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1990-36799-Ordinance No. 90-042 Recorded 12/7/199090-36799 BEFORE THE BOARD OF COUNTY COMMISSIONERS OF An Ordinance Amending Ordinance No. PL -10, the Bend Area General Plan, to Designate the Bend Parkway Corridor as a Principal Arterial, to Designate Minor Arterial and Collector Connections to the Bend Parkway, to Adopt a Principal Arterial Access Management Policy, and Declaring an Emergency. REVIE v ED 1365 DESCHUTES COUNTY, OREGON V.f:�OFILMED * tic - C,:) r^C`a ORDINANCE NO. 90-042 WHEREAS, the Oregon Department of Transportation, Deschutes County and the City of Bend have proposed a new principal arter- ial corridor, known as the Bend Parkway Corridor, in which to relocate the existing U.S. Highway 97 through Bend; and WHEREAS, a portion of the Bend Parkway Corridor is proposed to be located within the existing Division Street right-of-way, but other portions of the Bend Parkway Corridor are proposed to be located in new rights-of-way with new alignments which are not now designated in the Transportation Element of the Bend Area General Plan; and WHEREAS, new minor arterial and collector connections to the Bend Parkway have been proposed by the Oregon Department of Transportation, Deschutes County and the City of Bend, and these proposed connections are not now designated within the Public Facilities Plan of the Bend Area General Plan; and WHEREAS, the proposed Bend Parkway Corridor and the proposed minor arterial and collector connections to the Bend Parkway must be designated in the Bend Area General Plan before the Oregon Department of Transportation is authorized to construct the Bend Parkway facility and before the County and the City of Bend are authorized to construct the minor arterial and collector connec- tions to the Bend Parkway; and WHEREAS, new plan policy language is necessary to assure limited access and access management on principal arterials, including the Bend Parkway Corridor; and WHEREAS, following notice as required by law, the Bend Urban Area Planning Commission conducted a public hearing on the pro- posed Bend Parkway Corridor amendments to the Bend Area General Plan on June 4, 1990; and 1 - ORDINANCE NO. 90-042 (11/28/90) df�, 105 - 1366 WHEREAS, following notice as required by law, the Board of County Commissioners conducted a public hearing on the proposed Bend Parkway Corridor amendments to the Bend Area General Plan on November 5, 1990; and WHEREAS, the Board of County Commissioners has reviewed the entire record of the proposed Bend Parkway Corridor; now, there- fore, THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON, ORDAINS as follows: Section 1. That the Bend Area General Plan Transportation Map shall be amended as shown in Exhibit "A," attached hereto and incorporated by reference herein, to designate the Bend Parkway Corridor as a principal arterial. Section 2. That the Public Facilities Plan of the Bend Area General Plan shall be amended as indicated in Exhibit "B," attached hereto and incorporated by reference herein, to desig- nate the minor arterial and collector connections to the Bend Parkway. Section 3. That the Circulation Element of the Bend Area General Plan shall be amended as indicated in Exhibit "C," attached hereto and incorporated by reference herein, to desig- nate the Bend Parkway Corridor as a principal arterial. Section 4. That the Transportation Element of the Bend Area General Plan shall be amended to include a new policy entitled "Access Management Policy for Principal Arterial Facilities," attached hereto as Exhibit "D," and incorporated by reference herein. Section 5. That the Board of County Commissioners hereby adopts as it findings and conclusions in support of the amend- ments in Sections 1 through 4 of this Ordinance the document entitled "Planning Commission Report and Recommendation in Support of an Amendment to Transportation Element Designating a Bend Parkway (Highway 97) Corridor as Principal Arterial and Revising the Street Project List Within the Public Facilities Plan," attached hereto as Exhibit "E," and incorporated by reference herein. Section 6. This Ordinance being necessary for the immediate preservation of the public peace, health and safety, an emergency is declared to exist, and this Ordinance takes effect on its passage. 2 - ORDINANCE NO. 90-042 (11/28/90) ` 105 1367 DATED this day of , 1990. BOARD OF COUNTY COMMISSIONERS OF DESCHUTES CO TY, OREGON I OW RANTE, Commissioner AT T• TOMT R OP C 'r Recording Secretary EMCK MA DL , ommissioner 3 - ORDINANCE NO. 90-042 (11/28/90) EXHIBIT "B" 1Q -° 1368+ Amendments to the Public Facilities Plan for the Highway 97 BEND PARKWAY PROJECT The arterial and collector Improvement List shall be revised as shown on the attached pages marked Page 11, 12, and 13 Public Facilities Plan 100 • 1369 Arterial and Collector Improvement List Rough Cost Estimates (Excluding Right of Way) Revised March, 1990 Project Cost Provider Ponderosa Mur rAyy g to Lava Butte - widen to $ 5,704,000 ODOT Hwy. 97, . 5 lanes i5+ }, Street,nod M r- of Ree d—Market � y c r i rl o n ?� i li o na4} ewa c 'cvurrcZ az 8th -9th connector - realign 9th to intersect 104,700 City 8th at Emerson, pave, curb, sidewalk Hwy. 97/3rd St. underpass - widen 4 lanes 3,500,000 ODOT 9DGT End of pavement east of - Boyd Acres to Deschutes Market 830,000 County Cooley Road _ (Anderson Rd.) Empire Blvd." - end of pavement to O.B. Riley 170,000 County Empire Blvd. - Boyd Acres to Yeoman Rd. 720,000 County Frontage Road between Cooley Rd. & Hwy. 20 216,000 County Frontage Road, Empire north to Mt. View Mall 6,000 entrance Div nivis}ate--S - .p Hwy. 20, 12th St. to Powell Butte Rd., widen 2,500,000 ODOT Hwy. 20, Deschutes River to Hwy. 97 intersection, 913,000 ODOT widen Page 11, Public Facilities Pla: Page 12, Public Facilities Plan V A 1 3 1 O Cost Provider Project i rlac.t� gra bridge, c City/ grade Butler Mkt. Rd., Hwy. 97 to Studio Rd., g 670,000 County/ pave bridge canals, curbs, sidewalks State 180,000 City Wils-n - Division to Pelton �.�g ODOT/ Wilson Ave., 5th to Division - widen, improve 340,000 County radius, sidewalk Reed Market Rd., Newberry to 27th 520,000 County Reed Lane, Hwy. 97 to Parrell Rd. - widen 25,000 County SE 15th, Reed Market to King Hezekiah 30,000 County sidewalk Reed Market/Arthur Ave., 3rd to Blakely Rd. 675,000 City/ County Lodgepole Dr., Mahogany to Brookwood 135,000 County Brosterhous to 15th, grade, pave, 170,000 County Murphy Rd., fir --r_tiat-j-en sidewalks, 2 lanes plus turn lanes at major intersections Brosterhous realignment - grade, pave, sidewalk, 740,000 County 2 lanes Ferguson, 27th west to existing road - realign 35,000 County Portland to Penn - grade, sidewalk, 2-3 lanes 743,000 City Purcell, Wells Acres to Butler Market 85,800 City Mt. Washington, Valhalla to Deschutes River, 1,726,400 City grade, pave, sidewalk, bike path 85,000 County Williamson, Hwy. 20 to Bear Creek Mt. Washington, Shevlin Park Rd. south to Century 916,000 County/ City Drive, grade, pave, sidewalk, bike path Bear Creek, realign through to Franklin 100,000 City Page 12, Public Facilities Plan Project Shevlin Park Road, College Way to Valhalla 15th Street, Bear Creek to Hwy. 20 Neff Road, 27th to Hamby Road 105 1371 Cost Provider 348,000 City 129,200 City 585,000 County/ City Page 13, Public Facilities Plan 260,000 City 27th St., Neff to Hwy. 20 Bear Creek, Craven to SE 27th Street 350,000 County Newport, College Way to Deschutes River 290,400 City Simpson Avenue, dump west to Mt. Washington 238,000 County Century Drive, Colorado south to UGB, widen 100,000 ODOT 108,800 City NW 9th St., Newport to Trenton 300,000 County Brinson, Butler Mkt. to Brinson 154,000 City Wells Acres, Purcell to 27th 116,800 City Purcell, Neff to Williamson 178,000 City NE 4th, Addison to Butler Revere St. - Deschutes Place to Hill ..10,000 ODOT 370,000 ODOT Hill St. - Revere to Portland Ave. Highway 97 - Bend Park Way Rd. to vicinity of Murphy 38,000,000 State Sisters Interchange Pinebrook 150,000 County Brookswood Ave. - Power to Brookswood 320,000 County Power Rd. - Parrell Rd. to Parrell Road, Brosterhous to China Hat 975,000 Blakely.Rd./Brookswood, Arthur to Ponderosa 500,000 10,300 Hawthorne, Division to Hill Skyline, Mt. Washington to Mt. Washington 556,100 Arthurtaro n; T r ; C ke- $ Page 13, Public Facilities Plan EXHIBIT "C" 105 1372 RECOMMENDED TEXT AMENDMENTS Page 22 PROPOSED CHANGES TO CIRCULATION ELEMENT BEND AREA GENERAL PLAN [Section numbers correspond to numbers in right margin of existing transportation element] (1) Page 2, paragraph 2 - replace with the following: North -south traffic volumes on Highway 97 (3rd Street) corridor are expected to grow to about 80,000 ADT in 2015, far exceeding the capacity of 3rd and Division Streets. Capacity of 3rd Street is limited by signals. (2) Page 3, paragraphs 1 & 2 - replace with the following: The transportation model shows that there will be inadequate east -west capacity across the river, railroad tracks and 3rd Street. The north -south capacity along existing Highway 97 and Division Street will also be inadequate to meet future traffic needs. (3) Page 4, paragraph 1 - replace with the following: 1 RECOMMENDED TEXT AMENDMENTS 135 -a-1373 Page 23 The functional classifications of the major street network are shown on [Map C] the Bend Area General Plan map in terms of existing roads. The Bend Area General Plan map shows the existing major network and future road proposals for the urban growth area. The following discussion addresses the future plans for implementation and corridors by functional classification: (4) Page 4, insert the following before Urban Minor Arterials: PRINCIPAL ARTERIALS There are three routes designated as principal arterials, existing 3rd St., Highway 20 and the Bend Parkway corridor. These routes have a variety of needs which are discussed by route: Highway 20. This route enters the urban area from the northwest as a two lane facility joining highway 97 at the Sisters interchange. It [R]runs coterminous with Highway 97 to Greenwood Avenue and turns east on Greenwood as a five lane facility to 12th Street. East of 12th Street Hwy 20 goes around Pilot Butte and passes out of the urban area as a two lane road. 105 = 1374 RECOMMENDED TEXT AMENDMENTS Page 24 [General improvement needs for this route beginning at the route's entrance on the northwest are:] Several improvements are needed for this route beginning at the north end. There is a general need for widening and alignment improvement for capacity and safety. There is a need for extension of the frontage road system around the Sisters interchange to protect the capacity and safety of the two highways and to provide access to abutting properties. The section from Sisters interchange to Greenwood Avenue is a five lane facility. It lacks sidewalks and bike paths for much of this section. This is a built up area and major intersections are controlled by signals. Additional signals will be needed in this section to promote east -west traffic circulation. From Greenwood east to 12th, the route is a five lane facility. From 12th Street on, it is two lane with some left turn refuges. This section is planned for widening and realignment to provide capacity and safety. The realignment will move the grade of Highway down on Pilot Butte to allow the construction of an intersection with 15th Street. Access management and consideration for frontage roads is needed, particularly from Pilot Butte east to the UGB. t i 1 le E 105 - 1375 RECOMMENDED TEXT AMENDMENTS Page 25 Bend Parkway. As a section of Highway 97, the Bend Parkway will be part of the Access Oregon Highways (AOH) System. The goal of the AOH system is to provide for the economic growth of Oregon by moving through traffic safely and efficiently between geographic areas within Oregon and between Oregon and adjacent states. The route begins at the Sisters interchange and extends south [parallel] adjacent to the railroad, then crossing 3rd St. south of the Hampton Inn. It then follows 2nd St. to Thurston where it crosses Division St. It follows Division St. generally to Cleveland Avenue where it bears west and runs generally parallel[s] to the existing highway 97. [to merge back] The Parkway connects with the existing Highway 97 in the vicinity of Murphy. The alignment of the route could vary either side of the corridor along Division Street to best meet the needs of the route to preserve access to existing businesses, and to maintain a high level of capacity and traffic safety. The route is being designed to be limited access as much as possible. Grade separations, interchanges at major intersections, and a raised median along much of its length are proposed to ensure that the capacity and safety of the route is maintained at a high level. This corridor and the existing 3rd Street will provide for traffic demand forecast by ODOT through 2015. The corridor will provide for both through trips and trips within the urban area. i ■ 105 •-1376 RECOMMENDED TEXT AMENDMENTS Page 26 The City, County, and ODOT have developed an access management agreement and policy for the new corridor. The plan and policy should provide for protection of the capacity of the new route, protection for the east -west arterial traffic movements and overall safety of the public. 3rd St. south of Greenwood Ave. This section of 3rd St. will remain a principal arterial after the Parkway is has been constructed within the corridor described above. It is the major business street within the urban area and substantial business growth is expected along this street, particularly the southern segment. [(1)] There is a need to also apply access management plan and policy to this route. [(2)] Signals on this route will determine future east -west street routes and control the overall capacity of the street. The City, County, and ODOT need to prepare and adopt a signal location plan for this route. The plan would provide for east -west traffic movements and sustain the capacity of the existing facility. [(3)] The Franklin Avenue railroad underpass in the center of town needs to be widened to four lanes. 105 _,w 1377 RECOMMENDED TEXT AMENDMENTS Page 27 [(4)] Both the existing Highway 97 and the new Parkway corridor will need to provide for easy access between the routes to facilitate access to the existing businesses and to downtown. (5) Page 4, paragraph 1 under Urban Minor Arterials - [delete the first seven lines.] replace the first seven sentences with the following: Division Street is designated as an urban minor arterial and currently runs from Mt. Washington Drive on the north to Brosterhous Road on the south. Division Street is a major north -south route the parallels Highway 97 and has proven to be a significant relief for 3rd St./Hwy 97 traffic. It will continue to serve as a minor arterial until the Bend Parkway is completed in the mid 1990s. After the Parkway is built the remaining north segment of Division Street from Mt. Washington Drive to Revere Street will remain as a local minor arterial. The short segment of Divsion south of Cleveland Avenue will become a local collector street. (6) Page 5, paragraph 5 - replace with the following: [Colorado Avenue extends from Bend Parkway west to 14th Street. Colorado is part of the ODOT's Century Drive highway. Traffic volumes are expected to increase substantially, and the connection to Bend Parkway is proposed as a interchange.] r 105 _,w 1377 RECOMMENDED TEXT AMENDMENTS Page 27 [(4)] Both the existing Highway 97 and the new Parkway corridor will need to provide for easy access between the routes to facilitate access to the existing businesses and to downtown. (5) Page 4, paragraph 1 under Urban Minor Arterials - [delete the first seven lines.] replace the first seven sentences with the following: Division Street is designated as an urban minor arterial and currently runs from Mt. Washington Drive on the north to Brosterhous Road on the south. Division Street is a major north -south route the parallels Highway 97 and has proven to be a significant relief for 3rd St./Hwy 97 traffic. It will continue to serve as a minor arterial until the Bend Parkway is completed in the mid 1990s. After the Parkway is built the remaining north segment of Division Street from Mt. Washington Drive to Revere Street will remain as a local minor arterial. The short segment of Divsion south of Cleveland Avenue will become a local collector street. (6) Page 5, paragraph 5 - replace with the following: [Colorado Avenue extends from Bend Parkway west to 14th Street. Colorado is part of the ODOT's Century Drive highway. Traffic volumes are expected to increase substantially, and the connection to Bend Parkway is proposed as a interchange.] 105 - 1378 RECOMMENDED TEXT AMENDMENTS Page 28 Colorado Avenue extends from Division Street west to 14th Street connecting to Century Drive. Colorado is part of ODOT's Century Drive Highway and traffic volume on this route has increased substantially in recent years. Division Street in this area will be replace by the Bend Parkway. The Colorado Avenue connection to the Bend Parkway is proposed as an interchange. (7) Page 7, paragraph 1 - delete. (See #2) Revise to read as follows: [Division Street, from Hwy. 97 to Revere will remain as a local arterial. Revere and Hill Streets will become the arterial street connection to downtown as function as part of the new Parkway interchange at Revere St.] The Bend Parkway will have a half -cloverleaf intersection with Revere Avenue. The Revere Avenue -Hill Street route will become the main north arterial street connection to downtown from the Bend Parkway. (8) Page 11, No. 24 - revise to read as follows: 24. The Bend Parkway corridor shall be designed with limited access to ensure public safety and future traffic carrying capacity. (9) Page 11, No. 26 - revise to read as follows: Y ■ RECOMMENDED TEXT AMENDMENTS 105 1379 Page 29 26. When the new Highway 97 is built within the corridor north of the Bend River Mall Avenue, the area currently designated on the plan or zoned IG may be rezoned to Commercial or Light Industrial, provided the access to these areas is from a frontage road or local street system and not directly to the new highway. The route shall be designated a landscaped street with an appropriate landscaped yard required in the zoning ordinance. (10) Page 11, No. 27 - 31, add a new policies to read as follows: 27. The language of the Access Management Policy for Principal Arterial Facilities is adopted by reference as part of the Bend Area Comprehensive Plan. 28. To meet the objectives of the AOH system, to protect the integrity of the route's through capacity, and to promote public safety, the Bend Parkway will be planned, constructed, and managed to limit direct access to the facility. 29. To maintain the viability of the existing Third Street and downtown business districts, the Bend Parkway will provide convenient access to these areas to the greatest extent practicable. r 105 • 1380 RECOMMENDED TEXT AMENDMENTS Page 30 30. Design and maintenance of the Bend Parkway shall, to the greatest extent practicable, incorporate visual quality considerations. 31. The construction of [Highway 97 within the corridor shall] the Bend Parkway shall, to the greatest extent possible, include landscaping, sidewalks, and bike paths. (11) The Bend Area General Plan map shall be amended to include the Bend Parkway corridor as a principal arterial and necessary connection to the arterial and collective system. \PLANNING\PARKWAY\97AMEND.REv EXHIBIT "D" 1 0 r ACCESS MANAGEMENT POLICY FOR: PRINCIPAL ARTERIAL FACILITIES PURPOSE The purpose of this policy is to identify standards and procedures to preserve the capacity of the principal arterials to carry traffic efficiently at high levels of service and to ensure safety. The function of the principal arterial is primarily to provide for interstate, interregional, intercity, and longer distance intracity travel needs. It can not efficiently function in this way if it must also provide significant levels of direct land access. The policy is to be adopted and jointly administered by the City of Bend (City), Deschutes County (County), and the State of Oregon Department of Transportation (State). APPLICATION This policy shall apply to all new and existing City and County principal arterials within City Urban Growth Boundary, and all projects on State highways for which an agreement making this policy a part has been executed between City, County, and State. A physical medial barrier will be installed on new principal arterial facilities to prevent left turns except at designated public road or street intersections where determined to be appropriate for design reasons. All accesses, public or private, between these location shall be necessarily limited to right turn in and right turn out movements. Private direct access to a principal arterial facility will not be permitted except as provided bel<;w under EXCEPTIONS. Direct access to a principal arterial facility may be allowed for properities which abut that facility where no other access is possible to another public road facility without crossing adjacent private property. In cases where direct access to a principal arterial has been allowed as above, it will be discontinued if and when access to a frontage road or other public road becomes possible. AIH90005 105 1382 No additional direct access shall be provided upon splitting or dividing of existing parcels or contiguous parcels under the same ownership or control. All access to new properties created in this manner shall be provided by means internal to the properities from existing access or by public frontage or other roads or streets. All direct accesses permitted shall be done so with the understanding that if the pr'ncipal arterial facility is reconstructed or upgraded to a freeway type facility, alternate access shall be provided by a frontage road or other public road. A determination of '.he number. of direct accesses to be allowed during project desigr. shall be made by State after review and comment by City or County as appropriate. Direct accesses that are allowed shall be designed and constructed consistent with the standards referred to below. STANDARDS In general, road aproaches shall be designed and constructed to standards described in the following documents: Highway Design Manual, 1985, OSHD A policy on Geometric Design of Highways and Streets, 1984, AASHTO Oregon Administrative Rules 734 Division 50 Local laws on access and. lane. use These standards address dr.veway width, site distance concerns, turning radii ane other grometric aspects, base, surface and drainage requirements, and warrants for deceleration, acceleration, channelization, signalization and interchange design. The following additional standards shall apply to future private road approaches or driveways allowed on a principal arterial except as provided for under the above referenced documents. The minimun distance between adjacent private road approaches shall be 150 feet. The minimum distance between any private road approach and a public street or road :.ntersection shall be 300 feet. A1H90005 ' r 105 1383 The minimum distance between any private road approach and the beginning or ending point of an interchange ramp shall be such that it will not adversely affect the operation of the ramp. This is to be determined by State. EXCEPTIONS If an abutting property owner Eeeks an exception to the above general policies and standards, he may submit a request to State, State will review that request with City or County where appropriate and make a determination. In considering the exception request, State shall determine if: there is exceptional and undue hardship on the applicant; if the request clearly results in improved safety and operational charactertistics on the arterial facility; and the exception is reasonably necessary for the convenience and welfare of the public. The request will be evaluated for conformance with local land use plans. State will issue it's decision in a written report within a 45 day period from reciept of the application. AIH90005 EXHIBIT "E" 105 - 1384 PLANNING COMMISSION REPORT AND RECOMMENDATION IN SUPPORT OF AN AMENDMENT TO TRANSPORTATION ELEMENT DESIGNATING A BEND PARKWAY (HIGHWAY) 97 CORRIDOR AS PRINCIPAL ARTERIAL AND REVISING THE STREET PROJECTS LIST WITHIN THE PUBLIC FACILITIES PLAN PREPARED FOR INCLUSION IN THE BEND AREA GENERAL PLAN 9 REPORT AND FINDINGS INTRODUCTION 105 1385 Page 1 I ■ The principal north -south arterial through Bend is Highway 97. The Oregon Department of Transportation projects that sections of Highway 97 within the Bend urban area will reach level of service F some time in the early 1990s. The City, County, and ODOT have undertaken a cooperative planning program to identify a solution to this problem. For a number of years ODOT has modeled the major street system on its gravity model. This model shows a greater demand for north -south travel than 3rd Street and Division Street capacities. Development both north and south of the existing terminus of Division Street has had substantial traffic impact in the past three years. [Development like the proposed Fred Meyer will continue this pattern.] Recent developments like ShopKo and Fred Meyer have continued this pattern. THE CORRIDOR ODOT, the City, and County have proposed a new principal arterial corridor that has become known as the Bend Parkway corridor project. The new corridor begins at the existing Highway 20/Highway 97 (Sisters) interchange on the north and extends south to Highway 97 south of Murphy Road. The corridor alignment is depicted on Exhibit 1. Both -the north and south parts of the corridor are new alignments. The central portion of the corridor may utilize much of the existing Division Street right of way. The facility will be designed to accommodate a r r e REPORT AND FINDINGS 105 - 1366 Page 2 30,000 to 40,000 ADT. The State plans to acquire access rights b ■ on new right of way, and the City, County, and State will cooperate in an access management policy for the overall route. NATURE OF DECISION Amend the public facilities element, transportation element, and the comprehensive plan map of the BEND AREA GENERAL PLAN by adding the BEND PARKWAY corridor to the principal arterial system, adding minor arterial and collector connections to the Parkway, and adopting policy language to ensure access management of the principal arterial. Recognize the Bend Parkway as a limited access facility that is part of the state Access Oregon Highway system. The following document will justify this action considering the State wide goals. ODOT is going through an Environmental Impact Assessment procedure in developing this project. The target date for completion of the draft environmental report is late spring 1991, and final details of this project will be determined by this process. APPLICATION OF LAWS, REGULATION AND POLICIES, FINDINGS AND CONCLUSIONS x REPORT AND FINDINGS 105 • 133? Page 3 The Bend Area Comprehensive Plan requires plan amendments to be consistent with the goals, objectives, policies, and statements of intent of the plan. The findings must demonstrate that the change is warranted due to changed conditions, a mistake, or other specific facts that demonstrate a public need and benefit for the change. The plan amendment must also be consistent with the Statewide Planning Goals. FINDINGS GOAL 1 Citizen Involvement The City, County, and ODOT have conducted an open public process in selecting the Bend Parkway Project, associated minor arterial and collector connectors, and the arterial access policy. ODOT appointed a Citizen Advisory Committee composed of 17 people and a Technical Advisory Committee composed of City, County, and ODOT engineers and planners.l The CAC and TAC developed selection criteria, identified alternatives and evaluated materials developed by the ODOT project staff. The CAC held five public informational meetings during the process of selecting the BEND PARKWAY project. These meetings were designed as a communication mechanism for the CAC to evaluate proposals and community concerns and to disseminate 1. See Bend Parkway Record items #3-6,9-10, & 12-16 ■ REPORT AND FINDINGS 105 - 1388 Page 4 information on the proposal as the process progressed. At each of these meetings an informational packet was published and distributed to the public. When the CAC and TAC had narrowed the project down to the build and no -build alternatives for the EIS preparation, the proposal was brought before the local jurisdiction for amending the comprehensive plan. The Urban Area Planning Commission held a hearing on the proposal on January 29, 1980. The Planning Commission heard from a number of residents in the Pinebrook area, asking that the Parkway be stopped short of Pinebrook. A separate neighborhood committee was formed to review alternatives for the southern terminus of the project after the January hearing. This neighborhood committee worked with the CAC and reviewed two alternatives in the south end of the project. The two new termini do not provide for the desired traffic capacity for the design life of the project. Based on this review, the CAC and TAC recommended that the corridor as originally proposed be adopted. The Planning Commission held a second hearing on June 4, 1990 and [meetings to discuss the proposal.] recommended approval of the corridor. The [City and] County Commission held a hearing on the proposed amendments to the Bend Area General Plan, Circulation Element, and Public Facilities Plan, and for the adoption of the Access ..■ REPORT AND FINDINGS 105 - 1389 Page 5 Management Policy for the Parkway on November 5, 1990. The City Commission held a similar hearing on November 7, 1990. The Bend City Commission and Deschutes County Board of Commissioners conclude that the requirements of Goal 1 to have been satisfied. PUBLIC INVOLVEMENT The Bend Urban Area Planning Commission is the designated citizen's involvement committee. The Planning Commission has determined that the public hearing process on this plan amendment, with notice to affected owners in the proposed corridor, together with the Citizen Advisory Committee review process carried on by ODOT, fulfilled the need for public involvement. Hearings will be held before both the Planning Commission and the City and County Commissions on the amendments. GOAL 2 Land Use Planning No exceptions are required by the proposed amendment and the process undertaken has met the requirements for this goal as outlined under Goal 1. GOAL 3 Agricultural Land Is not applicable since the project is entirely within the acknowledged UGB. r r1 e REPORT AND FINDINGS GOAL 4 Forest Land 105 - 1390 Page 6 J, ■ Is not applicable since the project is entirely within the acknowledged UGB. GOAL 5 Open Spaces, Scenic and Historic Areas, ... There are two "3c" designated properties in the proposed project area: the old railroad depot and the Reed House, 1727 NW Division. [Both these properties will have to be moved or demolished.] The Reed House was moved to the west when Division St. was originally constructed. It may be feasible to move both of these buildings again. A Goal 5 ESEE analysis was conducted for these two sites in October 1990. The analysis concluded that the Bend Parkway project is in the public interest and more important that the two historic sites. The initial recommendation was to change the status of these two sites to a "3B" level of protection. However, the local Historic Landmark Commission was concerned that a 113B" designation might affect ODOT's environmental review and assesment of these two sites.' Designation of the Parkway as an important conflicting use which could affect these historic structures is consistent with the City's preservation ordinance which has been acknowledged by 1. Historic sites ESEE analysis and cover letter, October 31, 1990. (Bend Parkway Record item #29) 2. Bend Code 10.100 to 10.126 f REPORT AND FINDINGS 105 - 1391 Page 7 LCDC to be in conformance with Goal 5 for the protection of historic resources. The ordinance has procedures which implement the City's program and Goal 5. These procedures must be completed prior to the relocation or demolition of historic structures. Designation of the Parkway corridor on the plan map does not conflict with Goal 5. Since the City and ODOT must conduct further review of these resources and follow the acknowledge protection program in the ordinance a "3C" balancing classification is the best designation for the sites at this time. [We find that the Bend Parkway project is in the public interest and more important than the two historic properties. Therefore, these properties will be moved or demolished to allow for the construction of the project. The community's Goal 5 analysis found that the historic resources were all important. However, the competing uses were also important, and therefore a "3c" balancing classification was determined for the sites. The corridor designation does not change this decision.] The decision on final design and right of way will result in the final disposition on a site by site basis using the balancing test found in the landmark ordinance. The corridor doesn't impact any wet lands, significant habitat, or cultural resources, as it runs through the existing urban area. i 1. ODOT Environmental Reconnaissance Study (Bend Parkway Record item #7, pp. 23-26) n ,■ 1 105 - 1392 REPORT AND FINDINGS Page 8 GOAL 6 Air, Water, and Land Resource Quality. Air The Bend area is currently designated as being in attainment of the National Ambient Air Quality Standards. Although temperature inversions (which hamper the dilution and dispersal of pollutants) occur in Bend during the winter, the topography and overall weather patterns tend to provide favorable mixing conditions that allow Bend to be within the National Ambient Air Quality Standards. Emissions of carbon monoxide are generated mostly by traffic. Primarily two traffic factors influence carbon monoxide pollution: volume and speed. Increased carbon monoxide pollution occurs with higher traffic volumes and slower traffic speeds. Carbon monoxide is a local pollutant. Higher carbon monoxide concentrations are most likely to occur immediately adjacent to the roadway. With more vehicles having emission control equipment and the increasing use of unleaded gasoline, the impact of traffic - produced carbon monoxide will be reduced through the design year (2015) of the project even with an increase in traffic. Transportation is a minor contributor to fine particulate emissions. Changes in traffic patterns and speed will not promote an increase in these emissions. Thus, it is predicted 9 ►■ I 105 .. 1393 REPORT AND FINDINGS Page 9 that the facility proposed for the Bend Parkway corridor will not aggravate fine particulate pollution in the Bend area. Water Surface drainage will be controlled through use of drywells and/or be channelled to the Deschutes River. The Parkway Project won't relieve surface drainage problems on 3rd St. The City, County and DEQ have [been working on] adopted new standards for surface drainage and dry wells that should help to protect ground water quality. Noise The Parkway Project will have noise impacts. The extent of these impacts and possible mitigation will be developed more fully during the EIS preparation. The use of berms, walls, or some combination of these may be needed in residential areas. Land Resources The Parkway Project will impact a number of structures. The existing landfills have adequate capacity for demolition materials from these structures. The project will be landscaped which will enhance the appearance of the community. GOAL 7 Natural Hazards The design of the structures in the corridor will be developed according to the 1983 Guide to Specifications for Seismic Design of Highway Bridges published by the American Association of State Highway and Transportation Officials (AASHTO). This guide t u REPORT AND FINDINGS 105 -* 1394 Page 10 indicates the earthquake risk potential of the area and standards ► ■ for structure design appropriate for the earthquake potential. GOAL 8 Recreational Needs The Bend Parkway is consistent with the plans for recreational facilities. Facilities are planned on both the east and west sides of the route and, therefore, the facility will not adversely impact access to facilities in the future. GOAL 9 Economic Development Highway 97 is part of the Access Oregon Highway system. The purpose of the AOH system is to link major economic and geographic centers of the state. The Highway 97 corridor is a major economic link for Central Oregon, connecting Madras, Redmond, Bend, Klamath Falls, and several smaller communities. Several recreational areas - Cascades Lakes Highway, Mt. Bachelor, Crater Lake, and the Deschutes and Winema Forests - are accessed by Highway 97. The Bend Parkway will be an important link in a plan, developed by ODOT, to provide a continuous four - lane facility from Madras to South Century Drive. The Bend Parkway will provide better traffic circulation to the existing community and its industrial and commercial lands. This will enable further development in industrial and commercial areas without unacceptable levels of congestion in the community. The large size of properties along Division Street and the lack of concentrated commercial facilities is conducive to restricting f 1 • S REPORT AND FINDINGS 10� 1395 Page 11 access. The Parkway alternative has the least number of relocations of any of the core alternatives.' We conclude that the Parkway and connecting streets are key public facilities needed for continued economy diversification in the Bend area. We further conclude that the Access Management Policy is essential to long term functioning of the Parkway and overall traffic circulation. GOAL 10 Housing The Bend Parkway Project will pass through existing residential areas and undeveloped residential land. The UGB contains sufficient land to accommodate the needed housing forecast by the community. (See Bend Area General Plan.) The residential land needs were computed using densities that assumed 20-25% of the land would be used for street purposes. construction of the Bend Parkway will require displacement of approximately 35 houses. ODOT is required by law to ensure that affordable, decent, safe, and sanitary housing is available to displaced residents. ODOT will also provide relocation assistance to residents that will have to move. We conclude that the Parkway and connecting 1. ODOT Environmental Reconnaissance Study, 1989. (Bend Parkway Record item #7) ODOT Project Information Packet #3 (Bend Parkway Record item #6) i■ REPORT AND FINDINGS 1®5 1.396 Page 12 s■ streets will not adversely impact the supply of housing in the urban area. GOAL 11 Public Facilities and Services The existing public facilities plan is being amended to include the Bend Parkway as a principal arterial together with connecting City and County collectors and arterial streets. The comprehensive plan is being amended to revise the list of streets included in the Public Facilities Element. These amendments are necessary to provide the facilities required to support the urban development planned for the Bend UGB. The Bend Parkway Project provides for adequate levels of service through town. (See ODOT Traffic Operation and Level of Service Forecasts in Information Packets 1-5 and the Environmental Reconnaissance Study). The Parkway and its connecting facilities will be managed under access management policies adopted to protect the capacity of these streets. We conclude that these public facilities are needed to provide for a timely, orderly, and efficient framework for urban development. GOAL 12 "To provide and encourage a safe, convenient and economic transportation system. A transportation plan shall (1) consider all modes of transportation including mass transit, air, water, t r REPORT AND FINDINGS 105 a 1397 Page 13 pipeline, rail, highway, bicycle and pedestrian; (2) be based upon an inventory of local, regional and state transporta- tion needs; (3) consider the differences in social consequences that would result from utilizing differing combinations of transportation modes; (4) avoid principal reliance upon any one mode of transportation; (5) minimize adverse social, economic and environmental impacts and costs; (6) conserve energy; (7) meet the needs of the transportation disadvantaged by improving transportation services; (8) facilitate the flow of goods and services so as to strengthen the local and regional economy; and (9) conform with local and regional comprehensive land use plans. Each plan shall include a provision for transportation as a key facility." The process followed by ODOT, the City, and the County, began with the updating of the urban arterial model in 1985 and the preparation by ODOT of the Corridor 97 Study in 1987. These studies identified a need for more north -south traffic capacity through Bend. In 1987, ODOT's Six Year Plan was updated and included monies for the EIS process for what was initially called the Sisters Interchange - Brosterhous Road study. ODOT began the study process that involved the appointment of two committees, a Citizen Advisory Committee with members from the community, and a technical advisory committee composed of ODOT, City, and County, engineers and planners and the chair of the CAC. I 105 . 1398 REPORT AND FINDINGS The first step in this study process was to identify Page 14 alternatives. Once the study began, the alternatives were extended further south to accommodate the rapid growth along Highway 97 south of Brosterhous Road. These alternatives were then evaluated against the following criteria: traffic operations, right of way requirements, environmental impacts, land use impacts, downtown and 3rd Street accessibility, constructibility, cost (including construction and right of way). The identified alternatives were: -- Westside Bypass -- Eastside Bypass -- Bend Parkway Alternative -- 8th/9th Street Alternative -- 3rd Street Improvements -- 3rd and Division Couplet -- 3rd and 4th Couplet -- 2nd and 3rd Couplet -- 1st and 3rd Couplet -- Move Railroad Five public informational meetings were held by the CAC to explain the process, review the alternatives, gain public thought on the alternatives, and describe the alternative selected for advancement into the final EIS process. Five information packets and an environmental reconnaissance study were published documenting this process. The findings resulted in the selection of this Bend Parkway corridor as the alternative to advance in the EIS process. The proposed project will improve the flow of goods and services within the Bend urban area and through Central Oregon. The r 1 105 •1399 REPORT AND FINDINGS Page 15 analysis completed to select this corridor considered social, economic and environmental consequences of all the alternatives.' [(see Environmental Reconnaissance Study February 1989, ODOT)]. The design of this facility will incorporate both bicycle and pedestrian features. The City has a dial -a -ride system for handicap and seniors, and a private company supplies a fixed route bus company. Neither of these mass transit modes will have any impact on the need for the Bend Parkway. According to the Origin Destination StudyZ through movements represent only 22-25 percent of the overall traffic on Highway 97 within the Bend urban area. The corridor will provide for through traffic as well as demand within the urban area. This corridor addresses the need for additional north -south street capacity, and will reduce congestion .3 The local arterial and collector connection will improve east -west traffic movements. 1. ODOT Environmental Reconnaissance Study, 1989 (Bend Parkway Record item #7) 2. Deschutes County/ODOT Origin -Destination Study, 1988 (Bend Parkway Record item #2) 3. ODOT Environmental Reconnaissance Study, 1989. ! � y • REPORT AND FINDINGS GOAL 12 FINDINGS 105 -1 1400 Page 16 1. The route will efficiently move people and goods and improve safety of the motoring public. 2. The corridor will be needed as well as other modes of transportation. 3. An access management policy is needed to protect the route's capacity and to promote public safety. 4. The new facility will provide access to the existing 3rd Street and downtown business districts. 5. The new facility shall be landscaped to preserve the visual quality of the Bend area. 6. The route will strengthen the existing street system and improve the flow of goods and services within the urban area and through the community. 7. ODOT's reconnaissance survey shows that the corridor will be energy efficient. n ,■ REPORT AND FINDINGS 105 . 1401 Page 17 8. The new route will provide easy access and use by the 75-80 percent local trips using the existing system. 9. The Bend Parkway corridor is entirely within the acknowledged urban growth boundary. 10. The Oregon Department of Transportation projects that sections of Highway 97 (Third Street) in the Bend urban area will reach level of service F some time in the early 1990s. 11. Third Street serves both through and local traffic in the Bend urban area. It is a commercial strip with frequent direct accesses to adjacent properties. Highway 97 is currently located on Third Street in Bend and Third Street is also shared by Highway 20 from the Sisters Interchange south to Greenwood Avenue. 12. A need for additional north -south traffic capacity that will alleviate congestion for both through and local traffic in the Bend urban a was identified by the ODOT Corridor 97 Study (1987). 13. The goal of the AOH system is to provide for the economic growth of Oregon by moving through traffic safely and efficiently between geographic areas within Oregon and between Oregon and adjacent states. 4 REPORT AND FINDINGS 105 . 1402 Page 18 Highway 97 is part of the Access oregon Highways (AOH) system adopted by the Oregon Department of Transportation. 14. Eleven alternative corridors were studied (Sisters Interchange-Brosterhous Road Environmental Reconnaissance Study, 1987) to identify the best solution to Highway 97 traffic capacity needs in the Bend urban area. 15. The Bend Parkway corridor was selected as the preferred corridor for a principal arterial in the Bend urban area on the basis of findings in the environmental reconnaissance study and traffic analysis. 16. Traffic projections prepared for the reconnaissance study indicated that a bypass corridor around Bend would not meet traffic operation needs. Because Bend is an important service center on the Highway 97 corridor, most traffic would continue to use the Third Street route through town. A bypass would not be used enough to alleviate congestion caused by both through and local traffic on Highway 97 in the Bend urban area. 17. The study found that of the corridor alternatives that are feasible and that would meet Highway 97 traffic capacity needs, the Bend Parkway corridor would result in the least adverse social, economic, and environmental impacts. f F. REPORT AND FINDINGS 105 . 1403 Page 19 18. The Bend Parkway corridor will serve a multi -modal transportation function in the Bend urban area, providing for truck and automobile traffic, bicycles, and pedestrians. The functions of this corridor are needed in the Bend urban area as well as other modes of transportation. 19. The corridor doesn't impact any wetland or significant wildlife habitat within the urban area. The Parkway will be part of a principal arterial system that serves the traffic circulation needs of the city, county, and state. The corridor location, minor arterial and collector connections, and access management policies will provide a safe and efficient transportation system in the Bend urban area. The location of the Bend Parkway corridor, requirements that the parkway be a limited access facility, and policy standards for development and maintenance of the facility are consistent with and support the comprehensive plan. GOAL 13 Energy Conservation In review of the different alternatives, the Parkway alternative was rated the most efficient of the alternatives in operational 0 loS 1404 Page 20 REPORT AND FINDINGS energy'. Therefore, we find that the project will help to maximize energy conservation during its design life. GOAL 14 Urbanization The Bend Parkway Project and access Management Policy are designed for and intended to support the urban growth occurring within the UGB. One of the alternatives reviewed during the selection of this project was an east side bypass. This proposal would have been outside the existing UGB and would have created an urban use on rural and agricultural lands requiring an exception to the statewide goals. The exception process would be difficult to justify given the alternatives available inside the UGB. We also find that the ODOT Reconnaissance study, and informational packets clearly show that the majority of the traffic is local or destined for Bend. We, therefore, conclude that the Parkway alignment is the best solution to transportation needs of the community in the next two decades. We conclude that an eastside bypass should be evaluated for traffic needs beyond the design life of the Parkway Project. GOALS 15 - 19 These goals are not applicable to this amendment. 1, ODOT Environmental Reconnaissance Study, 1989 (Bend Parkway Record item #7) 105 a 1405 REPORT AND FINDINGS Page 21 CONCLUSIONS We conclude that the Parkway corridor, associated arterial and collector connections, and the arterial access policy are needed to provide for internal and through traffic and they are in the public interest of the community as a whole.