Exhibit 4 - Brooks-Hopmere Future Report - October 2021.pdf

APG Brooks-Hopmere Community Plan Future Report October 2021

Future Report

Brooks-Hopmere Community Plan

October 2021

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Brooks-Hopmere Future Report

Prepared by Angelo Planning Group and Keller and Associates

TABLE OF CONTENTS – VOLUME I

I. Executive Summary

II. Introduction

III. Existing Conditions Summary

Assets / Opportunities

Constraints / Weaknesses

Community Desires and Priorities

Community Identity and Future

Infrastructure

IV. Brooks Hopmere's Future

The Vision

Future Conditions

Potential Expansion of Local Businesses and Organizations

Land Use

Community Spaces

Transportation

Water

Wastewater

Broadband Internet Service

V. Implementation and Funding

Transportation

Water and Wastewater Systems

Land Use / Community Facilities

Short and Medium Term (5-20 years)

Longer Term (20+ years)

Funding

VI. Looking even further into the Future

VII. Conclusions

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VOLUME II – APPENDICES

The following appendices include previous memoranda and analyses prepared for the Brooks-Hopmere Community Plan Future Report. The appendices are included in Volume II of this report.

Appendix A. Unincorporated Community Overview

Appendix B. Economic Development Conditions

Appendix C. Transportation Existing Conditions Summary

Appendix D. Existing Demand for Rail Service

Appendix E. Water and Wastewater Existing Infrastructure Summary

Appendix F. Land Use Development Scenarios

Appendix G. Water and Wastewater Future Infrastructure Summary

Appendix H. Development Scenarios Impacts on Transportation

Appendix I. Stakeholder Interviews and Online Survey #1 Summary

Appendix J. Online Survey #2 Summary

Appendix K. Online Survey #3 Summary

Appendix L. Brooks-Hopmere Community Plan, July 2000

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I. EXECUTIVE SUMMARY

The Brooks-Hopmere Community represents two adjacent areas (Brooks & Hopmere) connected by

Brooklake Road, a county roadway. The area is the largest unincorporated community outside of an urban growth boundary in Marion County and plays an essential role in the economy of the County and region. The area boasts a wide range of businesses and the total employment in the area rivals that of many of the County’s incorporated cities. Key assets of the community include:

• Location – the Brooks-Hopmere connection to Interstate 5 provides a direct connection to points north and south in the Willamette Valley, including ready access to Salem, Portland and other communities, as well as surrounding agricultural operations.

• Freight Hub – access to Union Pacific and Portland & Western railroad facilities, as well as

May Trucking and the Pilot Truck Stop give the area ready access to freight services and facilities. Potential development of the proposed intermodal (truck to rail) Port of the

Willamette facilities would further elevate the area’s importance for movement of agricultural and other goods throughout the state.

• Education – Chemeketa Community College provides several vocational training programs, as well as training facilities for fire protection and emergency service providers from throughout western Oregon. The campus also serves as an important resource for local residents and businesses.

• Agricultural produce processing, storage and distribution – Oregon Potato (dba as NORPAC) is a central hub for processing, storing and distributing produce from throughout the

Willamette Valley. Curry and Company and several other businesses in the community also support this economic sector.

• Employment – In addition to the businesses and institutions already mentioned, several other large companies call Brooks-Hopmere home and employ a significant workforce, including Pacific Stair, Red Steer and others.

• Tourism – Antique Powerland hosts events throughout the year and draws thousands of visitors each year to its annual “Great Oregon

Steam-Up” event.

Corner of Brooklake Rd. NE & Huff Ave. NE – Looking West

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A Vision for the Future

Business and property owners, as well as local residents envision a vibrant future for the community. Brooks-Hopmere will continue to be a thriving business community, with employment opportunities and community services that include:

• A hub of jobs and services that support the local and regional agricultural industry and economy.

• Improved, well-designed and functioning roads, rail and other transportation facilities, that continue to serve local businesses, travelers, and the surrounding area.

• A stronger sense of community and the ability for local businesses and residents to advocate for future improvements that support the community’s vision.

• Reliable, resilient, and sustainable infrastructure that serves businesses and residents in a cost-effective manner and provides opportunities for desired growth and expansion in the future.

• Continued emphasis on serving, supporting and preserving surrounding agricultural land and enterprises by focusing non-resource based development within the community boundary.

This vision is expected to translate into continued growth and expansion of existing businesses and potential start-ups of new businesses.

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Achieving the Vision Although Brooks-Hopmere is a unique community with strong assets and opportunities, it is not without challenges. A number of improvements will be needed to allow the community to continue to grow and thrive. Some of the most important initiatives include:

• Enhancements to the I-5 interchange. While proximity to I-5 is cited by most people in

Brooks-Hopmere as one of the area’s key assets, it is in need of significant improvement.

The on and off-ramps suffer from serious congestion at peak travel times and getting on and off those ramps can be challenging from a safety and delay perspective. Working with the

Oregon Department of Transportation on planning for future improvements to the interchange is crucial to the area’s success. Ultimately, enhancements to the interchange also must be coupled with improvements to Brooklake Road and its intersections with

Highway 99E and Highway 99W.

• Improved water and wastewater service. Groundwater is the primary source of drinking water in the Brooks-Hopmere Planning Area. While several businesses have private groundwater wells for employees and customers, the only public community system in the area is the

Brooks Community Service District (BCSD), managed through an intergovernmental agreement with Marion County. Existing water service is not adequate to meet existing and projected future needs. The area is served by wells which do not provide enough pressure to support fire protection requirements, making expansion of existing businesses and location of new businesses problematic and costly. Similarly, the community wastewater system is expensive to operate and maintain and makes development and redevelopment of larger properties challenging.

Development of community water and wastewater systems is essential to the long-term economic health and resiliency of the area.

• Community Organization and Advocacy. As an unincorporated community, Brooks-Hopmere lacks a governing body or an organized group that can advocate for the essential improvements needed in the community. Creating some type of formal structure to serve this purpose is necessary to help make the Brooks-Hopmere Future Report a reality.

Corner of River Rd NE & Brooklake Rd. NE – Looking South

Brooklake Rd. NE – Directly West of I-5 Interchange – Looking South

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A Plan for Action The Brooks-Hopmere Future Study report includes an extensive list of actions needed to propel the community into its desired future. A few primary strategies stand out as essential short and medium term steps towards this end:

• Participate in the Interchange Area Management Planning (IAMP) process and advocate for the community’s needs. The Oregon Department of Transportation (ODOT) is in the process of planning for future I-5 interchange improvements. The IAMP process began in October

2020 with the intention for completion of the planning process in Spring 2022. Strong, effective participation in this process by members of the Brooks-Hopmere Community (BHC) is essential to ensuring that any proposed recommendations will support this long-term plan for the Brooks-Hopmere community. Community members should advocate for the following objectives:

o Improvements should enhance accessibility and mobility for local businesses.

o The project should not result in significant or unreasonable costs for local property owners or businesses.

o To the extent that improvements make the area more attractive for future residential development, such development should not adversely impact traffic levels and associated mobility for local businesses and institutions.

• Conduct a Community Water and Wastewater System Feasibility Study. The BHC Future

Study evaluated the existing water wastewater systems and recommends a number of actions to improve them. The first step in that process will be to assess the feasibility and cost of development of new water and wastewater systems. A new water system would consist of a community well (or wells) as its source, or installation of a water storage and distribution system with a neighboring municipality as a wholesale water source. A new wastewater system would be a more traditional gravity-based collection system. The feasibility study will evaluate these components, their costs, and the process for implementing them in more detail.

• Create a structure for community advocacy and representation. In the long-term, some type of formal governance structure will be needed to fully implement the BHC vision. This may include incorporation as a separate city, annexation to another city (Keizer or Salem), or creation of a County Service District. In the shorter term, members of the community should

Future Report 8 of 36 work with the County to establish some type of local committee or other group that can collectively advocate for the area’s future.

II. INTRODUCTION

The Brooks-Hopmere Community (BHC) is a designated Urban Unincorporated Community1 located in Marion County a few miles north of Keizer and Salem. The Brooks-Hopmere Community represents two adjacent areas (Brooks & Hopmere) connected by Brooklake Road, a county roadway. The area is the largest unincorporated community in Marion County and is home to a wide range of commercial and industrial businesses. Additionally, the area includes residential uses and several institutional uses, such as the Willamette Valley Christian School, Marion County Rural Fire District Station, and Chemeketa Community College Brooks Campus.

The Brooks-Hopmere Community Plan, adopted in 2000 (see Appendix L), inventoried existing conditions, created comprehensive plan policies, and established the community boundary. Now, twenty years later, conditions in the area have evolved, and there is a need to better understand current conditions and plan for the future of the community. Although this plan does not represent an update to the 2000 Brooks-Hopmere Community Plan, it presents a review of community outreach and vision and an updated list of recommendations to move the community towards its vision.

The purpose of this future report is to identify opportunities and a plan for capitalizing on the opportunities and resources in the BHC. This future report describes the future of the BHC based upon a cohesive community-driven vision developed through an understanding of existing conditions and communications with community stakeholders. The future described here is intended to guide decisions for the next 15-20 years, but within the context of an even longer horizon (e.g., 50 years or beyond). The plan also is intended to help the community and the County proactively prepare for and address a process led by the Oregon Department of Transportation (ODOT) to identify improvements and associated planning recommendation for the Brooklake Road / Interstate 5 Interchange, particularly impacts on access to local businesses, potential impacts on future residential development, and mobility within and in and out of the area for local residents, workers and visitors.

1 Definition and standards for Urban Unincorporated Community are found in Oregon Administrative Rules (OAR) Chapter 660, Division 22. For more information regarding the state requirements for an Urban Unincorporated Community and its implications for the BHC, see Appendix A.

Brooklake Rd. NE west of intersection of Pueblo Ave. NE – Looking South

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The project included public engagement at various stages in order to receive feedback from the local community, and other stakeholders, such as local service districts. In addition the project worked to understand existing conditions in order to plot a course for the future of the community. These efforts engaged more than 100 stakeholders of the Brooks-Hopmere community throughout the process.

III. EXISTING CONDITIONS SUMMARY

Currently, Brooks-Hopmere has a strong business community with several notable public and community facilities (i.e., Chemeketa Community College, Brooks-Hopmere Fire Station, Willamette Valley Christian School, Antique Powerland and the Covanta waste-to-energy plant). The community is driven by its businesses, boasting approximately three times as many jobs as residents. Agri-business and freight are the primary industries in the community. The area is home to a significant number of large employers, several of which employ hundreds of people. These include Oregon Potato (d.b.a.

NORPAC), Pacific Stair, May Trucking, and Curry and Co., among others. A growing residential area is also present in the community, with about 500 people living in the area. Additionally, in Brooks, the percentage of residents with college degrees (40%) is twice that of the Marion County (19%), indicating a notable level of human capital within the workforce. While statistics related to employment, value of gross products and payroll by industry are not available for the BHC area, interviews with a number of local companies indicated significant local employment numbers, including NORPAC / Oregon Potato (400 jobs2), Curry and Co. (66 permanent and about 200 seasonal jobs), May Trucking (150 employees), Covanta (46 employees), Belke Farms (14 full and part time jobs), Pilot Truck Stop (95-100 jobs) and Chemeketa Community College (98 employees). These jobs, as well as revenues from payroll and property taxes, and services procured by other local businesses have a significant impact on the local economy. For more information on the economic conditions of Brooks-Hopmere Community (BHC), see Appendix B.

These conditions, particularly the large and varied number of businesses and workers in the area, make Brooks-Hopmere a unique unincorporated community, given the level and density of development in more typical unincorporated areas.

Land Use

As a designated Urban Unincorporated Community (UUC), the BHC is subject to the state requirements of the Unincorporated Communities Rule adopted in the Oregon Administrative Rules (OAR) Chapter 660, Division 22. These requirements limit the potential development of the BHC to the existing boundary, and new development must occur on existing vacant lots of through infill /

2 All employment numbers are based on local interviews conducted in 2019 and are approximate.

Brooklake Rd. NE Near intersection of Portland Rd. NE – Looking South

Future Report 10 of 36 redevelopment of existing lots. New development must also be consistent with state requirements for the size and type of residential, commercial, or industrial uses. Based on these requirements, there are limited circumstances / types of development that would meet all criteria. Any desired development that is not consistent with the regulations would require changes in administrative rules or statutes and / or an exemption to statewide planning goals. These statutes and their implications for the Brooks- Hopmere area are detailed in Appendix A.

Transportation

Union Pacific Railroad, Portland & Western Railroad, and I-5 are some of BHC’s greatest economic and transportation assets. However, they present unique challenges in the form of east-west travel barriers due to costs to modify facilities that cross over, under, or through railroads and interstates. Many businesses and developments rely on the only east-west arterial street in BHC, Brooklake Road, to access I-5 and the larger transportation network. As improvements are made, many developments will need to find alternate access to Brooklake Road in order to avoid future conflicts with interchange ramp traffic. Currently, Brooklake Road and the I-5 interchange are prone to roadway capacity issues and becoming bottlenecks. For a detailed review of the transportation infrastructure for the BHC, see Appendices C & D.

Water

Groundwater is the primary source of drinking water in the BHC.

While several businesses have private groundwater wells for employees and customers, the only public community system in the area is the Brooks Community Service District (BCSD). The district is managed by Marion County under an intergovernmental agreement with Chemeketa Community College (CCC). The infrastructure of the BCSD is in joint ownership between CCC and Marion County, in that CCC owns the well and Marion County owns and maintains the distribution system. The agreement between CCC and Marion County notes that the County is prohibited from allowing new water users to connect to the BCSD, causing requests from local property owners for service to be declined. Although existing capacity may be sufficient for current consumptive demands, fire flow demands can not be met. The system is compliant with Oregon Health Authority (OHA) water quality requirements. Several unknowns about the system, including the number of unmetered users, legal state of the water rights, and actual well yield make this assessment uncertain. Additionally, the temporary agreement between CCC and the County and moratorium on new users connecting to the system suggests that while the existing system may have capacity to serve community members, the County’s access to the well in the future is unclear. For a detailed review of the water and wastewater infrastructure, see Appendix E.

Huff Ave. NE north of Brooklake Rd. – Looking East

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Wastewater

Marion County maintains wastewater conveyance and treatment infrastructure for the BCSD, via a Septic Tank Effluent Pumping System (STEP). There are approximatly 250 STEP tanks in service, which require high maintenance by the County public works staff for regular pumping and maintenance and tanks are often located on private land such as residential backyards. Although both water and wasewater systems are maintained by Marion County, the wastewater district is independent of the water service district and customers may or may not overlap. The BCSD is the only public wastewater in the area. In addition to the BCSD, private septic tanks and drain fields exist. For a detailed review of the water and wastewater infrastructure, see Appendix E.

Figure 1. Brooks-Hopmere Community Boundary

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A summary of the assets and challenges of the community are summarized below:

Assets / Opportunities

• Proximity to Interstate-5, Salem, and Portland.

• Access to two railway systems, Union Pacific and Portland & Western Railroad, which creates an opportunity to have an intermodal facility in the community.

• Availability of developable land within the community and its direct vicinity.

• Presence of public services facilities, such as Chemeketa Community College and Covanta Waste

Management.

• Presence of business clusters - agricultural services and freight - with various large businesses, such as May Trucking, NORPAC, Pilot Travel Center, and Pacific Stair.

Constraints / Weaknesses

• Lack of centralized sourcing, treatment, or management of infrastructure (i.e., water, wastewater, stormwater), which reduces reliability, consistency, and the ability to increase capacity as the community grows.

• Lack of social infrastructure – no formal community gathering spaces in the community and lack of connection between residents and employees of community businesses, particularly between the two areas (Brooks & Hopmere).

• Substandard roads and lack of pedestrian / bicycle infrastructure (sidewalks, road shoulders, etc.) in some part of the community.

• Transportation infrastructure is unable to handle current demand, resulting in congestion, especially when carrying overflow traffic from I-5 to Hwy 99. The road system also is lacking connectivity which is further hampered by barriers created by existing rail lines.

• Concerns about the waste management facility and its effects on the surrounding community.

• Lack of local authority or decision-making body – Brooks-Hopmere is among several unincorporated communities in the County. The BHC does not have any direct local representation in County decision-making processes made by County staff, or the County Board of Commissioners.

• Lack of dedicated or direct resources and funding - although it is a designated community, there is no dedicated or direct public funding source for construction or maintenance of most facilities in Brooks-Hopmere in the same way that there would be for an incorporated city. Funding comes from a larger pool of resources that must address all unincorporated areas in Marion County, as well as from funding administered by the Salem Keizer Area Transportation Study (SKATS) which is the Metropolitan Planning Organization (MPO) for the area and which manages federal funds which can be used in the Salem / Keizer / Turner area, including potentially for projects in the Brooks-Hopmere area.

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Brooklake Rd. NE – Directly West of I-5 Interchange – Looking South Brooklake Rd. NE – Directly East of I-5 Interchange – Looking East

Corner of Portland Rd. NE & Rockdale St. NE – Looking Northeast Corner of Brooklake Rd. NE & Huff Ave. NE – Looking West

Corner of River Rd NE & Brooklakd Rd. NE – Looking South Corner of Brooklake Rd. NE & 50th Ave. NE – Looking North

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Community Desires and Priorities

As part of the establishment of this future report, feedback was gathered through stakeholder interviews and online surveys. Details of these discussions, including an overview of participants and feedback received are provided in Appendices I, J, and K. Through all the discussion and input, several key themes for understanding existing and desired future conditions were prevalent. They are summarized below.

Community Identity and Future

• The BHC is a unique community with many businesses providing substantial employment opportunities and the potential to provide more. Although the Brooks- Hopmere community has various infrastructure limitations, it has grown to become a significant employment center within Marion County. Many see the opportunity for successful businesses and organizations in the community to continue and grow, along with opportunities for additional businesses in the community. Near- and medium-term opportunities include changes to the Oregon Potato (dba NORPAC) facility site and potential expansion of May Trucking facility.

• Continued economic vitality and low to moderate residential growth. Generally, stakeholders support continued business growth, while protecting the community’s rural qualities. Opinions about the desirability of more residential growth are mixed. Some community members favor more housing to provide affordable housing opportunities for local workers. Others preferred to keep the residential community small to maintain its "small town feel." However, relatively few people argued for substantial future residential growth.

• There is a lack of social infrastructure in the community and the connection between Brooks and Hopmere.

Community members noted the lack of gathering spaces within the community, noting that currently, True Value Hardware is the community gathering place. A significant percentage of workers in BHC live elsewhere and few of them spend time in the area outside of work.

Additionally, numerous community members said they see Brooks and Hopmere as two disconnected individual communities. While this was identified as a gap early in the project, the third online survey in the project showed mixed support for creation of a community gathering place. Relative support for this idea should be explored further in future planning phases.

The Brooklake / I-5 interchange is long overdue for improvement. At times the north bound exit is backed up all the way to the freeway, and it is near impossible to make a left turn onto Brooklake from the south bound exit. South bound Highway 99E also backs up every afternoon at the light on Brooklake.

-Online Survey Response

Two areas [Brooks and Hopmere] are unrelated.

-Online Survey Response

We have enjoyed living in the area. Raised our children here, but would hate to see it become a city atmosphere. I think it is of the utmost importance to honor and protect our farmland while working on these upgrades.

-Online Survey Response

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Infrastructure

• Transportation issues are paramount. Transportation problems in the community were the topic of almost every conversation with community members and stakeholders. Access, traffic congestion, and safety concerns associated with the I-5 interchange were the most significant concerns noted by stakeholders. At the same time, the community location directly off Interstate 5 is a significant asset for the community's businesses and residents.

• Infrastructure – transportation, wastewater, stormwater, water, and broadband - are limiting factors to expansion. In addition to the transportation concerns, community members within the Brooks-Hopmere boundary either have frustrations with the water infrastructure or have a limited understanding of the system. Several larger businesses in the community expressed the need for better internet access, such as broadband, to reliably serve their businesses. Of those with on-site septic wastewater treatment systems, and wells, some expressed dissatisfaction with various elements of those systems – water quality, flooding because of poor drainage, and the limited capacity of the systems, among others. Improvements to most of these types of facilities and services will help community businesses and institutions flourish.

Lack of infrastructure will limit growth. Update the water, sewer, and especially the roads and growth will naturally follow. - Online Survey Response

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IV. BROOKS HOPMERE'S FUTURE

In planning for the future of BHC, it is essential to understand and articulate the community's long-term vision and to place it in the context of even longer-term regional growth and development. The following vision represents the desired future of the Brooks-Hopmere community in the 20-year horizon and beyond, based upon the feedback gathered through stakeholder interviews and online surveys. Details of these discussions are provided in Appendices I, J, and K. Key issues and actions needed to achieve the vision – land use, water, wastewater, transportation, broadband access and social infrastructure – are then described in more detail.

The Vision

Brooks Hopmere will continue to be a thriving business community, with complementary public uses that provide employment opportunities and services to the residents of the Brooks-Hopmere community, the surrounding regions, and travelers along I-5. More specifically, the community will include:

• A hub of jobs and services that support the local and regional agricultural industry and economy.

• Improved, well-designed and functioning transportation facilities, which will provide adequate access to local businesses and allow them to continue to thrive and grow.

• Enhanced physical and community connections between Brooks and Hopmere.

• A more tightly woven community fabric, potentially including one or more community gathering places, governmental and community support for local businesses, and more community-oriented businesses that serve employees and residents.

• Reliable, resilient, and sustainable infrastructure that serves businesses and residents in a cost-effective manner and provides opportunities for desired growth and expansion in the future.

• Continued emphasis on serving, supporting and preserving surrounding agricultural land and enterprises by focusing non-resource based development within the community boundary.

Based on results of the project's third online survey, community members appear to generally support most elements of this vision. However, support is not universal, and some people are concerned about impacts of growth on traffic, the rural feel of the community, a possible reduction of high quality agricultural land, and the cost of infrastructure improvements. There is generally strong support for infrastructure improvements described in more detail in the following pages, particularly transportation and broadband internet improvements.

Future Conditions

The population growth in the community for the 20-year horizon is anticipated to be the average between 0.5% and 0.35% per year for the next 20 years, with more growth projected in the first 10 years. These estimates are informed by previous analyses for a natural rate of growth (see Appendix F - Scenario 1). The growth rates anticipate relatively modest residential growth and more significant growth in employment lands (commercial, industrial, institutional uses). Currently, there are approximately 543 residents and 1,567 employees in the Brooks-Hopmere community. The residential growth for the vision estimates 52 - 109 new residents, equivalent to approximately 19 - 40 new

Future Report 17 of 36 households3. This level of growth is generally consistent with projected future population growth in the unincorporated areas of Marion County overall, reflects the majority of comments from community members, and maintains a high jobs / housing ratio, similar to current conditions. This Future Report includes an evaluation of several different scenarios for future development within the area, which are detailed in Appendix F. With the results of this analysis, there appears to be enough land in the community on vacant or partially vacant residential properties in the area to support this level of growth without any expansion of the community or large scale development.

Historically, business presence has continuously grown in the community, and this is projected to continue, growing by approximately 300 – 850 new employees by 2040. This estimate reflects employment projections for the region as a whole, as well as short and potential longer-term expansion plans of several key businesses (see Figure 2) as described below. However, it does not preclude other existing or new businesses from further developing or expanding in the community. Much of this expansion could occur on existing properties within the Brooks-Hopmere boundary. However, expansion of employment at selected facilities could require an expansion of the Urban Unincorporated Community (UUC) boundary or development on land outside the boundary as described in more detail in subsequent sections of this report.

Potential Expansion of Local Businesses and Organizations

• Oregon Potato, dba NORPAC – Before filing for bankruptcy, the agricultural processing facility had over 400 employees. The site was purchased by Oregon Potato, and preliminary information indicates that the company plans to continue to operate and expand the facility's workforce, including shifting and consolidating operations from several other facilities to this site. In the near-term, employment at the facility could expand by about 150 workers. 4

• May Trucking – The freight company continues to grow its 75-acre headquarters in Hopmere and has space available for growth on its site and neighboring parcels. Approximately 200 employees work at their headquarters. Improvements to the adjacent I-5 interchange, coupled with local access improvements, could allow for significant expansion in employment at the site.

• Chemeketa Community College – The community college has approximately 500 students and has seen continued success with its various programs. The Chemeketa Brooks campus is the home of the diesel technology education program, as well as the emergency services programs including criminal justice, corrections, law enforcement, fire suppression / prevention, and emergency medical service. The college has opportunities to work with BHC businesses and public entities such as the Marion County Rural Fire District #1 to continue to operate and enhance existing programs and to establish new programs. The site includes several acres of land that can serve potential future expansion needs. It is a core element of the community and has the potential to help further define and enhance the area.

3 Based on the assumption that there are approximately 2.7 persons per household.

4 This information has not been directly confirmed by Oregon Potato and may or may not reflect current plans or take into account recent impacts from the COVID-19 pandemic.

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• Curry and Company – The company is a packing, distribution, and worldwide exporter of fruits and vegetables on an international level, and intends to continue to use their 6-acre facility for its highest and best use. Curry and Company has approximately 40 employees.

• Pilot Travel Center – The facility provides services for freight and is located directly off I-5. Their facility serves approximately 35,000 customers a week with about 100 employees.

• ** Note: The Port of Willamette Group is in the process of developing plans and funding for a major intermodal facility currently set to be placed in Woodburn. During the planning stages of this future study, an opportunity for placement of the facility in the Brooks-Hopmere area was explored (as shown in Figure 5). An intermodal facility, either in Woodburn, or in Brooks- Hopmere, would provide an alternative shipping option for agricultural products and other exports of the area.

Other successful businesses in the community include, but are not limited to, Pacific Stair, Red Steer Gloves, and Beilke Farms. Many of the businesses in the community are focused on services for agricultural production and processing or freight distribution. The mid-Willamette valley is Oregon’s number 1 producer of agricultural products and these key industries will continue to be essential to the region and are expected to continue to grow. Additionally, other potential economic growth in the community could include businesses within the existing key industries, such as commercial hemp production and cold storage for perishable agricultural products.

Figure 2. Brooks-Hopmere Community Plan Future Report Key Sites

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Land Use

Any changes in current land use designations are expected to focus primarily on employment land, which includes areas zoned for commercial, industrial, and public facility or service uses. The completion of this future study included an analysis of several different scenarios for future development based on estimated growth rates, an evaluation of existing conditions, state and local regulations, and conversations with community stakeholders. More information about zoning regulations, the types of limitations they entail, and the review of development scenario impacts can be found in Appendix F – Land Use Development Scenarios, and in the following pages. Residential land is expected to grow at a gradual rate (see Appendix F) and there is adequate land and appropriate allowed uses and development standards to allow for this level of growth. To the extent that future improvements in water and wastewater infrastructure allow for more residential growth, the County could pursue changes in allowed residential development densities or standards; however, that is not the primary focus of future uses based on community feedback.

Potential changes to land use regulations and designations should allow businesses to expand operations on current sites or develop new facilities with limited barriers for permitting and development. At the same time, regulations must continue to ensure that existing or planned and funded water, wastewater, stormwater and transportation facilities are adequate to serve proposed growth and development. Specific types of land use changes to consider include the following:

• Changes to land use overlay zones to remove restrictions on certain properties through the Limited Use (LU) overlay, if the restrictions are not required by state law and do not reflect current conditions or infrastructure capacity in the area. The Limited Use Overlays in the community are shown in Figure 3. If infrastructure updates recommended are built, some performance criteria for LU properties could be removed. Additionally, infrastructure improvements could allow for conditions which would support eliminating the use restrictions on LU properties (i.e. grocery store, offices, warehouses).

• Potential statewide goal exceptions to allow for development on land adjacent to the existing Urban Unincorporated Community (UUC) boundary. A potential boundary expansion could include the Port of the Willamette property and other properties bordering intensive commercial or industrial, is shown in Figure 3.

• Potential statewide goal exceptions to allow extension of public facilities either to adjacent properties or from adjacent municipal systems to BHC.

• Targeted changes to local zoning designations or standards as needed to allow for development of specific uses. Some survey responses recommended more business development be focused on Hwy 99E, rather than residential development. Additionally, maximum building size could be increased to allow more space for businesses in the community.

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Community Spaces

Brooks-Hopmere currently lacks connections between residents, employees of local businesses, and organizations in the community. Community stakeholders have noted that the community would benefit from facilities that improve the social infrastructure of the community and serve the local community – both residents and employees. Examples include a park, community center, or other multifunctional space. The community should work together to identify appropriate locations for one or more such facilities and develop an implementation and funding plan in coordination with County staff. While stakeholders identified this need early in the BHC planning processes, support for this recommendation was mixed among participants in the project's third online survey. Relative support for and specific plans for community facilities should be explored further in subsequent planning phases.

Figure 3. Brooks-Hopmere Zoning (Current)

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Transportation

Transportation is at the forefront of community discussion related to changes for the future of the Brooks-Hopmere Community. This future study effort included an analysis of the impacts of various development scenarios on transportation infrastructure in the BHC. More detailed information about traffic forecasts, impacts of growth, and mitigation strategies see Appendix H. Ultimately, the transportation improvements in the community are intended to:

• Improve the function of the I-5 interchange, allowing more efficient and safe access to and from I-5 and Brooklake Road.

• Provide non-vehicular connections (i.e., bicycle and pedestrian) between the Brooks and Hopmere areas and within the individual communities.

• Reduce congestion along major roadways in the community.

• Improve access to properties along Brooklake Rd.

The Oregon Department of Transportation (ODOT) is in the process of planning for future I-5 interchange improvements. The Interchange Area Management Plan (IAMP) project for the Brooks Interchange began in October 2020 and is scheduled to be completed by spring 2022. The ODOT Statewide Transportation Improvement Plan (STIP) does not include funded improvements to the

We lost our community when public school sold and left. The only community space where you run into neighbors is the hardware store.

- Stakeholder Interview Response

Figure 4. Examples of Community facilities. Left – Pleasant Hill Community Center, Pleasant Hill, OR. Right - Thatcher Community Park, Forest Grove, OR

Future Report 22 of 36 interchange for 2018-2021 or 2021-2024 but subsequent planning periods may include such improvements.5 Marion County will continue to work with ODOT and other community partners on the plans for the interchange based on information gathered in this process (i.e., BHC Future Report). The recent Brooklake Road / I-5 Interchange Transportation Study, completed in 2019, recommended the interchange-related improvements shown in Table 1. These recommendations may be superseded by the upcoming I-5 Interchange Area Management Plan (IAMP).

5 Schedule as of August 2020, and is subject to schedule changes in the future.

Figure 5. Brooks-Hopmere Recommended Transportation Improvements

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Table 1. Proposed Interchange-Related Improvements6

In participating with in the IAMP planning process, it will be important for community and County representatives to consider how any proposed recommendations will support this long-term plan for the Brooks-Hopmere community. The following questions should be addressed as part of the IAMP study:

• Will improvements enhance accessibility and mobility for local businesses?

• Will improvement result in significant or unreasonable costs for local property owners or businesses?

• Will improvements make the area more attractive for future residential development and will this adversely impact traffic levels and associated mobility?

In addition to the Interchange improvements, other transportation improvements are recommended to provide a better functioning transportation system in the future. Those improvements include building a better network of collector streets off of the main thoroughfares of Brooklake, Hwy 99E, and River Rd.

for locals to have alternative routes to travel. There are several benefits to a more connected network of the streets in the community (shown in Figure 6), including fewer local trips on major roads and higher overall capacity of the system. Additionally, Brooklake Rd. - the major primary route through the community - should include additional traffic signals and a center-turn lane to allow better access to properties (primarily of businesses) from both directions (east and west). Improvements also should

6 Source: 2019 Brooklake Road / I-5 Interchange Transportation Study

Future Report 24 of 36 include enhancements to bicycle and pedestrian facilities, as well as a consistent design for the road through both Brooks and Hopmere to provide a more cohesive visual identity for the entire community.

A comprehensive list of recommended transportation improvements is found in Appendix H. Many of the transportation issues and recommendations meet short-term needs in the community. However, these facilities should be designed and built to serve the community (current and future) for an extended future. For more information see the Appendix H. Development Scenarios Impacts on Transportation memorandum.

Figure 6. Benefits of Street Connectivity 7

Water

Given the capacity of the current system, including its inability to meet fire flow requirements, widely variable water quality, uncertain ownership and water rights status, and other related issues and challenges, a new water system is needed to meet the vision of the community's future, regardless of the growth scenario. A new water system would consist of a community well (or wells) as its source, or installation of a water storage and distribution system with a neighboring municipality as a wholesale water source. The advantages and disadvantages of each are described in Table 2.

A community water system feasibility study is recommended to provide further direction on the proposed components of the system and associated cost estimates for future improvements.

7 Source: http://www.ci.kearney.mo.us/pdf/Attach-to-11-2-15-Agenda-Street-Connectivity.pdf http://www.ci.kearney.mo.us/pdf/Attach-to-11-2-15-Agenda-Street-Connectivity.pdf

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Table 2. Analysis of Water Systems

Community Well(s) Connecting to Neighboring Jurisdiction

De sc rip tio n

Installation of a new well (or network of wells) has the potential to serve a community water system and provide adequate fire flow. A surface water source was not pursued here due to the planning area's distance to local surface water bodies.

A nearby existing municipal water system could provide a water source for a community system.

Connection to the City of Keizer's water system appears to be feasible based on preliminary conversations with the City, system capacity, and proximity to infrastructure and the Urban Growth Boundary. There is also the potential to connect to the City of Salem's infrastructure. However, contact was not made with City of Salem staff at this time.

Ad va nt ag es

• Water source and infrastructure owned by the County / District and not another agency

• Capacity to meet fire flow requirements

• Capacity to serve BCSD users and additional community members

• Enable development or growth in the area

• Interconnection with a private system could benefit both systems by providing redundancy

• Allows for a community water system with a source that the County does not have to maintain

• Capacity to meet fire flow requirements

• Capacity to serve BCSD users and additional community members

• Enable development or growth in the area

Di sa dv an ta ge s

• A community well requires initial feasibility investigation, including hydrogeologic investigation, water rights availability, and well siting.

• Initial capital investment for new water infrastructure (well(s), pumps, pipeline, meters, valves)

• Potential for existing water quality issues to perpetuate with new well if accessing the same aquifer as the CCC well.

• Connection may require incorporation into Salem / Keizer's UGB or going through a statewide goal exception, pending potential increases in density for the area or city policies regarding extension of services.

• The County does not own the water source

• Initial capital investment for new water infrastructure (pump station, pipeline, meters, valves, potential connections fees to for City of Keizer)

Completion of the recommended feasibility study would provide the County with a better understanding of whether pursuing a community well system or connection to a neighboring system would be best moving forward. For more information on the evaluation of development scenarios and their impact on water infrastructure, including evaluation of alternatives, see Appendix G.

Wastewater

The existing wastewater system serving much of the Brooks-Hopmere community appears to have adequate water to provide for the current system’s demand. However, the existing Septic Tank Effluent Pumping (STEP) system and individual tanks represent a high maintenance cost to the County through

Future Report 26 of 36 pumping and replacement of aging tanks. This increased maintenance cost is passed on to the community through sewer service rates. This is important to consider when assessing growth to the system and its impact on public works staff and budget. An alternative to maintaining and continuing to expand the existing STEP system is to develop a new gravity-based wastewater collection system. A gravity-based system essentially would be a system of pipes that convey wastewater using gravity from individual homes and businesses to a community wastewater treatment facility. The advantages and disadvantages of gravity system integration are found in Table 3.

A wastewater facility planning study is recommended to fully assess the existing conditions of the system, treatment capacity, and thresholds, as well as to provide cost estimates for future infrastructure alternatives. This study could also evaluate the future expansion of a gravity system that would displace the STEP system. Infiltration and inflow were not accounted for when projecting flows, largely because it is not currently an issue in the pressurized system. It should be considered in planning any gravity-based upgrades to the system in an area with the potential for high groundwater.

Table 3. Analysis of Wastewater Systems

Gravity-Based Additions New Gravity System

De sc rip tio n

The existing wastewater system could be maintained while any new infrastructure expansion could be through gravity-based infrastructure. Additional infrastructure would include new sewer mains and laterals, with the likely need for lift station(s) or deep pipe placement.

A new gravity wastewater system could be installed to replace the existing STEP system.

Infrastructure requirements would include new sewer mains and laterals, lift station(s) or deep pipe placement, and modifications to the wastewater treatment plant.

Ad va nt

• Avoids the maintenance of additional STEP tanks added to the system

• Reduced capital investment required when compared to a new gravity system

• Eliminating STEP tanks would reduce long-term maintenance costs

• New businesses or homes would be able to connect directly to the new system, rather than installing and maintaining their own individual STEP tanks.

Di sa dv an ta ge s

• Requires maintenance of a dual system (STEP tanks and gravity)

• Without STEP tanks for new connections, influent solids and BOD loading would likely increase, which would necessitate upgrades to the wastewater treatment plant

• Influent solids and BOD loading would increase due to the removal of STEP tanks and likely require expansion of the treatment system

• High initial capital investment for new infrastructure

For more information on the evaluation of development scenarios and their impact on…