The development and execution of the zoning title is based upon the division of the city into districts, within any one of which the use of land and buildings and the bulk and location of buildings or structures, as related to the land, are essentially uniform. It is recognized, however, that there are special uses which, because of their unique character, cannot be properly classified into any particular district or districts without consideration in each case of the impact of those uses upon neighboring lands and upon the public need for the particular use of the particular location. Such conditional uses fall into two categories:
A. Uses operated by a public agency or publicly regulated utilities, or uses traditionally affected with a public interest;
B. Uses entirely private in character, but of such a nature that the operation may give rise to unique problems with respect to their impact upon neighboring property or public facilities.
(Ord. 81-11 Art. XVII § 7(A), 1980).