HomeMy WebLinkAbout2026-09-08_Planning PACKET
Planning Commission Meeting Agenda
ASHLAND PLANNING COMMISSION
REGULAR MEETING AGENDA
Tuesday, September 8, 2026
Note: Anyone wishing to speak at any Planning Commission meeting is encouraged to do so. If you
wish to speak, please rise and, after you have been recognized by the Chair, give your name and
complete address for the record. You will then be allowed to speak. Please note the public testimony
may be limited by the Chair.
I.CALL TO ORDER - EXECUTIVE SESSION - 6:30
Civic Center Council Chambers, 1175 E. Main Street
The Ashland Planning Commission will convene in executive session pursuant to ORS
192.660(2)(f), to consider information or records that are exempt by law from public
inspection. This portion of the meeting is closed to the public. Representatives of the news
media may attend but must not disclose information that is the subject of the session. No
final decision or action will be made during the executive session.
II.RECONVENE IN OPEN SESSION - 7:00pm
Civic Center Council Chambers, 1175 E. Main Street
The remainder of the meeting, beginning here, is open to the public.
III.ANNOUNCEMENTS
1.Staff Announcements
2.Advisory Committee Liaison Reports
IV.CONSENT AGENDA
Approval of Minutes
1.August 25, 2026 Regular Meeting Minutes
V.PUBLIC FORUM
Note: To speak to an agenda item in person you must fill out a speaker request form at the meeting
and will then be recognized by the Chair to provide your public testimony. Written testimony can be
submitted in advance or in person at the meeting. If you wish to discuss an agenda item
electronically, please contact PC-public-testimony@ashland.or.us by 10:00 a.m. on September 8,
2026 to register to participate via Zoom. If you are interested in watching the meeting via Zoom,
please utilize the following link: https://zoom.us/j/92744333576
VI.LEGISLATIVE PUBLIC HEARING - CONTINUED
PLANNING ACTION: PA-L-2026-00020
APPLICANT:City of Ashland
ORDINANCE REFERENCES: AMC 18.5.3.060: Additional Preliminary Flag Lot Partition Plat Criteria
REQUEST: The proposal before the Planning Commission is a draft ordinance amending AMC
18.5.3.060 to establish a variance process for flag drive and driveway grades serving legal lots of
record created before the City adopted its Hillside Development Standards in 1997, and a request
to forward a recommendation to the City Council. The amendment was originally included in the
Senate Bill 974 implementation package (draft Ordinance No. 3307) and has been separated into
a standalone ordinance, draft Ordinance No. 3309, so that it can be considered on its own merits.
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Planning Commission Meeting Agenda
VII.DISCUSSION ITEM
Initial discussion of Council-directed Chapter 18 code amendments proposed by Councilors Sherrell
and Dahle
VIII.OPEN DISCUSSION
IX.ADJOURNMENT
Next Meeting Date: September 22, 2026
If you need special assistance to participate in this meeting, please contact Derek Severson at
planning@ashlandoregon.gov or 541.488.5305 (TTY phone number Notification at least three
business days before the meeting will enable the City to make reasonable arrangements to ensure accessibility
to the meeting in compliance with the Americans with Disabilities Act.
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Planning CommissionMinutes
Note: Anyone wishing to speak at any PlanningCommission meeting is encouraged to do so. If you wish to speak, please rise and, after you
have been recognized by the Chair, give your name and complete address for the record. You will then be allowed to speak. Please note the
public testimony may be limited by the Chair.
August 25, 2026
REGULAR MEETING
DRAFT Minutes
I.CALL TO ORDER:
Chair Vernercalled the meeting to order at 7:00 p.m.at theCivic Center Council Chambers, 1175 E.
Main Street.
Commissioners Present: Staff Present:
Lisa Verner Brandon Goldman, CommunityDevelopment Director
Jay Lininger Derek Severson, Planning Supervisor
Kerry KenCairn Michael Sullivan, Executive Assistant
Susan MacCracken Jain
John Maher
Eric Herron
Absent Members: Council Liaison:
Russell Phillips Jeff Dahle (via Zoom)
II.ANNOUNCEMENTS
1.Staff Announcements
Community Development Director Brandon Goldman made the following announcements:
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At itsAugust 18meetingthe City Council approved first reading of Ordinance 3307 (Senate
Bill 974 / HB 4307 / HB 2138 compliance package), but did not adopt the Planning
Commission's prior recommendations regarding the 20-lot threshold or the tiered notice
area approach.
The Council directed Councilors Sherrell and Dahle to draft broader housing code
amendments covering 18 identified areas, with a Planning Commission hearing scheduled for
November 10th and Council consideration on November 17th.
2.Advisory Committee Liaison Reports – None
III.CONSENT AGENDA
Approval of Minutes
1.August 11, 2026 Regular Meeting
Commissioners Maher/Liningerm/s to approve the consent agenda as presented.Commissioner
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MacCracken Jain abstained due to her absence from the August 11meeting.Voice Vote:
Commissioners KenCairn, Maher, Lininger, Herron, and Verner: AYE. Motion Passed 5-0.
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IV.PUBLIC FORUM – None
V.LEGISLATIVE PUBLIC HEARING - CONTINUED
PLANNING ACTION:PA-L-2026-00020
APPLICANT: City of Ashland
ORDINANCE REFERENCES: AMC 18.5.3.060: Additional Preliminary Flag Lot Partition Plat Criteria
REQUEST: The proposal before the Planning Commission is a draft ordinance amending AMC
18.5.3.060 to establish a variance process for flag drive and driveway grades serving legal lots of
record created before the City adopted its Hillside Development Standards in 1997, and a request
to forward a recommendation to the City Council. The amendment was originally included in the
Senate Bill 974 implementation package (draft Ordinance No. 3307) and has been separated into
a standalone ordinance, draft Ordinance No. 3309, so that it can be considered on its own merits.
Chair Verner noted that a number of public comments had been submitted into the record after the
packet had been posted (see attachment #1), as well as a memo that had been provided by
Commissioner Lininger (see attachment #2).
Staff Presentation
Planning SupervisorDerek Severson summarized the revised draft ordinance language distributed in
the staff report. Key provisions included: a general 15% grade standard (F1); a variance up to 18% for
lots created after 1997 (F2); a variance potentially up to 25% for pre-1997 lots of record (F3, with the
upper limit presented as an option for Commission consideration); a 200-foot cumulative length
limitation on sections exceeding 15% (F4); fire code compliance requirements (F5); and tailored
variance criteria referencing engineer-stamped drawings and site-specific conditions (F6). Staff
also addressed the question of ownership triggers, recommending against tying relief to continuous
ownership since land use rights in Oregon customarily run with the land, not with a particularowner
(see attachment #3).
Questions of Staff
Commissioners asked clarifying questions regarding the variance process under AMC 18.5.5, fire
code review, the 200-foot length limit, and the scope of the 13 potentially affected lots. Staff
confirmed that variances would be application-specific, that thefire code official would provide a
recommendation in every case, and that the 200-foot standard was drawn from existing code. Staff
further noted that all prior variances exceeding 18% had been approved on the interpretation that
the flag drive standard applied only to newly created lots—an interpretation LUBA rejected in April
2026. CommissionerKenCairnnoted that she had personally processed three to four such variances
in the past under that prior interpretation.
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planning@ashland.or.us. Notification 72 hours prior to the meeting will enable the City to make reasonable arrangements to
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Planning CommissionMinutes
Commissioner Herron askedwhether the 13 lots were held by multiple different owners; staff
confirmed they were spread among individual owners, with some owned by neighboring property
owners.
Public Comments
The following speakers spoke in opposition to the ordinance:
Jay Reeckvia Zoom
Emil Sadofsky, representing Hutchinson Coxvia Zoom
Ronald Parker – Mr. Parker stated that his written submittal had not been included in the
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meeting packet materials. Note: Mr. Parker’s written comments were received on August 10
by staff and forwarded to the Planning Commissionthat same dayas a late addition tothe
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August 11Planning Commission meetingpacket.
Troy Brown
David Oursler
Chair Verner closed the Public Hearing and Public Record at 7:51pm.
Deliberations and Decision
Commissioner KenCairn expressed support for some form of variance procedure, asserting that pre-
1997 lots had been rendered effectively unbuildable by LUBA's ruling and that requiring a variance
process was not special treatment, but rather a recognition of a longstanding gap in the code.
Commissioner Maher delivered an extended statement urging rejection of the ordinance. He argued
that the amended language remained substantively the same as what the Commission
unanimously rejected on August 11th; that the proposed 25% cap and 200-foot length limit appeared
sized to fit a single known application; that seven of the thirteen lots had changed hands since 1997;
that these lots are not counted in the City's buildable lands inventory or needed to meet housing
capacity goals; that variance decisions on such lotswould largely be made administratively with no
public right of appeal; and that Ashland's prior experience with development on Granite Street
illustrated the community disruption such development could cause. He concluded that the
ordinance was unnecessary and contrary to the comprehensive plan, the Community Wildfire
Protection Plan, and the Housing Capacity Analysis.
Commissioner Liningerstated that some variance procedure was warranted to protect the City from a
plausible federal takings claim, since lots platted to abut a public road carry a common-law right of
access that cannot be extinguished without compensation. He also noted that the related Oregon
Court of Appeals case (Eisenberg) had oral argument two days prior to this meeting and remained
pending, suggesting the Commission allow time for that decision before finalizing a recommendation.
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planning@ashland.or.us. Notification 72 hours prior to the meeting will enable the City to make reasonable arrangements to
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Planning CommissionMinutes
He emphasized his preference for a variance procedure with a clear and objective cap consistent with
the Comprehensive Plan.
Commissioner Herron asked whether the City Attorney had weighed in on the taking question; staff
confirmed that the City Attorney's office, while not present at this special meeting, had advised that
grandfathered rights run with the land rather than with ownership, consistent with the staff report.
Commissioners Maher/KenCairn m/s to recommend to the City Council that no ordinance
amendment be made. Roll Call Vote: Commissioners KenCairn, Maher, and Verner: AYE.
Commissioners Lininger, Herron, andMacCracken Jain: NAY. Motion Failed 3-3.
Commissioners Lininger/KenCairn m/storecommend that the City Council approve first reading
of draft Ordinance No. 3309 as amended in the August 25th staff report.
AMENDMENT #1:Commissioners KenCairn/Maher m/s to amend the motion to change the
upper grade cap in Section F3 from 25% to 20%with a variance.
DISCUSSION OF THE AMENDMENT: Commissioner MacCracken Jain requested clarification on
the reasoning for the 20% limit. Commissioner KenCairn responded that this is consistent with
the existing precedent and her own experience.
Roll Call Vote on Amendment #1: CommissionersLininger,KenCairn,and Verner: AYE.
Commissioners Herron, Maher, andMacCracken Jain: NAY. Motion Failed 3-3.
AMENDMENT #2: Commissioners Maher/Lininger m/s to reduce the cumulative length limit
in Section F4 from 200 feet to 100 feet.
DISCUSSION OF THE AMENDMENT: CommissionerHerron stated that the Commission should
exercise caution to avoid prejudice against any particular property. Commissioner Lininger
noted that this is a recommendation to Council, which will have its own deliberations, as will
the Oregon Appeals Court of the Eisenberg case.
Roll Call Vote on Amendment #2: CommissionersLininger andKenCairn. AYE.
Commissioners Herron, Maher, andMacCracken Jain ,and Verner: NAY. Motion Failed 2-4.
Roll Call Voteon Original motion: Commissioners MacCracken Jain, Lininger, and Verner: AYE.
Commissioners Herron,KenCairn, and Maher: NAY. Motion Failed 3-3.
Commissioners Lininger/Herron m/s to reopen the Public Record and to continue the Public
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Hearing to the September 8Planning Commission meeting.
DISCUSSION OF THE MOTION: Commissioner Maher expressed concern that reopening the record
would invite additional attorney correspondence, while Commissioner Lininger clarified that the
purpose was deliberative rather than to solicit new testimony. Staff confirmed that continuing
deliberation with the record closed was also an option, but noted that any input from the City
Attorney would technically constitute new information in the record if submitted in writingand
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planning@ashland.or.us. Notification 72 hours prior to the meeting will enable the City to make reasonable arrangements to
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Planning CommissionMinutes
necessitatethe record being reopened in order to be submitted. Commissioner Lininger withdrew
the motion, but Commissioner Herron declined to withdraw his second and after further discussion
Commissioner Lininger reasserted his support for the motion.
Roll Call Vote: Commissioners MacCracken Jain, Lininger,KenCairn, Herron, and Verner: AYE.
Commissioner Maher: NAY. Motion Passed 5-1.
The PublicRecordwas reopenedat 8:53pmand the Public Hearing was continued to the September
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8Planning Commission meeting.
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The Commission requested that a member of the City Attorney’s office attend the September 8
meeting or that a written response be provided. Mr. Goldman stated that a request could be made
but that bothwould be up to the discretion of the Legal Department.
Commissioner MacCracken Jain called attention to the large number of public comments that were
submitted prior to the meeting, statingthat their late submittal gave little time for the Commission to
review them.Mr. Goldman notedthat public comments can be submitted right up to or duringpublic
meetings.
VI.OPEN DISCUSSION - None
VII.ADJOURNMENT
Meeting adjourned at 8:55p.m.
Submitted by,
Michael Sullivan, Executive Assistant
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Memo
DATE:September 8, 2026
TO:Planning Commissioners
FROM:Derek Severson, Planning Supervisor
RE:Continued Hearing on Ordinance No. 3309 Driveway Grades
Background
At the August 25, 2026, Planning Commission hearing on this matter, the Commission
failed to reach a consensus in moving a recommendation to Council forward. The
record was left open, and the hearing was continued until 7:00 p.m. on Tuesday,
September 8, 2026, to allow further consideration of the issues.
The “Takings Issue” was discussed at some length, and staff anticipate that Assistant
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City Attorney Carmel Zahran will be in attendance at the September 8meeting.
Options
In staff’s view, some potential approaches for the Planning Commission to consider
tonight include:
o Approve Ordinance #3309 (as previously presented or with amendments)
“I move that the Planning Commission recommend that the City Council
approve first reading of Ordinance No. 3309, titled ‘AN ORDINANCE RELATING TO
VARIANCES FOR FLAG DRIVE AND DRIVEWAY GRADES SERVING LEGAL LOTS OF
RECORD CREATED PRIOR TO THE ADOPTION OF THE HILLSIDE DEVELOPMENT
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STANDARDS; AMENDING AMC 18.5.3.060’, as amended in the August 25staff
report.”
o No Amendment Option
“I move that the Planning Commission recommend that the City Council
make no changes to the standards as currently written.”
Some considerations with the No Amendment Option include:
COMMUNITY DEVELOPMENTDEPARTMENT
51 Winburn WayTel: 541.488.5305
Ashland, Oregon 97520Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
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Leaves issues outstanding.
The current standard as determined by LUBA potentially renders a
number of pre-existing lots unbuildable.
The 231 Granite Street application will likely come back to the
Planning Commission and or City Council on remandand the issue
will then need to be addressed, one way or another, with some
urgency.
Leaves a potential takings risk for the City.
Information from Legal will be provided separately.
The Council is moving ahead with amendments to this section in short
order, regardless of the outcome of the Planning Commission’s
Ordinance No. 3309 hearing.
The first reading for Ordinance No. 3309 is scheduled for the October
6, 2026, City Council meeting.
The Council is also considering a number of Council-initiated Land
Use Ordinance amendments which are scheduled for first reading
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on November 17(see packet materials for September 8Planning
Commission meeting). These amendments will be before the
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Planning Commission for review on November 10. Unless resolved
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at the October 6first reading, the issue of driveway grades will be
among the amendments the Council considers separately from the
current discussion of Ordinance No. 3309.
Retaining the current standards as written is not an option currently
under consideration in the materials presented to staff by Council.
o Rely on the Fire Code Official’s Existing Authority Option
I movethat the Planning Commission recommend to the City Council that
AMC 18.5.3.060.F be amended to read:
COMMUNITY DEVELOPMENTDEPARTMENT
51 Winburn WayTel: 541.488.5305
Ashland, Oregon 97520Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
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“Flag drive grades shall not exceed a maximum grade of 15 percent.
Variances may be granted for flag drives for grades in excess of 15 percent
but no greater than 18 percent; provided,that the cumulative length of such
variances across multiple sections of the flag drive does not exceed 200 feet.
Such variances shall be required to meet all of the criteria for approval in
chapter18.5.5, Variances. Lots platted prior to December 3, 1997shall
not be subject to these grade standards, and shall be considered Fire
Apparatus AccessRoads subject to the review of the Fire Code Official.”
In 1997, the Hillside Ordinance envisioned that lots without a buildable area
of less than 35percent slope were nonetheless considered buildable for an
SFR (and ARU, or duplex) precisely to avoid the takings issue.
These lots are by definition buildable and the Fire Code already regulates
drives as fire apparatus accessroads subject to the Fire Code Official’s
review regardless of any land use decision.
For these pre-existing lots of record, the Commission could simply
recommend that the code make clear that flag drives are considered fire
apparatus access subject to the Fire Code Official’sapproval without
requiring separate discretionary land use review (other than any associated
hillside development permits where slopes in excess of 25 percent are to be
disturbed), whereas lots platted after the Hillside Ordinance took effect
would remain subject to current standards.
NextSteps
As noted, staff are requesting that the Planning Commission provide a
recommendation to Council before the first reading of the ordinance, now scheduled
for October 6, 2026.
REFERENCES & ATTACHMENTS
None.
COMMUNITY DEVELOPMENTDEPARTMENT
51 Winburn WayTel: 541.488.5305
Ashland, Oregon 97520Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
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LAST SALE DATES FOR 13 PROPERTIES IN QUESTION
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August 25, 2026
MEMORANDUM
d Planning Commission
TO: Ashlan
FR: Jay Lininger
RE: Proposed O (PA-L-2026-00020
I belie
ve the proposed ordinance amending the Ashland land use code is necessary because
leaving the code as-is would create a new level of certainty that none of the 13 lots at issue will
have reasonable access by private vehicles——even though the lots
1
a public street. The certainty of no access is new because, since 1997,
the city granted variances to the current grade standardreasoning that prior
2
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Leaving the land use code unchanged could ripen a taking claim under the 14 Amendment in
two scenarios: (1) if total loss of viable economic use as in Lucas; or else(2) if
3
use remains, as in Penn Central. Each
scenario is fact-dependent, and neither one is a slam-dunk, but a Lucas scenario would be
unfavorable to the city, and I believe we have a duty to sidestep that landmine.
Wnow realize that a variance procedure must treat all of the
3, 1997, the same regardless of the vintage of
1
See State ex. rel. Dept. Transp. v. Alderwoods
appurtenant for limited purpose of fee real estate property
2
PA-L-2026-00020, Aug. 11, 2026, p. 1.
3
See Lucas v. So. Carolina Coastal Council
causing total loss of viable economic use); Penn Central v. City of New York, 438 U.S. 104 (1978) (taking
claim of diminished property value, without total loss of economic use, subject to three-factor test);
Palazzolo v. Rhode Island, 533 U.S. 606, 620 (2001) (“landowner may not establish a taking
before a land-use authority has the opportunity, using its own reasonable procedures, to decide and
).
The “Nollan/Dolan at the August 11, 2026, business
proposed Ordinance 3309 because the ordinance would not interfere with
the property right of exclusive use by e.g., easement for access or
infrastructure) in exchange for approval of a development permit See Dolan v. City of
Tigard, 512 U.S. 374 (1994); Nollan v. Cal. Coastal Com’n, 483 U.S. 825 (1987); also see Tahoe-Sierra
, 302, 323-physical
takings from regulatory takings); Lingle v. Chevron USA, 544 U.S. 528 (2005) ( four scenarios
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estate on each lot. The common law of property in Oregon establishes a right of reasonable
access to any lot road in the form of an easement appurtenant that runs with
4
may development of the easement
.
5
for community welfare, but it cannot the easement without liability for taking.
Mo
reover, dthe lots at issue by establishment of current estate would not protect
the city from taking claims because the U.S. Supreme Court held that one state’s
remedy for government
taking of property would be available property owners with the passage
6
7
for someof the reasons stated in the report, and for the reasons statedabove.
before December 3, 1997, in order to protect taxpayers from liability for taking private property,
what should the approval criteria include?
AMC 18.5.5.050
apply the limit of 100-new driveway on slopes greater than 35 percent
stated in AMC 18.3.10.090.A.3.b. If the variance approval criteria do not apply that limit on
driveway grade, then I will move to amend the proposed ordinance to clarify in
thatthelimitstated in AMC 18.3.10.090.A.3.b will apply to the lots described in .
for Hillside Lands will
4
Alderwoods, 358 Or. at 511-13.
5
Id., 522; accord Palazzolo, 533 U.S. at 627 (“The right to improve property … is subject to the
reasonable exercise of state authority, including the enforcement of valid zoning and land-use
.
6
Id., 627-28 (“
accord U.S. v Dickinson, 331 U.S. 745, 748-49 (1947) (
taking claim of owner whose estate post-government intent to drown property).
7
PA-L-2026-00020, Aug. 25, 2026, p. 3.
that landowners of newer vintage knew, or should have known, about the
a facially plausible argument to apply ORS 195.305 to
the proposed ordinance. However, the argument probably would not survive judicial review of a taking
claim subject to the Palazzolo and Dickinson precedents cited above.
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Consolidated Statement and Proposed Motion
Reply to the September 3, 2026 Supplemental Comment of Davis Hearn Anderson Selvig & Narus, PC,
and to the Memoranda of Commissioner Lininger dated August 25, 2026 and September 8, 2026
Re: Planning Action PA-L-2026-00020; Ordinance No. 3309; Proposed Amendments to ALUO
18.5.3.060.F
To: Ashland Planning Commission, continued hearing of September 8, 2026
From: John Maher, City Planning Commissioner; Member, HHSAC. September 8, 2026.
1. Summary and where the parties agree
The parties to this hearing agree on more than the record suggests. The Court of Appeals affirmed LUBA
on September 2, 2026, so the current text of subsection F is final and permits no variance above 18 percent.
The question before the Commission is legislative. Some lots of record may have no conforming access
under the current text, and the City may lawfully choose to provide one. Chris Hearn, attorney for the
DeBoers, Commissioner Lininger, and I agree that the City should act, that Nollan and Dolan do not apply
because nothing is exacted, and that any procedure must treat every lot alike regardless of who owns it or
when it was acquired.
Chris HearnÓs own survey of the opposition materials concedes the decisive fact: everywhere in Oregon,
the flexibility Chris Hearn describes as Ðfire-authority-supervisedÑ operates inside a numeric ceiling of 18
to 20 percent. No jurisdiction supervises its way past that number. The disagreement is therefore narrow.
Chris Hearn asks for a path with no ceiling, or a ceiling measured as an average; staff proposes to delegate
the ceiling to the Fire Code Official; I ask for the path every comparable Oregon jurisdiction uses: a ceiling
of 20 percent, measured at the steepest point, reached only with the design safeguards the City of Roseburg
attaches to it, and available to every flag lot on the same terms. The motion in section 12 provides that path.
It relieves the categorical bar Chris Hearn describes without removing the one protection the physics
requires.
2. The vested-rights authorities confirm the CityÓs authority to impose a ceiling
Commissioner LiningerÓs supplemental memorandum of September 8, 2026 concludes, on the authority of
Friends of Yamhill County v. Board of Commissioners, 351 Or. 219 (2011), Parks v. Board of Tillamook
County, 11 Or. App. 177 (1972), and Columbia Hills v. LCDC, 50 Or. App. 483 (1981), that there is no
vested right to construct a flag drive on an easement appurtenant where a later-enacted regulation restricting
such a drive for a lawful public purpose preceded actual development of a substandard lot. I accept that
reading in full. It states, in the CommissionerÓs own words and on his own authorities, the CityÓs authority
to condition access on undeveloped lots regardless of the date on which they were platted. The supplement
also supplies, under the local code, the same conclusion: AMC 18.1.4.050 permits a nonconforming lot to
be developed only Ðsubject to other requirements of the ordinance,Ñ and subsection 18.5.3.060.F is such a
requirement.
Two consequences follow. First, the supplement removes the takings rationale for a no-ceiling procedure.
If undeveloped lots hold no vested right to a grade above 18 percent, the exposure that motivated the
amendment is smaller than its proponents assume, and removing the number does not reduce an exposure
that is already small. Second, the observation that the pre-1997 distinction is one without a difference is
correct, and it argues for a uniform standard, not a broader exception. Uniform treatment means the same
safety ceiling applies to every lot; it does not mean the exception expands to every lot. The motion in section
12 is drafted on that basis.
One boundary should be stated. The vested-rights authorities and the abutterÓs right of access are distinct
doctrines. The former establish that no owner is entitled to any particular grade; the latter, discussed next,
establishes that every owner is entitled to reasonable access. The motion satisfies both: it authorizes no
grade above the limit the record will support, and it provides a lawful path to reasonable access for every
lot that can meet it.
3. The takings analysis requires a path, not the absence of a number
Alderwoods establishes that a lot abutting a public road carries an easement appurtenant for reasonable
access. It is a case in which ODOT closed a businessÓs direct highway driveway and the Oregon Supreme
Court held there was no taking, because the abutterÓs right is to reasonable access, not to a particular access
or the most convenient one, and because that right has always been subject to regulation in the interest of
public safety. A lot that can be reached by a driveway at up to 20 percent, built to the Roseburg design, has
reasonable access by every standard in Exhibit A. A lot that can be reached only by a 24 percent single-
lane drive with no approach limit, no length limit, and no turnaround does not, because no jurisdiction in
the state regards such a drive as safe to use. The motion conditions the easement; it does not extinguish it.
Lucas applies where regulation leaves a parcel with no economically viable use, and it excepts restrictions
that inhere in the title under background principles of state property and nuisance law. Parks and Columbia
Hills, cited in the September 8, 2026 supplement, are those background principles as applied to undeveloped
substandard lots. A regulation that forbids a driveway the physics shows cannot be stopped on ordinary
winter snow is a safety regulation of that kind. The motion also removes the Lucas scenario in the ordinary
case by giving every lot a defined path to 20 percent; only a lot that cannot achieve access at 20 percent
under the Roseburg design falls outside it, and that is a lot whose access no Oregon jurisdiction would
approve.
Penn Central weighs three factors, and each favors a ceiling. The economic impact of a 20 percent ceiling
on a lot that can meet it is nil. The investment-backed expectations of owners who acquired steep hillside
lots after 1997, seven of the thirteen by staffÓs count, were formed with the 15 and 18 percent standards in
the code; the expectations of earlier owners were formed under a text LUBA has now held never permitted
more. The character of the regulation, a generally applicable safety standard consistent with statewide
practice and the Oregon Fire Code, is the character courts have consistently found least likely to require
compensation.
Palazzolo is the strongest authority for the motion. It holds that a landowner cannot establish a taking before
the land-use authority has used its own reasonable procedures to decide and explain the reach of the
regulation. What ripens a claim in the CityÓs favor is a procedure with criteria the City can apply and
explain: a ceiling, measured where the hazard occurs, with design conditions each tied to a figure in the
record, and findings the Commission can adopt. What ripens a claim against the City is a procedure with
no standard, in which each denial is an act of discretion the City cannot explain by reference to its own
code. A variance to 20 percent under the Roseburg conditions is the reasonable procedure Palazzolo
contemplates. A variance to any grade the Fire Code Official will sign is a delegation, not a procedure.
4. The safeguards in the amendment are procedural; none of them is a limit
The amendment proposed by the City and Chris Hearn, attorney for the DeBoers, intentionally contains no
maximum grade. It contains no maximum length, no approach limit, and no turnaround standard. Chris
Hearn points to F.5, F.6, and chapter 18.5.5 as if they supplied one; none does. An engineer certifying that
an existing grade is the minimum necessary is certifying the grade that exists. Fire Code compliance already
applies and is not changed. The 18.5.5 criteria are the criteria under which the variances above 18 percent
were granted in the first place. Procedure is not a limit. An ordinance that sets no number permits any
number, and the Commission should evaluate it as what it is: a loophole drafted to look like a safety
standard, conferring unlimited discretion with no criteria the City could ever cite to deny a request.
The physics in Exhibits B and C does not depend on how the grade was requested. A vehicle on a 24 percent
grade in light snowfall has no braking reserve whether the grade was approved by variance, by engineering
certification, or by the Fire Code Official (Exhibit B, Tables B-1 and B-2). Exhibit C shows an attempted
controlled stop failing with 98 percent probability at 20 percent on light snowfall (Table C-2). Exhibit B,
section 9, shows a vehicle descending a 12-foot drive with one 50-foot curve leaving the road with 66
percent probability at 20 percent on light snowfall and 96 percent on heavy snowfall (Table B-5). Those
figures rise with every point of grade above 20. A stamped drawing does not change them.
5. The Fire Code OfficialÓs letter does not answer the grade question
Chris Hearn relies on Deputy Chief ShayÓs July 20, 2026 memorandum (memo, sections 3 and 4) as the
fire-safety answer. Read in full, the letter supports case-by-case review and states that the 2025 Oregon Fire
Code limits apparatus access grade to 10 percent with an exception for steeper grades the official may
approve. It does not identify any grade at which the CityÓs apparatus can operate, does not analyze any
grade, and states that grade is Ðjust one of the factorsÑ the official evaluates. That is an endorsement of
discretion, not a finding about safety at 20, 24, or any other percent. The Fire CodeÓs exception, section
503.2.7, refers to limits Ðestablished by the fire code official based on the fire departmentÓs apparatusÑ; the
record contains no such apparatus-based limit. Every jurisdiction in Exhibit A operates under the same
exception, and every one of them has nonetheless adopted a numeric ceiling. The exception permits a
jurisdiction to go above 10 percent; it does not invite a jurisdiction to go without a number.
The Fire Code OfficialÓs review also has a defined scope: fire apparatus access. The hazards quantified in
Exhibits B through D fall on every vehicle that uses the drive, including the residents who must descend it
in winter and evacuate on it in a wildfire, delivery drivers, and visitors. Comprehensive Plan Policy 49
speaks to simultaneous apparatus access and resident evacuation on the same route. A single-lane, 12-foot
drive at a grade the physics shows to be uncontrollable in ordinary snow is the failure of that policy, not an
improvement on the status quo.
6. The jurisdictional survey supports a ceiling, not the absence of one
Chris Hearn reads Exhibit A as showing Ðfire-authority-supervised flexibilityÑ rather than a uniform cap
(memo, section 3). The survey shows both, and the two are inseparable. Jackson County: 18 percent,
intermittent, in 100-foot intervals, with fire district consultation. Portland: 18 percent with sprinklers and
fire official approval. Roseburg: 20 percent, intermittent, with Fire Chief approval, a 5 percent approach, a
15 percent final 100 feet, a 10 percent turnaround, turnouts, and minimum curve radii. In each case the fire
authorityÓs role is exercised within the number, never in place of it. The Lebanon exemption Chris Hearn
cites is, by his own description, an exemption from LebanonÓs prohibition on new driveways where the
street grade exceeds 15 percent, a rule about the street a driveway enters, and Lebanon pairs it with
mandatory geotechnical review; it is not a jurisdiction that permits driveway grades without a limit. Chris
HearnÓs observation that the survey compares standards for new development rather than legacy lots is
correct and cuts the other way: no jurisdiction in the survey has adopted a no-ceiling rule for legacy lots
either. The Roseburg package is itself a hillside-overlay standard for private driveways on steep terrain, the
closest analogue in Oregon to the lots at issue, and it applies uniformly to every lot in the overlay.
7. Average grade is the wrong measure, and the length limit is the safety device
Chris Hearn asks (memo, section 7) that any retained ceiling be measured as the average grade of the drive
and that the cumulative-length limit of subsection F.4 not apply to legacy lots. Both requests would discard
the protection, and neither can be reconciled with the physics in the record. Traction fails at the steepest
point, not at the average: a drive that averages 15 percent because it holds 8 percent for 200 feet and 24
percent for 100 feet is a 24 percent drive for every purpose in Exhibits B through D, and the 100-foot steep
section is longer than the 85-foot stopping distance at 20 percent on light snowfall. Every jurisdiction in
Exhibit A that permits an intermittent steep section measures that section and limits its length (Jackson
County, 100 feet; Roseburg, 100 feet; Sheridan, 200 feet); none measures an average. AshlandÓs 200-foot
cumulative limit in F.4 is the same device, and it exists because a vehicle that loses traction on a short pitch
travels a short distance and one that loses traction on a long pitch accumulates speed over the full run.
Exhibit B, section 2, sets out the arithmetic.
The observation that sections of Strawberry Lane, Morton Street, and Wimer Street are steep does not
supply local precedent for a steep flag drive. Those are public streets 22 to 28 feet wide with curbs, two-
way travel, and City maintenance, sanding, and plowing. A flag drive is 12 feet of pavement with no curb,
no shoulder, and no winter maintenance obligation. Exhibit B, section 9, shows why the difference is
decisive: on the street a sliding vehicle has 7 to 8 feet of pavement and a curb before it leaves the traveled
way; on the flag drive it has 2.75 feet and nothing. The existence of a steep street is a condition to be
managed, not a standard to be extended.
8. The Fire Code Official alternative is the no-ceiling option under another name
StaffÓs alternative (memo, section 6) would exempt pre-1997 lots from the flag drive grade standards
altogether and review their driveways solely as fire apparatus access roads. That is not a middle path. It
removes every numeric standard from the land use code for this class of lots and delegates a legislative
judgment to an administrative official whose own letter states that grade is one factor among several and
identifies no limit. It confines the safety review to apparatus access, leaving the resident, visitor, and
delivery-vehicle hazards in Exhibits B through D unexamined by anyone. And, for the reasons in section
3, it is the procedure without criteria that Palazzolo counts against the City rather than for it. If the
Commission is drawn to placing the safety determination with the fire authority, the Roseburg package does
exactly that, with the Fire ChiefÓs approval required for every element, inside a ceiling the fire authority
does not have to invent for itself.
9. Reliance, takings, and the allocation of risk
Chris Hearn argues (memo, sections 2 and 5) that the prior administrative practice was the ordinanceÓs
original design, that thirteen households should not bear the cost of a drafting gap, and that a categorical
bar invites a takings claim. The history is relevant to whether the City should act; it is not relevant to what
grade is safe. The prior practice produced variances above 18 percent under criteria that contained no
ceiling, and the physics of those grades was the same then as now; a longstanding practice of approving an
unsafe condition is a reason to fix the practice, not to codify it.
The reliance argument also fails as a matter of law, on the authorities Commissioner Lininger placed in the
record on September 8, 2026. A vested right, under Friends of Yamhill County v. Board of Commissioners,
351 Or. 219, 235-36 (2011), is the right either to continue a preexisting use or to complete a use that was
begun but not finished when the government enacted the law prohibiting it. Parks v. Board of Tillamook
County, 11 Or. App. 177, 196-97 (1972), holds that platted but undeveloped land is not a use for that
purpose, and that construction merely contemplated before the enactment of a restrictive regulation is not
protected from it. Columbia Hills v. LCDC, 50 Or. App. 483, 490 (1981), affirmed a restrictive regulation
applied regardless of the platting date of a pre-existing lot and rejected the contention that recording a plat
created any entitlement to develop for the purpose intended at the time of recording. An owner of an
undeveloped flag lot who expected to obtain a variance above 18 percent under the prior practice holds a
contemplated use, not a vested one. That expectation was never protected, and the Court of AppealsÓ
affirmance on September 2, 2026 confirms that the text never permitted it. The households Chris Hearn
describes have a legitimate interest in a lawful path to access, which the motion provides; they have no
entitlement to the grade they anticipated.
Overall, the takings claim is weak and bounded. The motion below provides a lawful path to 20 percent for
every lot, and a lot whose only access exceeds 20 percent even with the Roseburg design is a lot whose
access is unsafe by every standard in the state. Oregon law does not require a city to approve an unsafe road
to avoid compensating a landowner, and a takings claim on these facts is defensible, insurable, and finite.
The CityÓs exposure on the other side is the wrongful-death or negligence action that follows a preventable
injury on a driveway grade the City authorized after being told, in its own record, that the grade exceeds
the limits of vehicle control on ordinary winter surfaces. Exhibit B, section 9, and Exhibit C quantify that
risk; Exhibit A shows that every comparable jurisdiction in Oregon has declined to take it. A city that
legislates itself outside uniform statewide practice, over documented objection, defines the standard of care
against which its own conduct will be judged. The duty to avoid the small, bounded liability does not license
the City to assume the large, unbounded one. Chris HearnÓs memo does not address that exposure.
10. Prior variances above 20 percent do not justify their continuation
Under the prior administrative practice the City approved flag drive variances above 18 percent under
criteria that contained no ceiling. Some of the drives built under those approvals may fall within the 20
percent ceiling and the design conditions of the motion below; others may not. The record does not establish
which, and the number of drives in the second category, if any, is small. Chris Hearn presents those
approvals as precedent and as evidence that the amendment restores the ordinanceÓs original design. Neither
characterization survives examination, and the treatment of the drives themselves does not depend on how
many fall on either side of the line.
A variance is a quasi-judicial decision on an individual application, made on its own record against the
approval criteria in effect at the time. ORS 227.173 requires that such decisions rest on standards and criteria
set out in the development ordinance, and a decision applying those criteria to one lot creates no entitlement
for another. LUBA has now held that the text of subsection F never permitted a variance above 18 percent,
so every approval above that grade was, at best, a decision made under a mistaken reading of the criteria.
An error in the application of a standard is not a standard. It is a reason to correct the practice, and the
amendment before the Commission is the CityÓs opportunity to do so; codifying the error instead would
convert an individual mistake into a general rule and would do so with the physics of Exhibits B through D
in the record.
The code already prescribes how a drive built under a prior approval that would not be permitted today is
to be treated, and the answer is not to extend the approval to others. Chapter 18.1.4 treats a lawfully
established development that no longer conforms to current standards as a nonconforming situation. A
nonconforming development may continue in existence, may be maintained, and may be repaired; it may
not be expanded, intensified, or used as the basis for a new approval, and where it is altered beyond ordinary
maintenance it is brought into conformance. That framework is the ordinary treatment of any out-of-code
improvement in the City, whether a setback, a building height, or a driveway grade, and it is the treatment
the Oregon courts endorse. Parks v. Board of Tillamook County, 11 Or. App. 177, 197 (1972), cited in
Commissioner LiningerÓs September 8, 2026 supplement, states the governing policy: nonconforming
situations are to be restricted as much as possible, not enlarged, because of the harm they do to a
comprehensive zoning plan.
The legacy drives therefore present no obstacle to the motion below, whichever side of the line each falls
on. A drive that meets the 20 percent ceiling and the design conditions is simply a conforming drive and
needs no further attention. A drive that does not is a lawful nonconforming development; its owner keeps
it, maintains it, and repairs it, and nothing in the motion below disturbs that. What it declines to do in either
case is treat the existence of a previously approved drive as a reason to authorize another one. Item 5 of the
motion below states that treatment expressly, so that neither the Commission nor a future applicant need
infer it, and so that the City is not required to survey and classify the legacy drives before the ordinance can
take effect.
11. Uniform application
The motion below applies the 20 percent Roseburg path to every flag lot on the same terms, without a
platting-date or ownership trigger. Four reasons support that choice. First, the September 8, 2026
supplement establishes that platting date confers no entitlement, so a pre-1997 carve-out has no legal
foundation to stand on and invites litigation over which lots qualify. Second, Palazzolo and the August 25,
2026 memorandum both weigh against triggers tied to ownership or acquisition date; a trigger tied to
platting date is the same category of distinction. Third, a single standard of care is the CityÓs best defense
on the liability side; a code that permits 20 percent on one lot and 18 percent on its neighbor for reasons
unrelated to safety is a code the City cannot explain in either a takings case or a negligence case. Fourth,
Roseburg itself applies its package uniformly within its hillside overlay. The design conditions are
demanding enough that few lots platted under the modern code will qualify, because subsection F.6 already
requires a showing that no conforming alignment exists; the practical effect of uniform application is to
remove a classification dispute, not to open a new class of steep driveways.
Chris Hearn is right about one thing (memo, section 8): the Council will take this issue up regardless. In
fact, the Council has already been pressured to slip the CityÓs original subjective amendment, with no upper
limit, into a new housing package that this Commission is scheduled to review on November 10, 2026,
which is why the CommissionÓs independent voice tonight is so critical. That is the reason to recommend
a specific framework based on the physics of vehicle control, the uniform practice of every comparable
Oregon jurisdiction, and the vested-rights and takings authorities now in the record, rather than a general
objection. The motion below adopts the foundation of the CityÓs amendment, criteria-based review with
fire-authority approval and stamped engineering, and supplies the one element the amendment intentionally
omitted: a science-based limit, measured where the hazard occurs, with the design restrictions that make
the number defensible. With all of that said, I offer the following motion to adopt the Roseburg exception,
with its full package of design conditions, as the upper limit for all flag drives in the City of Ashland.
12. Proposed motion
I move that the Planning Commission recommend that the City Council adopt Ordinance No. 3309 with
the following amendments to ALUO 18.5.3.060.F:
1. Retain the existing standards: a maximum flag drive grade of 15 percent, with variances to 18 percent
subject to the criteria of chapter 18.5.5 and the 200-foot cumulative limitation of subsection F.4.
2. For any flag lot, regardless of the date on which the lot was created, a variance to a flag drive grade
exceeding 18 percent may be approved, up to and not exceeding 20 percent, only upon findings that
each of the following conditions is met:
a. Sections exceeding 18 percent are intermittent, no single section exceeds 100 feet in length, sections
exceeding 15 percent do not exceed 200 feet cumulatively, and grade is measured at every point
along the driveway centerline, not as an average.
b. The driveway between the back of curb or edge of pavement and the property line does not exceed
5 percent and is graded to clear an 18-foot automobile.
c. The final 100 feet of driveway approaching the structure does not exceed 15 percent, and a paved
area not less than 20 feet wide at a grade not exceeding 5 percent is provided at the garage or
parking area.
d. A fire apparatus turnaround at a grade not exceeding 10 percent is provided within the final 100 feet,
or as the Fire Code Official otherwise approves in writing.
e. Turnouts and level pad areas are provided as the Fire Code Official determines necessary, and any
curved section of driveway has an inside turning radius of not less than 28 feet and an outside radius
of not less than 48 feet unless the Fire Code Official approves a lesser radius in writing.
f. The Fire Code Official has approved the driveway in writing as a fire apparatus access road under
the Oregon Fire Code, with the approval stating the maximum grade, length, and width approved
and the apparatus on which the approval is based.
g. The residence served is protected by an automatic fire sprinkler system.
h. Engineering stamped by an Oregon-licensed civil engineer demonstrates, as subsection F.6 provides,
that no conforming alignment can provide vehicular access to a buildable area of the lot and that
the requested grade is the minimum necessary, and additionally certifies compliance with
conditions a through e.
3. No variance to a flag drive grade exceeding 20 percent shall be granted under any circumstances, and
no provision of this subsection shall be construed to authorize a grade in excess of 20 percent by
exception, alternate construction standard, or otherwise.
4. A variance under this subsection is in addition to, and not in lieu of, compliance with the Oregon Fire
Code and the Fire Code OfficialÓs independent review under subsection I.
5. A flag drive lawfully constructed under a variance approved before the effective date of this ordinance
that exceeds the grade limits of this subsection or does not meet the conditions of item 2 is a
nonconforming development subject to chapter 18.1.4. It may continue, be maintained, and be repaired;
it shall not be extended, steepened, or lengthened, and no such prior approval shall constitute a basis,
precedent, or finding in support of a variance under this subsection.
The motion below carries forward every safeguard the amendmentÓs proponents identify, subsections F.5
and F.6, chapter 18.5.5 review, and the Fire Code OfficialÓs approval, and adds the ceiling and design
restrictions that every comparable Oregon jurisdiction has adopted and that Exhibits A through D show to
be necessary. It gives every flag lot a defined, criteria-based path to development on equal terms. It does
not extend that path to a grade at which the CityÓs own record shows a vehicle cannot be controlled.
Note: the readings of the cited authorities in sections 2, 3, and 10 are the observations of a commissioner, not a legal
opinion; I would ask the City Attorney to confirm them before the recommendation is finalized. This statement
supersedes the Response dated September 5, 2026 and incorporates the Addendum dated September 7, 2026.
Respectfully submitted,
John Maher, City Planning Commissioner; Member, HHSAC. September 8, 2026.
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Source PGD!3136-!Bqq/!E-!¨E214/3Ivudijotpo!Dpy!tvswfz-!Bvh/!21-3137Tifsjebo!ND!¨27/3:1/1:1Qipfojy!MED!¨4/6/3)J*)4*B!Qpmjdz!po!Hfpnfusjd!Eftjho!pgIjhixbzt!boe!TusffutMfcbopo!ND!¨27/22/151)F*)3*)c*)j*P
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Table 1 — Jurisdictional survey: driveway grade limits and conditions
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_________________________________
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RE: PA-L-2026-00020 / Draft Ordinance No. 3309, continued hearing, September 8, 2026
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Preservation of issues for the record
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Bmm!jttvft!sbjtfe!ifsf!boe!cz!puifs!qbsujdjqbout!bsf!qsftfswfe!gps!bqqfbm/
TO: Ashland Planning Commission (PC-public-testimony@ashland.or.us)
FROM: Chris Hearn (chearn@davishearn.com)
RE: Planning Action PA-L-2026-00020
Draft Ordinance No. 3309 Amending AMC 18.5.3.060 (Flag Drive Grades)
Supplemental Comment for Public Hearing (September 8, 2026)
Chair and Commissioners:
This memo supplements our August 25, 2026 comment in support of draft
Ordinance No. 3309, which remains in the record. As before, our firm represents Bryan
and Stephanie DeBoer, owners of a lawful lot of record at 231 Granite Street, created in
1995 with Planning Commission approval, before the City adopted its Hillside
Development Standards. We write to address developments since the Commission's
August 25 hearing, and to respond to the August 7 and August 10 letters submitted to
the Commission by Hutchinson Cox on behalf of the neighbors who were the petitioners
in the LUBA appeal.
1.The appellate proceedings are now concluded, and LUBA’s construction
of the flag drive grade standard is final. On September 2, 2026, the Oregon Court
of Appeals issued its decision in Case No. A190867 (LUBA No. 2025-053), affirming
LUBA’s April 29, 2026 Final Opinion and Order. At the August 25 hearing,
Commissioner Lininger sensibly suggested the Commission allow time for that decision
before finalizing a recommendation. The Court of Appeals has now affirmed LUBA’s
decision, and no appellate proceedings remain pending in the matter. See: attached
Exhibit 1.
In candor to the Commission, the DeBoers’ petition for judicial review challenged
only LUBA’s rulings on the adequacy of the City’s hillside development findings; it did
not seek review of LUBA’s construction of AMC 18.5.3.060.F, the flag drive grade
provision at issue in this proceeding. After studying LUBA’s textual analysis of that
provision, we concluded that LUBA’s plain reading of the City’s code provision, as
currently written, did not provide a sufficient basis for further appeal. The appropriate
avenue for addressing the issue is not further appellate review of the AMC’s current text,
but the legislative process now before the Commission. LUBA’s construction of
subsection F is therefore final. Under the current language of the City’s code, no
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Ashland Planning Commission | PA-L-2026-00020
variance for a flag drive grade above 18% is available under any circumstances. Whether
the small class of pre-1997 lots of record retains any lawful path to development is now a
purely legislative question, and only the Commission and the Council can address it.
The finality of that construction has a practical corollary effect that staff has
already identified: the 231 Granite Street application will return to the City on remand
and, under LUBA’s construction of the code, no access for that lot or any similarly
situated lot can be approved, whatever the engineering evidence shows and whatever
the Fire Code Official recommends. Absent an amendment, the remand is an empty
exercise on the access issue. The categorical bar the proposed amendment is designed to
relieve is no longer contingent on any pending appellate process. It is complete and
permanent unless the City acts.
2. The Commission’s own record confirms this is code maintenance, not
“spot legislation.” The Commission’s August 25 minutes reflect two facts that should
reframe the “single applicant” criticism reflected in the Commission’s record.
First, staff confirmed that all prior variances exceeding 18% were approved under
the City’s longstanding interpretation of the code’s flag drive standard. The City
previously applied the flag drive grade limitation only to legal lots created after the
City’s Hillside Standards were adopted in 1997. The City’s longstanding interpretation of
AMC 18.5.3.060.F was consistently applied until LUBA issued its textual interpretation
in April 2026.
Second, Commissioner KenCairn noted that she had personally processed three
to four such variances under the City’s prior interpretation of subsection F. In
connection with the City’s approval of the 231 Granite Street application, City planning
staff, this Commission (PA-T2-2024-00053), and the Council (PA-APPEAL-2025-
00021) all applied that same interpretation of AMC 18.5.3.060.F, until LUBA read the
text differently. The proposed code amendments merely seek to align the language of the
City’s code with the City’s decades-long interpretation.
When, as here, an appellate tribunal’s textual reading upends decades of a city’s
consistent administrative practice, amending the text to say what the city always
understood it to mean is an ordinary, accountable legislative response. It is the opposite
of legislating in the dark. Nor are the DeBoers attempting to relitigate anything: they
accepted LUBA’s construction of the flag drive grade provision, and turned instead to
this transparent, publicly noticed process. That is precisely the route LUBA’s decision
left open. The proposed ordinance amendment is not designed for one applicant: staff’s
own table identifies thirteen affected lots in varied ownership across the city, some held
by the same owners for more than thirty years. The owners of those lots, folks who
purchased and paid taxes on parcels the City approved, seeing similar hillside driveways
approved around them, reasonably relied on the City’s longstanding and consistent
application of its code. These members of our community should not bear the entire cost
of a drafting gap that three levels of City review did not perceive.
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Ashland Planning Commission | PA-L-2026-00020
Moreover, that administrative practice was not error. It was fidelity to the
ordinance’s original design. As staff’s September 8 memo confirms, the 1997 Hillside
Ordinance treated pre-existing lots of record as buildable precisely to avoid the takings
problem now before the Commission. The Hillside Development Standards, including
the flag drive grade provisions, were adopted prospectively to govern how new hillside
development occurs. Nothing in the legislative history suggests the Standards were
intended to operate as a permanent, categorical bar on the small class of residential lots
the City had already lawfully created prior to adoption of the Standards. The Planning
Division’s consistent interpretation over the decades following adoption reflects that
understanding. It was the accepted interpretation under which every prior variance
above 18% was granted (including this Commission’s own findings adopted on August
12, 2025 in PA-T2-2024-00053).
Ordinance No. 3309 does not relax the City’s hillside protections. Instead, it
restores their intended reach, vesting the Planning Commission with discretion to
consider the unique circumstances of individual lots created by the City for residential
development prior to adoption of the City’s Hillside Standards, rather than
extinguishing the property rights of its citizens through regulatory condemnation.
3.The safety materials in the Commission’s record argue against an
ordinance no one has proposed. The jurisdictional survey and friction analysis
submitted in opposition treat Ordinance 3309 as though it approved steep grades by
right, with “no upper limit” and “without a defined maximum.” That is not the
ordinance before the Commission. As amended in the August 25 staff report, nothing in
it is self-executing: every application must satisfy the full variance criteria of chapter
18.5.5; subsection F.6 requires stamped engineering demonstrating that no conforming
alignment can provide vehicular access to a buildable area of the lot and that the
requested grade is the minimum necessary; subsection F.5 carries the fire code
compliance requirements forward; and staff confirmed at the August 25 hearing that the
Fire Code Official will provide a recommendationon every application. A variance
ceiling in a code and the safety of a particular driveway are different questions. The
proposed ordinance is structured to answer the site-specific question with engineering
evidence and fire-authority review, rather than by categorical assumption.
The opposition’s own jurisdictional survey, moreover, undercuts the claim that
criteria-based flexibility is foreign to Oregon practice. By the letters’ own account,
Jackson County permits grades to 18 percent in consultation with the fire district;
Portland permits 18 percent with sprinklers and fire-official approval; Roseburg permits
intermittent grades to 20 percent with the Fire Chief’s approval and specified
safeguards; and Lebanon expressly exempts lots, parcels and roads created before
adoption of its 1980 Comprehensive Plan and zoning ordinance from its steep-street
driveway prohibition. The pattern across Oregon, in other words, is not a uniform hard
cap; it is fire-authority-supervised flexibility, and at least one Oregon jurisdiction has
adopted exactly the legacy-lot approach proposed here. What the survey actually
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Ashland Planning Commission | PA-L-2026-00020
compares are by-right ceilings for new development, not what any jurisdiction does with
a lawfully created lot that predates its standards and cannot otherwise be used at all.
Nor is the fire-safety question unaddressed. As reflected in the record, Deputy
Chief Mark Shay, the City’s Fire Code Official, submitted a memorandum dated July 20,
2026 supporting the proposed framework and confirming what the ordinance says on
its face: a grade variance is not a fire access approval, and driveways remain fully subject
to Oregon Fire Code apparatus access requirements and the Fire Code Official’s
independent review. Where a particular driveway cannot be made safe, the Fire Code
Official will say so, and that determination controls. See: attached Exhibit 2 (July 20,
2026 letter of Deputy Chief Mark Shay, the City’s Fire Code Official). Further, the legacy
driveways at issue already exist and already serve existing homes; their grades are fixed
facts of topography and history. Denying the remaining undeveloped lots served by
those same driveways does not make any driveway flatter. Rather, it simply ensures the
affected parcels can never be used at all. Lastly, the proposed amendments seek only to
conform the language of the code with how the City has already applied it for decades,
including in this Commission’s own findings adopted August 12, 2025.
4.Opponents’ claim that the amendment is “contrary to state law” rests on
an incomplete quotation of the Fire Code. The August 7 and 10 letters in the
Commission’s record contend the amendment conflicts with Oregon Fire Code
Appendix D, section D103.2, quoting its statement that fire apparatus access roads shall
not exceed 10% in grade. Those letters omit the provision’s express exception: grades
steeper than 10% may be approved by the fire official. The Fire Code’s operative grade
standard, section 503.2.7, is to the same effect. The grade of a fire apparatus access road
is to be within the limits established by the fire code official based on the fire
department’s apparatus. Indeed, the Fire Code Official’s own July 20, 2026
memorandum in the record states the point directly: the 2025 Oregon Fire Code limits
fire apparatus access grade to 10%, with an exception for steeper grades approved by the
fire code official. See: attached Exhibit 2. Read in full, the Fire Code does not impose an
absolute 10% ceiling. Rather, it commits driveway grade to the case-by-case judgment of
the local fire authority, which is precisely the structure of the proposed amendment and
precisely what staff’s alternative “Fire Code Official” option would codify. If the express
exception omitted by the opponents did not exist, and if a 10% grade were truly an
inflexible statewide maximum, then the AMC’s 15% standard and 18% variance ceiling
would be equally “contrary to state law,” along with the 15%-20% allowances in every
jurisdiction cited in the opposition’s own survey; and, frankly, a great many existing
driveways throughout Ashland’s hillside neighborhoods would be rendered
noncompliant.
Nor does the amendment allow anyone to “opt out” of fire access requirements.
AMC 18.5.3.060.I deems flag drives Fire Apparatus Access Roads subject to all
requirements of the Oregon Fire Code, and nothing in Ordinance No. 3309 touches that
provision. A land use variance under the proposed amendment is in addition to, and
never in lieu of, Fire Code compliance and the Fire Code Official’s independent review.
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Ashland Planning Commission | PA-L-2026-00020
For the same reason, opponents’ invocation of OAR 837-039-0006(2) (that a local fire
code must be at least as stringent as the state’s) is misdirected: Ordinance No. 3309
amends the City’s land use code to conform to how it has already been interpreted by
the City for decades. It has no effect on the City’s fire code adoption in AMC chapter
15.28, which remains precisely as stringent after the amendment as it was before. The
related procedural objection under ORS 368.039(3), that the City has not consulted its
firefighting agency, is answered by the record: Deputy Chief Shay’s July 20, 2026 letter
addresses the proposed framework directly, and the amendment embeds the fire
agency’s judgment into every future application. See: attached Exhibit 2. The Fire Code
Official’s ongoing involvement goes well beyond the one-time consultation the statute
describes. Finally, the observation that Senate Bill 974 does not require this amendment
is both correct and irrelevant. The proposed amendment simply responds to LUBA’s
April 2026 construction of the City’s own code, and seeks to amend the code to be
consistent with how the City has always applied it in the past. The City maintains its
independent legislative authority. The fact that SB 974 does not mandate an ordinance
does not mean the City is not authorized to adopt or amend one.
5. The Comprehensive Plan and Wildfire Protection Plan arguments count
the ordinance’s safeguards as if they did not exist. Comprehensive Plan Policy
49 calls for more than one ingress/egress route or road widths sufficient for
simultaneous apparatus access and evacuation. The Policy is directed at the design of
the City’s street network. Denying development of thirteen existing lots creates no
second egress route and widens no road. These legacy driveways at issue exist today and
serve existing legal lots. What the ordinance amendment adds is a mandatory Fire Code
Official recommendation and stamped engineering in every case, a review the current
variance process does not necessarily require. The amendment advances the Plan’s
emergency-access purpose relative to the status quo, rather than contradicting it. The
Community Wildfire Protection Plan’s call to bolster resilience “through consistent
planning and zoning” is likewise served by a uniform, criteria-based, citywide standard
for a defined class of lots, rather than by consigning each lot to ad hoc litigation.
Further, the reliance on Dolan v. City of Tigard is misplaced: Dolan’s nexus and rough-
proportionality tests govern exactions, which are conditions demanding dedication of
property interests as the price of a permit. That analysis is irrelevant to a city’s
legislative judgment about its own variance criteria, and the “undue or unnecessary
hardship” language quoted in opponents’ submission comes from the Court’s
description of the City of Tigard’s own variance code, the very kind of safeguard
Ordinance No. 3309 preserves in full through AMC 18.5.5.
The environmental and geological objections rest on the same omission. Those
objections ignore the ordinance’s express safeguards, and assume un-engineered
grading on steep terrain. Subsection F.6 conditions every variance on stamped
engineering demonstrating that no conforming alignment can provide access and that
the requested grade is the minimum necessary. The Hillside Development Standards in
AMC 18.3.10 require an applicant to meet grading, erosion-control, and geotechnical
criteria, and Ordinance No. 3309 does not diminish those requirements. Opponents’
Page -6-
Ashland Planning Commission | PA-L-2026-00020
citations to the City of Lebanon’s code make the point: Lebanon answers steep-slope
risk by requiring professional geotechnical analysis and engineering-based, site-specific
review, which is exactly what the proposed ordinance requires, while exempting its pre-
1980 legacy lots from the driveway prohibition altogether.
Opponents’ closing appeal to the equitable allocation of benefits and burdens
under ORS 197.010 inverts the question now posed to the Commission: whether thirteen
households should bear, alone and permanently, the entire cost of a categorical bar the
City never intended. Opponents cite ORS 197.307, acknowledging the state’s policy
against development standards that discourage needed housing on residential land
through unreasonable cost or delay. Restoring a criteria-based path to development for
lawfully created residential lots serves that policy; it does not offend it.
6. Staff’s “Fire Code Official” option is a sound alternative if consensus on
the variance framework cannot be reached. Staff’s September 8 memo offers a
third path: amend AMC 18.5.3.060.F so that lots platted before December 3, 1997 are
not subject to the flag drive grade standards and their driveways are instead reviewed as
Fire Apparatus Access Roads by the Fire Code Official. As staff observes, this approach
is faithful to the original design of the 1997 Hillside Ordinance, which deemed these pre-
existing lots buildable precisely to avoid the takings problem now before the
Commission. It also places the safety determination exactly where the opposition
materials insist it belongs, with the fire authority and based on solid engineering
evidence in every case. The DeBoers support Ordinance No. 3309 as amended, but
would likewise support this alternative. Either is preferable to leaving a now-final
categorical bar in place which deviates from the standard applied by the Commission for
decades.
7. If a numeric ceiling is retained, it must not recreate the categorical bar.
We reiterate paragraphs 2 and 3 of our previous August 25 comments. The lots
subsection F.3 addresses take access over legacy driveways whose grades are fixed. A
ceiling calibrated below the actual grades of those existing driveways relieves nothing
and simply reproduces, at a different number, the very prohibition the amendment
seeks to remove. If a ceiling is nonetheless retained, it should be measured as the
average grade of the flag drive rather than at any single point or section, so that short,
engineered transitions do not disqualify an otherwise-approvable access. The F.4
cumulative-length limitation likewise should not apply categorically to F.3 lots, or
should at minimum count only newly constructed driveway sections. The limitation
should not apply to a pre-existing legacy driveway that the applicant did not create and
cannot change. We would also note that steep grades are not foreign to this hillside
neighborhood’s existing, City-accepted street network. The Commission may wish to ask
Planning orPublic Works staff to confirm the grades of nearby public streets, including
sections of Strawberry Lane, Morton Street, and Wimer Street, when weighing whether
the proposed variance path is truly without local precedent.
Page -7-
Ashland Planning Commission | PA-L-2026-00020
8.The Council will take this issue up regardless, but the Commission’s
recommendation is its opportunity to shape the framework. As staff’s memo
notes, first reading of Ordinance No. 3309 is scheduled for the October 6, 2026 City
Council meeting, and the Council’s separate package of Council-initiated Land Use
Ordinance amendments — scheduled for Planning Commission review on November 10
and Council first reading on November 17 — independently includes the driveway grade
issue. Retaining the current standards as written is not among the options presently
under Council consideration. A deadlocked or empty recommendation therefore does
not preserve the status quo; it simply forfeits this body’s voice on the criteria,
safeguards, and fire-review structure that will govern. The Commission’s expertise is
most valuable in shaping those safeguards, the F.5 and F.6 requirements, the role of the
Fire Code Official, and the measurement conventions discussed above.
For these reasons, and those reflected in our August 25 comments, we urge the
Commission to recommend that the City Council approve first reading of Ordinance No.
3309 as amended in the August 25 staff report, preferably without a hard numeric cap,
or withany retained cap measured as average grade. Alternatively, we urge the
Commission to recommend the Fire Code Official option set out in the September 8 staff
memo.
Thank you for your consideration.
Respectfully submitted,
DAVIS HEARN ANDERSON SELVIG & NARUS, PC
Christian E. Hearn (OSB #911829)
chearn@davishearn.com
Attorneys for Bryan and Stephanie DeBoer
FILED: September 02, 2026
IN THE COURT OF APPEALS OF THE STATE OF OREGON
Leonard Eisenberg, Kent McLaughlin, Pamela McLaughlin, and City of Ashland,
Respondents,
v.
Bryan DeBoer and Stephanie DeBoer,
Petitioners.
Land Use Board of Appeals
2025053
A190867
Argued and submitted on August 13, 2026.
Before Tookey, Presiding Judge, Kamins, Judge, and Jacquot, Judge.
Attorney for Petitioners: Christian E. Hearn.
Attorney for Respondents Leonard Eisenberg, Kent McLaughlin, and Pamela
McLaughlin: William H. Sherlock.
No appearance for respondent City of Ashland.
AFFIRMED WITHOUT OPINION
DESIGNATION OF PREVAILING PARTY AND AWARD OF COSTS
Prevailing party:Respondents
\[X\]No costs allowed as to Respondent City of Ashland.
\[X\]Costs allowed, payable by Petitioners as to Respondents Leonard Eisenberg, Kent
McLaughlin, and Pamela McLaughlin.
EXHIBIT 1 | Page 1 of 1
ASHLANDFIRE&RESCUE
DATE:July 20, 2026
TO:Brandon Goldman, Community Development Director
FROM:Mark Shay, Deputy Chief Fire & Life Safety
RE:Ordinance 3309
I have reviewed Ordinance 3309
in excess of 18 percent for driveways serving legal lots of record,that were created before the effective date of
the Hillside Development Ordinance No. 2808.
The proposed language in Ordinance 3309outlines that the variance will remain subject to the fire apparatus
access requirements of the Oregon Fire Code, including any approval required by the fire code official. As
just one of the factors evaluated when assessing proposed access roadsand driveways for
emergency service access. In addition to assessing the grade of proposed fire apparatus access, overall length,
width, vertical clearance and road surface composition are evaluated. In some instances, where fire apparatus
access issues cannotbe resolved, the Uniform Alternate Construction Standard (UACS) as outlined in Section
D108.1 of the 2025 Oregon Fire Code can be utilized. The UACS standard allows the fire code official to
collaborate with the building code official to implement construction standards as outlined in OAR918-480-
0125.
The 2025 Oregon Fire Code limits fire apparatus access grade to 10%, with the exception of any steeper grade
which may receive approval from the fire code official. The languagein Ordinance 3309outlines that any
proposed variance remains subject to the
ability to evaluate each proposed development on a case-by-casebasis, as the fire code official,I am support the
revisions as outlined in Ordinance 3309.
ASHLANDFIRE&RESCUE
455 Siskiyou BlvdTel:541.482.2770marshall.rasor@ashland.or.us
Ashland, Oregon 97520Fax: 541.488.5318
ashland.or.usTTY: 800.735.2900
EXHIBIT 2 | Page 1 of 1
Total Page Number: 25
_________________________________
Total Page Number: 47
Total Page Number: 48
Memo
DATE:September 8, 2026
TO:Planning Commissioners
FROM:Derek Severson, Planning Supervisor
RE:Council-Initiated Land Use Ordinance Amendments
Background
At the August 8, 2026,City Council meeting, Councilors Dahle and Sherrellproposed
a number of changes to the land use ordinance to remove barriers to housing
development. These included:
ItemSubject
Changes to the handling of pre-application
1
conferences
Adoption of findings at the same meeting as the
2
decision.
Property Line Adjustments
3
Bonding as of right
4
Redefining Lot Coverage
5
1,500 square foot lots
6
AMC 18.3.9 PSOapplicable citywide
Allowing Two Accessory Dwelling Units per lot
7
COMMUNITY DEVELOPMENTDEPARTMENT
51 Winburn WayTel: 541.488.5305
Ashland, Oregon 97520Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
Total Page Number: 49
Flag Drive Grades
8
Ministerial Exemptions to the Hillside Ordinance
9
Occupied Recreational Vehicles (RVs)
10
Solar Access exemptions
11
Landscape/Screening exemptions
12
Conditional Use Permit “Other Factors”
13
Administrative Approval of MPFA overages
Legacy Street determinations
14
Middle Housing Land Division parity
15
Changing terminology from Accessory Residential
16
Unit (ARU) to Accessory Dwelling Unit (ADU)
NextSteps
Ordinance revisions implementing these changes are beingdrafted and are
scheduled to come back to the Planning Commission for a public hearing and
recommendation to the City Council on November 10, 2026. The materials from the
August 18, 2026 Council discussion are provided as context in advance of the
November 10, 2026 hearing.
These revisions are scheduled for a public hearing and first readingat Council on
November 17, 2026 and a second reading on December 15, 2026.
REFERENCES & ATTACHMENTS
Attachment #1:Materialspresented to Council by Councilors Dahle and Sherrell
on
COMMUNITY DEVELOPMENTDEPARTMENT
51 Winburn WayTel: 541.488.5305
Ashland, Oregon 97520Fax: 541.552.2050
ashland.or.usTTY: 800.735.2900
Total Page Number: 50
Council Business Meeting
Date: August 18, 2026
Agenda Item Chapter 18 Land Use Code Amendments: Direction to Staff to
Reduce Housing Development Barriers and Ensure State Law
Compliance (Councilor Submission)
Department Mayor and Council
From Councilor Jeff Dahle, Councilor Derek Sherell
TIME ESTIMATE
CATEGORY
Staff Direction - provide direction to staff on the body's desired next steps.
SUMMARY
Councilor requested agenda item.
POLICIES, PLANS & GOALS SUPPORTED
BACKGROUND AND ADDITIONAL INFORMATION
Pursuant to AMC2.040.030.B1 Agenda Addition by Councilors, two councilors can place any item on the
Council's business meeting agenda, provided that preparing the matter for Council consideration does not require
more than two hours of staff time. In this scenario, the requesting Councilor members prepare and submit any
materials they wish considered as part of the agenda packet.
Attached to this Council report are those materials prepared by Councilor Sherrell and Councilor Dahle, as well
as a staff response, for Council's consideration and deliberation.
Request Timeline
May 4, 2026 - Councilor Sherrell and Councilor Dahle request agenda item to be placed on the August
18th Business Meeting
August 6, 2026 - Councilors provided a draft of staff direction content to Community Development
Director for review
August 7, 2026 - Councilors and Community Development Director meet to review the requested staff
direction
August 11, 2026 - Councilors provided City Manager with final content for the agenda packet
FISCAL IMPACTS
SUGGESTED ACTIONS, MOTIONS, AND/OR OPTIONS
REFERENCES & ATTACHMENTS
1.Council Communication - Chapter 18 Housing Code Amendments
2.AMC 18 - Roadmap Report
3.AMC 18 Code Amendments to Support Housing Development
4.Staff Response to Chapter 18 Land Use Code Amendments Request
Page 1 of 2
Total Page Number: 51
Council Business Meeting
Page 2 of 2
Total Page Number: 52
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“
”
Councilor Dahle and Councilor Sherrell have presented a requestto Council to direct
. These code
amendments are external to the current workplan of the department.
C
The Community Development Department has an establishedworkplanbased onpriorities
set by Counciland mandated by the State. This includes developing and implementing
strategies from the Housing Production Strategy, participating in the development of the
Transportation System Plan, preparing for code amendments related to the Community
n Plan, and implementing a number of state-mandate
changes. Moving forward with these newly code amendments will likely remove
or delay one or more of these priorities and thus should be considered in the context of the
Department’s full workplan.
Over thchanges that
shift a number of planning actions from legislative to administrative processes.
These changes include preparing new forms, new notices, new templates, ,
updating the website, etc. S’s capacity to prepare “code amendment concepts” for the
eighteenproposed amendmentswill be limited.
th
October 20with a project list of all ongoing
city-requested planning projects, so that Council can consider Councilor Dahle’s and
Councilor Sherrell’s proposal in the context of the department’s already established
workload.
Total Page Number: 79
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