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1985-28219-Ordinance No. 85-035 Recorded 12/13/1985r— CD 85-28219 85-2"7912 !EG COUNSEL BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON 1AR5 DEC —6 N 4* 03 �l Q�'](� An Ordinance Amending Ordin- * V�� r�UL ance No. PL -18, Redmond Urban * 1`<ARY SUE PENH,��i ! 0lil Area Comprehensive Plan,Y-R' 69 r,^E98? Adding the Highway 97 Access Management Plan. ORDINANCE NO. 85-035 THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON, ORDAINS as follows: Section 1. That that Section of the Redmond Urban Area Comprehensive Plan entitled "Transportation Element of the Comprehensive Plan" is hereby amended to include the "Redmond Urban Area Highway 97 Access Management Plan", as set forth in Exhibit "A", attached hereto and by this reference incorporated herein. DATED this 4�cz day of r , 1985. n ATTEST: RecorcKhg Secretary 1 - ORDINANCE NO. 85-035 OF COUNTY COMMISSIONERS SCHUTES COUNTY, OREGON LAU CEPA. USTTLE, C irman h LO4MAU"DIIN, STD P TE, Commissioner D Commissioner 61 5DEC 13 PNii4:4n �:Gi�a7 CRr� Vol, 69 pm;'E 990 vJL 69 FACE 988 REDMOND URBAN AREA HIGHWAY 97 ACCESS MANAGEMENT PLAN Adopted December 18, 1984 City of Redmond Adopted November 20, 1985 Board of County Commissioners INTRODUCTION VOL 69 FacF �89 Voti 69 PnEfloi Concentrated commercial zoning is most readily identified along the Highway 97 corridor, both north and south of Redmond. While such development is consistent with the Redmond Area General Plan, access congestion will occur if not properly considered prior to increased development. Once development patterns begin to emerge, it becomes very difficult, if not impossible, to formulate workable solutions. Development along Highway 97 in the Bend Urban Area is testimony to such occurence. If Redmond is to identify solutions to access congestion, it must be accomplished prior to continued development. It should be noted that solutions to access congestion will not, and should not, become a physical reality overnight. This plan intends to provide the mechanism for long-term solutions. The solution in a physical sense will occur as development is allowed to progress. It is very important for everyone in the community to understand what access means to the future of Highway 97: As the community becomes aware of the value in frontage and access planning, physical solutions become realities. The management plan is a framework within which guidelines are established for access control in order to minimize turning conflicts on Highway 97 so -that the capacity will not be impaired. The guidelines and proposed access facilities are intended to be specific enough to allow incorporation in development schemes and the planning function, yet flexible enough to allow options which won't severely limit property development. PLAN AREA The planning area includes the corridor along Highway 97 excluding the downtown area. The area extends on the south end of Redmond from the Urban Growth Boundary to the beginning of the couplet system. The area includes properties to the east and west of Highway 97 which, when developed, will have an impact on highway access. INCORPORATION WITH THE REDMOND URBAN AREA TRANSPORTATION PLAN This Highway 97 Access Management Plan is intended to be used in conjunction with the Redmond Urban Area Transportation Plan. The Transportation Plan recommends a circulation pattern for the future of Redmond, including major collector/arterial streets which intersect with Highway 97 and traffic signalization along Highway 97. The plan sets the stage for access control. The major circulation patterns adopted in the Transportation Plan, are used as the basis for the Access Management Plan. 1 VOL 69 PACE 990 PLAN OUTLINE VOL 69 PACE 902 The scope of this plan includes five major parts to provide an understanding of the access potential and to set guidelines for future planning and development. The first part includes a discussion of access responsibility. Certain authority is vested with the individual property owner, and certain authority is vested with State and local government. These areas of authority need to be identified and pursued in a joint venture so as to minimize conflicts and misunderstanding. The second part includes an engineering review of access and highway design considerations, and recommended future design standards. These design considerations will minimize traffic conflicts, while allowing maximum flexibility in development schemes for property owners. The intent is to guide access control and not arbitrarily limit development along Highway 97. The third part consists of an identification of current Highway 97 access points. Again, the intent is not to arbitrarily limit access. The intent is to fain a basic agreement and understanding to provide a starting point for future implementation of guidelines and access alternatives. The fourth part is a recommended framework for future access development along the Highway 97 corridor in conjunction with the identified future arterial/collector street system and designated local service street frontage roads. The last part includes a summary of potential funding sources and a recommended procedure for allowing the development of the access system. I. ACCESS AUTHORITY A. Conflict has existed for a long time between traffic movement and property access. As access to adjacent property is increased, the effectiveness and safety of the roadway decreases. As access is denied or limited, the movement of traffic becomes more efficient and the number of accidents decreases. It is important to arrive at a program that provides a balance between access and traffic safety. In establishing this access program, one must be aware that both the abutting property owner and the governmental entity owning the roadway have certain rights regarding access or the denial of access. K VOL 69 PACE 991 B. Local Authority VOL 69 PAGE 903 1. This Access Management pertains only to those accesses along Highway 97. Therefore, the question of access falls under state authority. All appli- cations and permits regarding access must be processed through the State Highway Department. The City of Redmond and Deschutes County, however, have the authority to review and approve access within the Urban Growth Boundary through the Site and Design Review process. Thus, the City and County retain control of the access even though the authority for the permit rests with the State. It is important for the City of Redmond to develop a close working relationship with the State Highway Department regarding access approvals. A suggested review procedure is discussed in detail under "Permit Process" later in this report. C. State Authority It is important to define the areas of authority that the Oregon Department of Transportation has in controlling access to a state highway. 1. Authority to acquire by purchase or condemnation rights of access to the highway from abutting property. 2. Authority to approve "grants of access" where the Department has acquired the right of access to the highway. 3. Authority to issue "road approach permits" to an abutting property owner where that owner has a right of access either through reservation where access is controlled or on sections of highways where access has not been controlled. D. Acquisition of Access Rights Over the past several years, the Department of Highways has acquired access rights to a significant portion (approximately 25%) of the primary and secondary state highway system. These rights of access were acquired either when the facility was first constructed, recons- tructed, or necessary for safety purposes. E. Grants of Access A Grant of Access is a release of a property right 3 VOL 69 FAGS 99 VOL 69 PAGE 904 previously acquired by the Department of Highways. A Grant of Access is issued only after a thorough study of its effect on the safety of the highway has been determined. In addition, the potential economic factors associated with the access grant must. also be determined. The application for a Grant of Access is made to the District Engineers. If a determination is made that the access grant is feasible, the applicant must, however, be willing at that time to acknowledge that the grant must be appraised as to its effect and a value determined before further consideration of the grant is made. Once this value has been determined, the grant is forwarded to the Right -of -Way Section which ensures that all procedures have been followed correctly. The Oregon Transportation Commission receives the Department's recommendation and makes a decision whether to make the grant. The applicant is then notified of the value of the grant and upon receipt of that value, the grant is processed. Once a Grant of Access has been obtained, a Road Approach Permit is still needed prior to construction of any approach. F. Road Approach Permit A Road Approach Permit is a granting of permission by the Department for an abutting property owner to construct an approach to a state highway. Road Approach Permits are only issued where the abutting real property has access rights to the highway. Issuance of the permit also depends upon the impact to highway safety that will occur when the approach is constructed. A road approach permit may be denied if the issuance of the permit would create an unsafe situation for traffic on the state highway or traffic entering the state highway from the adjoining land. The Department also has broad authority to require that a property owner receiving a Road Approach Permit finance the construction of an acceleration or deceleration lane, traffic signal or other improvements needed to make the road approach safe. G. Permit Process It is important for the City, County, and the State Highway Department to create a permit process mutually acceptable to all entities. This permit process must protect the City's and County's control of land use 4 VOL 69 FACE 993 VCL 69 FmvF 905 while not denying the State its authority to issue the Road Approach Permits. A close working relationship and open communications must be maintained between the staffs of each entity to guarantee their rights. Shown below is a sample permit application process. PERMIT APPLICATION PROCESS APPLICANT APPLIES TO HIGHWAY DEPARTMENT HIGHWAY DEPARTMENT FORWARDS APPLICATION TO LOCA, ENTITY LOCAL REVIEW APPROVED DENIED Reviewed by State for Concurrence or Non - Concurrence Concurrence Non -Concurrence Permit Returned to Applicant Issued (No permit issued) May be appealed to Hiahwav Commission II. DESIGN REVIEW CRITERIA A. Definitions Returned to Applicant (Appeal through Normal Channels -Including Urban Area Planning Commission, City Council or County Commission) 1. Arterial: The primary function of an arterial, including Highway 97, is to provide for the traffic movement between areas and access portions of the City and to provide direct service to major attractors. The movement of vehicles rather than access to abutting land or parking is the major function of the Arterial Street. Arterial Streets are subject to regulation and control 5 vCL 69 FACE 994 V011 69 PAIGE 966 of parking, turning movements, entrances and exits and'curb uses. 2. Curb Return: The. circular portion of curbing at the corner or intersection of two curbs. See Figure 1. 3. Driveway Flare: The portion on each side of a driveway between the driveway throat and the edge of pavement. See Figure 1. 4. Driveway Throat: The width of the driveway inside the flare or curb return. See Figure 1. 5. Curb Cut: The length of curbing removed for - a driveway whose length is equal to the driveway flares or the two curb return radii. 6. Low -Volume Driveway: A driveway with a two-way volume (total entering and leaving volume) equal to or less than 50 vehicles during the peak hour of the driveway. Volume shall be determined based on similar type businesses and State Standards. 7. High Volume Driveway: A driveway with a two-way volume (total entering and leaving volume) of more than 50 vehicles during the peak hour of the driveway. Volume shall be determined based similar type businesses and state standards. B. Types of Access 1. Individual Driveways: A driveway can have many different types of operation. A driveway could be two-way providing for ingress and egress at one location. One-way driveways are utilized to reduce the number of conflicts on the street or inside the property. A driveway could be restricted to right turn in and right turn out only to eliminate left turn conflicts on the adjacent roadway. This type of driveway is usually controlled with a raised median barrier or a small raised triangular island between the in -bound and out -bound lanes to channel the traffic and reduce the probability of left turns. See Figure 2. Driveways can be designed with raised channelizing islands to prohibit either left turn entrance or exit. In some cases, a high volume driveway may require a traffic signal to provide for the necessary access capacity. This driveway would then function 11 . sTREET - CURB CUT --.-� MOAT v� PAP7 995 .VOL 69 FACEL 907 _ STREET . CURB CUT -� CURB RETURN I I RADIUS TMOAT RADIUS FIGURE 1 DRIVEWAY ELEMENTS FI GURE '2 RIGHT TURN IN AND OUT ONLY DRIVEWAY t . FIGURE 3 TI�T�l!'Titlld TR7TV Tt1/1TJTTTTTn T rT•.n TT1Dl.T S'hTTA�TT('`1;' Kl! 6.9 FACE 977 Vol 69 FACE1139 at the street as a normal signalized intersection between two streets and should be designed accord- ingly. 2. Shared Access: This technique provides for one access point usually centered on the property line and shared by two property owners (See Figure 5). The widths of these access points may vary depending on land use need. But, generally, the driveway throat width is 30 feet. This reduces both the number of access points to half and can significantly reduce the frequency of conflicts and accidents. 3. Consolidated Access When Separate Parcels are Assembled: When several parcels are assembled, a local jurisdiction may require new land use or driveway permits. These new permits reflect the property's new'configuration and use, and void any pre-existing permits. Similarly, -if a developer wishes to develop one portion of a larger underdeveloped area, the developer may be asked to meet with other owners in that area and develop a future street plan. This can assure a co-ordinated street system when the area is fully developed and can also afford an opportunity to consolidate access points for future developments. 4. Access Via Cross Streets: When appropriate, the primary access to development may be on a cross street and the arterial street access limited or even prohibited. See Figure 6. 5. Frontage Roads: Frontage roads help in separating local traffic from through traffic. They signifi- cantly reduce the number of access points along arterials. It may be desirable when considering a frontage road to allow a generous setback (200 feet or more) so that commercial development can locate between the highway and the frontage road. See Figure 7. C. Design Review Requirements 1. All new developments, as a condition of the Site and Design Review approval, shall be required to dedicate to the city any local service streets or collectors that are identified in Part IV of this Master Plan, Long -Range Access or in the City of Redmond Transportation Plan. The intersection of the frontage road and collector or local service street should be at least 200 feet and preferably 300 feet from the intersection of the collector or local service street and 0 VOL 69 PAGE 908 VOL 69 PACE 010 These distributed revenues could be allocated by the City for use in access improvement projects which hace a significant general public benefit. It is also appro- priate for the City to choose to allocate these funds to projects identified in the Redmond Traffic Study which involve improvement of arterial and collector streets. The County portion of Forest receipts is used each year within the County on prioritized projects. Some of these projects have been in the Redmond Urban Area. Since a major portion of the study area is outside the city and within the Redmond Urban Growth Boundary, it is anticipated the County will continue to provide funding support for projects in the Redmond area. However, the Forest Receipt allocation will not provide sufficient funding for all the needed general benefit projects identified in this report and the Redmond Traffic Study. There are considerations at the State and Federal levels that will jeopardize the county Forest Receipt Program. With a greater demand for basic school support coming from forest receipts, the County share could in the future be apportioned to the County general fund rather than the road fund. In addition, forest receipts hace been reduced because of the economic conditions. When the economy turns around these funds will increase under the current method of funding.. The effect on the county road system would be significant. The City of Redmond would also have to look for additional sources of funds, even for small capital improvement projects. D. Special Street Levy The City of Redmond currently has a charter provision allowing a special street tax levy each year in the amount of three mills. These funds are allocated to general street improvements within the city each year. The improvements have normally included street overlay maintenance projects in conjunction with the State Tax Street Funds. These funding sources will be hard pressed to keep up with demand in the years ahead. E. General Obligation Bonds One of the most common methods of financing major capital improvments is through the use of general obligation bonds. Advantages of this method are the ability to perform major construction projects and retire the bonds over a long period of time. The financial impact is spread over the duration of the bond pay -back period. Cities and Counties have the power to sell authorized 37 ►' a► Wa 69 RX -E 999 VOL 69 FAuE 911 FIGURE 4 DRIVEWAY WITE.PROHIBITED LEFT TURN EDIT PARKING PROPERTY LIKE FIGURE FIGURE 5 SHARED ACCESS ON PROPERTY LINE FIGURE 6 ACCESS VIA A COLLECTOR STREET PARALLEL COLLECTOR STORE AUTO FAST OFFICES REPAIR FOOD ------- — — — --- -------- — -- ------ — — • STATION RES- BARDWARE TAURAN'TSTORE TAVERN I L G� FI GURE 7 ACCESS VIA FFZT4GE READ ACCESS TO BUSINESS AND PARKINGcg ' 1 U U l 1 � F U t ONE WAY FRONTAGE ROAD la 0 ' U .yRTFFIAL _ _ — r000 r D. E. VOL 69 PAcE1001 arterial streets. VOL 69 PACE 913 2. All new developments adjacent to a vacant parcel of land, as a condition of the Site and Design Review approval, shall be required to provide shared access with the adjoining vacant lot unless access to the vacant lot is provided from a side street and is otherwise in compliance with this plan. 3. When a vacant lot or lots are developed or redeve- lopment of a parcel occurs, no more than one access shall be permitted unless the development is in full compliance with the standards of this plan. Partition and Subdivision Requirements 1. All partitions and subdivisions adjacent to Highway 97 may be required as condition of approval, to sign improvement agreements providing for the future shared access between the partitioned or subdivided parcels. Standards for Determining the Number and Spacing of Allowed Access Points 1. The spacing of driveways should be related to adjacent driveways and nearby street intersections. Driveways generally should be located as far from a street intersection as possible to reduce vehicle conflicts. Low volume driveways should not be located on an arterial within 100 ft. of a street intersection while high volume driveways should be located at least 200 feet from a street intersection. 2. The minimum spacing between two low volume driveway curb cuts should be 100 feet and between two high volume driveway curb cuts, 200 feet. The minimum spacing between a low volume driveway and a high volume driveway should be 200 feet. The minimum spacing batween high volume driveways may have to be greater than 200 feet if the left turn lane requirements would conflict with adjacent or other driveways. 3. The spacing between driveways should be relative to both the adjacent zoning, land use and to the speed of travel. Spacing should be guided by the following standards. 12 VOL 69 fAFz . VOL 69 PACE 914 OPTIMAL MPH DISTANCE BETWEEN DRIVEWAYS 50-55 275 FT. 45 230 FT. 35 150 FT. 25 105 FT. 20 85 FT. OPTIMAL ZONING DISTANCE BETWEEN DRIVEWAYS C-1, C-2 150 FT. M-1 300 FT. R-4 NO ACCESS IF LESSER ALTERNATIVE EXISTS 4. Driveways should be located in relationship with other driveways on the opposite side of the roadway. The spacing between opposing driveways should be long enough so that each driveway has a sufficient left turn storage land and that queuing vehicles do not block other driveways. 5. Driveways should also be spaced to minimize the conflicts between opposing left turning vehicles in a two-way left turn lane. 6. Driveways should, when possible, be aligned opposite one another to avoid conflicts between opposing left turns or when motorists may drive between the driveways. 7. Additional access control on Highway 97 should be considered when the total P.M. peak hour site traffic volumes reach any of the following levels for a single access point on Highway 97: -Right turn in or out -- 200 to 250 vehicles per hour -Left turn out -- 50 to 100 vehicles per hour -Left turn in -- 150 to 200 vehicles per hour or maximum queue of eight vehicles. 8. A variance request from the standards regarding access spacing and location may be allowed by the Site and Design Review Commission. The decision of the Commission may be appealed to the City Council. A variance may be granted upon a finding by the appropriate review body that all of the 13 Vol69 PACE1003 69 FACE 915 following criteria can be satisfied. a. Variances from the standards in this plan for driveways shall be considered only after the following options have been determined unfeasible: 1. Access from side streets 2. Access from a frontage road 3. Shared access with adjoining properties In the case where one of these options is anticipated in the future but not feasible at present, a variance will not be allowed, but a temporary access permit may be issued until slich time that the option is developed. b. There are exceptional or extraordinary cir- cumstances or physical conditions such as narrowness, shallowness; shape or topography of the property that would result in the denial of access to the property,if compliance with the provisions of this section was required. C. The request will be the minimum variance necessary to alleviate the hardships or practical difficulties. d. In determining a variance, the Commission or the Hearings Officer may attach such conditions to granting all or a portion of any variance as necessary to achieve the purpose of this ordinance. F. Design Standards 1. The following are design findings to be considered in the Design Review Process a. The conflict effect of driveways is a function of traffic f loo along the street and at the driveway. Traffic from adjacent driveways and from driveways on the opposite side of the roadway may also be in conflict. b. A low-volume driveway causes relatively little conflict on a major route, and a high-volume driveway causes little conflict on a minor route. The relationships, however, are not necessarily linear. 1 A VOL 69 PAGE/OC[4 VOL 69 PAGE 916 C. Driveways are essentially "T" intersections. High activity land uses produce driveway volumes greater than those of most intersections of local streets with arterials. d. The design elements of each high-volume driveway (location, spacing, sight distance, throat width, radii, angles, deceleration and acceleration lanes and grades) should be based on expected volumes by directions of arrival and by vehicle characteristics. e. In the absence of a separate left -turn lane, the left -turn entry movement generally causes the greatest hazard and street congestion. f. The left -turn exit movement is the most sensitive to spacing of the driveway relative to the nearest point of street traffic control (especially a signal). Such movements are also relatively hazardous. g. The right -turn entry into a driveway is the second most sensitive movement in respect to spacing from the location of street traffic control. Such movements also impede through traffic. h. Driveways along major and collector routes should be designed for curb lane access and with minimal encroachment on travel lanes disregarding present parking practices. i. In order to preclude encroachment on travel lanes, radii for right turn entry and exit should be consistent with the design vehicle's swept path requirements. j. If the radius is inadequate, encroachment will occur unless the entering or leaving vehicle temporarily occupies a substantial width of the driveway throat. k. For a low-volume or one-way drive, it is acceptable for vehicles to sweep across the entire throat. 1. Two-way drives represent the most practical design for many conditions: for high-volume operations, such a driveway may be considered as two adjacent one-way driveways separated by a center line. 15 ra 69 FACE1005 VOL 69 PACE 917 M. If 30 feet of linear curb opening is needed for 'right turn entry (or exit) from a curb lane of given width and by a specific design vehicle; the access may be provided by: 1. Separate in and out drives, each with a 30 -foot curb cut and a curb return of zero radius. 2. Two separate drives, each with a 30 -foot curb cut, but with a 15 -foot throat and a 15 -foot radius on the curb return on one side. 3. A single two-way drive, with a 60 foot total curb cut, 30 -foot throat and 15 -foot radii on both sides. n. In most areas, pedestrian accidents involving cars entering or leaving driveways are infrequent compared with the number of vehicular collisions involving the driveways.. o. Where pedestrian safety is a major factor, design m.l. above is the poorest since a total of 60 feet of driveway crosses the walk in contrast to a total of 30 feet of throat for either the m.2. or m.3. designs. However, the degree• of difference is also a function of the placement of the sidewalk within the area between the curb and the property line. P_ In areas of high pedestrian activity, designs for low speed vehicular entry and exit may be based on radii of intermediate dimensions and restricted total widths. Such designs, however, may increase vehicle/vehicle conflicts and increase the number and length of delays to vehicles. q. The differing problems indicate that two separate design standards are needed in urban areas: one to minimize pedestrian/vehicle driveway conflicts, and the other to minimize vehicle/vehicle conflicts. r. The lesser problems indicate on low volume routes also suggest less stringent design requirements on secondary streets. S. Because of the much higher speeds on rural highways, they require a higher level of design than urban streets. VOL 69 PACE1006 VOL 69 FA'E 918 t. Most driveway design elements are directly related to the layout of the parking area, amount of reservoir space, (for drive-in service facilities) type of loading facility, circulation pattern, and building placement within the site. U. The relationship of site plan to driveway design is so critical that review and approval of both building and driveway permits should be concurrent. This should be done even if it requires the collaboration of two separate departments. V. Land use is strongly related to traffic volume, which in turn affects driveway design; therefore, zoning changes should not be made without considering driveway access elements. W. No one set of regulations can be expected to apply to all access requirements (even f or a single type of lane use) . Therefore, "controls" should be expressed as guidelines, subject to administrative variations based on engineering judgment. 2. Radii and Width A -critical element of the driveway design is the radius of the curb return or amount of flare of the curbing connecting the edge or throat .of a driveway with the edge of the nearest travel lane. The radius should be related to the swept path of a vehicle making a right turn in or out so that the vehicle can turn from or into the right lane of the street and remain within the appropriate entrance or exit lane of the driveway. The minimum throat width for commercial driveways should be 30 feet for two-way operation and 15 feet for one-way operation. The radius of the curb return or driveway flare would be ten feet as a minimum and 15 feet as a desired dimension. Driveways for vehicles larger than a standard automobile should be made larger as indicated on Table 1. The radii for a right turn in, right turn out only driveway with channelization would be increased to direct the vehicle movement. The inbound curb return radius should be at least 30 feet and the outbound curb return should be at least 45 feet to allow for sufficient land width and 17 DRI 1DIAY DESIGN ELEMENTS Throat Width Minim Maxim=• Curb Return Radius Minimum Maximum TABLE 1 Residential 10 ft. 30 ft. 18 VIIL 69 PAc4007 VOL 69 PACE 919 Commercial Industrial is ft. 20 ft. 48 ft. 40 ft. 10 ft. 25 ft. 25 ft. 50 ft. VOL 69 PgENOB " the center triangular island. Vot 69 PAGE 920 3. Sight Distance Sight distance associated with the operation of driveways or intersections controlled with stop signs must be sufficient for motorists when viewing the arterial in both directions to enter the arterial and accelerate to the operating speed by more than ten miles per hour. It also must be long enough for left turn entering motorists to see a sufficiently large and safe gap between vehicles in which to turn and enter the site. Also, there must be adequate safe stopping sight distance for the arterial traffic to stop if necessary. These measures of sight distance are all related to the operating speed of the arterial, the height of the driver's eye and passing vehicles and the acceleration rate of the entering or leaving vehicles. Table 2 indicates suggested sight distance at intersections and driveways for various arterial speeds. It may be necessary at certain locations to make an engineering analysis of sight distance requirements because of grade, curve and speed conditions. 4. Turn Lanes Left turn lanes for all driveways on arterial streets are recommended. The length of these lanes is calculated on the basis of the expected number of vehicles which would queue in the lane. The length of queue is related to the number of opposing vehicles, number of opposing travel lanes and if controlled by a traffic signal. The determination of this length would require an engineering calculation. A right turn lane or taper may be required for certain high volume driveways. the purpose of this lane would be for traffic entering a driveway to decelerate in a separate lane than the through travel lane, and therefore not affect the arterial traffic flow. A second purpose for a right turn lane would be to increase the capacity of the arterial street when a driveway is signalized. III. ACCESS IDENTIFICATION A. Existing Conditions The intent of access identification is to allow property owners to become aware of their present situation 19 Arterial Design" Speed in Miles Per.Hour 20 30 40 so 6o TABLE 2 SUGGESTED SIGHT DISTANCE VOL 69 FAGEIOQ9 WU 69 FAQE 921 Minimum Sight Distance in Feet Passenger Cars Semi Trailer Trucks 200 300 300 Boo 400 850 500 1600 600 2500 Source: I. Institute of Transportation Engineers,. Transportation and Traffic Enlaineering Handbook, Table 14.6, p. 613, 1976. 2. Institute of Transportation Engineers, Guidelines for Driveway Design and Location. v12L 69 PACE1010 VOL 69 PAGE 922 and land use activity as it relates to Highway 97 access. Currently, there is a very small portion of the study area which is improved with curb cuts controlling ingress and egress to each property or business. In essence, most access is only controlled natural physical barriers. The goal is to proceed with individual lot access identification while still maintaining an awareness process on behalf of the property owners that access is not unlimited and is healthy in the long run for business activity and traffic flow. As opposed to the guideline and future access plan elements of this report, the access identi- fication sets the basic parameters to be used as a. starting point. Maps of the study area are included in this section to graphically display the current access situation. The study area has been divided into the north corridor and the south corridor, each containing a number of maps portraying the Highway 97 access area. The south corridor contains 10 sheets and the north corridor contains 6 sheets. -Each street is 1" = 50' scale, and includes lot lines, lot numbers, road names, land use, proposed arterial street locations, and identification of existing access. The existing access points shown on the sheet represent, to the best of our knowledge, all locations on Highway 97 which are currently being used regardless of the condition of the access. In some cases, the access points are paved and curbed. In other cases, the access may entail the entire frontage of the property. Access is not shown for any vacant parcel. As these properties develop, they will be required to meet the appropriate access guidelines adopted by the City, County and State. Changes in access for the future should be subject to site plan review. Since most of the study area is not curbed, physical controls are not possible or practical. However, property owners should be aware of their permitted access points and the future guidelines applying to their property. Graphic Maps are not included in the Draft - Copies may be reviewed at City Hall. IV. LONG RANGE ACCESS PLAN A. Introduction Highway 97 bisects the City of redmond and the central business district. The zoning adjacent to the highway 21 VCL 69 RACE/Oil va 69 PAcF 923 is primarily commercial. Areas to the north and south of the city and within the Urban Growth Boundary are expected to develop commercially along Highway 97. In order to retain the integrity and the capacity of Highway 97 to function as a major arterial and a state highway, careful consideration must be given to future access to properties being developed along this corridor. Physical parameters such as topography, the canals, and the railway must be considered in the development of a long-range access plan. zoning and land use will also be a major factor in determining the type of access provided for the properties. The object of an access master plan should be to minimize turning conflicts on major arterials and on Highway 97 so that the capacity of these major facilities will not be impaired. These turning conflicts can be minimized by providing additional access points to facilitate new development and control turning conflicts through land use limitations. The areas lying north and so -,:--h of the presently developed city lend themselves to long-range planning for future -access. These general areas will be broker, down into sub -areas to provide an opportunity to look at the restrictions , the type of development, and the zoning as well as the feasibility of providing alternate facilities to accomodate access 'in each of the sub -areas. The sub -areas are designated southwest, southeast, northwest, and northeast depending on their location in relation to the city and Highway 97. B. Future Access by Sub -Area 1. Sub -Area SW -1: this area lies between Sisters Avenue and Pumice Avenue and between Highway 97 and Canal Boulevard. The area is 200 feet in depth on the northerly end and 500 feet in depth on the southerly end with Highway 97 frontage of approximately 1,500 feet. It is relatively flat in this area, and the canal abuts the westerly side. Zoning is commercial. The lots extend from Highway 97 to the canal. The area is developed other than a vacant lot near the north end of the area. This undeveloped parcel will not be a major influence on Highway 97 because of its size. The other parcels are devloped with Safeway grocery store, Mrs. Beasley's restaurant, and the Redmond Motel. All of these developed properties have access on Highway 97. The Safeway development also has access off of Pumice Avenue, which runs between Highway 97 and Canal Boulevard. A frontage road along the canal is not necessary for serving these properties. The undeveloped 22 rZ 69 RAG4012 VOL 69 PACE 924 parcel in the northerly end of the area should be developed with access to Highway 97. At the time of development, the access should be carefully reviewed to determine the location of the driveways so as to minimize their conflicts with Highway 97 traffic. The types of use should be limited to those which are low traffic generators. The projected re -alignment of Sisters Avenue and it's intersection with Highway 97 will provide additional access to the east of the highway. 2. Sub -Area SW -2: This area lies south of Pumice Avenue and north of Odem Medo Avenue. It is bounded by the canal and Canal Boulevard on the west and Highway 97 on the east. The canal bisects the property at the southerly end and extends from the southeasterly corner to the northwesterly corner. The topography is generally level, which will allow access to`the adjacent arterial streets with minimum grading. The zoning is commercial. The area varies in depth from 500 feet on the north to 600 feet on the south. The area includes the Ford dealership on the north end and Wagner's shopping center on the south. It also includes a number of long, narrow parcels with frontage on Highway 97. The parcels extend to the canal on the westerly end. These smaller parcels include a mix of residential and commercial development. The residences are generally located on the Highway 97 end of the lots. One of the narrow lots in the middle of the area is developed for mini -storage. This development also extends to the canal. Future development of this area may result in the combination of one or more of these long, narrow lots. The access plan for this sub -area retains the driveway access concept as allowed per the standards along Highway 97 and, in addition, it is recommended that a frontage road be provided along the canal on the westerly side of the property. The frontage road would allow the property to develop with access to the frontage road and the orientation of future development could also be towards the frontage road. The physical constraints to this frontage road are at the north and south ends. The road should intersect Pumice Avenue near the existing Safeway driveway so that there will not be a sight distance problem at the canal crossing. The intersection with Odem Medo should take place through the Wagner Shopping Mall parking lot adjacent to the canal. Another physical constraint is the existing mini -storage building. One of these structures will have to be removed 23 Vol 69 FACE1013 VOL 69 FACE 925 to accomodate the future road. An east -west access road could be defined about in the middle of the area to accomodate phased development of this sub -area. The access road would be located along a lot line of an existing narrow lot. Development of the north -south access road would then occur as the properties are developed to their highest and best use. The type of road recommended will provide one lane in each direction with a left -turn lane provided at major access points. There should be no on -street parking and a bicycle lane could be provided along one side of the roadway. Development of this frontage road to serve these properties will provide an alternate point of access for future development. Properties can develop with access onto two roads, thereby reducing the total reliance for access to Highway 97. Access turning conflicts on the major arterial will be minimized with this type of development. "3. Sub -Area SW -3: this area is bordered on the north by Odem Way and on the south by the future extension of Airport Way. Highway 97 forms the boundary on the east and Canal Boulevard forms the westerly boundary. The canal extends in a north -south direction and runs along the easterly edge of the property. This is a relatively flat, rectangular parcel consisting of approximately five acres. The primary use of the area today is the livestock sales yard. The balance of the property is undeveloped. The sales yard is not the highest and best use of the property. Future development should include plans for access from the Odem Way or Airport Way. This can be achieved by extending either a frontage road or internal circulation road in a north -south direction between these two streets. Development should be oriented towards Highway 97 or Canal Boulevard. The depth of this property allows considerable flexibility for development between these two streets. Develop- ment should be oriented towards Highway 97 or Canal Boulevard. The depth of this property allows considerable flexibility for development between the canal and Canal Boulevard. The inter- section of the proposed street with Odem Avenue and Airport Way should be sufficiently removed from the signalized intersection of Canal Boulevard and Highway 97 to accommodate left -turn stacking lanes. n A VOL 69 FACE/014 VOL 69 PAGE 926 A small portion of this sub -area lies east of canal and west of Highway 97. Access to this piece of property should be provided from Airport Way near the canal. Access could also be provided by constructing a canal crossing that would tie into the internal circulation system for the area lying west of the canal. No direct access to Highway 97 should be allowed. Development of the access roads to serve this area should be coordinated with development of the property. The north -south access road should have a minimum of one lane in each direction with a continuous left -turn lane. On -street parking should be prohibited. Bicycle and pedestrian facilities should be accommodated on one side of the roadway. This north -south street will function more as a collector than an internal -circulation road. It will retain the integrity of Highway 97 and Canal Boulevard to act as major arterials by restricting direct access to them. Greater emphasis will be placed on the signalized intersections of Odem Avenue and Airport Way with Highway 97 Canal Boulevard to accommodate turning movements. 4. Sub -Area SW -5-- This is an irregular area bounded on the north by the future Airport Way, on the westerly side by the canal, on the south by Yew Lane, and on the easterly side by Highway 97. The topography is irregular being relatively level in the northerly end of the property and depressed at the southerly end. The primary development in this area includes the Big R which is located approximately in the middle of the area. zoning is commercial. The width of the property ranges from 400 feet on the northerly end to 200 feet on the southerly end, with 2,000 feet of frontage along Highway 97. The key to controlling access to Highway 97 for this area is to provide an internal road or a frontage road type system. This frontage road could be located along the canal to provide access for future development. Orientation of future development could be towards this frontage road rather than to Highway 97. If a grade separated crossing isn't developed for Yew Avenue, the long-range plans are to extend it to intersect Highway 97 at right angles. This will require major fill across this depressed 25 vot 69 rx-4015 VOL 69 FADE 92'7 area and will either require filling or ramps extending from Yew Avenue into the depressed area. Development of a frontage road along the canal could also serve a portion of this depressed area. It is desirable to provide access to this depressed area from the frontage road or from Yew Avenue to avoid steep driveways required along Highway 97. Steep driveways could result in an unsafe condition during inclement weather. There is an existing right-of-way adjacent to Highway 97 for a frontage road, and also for the extension of Xero Avenue. This right-of-way parallel to Highway 97 is currently being used as a portion of the Big R parking lot. It may -- be traded for a right-of-way along the canal for the future frontage road. Xero Avenue should be improved to provide a common access point to Highway 97 linking it with the frontage road along the canal. The frontage road should be constructed as development of the properties occur. A two-lane facility should be provided and parking prohibited along the frontage road. The exact alignment of the frontage road in the northerly area should be coordinated with future development to provide optimum access and benefit to the sites. No additional canal crossing should be allowed so as to separate the commercial area from the resi- dential area to the west. All access will be to the north and south ends of the property. Very limited access should be allowed to Highway 97 and those existing accesses consolidated as much as possible to minimize conflicts with the future traffic signals proposed at Airport Way. This frontage road should be constructed in conjunc- tion with development of the properties. It should provide for one lane in each direction with bicycle lanes and pedestrian facilities provided on one side of the access road. 5. Sub -Area SW -6-- This sub -area is a large, undeveloped area lying south of Yew Avenue, west of Highway 97, and east of the canal. It extends in a southerly direction to the Urban Growth Boundary. The topography of this area is rolling with a low-lying area on the north end, and portions of the area are slightly higher than Highway 97. The zoning is R4 which provides for residential development. The area consists of large lots generally used for grazing or agricultural purposes. Some of the area is irrigated while other portions of al VOL 69 FacF1016 VOL 69 FACE928 this area have been developed residentially. A nursery, is located approximately in the middle of the area. Development of this residentially zoned area should be planned to limit access to Highway 97 in the future. One or two major access points should be provided connecting residential streets to the highway. These access points should be limited to not less than one-quarter mile and signalized when the warrants are met. Development of canal crossings on the west side of the property should be encouraged to connect the residential developments with South Canal Boulevard. Access to Canal Boulevard for residential development is encouraged over access to Highway 97. Any residential development along Highway 97 and Canal Boulevard should be backup type development with no direct access to the highway. Since this is a large undeveloped area, long-range planning of the internal circulation system should be coordinated with the major access points to Highway 97. The type of access to the highway should be similar to the type provided the residential development immediately to the west of Canal Boulevard near this area. 6. Sub -Area SE -1-- This area is bounded on the north by Sisters Avenue and on the south by the future extension of Odem Avenue. It is a narrow strip of land lying between Highway 97 and the railroad tracks. The area is comprised of a number of lots extending from Highway 97 to the railway right-of-way and are about 200 feet in depth. Zoning is commercial along this frontage. The area is developed quite extensively with a mix of commercial and industrial type uses with some residential uses. It is unlikely that lots will be combined to create larger parcels for future development because of the lack of depth between the highway and the -railway tracks. For this reason, it is felt that properties will continue to be used as they are presently being used. A mix of industrial and commercial type uses will continue because of the railway. The key to controlling access problems and the amount of congestion that may occur is through control of future access onto properties. Access to these properties from Highway 97 should be brought into conformance with the standards in this plan. 27 L 69 FAEl017, VOL 69 PAGE 929 Because of the shallow depth of these lots, a frontage road between the lot and the railway is not feasible. Those properties located adjacent to Sisters Avenue and Odem Avenue should be encouraged to develop driveways from these major roads. These driveways should be located as far from the intersection of Highway 97 as possible to reduce turning conflicts near the intersection. The continuous left -turn lane on Highway 97 will accomodate the turning movements that will be generated along the easterly side of Highway 97. By controlling the access to Highway 97 on the westerly side, the number of turning conflicts will be reduced to an acceptable level. 7. Sub -Area SE -2-- This sub -area is similar to Sub -Area SE -1 in that it is a narrow strip of land with Highway 97 forming'the westerly boundary and the railway tracks forming the easterly boundary. The sub -area extends from Odem Avenue to Airport Way. Unlike Sub -Area 1 though, it is not as extensively developed to date and better long-range access planning can be provided. This area varies in depth from 200 feet on the northerly end to approximately 300 on the southerly end. The zoning is commercial. Most lots extend from Highway 97 to the railway right-of-way in the rear. The lot sizes are of sufficient size to accomodate a small commercial or industrial develop- ment. Combining lots is possible and may actually occur if a developer is desirous of a larger development. Control of access for these undeveloped lots should be a part of the planning process. ONe or two major driveway accesses, in conformance with the standards, for each larger undeveloped lot will minimize turning conflicts along Highway 97. Odem Way and Highway 97 is a proposed future signalized intersection. Driveways could be extended adjacent to she railway tracks to serve these properties. Care should be taken to prohibit any driveways near the future signalized intersections on Highway 97. A larger undeveloped parcel lies immediately north of Airport Way. When this property develops, access to it should be provided from Airport Way. Driveways serving this property should be located sufficiently far from Highway 97 to reduce turning movement conflicts. A short frontage road may be feasible along the railroad tracks WK. VOL 69 FACE/018 va 69 FarGF930 extending from Airport Way, depending on the type of development that is proposed. Congestion along Highway 97 along this frontage will be reduced because of the proposed restrictions to Highway 97 on the westerly side. The access control on the westerly side, plus the control and location of driveways through the planning process on the easterly side, will result in minimum turning movements on this section of Highway 97. 8. Sub -Area SE -3-- This is a large sub -area extending in a southerly direction from Airport Way bounded on the east by the railway tracks and on the - west by Highway. 97. It extends to the southerly Urban Growth Boundary. The topography of this sub -area is rolling and includes land that is approximately the same elevation as Highway 97 as well as depressed areas along Highway 97. The zoning is generally industrial with a smaller area of commercially zoned property near the northern end. There is some industrial development near the north end and a livestock feed lot located mid -way in the property. Most of the property is undeveloped. The area ranges in width from 300 feet on the northerly end to 900 feet on the southerly end. This area is of sufficient size and depth to provide good master planning for future developments. A frontage road could be provided mid -way through the property or near the railway. In any event, driveway access on Highway 97 should be restricted to major access points. The commercial portion of this area is of sufficient size to accommodate one major access point at the future extension of Yew Avenue. The internal circulation system, whether it be a frontage road or some other form of circulation system, should be planned by the developer. (Refer to sub -area SW -5 for additional comments). It is recommended that this internal road be extended to provide access between the parcels to the north and south of this commercial area. This will eliminate the need to use Highway 97 for traffic circulation between the future developments. The major access points to this industrial area should be spaced approximately one-quarter mile apart so that when traffic volumes become sufficiently large, signalized intersections can be timed or interconnected to provide maximum capacity. 29 CL 69 FACE/019 VOL 69 PACE 931 The recommendation for this sub -area is intentionally vague to allow flexibility of the internal circulation system by the developer. 9. Sub -Area NW -1-- this area lies west of Highway 97 and east of 8th Street. It extends from Hemlock Avenue to Maple Avenue, and is commercially zoned property. It is about 70% developed. An internal street system exists with portions of the streets developed and other portions undeveloped. The development includes some light industrial type uses, commercial uses, and residential uses. The lots comprising this area are rectangular with frontage primarily on internal street systems and Highway 97. It is anticipated that this will experience more intense uses in the future. The existing residence within this area will be converted to uses other than residential and in many instances the smaller lots will be combined to form larger commercial lots. The more intense uses rely on access from Highway 97 at this time. There is a good existing street system within this area, and no additional frontage roads or streets are recommended. ,As development of these properties occurs or uses change. the orientation of development should rely more on the internal streets rather than access from Highway 97. It is desirable to limit additional access to Highway 97 in order to retain the capacity of the state highway. The master plan recommends that the intersections of Ringwood Avenue at Highway 97 and Maple Avenue at Highway 97 be signalized in the future. Access driveways should be located as far from the signalized intersections as possible. The key to retaining traffic capacity on Highway 97 in this area is to utilize the existing streets as primary access to the undeveloped lots. This should be required at the time of proposed land development or use changes. Access points to Highway 97 should be limited to those meeting the standards of this plan. Alternate access points on adjacent streets will reduce the turning conflicts on Highway 97. 10. Sub -Area NW -2-- This sub -area lies west of Highway 97, extending from Maple Avenue on the south to the Urban Growth Boundary on the north. It is the commercially zoned property within these limits. This is a relatively level area which 30 V21, 69 PAW020 VOL 69 FA,CE 932 is developed on the southerly end and is being used for -agricultural purposes on the northerly end. The developed portion includes a mix of commercial, light industrial, and residential uses. The developed portion is comprised of smaller lots with access to Highway 97. The extent of development of these smaller lots is about 60%. The existing residences and smaller businesses may develop to more intense commercial uses in the future. The existing development in this area relies on Highway 97 as their sole access. The commercial zoning of this long, narrow strip encourages strip development with reliance on the highway _ for access. In order to decrease the reliance of Highway 97 as the sole access to this area, an alternate access route would be at the westerly edge of this commercially zoned area. This roadway would act as a buffer between the commercial area and the residentially zoned area to the west. As the area is developed to a commercial use, access to Highway 97 can be controlled through • the requirement of developing this parallel access route to the west of properties. Orientation of development can be towards this alternate access toute thereby reducing turning movements on Highway 97.. In addition to the north -south frontage road running parallel to Highway 97, east -west streets should be planned for this area. These east -west streets should be planned to extend from 10th Street on the west to North Canal Blvd. on the east side of the highway. The intersection of these east -west streets with Highway 97 may eventually be signalized. The spacing of the street should be sufficient to allow progressive phasing on Highway 97. A practical spacing would be between 1,500 and 2,000 feet. These east -west streets would provide access to the commercial area from the residential area to the northwest. Local traffic would not have to rely on Highway 97 for access to the commercially zoned and developed areas along Highway 97 after development of the north -south and east -west street systems. The streets should be constructed to collector standards to provide for local circulation in the northwest area. Development of the streets will be coordinated with the development of the properties whivh they will serve. The primary beneficiaries of the additional street system will be the adjacent properties and, therefore, the cost of the streets should be borne by the adjacent properties. 31 ra 69 rAcU021 VOL 69 rAGF 933 � Consideration may be given to the formation of Local Improvement Districts for the construction of the streets thereby spreading the cost more uniformly over the area. 11. Sub -Area NE -1-- This area is bounded by Highway 97 on the west, 4th street on the east, and extends in a northerly direction from Hemlock Avenue to Maple Avenue. It includes a mix of commercial, industrial, and residentially developed properties. The zoning is commercial. The extent of development is about 70%, however, some of the existing uses may not represent the highest and best use for the zoning. Lot sizes are a mix of smaller lots to larger lots that extend from Highway 97 to 4th Street. Future development of this area may combine some of the smaller lots to attain a more economical development. the existing commercial development is primarily oriented with access to Highway 97. Existing access tc the lots are generally uncontrolled at this time. Long-range access planning for this area should encourage new development to provide access onto the adjacent streets and to limit the number of access points on Highway 97. Properties with frontage on more than one street should take their primary access of the minor street. Fourth Street should be developed between Hemlock Avenue and Maple Avenue. Development of Fourth Street to a collector standard will allow orientation of future development toward it, with more dependence on that collector street for access. This will tend to decrease the total reliance of Highway 97 for ingress/egress to these future developments. The anticipation constraints to improving and extending Fourth Street will be the opposition from the existing residential neighborhood to the east of Fourth Street. The existing residential uses are proposed to change in the long-range plan, to commercial uses. The improvement and extension of Fourth Sti-reet may tend to accelerate this change. Portions of northeast Fourth Street could be constructed in conjunction with adjacent private property development. Formation of a Local Improve- ment District should be considered for the development of Fourth Street to spread the cost to the benef itted properties. As these areas develop to a more intense use, greater reliance on local streets will be made 32 VOL PA6EIO22 VOL 69 PAGE 934 for ingress/egress to the properties. Fourth Street will carry a significant amount of local traffic by virtue of its location to the state highway and relation to existing commercial property. Development of Fourth Street will reduce the reliance on Highway 97 for access to the properties by local traffic. This will result in minimizing turning conflicts on the state highway and retain its integrity to function as a state highway. Special care should be taken to minimize access points near the intersections of Ringwood Drive and Maple Avenue which are proposed future signalized intersections. 12. Sub -Area NE -2-- This is a large rectangular area _ lying east of Highway 97 and west of North Canal Boulevard and extends from Maple Avenue on the south to the North Urban Growth Boundary. The area is comprised of large tracts which are currently being used for farming. Some commercial development exists on relatively large parcels with frontage along Highway 97. This large area provides an excellent opportunity for long-range planning for the internal circulation system. The zoning is commercial. The depth of the area between Highway 97 and Canal Boulevard ranges from 1,200 to 1,500 feet. The area is approximately one mile in length. Lots and tracts are large in nature and will accommodate larger developments in the future. The depth of the area is too great for total reliance on frontage on North Canal Boulevard and Highway 97. Additional streets should be provided to allow development along an internal street system. It is recommended that as a minimum, another north -south road be constructed through this area to allow development along it. A logical road to extend is northeast Fourth Street. This would provide lot depth of about 400 to 500 feet between Highway 97 and Fourth Street, and would allow orientation of development toward Northeast Fourth Street. In addition, some development would front on Highway 97. Fourth Street would function as a collector through the area and provide primary access to the commercially developed lots. It would be located near the existing canal, and in some instances may encompass the canal right-of-way. This seems to be a natural alignment for any north -south street through this area. In addition to the north -south collector street, 33 vc� 69 PW023 ic, 69 FacF 935 east -west streets should be provided that would connect with North Canal Boulevard and highway 97. These streets should be aligned with the future streets on the westerly side of the highway to provide continuity in the whole north corridor area. Spacing of these east -west streets should be between 1,500 and 2,000 feet to provide signal- ization on Highway 97. Development of these future north -south and east -west streets will allow access to the commercial area from the south and east portions of Redmond to the commercial properties without requiring the use of Highway 97. this will retain the integrity of the state highway and allow it to carry high volumes of thru-traffic with minimum impact from the adjacent commercial developments. Construction of these north -south and east -west streets should be phased with development. They can be a requirement placed on the developer or they can also be ^onstructed through a Local Improvement District. There will be a general benefit through the construction of these streets, however, the prime beneficiaries will be the adjacent comercial properties. For this reason, a Local Improvement District comprising the area between North Canal Boulevard and Highway 97 would seem to be the logical area included in the district. A constraint to the development of the north -south route may be the Central Oregon Electric property. The extension of Fourth Street will bisect this property. The roadway will generally run along property lines in other portions of this area. When this area is developed, the traffic volumes may be large enough to require signalization of the north -south streets and the east -west streets. For this reason, access to these new streets should be restricted near their inter- sections. The standards should be the proposed collector street standards. On -street parking should be prohibited, with provisions for pedestrians and bicyclists in the rights-of-way. A continuous left -turn lane should be provided to facilitate turning movements. The object of this long-range planning for access in this area is to reduce the total reliance on Highway 97 for access to the commercial area. Because of the relatively undeveloped status of the properties at this time, good long-range planning can beprovided to achieve these end 34 VOL 69 Fx%J024 v� 69 PAGE 936 results. Development of these north -south and east -west streets will provide the needed alternate access routes to the developed area. Development of a good circulation system in this large commercial area is necessary to accommodate traffic in what may eventually by the most intense commercially developedarea in the urban area. Large tracts are available for these future developments and a network of collector and arterial streets should be developed to accommodate the future development and serve the community. A primary goal should be to develop these streets to control strip development with total reliance on Highway 97. for access. Local traffic will comprise the majority of the traffic in this north corridor area after development of the area. An adequate circulation system for this local traffic will permit Highway 97 to function as a carrier for through traffic with minimum impact on its capacity. V. FUNDING OPTIONS The recommended access plan involves a slow process of development over time --corresponding to the development of the corridor property along Highway 97. Funding capabilities, property needs, lead times and other considerations require a phased approach. The funding options for the. Redmond Street System in general are discussed below, with a recommended implementation program f or access routes. There are no specific priority elements of the plan. Access will be developed as the land is developed. High priority elements which may need City assistance may include the access routes which would normally accompany the improvement of major arterial - /collector streets. A. Federal Funds Federal funds for highway improvements are allocated to cities and counties in the State on a population basis. This source of funding is small in relation to the needs of the community. The money is to be spent on streets and roads included in the Federal approved urban system and the Federal approved secondary system. The State administers the program. The PAU and FAS funding program is in jeopardy. All Federal funds for highways have been reduced by the current Federal administration. There may be other sources of Federal funds in the future, but they should not be considered at this time in financial planning given the circumstances. 35 ' , "I i1al, 69 rAcE/025 �lcI 69 FAc=937 Since the access road improvements recommended are not included by definition in the FAU or FAS funding program, Federal assistance is highly unlikely for frontage road alternatives. In addition, given the shortage of available Federal funding programs in general, particularly for highway improvements, other available local or State funds will need to be used to upgrade and maintain major arterial and collector routes, leaving fewer alternatives for frontage roads. Redmond receives Federal Revenue Sharing funds each year and could allocate all or a portion of FRS funds for access improvement. However, the future of FRS funds is highly speculative and should not be planned for this type of street project on a long-term basis. The County also receives revenue sharing funds, but none of them have been used for road purposes in the past. B. State Funds The State allocates projects to be constructed within the State Highway System on a six year plan for each geographic area. The State recently (1981) completed a major improvement project involving five lanes south of Redmond on Highway 97, and is currently considering the adoption of another major project for the Redmond area to be included in the revised six yea -r plan. Funding of projects included in previous six year plans was normally assured. However, in light of the current economic conditions, all projects included in future plans may not receive funding. The City and County have much to lose if these funds are not allocated and used in our region. Local officials should work closely with the Highway Division to achieve completed projects in the area that will benefit the general public. Access roads will not be a direct use of State funding since they will not be designated as State Highways. However, a local financing scheme must include adequate State funding for major routes in order to reserve other local dollars for non -State highway improvements. In addition, improvements relating to access which do apply to Highway 97 must be integrated with other local improvements, such as frontage roads, to provide traffic flow functions. C. Forest Receipts Deschutes County receives money from Federal Forest Reserve, which is applied to the road fund. The County uses these funds for road maintenance and construction, and distributes a portion of the funds to cities. 36 , VOL 69 pAC4026 These distributed revenues could be allocated by the City for use in access improvement projects which hace a significant general public benefit. It is also appro- priate for the City to choose to allocate these funds to projects identified in the Redmond Traffic Study which involve improvement of arterial and collector streets. The County portion of Forest receipts is used each year within the County on prioritized projects. Some of these projects have been in the Redmond Urban Area. Since a major portion of the study area is outside the city and within the Redmond Urban Growth Boundary, it is anticipated the County will continue to provide funding support for projects in the Redmond area. However, the Forest Receipt allocation will not provide sufficient funding for all the needed general benefit projects identified. in this report and the Redmond Traffic Study. There are considerations at the State and Federal levels that will jeopardize the county Forest Receipt Program. With a greater demand for basic school support coming from forest receipts, the County share could in the future be apportioned to the County general fund rather than the road fund. In addition, forest receipts hace been reduced because of the economic conditions. When the economy turns around these funds will increase under the current method of funding. The effect on the county road system would be significant. The City of Redmond would also have to look for additional sources of funds, even for small capital improvement projects. D. Special Street Levy The City of Redmond currently has a charter provision allowing a special street tax levy each year in the amount of three mills. These funds are allocated to general street improvements within the city each year. The improvements have normally included street overlay maintenance projects in conjunction with the State Tax Street Funds. These funding sources will be hard pressed to keep up with demand in the years ahead. E. General Obligation Bonds One of the most common methods of financing major capital improvments is through the use of general obligation bonds. Advantages of this method are the ability to perform major construction -projects and retire the bonds over a long period of time. The financial impact is spread over the duration of the bond pay -back period. Cities and Counties have the power to sell authorized 37 •. VOA 69 FACE/027 V161 69 FACE 938 bonds. Voter approval is required. Special district boundaries may .be implemented so as to spread the tax over the urban area benefitted. Wide spread community support is required to gain voter approval. Thus the project identified to be supported by G.O. bonds should be very general in benefit, such as arterial/collector improvements allowing traffic flow improvements. These improvements are identified in the Redmond Traffic Study, and certain collector street additions are included in this report. While the practice of levying a property tax is the most common method of obtaining revenue to retire the bonded debt, other sources are available, including a system development charge and revenue financing such as a gas tax. F. System Development Charge The City of Redmond is currently investigating the potential use of a system development -charge as a method to allow new development to help pay for new street facilities. The charge would be levied on all new development, including the areas fronting Highway 97. The SDC would be implemented by both the City and the County and apply to all development within the Urban Growth Boundary. A formula is proposed to be established using a capital improvement program of specific general benefit improvements. These improvements would be limited to arterial/collector streets, possibly those recommended in the Redmond Traffic Study, as being needed within the next twenty years. Good long-range planning and prioritizing of major projects by the City and County is necessary. The charge should be set at a rate allowing necessary funding to be generated as growth occurs. Accurate forecasts of growth and needed improvements through G.O. bond issues using the SDC as the method for debt retirement. The SDC could be very helpful in the implementation of the access recommendations involving collector streets. Certain access solutions invclve improvements to collector street standards. These would be prioritized with other major arterial/collectors and could use general benefit funding. G. Bancroft Bonding Oregon statutes provide for the creation of Local Improve- ment Districts to finance local street and road construc- tion. The City of Redmond has an adopted procedure for the proper use of LID's. This mechanism recognizes M VOL 69 PAGE.1028. von 69 PAF 939 the direct benefit to property included in the district, and improvement• costs are assessed against the property so benefitted. Payment of the obligation may be spread over a period of time using Bancroft bonds sold by the City with debt retirement being the property owner's responsibility. A similar procedure can be accomplished in the Urban Growth Boundary outside the City using County procedures and bonding authority. These districts and method of paying for the improvements are very effective for on-site projects, especially entailing more than one property owner. It effectively allows for the development of common access and frontage roads at a point in time when not all affected property owners may be ready to develop and improve their property. Many of the recommended access roads in this report will_ not become effective or workable solutions unless a joint financing scheme is available. Bancroft bonding should be an integral part.of the access solution. H. Summary and Recommendations The City of Redmond needs full use of State gas tax funds and the special street levy in order to maintain the existing road system available. Revenue from Federal and State highway funds will be important to provide major street improvements on the State Highway System. A combination of Forest Receipts, County participation, and General Obligation Bond funding backed by general taxes and a potential system development charge will be required to fund the recommended improvements in the Redmond Traffic Study. These funds could also be used for the collector streets recommended in this report, particularly the north corridor area. Other than the collector standard streets, the access improvements recommended would be a responsibility of the property owner. As property is developed, access routes should be developed on-site to the maximum extent possible. Bancroft bonding could be extended where more than one property is able to participate in access route development at one given time. In situations where access route construction is not feasible or effective at the time of property development, interim property access may be granted. However, dedication of right-of-way for future access routes should be required through the planning process, even when access improvements are not expected in the near future. When sufficient properties can be benefitted, the City should encourage the use of Bancroft Bonds (if local bonded debt capacity is available) to fund a frontage road project. This report attempts to provide alternative packages of access roads so as to allow small scale 39 VOL 69 PACEI029 Ai n projects as local development occurs . Vol, 6 9 FAGE 940 Through the planning process, the City should ensure that local access to properties bordering the highway 97 corridor are developed so as to effectively provide for a later conversion to access roads. Each separate development should be positioned around a more central access scheme, and interior access roads sized to accom- modate ultimate planning. Although specific planning for large parcels of property is not a practicality in each situation, particularly when development plans are far removed, it is extremely advantageous for the City to establish a future frontage road and access road scheme as soon as possible. As properties develop, options for traffic flow patterns are diminished when an overall plan is not properly followed. The recommended. frontage and access routes need to be carefully identiied as accurately as possible and adopted as a guideline for future land acquisition and improvement. 40