LANDAU, P.J.
Petitioner seeks judicial review of two orders of the Portland Metropolitan Area Local Government Boundary Commission (the commission) annexing property to the City of West Linn (the city) for the construction of a school. The orders became effective on June 14, 1998, and July 12, 1998, respectively. On May 19, 1998, the voters of the city approved two ballot measures amending the city charter to provide:
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