended to be launched in this initial iteration of the Downtown Plan

Implementation Strategy.

Summary of Recommended Improvements

The following table is a summary of the action items for the City and its elected and appointed

leaders to consider in order to accomplish the long-term vision of downtown Turner. Each item is

defined as a short-term action, one that should be completed within the next six years, or long-term

action, one that can be completed over the next 20 years. Organized by overall category of strategy,

each action considers funding streams and public impact in its timeframe. For the most part, the

short-term actions consist of public infrastructure upgrades, for these will provide the most visible

signs of renewal and success in Turner. The long-term actions are those items that will sustain

Turner and retain a level of growth as the City sees fit.


Essential

Infrastructure



(prioritize installation: school routes,

local streets, business frontages,

festival streets)




a ―Significant Local Street‖


• Conduct routine maintenance (i.e.

slurry seals, grind and overlay)

• Begin discussion with PGE of power

pole relocation or underground

placement of power lines and

telephone lines

• Design and construct

public parking lot

downtown

• Flood control,

stormwater management,

dike reconstruction

• Drop-off area for the

school and pool

• Place electrical and

telecommunication lines

below ground as streets

are reconstructed

• Require underground

utility connections




June 16, 2009





Infrastructure

Enhancements

• Develop segments of trail along Mill

Creek on public owned properties

• Create pedestrian trail network

(construct in segments: 3rd Avenue to

community pool, community pool to

Denver Street, Denver Street to 55th

Avenue)




• Create a water feature to represent the

mill race

• Make the Mill Creek trail

a continuous pedestrian

path




system


with more permanent

structure or sign

• Uncover mill race or add

to the representational

water feature

Civic Presence

and

Community

Places

• Convert a vacant structure downtown

into a new City Hall and meeting

facility

• Convert 2nd Street right-of-way into a

festival street

• Build a new City Hall

and library complex


facility



Burkland Park

Business

Development


District overlay with a

commercial/residential mixed-use

zone

• Create an employment/retail/

industrial mixed-use zone for the area

along 3rd Street.

• Create a Public/Institutional zoning

district and apply it to the school, fire

station, parks, churches, and other

public and semi-public use sites.

• Façade/sidewalk/landscape

improvement program




Turner business


(SFR) from the

downtown




June 16, 2009






contacts

• Develop a marketing plan for

Downtown Turner

• Implement a small business loan

program

• Market new business support

programs



There are a wide range of programs available for businesses to aid in training, expansion, property

acquisition, and repair among other activities. These programs are aimed at businesses from brand

new ventures, to larger established companies. A discussion of these programs and tools and

strategies for deploying them is provided within the Strategic Business Development Plan (see

Appendix E to the Downtown Improvement Plan).

Incremental Implementation Strategy

The above list represents a compendium of actions and improvements identified through the

downtown planning process. As not all these projects and actions can be initiated or carried through

at once, a more detailed programming of those key actions recommended to be launched in this

initial iteration of the Downtown Plan Implementation Strategy is provided below.

A number of these projects will require the application of staffing resources to establish programs,

criteria, and to undertake preliminary tasks to enable projects to move forward (e.g., land assembly,

property owner coordination, research, outreach, and etc.). The Plan recommends a number of

amendments to the City’s Comprehensive Plan, Land Use Development Code, and Transportation

System Plan (to provide greater recognition of Downtown, reflect objectives of the TDIP, etc.), as

well to create several new zoning districts to carry out the intent of the Plan and to achieve the

planned uses, character, and densities envisioned. These suggested amendments to the City’s

regulatory environment will be among the first recommended actions to occur, as they will set the

stage and enable other actions to follow.

In addition, it is anticipated that the City will begin talking with potential development interests

regarding making the Plan a reality. Certain major improvements will be made by the City of Turner

through a variety of funding sources, including urban renewal, if approved by the City Council.

Other improvements will be the responsibility of proposers of specific development activities. One




June 16, 2009




or more of the recommended projects may come about as a result of a ―public-private partnership,‖

a contractual arrangement tailor-made for each situation by which the public sector authority assigns

certain functions or responsibilities to a private developer. Regardless, each of these activities and

scenarios will require some initial, up-front outreach or stage-setting action to enable them to move

forward.

Table No. 1 — Implementation Timing for Capital Improvements

Capital Improvements Short-Term

(Years 1–3)

Med-Term

(Years 4– 6)

Long-Term

(Years 7+)

2nd Street Festival Street

Plan and Design Yr 2

Construction Yr 3

Boise Street Festival Street


Construct X

Downtown Sidewalk and Curb Extensions

Plan and Design X

Construction X

Chicago Street Improvements Yr 1

Improve Gravel Streets (South of Denver Street)

Plan and Design X

Construction X

Relocate City Hall

Temporary Downtown City Hall Yr 3

Identify Permanent City Hall Site X

Program Development and Design X

Construction X

Alley Improvements

Identify and Prioritize Improvements Yr 2

Design Improvements X

Construction X X

Mill Creek Trail


Construction X X

Downtown Gateways

Plan and Design X

Construction X

Cover Community Pool




June 16, 2009




Capital Improvements Short-Term

(Years 1–3)

Med-Term

(Years 4– 6)

Long-Term

(Years 7+)


Construction X

School/Pool Parking

Plan and Design X

Construction X

Downtown Public Parking

Plan and Design X

Construction X

School/Pool Parking

Plan and Design X

Construction X

Undergrounding Existing Utilities

Initiate Discussion With Utilities Yr 2

Underground Utilities X X

Downtown Water Feature

Public Preferences Study/Plan Yr 3

Preliminary Engineering X

Construction X

Flood Control Improvements

Flood Control Study and Project Identification X

Design X

Construction X

Table No. 2 — Implementation Timing for Process Improvements and Actions

Process Improvements and Actions Short-Term

(Years 1–3)

Med-Term

(Years 4– 6)

Long-Term

(Years 7+) Ongoing

Urban Renewal

Conduct Feasibility Study Yr 1

Prepare/Adopt Urban Renewal Plan and

Report

Yr 2

Establish & Operate District Yr 2 X X X

Business License Fee Yr 1 X X X

Grants-in-aid Yr 2 X X X




June 16, 2009




Process Improvements and Actions Short-Term

(Years 1–3)

Med-Term

(Years 4– 6)

Long-Term

(Years 7+) Ongoing

Property Improvement Program Yr 3 X X X

Develop/Maintain List of Local Business Yr 1 X X X

Establish Small/Micro Business Loan

Programs

X X X

Comprehensive Plan Amendments Yr 1

Land Use Map Changes Yr 1

Transportation System Plan Amendments Yr 1

Zoning Code Amendments Yr 1

Table No.3 — Implementation Timing for Organizational Improvements

Organizational Improvements Short-Term

(Years 1–3)

Med-Term

(Years 4– 6)

Long-Term

(Years 7+) Ongoing

Create Chamber of Commerce Yr 1 X X X

Develop Downtown Marketing Plan Yr 3

Participate in Regional Economic

Development Efforts

Yr 1 X X X

Explore Downtown Mural Program X X X

Establish Farmers Market

Organization Yr 2

Initiation and Operation Yr 2 X X X

Future TRH Employee/Residents Parking

Examine Future Needs and Options

Y1




June 16, 2009




Conclusion

In conclusion, the Turner Downtown Improvement Plan represents the community’s official

framework for the revitalization of Downtown Turner into a thriving neighborhood. As this plan

represents the expression of the community’s vision and desired outcomes for Downtown, the Plan

must be a dynamic and responsive policy framework; one that changes as needed to keep pace of

changing community values and external factors, and as opportunities arise. Over time, the TDIP is

intended to continue to evolve, serving as the framework for further refinement according to the

wishes of the community. The Downtown Implementation Strategy is intended to provide policy

guidance and specific actions for implementing the Downtown Improvement Plan and to provide

direction as to the priorities and focus for action. It is recommended that the City review the

Strategy on a regularly-scheduled basis and make amendments as opportunity or changing

community and economic circumstances necessitates. Should there be a desire to change the goals

or shift the emphasis of a particular project, this plan-update process provides the mechanism for

doing so within the context of reviewing the plan as a whole.

It is anticipated and intended for this Downtown Plan Implementation Strategy to be closely

monitored, reported upon to City decision makers, and updated on an annual basis. By doing so, the

City will be more likely to achieve the outcomes envisioned by the Turner Downtown Improvement

Plan in a timely and effective manner.

Appendix J

Current City of Turner Comprehensive Plan and

Land Use Districts Map