TO: Mayor and City Council
THROUGH: Krishna Namburi, City Manager
FROM: Kristin Retherford, Community Planning and Development Director
SUBJECT:
title
Annexation of an approximate 18.91-acre territory located at 2170 Walker Road NE and 4893 Sunnyview Road NE, including a Minor Comprehensive Plan Map Amendment to Multi-Family Residential and Zone Change to RM-II (Multiple Family Residential) for approximately six acres of the southern portion of 2170 Walker Road NE.
Ward(s): Ward 6
Councilor(s): Vang
Neighborhood(s): North Lancaster Neighborhood Association
Result Area(s): Welcoming and Livable Community
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SUMMARY:
summary
Annexation of an approximate 18.91-acre territory located at 2170 Walker Road NE and 4893 Sunnyview Road NE, including a Minor Comprehensive Plan Map Amendment to Multi-Family Residential and Zone Change to RM-II (Multiple Family Residential) for approximately six acres of the southern portion of 2170 Walker Road NE.
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ISSUE:
Shall City Council approve the annexation of the territory located at 2170 Walker Road NE and 4893 Sunnyview Road NE, including application of RS (Single Family Residential) zoning to the property at 4893 Sunnyview Road NE and RA (Residential Agriculture) zoning to the northern approximate 12.49 acres of the property at 2170 Walker Road NE, a Minor Comprehensive Plan Map Amendment to Multiple Family Residential and Zone Change to RM-II (Multiple Family Residential) for the southern approximate six acres of the property at 2170 Walker Road NE, and withdrawal of the territory from the Marion County Fire District No. 1 and East Salem Sewer and Drainage District, and advance to first reading?
RECOMMENDATION:
recommendation
Approve the annexation of the territory located at 2170 Walker Road NE and 4893 Sunnyview Road NE, including application of RS (Single Family Residential) zoning to the property at 4893 Sunnyview Road NE and RA (Residential Agriculture) zoning to the northern approximate 12.49 acres of the property at 2170 Walker Road NE, a Minor Comprehensive Plan Map Amendment to Multiple Family Residential and Zone Change to RM-II (Multiple Family Residential) for the southern approximate six acres of the property at 2170 Walker Road NE, and withdrawal of the territory from the Marion County Fire District No. 1 and East Salem Sewer and Drainage District, and advance to first reading.
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FACTS AND FINDINGS:
1. Proposal
The proposal under review is an application for the annexation of property located at 2170 Walker Road NE, submitted by Brandie Dalton, of Multi/Tech Engineering, on behalf of the applicant, Woodhill Homes, Inc., and property owner, Roth East Side, LLC; together with the annexation of an adjacent property located at 4893 Sunnyview Road NE, requested by the owners of that property, Kim and Denise Currey. A vicinity map identifying the location of the properties is included as Attachment 1. The map and legal description identifying the territory proposed for annexation are included in Attachment 2.
Under SRC 260.030, when land is annexed it is automatically given zoning designations that are equivalent to, and implement, its current Salem Area Comprehensive Plan designation, unless the petitioner or City Council propose a different Comprehensive Plan or zoning designation. In this case, RS (Single Family Residential) zoning is proposed to automatically apply to the property at 4893 Sunnyview Road NE and RA (Residential Agriculture) zoning is proposed to automatically apply to the northern approximate 12.49 acres of the property at 2170 Walker Road NE. The petitioners for 2170 Walker Road NE, however, have also requested a different Comprehensive Plan and zoning designation to be applied to the southern approximate six acres of the property at 2170 Walker Road NE upon annexation and request that the Comprehensive Plan designation for this portion of the property be changed from Developing Residential to Multiple Family Residential (Attachment 3) and the zoning be changed to RM-II (Multiple Family Residential (Attachment 4).
The properties are currently served by Marion County Fire District No. 1 and the East Salem Sewer and Drainage District. The territory will be withdrawn from these districts upon annexation; the City will provide these services.
2. Summary of Record
The following items are submitted to the record and are available: 1) All materials submitted by the applicant, including any applicable professional studies such as traffic impact analysis, geologic assessments, and stormwater reports; 2) Any materials, testimony, and comments from public agencies, City Departments, neighborhood associations, and the public; and 3) All documents referenced in this report.
All application materials are available on the City’s online Permit Application Center at <https://permits.cityofsalem.net>. You can use the search function without registering and enter the permit number listed here: 25 106393.
3. Notice
Mailed Notice: Pursuant to SRC 300.720(b)(2)(A)(ii), mailed notice was provided as required on March 26, 2026.
Posted Notice: Pursuant to SRC 300.720(b)(3)(A) & (B), notice of the annexation was posted on the subject property, in the Salem Public Library, the west Salem branch of the Public Library, and at the City’s Permit Application Center at 440 Church Street SE.
Newspaper Notice: Pursuant to SRC 300.720(b)(4), notice of the annexation was published in the Salem Reporter on April 2, 2026, and April 9, 2026.
Notice to Potential Enclaved Property: Pursuant to SRC 300.720(b)(2)(A)(ii)(ee), mailed notice is required to all property owners whose property would become an enclave as a result of the annexation. As identified on the annexation territory map (Attachment 2), the territory proposed for annexation will not result in the creation of an enclave. As such, enclave property owner notice required under SRC 300.720(b)(2)(A)(ii)(ee) is not applicable.
4. Neighborhood Association and Public Comments
Neighborhood Association Comment: The subject properties are located contiguous to the boundaries of the North Lancaster Neighborhood Association (NOLA); and the East Lancaster Neighborhood Association (ELNA) is located adjacent to the subject properties across Sunnyview Road NE to the south.
Notice of the application was provided to both the NOLA Neighborhood Association and the ELNA Neighborhood Association, pursuant to SRC 300.720(b)(2)(A), for both this public hearing and the initial public hearing before the Planning Commission. As of the date of completion of this staff report, no new comments have been received from the neighborhood associations. During the initial public hearing before the Planning Commission, comments were received from the NOLA Neighborhood Association expressing concerns pertaining to the following issues:
A. Impact of multi-family development on long-standing character of neighborhood. The comment received from the neighborhood association indicates that most of the community in the area has been zoned for single-family homes for decades and this long-standing zoning has shaped the character and culture of the neighborhood as one rooted in stability, connection, and family investment. Introducing a high-density, multi-family complex into the area will fundamentally alter that balance and place significant strain on infrastructure that is already overburdened.
Staff Response: As indicated in the comment received, the area surrounding the subject property is predominantly characterized by land zoned RS (Single Family Residential) and RA (Residential Agriculture), which was traditionally primarily intended for single family detached dwellings. However, as a result of statewide housing deficiencies, state laws have changed to require cities to allow increased housing development, including the allowance of increased housing densities and increased varieties of housing types in areas traditionally zoned primarily for single-family uses. As such, the City’s RA and RS zones now allow not only single-family dwellings but also “middle housing,” which consists of attached townhouses, two family uses, three family uses, four family uses, and cottage clusters of up to 12 units on a lot.
In addition, the housing goals and policies of the City’s Comprehensive Plan promote and encourage a variety of housing types at various densities to be provided throughout the City to meet the City’s housing needs. As identified in the findings included in this report, the Mult-Family Residential land use designation of the Comprehensive Plan is intended to, “…promote medium and high-density housing distributed across the Salem area. This designation is generally located near mixed-use and employment areas, low-density residential areas, major transportation corridors, transit routes, parks, and schools.”
As identified by the above intent of the Multiple Family comprehensive plan designation, multiple family designated and zoned land is not only envisioned to be located near mixed-use and employment areas, major transportation corridors, transit routes, parks, and schools, but also near low-density residential areas.
In this case, the Multiple Family comprehensive plan designation and RM-II zoning proposed for the southern portion of the property located at 2170 Walker Road NE is consistent with the Salem Area Comprehensive Plan since it is near two major transportation corridors in the form of Sunnyview Road NE (a Minor Arterial street) and Cordon Road NE (a Parkway); transit service is available to the site via Cherriots Route 5: Center Street with a transit stop located in close proximity to the site near the southwest corner of the intersection of Sunnyview Road and Walker Road; the site is near Cesar Chavez Elementary School to the north and in relative close proximity to Brown Road Park to the northwest; and while it’s located near a single-family zoned area, multiple family designated land is not envisioned as being incompatible with such areas under the comprehensive plan.
B. Increased traffic and congestion. The comment received indicates that roadways in the area are congested and unsafe - with an intersection near the proposed site having seen 11 fatalities in the last few years and safety challenges which persist for drivers and pedestrians on Walker Road despite the installation of speed humps. It is explained that adding nearly 100 single-family homes and up to 140 apartment units could introduce nearly 500 additional vehicles to area roads.
Staff Response: As part of the application, a Traffic Impact Analysis (TIA) was submitted to address the Transportation Planning Rule (TPR) requirements of OAR 660-012-0060. The TIA also evaluated the impacts of future development of the site, including 84 single-family homes and 120 multi-family dwelling units. The Traffic Impact Analysis found that all study intersections comply with City of Salem standards for level of service upon completion of the development. The TPR analysis found that the proposed rezone would not adversely impact the transportation system as defined by the requirements in OAR 660-012-0060). As such, no off-site mitigation is required by the TIA and TPR analysis.
At time of development, the applicant will be required to provide boundary street improvements along the frontage of the property if the provisions of SRC 803.040 (Boundary Streets) are met. This will can include pavement widening, construction of bike lanes, curbs, and sidewalk, depending on the abutting roadway classification. Construction of transit stops is also required when requested through review of a land use application pursuant to SRC 803.035(r). These improvements are conditioned on the land use applications at time of development according to SRC 803.040 and are not required to be established as a condition of the annexation and comprehensive plan map change and zone change.
Congestion, as a whole, cannot be addressed by a single development. The proposed annexation and comprehensive plan map change and zone change has been found to meet the criteria applicable to the applications requested. At time of development, staff will review the applicable criteria and determine what improvements are required for the development proposed on the site. The Salem Transportation System Plan (TSP) provides guidance for how to address the impacts of growth citywide. Cumulative impacts of growth that affect overall traffic patterns are addressed through collection of System Development Charges (SDCs). The eventual development on the property will pay Transportation SDCs that are collected and used to pay for street improvements that add capacity to mitigate impacts of growth city-wide.
C. Impact on school capacity. The comment received indicates that area schools are operating beyond capacity, with class sizes growing each year.
Staff Response: Facility planning for school expansions and the development of new schools is conducted by the Salem-Keizer School District. The School District was notified of the proposal and provided comments. The School District indicated that future development of the property is projected to result in an increase in enrollment at the three schools which serve the property - Chavez Elementary School, Stephens Middle School, and McKay High School, but sufficient school capacity is currently projected to exist at the schools to accommodate the proposed increase in enrollment without exceeding school capacity.
D. Lack of reliable transit. The comment received indicates that there is a lack of reliable public transit to meet the needs of working families. It is explained that bus routes are limited, schedules are inconsistent, and access points are often too far from residential areas. As such, public transit is not a realistic or safe option for many residents for commuting to work, school, or essential services. Without improvements to transit infrastructure, higher-density housing will only deepen the inequities that already exist.
Staff Response: Transit service is currently available near the site via Route 5: Center Street on Sunnyview Road NE and Walker Road NE. The nearest transit stop for this route is located to the southwest of the subject property near the southwest corner of the intersection of Sunnyview Road NE and Walker Road NE. This route provides 15-minute weekday service levels.
E. Shortage of essential services. The comment received indicates that grocers, pharmacies, and health care providers are already stretched thin and adding hundreds of new residents without significant infrastructure investment will only worsen these conditions.
Staff Response: Increased housing densities help to provide a variety of housing types to serve the housing needs of the City’s diverse population. Where there are more people present living in an area, there is the potential for increased market demand for specific needed goods and services. Where there is increased market demand, there is also the potential for existing businesses to expand or new businesses to be created to respond to that increased demand. While the proposal cannot directly be required to provide additional grocery stores, pharmacies, health care providers, and other similar services, increased housing densities, as proposed with this application, can help to make investments in such businesses more economically feasible in the future.
F. Existing multi-family vacancies. The comment received indicates that numerous multi-family complexes throughout northeast Salem (both new and established) have been observed displaying “for lease” and “vacancy” signs raising the questions of if there is such a high demand for apartment rentals, why are many existing complexes struggling with tenant retention; and whether more multi-family housing is truly needed in the area or whether development is being driven by short-term gain rather than long-term community stability.
Staff Response: Statewide planning Goal 10 (Housing) requires cities to maintain a 20-year supply of residential land to meet the housing needs of their populations. The City’s adopted 2015 Housing Needs Analysis (HNA) determined residential land needs for a 20-year period from 2015 to 2035. Based on an analysis of current and future housing trends, the HNA identified a deficit in both multi-family designated land and multi-family housing units within Salem’s portion of the Urban Growth Boundary (UGB) within the 20-year planning horizon.
On August 24, 2022, a series of amendments to the City’s Comprehensive Plan, Comprehensive Plan Map, and zoning map associated with a multi-year project to update the City’s Comprehensive Plan, known as the Our Salem project, went into effect. These changes included revising, updating, and establishing new Comprehensive Plan goals and policies and redesignating the comprehensive plan map and zoning designations of various properties throughout the City to comply with Statewide Planning Goals, meet the City’s projected land supply needs, and provide an updated vision for the growth and development of the City.
Included with these changes were a variety of new Comprehensive Plan goals and policies, and redesignations of land, that align with and advance the recommendations of the adopted HNA to increase opportunities for development of multi-family and affordable housing within the City through such measures as lowering barriers to multi-family development, redesignating and rezoning land for multifamily housing, and increasing redevelopment activity and mixed-use development. As a result, the changes adopted as part of the Our Salem Project act to overall increase the amount of land available for housing and meet the projected housing needs of the adopted HNA.
However, because some of the land redesignated to meet the City’s projected deficit of multi-family is apportioned to land designated and zoned for mixed-use, which allows, but does not require, multi-family development, the proposed minor comprehensive plan map amendment to change the property’s designation to “Multiple Family Residential” will further increase the City’s multi-family land supply and support the further compliance with the adopted HNA and compliance with Statewide Planning Goal 10 by increasing the amount of land inventory within Salem’s portion of the UGB that generally requires, and is intended to be developed for, multi-family housing.
Homeowners’ Association: SRC 300.720(b)(2)(A) requires notice to be provided to any active and duly incorporated Homeowners’ Association (HOA) applicable to the property. The subject property is not located within a Homeowners’ Association.
Public Comment: Notice was provided, pursuant to SRC 300.720(b)(2)(A), to all property owners and tenants within 250 feet of the subject property for both this public hearing and the initial public hearing before the Planning Commission. As of the date of completion of this staff report, no new comments have been received. During the initial public hearing before the Planning Commission, public comments were received expressing concern regarding the following issues:
A. Neighborhood impacts. Concern is raised regarding the impact that proposed multi-family development will have on neighborhood safety; increased traffic congestion; crime; and noise, dust, and debris from future construction activities on the property. Various examples are provided illustrating existing neighborhood impacts and concern is expressed that such impacts will be exacerbated with higher density housing located on the subject property. It is explained that an apartment complex does not fit in the neighborhood and the site would be better developed with less homes, and duplexes instead of apartments.
Staff Response: In regard to the potential for crime and impacts on neighborhood safety, theft or other illegal activity is a police matter that is required to be addressed by the Salem Police Department, which has law enforcement jurisdiction within the City.
In regard to impacts from noise and construction activity, noise disturbances are prohibited by SRC Chapter 93, and construction activities are specifically limited to the hours of 7 a.m. to 10 p.m. by SRC 93.020(d). The level of allowable noise during construction activities is also limited by state law. SRC 93 prohibits idling engines on motor vehicles in a manner that is plainly audible within any dwelling unit for more than 10 minutes between the hours of 10 p.m. and 7 a.m. The management of dust and runoff during construction activities is regulated under SRC Chapter 75 (Erosion Prevention and Sediment Control). The standards of this chapter are intended to minimize site erosion and sediment runoff during construction, land development projects, and ground disturbing activities. In addition, the standards of the chapter (per SRC 75.130) also require dust suppression measures to be utilized to minimize, to the extent practicable, the impacts of dust during the on-site construction process.
As identified earlier in this report, the Multiple Family comprehensive plan designation and RM-II zoning proposed for the southern portion of the property located at 2170 Walker Road NE is consistent with the Salem Area Comprehensive Plan since it is near two major transportation corridors in the form of Sunnyview Road NE (a Minor Arterial street) and Cordon Road NE (a Parkway); transit service is available to the site via Cherriots Route 5: Center Street with a transit stop located in close proximity to the site near the southwest corner of the intersection of Sunnyview Road and Walker Road; the site is near Cesar Chavez Elementary School to the north and in relative close proximity to Brown Road Park to the northwest; and while it’s located near a single-family zoned area, multiple family designated land is not envisioned as being incompatible with such areas under the comprehensive plan.
B. Traffic impacts on Walker Road. Comments, along with a petition, were received expressing concern about the impacts the proposed future development of the property will have on Walker Road if all vehicular access to the development is taken from Walker Road. It is explained that if all of the traffic generated by the development will only use Walker Road for ingress and egress to the homes and apartments, the intersection of Sunnyview Road and Walker Road will experience a significant number of backed up vehicles during peak hours which will make it much harder for vehicles on Walker Road to get onto Sunnyiew Road and for vehicles on Sunnyview Road to turn onto Walker Road. Because of this, an additional point of access from the development onto Sunnyview Road is recommended to help mitigate some of the increased traffic that will occur on Walker Road. It is explained that the access road could potentially align with Hoffman Road, which intersects Sunnyview Road at the center of the subject property’s southern frontage.
Staff Response: The scope of what is being reviewed with this proposal is whether the identified territory should be annexed into the City and whether the requested Multiple Family Comprehensive Plan designation and associated RM-II zoning should be applied to the southern six acres of the property at 2170 Walker Road NE. Specific points of access from the property to abutting streets will be reviewed at the time of future development. The future development of the property will require subsequent subdivision approval, to create individual home lots, as well as site plan review and multiple family design review approval, for the multiple family portion of the site. At the time of these subsequent required land use approvals, the development will be reviewed for conformance with the applicable standards of the development code, which include requirements for street access and connectivity from the development to surrounding streets. Any proposed access from the property to Sunnyview Road will need to be reviewed for potential impacts to Sunnyview Road and to ensure it will not interfere with the operation of the existing traffic signal at the Sunnyview Road and Cordon Road intersection. Such considerations will be made at the time future land use review and approval for development of the property.
5. City Department Comments
There were no concerns indicated by City Departments.
Development Services Division: The Development Services Division reviewed the proposal and provided comments pertaining to City infrastructure required to serve the property (Attachment 5). The Development Services Division indicates that the property is located outside the City’s Urban Service Area and will require an Urban Growth Preliminary Declaration at the time of future development in order to provide required linking and boundary public facilities to serve the subject property.
Building and Safety Division: The Building and Safety Division reviewed the proposal and indicated they have no comments.
Fire Department: The Salem Fire Department reviewed the proposal and indicated that the estimated response time to this location is approximately five minutes and 20 seconds from receipt of call. Primary fire protection and EMS services would be provided from Fire Station No. 08, located at 4000 Lancaster Drive NE. Secondary emergency response would be from Fire Station No. 03, located at 1884 Lansing Avenue NE.
The territory will be withdrawn from Marion County Fire District No. 1 upon annexation.
Police Department: The Police Department received notice of the proposal and submitted no comments.
Finance Department: The Finance Department reviewed the proposal and provided comments regarding property tax limits, rates, and other information related to the financial impacts of annexation (Attachment 6).
6. Public Agency Comments
A. Salem-Keizer School District: The Salem-Keizer School District reviewed the proposal and provided comments that are included as Attachment 7. The School District indicates, in summary, that the property is served by Chavez Elementary School, Stephens Middle School, and McKay High School. The School District identifies sufficient existing school capacity at Chavez Elementary School, Stephens Middle School, and McKay High School to accommodate the projected increase in student enrollment resulting from the future development of the property.
The School District indicates that students are within the walk zone of Chavez Elementary School and McKay High School, and that students are eligible for school provided transportation to Stephens Middle School.
B. Marion County Public Works: The Marion County Public Works Engineering Division reviewed the proposal and provided comments indicating that:
§ Direct access to Cordon Road for the development will not be authorized;
§ They support including Sunnyview Road in the proposed annexation territory, as depicted;
§ If Sunnyview Road is ultimately not included in the annexation approval and therefore remains under County jurisdiction, the County would not support direct Sunnyview Road access as it is classified as a city Minor Arterial;
§ At the time of future land use approval for subsequent development of the property, the developer should be conditioned to enter into a development agreement with Marion County for Cordon Road frontage improvements and Sunnyview Road intersection improvements, plus right-of-way dedication proportional to anticipated development impacts, and in a manner that is acceptable to the County and Developer.
Staff Response: The proposed annexation and the comprehensive plan map amendment and zone change to the southern six acres of the property at 2170 Walker Road NE do not include any specific development proposals at this time but instead seek approval to annex the identified properties into the City of Salem with zoning designations consistent with their current comprehensive plan designations, with the exception of the southern six acres of the property at 2170 Walker Road which is proposed to have its comprehensive plan designation changed to Multiple Family Residential and zoning changed to RM-II (Multiple Family Residential) upon annexation into the City.
Points of access to abutting streets, required boundary street improvements, and other aspects of development will be determined at a future date after annexation of the properties into the City of Salem and specific development is proposed. Any proposed future development of the subject properties will be required to go through necessary land use approvals and will be reviewed for conformance with the applicable standards of the City’s development code and the applicable standards of the County’s development code, where the County retains jurisdiction - such as with access and improvement requirements on Cordon Road and the intersection of Sunnyview Road which fall outside the Urban Growth Boundary and are therefore under County control.
7. Voter Approval
Pursuant to SRC 260.010(d)(2), voter approval is not required if the annexation request meets one of the following criteria:
(A) The annexation is being made pursuant to an annexation agreement effective prior to May 16, 2000;
(B) The annexation is necessitated by a failing septic system or health hazard; or
(C) The annexation, notwithstanding the Salem City Charter, complies with all of the following requirements:
(i) The annexation petition request is signed by all owners of the property proposed to be annexed;
(ii) The territory proposed for annexation is within the urban growth boundary;
(iii) The territory proposed for annexation is subject to an acknowledge comprehensive plan upon annexation; and
(iv) At least one lot within the territory proposed for annexation is contiguous to the City limits.
Finding: The proposed annexation is exempt from voter approval pursuant to SRC 260.010(d)(2)(C)(i)-(iv). The territory proposed for annexation includes two properties. The property at 2170 Walker Road NE is owned by Roth East Side, LLC, and the property at 4893 Sunnyview Road NE is owned by Kim and Denise Currey. Both the authorized member of Roth East Side, LLC, and Kim and Denise Currey have signed the required annexation petitions. The properties are located within the Salem Urban Growth Boundary and subject to Salem’s acknowledged Comprehensive Plan. The properties are also contiguous to the City limits. The territory is therefore exempt from voter approval.
8. Analysis of Annexation Approval Criteria
Salem Revised Code (SRC) 260.010(g)(2)(A) sets forth the following criteria that must be met before approval can be granted to a request for an Annexation with a minor comprehensive plan map amendment or quasi-judicial zone change.
SRC 260.010(g)(2)(A)(i): The annexation will result in a boundary in which services can be provided in an orderly, efficient, and timely manner.
Finding: The proposed annexation is for a territory approximately 18.91 acres in size. The annexation of unincorporated territory contiguous to the city limits will result in urban services being provided in a more orderly, efficient, and timely manner. Unincorporated territory adjacent to the city limits prevents the orderly expansion of City services because gaps are created in the city’s infrastructure, and services within those gaps must be provided by the county, or by the City pursuant to intergovernmental or other agreements. This results in inefficiencies due to discontinuous and fragmented methods of providing infrastructure, as well as additional delays for any development proposal. The boundary resulting from the proposed annexation will provide a more compact and efficient urban form for providing urban services, because the services will be integrated into the existing city infrastructure that exists in the surrounding area, and potential jurisdictional conflicts will not exist. The proposed annexation complies with this criterion.
SRC 260.010(g)(2)(A)(ii): The land uses and development densities that will be allowed can be served through the orderly, efficient, and timely extension of key urban facilities and services.
Finding: Comments provided by the various City departments indicate that the territory proposed for annexation can be served through the orderly, efficient, and timely extension of key urban facilities and services as outlined in the City’s adopted master plans, Capital Improvement Plan (CIP), and Public Works and Parks design and construction standards. No improvements to urban facilities and services are needed at this time to serve the territory but as land within the territory is developed, necessary urban facilities and services and site-specific infrastructure will be identified and required to be provided in accordance with the city’s adopted master plans, CIP, and Urban Growth Management process as set forth in SRC Chapter 200.
The territory proposed for annexation lies outside the City’s Urban Service Area. Pursuant to the City’s adopted growth management program found in SRC 200, an Urban Growth Area (UGA) Preliminary Declaration will be required to provide adequate public facilities, including water, sewer, stormwater, transportation, and park services, that may be necessitated by future development. The proposed annexation complies with this criterion.
SRC 260.010(g)(2)(A)(iii): The withdrawal of the territory from any applicable special districts complies with applicable state statutes governing the withdrawal of the territory from those districts.
Finding: When withdrawal from a special service district is not automatic, the City Council shall decide on withdrawal from those special service districts. These withdrawals shall be made according to applicable state statutes governing the specific withdrawal.
The territory is currently located within Marion County Fire District No. 1 and the East Salem Sewer and Drainage District. The City will withdraw the territory from Marion County Fire District No. 1 and the East Salem Sewer and Drainage District and the City will provide these services. ORS 222.520 establishes the process by which the territory may be withdrawn from service districts at the same time as the annexation. No Comprehensive Plan provision or implementing ordinance of the City applies to the withdrawal decision, and none is amended in the process of making the decision. In addition, the decision to withdraw the territory and serve the territory with City-supplied urban services rather than district-supplied services, does not have significant impacts on present or future land uses. Consequently, the withdrawal decision is not the kind of decision that requires application of land use laws.
SRC 260.010(g)(2)(A)(iv): The public interest is furthered by the annexation of the territory.
Finding: The proposed annexation of the territory conforms to the Salem Area Comprehensive Plan and City services can be provided consistent with the City’s adopted master plans. The city is expected to annex land within the Urban Growth Boundary over time to facilitate development commensurate with urban densities found within the city. The annexation of unincorporated territory contiguous to the city limits will result in urban services being provided in a more orderly, efficient, and timely manner and will allow urban levels of development. Therefore, the proposed annexation is in the public interest and complies with this criterion.
9. Land Use Designations Upon Annexation
Under SRC 260.030, when land is annexed it is automatically given zoning designations that are equivalent to, and implement, its current Salem Area Comprehensive Plan designation, unless the petitioner or City Council propose a different Comprehensive Plan or zoning designation. The current Comprehensive Plan designation for the property at 2170 Walker Road NE is Developing Residential and the Comprehensive Plan designation for the property at 4893 Sunnyview Road NE is Single Family Residential. Pursuant to SRC 260.030(a), Table 260-1, the Developing Residential designation results in the automatic application of RA (Residential Agriculture) zoning and the Single-Family Residential designation results in the automatic application of RS (Single Family Residential) zoning.
In this case, RS (Single Family Residential) zoning is proposed to automatically apply to the property at 4893 Sunnyview Road NE and RA (Residential Agriculture) zoning is proposed to automatically apply to the northern approximate 12.49 acres of the property at 2170 Walker Road NE. The petitioners for 2170 Walker Road NE, however, have requested a different Comprehensive Plan and zoning designation to be applied to the southern approximate six acres of the property at 2170 Walker Road NE and request that the Comprehensive Plan designation for this portion of the property be changed from Developing Residential to Multiple Family Residential and the zoning be changed to RM-II (Multiple Family Residential).
10. Analysis of Comprehensive Plan Map Amendment and Zone Change Approval Criteria
Salem Revised Code (SRC) 260.010(g)(2)(B) sets forth the following criteria that must be met before approval can be granted to a Minor Comprehensive Plan Map Amendment and Quasi-Judicial Zone Change in conjunction with an annexation:
SRC 260.010(g)(2)(B)(i): The proposed minor comprehensive plan map amendment compiles with the minor comprehensive plan map amendment approval criteria of SRC 64.025(e)(2), when the annexation includes a minor comprehensive plan map amendment.
SRC 260.010(g)(2)(B)(ii): The proposed quasi-judicial zone change complies with the quasi-judicial zone change approval criteria of SRC 265.005(e), when the annexation includes a quasi-judicial zone change.
On November 4, 2025, a public hearing was held with the Planning Commission to consider the Minor Comprehensive Plan Map Amendment and Quasi-Judicial Zone Change requested by the applicant and the Planning Commission subsequently voted to recommend City Council approval of the requested Multiple Family Residential Comprehensive Plan designation and RM-II zoning for the southern six acres of the property at 2170 Walker Road NE. Findings in support of the requested Minor Comprehensive Plan Map Amendment and Quasi-Judicial Zone Change are included in the Planning Commission’s decision which is included as Attachment 8 to this report and incorporated herein by reference.
The Multiple Family Residential Comprehensive Plan designation and RM-II zoning requested with the annexation comply with the approval criteria of SRC 64.025(e)(2) and SRC 265.005(e) and will further increase the City’s multi-family land supply and support the City’s further compliance with the adopted Housing Needs Analysis (HNA) and compliance with Statewide Planning Goal 10 - Housing by increasing the amount of land inventory within Salem’s portion of the UGB that generally requires, and is intended to be developed for, multi-family housing.
Future development of the property will be required to conform to the applicable standards of the City’s development code, including the multiple family design review standards of SRC Chapter 702, which ensure that development occurs in a manner that minimizes any potential impacts, and promotes compatibility, between the development and uses on adjacent land.
BACKGROUND:
Land located within the Urban Growth Boundary (UGB) but outside of the city limits is designated as urbanizable land under Statewide Planning Goal 14. Urbanizable land is land that is determined to be necessary and suitable for future urban areas, that can be served by urban services and facilities, and that is needed for the expansion of an urban area. The city is expected to annex land within the UGB over time to provide for facilities or activities which are related to or supportive of urban development such as residential, commercial, and industrial development as well as such things as sewage treatment facilities, water reservoirs or wells, parks, and recreational facilities.
Bryce Bishop
Planner III
Attachments:
1. Vicinity Map
2. Territory Map and Legal Description
3. Comprehensive Plan Map
4. Zoning Map
5. Development Services Division Comments
6. Finance Department Comments
7. Salem-Keizer School District Comments
8. Planning Commission Recommendation (November 12, 2025)