On the agenda: Boardman packet — data center (Jul 30)

SPECIAL PLANNING
COMMISSION MEETING
July 30, 2026 at 6:00 PM
Boardman City Hall Council Chambers

AGENDA
1. CALL TO ORDER
2. FLAG SALUTE
3. ROLL CALL
4. WELCOME BCP/BDC PAC MEMBERS
5. APPROVAL OF MINUTES
A. Planning Commission Meeting June 18, 2026
6. WORKSHOP
A. Workshop - Comprehensive Plan & Development Code Update
7. DISCUSSION ITEMS
A. Planning Official Update
8. PUBLIC COMMENT
INVITATION FOR PUBLIC COMMENT – The commission chair will announce that any
interested audience members are invited to provide comments. Anyone may speak on any
topic other than: a matter in litigation, a quasi-judicial land use matter; or a matter scheduled
for public hearing at some future date. The commission chair may limit comments to 3
minutes per person for a total of 30 minutes. Please complete a request to speak card prior
to the meeting. Speakers may not yield their time to others.
A. Public Comment
9. COMMISSION COMMENTS
10. ADJOURNMENT
Zoom Meeting Link: https://us02web.zoom.us/j/2860039400?omn=89202237716
This meeting is being conducted with public access in-person and virtually in accordance with
Oregon Public Meeting Law. If remote access to this meeting experiences technical difficulties
or is disconnected and there continues to be a quorum of the council present, the meeting will
continue.
The meeting location is accessible to persons with disabilities. Upon request of an individual
who is deaf or hard of hearing, accommodations such as sign language or equipment for the
hearing impaired must be requested at least 48 hours prior to the meeting. To make your
request, please contact the City Clerk at 541-481-9252 (voice), or by e-mail
at [email protected].
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Section 5, Item A.

PLANNING COMMISSION
MEETING
June 18, 2026 at 6:00 PM
Boardman City Hall Council Chambers

MINUTES
1.

CALL TO ORDER
Commission Chair Barresse called the meeting to order at 6:00 PM

2.

FLAG SALUTE

3.

ROLL CALL
Commissioners Present: Commissioner Jolene Stensland
Commissioner Mike Connell, Commissioner Ragna TenEyck
Commission Chair Zack Barresse, Commissioner David Jones
Commissioners Absent: Commissioner Rod Taylor (Excused), Commission Vice Chair Sam Irons
(Excused)

4.

APPROVAL OF MINUTES
A.

Planning Commission Meeting May 21, 2026
Move to appprove the minutes of May 21, 2026
Motion made by Commissioner Connell, Seconded by Commissioner Stensland.
Voting Yea: Commissioner Stensland, Commissioner Connell, Commissioner TenEyck,
Commission Chair Barresse, Commissioner Jones
Timestamp: 1:09

5.

PUBLIC HEARINGS
A.

CONTINUED - RVW26-000024: AKS Engineering & Forestry LLC, applicant, Paul Walton &
Joseph Timothy Walton, owner. Property is described as tax lots 1600 and 1601 of
Assessor’s Map 4N 25E 17AD and is zoned Residential Multifamily Sub District. The request
is to approve a 240-apartment complex, along with amenity buildings and associated vehicle
and bicycle parking, pedestrian facilities, landscaping, and open space. Criteria are found in
the Boardman Development Code (BDC) Chapter 2.1 Residential District Section 2.1.400
Multi-Family and is being processed as a Type III decision.
Commissioner Chair Barresse opened the public hearing at 6:02 PM
Motion to add the attachments to the supplemental findings.
Motion made by Commissioner Stensland, Seconded by Commissioner TenEyck.
Voting Yea: Commissioner Stensland, Commissioner Connell, Commissioner TenEyck,
Commission Chair Barresse, Commissioner Jones
Motion to approve Site Design Review RVW26-000024 as presented.
Motion made by Commissioner Connell, Seconded by Commissioner TenEyck.
Voting Yea: Commissioner Stensland, Commissioner Connell, Commissioner TenEyck,
Commission Chair Barresse, Commissioner Jones
Commission Chair Barresse closed the public hearing at 6:50 PM.
Timestamp - 1:50
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Section 5, Item A.

6.

DISCUSSION ITEMS
A.

Planning Official Update
Planning Official Carla McLane gave her staff report
Timestamp - 56:17

7.

PUBLIC COMMENT
There was none.

8.

COMMISSION COMMENTS
There was none.

9.

ADJOURNMENT
Commission Chair Barresse adjourned the meeting at 7:47

______________________________
Zack Barresse, Commission Chair

________________________________
Planning Department

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Section 6, Item A.

JOINT PUBLIC ADVISORY COMMITTEE (PAC)
AND PLANNING COMMISSION (PC) MEETING
July 30, 2026 - 5:30 - 7:30 PM

Boardman City Hall
https://us02web.zoom.us/j/2860039400?omn=86767969068

AGENDA
1.​ Welcome and Recap (10 min)
a.​ Agenda Overview
b.​ Project Recap and Timeline
2.​ Revised Future Land Use Map (20 min)
a.​ Summary of Engagement and Feedback
b.​ Overview of Map Changes
3.​ Draft Comprehensive Plan Goals & Policies (50 min)
a.​ Overview of Chapters and Broad Policy Direction
b.​ Key Policy Considerations and Discussion
■​ How should the West Glen neighborhood be designated in the Future
Land Use Map?
■​ Should the City provide water service outside city limits for public health
reasons, even where full annexation and urban infrastructure are not yet
in place?
■​ Is the City on the right track in terms of UGB management and
designating Urban Reserves?
4.​ Draft Zoning Map and Zoning Amendments (30 min)
a.​ Overview of Proposed Zone Structure for Comp Plan Implementation (Zones,
Uses, and Standards)
b.​ Key Policy Considerations and Discussions
5.​ Next Steps (10 min)
a.​ Upcoming Milestones
b.​ Adoption Timeline

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Section 6, Item A.

Boardman Comprehensive Plan and
Development Code Update
Engagement Phase 3 Summary
May 2026

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Section 6, Item A.

Content
01

Background

02

Engagement Activity & Feedback

03

Appendix

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Section 6, Item A.

01
Background

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Section 6, Item A.

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Public Advisory Committee Meeting

We are here

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Community Vision
In 20 years:
Discussed
in PAC
meetings 2
and 3

Boardman is a community rooted in connection—to each other, to opportunity, and
to the land and river that define our place.
Looking ahead, we envision a city that grows sustainably while expanding access to
housing, jobs, services, and public facilities to support people through all stages of
life.
Our future includes safe, walkable, and bike-friendly streets and public spaces,
strong ties to the Columbia River, and a commitment to honoring local heritage.
This plan will guide Boardman’s evolution as a place where families and people of
all ages can thrive, careers can grow over a lifetime, and every member of the
community feels a lasting sense of belonging.
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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Translating Boardman's Heart and Vision on the Ground:
A Draft Future Land Use Map

Section 6, Item A.

●

The draft Future Land Use Map translates the community’s vision and
priorities into a spatial growth strategy for Boardman.

●

The map is informed by community input and analysis of past, present,
and future conditions.

●

It balances the qualities that make Boardman feel like home, including
neighborhoods, gathering places, and community life, with the jobs
and industry that support the local economy.

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

02
Engagement Activity &
Feedback
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Section 6, Item A.

Engagement Phase 3: Participation Overview
In May 2026, City staff and
the consultant team
partnered to host an open
house in Boardman where
they presented a draft
future land use map and
asked the community for
feedback.

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Engagement Phase 3: Participation Overview
About 20 community members took part in the open house and 28
community members responded to the online survey.
●

In person open house: Port of Morrow Riverfront Center from 5-7pm

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Online activities: Community survey available in English and Spanish.

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Engagement Phase 3: Open House Feedback
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Support for the draft future land uses and locations, with some refinements

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Desire for more retail, services, and small business spaces

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More mixed-use neighborhoods with neighborhood character and trees

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Providing recreational spaces with walking and biking trails

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Streetscapes that accommodate all modes of transportation comfortably

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Section 6, Item A.

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Section 6, Item A.

Engagement Phase 3: Online Survey
How well do these draft future
land uses reflect the community
vision?

Do these locations feel like the right
fit for each future land use
designation?

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Engagement Phase 3: Online Survey Summary
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Support for the draft future land use locations, with some refinements

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Support for the future land uses capturing the desired mix of uses and characters

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More parks, playgrounds, and community-oriented spaces

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Desire for a more community center feel

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Diversity of commercial development with emphasis on local, small businesses

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Walkability of a new downtown area

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Beautification of Boardman

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Shaded areas, trees, vegetation

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An amphitheater, arts, markets, or other things to do outside of work

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Tourism opportunities and places for people driving through to stop by

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Section 6, Item A.

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Appendix

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Section 6, Item A.

Engagement Phase 3: Online Survey
Online Survey
English and Spanish

●

Completed responses: 28

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Engagement Phase 3: Survey Results
Online Survey (English and Spanish)

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Engagement Phase 3: Survey Results
Online Survey (English and Spanish)

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Boardman Comprehensive Plan and Development Code Update

Engagement Phase 3 Summary - May 2026

Section 6, Item A.

Chapter 1: People
A quick orientation as you review this chapter.
This chapter covers Goal 1, citizen involvement. It's short, and the change from the current plan
is more in spirit than in substance.
What's new or different: Rather than treating public involvement as standard notices and
hearings, the chapter builds the program around who actually lives in Boardman today and sets
inclusive, bilingual engagement and barrier removal as the baseline, with Spanish-language
materials provided to the extent staff resources and capacity allow. It names the Planning
Commission as the City's Citizen Involvement Committee and commits the City to building the
civic capacity of residents who have not historically participated in planning.

Background
Boardman is a young, fast-growing, and increasingly diverse community, and who lives here
shapes what meaningful civic participation has to look like. Hispanic and Latino residents make
up roughly 70% of the population, about 63% of residents speak a language other than English
at home, and nearly one in five households lacks reliable internet access — more than double
the statewide rate. In a community like this, the standard tools of public involvement,
English-language notices, evening hearings, and web-based comment forms, reach only a
fraction of the people whose lives planning decisions affect.
Boardman's recent engagement experience bears this out. In launching this Comprehensive
Plan update in 2024, the City formed a Public Advisory Committee and conducted bilingual
outreach, and community listening sessions in May 2025 confirmed that language, work
schedules, and unfamiliarity with planning processes have long limited participation for many
residents. At the same time, local leaders stepped in to support outreach and translation,
showing that the foundation for broader engagement is already here to build on.
As Boardman continues to grow, the City is committed to making sure planning decisions reflect
the people who live here today and those who will call Boardman home in the future. The goals
and policies that follow establish the City's program for getting there.
Applicable Statewide Planning Goals
●​ Goal 1: Citizen Involvement

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Section 6, Item A.

Goals and Policies
Community and Equity
Overview
Statewide Planning Goal 1 requires every city to maintain a citizen involvement program with six
elements: a broadly representative citizen involvement committee, two-way communication
between residents and decision-makers, opportunities to participate at every phase of planning,
technical information in accessible formats, mechanisms for residents to receive responses, and
adequate funding for the program. In Boardman, the seven-member Planning Commission
serves as the Citizen Involvement Committee, guiding this Comprehensive Plan update and
overseeing the City's development regulations.
Meeting those requirements in Boardman means doing more than the minimum. A program built
around English-language notices, evening hearings, and online tools would not reach most of
the community. Here, bilingual materials and meetings are a baseline rather than an exception,
engagement has to work around varying work schedules and uneven internet access, and the
City must invest in building civic capacity among residents who have not historically taken part
in planning. The goals and policies that follow establish the City's program for accessible,
inclusive, and culturally responsive engagement across all phases of land use planning.
Goals and Policies
Goal 1.1: Establish and maintain a community engagement program that provides all
Boardman residents with timely, accessible, and meaningful opportunities to participate
in land use planning decisions.
Policy 1.1.1 The City shall maintain a citizen involvement program that provides
residents with regular opportunities to participate in land use planning and policy
decisions, including timely notification to affected property owners and public agencies.
Policy 1.1.2 The City shall ensure that public notices, meeting materials, and planning
documents related to land use decisions are written in plain, accessible language and
translated in Spanish to the extent staff resources and capacity allow.
Policy 1.1.3 The City shall use a mix of in-person and online engagement methods to
reach residents with varying language abilities, work schedules, and levels of internet
access.
Policy 1.1.4 The City shall maintain adequate staff capacity and budget to support an
ongoing public involvement program consistent with the requirements of Oregon
Statewide Planning Goal 1.

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Section 6, Item A.

Policy 1.1.5 The City shall maintain consistency between the Comprehensive Plan, the
Development Code, and other implementing policies to ensure that decisions made
through public processes are reflected in adopted regulations.
Policy 1.1.6 The City shall periodically review and update this Comprehensive Plan to
ensure it remains consistent with state requirements, reflects current community
priorities, and is grounded in current data and conditions.
Goal 1.2: Ensure that community engagement in land use planning is inclusive, culturally
appropriate, and reflective of the full diversity of Boardman's population.
Policy 1.2.1 The City shall actively work to remove barriers to participation in land use
planning, including language, work schedule, transportation, and unfamiliarity with
planning processes.
Policy 1.2.2 The City shall invest in building the civic capacity of community members,
with particular emphasis on Boardman's Hispanic and Latino community, to participate
meaningfully in land use planning, including supporting outreach leadership.
Policy 1.2.3 The City shall engage underserved and underrepresented groups to
develop engagement strategies that reflect their cultural context and communication
preferences.
Policy 1.2.4 The City shall coordinate with the Department of Land Conservation and
Development (DLCD) to access guidance, technical assistance, and resources that
support inclusive public involvement.
Policy 1.2.5 The Planning Commission, which serves as the City's Citizen Involvement
Committee (CIC), shall actively seek to reflect the diversity of Boardman's population in
its composition, including its racial, ethnic, linguistic, and socioeconomic makeup.
Policy 1.2.6 The City shall adhere to the land use planning principles and guidelines of
the Land Conservation and Development Commission (LCDC) in all planning activities.

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Section 6, Item A.

Chapter 2: Development
A quick orientation as you review this chapter.
The longest and most consequential chapter, covering housing (Goal 10), economic
development (Goal 9), and land use and urbanization (Goals 2 and 14).
What's new or different: A major departure from the current plan, built on the City's new
Economic Opportunities Analysis and Housing Capacity Analysis. The headline is that neither
employment nor residential land supply fits within the current UGB, so the chapter commits the
City to planning for a UGB expansion, the biggest single policy direction in the plan. It
addresses data centers explicitly as both an economic driver and a strain on land, water, and
energy, and positions the City's planning within the broader statewide conversation about data
center impacts now underway at the state level.
The chapter adds several new policy directions that did not exist in the current plan. It replaces
the blanket "Future Urban" holding zone with differentiated Comprehensive Plan Map
designations for all urbanizable land within the UGB, so that infrastructure planning and
eventual annexation are guided by each area's intended use. It sets annexation conditions and
service-sequencing requirements, prohibits extending city water without a concurrent sewer
commitment to address groundwater contamination concerns, and directs the City to coordinate
land use authority over UGB lands outside the city limits to prevent rural-density parcelization
that would foreclose planned urban development. It establishes a framework for designating
urban reserves beyond the UGB to protect land needed for future growth, and also sets a
direction toward a more compact, walkable city with a defined center.

Background
Boardman is growing quickly, and the pace of that growth is reshaping what the community
needs from its land, infrastructure, housing, and economy. Today, Boardman has an estimated
6,150 residents within its Urban Growth Boundary, a 74% increase since 2010 and more than
double the population of twenty years ago. Portland State University forecasts that population
within the UGB could reach 6,656 by 2045, though two factors suggest that figure significantly
understates the growth the city must plan for. First, the 2020 decennial census undercounted
Boardman's population; while PSU has since corrected its annual population estimates, the
coordinated forecast still carries that undercount forward. Second, the city is experiencing rapid,
employment-driven growth that is outpacing historical trends, and at its current trajectory may
reach the 2045 forecast before the end of this decade. The Comprehensive Plan must therefore
plan for growth that is likely to outpace official projections, even as it meets the City's statutory
planning obligations.
This growth is being driven in significant part by the expansion of the Port of Morrow and the
rapid rise of hyperscale data center development as a major economic force. As of 2025,
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Section 6, Item A.

Boardman is home to roughly 3,500 workers across approximately 150 businesses. The City's
2026 Economic Opportunities Analysis (EOA) forecasts nearly 2,300 new jobs by 2045, with
approximately 33% in the data center sector directly and the remainder in construction, logistics,
retail, health care, and other services. This growth is taking place within a broader statewide
conversation about data center development. In 2025–2026, the Governor's Data Center
Advisory Committee, DLCD, and the Oregon Legislature have been examining the cumulative
land use, infrastructure, and energy impacts of data center expansion across Oregon, and the
City's planning must be responsive to the state policy direction that emerges from that process.
The Port of Morrow, which employs approximately 8,000 workers across its facilities, remains
the largest single driver of industrial land demand in the region. Boardman's economic strength
has not yet translated into a community fully equipped to house and serve its workforce. Jobs
substantially outnumber local housing units, with an estimated 1.3 jobs per household, yet
roughly 70 to 80% of workers employed in Boardman commute from Hermiston, Umatilla, the
Tri-Cities, and other communities. The City's 2026 Housing Capacity Analysis (HCA) documents
a need for 728 net new housing units by 2046 across a full range of types, from single-family
homes to multifamily apartments and manufactured homes. Today, 40% of renters are
cost-burdened and 18% are severely cost-burdened, and the median home sale price of
$425,000 is affordable only to households earning roughly $90,000 or more, which is a
threshold only about 45% of local ownership households meet.
The employment land picture presents a parallel challenge. The EOA's Buildable Land Inventory
found approximately 337 gross buildable acres in employment zones within the UGB. While this
exceeds demand when data centers are excluded, no sites remain large enough for hyperscale
data center development and no general industrial sites over 20 acres remain, which are gaps
that constrain business recruitment. The EOA identifies a need for approximately 810 additional
gross acres of employment land that cannot be accommodated within the current boundary.
Community input throughout this process reflected a clear desire for a more connected,
walkable city and a defined “heart” of Boardman with gathering places, local businesses, and
public amenities that reflects the city’s identity as a community, not just a job hub. The goals and
policies that follow turn these conditions into the City's framework for housing, economic
development, and growth management.
Applicable Statewide Planning Goals
●​
●​
●​
●​

Goal 2: Land Use Planning
Goal 9: Employment
Goal 10: Housing
Goal 14: Urbanization

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Section 6, Item A.

Goals and Policies
Housing
Overview
Statewide Planning Goal 10 requires cities to plan for and accommodate housing needs across
a range of types and affordability levels, and to maintain sufficient buildable residential land over
a 20-year planning horizon.
Boardman's 2026 HCA, prepared in accordance with the Oregon Housing Needs Analysis
(OHNA) program and OAR 660 Division 8, establishes the factual basis for housing policy in this
plan. The OHNA production target requires 728 net new housing units by 2046, of which
approximately 39% are needed for households earning below 60% of Area Median Income. The
HCA projects that 40% of new units will be needed in multifamily structures of five or more units
and 20% in middle housing types, a mix that the current housing stock and Development Code
have not adequately supported. Boardman's distinctive local conditions, such as an average
household size of 3.3 persons, a poverty rate of approximately 17%, a large agricultural
workforce, and a predominantly Hispanic and Latino population, shape the type, size, and
affordability of housing the community needs.
The goals and policies that follow establish the City's commitment to meeting its OHNA
production target, removing code barriers to needed housing types, and addressing affordability
across all income levels.

Goals and Policies
Goal 2.1: Maintain an adequate supply of buildable residential land to meet the City's
20-year housing production target and accommodate the full range of needed housing
types.
Policy 2.1.1 The City shall maintain a sufficient supply of buildable residential land within
the UGB to meet the 20-year housing production target established by the Oregon
Housing Needs Analysis (OHNA) program and shall monitor land supply annually
against that target.
Policy 2.1.2 The City shall permit, through Development Code standards and zoning
map designations, all needed housing types, including single-family detached homes,
middle housing types (duplexes, triplexes, cottage clusters, and townhomes), multifamily
apartments, manufactured homes, and government-assisted units.

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Policy 2.1.3 The City shall coordinate residential land supply planning with infrastructure
capacity, including water, sewer, and transportation, and shall prioritize the extension of
services to residential lands in a logical and cost-efficient sequence consistent with the
conversion standards for urbanizable lands within the UGB.
Policy 2.1.4 The City shall support infill and redevelopment of underutilized residential
land within the UGB as the preferred means of accommodating housing growth before
pursuing UGB expansion for residential uses.
Goal 2.2: Ensure that Development Code standards permit and actively support the
housing types needed to meet Boardman's projected demand, with particular emphasis
on middle housing, multifamily, and manufactured homes.
Policy 2.2.1 The City shall adopt and maintain clear and objective Development Code
standards for all needed housing types, including accessory dwelling units, duplexes,
triplexes, fourplexes, cottage clusters, townhomes, and multifamily structures, consistent
with the requirements of ORS 197A.400 and applicable middle housing statutes.
Policy 2.2.2 The City shall ensure that Development Code standards such as lot size
minimums, setbacks, height limits, parking requirements, and design standards do not
function as unnecessary barriers to the development of needed housing types,
particularly middle housing and multifamily units.
Policy 2.2.3 The City shall permit manufactured homes on individual lots in residential
zones on the same basis as site-built homes, and shall permit manufactured home parks
in appropriate residential and mixed-use zones, consistent with state law requirements.
Policy 2.2.4 The City shall permit accessory dwelling units on all lots with a primary
residential use, consistent with applicable state law, and shall maintain Development
Code standards that facilitate rather than discourage their construction.
Goal 2.3: Address housing affordability across all income levels, with priority attention to
households earning below 60% of Area Median Income.
Policy 2.3.1 The City shall use the OHNA production target income breakdown as the
factual basis for housing affordability policy, recognizing that approximately 39% of
Boardman's 20-year housing need is for households earning below 60% of Area Median
Income, including extremely low-income households earning below 30% AMI.
Policy 2.3.2 The City shall actively seek state and federal funding, tax credit programs,
and other financing tools to support the development of income-restricted affordable
housing in Boardman, and shall work with nonprofit housing developers, the Oregon
Housing and Community Services (OHCS), and other partners to bring affordable
housing projects to the city.

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Section 6, Item A.

Policy 2.3.3 The City shall maintain and support existing affordable housing properties
and shall work with property owners and OHCS to prevent loss of affordability
restrictions on these units.
Policy 2.3.4 The City shall use Development Code tools like density bonuses, reduced
parking requirements, and expedited review to reduce barriers to the development of
housing affordable to lower-income households.
Goal 2.4: Ensure that housing supply reflects the specific household characteristics of
Boardman's community, including large family sizes, an agricultural workforce, and a
predominantly Hispanic and Latino population.
Policy 2.4.1 The City shall ensure that Development Code standards permit and
encourage the development of housing units large enough to serve family households.
Policy 2.4.2 The City shall maintain zoning provisions that permit agricultural worker
housing and shall work with agricultural employers, farmworker housing nonprofits, and
state agencies to support the development of additional farmworker housing units.
Policy 2.4.3 The City shall engage Boardman's Hispanic and Latino community in the
design of housing programs and policies to ensure they reflect the community's actual
needs and preferences.
Goal 2.5: Support housing development that is compatible with neighborhood character,
connected to services, and resilient over time.
Policy 2.5.1 The City shall promote residential development in areas that are proximate
to schools, parks, commercial services, and transit connections, and shall use zoning
and Development Code standards to encourage walkable neighborhood patterns that
reduce reliance on automobile travel.
Policy 2.5.2 The City shall ensure that new residential development in all zones meets
applicable clear and objective design standards that maintain neighborhood compatibility
and quality while not functioning as barriers to needed housing types.
Policy 2.5.3 The City shall encourage the rehabilitation and maintenance of the existing
housing stock and that allow lawfully established residential uses made non-conforming
by updated zoning to continue, be maintained, and transition to conforming uses through
clear conversion pathways.
Policy 2.5.4 The City shall ensure that housing policies and economic development
policies are mutually supportive, recognizing that adequate workforce housing across a
range of types and price points is a prerequisite for employer recruitment and retention,
as documented in the adopted EOA.

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Section 6, Item A.

Economic Development and Employment
Overview
Statewide Planning Goal 9 requires cities to maintain an adequate supply of land for economic
activities and to conduct an Economic Opportunities Analysis reconciling employment land
supply with projected 20-year demand.
Boardman's 2026 EOA documents a significant land supply challenge. The EOA projects
approximately 2,300 new jobs by 2045, with 65% in industrial uses and 35% in commercial
uses. The Buildable Land Inventory found approximately 337 gross buildable acres in
employment zones which is sufficient for general commercial and industrial demand, but with no
sites large enough for hyperscale data centers and no general industrial sites over 20 acres.
The EOA identifies a need for approximately 810 additional gross acres, including
approximately 625 acres for data center development, that will require a UGB expansion to
provide.
The goals and policies that follow establish the City's approach to maintaining adequate
employment land supply, supporting infill and redevelopment, and ensuring that land use
designations and Development Code standards support the full range of industries the
community depends on.
Goals and Policies
Goal 2.6: Maintain an adequate supply of employment land to meet the City's 20-year
economic development needs and support a diverse and resilient local economy.
Policy 2.6.1 The City shall maintain a current inventory of buildable employment land
within the UGB, monitor supply against the 20-year employment land forecast
established in the adopted EOA, and take action to address deficiencies when
monitoring indicates that supply is insufficient to meet projected demand.
Policy 2.6.2 The City shall pursue a UGB expansion to provide the industrial and
commercial land supply identified in the adopted EOA, including sites adequate in size
and configuration to accommodate hyperscale data center development, general
manufacturing, food processing, warehousing, and other target industries.
Policy 2.6.3 The City shall protect large industrial sites brought into the UGB for their
identified industrial use and shall ensure that Comprehensive Plan designations and
Development Code standards for these sites comply with the requirements of Oregon
Statewide Planning Goal 9 and its administrative rules, including limitations on
alternative uses of large-lot industrial land.
Policy 2.6.4 The City shall coordinate capital improvement planning and the
Transportation System Plan with employment land planning to ensure that infrastructure

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Section 6, Item A.

investments prioritize the sequencing and servicing of key employment subareas and
sites.
Policy 2.6.5 The City shall work with the Port of Morrow to support development and
retention of industrial uses on employment lands within and adjacent to the UGB, and
shall ensure that land use designations, zone standards, and permitting processes
support the Port's role as a regional economic driver.
Goal 2.7: Support infill, redevelopment, and intensification of existing employment areas
to maximize the productivity of land already within the UGB.
Policy 2.7.1 The City shall encourage infill, redevelopment, and adaptive reuse of
underutilized or obsolete properties in existing commercial and industrial zones as a
complement and/or substitute for UGB expansion for employment uses.
Policy 2.7.2 The City shall identify opportunity sites within existing employment areas
that are suitable for public-private catalyst projects and shall explore financing tools such
as Tax Increment Financing, the Columbia River Enterprise Zone, and other incentive
programs to bridge feasibility gaps and support desired development outcomes.
Policy 2.7.3 The City shall maintain Oregon Prospector listings and other site marketing
materials to ensure that available employment land and buildings are accurately
represented to site selectors and prospective businesses, and shall highlight the benefits
of the Enterprise Zone and Urban Renewal districts in all relevant outreach.
Goal 2.8: Ensure that Comprehensive Plan designations, Development Code standards,
and permitting processes support the full range of commercial and industrial uses the
community depends on and position Boardman competitively for target industries.
Policy 2.8.1 The City shall ensure that Comprehensive Plan land use designations and
Development Code zoning standards permit the mix of uses anticipated in existing and
future employment areas, and shall update designations and standards when they no
longer reflect the City's economic development vision or when they present unnecessary
barriers to needed development.
Policy 2.8.2 The City shall adopt clear definitions, use permissions, and development
standards in the Development Code for data centers and data center campuses
consistent with the site characteristics and operational requirements identified in the
adopted EOA.
Policy 2.8.3 The City shall maintain clear, objective, and predictable development
regulations for industrial and commercial uses and shall review and streamline permitting
processes on a regular basis to reduce cost and time burdens on businesses and
employers.

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Policy 2.8.4 The City shall coordinate with the Port of Morrow, GEODC, Business
Oregon, the Boardman Chamber of Commerce, Morrow County, and other economic
development partners to support business retention, expansion, and recruitment, with
particular attention to the City's target industries as identified in the adopted EOA.
Goal 2.9: Support a diverse, resilient, and locally serving economy that expands access
to jobs, services, and economic opportunity for Boardman residents.
Policy 2.9.1 The City shall support the growth of locally serving commercial uses like
retail, dining, health care, and personal services by maintaining adequate commercial
land supply, encouraging development at key commercial nodes, and using the
Development Code to promote a walkable, mixed-use city center.
Policy 2.9.2 The City shall support small business development by facilitating
connections between business owners and property owners, promoting incubator and
flex space opportunities, and referring businesses to programs and partners that provide
technical assistance, micro-lending, and workforce training.
Policy 2.9.3 The City shall support connections between local employers, Boardman
public schools, Blue Mountain Community College, and state workforce training
programs to develop the skilled workforce that existing and future industries require.
Policy 2.9.4 The City shall recognize that adequate workforce housing across a range of
types and price points is a prerequisite for economic growth and employer recruitment,
and shall ensure that housing and economic development policies are mutually
supportive.

Land Use and Urbanization
Overview
Statewide Planning Goals 2 and 14 together establish Oregon's framework for growth
management. Goal 2 requires land use decisions to be grounded in a factual basis, coordinated
across jurisdictions, and implemented through consistent regulations. Goal 14 requires cities to
manage growth within Urban Growth Boundaries, demonstrate a 20-year land supply adequate
for all needs, and plan for an orderly transition from rural to urban uses.
Boardman's Comprehensive Plan was first adopted in 1976 and acknowledged by the state in
1978. The 2026 update is the first comprehensive revision in over 20 years and grounded in the
findings of updated technical analyses such as the EOA (2026), HCA (2026), among others.

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Those studies confirm that the current UGB does not contain sufficient supply to meet projected
20-year needs on either the employment or residential front, and that UGB expansion is the
most likely mechanism for closing the gap. Boardman manages its UGB in coordination with
Morrow County under a Joint Management Agreement. A significant share of land within the
UGB but outside the city limits is currently subject to county zoning that permits rural-density
development, including parcelization at densities as low as one dwelling unit per one acre.
Development at these densities is difficult to reurbanize and can foreclose the efficient extension
of urban services, undermining the City's ability to accommodate future growth at planned urban
densities. Aligning the management of urbanizable land, both within the UGB and in areas
needed for future expansion, with the City's long-term land needs is a central concern.
The goals and policies that follow establish the City's framework for maintaining a sound factual
basis for land use decisions, managing land supply and growth within the UGB, coordinating the
expansions that growth will require, and directing development toward a more compact and
connected city.
Goals and Policies
Goal 2.10: Maintain a land use planning process and policy framework grounded in
current data and community priorities, implemented through a consistent and regularly
updated Comprehensive Plan and Development Code.
Policy 2.10.1 The City shall ensure that all land use decisions are grounded in a factual
basis, including current demographic data, buildable land inventories, and the findings of
the adopted EOA, HCA, Transportation System Plan, Parks Master Plan, and other
supporting technical studies.
Policy 2.10.2 The City shall maintain consistency between this Comprehensive Plan, the
Development Code, the Comprehensive Plan Map, and the Zoning Map, and shall
update these documents in a coordinated manner to ensure that adopted policies are
reflected in implementing regulations.
Policy 2.10.3 The City shall periodically review and update this Comprehensive Plan
and its supporting technical studies to ensure they remain consistent with state
requirements, reflect current community priorities, and provide an accurate factual basis
for land use decisions.
Policy 2.10.4 The City shall plan for a city center that serves as Boardman's civic and
commercial heart and shall use the Development Code and land use designations to
support investment in this area.
Policy 2.10.5 The City shall maintain clear and objective development regulations that
provide predictability for property owners, applicants, and the public, and shall review
and update the Development Code on a regular basis to remove barriers to needed
development and ensure alignment with current Comprehensive Plan policy.

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Goal 2.11: Manage the Urban Growth Boundary to meet 20-year land needs, prioritizing
infill and logical service extension within the existing boundary before pursuing
expansion.
Policy 2.11.1 The City shall encourage orderly conversion of urbanizable lands within
the UGB in a pattern that assures the economical extension of municipal services,
prioritizing lands adjacent to existing development and infrastructure before converting
lands at the fringe of the UGB.
Policy 2.11.2 The City shall manage growth so that urban development is served by
water, sewer, transportation, and other public facilities before or concurrent with
development, and shall not approve conversion of urbanizable lands within the UGB
where the extension of services is not feasible within a reasonable timeframe.
Policy 2.11.3 The City shall avoid sprawl and leap-frog development by encouraging
infill and compact development within existing urban areas before converting
urbanizable lands within the UGB .
Policy 2.11.4 The City shall use the Comprehensive Plan Map, Zoning Map, and
Development Code to direct growth to areas where services can be efficiently extended,
where development is compatible with adjacent land uses, and where public investment
in infrastructure can be maximized.
Policy 2.11.5 The City shall maintain a current inventory of buildable land within the
UGB, monitor supply against 20-year needs as established in the adopted EOA and
HCA, and shall initiate UGB amendment proceedings when the inventory indicates that
supply is insufficient to meet projected demand.
Policy 2.11.6 The City shall encourage infill and redevelopment of underutilized land
within the UGB as the preferred means of accommodating growth before pursuing UGB
expansion for residential or commercial uses where feasible.
Policy 2.11.7 The City shall work with Morrow County to maintain and amend the Urban
Growth Boundary consistent with the Joint Management Agreement, and shall seek to
update that agreement, as opportunities allow, to reflect the findings of the adopted EOA
and HCA and the land supply needs documented in this Comprehensive Plan update.
Policy 2.11.8 The City shall coordinate with the Port of Morrow, Oregon Department of
Land Conservation and Development, Oregon Department of Transportation, and other
state and regional agencies on land use decisions and UGB planning processes that
affect areas of shared jurisdiction or regional significance.
Policy 2.11.9 The City shall maintain Comprehensive Plan Map designations for all
urbanizable land within the UGB that identify the intended urban use of each area so
land divisions, infrastructure planning, and eventual annexation are guided by the use for
which each area is ultimately planned.
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Policy 2.11.10 The City shall require, as conditions of annexation for urbanizable lands
within the UGB, that: (a) the land is contiguous with existing city limits; (b) municipal
water, sewer, and transportation facilities are available or can be extended concurrent
with development; (c) the proposed development is consistent with the Comprehensive
Plan Map designation for the area; and (d) the annexation supports the orderly and
efficient extension of urban services consistent with the sequencing priorities of this plan.
Policy 2.11.11 The City shall not extend municipal water service to urbanizable lands
within the UGB without concurrent provision of or a binding commitment to municipal
sewer service, to mitigate groundwater contamination concerns as well as partial
infrastructure investment that would entrench development patterns inconsistent with
planned urban densities.
Policy 2.11.12 The City shall seek to assume land use and land division authority and
responsibility for lands within the Urban Growth Boundary but outside the city limits in
coordination with Morrow County and through an updated Joint Management
Agreement, in order to prevent rural-density development that would foreclose planned
urban use and density.
Policy 2.11.13 The City shall designate the West Glenn neighborhood on the
Comprehensive Plan Map for commercial use with residential as an ancillary use,
recognizing the area's established commercial character and trucking-related operations,
and shall apply Development Code standards at annexation that accommodate existing
commercial uses while permitting continued residential occupancy.

Goal 2.12: Plan ahead for the Urban Growth Boundary expansions that Boardman's
projected residential and employment growth will require, including through the
designation of urban reserves, and sequence those expansions to protect resource lands
and ensure efficient provision of public services.
Policy 2.12.1 The City shall pursue a UGB expansion for employment lands consistent
with the findings of the adopted EOA, which identifies a need for approximately 810
additional gross acres that cannot be accommodated within the current boundary.
Policy 2.12.2 The City shall evaluate residential UGB expansion needs on a periodic
basis using the OHNA production target and current buildable land inventory as the
primary measures of sufficiency, and shall initiate residential UGB expansion
proceedings when the inventory of buildable residential land is insufficient to
accommodate the remaining 20-year production target.
Policy 2.12.3 In evaluating and sequencing UGB expansions for either employment or
residential uses, the City shall give preference to lands that minimize impacts to
productive agricultural lands, are contiguous with existing development, can be efficiently

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served by existing or planned infrastructure, and are consistent with the land use
designations and transition standards of this Comprehensive Plan.
Policy 2.12.4 The City shall ensure that UGB amendments are supported by an
adequate factual basis, including updated population and employment forecasts,
buildable land inventories, infrastructure capacity analysis, and findings of consistency
with Oregon Statewide Planning Goals and applicable administrative rules.
Policy 2.12.5 The City shall ensure that large industrial and employment lands brought
into the UGB through expansion are designated for their identified use and protected
consistent with the requirements of Oregon Statewide Planning Goal 9 and its
administrative rules, including limitations on alternative uses of large-lot industrial land.
Policy 2.12.6 The City shall work with Morrow County to establish urban reserves
outside the Urban Growth Boundary to identify lands suitable for orderly and efficient
transition to urban use over the long term for both employment and residential purposes.
Policy 2.12.7 The City shall pursue urban reserve designation as a means of protecting
lands needed for future urbanization from rural-density development and parcelization
that would foreclose their efficient transition to urban use, and shall coordinate with
Morrow County so that county zoning applied to designated urban reserve lands
supports, rather than undermines, future urban development.
Policy 2.12.8 In identifying and prioritizing urban reserve lands, the City shall apply the
criteria in Policy 2.12.3 and give preference to lands consistent with the employment and
residential land needs documented in the adopted EOA and HCA, including lands in
proximity to and served by the Port of Morrow.
Goal 2.13: Ensure that land use and urbanization decisions reflect the community's
vision for a more compact, connected, and livable Boardman.
Policy 2.13.1 The City shall use land use designations, zoning standards, and
infrastructure investments to promote a growth pattern that strengthens Boardman's city
center, supports walkable neighborhoods, and reduces the dispersed, disconnected
development pattern that has characterized much of the city's growth.
Policy 2.13.2 The City shall ensure that urbanizable lands designated for residential use
on the Comprehensive Plan Map are zoned at annexation to permit the density and
housing types needed to meet the OHNA production target, including middle housing
and multifamily.
Policy 2.13.3 The City shall require community engagement and planning prior to the
annexation of large land areas or significant UGB expansions to ensure that growth
decisions reflect the community's vision and are informed by current residents.

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Chapter 3: Services
A quick orientation as you review this chapter.
This covers parks and recreation (Goal 8) and public facilities (Goal 9), infrastructure, and
transportation (Goals 11 and 12).
What's new or different: Much of this chapter is new because the City now has current plans
to build on, like the first-ever Parks Master Plan (2025) and a new Transportation System Plan
(2025). Public facilities policy still rests on the 2001 Public Facilities Plan as the acknowledged
factual base, while several infrastructure updates are underway, including a Source Water
Protection Plan, Water System Master Plan, and Water Management and Conservation Plan.
The chapter treats water, sewer, stormwater, and transportation as a single coordinated system
rather than as separate utilities, and adds new policy direction requiring that water system
capacity planning be coordinated with land use and economic development decisions, so that
commitments to large industrial users do not compromise the City's ability to serve its resident
population.

Background
Boardman’s service and infrastructure needs are being reshaped by the same forces driving its
housing and employment growth: a rising resident population, a large in-commuting workforce,
and a steady stream of visitors drawn to the Columbia River and the Port of Morrow. The
systems that serve daily life in Boardman, like parks and recreation, water and sewer, streets
and sidewalks, transit and freight, were largely designed for a smaller and more static
community. Keeping pace with growth, closing service gaps, and planning the next generation of
facilities is the central challenge this chapter addresses.
The past two years have brought the most significant modernization of Boardman's service and
facility planning in more than two decades. The City and the Boardman Park & Recreation
District adopted Boardman's first-ever Parks Master Plan in 2025, and the City adopted a new
Transportation System Plan the same year, co-adopted by Morrow County in early 2026 to
apply across the Urban Growth Boundary. Building on these, several focused efforts are now
underway, including a refinement of the Main Street Interchange Area Management Plan
(IAMP), a Source Water Protection Plan funded by the Oregon Health Authority, and updates to
the City's Water System Master Plan and Water Management and Conservation Plan. Public
facilities planning otherwise remains grounded in the City's 2001 Public Facilities Plan and
earlier system plans, which this chapter carries forward while these updates are completed.
Parks and recreation
The City oversees eleven park sites totaling roughly 51 acres, less than a third of it developed,
while the Park & Recreation District manages the city's major waterfront parks, campground,

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pool, and recreation center, of which most of it is on leased land. The Parks Master Plan
documents strong assets in waterfront access, disc golf, and a splash pad, alongside clear
deficiencies: too few soccer and sports fields, limited trail mileage, undersupplied shade and
restrooms, and significant walkable-access gaps in south and northeast Boardman, where many
lower-income and family households live. The community has consistently asked for cleaner
and safer parks, culturally inclusive and bilingual features, better connections across I-84 and
the railroad, and more gathering spaces suited to Boardman's hot, windy climate.
Public facilities and infrastructure
Boardman provides municipal water, sanitary sewer, and storm drainage within its Urban Growth
Boundary, and coordinates with the Port of Morrow, special districts, and private providers for
other services. The City's drinking water is drawn from horizontal collector wells near the
Columbia River; the City is permitted to pump up to 23 million gallons per day, supplying both
the community and, by contract, Port of Morrow industries. Recent investments have
substantially strengthened this system, including a new collector well, booster pump station, and
storage reservoir that allow the City to pump its full water right. Building on that foundation, the
City is updating its Water System Master Plan and Water Management and Conservation Plan
and preparing a Source Water Protection Plan to safeguard its groundwater supply. On the
wastewater side, the City completed a major expansion of its treatment lagoon and lift stations
and is now advancing further improvements, including a collection system study, headworks and
septage-receiving upgrades, and biosolids removal, to keep pace with demand. The City
manages its stormwater system together with streets as a single drainage and right-of-way
network, and continues to invest in stormwater improvements as the city grows. Beyond these
utilities, the City provides police protection and coordinates with the Boardman Rural Fire
Protection District for fire and emergency services; here too, facilities must keep pace with
growth, and a new police station is among those being planned.
Transportation
Boardman's street network reflects its history as a small highway community now growing
rapidly on both sides of I-84. The TSP documents a system that remains relatively safe overall
but faces mounting pressure at key intersections, particularly along Main Street and near the
I-84 interchanges, as traffic from residential growth and Port activity increases. Several large
infill parcels in south Boardman have limited access, and some areas are served by unpaved or
substandard roads. Gaps in sidewalks and bike facilities limit safe walking and biking, and
crossing I-84 and the rail corridor remains a barrier between neighborhoods. The City is actively
advancing street and sidewalk improvements to begin closing these gaps, and freight, rail, and
marine systems remain essential to the local economy and require continued protection and
coordination.
Applicable Statewide Planning Goals
●​ Goal 8: Recreation Needs
●​ Goal 11: Public Facilities and Services
●​ Goal 12: Transportation

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Goals and Policies
Parks and Recreation
Overview
Statewide Planning Goal 8 requires cities to plan for the recreational needs of residents and
visitors and to provide for the siting of necessary recreational facilities. Boardman's 2025 Parks
Master Plan, prepared jointly by the City and the Boardman Park & Recreation District,
establishes the factual basis for the policies below.
A defining feature of that basis is that Boardman must serve far more people than its resident
count. Its weighted weekday service population, including in-commuting workers and temporary
lodging guests, was about 6,890 in 2024 and is projected to reach 10,450 by 2035, so demand
for parks and recreation outstrips what residential population alone would suggest. Against that
demand, the Master Plan sets a level-of-service target of 15 acres of developed parkland per
1,000 weighted service population and documents the system's principal gaps: undersupplied
sports fields, limited trail connectivity, walkable-access deficits in south and northeast
Boardman, and the need for shade, restrooms, and culturally inclusive amenities that reflect
Boardman's predominantly Latino, family-oriented community.
The goals and policies that follow adopt the vision and goal framework of the Parks Master Plan
and commit the City to an inclusive, accessible, and well-connected park system that keeps
pace with growth.
Goals and Policies
Goal 3.1: Create an inclusive and accessible park system that ensures all residents,
regardless of age, ability, background, or income, have access to safe, well-maintained
parks and recreational opportunities.
Policy 3.1.1 The City shall implement the Boardman Parks Master Plan as the guiding
framework for park acquisition, development, and improvement, and shall maintain a
level-of-service target of at least 15 acres of developed parkland per 1,000 weighted
service population.
Policy 3.1.2 The City shall prioritize closing walkable park-access gaps in underserved
areas, particularly south and northeast Boardman, with the goal that all residents live
within a 10-minute walk of a developed park.
Policy 3.1.3 The City shall ensure that parks and recreational facilities meet applicable
accessibility standards, including ADA-compliant routes, restrooms, play areas, and
water access, and shall incorporate universal and inclusive design in new and upgraded
facilities.

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Policy 3.1.4 The City shall provide culturally inclusive park features, including bilingual
signage and wayfinding, and shall engage Boardman's Hispanic and Latino community
and other underrepresented groups in the design of parks and recreation programs.
Goal 3.2: Enhance recreation and active lifestyles by expanding diverse, year-round
recreational opportunities that support physical activity, wellness, and enjoyment for all
ages.
Policy 3.2.1 The City shall work to address documented facility deficiencies identified in
the Parks Master Plan, including soccer and diamond fields, sport courts, a skatepark,
inclusive and toddler play areas, and expanded trail mileage.
Policy 3.2.2 The City shall expand and connect Boardman's trail network toward the
Master Plan target of 4 to 10 miles, creating looped connections between
neighborhoods, schools, civic spaces, and the Columbia River waterfront.
Policy 3.2.3 The City shall coordinate with the Boardman Park & Recreation District to
support year-round indoor and outdoor recreation, including waterfront access, camping
capacity, and recreation center facilities that serve residents, workers, and visitors.
Policy 3.2.4 The City shall provide shade, tree canopy, drinking water, and
climate-adaptive design in parks and public spaces to ensure comfort and usability in
Boardman's hot, windy climate.
Goal 3.3: Strengthen community engagement and partnerships by building strong
relationships with residents, organizations, and businesses to support parks and
recreation.
Policy 3.3.1 The City shall maintain and strengthen its partnership with the Boardman
Park & Recreation District to coordinate planning, investment, and management across
the two providers' complementary systems.
Policy 3.3.2 The City shall pursue partnerships with the Port of Morrow, the school
district, employers, and community organizations to expand recreational access, shared
use of facilities, and cultural and interpretive programming.
Goal 3.4: Support economic growth, tourism, and workforce development by leveraging
parks to strengthen Boardman's economy, attract visitors, and create opportunity.
Policy 3.4.1 The City shall support the role of Boardman's waterfront parks,
campground, and trails as regional recreation destinations that attract visitors and
support local businesses, and shall coordinate recreation planning with economic
development and tourism efforts.

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Policy 3.4.2 The City shall recognize the recreational needs of Boardman's large
in-commuting and temporary workforce, including after-hours access, lighting, and
flexible facilities that serve workers seeking nearby activities after long shifts.
Goal 3.5: Improve park infrastructure, safety, and connectivity by investing in
well-maintained, safe, and connected parks.
Policy 3.5.1 The City shall improve safe access to parks through sidewalk infill, lighting,
improved crossings of I-84, the railroad, and truck corridors, and multilingual wayfinding
that links parks, schools, neighborhoods, and the waterfront.
Policy 3.5.2 The City shall maintain parks to consistent safety, ADA, and design
standards, and shall implement proactive maintenance practices that keep facilities
clean, safe, and reliable as the system grows.
Goal 3.6: Ensure fiscal responsibility and long-term sustainability by securing diverse
funding sources and prioritizing cost-effective investments.
Policy 3.6.1 The City shall establish a Parks System Development Charge so that new
development contributes its proportionate share of the cost of park facilities needed to
serve growth, supported by a methodology study.
Policy 3.6.2 The City shall modernize parkland and trail dedication standards so that
new development dedicates usable, well-located parkland and trail corridors, prioritizing
land dedication with fee-in-lieu used only where sites are unsuitable, and shall establish
a Parkland and Trail Acquisition Fund to assemble larger, more functional sites.
Policy 3.6.3 The City shall pursue grants, partnerships, and other diverse funding
sources to develop and maintain the park system, and shall phase improvements
through a Capital Improvement Plan that prioritizes projects by community benefit,
equity, safety, and readiness.
Goal 3.7: Preserve Boardman's history, culture, and community identity by integrating
historical, cultural, and community elements into parks and programming.
Policy 3.7.1 The City shall protect existing and future parkland for permanent public use
through formal dedication, recreation easements, deed restrictions, and Parks and Open
Space zoning.
Policy 3.7.2 The City shall integrate public art, cultural interpretation, and storytelling
into parks, including Indigenous and Old Boardman history, to celebrate the community's
heritage, diversity, and identity.

Public Facilities, Infrastructure, and Transportation
Overview
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Statewide Planning Goal 11 requires a timely, orderly, and efficient arrangement of public
facilities and services as a framework for development, and Goal 12 requires a safe,
convenient, and economic transportation system. In practice the two are inseparable: water,
sewer, stormwater, and streets form a single interdependent system whose location, timing, and
capacity together determine where and how the city grows. This section treats them as one
framework rather than as separate utilities.
The factual basis spans documents of different vintages. Transportation policy is grounded in
the 2025 Transportation System Plan, adopted as a technical element of this Comprehensive
Plan and carried forward here through its six goals (Safety, Mobility, Accessibility and
Connectivity, Community Focused, Sustainability, and Strategic Investment). Public facilities
policy remains grounded in the City's 2001 Public Facilities Plan, with the Source Water
Protection Plan, the Water System Master Plan and Water Management and Conservation Plan
updates, wastewater improvements, and the Main Street IAMP Refinement now updating
portions of that foundation.
The goals and policies that follow take a systems approach: they coordinate infrastructure and
transportation investment around a shared growth framework, steward existing assets, advance
safety and connectivity for all users and modes, serve the whole community equitably, protect
natural and cultural resources, and fund the system responsibly over time.
Goals and Policies
Goal 3.8: Plan, extend, and time public facilities and the transportation system together
as one coordinated framework that guides where and how Boardman grows.
Policy 3.8.1 The City shall assure the orderly provision of urban services to lands within
the Urban Growth Boundary as they urbanize, requiring that urban development be
served by full urban services provided before or concurrent with development.
Policy 3.8.2 The City shall prioritize development on land already served by utilities and
the street network, discourage inefficient or premature development that cannot be
adequately served, and promote efficient use of urban and urbanizable land within the
UGB.
Policy 3.8.3 The City shall coordinate the timing and sequencing of water, sewer,
stormwater, and street extensions with one another and with the conversion of
urbanizable land within the UGB, so that investments in one system reinforce rather than
outpace the others.
Policy 3.8.4 The City shall ensure that land use decisions account for their impacts on
existing and planned public facilities and transportation facilities, consistent with the
Transportation Planning Rule, and shall protect the function of facilities identified in the
TSP and the Public Facilities Plan.

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Policy 3.8.5 The City shall coordinate the provision of public services and transportation
improvements with annexation, and shall maintain and periodically update long-range
master plans for its water, sewer, storm drainage, and transportation systems to keep
them consistent with current growth.
Policy 3.8.6 The City shall maintain an adequate supply of commercial and industrial
land that is serviceable by water, sewer, storm drainage, and transportation
infrastructure, consistent with state law and the findings of the adopted Economic
Opportunities Analysis.
Goal 3.9: Preserve, maintain, and make the most of Boardman's existing infrastructure
and transportation assets before building new ones.
Policy 3.9.1 The City shall preserve and maintain its existing water, sewer, stormwater,
and transportation assets as a first-priority investment, monitoring their condition and
financing regular, proactive maintenance rather than deferring repairs until failure.
Policy 3.9.2 The City shall identify capacity constraints across the transportation system
and develop projects and strategies to address them, such as intersection improvements
and alternative multimodal connections, prioritizing solutions that make fuller use of
existing facilities.
Policy 3.9.3 The City shall complete and implement the Main Street Interchange Area
Management Plan Refinement in coordination with ODOT to protect the long-term safety
and function of the Main Street and I-84 interchange as traffic from residential growth
and Port activity increases.
Policy 3.9.4 The City shall adopt and maintain utility and transportation design
standards and construction specifications to allow for safe, orderly, and coordinated
development, and shall comply with applicable state and federal regulations for utility
and transportation systems.
Goal 3.10: Improve the safety, connectivity, and completeness of the multimodal
transportation network for users of all ages, abilities, and modes.
Policy 3.10.1 The City shall address known safety issues at locations with a history of
fatal or severe-injury crashes, and shall identify and prioritize transportation
improvements that provide safe access for all users regardless of age, ability, or mode of
transportation.
Policy 3.10.2 The City shall manage vehicular access to key transportation corridors
consistent with engineering standards and access management principles, while
maintaining reasonable access to adjacent land uses.
Policy 3.10.3 The City shall require a well-connected street network as development
occurs, including the extension and improvement of local streets to City standards, to

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support efficient urban development and travel between parts of the community, with
particular attention to large infill parcels in south Boardman that currently have limited
access and to areas served by unpaved or substandard roads.
Policy 3.10.4 The City shall provide new multimodal connections to and from
Boardman's neighborhoods, schools, parks, transit stops, employment centers, and
other key destinations, and shall address existing walking, biking, and rolling gaps in the
network.
Policy 3.10.5 The City shall include bikeways and sidewalks on all new arterials and
collectors within the UGB except limited-access freeways, retrofit existing streets on a
prioritized schedule, and give maintenance of bikeways and pedestrian facilities equal
priority to motor vehicle facilities, consistent with state design guidelines.
Policy 3.10.6 The City shall increase multimodal connectivity across I-84 and the rail
corridor to reduce the barriers these facilities create between the north and south sides
of the community.
Policy 3.10.7 The City shall support local and regional transit services through
coordination with Morrow County, The Loop, and other providers, including the
advancement of transit stop amenities and service hubs.
Goal 3.11: Provide facilities and a transportation system that serve the whole community
equitably, with particular attention to underserved and vulnerable populations.
Policy 3.11.1 The City shall ensure that the transportation system provides multimodal
access for underserved and vulnerable populations, including lower-income
neighborhoods and transportation-disadvantaged residents, to schools, parks,
employment centers, commercial centers, health and social services, and other essential
destinations.
Policy 3.11.2 The City shall plan and locate public facilities and services to support a
livable, fully connected community, and shall strengthen economic opportunities through
the development of new transportation and infrastructure investments.
Policy 3.11.3 The City shall promote coordination among the City, the Port of Morrow,
special districts, and other partners to make the most effective use of public facilities
serving the planning area, and shall continue to work with the Boardman Rural Fire
Protection District in its provision of fire protection services.
Policy 3.11.4 The City shall plan for police facilities and services that keep pace with
growth, and shall coordinate with the Boardman Rural Fire Protection District and other
partners to maintain adequate public safety services as the community expands
Goal 3.12: Protect Boardman's water supply, natural and cultural resources, and
environmental quality as the system grows.

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Policy 3.12.1 The City shall protect and enhance the quality and quantity of its drinking
water supply by establishing wellhead protection measures, working with landowners
and managers to protect water sources, implementing its Source Water Protection Plan,
and adhering to applicable permitting requirements for new development and
infrastructure.
Policy 3.12.2 The City shall plan for and establish standards for storm drainage
detention and management as an environmental service, encouraging natural
stormwater management techniques such as bio-swales, landscaping, retention ponds,
and natural drainage ways where feasible, and shall minimize adverse impacts from
construction-related erosion and sedimentation.
Policy 3.12.3 The City shall assure adequate provision for solid waste collection and
disposal for the City and Urban Growth Boundary, whether provided by private
contractors or public entities.
Policy 3.12.4 The City shall consider alternative transportation facility designs in
constrained areas to avoid or minimize impacts to natural and cultural resources.
Policy 3.12.5 The City shall coordinate water system capacity planning with land use
and economic development decisions, ensuring that projected demands from residential
growth and large industrial users are evaluated together and that the City's ability to
serve its resident population is not compromised by commitments to industrial water
supply.
Goal 3.13: Fund and invest in public facilities and the transportation system strategically
and sustainably, so that growth pays its fair share and the system remains affordable
over time.
Policy 3.13.1 The City shall fund and maintain its water, sewer, stormwater, and
transportation systems through a stable, diverse mix of System Development Charges,
utility rates, and user fees that equitably allocate costs to users, and shall prioritize
investments through the Capital Improvement Plan.
Policy 3.13.2 The City shall require new development to contribute its proportionate
share of the cost of the facilities and transportation improvements needed to serve it,
and shall keep its System Development Charges current with actual costs.
Policy 3.13.3 The City shall pursue grants and collaborate with partnering agencies,
including but not limited to ODOT, Morrow County, the Port of Morrow, and the Oregon
Health Authority, to creatively fund infrastructure and transportation improvements and
supporting programs.

9

46

Section 6, Item A.

Chapter 4: Nature
A quick orientation as you review this chapter.
This chapter covers natural resources (Goal 5), environmental quality (Goal 6), natural hazards
(Goal 7), and energy conservation (Goal 13), organized in two halves: resource protection and
climate/hazard resilience.
What's new or different: This chapter's factual picture changed the most since the current
plan. The existing plan concluded Boardman faced no significant natural hazards; drawing on
the County's 2024 Natural Hazards Mitigation Plan, this chapter recognizes drought, wildfire,
extreme heat, and windstorm as real and growing risks, with extreme heat singled out as most
relevant to daily life. It brings energy and the region's data-center concentration in as a resource
question, encourages large energy users to participate in applicable large-load tariff programs,
and aligns cultural-resource protection with new state rules on tribal coordination. Because this
update is a post-acknowledgment plan amendment, the chapter carries forward the City's
existing Goal 5 resource protections rather than reopening them (the factual basis will be
documented in an appendix).

Background
Boardman's identity is inseparable from the Columbia River. The river supplies the city's drinking
water, anchors its parks and waterfront, carries the freight that drives its economy, and shapes
the natural systems that make the community livable. It is also a reminder of how much the land
can change: the original townsite now lies beneath Lake Umatilla, relocated to higher ground in
the 1960s when the John Day Dam was built. That history continues to shape Boardman's
cultural identity and its relationship to the land and water around it.
The land around Boardman is working land. Irrigated agriculture, the industries of the Port of
Morrow, and a growing role as a center for energy generation and data centers all draw on the
same natural systems the community depends on, such as its water, its airshed, and the open,
windswept landscape of the Columbia Plateau. As Boardman grows, the central challenge this
chapter addresses is sustaining those resources while the demands placed on them increase.
That challenge is sharpened by a changing climate. Boardman's arid, windy setting has always
meant hot summers, blowing dust, and a dependence on the river and groundwater, but those
conditions are intensifying. Hotter and more frequent extreme-heat events, persistent drought,
and wildfire in the surrounding landscape are emerging as the community's most significant
natural hazards. This is a marked shift from earlier decades, when river flooding had been
largely controlled and few other hazards were recognized. Protecting natural resources and
building resilience to these hazards are two sides of the same effort to keep Boardman healthy,
safe, and prepared for the future.

1

47

Section 6, Item A.

This chapter is organized into two sections. The first, Natural Resources and Environment,
addresses the protection of Boardman's natural resources and the quality of its air, water, and
land. The second, Climate Change and Natural Hazards, addresses the community's resilience
to natural hazards and its commitment to conserving energy.

Applicable Statewide Planning Goals
●​ Goal 5: Natural Resources, Scenic and Historic Areas, and Open Spaces
●​ Goal 6: Air, Water, and Land Resources Quality
●​ Goal 7: Areas Subject to Natural Hazards
●​ Goal 13: Energy Conservation

Goals and Policies
Natural Resources and Environment
Overview
Statewide Planning Goal 5 requires cities to inventory significant natural resources and adopt
programs to protect them, and Goal 6 requires the maintenance and improvement of air, water,
and land quality. In Boardman, these resources center on the Columbia River and its corridor:
riparian areas, wetlands, fish and wildlife habitat, the groundwater that supplies the city's
drinking water, aggregate resources, open space, and cultural areas.
Two developments since the last plan are reflected here. The State adopted new Goal 5 rules
addressing cultural areas (OAR 660-023-0210) that strengthen coordination with tribes around
archaeological and culturally significant sites. And the City's responsibilities under Goal 6,
together with the Clean Water Act, call for continued attention to the water quality of the
Columbia River, including protection of streamside vegetation and bank conditions. The goals
and policies that follow retain the City's acknowledged Goal 5 resource inventory and
protections (factual basis documented in Appendix 4-A), strengthen its support for fish and
wildlife habitat and water quality, and align its cultural resource protections with current state
law.
Goals and Policies
Goal 4.1: Protect, maintain, and where appropriate enhance Boardman's significant
natural resources, including the Columbia River corridor, riparian areas, wetlands, fish
and wildlife habitat, groundwater, aggregate resources, and open space.
Policy 4.1.1 The City shall continue to protect the Goal 5 resources inventoried in
Appendix 4-A through ongoing identification and development review consistent with
applicable regulations.

2

48

Section 6, Item A.

Policy 4.1.2 The City shall protect riparian corridors along the Columbia River and any
other fish-bearing waters, using the safe harbor methodology as the basis for identifying
corridor boundaries.
Policy 4.1.3 The City shall protect fish and wildlife habitat along the Columbia River,
recognizing the value of riparian areas for shade, bank stability, and water quality, and
shall draw on the Oregon Conservation Strategy, the Oregon Statewide Wildlife Action
Plan, and technical assistance from the Oregon Department of Fish and Wildlife.
Policy 4.1.4 The City shall protect significant wetlands and, as resources permit,
complete and adopt a Local Wetlands Inventory. In the interim, the City shall rely on the
National Wetlands Inventory and the State's wetland notification process.
Policy 4.1.5 The City shall protect the quality and quantity of its groundwater and
drinking-water supply, including wellhead protection and implementation of its Source
Water Protection Plan, coordinating with developers and the State.
Policy 4.1.6 The City shall coordinate with Morrow County and the Port of Morrow to
address aggregate resources if future UGB expansion encompasses areas with
identified deposits..
Policy 4.1.7 The City shall work with Morrow County, the Port of Morrow, Boardman
Park and Recreation District, the Bonneville Power Administration, and the U.S. Army
Corps of Engineers to preserve and support the Columbia River Heritage Trail.
Policy 4.1.8 The City shall protect and enhance significant open space, including the
Columbia River waterfront, in coordination with the U.S. Army Corps of Engineers, the
Boardman Park & Recreation District, the Port of Morrow, and other partners.
Goal 4.2: Honor and protect Boardman's cultural areas and archaeological resources in
coordination with the Confederated Tribes of the Umatilla Indian Reservation and other
tribes with ancestral connections to the area.
Policy 4.2.1 The City shall continue to work with the CTUIR Cultural Resources
Protection Program, and with other tribes identified by the State, to identify and protect
cultural areas and archaeological sites.
Policy 4.2.2 The City shall notify tribes when a proposed development could affect a
known or suspected archaeological site or culturally significant landscape feature, and
when considering an Urban Growth Boundary expansion, and shall use tribal responses
to inform recommendations to applicants.
Policy 4.2.3 The City shall include information about applicable state archaeological
laws and permit requirements, including coordination with the State Historic Preservation
Office (SHPO), on its development permit applications, and shall maintain a review
procedure for development that may disturb archaeological sites.

3

49

Section 6, Item A.

Goal 4.3: Maintain and improve the quality of Boardman's air, water, and land resources
as the community grows.
Policy 4.3.1 The City shall require development to comply with applicable city, county,
state, and federal environmental standards, including air quality regulations administered
by the Oregon Department of Environmental Quality (DEQ).
Policy 4.3.2 The City shall support the water quality of the Columbia River, including any
applicable load allocations assigned by the Oregon Department of Environmental Quality
(DEQ), through the protection and restoration of streamside vegetation and bank
conditions, stormwater management, and erosion control during development.
Policy 4.3.3 The City shall manage stormwater as an environmental service,
encouraging natural stormwater management techniques and minimizing water quality
impacts from development.
Policy 4.3.4 The City shall preserve and wisely manage its natural and built
environments, and shall encourage development techniques that protect air, water, and
land quality and reduce dust and erosion.

Climate Change and Natural Hazards
Overview
Statewide Planning Goal 7 requires cities to protect people and property from natural hazards,
and Goal 13 requires that land use and development conserve energy. Boardman addresses
them together because the same arid, windy climate that drives the community's hazards also
shapes how it uses energy, and because the region's role as a center of energy generation and
consumption makes conservation a natural companion to resilience.
The City's understanding of its hazard exposure has changed significantly since the last plan,
which concluded that Boardman faced no significant natural hazards. Through the 2024 Morrow
County Multi-Jurisdictional Natural Hazards Mitigation Plan (NHMP), prepared with the County,
its cities, and state and federal partners, the City now has a current, climate-informed picture of
the risks it faces, including drought, wildfire, windstorm, extreme heat, and, to a lesser degree,
flood and other hazards. Extreme heat stands out as the hazard most directly relevant to daily
life and growth in Boardman, falling hardest on older adults, outdoor workers, and residents
without air conditioning.
Energy conservation is addressed in this chapter as a complement to hazard resilience.
Boardman sits within a regional hub of energy generation and large energy users, and the
choices the City makes about how it grows, including how compactly it develops, how people
travel, and how efficiently its buildings and public facilities operate, all influence how much
4

50

Section 6, Item A.

energy the community consumes. The goals and policies that follow commit the City to reducing
hazard risk and conserving energy as it grows.
Goals and Policies
Goal 4.4: Protect people and property from natural hazards by aligning the City's
planning and development with the adopted Morrow County Multi-Jurisdictional Natural
Hazards Mitigation Plan.**
Policy 4.4.1 The City shall maintain the Morrow County Multi-Jurisdictional Natural
Hazards Mitigation Plan (NHMP) as the City's natural hazards mitigation strategy,
implement the mitigation actions identified in that plan for the City of Boardman, and
participate in future updates of the plan.
Policy 4.4.2 The City shall consider natural hazard risk, including flood, wildfire, extreme
heat, windstorm, and drought, in its land use decisions and in the location and design of
public facilities, and shall consider measures to avoid or mitigate undue risk to people
and property.
Policy 4.4.3 The City shall maintain its participation in the National Flood Insurance
Program (NFIP) and apply its floodplain regulations to development in mapped flood
hazard areas, recognizing that while regulation of the Columbia River has reduced flood
risk, localized flood hazards remain.
Policy 4.4.4 The City shall coordinate with Morrow County, the Boardman Rural Fire
Protection District, the Oregon Department of Forestry, and other partners to reduce
wildfire risk in and around the community, including vegetation management in parks,
trails, and the wildland-urban interface.
Policy 4.4.5 The City shall reduce the community's exposure to extreme heat by
incorporating shade, tree canopy, cooling features, and heat-resilient design into parks,
public spaces, and development, with particular attention to older adults, outdoor
workers, and other residents most vulnerable to heat.
Policy 4.4.6 The City shall manage wind-blown dust and erosion by encouraging the
stabilization and revegetation of disturbed and undeveloped land and by applying
appropriate erosion and sediment control standards to development.
Policy 4.4.7 The City shall provide hazard information and emergency preparedness
outreach in English and shall seek to make such materials accessible in Spanish,
recognizing the needs of Boardman's predominantly Latino, family-oriented community
and other vulnerable populations.
Goal 4.5: Conserve energy and resources, and ensure that large energy- and
water-intensive development supports, rather than strains, the community's long-term
5

51

Section 6, Item A.

resilience.
Policy 4.5.1 The City shall promote compact, walkable development patterns that locate
higher-density housing near schools, parks, shopping, and transit, reducing energy
consumed in travel.
Policy 4.5.2 The City shall support alternatives to automobile travel, including the
bikeways, sidewalks, and multimodal connections identified in the Transportation System
Plan, as a means of conserving energy.
Policy 4.5.3 The City shall encourage energy-efficient building design, site planning, and
development practices, and shall support the use of renewable energy, including solar,
where appropriate.
Policy 4.5.4 The City shall support energy and water efficiency in its own facilities and
operations, including its water and wastewater systems, and shall consider energy and
operating cost in the design of public infrastructure.
Policy 4.5.5 The City recognizes that the Boardman area has become a regional center
for data centers and other large energy- and water-intensive industrial uses, and that this
growth brings both economic opportunity and new pressure on the community's water
supply, energy infrastructure, and natural resources. The City shall plan for these uses
deliberately, so that they strengthen rather than strain the community's long-term
resilience.
Policy 4.5.6 The City shall coordinate with the Port of Morrow, Morrow County, utility
providers, and the State to understand and plan for the individual and cumulative water
and energy demands of large industrial users within and adjacent to the UGB, and to
ensure that the City's own drinking-water supply, groundwater resources, and residents'
utility service are protected as a first priority.
Policy 4.5.7 The City shall evaluate clear and objective siting and development
standards for data centers and other high-intensity water and energy users, which may
address water-efficient cooling, on-site or contracted renewable energy, stormwater and
waste heat management, noise, backup-generator emissions, and buffering from
residential areas.
Policy 4.5.8 The City shall encourage large energy users to meet their demand with new
clean energy resources, to participate in applicable large-load tariff programs established
under state law, and to contribute to the resilience of the regional energy and water
systems they rely on, so that the costs of growth are not shifted onto Boardman's
households and existing businesses.

6

52

Whitco

d Rd

Section 6, Item A.

G

ar

Sw

Future Land Use Map - DRAFT - July 15 2026

an
so

n

R
d

Gar Swanson Rd
L o o p Dr

um

bi

a

Bl

vd

O

s

r
ca

Pe

t

s
er

on

D

r

Co

l

Rai
l

Lewis & Clark Dr
M ari

ne

E
Dr N

Utility Ln

Utility Ln

Olson Rd

305 ft
Boardman Park

m
Colu

bia

Bl

380 ft

Paul

vd

Sm i t h Rd

Ju
ni

Boardman

pe
Bo

an

84

yo

Laurel Ln

n

l Rd
r
B oa d m a n C a n a

Rippee Rd

Root Ln

Rippee Rd

D o w n e y Rd

Eastregaard Rd

Paul Smith Rd

Industrial Center
Parks and Public Facilities

Miller Rd

City Limits

427 ft

We s t

Ext Ir

ri g a t i o n Ca

ardm

an C

Urban Growth Boundary

d
385 ft

Ro m e S

t

N
Ro

nal

M

ill

e r Rd

457 ft
m

t
eS

0

Juniper Canyon

Canal Ln

Bo

tage Rd

Employment Center

Olive Ln

373 ft

on

Civic Center Wilson Rd SE

Wilson Ln SE

Kunze Ln

lR
a na

Fr

Village Character

Wi ls on L n SE

Wil so n R d S W

S Main St

Neighborhood Character

Miller Rd

Olson Rd SE

Quail Ln

Rome St

Kunze Ln

730

Olson Rd SE

W i l s on R d SW

SE Anderson Rd

Rd
ade
inc

Tatone St

K

SW Faler Rd

Wilson Ln

S M a in S t

Skoubo Ln

Paul Smith Rd

84

4,000 ft

Bombing Range Rd

NE

rC

Front St

Peters Rd

sl a n d R d

C o l u m b i a Av e

53

ar

Whitco

d Rd

Section 6, Item A.

G

ar

Sw

Proposed Zoning Map - DRAFT - July 15 2026

an
so

n

R
d

Gar Swanson Rd
L o o p Dr

um

bi

a

Bl

vd

O

s

r
ca

Pe

t

s
er

on

D

r

Co

l

Rai
l

Lewis & Clark Dr

ne

E
Dr N

Utility Ln

Utility Ln

Olson Rd

305 ft
Boardman Park

m
Colu

bia

Bl

Neighborhood Residential 380 ft
Paul

vd

Sm i t h Rd

Compact Residential

Ju

Village Residential

ni

Boardman

pe

NE

rC

84

an

Front St

yo

Regional Commercial

l Rd
r
B oa d m a n C a n a

n

Rippee Rd

Laurel Ln

We s t

Ext Ir

ri g a t i o n Ca

Root Ln

County Zoning
Miller Rd

ardm

an C

W i l s on R d SE

City Limits

427 ft

Urban Growth Boundary

d
385 ft

Ro m e S

t

N
Ro

nal

M

ill

e r Rd

457 ft
m

t
eS

0

Juniper Canyon

Canal Ln

Bo

tage Rd

Public Facilities

Olive Ln

373 ft

on

Parks

Rippee Rd

D o w n e y Rd

Eastregaard Rd

Paul Smith Rd

S Main St

Industrial

Wilson Ln SE

Kunze Ln

lR
a na

Fr

Employment

Wi ls on L n SE

Wil so n R d S W

730

Downtown Mixed-Use

Miller Rd

Olson Rd SE

Quail Ln

Rome St

Kunze Ln

Community Commercial

Olson Rd SE

W i l s on R d SW

SE Anderson Rd

Rd
ade
inc

Tatone St

K

SW Faler Rd

Wilson Ln

S M a in S t

Skoubo Ln

Paul Smith Rd

84

Bo

4,000 ft

Bombing Range Rd

M ari

Peters Rd

sl a n d R d

C o l u m b i a Av e

54

ar

Section 6, Item A.

PERMITTED USES — PROPOSED ZONING (REVISED DRAFT) — City of Boardman
Legend

P

Permitted Outright

CU

RESIDENTIAL ZONES

X

Conditional Use

COMMERCIAL ZONES

Not Permitted

INDUSTRIAL ZONES

PUBLIC ZONES

NR

CR

VR

CC

RC

DMU

IND

EMP

POS

PF

Neighborhood
Residential

Compact
Residential

Village
Residential

Community
Commercial

Regional
Commercial

Downtown
Mixed-Use

Industrial

Employment

Parks and
Open Space

Public Facilities

Single Unit Dwelling (Detached)

P

P

P

X

X

X

X

X

X

X

Duplex

P

P

P

X

X

X

X

X

X

Triplex

P

P

P

X

X

X

X

X

X

X

Quadplex

P

P

P

P

P

P

X

X

X

X

Cottage Cluster

P

P

P

X

X

X

X

X

X

X

Townhouse (Single-Family Attached)

P(1)

P

P

P

P

P

X

X

X

X

Multi-Unit Dwelling (5+ Units)

X

P

P

P

P

P

X

X

X

X

Accessory Dwelling Unit (ADU)

P

P

P

X

X

X

X

X

X

X

Manufactured Home (Individual Lot)

P

P

P

X

X

X

X

X

X

X

Manufactured Home Park

P

P

P

X

X

X

X

X

X

X

Use
RESIDENTIAL USES

X

Recreational Vehicle Park

X

X

CU

X

P

X

X

X

X

X

Bed and Breakfast Inn

CU

CU

CU

X

X

X

X

X

X

X

Vacation Rental

CU

CU

CU

X

X

X

X

X

X

X

Single Room Occupancy

P

P

P

P

P

P

X

X

X

X

Residential Home

P

P

P

X

X

X

X

X

X

X

Residential Facility

X

X

P

P

P

P

X

X

X

X

Family Child Care Home (≤16 Children)

P

P

P

P

P

P

X

X

X

X

Home Occupations

P

P

P

CU

CU

CU

X

X

X

X

Residential Caretaker Unit

X

X

X

X

P(2)

X

P(2)

X

X

X

Mixed-Use Building / Development (Residential + Permitted Commercial)

X

X

P

P

P

P

X

X

X

X

Retail Trade and Services

X

X

P(3)

P

P

P

P(4)

P

X

X

Personal and Professional Services

X

X

P

P

P

P

X

P

X

X

Eating and Drinking Establishments

X

X

P

P

P

P

P(5)

P

X

X

Laundromats and Dry Cleaners

X

X

X

P

P

P

X

X

X

X

Vehicle Repair

X

X

X

X

P(6)

X

X

P

X

X

Quick Vehicle Servicing

X

X

X

P

P

X

P

P

X

X

Entertainment / Amusement (Theaters, Clubs)

X

X

X

P

P

P

X

X

X

X

Business / Professional Offices

X

X

P

P

P

P

P(5)

P

X

X

Hotel / Motel

X

X

X

P

P

P

X

X

X

X

Mobile Food Unit / Vendor Station

X

X

X

X

X

X

X

X

X

X

Auto Sales

X

X

X

X

P

X

X

X

X

X

Drive-Through Facilities

X

X

X

P

P

X

P

P

X

X

Vehicle Sales / Storage / Parking Lot

X

X

X

X

P

X

X

P

X

X

Medical and Dental Offices, Clinics, Laboratories

X

X

X

P

X

P

X

P(7)

X

X

Hospitals

X

X

X

X

X

P

X

X

X

X

Child Care Center (>16 Children)

X

X

P

P

P

P

X

P

X

P

Kennel / Animal Hospital

X

X

X

X

P

X

X

X

P

X

Vineyard / Garden Center / Nursery (with Retail/Wholesale)

X

X

X

X

P

X

X

X

P

X

Agriculturally-Oriented Commercial Use

X

X

X

X

P

X

X

X

X

X

Outdoor Storage/Sales

X

X

X

X

P

X

X

P

P

X

Medical Marijuana Dispensary / Grow Facility

X

X

X

X

CU

X

X

X

X

X

Heavy Truck Servicing and Repair

X

X

X

X

P

X

P

P

X

X

Wholesale Sales

X

X

X

X

P

X

P

P

X

X

Heavy Manufacturing / Assembly / Processing of Raw Materials

X

X

X

X

X

X

P

X

X

X

Light Manufacturing

X

X

X

X

P

X

P

P

X

X

Warehousing and Distribution

X

X

X

X

P

X

P

P

X

X

Research Facilities

X

X

X

X

X

X

P

P

X

X

Mini-Warehouse / Self-Storage

X

X

X

X

X

X

X

P

X

X

Junk Yard / Motor Vehicle Wrecking Yard

X

X

X

X

X

X

P

X

X

X

Manufacturing and Production

X

X

X

X

X

X

P

X

X

P

Ship Building and Repair

X

X

X

X

X

X

P

X

X

X

COMMERCIAL USES

INDUSTRIAL USES

55

Section 6, Item A.

PERMITTED USES — PROPOSED ZONING (REVISED DRAFT) — City of Boardman
Legend

P

Permitted Outright

CU

RESIDENTIAL ZONES

X

Conditional Use

COMMERCIAL ZONES

Not Permitted

INDUSTRIAL ZONES

PUBLIC ZONES

NR

CR

VR

CC

RC

DMU

IND

EMP

POS

PF

Neighborhood
Residential

Compact
Residential

Village
Residential

Community
Commercial

Regional
Commercial

Downtown
Mixed-Use

Industrial

Employment

Parks and
Open Space

Public Facilities

Cemeteries

X

X

X

X

X

X

X

X

X

X

Churches and Places of Worship

P

P

P

P

P

P

X

X

X

X

Clubs, Lodges, and Similar Uses

P(8)

P(8)

P(8)

P

P

P

X

X

X

X

Government Offices and Facilities

CU

CU

CU

P

P

P

P(9)

P

X

X

Libraries, Museums, Community Centers, Concert Halls

CU

CU

P(10)

X

X

P

X

X

P

X

Public Parking Lots and Garages

X

X

X

P(10)

P(10)

X

X

X

P(10)

P(10)

P(10)

P(10)

P(10)

P(10)

Use
PUBLIC AND INSTITUTIONAL USES

Basic Utilities

P(10)

P(10)

P

P

P

P

P

P

P

P

P

P

Public Parks and Recreational Facilities

P(10)

P(10)

P(10)

P(10)

P(10)

P

P(10)

P(10)

P(10)

P(10)

Schools (Public and Private)

CU

CU

CU

CU

CU

CU

CU

CU

X

X

Vocational Schools Co-Located with Parent Industry

X

X

X

X

P

X

P

P

X

X

Water Supply / Treatment Facility

X

X

X

X

CU

X

P

X

X

P

P(11)

P(11)

P(11)

P(11)

P(11)

P(11)

P(11)

P(11)

P(11)

P(11)

P

P

P

P

P

P

P

P

P

P

Telecommunications Equipment

Transportation Facilities and Improvements

P

P

P

P

ACCESSORY USES

Accessory Uses and Structures

FOOTNOTES
(1) Only up to 4 attached units shall be permitted.
(2) One caretaker unit shall be permitted for each development, per §2.2.200.D.
(3) Limited to neighborhood-serving retail uses.
(4) Small scale retail and service commercial uses up to 10% of building in total floor area, for general use of industrial use employees and customers, e.g., restaurants, hair salons, banks, dry cleaners, book stores, coffee retailers.
(5) Offices and other commercial uses that are integral to a primary industrial use (e.g., administrative offices, and wholesale of goods produced on location).
(6) Shall not include repair and service of industrial vehicles and equipment; heavy trucks; towing or vehicle storage; wrecking/salvage and that those are industrial uses.
(7) Permitted uses shall include medical and dental clinics and laboratories. Hospitals shall not be a permitted use.
(8) Permitted only as part of an expansion of an existing use.
(9) Must be government facilities where the public is generally not received.
(10) Permitted as a Type II procedure subject to standards.
(11) Only transportation facilities and improvements noted in the Transportation Systems Plan are permitted.

56

Section 7, Item A.

MEMORANDUM
To:
Mayor Keefer and members of the City Council
Cc:
Brandon Hammond, City Manager
From: Carla McLane, Planning Official
Date: June 30, 2026
RE:
Planning Department Monthly Update
I write this on my last day as the Planning Official for the City of Boardman. While I will still be in
the building for a bit yet wrapping up the strategic planning efforts, it is somewhat bittersweet
as my role changes. There is excitement to see Stephanie assume the role of Planning Official
and Arely grow into more responsibility as Planner II. Boardman is in good hands to shepherd
and oversee the growth that continues to occur. And as the strategic planning effort concludes
Boardman will be well positioned to tackle what comes next. As I close this introduction, I want
to thank Karen Pettigrew and Rick Stokoe for the confidence they had in me when I originally
joined the Boardman team and Brandon for taking the risk of tackling the strategic planning
effort.
Strategic Planning Program: You can follow these projects at this location on the City’s website.
For more information on the various projects, see below:
Completed or Nearly Completed Projects:
• Transportation System Plan (TSP): Both the City’s TSP and the County’s co-adoption
have been appealed. You can follow the TSP Update here.
•

Parks Master Plan (PMP): The PMP has been appealed. You can follow the PMP here.
You can find the new Parks Page on the City of Boardman website here!

•

Economic Opportunity Analysis (EOA): The adoption documents are posted here.

Projects Underway or Soon To Be:
• Boardman Development Code (BDC) and Comprehensive Plan (CP): The next PAC
meeting will be on July 30, which will be a joint meeting with the Planning Commission.
It is tentatively planned to start at 5:00 pm and run about two hours. You can follow the
CP/BDC PAC here.
•

Housing Capacity Analysis (HCA): The next step of this work relies on inputs concerning
water, wastewater, and transportation so we are a bit delayed waiting for some final
input from our City Engineer and the various projects that are being led by him. You can
follow the HCA here.

•

Main Street Interchange Area Management Plan Refinement (MS IAMP): A lot has
happened in just a month with this project. The appointed Technical Advisory
200 City Center Circle, PO Box 229, Boardman, OR 97818 • PHONE 541-481-9252 • cityofboardman.com

57

Section 7, Item A.

Committee (TAC) and PAC have had their first meeting, and we have finalized the first
technical memorandum. The next meeting is tentatively scheduled for late July. You can
follow the MS IAMP project here.
Other Programmatic work: Work is also progressing on other projects with a planning focus.
Those include the:
o System Development Charge (SDC) Update: The next staff level meeting with the
consultant team will be held in late July. Information from flow from that conversation to
the City Council later this summer.
o Boardman Municipal Code (BMC): With the Code Compliance and Hearings Officer work
on the July City Council agenda we are moving into a period of concerted effort on
updates to the BMC.
Planning Reviews and Approvals: My intent here will be to add Planning Department actions
that end in an approval for development. I will be cautious to protect the City Council’s role as
the appeal body for any local decisions. And if there haven’t been any decisions this section may
be blank.
 Work continues in the Planning Department with both residential and commercial
activity.
 The Planning Commission approved a 240-unit multi-family development on Wilson
Lane at their regular meeting on June 18.
 Planning staff is looking at how food trucks and pods have been historically approved
with the outcome to be a review and approval purpose that will include clear and
objective standards.

�

200 City Center Circle, PO Box 229, Boardman, OR 97818 • PHONE 541-481-9252 • cityofboardman.com

58

Section 8, Item A.

Subject: Request to Include Questions and Comments in the Record – July 30, 2026
Joint Planning Commission / Public Advisory Committee Workshop
Chair and Commissioners,
Please include the following questions and comments in the record for the July 30, 2026
Joint Planning Commission and Public Advisory Committee workshop.
As I reviewed the workshop materials, I also reviewed the Oregon Department of Land
Conservation and Development’s May 7, 2025 Housing Needs Analysis Rulemaking
Advisory Committee meeting. During that meeting, DLCD staff and committee members
discussed an important planning principle that appears directly relevant to the City’s
current Comprehensive Plan update: there is an important distinction between land that
is merely planned or mapped for future development and land that is actually becoming
“development ready” through engineering, infrastructure planning, capital
improvements, utility extensions, and other implementation actions. The discussion also
emphasized the importance of coordinating planning documents, engineering decisions,
and capital improvement programming so property owners understand when long-range
planning begins affecting specific properties.
The workshop packet explains that the Comprehensive Plan establishes City policy, the
Development Code determines where and how development may occur, and standards
and specifications govern infrastructure design and construction. Because numerous
planning documents—including the Comprehensive Plan, Transportation System Plan
(TSP), Main Street IAMP, Parks Master Plan, Public Facilities Plan, Housing Capacity
Analysis (HCA), Buildable Lands Inventory (BLI), Employment Opportunities Analysis
(EOA), and Capital Improvement Plan (CIP)—appear to be advancing on overlapping
timelines, I respectfully request clarification regarding where the City believes planning
ends and implementation begins.

1. Main Street IAMP implementation
The draft policies state that the City intends to complete and implement the Main Street
IAMP refinement.
During DLCD’s rulemaking discussion, staff explained that infrastructure planning,
engineering, and capital improvement programming are among the actions that move
land from long-range planning toward implementation.
Accordingly:
What specific actions does the City consider to be part of “implementation”?
Does implementation include:










selecting a preferred improvement or alignment;
engineering and design;
identifying right-of-way;
estimating acquisition costs;
adopting a funding strategy;
adding projects to the Capital Improvement Plan;
restricting property access;
acquiring easements or land; or
authorizing construction?

59

Section 8, Item A.

At what stage will affected property owners receive individual notice?

2. Conceptual versus committed projects
What objective standard will the City use to distinguish between:






a conceptual facility;
a preferred facility;
a programmed facility;
a funded facility; and
a committed construction project?

At what point may City staff, consultants, or decision-makers rely upon a mapped road,
park, trail, utility, or transportation facility when making property-specific decisions?

3. Separate notice and appeal opportunities
Which future implementation decisions will receive separate public notice and hearing
opportunities?
Please identify whether separate notice will be provided for:












IAMP adoption;
preferred transportation alignments;
Development Code amendments;
zoning-map amendments;
Public Works Standards;
Capital Improvement Plan projects;
access-management decisions;
park or trail acquisition;
utility extensions;
right-of-way acquisition; and
property-specific development conditions.

4. Identification of affected properties
Before the Comprehensive Plan is adopted, will the City prepare a parcel-level map
identifying private tax lots that could be affected by:









planned rights-of-way;
future access changes;
park or trail corridors;
utility extensions;
public-facility locations;
easements;
land acquisition; or
required dedications?

If not, when will that property-level analysis occur?

60

Section 8, Item A.

5. Relationship among planning documents
How will the City reconcile differences among the:












Transportation System Plan;
Main Street IAMP;
Parks Master Plan;
Housing Capacity Analysis;
Buildable Lands Inventory;
Employment Opportunities Analysis;
Public Facilities Plan;
Capital Improvement Plan;
Future Land Use Map;
Development Code; and
Public Works Standards

if they contain different facility locations, transportation assumptions, utility assumptions,
service areas, or growth projections?
Which document controls if conflicts exist?

6. Changes to technical documents
If a technical document relied upon by the Comprehensive Plan is later amended,
withdrawn, remanded, or materially changed, what process will the City use to review
and amend dependent Comprehensive Plan policies?
Will the City commit to reconsidering policies that rely upon factual assumptions that
later change?

7. Protection of TSP facilities
If the Comprehensive Plan requires land-use decisions to protect facilities identified in
the Transportation System Plan, what does “protect” mean for private property?
Could that policy result in:








denial or limitation of access;
required right-of-way dedication;
setbacks from future facilities;
development limitations;
reservation of land;
transportation improvement payments; or
conditions requiring construction of improvements?

What standards prevent conceptual transportation facilities from functioning as de facto
property restrictions before those facilities have been fully adopted, engineered, funded,
and approved?

8. Park and trail acquisition
Will future parkland and trail dedication standards apply only to new subdivisions and
development applications, or could they also affect existing properties?

61

Section 8, Item A.

What process will govern:







voluntary acquisition;
easements;
appraisals;
negotiations;
Council authorization; and
possible condemnation?

9. Capital Improvement Plan
During DLCD’s discussion, committee members emphasized the importance of
distinguishing between conceptual infrastructure and projects that have progressed into
capital programming and implementation.
For each project placed into the Capital Improvement Plan, will the City disclose:












project location;
affected tax lots;
project phase;
right-of-way needs;
estimated acquisition costs;
engineering costs;
construction costs;
funding source;
responsible agency;
projected schedule; and
whether voluntary acquisition or condemnation may be required?

10. Future Land Use Map assumptions
For each area proposed for additional growth or changed land-use designation:







what transportation facilities;
water facilities;
sewer facilities;
parks;
trails; and
public facilities

are assumed to support that growth?
Where are those facilities expected to be located?
Are those assumptions fully consistent with the TSP, Main Street IAMP, HCA, BLI,
Public Facilities Plan, and Capital Improvement Plan?

11. Implementation matrix
Will the City prepare an implementation matrix before adoption identifying:

62

Section 8, Item A.











each Comprehensive Plan goal and policy;
implementing document;
responsible department;
responsible agency;
adoption schedule;
funding source;
required land-use action;
public notice process; and
possible effects on private property?

12. Advance notice to affected owners
Will the City commit to providing advance written notice before:








selecting a preferred route;
identifying private property for acquisition;
restricting access;
adding a property-specific project to the Capital Improvement Plan;
commissioning final engineering;
applying for construction funding; or
imposing dedication or easement conditions?

13. Coordination among planning documents
DLCD’s Rulemaking Advisory Committee repeatedly discussed the importance of
coordinating land-use planning, engineering, infrastructure planning, and capital
improvements so that planning documents provide predictable guidance to both local
governments and affected property owners.
Because the Comprehensive Plan, Transportation System Plan, Main Street IAMP,
Development Code, Housing Capacity Analysis, Parks Master Plan, Public Facilities
Plan, and Capital Improvement Plan are all moving on overlapping schedules, how will
the City ensure that one planning process does not create property-specific
commitments before related plans have been completed, reconciled, and independently
adopted?

14. Development readiness
The DLCD rulemaking discussion introduced the concept of “development-ready” land,
recognizing that infrastructure planning, engineering, utility extensions, and capital
improvements can move land from long-range planning toward implementation.
Oregon Housing Needs Analysis, Rulemaking Advisory Committee meetng
Accordingly:
At what point does the City consider a transportation, utility, park, trail, or public facility
shown in the Comprehensive Plan, Transportation System Plan, Main Street IAMP,
Parks Master Plan, Public Facilities Plan, or Capital Improvement Plan to be
“development ready” rather than conceptual?
What objective criteria will the City use to determine when a project has transitioned
from planning into implementation?

63

Section 8, Item A.

How will affected property owners be notified when that transition occurs?

15. West Glen water service
The agenda asks whether the City should provide water outside city limits for publichealth purposes.
Please identify:










the geographic area under consideration;
proposed water lines;
booster facilities;
easements;
roads;
sewer facilities;
annexation assumptions;
funding mechanisms; and
whether providing water outside city limits creates an expectation of future urban
development or annexation.

16. Request for written responses
Because many of these questions involve implementation sequencing rather than
issues that can reasonably be answered during limited oral testimony, I respectfully
request written responses or identification of where these issues will be addressed in
future staff reports, findings, maps, policies, implementation documents, or capital
improvement planning.

17. Public Facilities Plan consistency
Because the Comprehensive Plan appears to rely on future public facilities, will the City
identify which Public Facilities Plan projects are:






existing;
funded;
programmed;
conceptual; or
dependent upon future grants, partnerships, or third-party participation?

How will those distinctions be disclosed to the public before Comprehensive Plan
adoption?

18. Funding assumptions
For each transportation, water, sewer, park, or trail project referenced in the
Comprehensive Plan:




What funding source is anticipated?
Has funding been secured?
Is funding merely anticipated?

64

Section 8, Item A.



Does implementation depend upon grants, SDC revenue, urban renewal
revenue, state funding, federal funding, private participation, or future Council
appropriations?

If funding assumptions change, how will the Comprehensive Plan be reevaluated?
19. Property-owner participation
Before selecting preferred transportation routes, trail corridors, utility corridors, or publicfacility locations affecting specific properties, what opportunities will affected owners
have to:





review alternatives;
submit information;
suggest modifications; and
participate before decisions become recommendations?

20. Alternatives analysis
Before identifying preferred transportation routes, trails, utility corridors, or public
facilities, will the City prepare and publicly disclose alternatives analyses explaining:






alternatives considered;
reasons alternatives were rejected;
costs;
impacts to private property; and
reasons the preferred alternative was selected?

17. Record clarity
To assist the public in understanding the relationship among these planning efforts, will
the City identify, either during this workshop or before adoption, where each of the
foregoing questions will ultimately be answered (e.g., Comprehensive Plan policies,
findings, staff reports, Development Code, Public Facilities Plan, Capital Improvement
Plan, Public Works Standards, future land-use proceedings, or separate implementation
actions)?
Please confirm receipt of this email and include it in the record for the July 30, 2026
workshop.
Thank you,
Jonathan Tallman

65