WOLLHEIM, J.
Petitioners, City of Oregon City and Hilltop Properties, LLC, seek review of a Land Use Board of Appeals (LUBA) opinion remanding a decision by the Oregon City Commission (commission) denying an application by respondent, Wal-Mart Stores, Inc. (Wal-Mart), to construct a retail facility within the city limits. LUBA's recitation of the basic facts are not disputed; we therefore include those facts below:
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