MILWAUKIE — Self-governance is a tough sell to residents who live in the unincorporated areas just south of the city. The past three decades have seen several failed attempts to form a new city here. But light rail and growing urban density may have changed the area's mood.

"What makes things different this time around are all the changes that have and are taking place in the area," said William Wild, 53, member of

.

Last year, Wild's group resurrected the incorporation question. He cited the closing of a local library and what he called neglectful zoning enforcement as further evidence of change.

"More people are beginning to realize that it may be better to have these sorts of decisions made locally, not by a board of county commissioners," he said.

The area in question, seated between Milwaukie and Gladstone, includes Oak Grove and Jennings Lodge, with more than 31,000 people, according to 2009 Census Bureau statistics. For comparison, about 36,000 people live in

, the county's most populous city.

Friends of Local Control is made up of a dozen or so residents who are not necessarily new-city advocates. Their objective, they contend, is to measure public opinion. To be sure, members won't hesitate to detail the ways in which residents might benefit from incorporation: The group says cementing a city identity and having city representatives who are alive to local concerns top its list.

Lynn Peterson, chairwoman of the

, sees another perk.

"There are definitely revenue streams that cities get that the county doesn't get," she said. "And these large urban unincorporated areas would benefit from having these monies go directly into their infrastructure.

Special districts

Clackamas County provides urban services, including police, planning, road maintenance and code enforcement, to unincorporated communities such as the patchwork south of Milwaukie. If a new city were to be created, urban services could be centralized or contracted with the county.

Unlike most other unincorporated areas, this hypothetical new city has its own water and sanitary services, provided by the Oak Lodge water and sanitary districts. That fact had residents raising concerns during Friends of Local Control meetings last summer.

"People are extraordinarily supportive of their special districts. They view them as community assets," Wild said. "It was made really clear that a fairly significant number of people felt very strongly: If those special districts were extinguished, they would not be interested in a new city."

The group lobbied House Speaker

, to sponsor a bill that would let new cities retain special utility districts. Hunt introduced the measure in February and

.

Such legwork notwithstanding, Friends of Local Control has a long road ahead.

Community poll

City incorporation is often a costly, protracted and legally complicated process. This might explain why few cities have incorporated in Oregon during the past decade. The incorporation of

in 2004 marked the state's first new municipality in 22 years. Since then, only

has taken a similar step, in 2006.

If the community signals support, the Friends of Local Control aspire to have the incorporation question on the November 2012 ballot, a process that could cost hundreds of thousands of dollars.

So far, the group's coffers are empty. But up first is perhaps a more attainable cash target: $5,000 to conduct a scientific community poll.

"We're trying to find out which way the wind is blowing," said member Henry Schmidt at a recent meeting of about 40 residents. "If it's blowing in the opposite direction, then we're dust. The study is done."

David Queener is a senior planner with the

, a county-led initiative launched in 2009 to engage unincorporated residents in conversations about their community's future. Queener said the initiative, made up of a dozen residents, has not proposed funding the Friends of Local Control study. However, if the committee shows interest in extending financial support to Friends, he said funding the study would be on the table.

Clackamas County Commissioner-elect

has lived in Oak Lodge for 25 years and was involved with county discussions in 2005 about incorporating the area.

"People didn't understand or had misperceptions. That's what caused a little bit of hysteria back then," he said. "Incorporation is probably the best thing for Oak Lodge, but it won't work if it's forced upon anyone."

Savas said if the community was polled now, a new majority in favor of incorporation might emerge, spawned, in part, by the light rail and Trolley Trail, the six-mile bike and pedestrian path that links Milwaukie with Gladstone and is

this fall.

"Incorporation is probably the best thing for the area," Savas said.

But he added that many residents feel the incorporation movement has been tainted by the county's failed efforts.

"Hopefully, my role will help to bridge that gap and give the facts credibility."

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