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1998-57750-Ordinance No. 98-074 Recorded 12/3/1998t REVIE - S TO FORM 1 7 ® 0131 REVIEWED � WE® .. CODE REVIEW COMM. w 98-S:'750 lf7AL COON -SEL BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUN , OREGON ""U DEC -3 pl, An Ordinance Amending the Bend Urban * MARY 50 Area General Plan and Declaring an Emergency. O�UT ",L` "iia 0W NTY CLERk ORDINANCE NO. 98-074 WHEREAS, the Board of County Commissioners and Bend City Council determined there was a need to update and revise the Bend Area General Plan and related maps; and WHEREAS, the County and City staffs, working with a special Citizens Advisory Committee and Transportation Advisory Committee, drafted revisions to the Bend Area General Plan and received public comment on their draft through workshops, open houses, surveys, public meetings and neighborhood meetings; and WHEREAS, the Bend Urban Area Planning Commission held public hearings on the revisions to the Plan and has made recommendations that revisions to the Plan be adopted; and WHEREAS, the Board of County Commissioners and City Council have reviewed the j revisions to the Bend Area General Plan, and held a public hearing to receive additional comments on the Plan revisions; now therefore, THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON, ORDAINS as follows: Section 1. AMENDMENT. The Bend Area General Plan, as amended, is hereby further amended to read as set forth in Exhibit "A," attached hereto and by this reference incorporated herein, as amended by the text changes to Exhibit "A" specified in Exhibit `B," attached hereto and by this reference incorporated herein. Section 2. EFFECT OF AMENDMENT. Adoption of the revisions herein shall have no effect on those portions of the text and those policies of the existing plan that remain unchanged from previous comprehensive plan enactments. Moving a provision but otherwise leaving the provision unchanged so that it appears in a different place in the plan relative to other provisions shall not constitute a new enactment of the provision. Section 3. REPEAL OF ORDINANCES AFFECTING EXISTING LIABILITIES. The repeal express or implied, of any ordinance provision, code section or any map or line on a map by this ordinance shall not release or extinguish any duty, condition, penalty, forfeiture, or liability incurred under'such ordinance, unless a provision of this ordinance shall so expressly provide, and such provision repealed shall be treated as still remaining in force for the purpose of sustaining any proper action or prosecution for the enforcement of such duty, condition, penalty, forfeiture, or liability, for the purpose of authorizing the prosecution, conviction and punishment of the person or persons who violated the repealed ordinance. FffCRp _ EIS 1 0T.. l✓T -1 PAGE 1 OF 2 - ORDINANCE NO. 98- 074 (11/25/98) E�; r 998 vE0 170 0 0132 Section 4. SEVERABILITY. The provision of this ordinance and its exhibits are severable. If any section, sentence, clause or phrase of this ordinance or any line on any map as an exhibit thereto is found to be invalid by a court or review body of competent jurisdiction that decisions shall not affect the validity of the remaining portions of this ordinance. Section 5. EMERGENCY. 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. DATED this 25th day of November, 1998. BOARD OF COUNTY COMMISSIONERS OF DY,SCHUTES COUNTY, ORF1,GON ST: Recording Secretary PAGE 2 OF 2 - ORDINANCE NO. 98- 074 (11/25/98) SC-HLWNGEN, Chair T L. NIPPER, C L. SWEARINGEN, Commissioner 101 49 170 0133 EXHIBIT "A" TO COUNTY ORDINANCE NO. 98-074 MILESTONES City and County adoption June 1976 Approved by the Oregon Land Conservation and June 1981 Development Commission First LCDC Periodic ,Review 1987-1989 First Major Update and Review 1994-1998 CITY COUNCILIBOARD OF COUNTY COMMISSIONERS .NEARING DRAFT OCTOBER 1998 170 0134 Bi e-� d area an.General P CITY AND COUNTY PLANNING STAFFS John Hossick, Bend Planning Director Mike Byers, Bend Principal Planner Rick Root, Bend Transportation Planner George Read, Deschutes County Community Development Director Catherine Morrow, Deschutes County Principal Planner Becky McElrath, Deschutes County computer mapping GENERAL PLAN UPDATE CITIZENS ADVISORY COMMITTEE Greg McClarren, Chair Nancy Hall Mary Papa Daniel Collins, Vice Chair Mike Hollern T. J. Rosengarth Peter Casey Fred Johnson Dave Sheldon Sheri Criswell Martha Mann Roy Silfven Linda Moore Durston Leslie Olson L. David Taylor Bruce Englund Fara O'Neal Eileen Woodward Gary Fish Donna Owens Jo An Mann, Facilitator BEND URBAN AREA CITIZENS TRANSPORTATION COMMITTEE Michele McKay, Chair Bob Kennedy, Vice Chair Ken Chard Karen Swirsky John Diehl Tom Wykes BEND URBAN AREA PLANNING COMMISSION Russ Kiel, Chair Sally Russenberger Mike O'Herron, Vice Chair John Schubert Jeri Alden Al Tozer John Gilbert III BEND CITY COUNCIL Bob Woodward, Mayor Kathy Eckman Bill Friedman Benji Gilchrist Suzanne Johannsen Oran Teater Jim Young DESCHUTES COUNTY COMMISSIONERS Nancy Schlangen, Chair Robert Nipper Linda Swearingen Ul 35 Bend �re� e e kP1 (' H A PTF.R TABLE OF CONTENTS SUBJECT -- PREFACE TO THE GENERAL PLAN Purpose, development of Plan, amendment procedures 1. PLAN MANAGEMENT AND CITIZEN INVOLVEMENT Managing growth, urban growth boundary, urban reserve, community goals 2. NATURAL FEATURES AND OPEN SPACE Types of open space, "Areas of Special Interest", river corridor, fish and wildlife, parks and recreation 3. COMMUNITY CONNECTIONS Historical sites, cultural activities, parks and recreation, public education 4. POPULATION AND DEMOGRAPHICS Number, age distribution, population forecast through 2020, demographic forecast in • 0 170 +0136 TABLE OF CONTENTS . continued 5. HOUSING AND RESIDENTIAL LANDS Housing mix and density, household size, needed housing through 2020, land supply, land use categories 6. THE ECONOMY AND LANDS FOR ECONOMIC GROWTH Job mix, income levels, regional center, land 0 needed for commercial and industrial uses through 2020, land use categories �® 7. TRANSPORTATION SYSTEMS Street, bike, and pedestrian systems, transit system, urban trails, road standards VFW 8. PUBLIC FACILITIES AND SERVICES Water, sewer, storm water, solid waste, private utilities, public safety 9. COMMUNITY APPEARANCE Residential, commercial, and industrial areas, 4 transportation corridors, site design, signs 10. NATURAL FORCES Air quality, energy conservation, natural hazards, steep slopes �--< APPENDIX A: GLOSSARY OF TERMS APPENDIX B: INDEX (To be included in final document) 0 iv 170 0137 LIST OF TABLES is Table No. Topic Chapter - Page 1 Types of Open Space ..................... 2 - 5 2 Inventory of Historic Site in the urban area .... 3 -5 3 Public Park and Recreation Facilities ......... 3 - 11 4 Bend Urban Area Public School Facilities ..... 3 - 15 5 County Population Distribution in 1995 ....... 4 - 3 6 Comparison of Bend Age Groupings ......... 4 - 4 7 County Population Change and In -migration ... 4 - 5 8 Average Persons Per Household ............. 4 - 6 8A Income Levels in Bend (1989 dollars) ........ 4 - 7 8B Household Age by Income Levels ........... 4 - 8 8C Income Levels in relation to Poverty Level ..... 4- 10 9 Housing Starts for Bend by Decade .......... 5 - 4 10 Occupied Housing Units of All Types ........ 5 - 5 10A Bend Owners and Renters in 1990 ........... 5 - 6 11 New Urban Area Dwelling Units 1990-1995 ... 5 - 9 12 Average Housing Units per Gross Acre ....... 5- 11 • 13 Needed and Buildable Residential Acres ...... 5-23 14 Residential Land Use Categories ............ 5-24 15 County Population and Employment History ... 6 - 4 16 Bend Urban Area Employment (1996) ........ 6 - 5 17 Urban Area Employment Forecast ........... 6-10 18 Summary of Buildable Acres ............... 6- 13 19 Industrial Designations .................... 6- 15 20 Mixed -Use Designations .................. 6-16 21 Commercial Designations .................. 6-20 22 Street Functional Classification ............. 7-57 23 City Sewer System Projects ................ 8 - 5 24 City Water System Projects ................ 8 - 9 0 0 170 r 0138 LIST OF FIGURES AND ILLUSTRATIONS No. TypeTopic Chapter - Page 1 Map Bend Urban Area Planning Area ............. 1 - 5 2 Photo "Area of Special Interest" rock outcropping ..... 2 - 6 3 Photo Deschutes River in urban area ............... 2 - 9 4 Photo Shevlin-Hixon Sawmill .................... 3 -3 5 Photo Drake Park and Mirror Pond ................ 3 -8 5A Photo Park and Recreation District Soccer Program .... 3 - 9 6 Map Developed Parks in the Bend Urban Area ...... 3- 12 7 Chart Bend Area Public School Enrollment .......... 3- 14 8 Chart Bend Public School Enrollment Forecast ....... 3 - 16 9 Chart City and County Population Change .......... 4 - 2 10 Chart Bend 1990 Population by Age ............... 4 - 4 11 Chart Persons per Household in Bend .............. 4 - 6 11A Chart Poverty Levels in Bend .................... 4 - 8 1113 Chart Poverty Status by Age ..................... 4 - 9 12 Chart Population Forecast for Urban Area ........... 4- 12 13 Chart County -wide Population in 2020 ............. 4- 13 14 Chart Forecast County Age Groupings ............. 4-14 15 Chart City Housing Starts 1970-1995 .............. 5 - 3 16 Chart Comparative Monthly Housing Costs (1989) .... 5 - 8 17 Chart Owner and Renter Housing Costs (1989) ....... 5 - 8 18 Chart Single Family Homes by Size ............... 5- 10 1.9 Formula Total Needed Dwellings 1995-2020 ........... 5- 16 20 Chart Past and Future Housing Mix ............... 5 - 18 21 Diagram New Housing Units by Type and Acreages ..... 5-22 22 Map Areas Eligible for Destination Resort Siting .... 5-28 22A Map Lava Ridge refinement plan study area ........ 5-29 22B Map Hollygrape refinement plan study area ........ 5-30 23 Chart County Employment Change by Job Type ...... 6 - 4 24 Chart Personal Income Sources ................... 6 - 7 25 Chart Land Absorption by Year .................. 6- 11 26 Formula Industrial and Commercial Land Needs ........ 6- 12 27 Photo Bend River Trail and Mirror Pond ............ 7- 1 28A Photo Early two-way traffic on Wall Street .......... 7 - 4 28B Map Bend in 1912 ............................ 7 - 5 29 Diagram Modern urban roundabout .................. 7-31 30 Photo Landscaped buffered sidewalk ............... 7-36 31 Diagram Example of curb extension retrofit ............ 7-37 • 32 Photo Arterial median .......................... 7-38 vi. 170 - 0139 LIST OF FIGURES AND ILLUSTRATIONS • continued No. Type Topic Chapter - Page 33 Diagram Pedestrian Refuges at Signalized Intersection .... 7-38 34 Photo Deschutes River Trail ...................... 7-39 35 Diagram Street Retrofit for Bike Lanes and Parking ...... 7-40 36 Illustration Street Grid System .................. end of chapter 7 37 Illustration Arterial Streetscape ................. end of chapter 7 38 Map Bicycle and Trail System Map ......... end of chapter 7 39 Map Transit System Map ................. end of chapter 7 40 Map Street System Map .................. end of chapter 7 41 Chart City Wastewater Plan Daily Flow ............ 8 - 3 42 Chart City Water System Daily Flow ............... 8 - 6 43 Photo Examples of Commercial Building Design ...... 9 - 6 44 Photo Examples of Wall Mounted and Ground Signs ... 9 - 8 45 Chart PM -10 Emission Sources in Bend ............ 10-3 vii. 170 - 0140 BEND AREA GENERAL PLAN PREFACE TABLE OF CONTENTS INTRODUCTION ........................ 1 PURPOSE OF THE GENERAL PLAN ........ 1 DEVELOPMENT OF THE PLAN ........... 2 A 20 -year Plan Format of the Plan Plan maps Future Plan Updates CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 0 0 170 - 0111 BEND AREA GENERAL PLAN INTRODUCTION Bend is located at the base of the Cascade Mountains at an elevation of 3,600 feet. Its proximity to the Deschutes National Forest, the high mountain lakes, and to the Great Basin plateau makes it a hub for recreation, sporting, and tourist activities. With a mid-1990s population of about 39,700, Bend is the largest urban area in Oregon east of the Cascade Mountains. By the year 2020, the urban area population is expected to reach 68,700 persons, with another 10,000 persons within three miles of the urban area. Bend is the regional trade and service center for Central Oregon. More than two-thirds of all the jobs in the county are in Bend. The wide range of retail businesses, professional and trade services, and specialty trades draws in customers from a five county area. PURPOSE OF THE GENERAL PLAN The Plan's goals and policies provide a framework for decisions that are consistent with the physical characteristics, goals, and resources of the community. The basic aim of the General Plan is to organize and coordinate complex interrelationships between people, land, resources, and facilities in such a way as to meet the future needs of the citizens and to protect the livability of the community. /__rA GENERAL PLAN PREFACE P - 1 1700142 BEND AREA GENERAL PLAN L • The General Plan is intended for use by local officials, persons with development interests, neighborhood groups, state and federal agencies, and citizens of the community. The Plan provides interesting and factual information about the community's natural features, housing, economic conditions, and other topics. With the rapid population and economic growth of Bend during the 1990s, the community is significantly different from the quiet lumber and agricultural town of the 1950s and 1960s. Similarly, the future look and feel of the community ten or twenty years into the next century will be different from the 1990s. As Bend continues to become more urban in its character, the impact and influence of change will be with us constantly. The Bend Area General Plan is a tool to prescribe how and where change should happen. DEVELOPMENT OF THE PLAN The first long range, comprehensive plan for the urban area, officially known as the Bend Area General Plan, was prepared in 1974, and approved by the Oregon Land Conservation and Development Commission in 1981. A state mandated "periodic review" of the Plan was conducted in 1989 to bring it into conformance with new state laws and rules. Aside from the periodic review additions and a few other changes, most of the • General Plan remained unchanged until the late 1990s. In early 1994 the City Council and Board of County Commissioners agreed to undertake a major update of the General Plan, and this update was completed in 1998. The need to update the General Plan in the 1990s was driven by several factors: ❑ the rapid population growth the community was experiencing; ❑ new city water and sewer system master plans; ❑ several proposed big private or public projects that needed to be tied into the broader community planning; ❑ new public uses at the edge of the urban area; ❑ new planning requirements imposed by the state legislature and state agencies; ❑ information in the Plan that needed to be updated or deleted; and ❑ new, important issues to the community that needed to be addressed in the Plan. The City Council and Board of County Commissioners appointed a 20 person advisory committee, representing a broad cross-section of the community, to guide the update of the P - 2 GENERAL PLAN PREFACE 0 • • 170 •0143 BEND AREA GENERAL PLAN Plan. This committee spent 2'/2 years and more than 1,100 person -hours, updating and revising the General Plan. The advisory committee prepared an overall vision statement, repeated below, that guided their review of the Plan. Bend is a community valuing its natural features of trees, rocks, river, sounds, views and a diverse citizenry that works together creating a healthy legacy and vision for Bend's future liveability. The Bend Comprehensive Plan is designed to preserve and enhance this vision for our community. The city and county also used a variety of activities to provide opportunities for citizens to learn about, and participate in, the update of the General Plans. The major activities were: ❑ community wide workshops in 1995, coordinated with the local school district and parks district, to discuss planning ideas and gather comments; ❑ four community Open Houses in 1997, again coordinated with the school and parks district, to provide information on proposed changes to the General Plan; ❑ informational flyers, surveys, newspaper articles and other media events in the summer of 1997 to provide information on the updated General Plan; ❑ a survey of more than 210 households regarding their opinions on the urban area transportation system; ❑ workshops on both general and specific transportation issues; ❑ a series of neighborhood planning workshops hosted by Deschutes County and supported by state grants for two areas that will undergo urban redevelopment; ❑ numerous presentations to service groups, organizations, and neighborhoods; and ❑ several public hearings on the General Plan in 1997 and 1998. A 20 -year Plan The General Plan uses a 20+ year planning period that ends in the year 2020. This time frame was used in order to satisfy state "requirements for evaluating the 20 -year need for some land uses, and because it is about the outside limit for reasonable planning forecasts. The General Plan is not a "saturation plan" that describes conditions under a full or ultimate development of lands within the urban area. Rather, it forecasts the level of population and economic growth to the year 2020 and plans for this growth along with other community needs and desires during the planning period. The General Plan establishes land use categories to meet the forecasted needs and maps where these uses shall occur. The zoning for land within the urban planning area must be consistent with the designated land use GENERAL PLAN PREFACE P-3 170 - 0114 BEND AREA GENERAL PLAN categories in the General Plan. However, some lands near the edge of the urban area that are without full urban services may have an interim, less intense zoning classification applied to them until full urban services are available to the area. Format of the Plan The General Plan is divided into this Preface and ten chapters. Each chapter covers a general topic, and most chapters include historic data and forecasts of conditions during the 20 -year planning horizon. Background documents or analysis used in the preparation of a chapter are typically not included in the chapter, but cited as a reference. Background documents are available for review at the City of Bend Development Services Department. At the end of each chapter are policies that address issues discussed in the chapter. The policies in the General Plan are statements of public policy, and essenfiaHy have the leg status of local . and are used to evaluate any proposed changes to the General Plan. Qften these statements are expressed in mandatory fashion using the ii,ord "shall". These statements policy shall be interpreted to recognize that the actual implementation of the policies will be accomplished by land use regulations such as the city's zoning ordinance, subdivision ordinance and the like. The realization of these policies i,s subject to the Practical constraints of the city such as availability of funds and compliance of all ap lip cable federal and state laws, rules and regulations, and constitutional limitations. [deletion by City Council and additions by Legal Counsel and staff per direction from City Council 7/1/98] The General Plan policies provide a basis for coordinated action by enabling various public and private interests to undertake specific projects with a consistent understanding of P - 4 GENERAL PLAN PREFACE community expectations. Public facilities such as schools, parks, streets, water and sewer systems, civic areas, libraries, and fire stations can be planned, and a program for land acquisition and construction can be prepared in advance of need so that the services will be available when and where they are needed. Similarly, special service districts and private utilities can anticipate future service demands and plan facilities so that development can take place in the most economical and timely manner. 1700145 BEND AREA GENERAL PLAN These same community policies serve individual property owners and private interest groups as a means of evaluating their individual decisions in light of community objectives. They are able to determine how their individual interests can best be served in a manner that is consistent with the Bend Area General Plan. Although set up as chapters, the whole Plan is inter -related to form a comprehensive approach to land use planning. No part of the Plan can be viewed without consideration of the other areas of the Plan. Through the ten chapters and related maps, the General Plan meets all the requirements of the 14 applicable planning goals in the state's land use laws and administrative rules. Plan maps The Plan text and policies describe several land use categories that provide for the various types of development expected to occur within the urban area during the 20 -year planning period. These land use categories are graphically portrayed on the General Plan Map. The major land use categories — residential, commercial, industrial, and mixed-use — have very specific boundaries that are shown on the General Plan Map. The city and county apply zoning to property based on the General Plan Map categories. Changing these boundaries requires a formal amendment to the General Plan. • Other land use — cate ories particularly for more discrete future uses such as schools, g p parks, and small commercial centers — are shown as a symbol on the General Plan Map. The purpose of the symbol is to show the general area where these uses are expected to occur, rather than a specific site. These symbols are "floating" designations that can be applied to a specific location at some future time through the zone change process. The Transportation System is shown on a series of three maps that illustrate different parts of the urban area's multi -modal transportation system. This Street System Map shows the existing and future alignments for the arterial and collector street system. The Bicycle and Trail System Map shows the existing and future transportation and recreation designated routes within the urban area. Most of the bicycle routes are on arterial and collector streets, but other off-street trail routes are also shown. The Transit System Map shows the p1mmed a feasible urban area transit route system. For a more detailed discussion of these maps see Chapter 7, Transportation Systems. [change by City Council 7/1/98] Also included in the Plan are other small maps that help to identify or better explain a topic discussed in the chapter. The Destination Resort map in the Housing and Residential Lands • / � \ GENERAL PLAN PREFACE P - 5 170 - 0116 BEND AREA GENERAL PLAN chapter, and the public parks map in the Community Connections chapter, are examples of these types of maps. Future Plan updates The General Plan is a document that changes over time to reflect new information and new directions for the future. Amendments or additions to the General Plan text, exhibits, and policies go through a public hearing and review process before being adopted by the governing bodies. Changes and updates can be generated in at least six ways: ❑ Regularly scheduled reviews and updates by the city and county. Every five years, beginning in the year 2000, the city and county will review the population growth, the housing mix and acreage needs, the industrial lands absorption, and the commercial lands absorption against the long-term forecasts in the General Plan. Other issues may also be evaluated during these regular views. U - Preparation of more detailed "refinement plans "for neighborhoods or geographic areas. As provided for in Oregon land use law, the city or county may prepare more detailed land use and development plans for parts of the urban area that have large vacant or under-utilized parcels. Such refinement plans could address future street patterns and other utility systems, housing density and compatible uses, site and design standards, locations for is parks, schools, and open space, and other land use issues. ❑ Evaluation of land use topics required to be reviewed under the Oregon Land Conservation and Development Commission's `periodic review" of the General Plan. The state requires all local plans to be updated periodically to comply with applicable new state laws, administrative rules, or to incorporate new data available to the state. ❑ Other .state laws or legislative actions that require changes to the Plan outside of the normal periodic review cycle. The state legislature or the voter referendum/initiative process can require changes to local land use plans within a specific time period. ❑ City or county response to new issues or changes. Issues that were unforeseen during the development of the plan can arise that have an impact on a particular neighborhood or the whole urban area. The city and county officials can direct staff to amend the Plan to address these issues. ❑ Changes proposed by individuals or other agencies. At any time an individual, P - 6 GENERAL PLAN PREFACE 0 170 - 0147 BEND AREA GENERAL PLAN corporation, or public agency can propose a change to the Plan text, land use map, other exhibits, or policies. A person or agency proposing a change has the burden to demonstrate a public need and benefit for the change. Chapter 1 contains additional information on managing growth within the urban area, and how citizens can participate in planning for our community. Q:\NE W PLAN2\CC_PREF. DFT Preface created: November 4, 1997 from Chapter 1 Last Edit or update: September 28, 1998 GENERAL PLAN PREFACE P - 7 170- - 0148 0 BEND AREA GENERAL PLAN CHAPTER 1: PLAN MANAGEMENT AND CITIZEN INVOL VEMENT TABLE OF CONTENTS COMMUNITY GOALS ................... 1 MANAGING GROWTH ................... 2 Transportation -land use connection Urban Growth Boundary Urban Reserve Boundary Management agreement CITIZEN INVOLVEMENT ................ 6 POLICIES .............................. 7 Urban Planning Coordination Development within the Urban Growth Boundary Refinement plans Planning in the Urban Reserve Citizen involvement CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 4 BEND AREA GENERAL PLAN • COMMUNITY GOALS Goals in the General Plan express what our residents hope and want Bend to be like in the future. These goals were created through a process using citizens' advisory committees and public hearings during the first major update of the General Plan in 1995-1998. The goals set forth below provide general guidance for improving the character and quality of the Bend area as growth occurs. In addition to these goals, most of the other chapters in the Plan include goals that are specific to the chapter topic. o Neighborhoods — Create and preserve attractive neighborhoods for living. o Natural Beauty and Heritage —Protect and enhance Bend's natural beauty noting especially the trees, rocks, rivers, view, sounds and historic structures. o Appearance of Structures —Ensure that the "built environment" is as attractive as feasible. o Quality Economic Growth — Assure an opportunity for a stable, vital and diverse economy while sustaining its environment/ecological support systems. . o Diversity of Quality Living Options — Assure the opportunity for a wide variety of housing and neighborhoods within a community diverse in education, income, employment and recreation opportunities. o Transportation Options Appropriate to Bend— Foster transportation systems that provide opportunities for all practical modes to facilitate the liveability of neighborhoods and the community. o Public/Civic Involvement — Encourage involvement by all citizens, corporate and individual, to keep the city vital and the Plan an "evolving vision". o Implementing Consistent Ordinances — Implement the plan through effective, clear and consistent ordinances and language that reflect the intent of the vision. [Note: a second set of Goal statements in the August 1997 draft were deleted by the Planning Commission because they were redundant, out dated, or better stated in goal statements in other chapters. ] PLAN MANAGEMENT &CITIZEN INVOLVEMENT 1 - 1 170 - 0150 BEND AREA GENERAL PLAN MANAGING GROWTH 0 Qregon's land use planning program employs land use Goals and administrative rules to guide the efficient planning and development of urban areas. Generally speaking, the mayor land use needs are planned and allocated within the area, and then urban facilities such as sewer, water, and transportation systems, are designed to support the planned land uses. However, since Bend is a regional economic center and a tourist destination, its street system must support an exceptional number of vehicle trips. This pressure on the transportation system from both internal and external sources requires the city and county to be more thoughtful in tying together land uses and their transportation impacts. The transportation land use connection Within the Bend urban area there are several physical features that constrict the development of the transportation system, thereby channeling street traffic to a few key routes. Any efforts the city and county can take to reduce or mitigate traffic congestion on the main routes will help Bend remain a place in which people enjoy living and working. The items below provide a brief overview of how the planning of land use and transportation are inter -connected in the General Plan. Chapter 7, Transportation Systems, provides a more thorough and detailed description of the urban area transportation systems, and their relationship to land uses. To support a cost effective and balanced land use and transportation system during the 20 -year • planning horizon the General Plan provides for: [changes by City Council 7/1/98] ❑ making other types of transportation systems more accessible and more functional through the development of a,fixed-route or on -demand or other transit system, completion of the sidewalk system, and adding moie flm 100 miles of bike lanes and off-street trails; [changes by City Council 7/1/98] ❑ converting 200 acres of industrial land along the river to a more intense mixed-use residential, retail, and employment development within walking distance of downtown and other community amenities; ❑ having pedestrian and public transit supportive design standards for commercial developments; ❑ designating several small commercial centers throughout the community to offer convenient shopping and services within walking distance or short driving distance of neighborhoods; 1 - 2 PLAN MANAGEMENT AND CITIZEN INVOLVEMENT 170 0151 BEND AREA GENERAL PLAN k ❑ adding medium density housing around the new commercial centers to support the centers and offer more opportunities for people to live close to services; ❑ designing more efficient and creative residential developments that also allow for more compact growth, including the use of neighborhood refinement plans to guide such development; ❑ supporting residential "in -fill" development, while assuring compatibility with existing residential neighborhoods; ❑ improving the connection of streets and/or pedestrian corridors within and through neighborhoods to reduce unnecessary out -of -direction trips; ❑ public policy that encourages the joint siting of new schools and parks for more efficient land use, and also to better link schools with after-school recreation programs; and ❑ locating new elementary schools and new parks within convenient distance of residential areas served by those facilities. Urban Growth Boundary . Cities and counties agree on an Urban Growth Boundary that separates future urban level development from rural development during the planning period. The Urban Growth Boundary (UGB) is shown on the General Plan Map and other maps. A small scale map of the urban area, which shows the UGB, is presented as Figure 1 on page 1-5. In total, the UGB encompasses approximately 32.25 square miles, or about 20,600 acres. The UGB includes both land within the Bend city limits and adjacent land that is already urban in nature, or is suitable and needed for urban uses. The amount and type of land within the 1981 state approved UGB was evaluated during the 1994- 1998 update process. Based on that analysis, it was determined that there was sufficient buildable land within the boundary to meet the forecast housing and eomme needs during the planning period., " area to add 200 acres of industrial land and 150 acres of set-baek buffers and open spaee. However, there was not sufficient buildable commercial or industrial land within the boundary to meet the forecast need to the year 2020. [ text modified by staff 3198 after the 350 acre UGB expansion was removed from Plan]. The city and county are expecting rapid growth between 1995 and 2020. This growth will bring PLAN MANAGEMENT &CITIZEN INVOLVEMENT 1 - 3 170 0152 BEND AREA GENERAL PLAN more dramatic changes to the community than have occurred since settlement began is approximately 100 years ago. Some 30,000 new people are expected to reside in the area. Several new schools will have to be built. In addition, many miles of streets, sewer, water, and electrical lines will have to be installed. Much of what is now open space will become housing, commercial, industrial, or other urban uses. These changes offer both the opportunities for improving the community, and the challenges of maintaining its social and natural character. The purposes of the Urban Growth Boundary and urbanization policies at the end of this chapter are to promote efficiency in the future growth and development, and to conserve resources by infilling the existing urban area. Urban Reserve Boundary Some communities, like Bend, also have an Urban Reserve Boundary line beyond the Urban Growth Boundary. Between the UGB and the Urban Reserve Boundary are additional lands that are needed for the long term — 30-50 year — growth and expansion of the Bend urban area. Figure 1 on page 1-5 shows the Urban Reserve Boundary. When the General Plan was "acknowledged" by the state in 1981, the Urban Reserve area was recognized as an "exception area" to long-term farm or forest uses under statewide planning Goals 3 and 4, and therefore available for urban development. Lands in this Urban Reserve area are considered first for any expansion of the Urban Growth Boundary., The Urban Reserve area cover several thousand acres along the western and northern sides of the • Urban Growth Boundary, and smaller areas along the east and southeast edges of the UGB. In total, the Urban Reserve area covers approximately 6,860 acres or about 10.7 square miles. It is a mixture of vacant lands, areas with surface mining operations, residential areas, and public open space lands. A discussion of the residential uses that can be developed in the Urban Reserve area is provided in Chapter 5, Housing and Residential Lands. .z.46 ALL 1 - 4 PLAN MANAGEMENT AND CITIZEN INVOLVEMENT rwrw 170 - 0153 BEND AREA GENERAL PLAN . Figure 1 Bend Urban Planning Area Urban Growth Boundary Urban Reserve Boundary • � PLAN MANAGEMENT &CITIZENlNVOLVEMENT 1 - 5 170 0154 BEND AREA GENERAL PLAN The western portion of the Urban Reserve area has been a source of pumice, dirt, and some sand and gravel. The Deschutes County Community Development Department has an inventory of these resource sites. Areas actively mined are zoned for Surface Mining. The classification will help isolate these resource extraction operations from incompatible urban uses. Outside the Urban Reserve Boundary to the west and southwest are national forest lands and private forest lands. Beyond the Urban Reserve to the north, east, and south, the predominant land use pattern is rural subdivisions with lots ranging in size from one-half acre to five acres. There are several thousand lots and many thousand residents in rural subdivisions just outside the Urban Reserve area. Management agreement In 1978 the city and county entered into an agreement for the Joint Management of the Bend Urban Area. This agreement sets up formal procedures to implement the Urban Growth Boundary and the Bend Area General Plan consistent with state planning laws. A new management agreement was approved in 1998 that provides for the city to administer all planning and building codes within the Urban Growth Boundary. [added by staff 4/98] This joint management agreement also sets forth responsibilities and procedures for changing the General Plan, providing urban services, having consistent development codes and standards, and for reviewing and commenting on land use applications. It is reviewed and amended from time to is time to reflect management changes within the urban area. The agreement is on file at the city and county planning offices. CITIZEN INVOLVEMENT Mihe city and county use a variety of techniques and forums to gather ideas from the citizens of the community, to explain planning concepts in the General Plan, and to evaluate public comments. The major citizen involvement activities used during the development of this updated Plan are described in the Preface to the General Plan. A permanent and on-going forum for citizen involvement is the Bend Urban Area Planning Commission. The Bend Urban Area Planning Commission was established in 1980 by the city and the county. Its role is to carry out a comprehensive planning program, using citizen comments and public hearings when appropriate, for all the lands within the Urban Growth Boundary and Urban Reserve Area, The Planning Commission is the official Citizens' Involvement Committee for the urban area, and advises the elected bodies on land use planning programs and policy. .,f J6 JLS& * 1 - 6 PLAN MANAGEMENT AND CIT/ZEN INVOLVEMENT FWM 170 -T0155 BEND AREA GENERAL PLAN In addition to the Planning Commission, there are other citizens' committees that have particular areas of interest that relate to land use and transportation planning: ❑ the Deschutes County Bicycle and Pedestrian Committee; ❑ the Clean Air Committee; and ❑ the Bend Traffic Safety Committee. The interest in community and neighborhood involvement is. so strong in Bend that several major private developers have used public forums, workshops, and citizens committees to help them design projects that are consistent with the Bend Area General Plan. POLICIES Urban Planning Coordination [new subheading created by BUAPC] 1. Growth in the Bend Area shall be managed through the cooperative efforts of the City of Bend and Deschutes County. , and shall be in accordance with the plans, fii , and financing of public facilities and services. [staff edit 10/28; OK from BUAPC 11/3/97] 2. The city, , and special districts shall work toward the most efficient and economical method for providing speeifie urban serviees to the area their services within the UGB.-art flie lonrg, run, the city is the logleal provider of stieh services [staff edit 10/28; OK from BUAPC 11/3/97] 3. No new water or sewer service districts shall be created within the UGB to provide sewe or water service without the concurrence of the city. -=4-eounty. [staff edit 10/28; OK from BUAPC 11/3/971 Development within the Urban Growth Boundary 4. New development shall loeate -*. - eas where f�eifihes are available or can be provide least costt.-. [staff deletion 10/28; OK from BUAPC 11/3] 5. New developments shall pay to extend planned flie full cost of pr oviding urban service - sewer, water, and transportation facilities to and through the nroneif the development occurs prior to the scheduled construction of those facilities shown in the capital improvement plan. [staff edit 10/28; OK from BUAPC 11/3/97; staff edit per City Council direction 7/1/98] •* -S NAL PLAN MANAGEMENT & CITIZEN INVOLVEMENT 1 - 7 170 - 0156 BEND AREA GENERAL PLAN 6. Futwe urbwi development shall be eontained wififin the geo,5rapb�e limits of the . [deleted by staff 10/28; OK from BUAPC 11/3/97] • ./lR.1il..R\7served �areas. [deleted leiSeli i,—staff 10/28; OK from BUAPC 11/3/97] ILLY' ;;HT-3U.N�LIERA-L-aTy-lq-IUUIILLIdILL-al: I LL benefits of compact development, integration of land uses :.:non-antomobile travel. [BUAPC replaced this policy 9. The city and county will prantote encourage compact development and the integration of land uses within the Urban Growth Boundary to reduce trips, vehicle miles traveled, and facilitate non -automobile travel. [edit by City Council 7/1/98] 9A. The city and county wl !actively wok to encourage infill and redevelopment of the core area of the city. [added by BUAPC 12/1/97; edited by City Council 7/1/98] Refinement Plans (See definition in Glossary and related policies in Chapter 5.) 10. The city and may prepare land use refinement plans for neighborhoods or other discrete geographic areas. that have a pattern of vaeant or under-utilized lack a eomplete system of streets, sewer service, or other urban . [changed by BUAPC 11/3/97] 11. The area to be included in a refinement plan study shall be approved by the City Council or Board of eounty eo s, and the boundary of a study area shall be shown on the zoning map until the study is complete. 12. A refinement plan, including detailed maps, policies, and plan text, when adopted by the city � , shall become part of the General Plan. 13. Refinement plans shall, at a minimum, provide plans for the development of sanitary sewer, water, and transportation systems and criteria by which to evaluate proposed amendments to an adopted refinement plan. 14. Refinement plans may evaluate the need for, and designate the location of, schools and park facilities, public and private open space, -and future neighborhood commercial or convenience commercial uses, residential, and mixed use areas. [changed by BUAPC 11/3/97] ALL 1 - 8 PLAN MANAGEMENT AND CITIZEN INVOLVEMENT 00 17® BEND AREA GENERAL PLAN 15. Refinement plans may include site and building design regulations and alternative street standards. Planning in the Urban Reserve 16. The city and county shall retain lands in the Urban Reserve Area in larger lots in order to be compatible with adjoining public lands and deer winter range needs until these areas are needed for urbanization urban level uses. [staff edit 10/28; OK from BUAPC 11/3/97] [replaced by "17A" drafted by staff 10/28] I7A. Areas mined for sand, gravel, rock, pumice, or other materials shall ultimately be redeveloped for urban uses. [replaces existing 417. Staff drafted 10/28; OK from BUAPC 11/3/97] Citizen Involvement 18. The city and countp shall continue to use mrradvisory committees in their planning process, members of which are selected by an open process, and who are widely representative of the community. [edit approved by BUAPC 11/17] 19. The city andcowill use other mechanisms, such as, but not limited to, meetings with neighborhood groups, planning commission hearings, design c azrettes workshops, and public workshops forums, to provide an opportunity for all the citizens of the area to participate in the planning process. [changed by BUAPC 11/3; deleted by BUAPC 11/17/97; put back in by City Council 7/1/98] (Policies # 20-23 deleted by City Council 7/1/98] 20. The city and county shaff continue to use thL, Bend Urban Area Ptw;ning C-Ommission iIt-&t&4XFT •/ r r years I / ksion if.l. rMV&r1w ifft rom 123 rI 1 • [added1• i Ar'•• •i /1 • • A• • 1 • • I '• 21. The city and r rin cooperationstate,% i andsWort J education i county J /choose/hire staf.for I / A ! ls tofoste, suchan educationand outreach / pi, ogram.• • • • 1 • •u �& 0 0" / I I INVOLVEMENT 170 0158 BEND AREA GENERAL PLAN 0 Q: \NE W PLAN2\CC_CHP 1. DFT Drafted: December 1996 Last Edit:: September 22, 1998 • 1 - ] 0 PLAN MANAGEMENT AND CITIZEN INVOLVEMENT rwrw I ! / ! ':A / J :A / - r •- i t i i j j•/ i u A iq F4fflj rMol small • i • • fffIjqIf44 I 0 AY 4 tj 1411i111iIn sq 14 4 14 u i Q: \NE W PLAN2\CC_CHP 1. DFT Drafted: December 1996 Last Edit:: September 22, 1998 • 1 - ] 0 PLAN MANAGEMENT AND CITIZEN INVOLVEMENT rwrw 170 - 0159 BEND AREA GENERAL PLAN CHAPTER 2: NATURAL FEATURES AND OPEN SPACE TABLE OF CONTENTS PREAMBLE ............................. 1 GOALS................................ 1 OVERVIEW ............................. 3 Open space "Areas of Special Interest" Deschutes River Corridor . Fish and wildlife POLICIES .............................. 10 Natural features and open space Deschutes River Corridor Fish and wildlife CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 LJ • Bend Area General Plan PREAMBLE 0 Open space and natural features sha-be are an integral part of the Bend Urban Area , plan. A wide range of types and sizes of open space and natural features within the urban area should provide: diverse plant and animal habitat, visual and spatial breaks from urban uses, places for recreation and sports activities, facilities for community events, trails for pedestrian and bicycle transportation and recreation, and many other uses. As defined in the plan, open space and natural features may be in the form of: parks, public school grounds, trails, natural areas and areas of special interest, river and stream corridors, open space easements and right-of-way, and lands excluded from development. The preservation and enhancement of open space and natural features, and their incorporation into the infrastructure of the Bend Urban Area shailbc is a function of the plan and related ordinances. [City Council edits 7/1/98] GOALS NATURAL FEATURES AND OPEN SPACE 2-1 1 UlVl ': Bend Area General Plant "J trees have been preserved in developments, in parks, and in the design of sidewalks and streets. :. protectionILWA MV19111191194111 I H; El to enswe the long-terin habitat, and natural plant and mrilrnal eotmnwfities along the D ellitflSo'-as • tli v%',, d ill tributaries. [all deleted by BUAPC 11/3/97] Maintaining the natural features and open space in an urban area is a difficult task, and one that becomes more complex during periods of rapid population growth. However, providing open space in the urban area for the benefit of existing and future residents is important. To help ensure Bend's livability, the following additional goals should be implemented as policies to provide long-term protection of open space and natural features: [CC edit 7/1/981 ❑ to preserve interesting and distinct geologic formations and areas of natural vegetation; ❑ to provide land for recreational uses such as hiking, photography, bicycling, jogging, or fishing; ❑ to preserve water resources, riparian areas, and wildlife habitats; ❑ to establish a system of trails, greenways and wildlife corridors that are interconnected; ❑ to shape the urban development and provide visual relief from developed land; ❑ to soften the appearance of street corridors with planter and median strips; ❑ to encourage environmental awareness so that citizens will become stewards of our natural areas; and 2-2 NATURAL FEATURES AND OPEN SPACE �� Bend Area General Plan D to support the coordinated efforts of public agencies, private organizations and individuals to preserve and enhance the area's natural features and open space. The Bend Area General Plan and implementing codes support management practices to preserve, maintain, and create natural features, open space, and Areas of Special Interest. The ', Preamble, the goal statements, and several Plan policies in this chapter speak to the importance of preserving and managing natural features. The city and county zoning codes also regulate development within the Deschutes River Corridor to protect the riparian areas and river rimrocks. Site plan reviews provide the opportunity to preserve natural areas through building setbacks, conservation easements, and other measures. [city staff edits 11/4/97] OVERVIEW This chapter describes the many types of open space and natural features that add to the quality of life for our residents. Public park land and natural areas, an important component of Bend's quality of life, are mentioned briefly in this chapter as a type of open space. The public parks and recreation programs in the urban area are described in more detail in Chapter 3, Community Connections. Other related topics that also contribute to our quality of life are covered in the Chapter 9, Community Appearance and Chapter 10, Natural Forces. That the settlement of Bend is here at all is a result of dynamic natural forces that shaped the landscape. The lava flows and volcanic ash, in place before the elk and cougar roamed the area, form the canyon walls and punctuate the urban area with rock outcroppings, ridges, and cinder cones. The Deschutes River, and smaller streams that have long since disappeared, cut through the lava and ash, and brought life to the land. Animal and plant species that adapted to the dry summers and snowy winters of Central Oregon over hundreds of thousands of years still grace the urban area today. A city is the sum of physical, biological, and historical processes that shape the social values and image of the community. The natural features such as the rock outcroppings, native vegetation, the river, and wildlife create frame Bend's special character and sense of place. Which natural features have some intrinsic value, and how much land should be preserved, are questions that Bend area residents wrestle with as They seek to balance the value of growth and the value of preserving natural areas. NATURAL FEATURES AND OPEN SPACE 2-3 Bend Area General Plan As regional and national developers "discover" Bend they seek to bring their national look to the urban area. The city and county will need to be stronger in reflecting the community's desire to incorporate natural features and native materials into commercial and residential development. '. [city staff edits 11/4/97] Open space The irregular terrain and native vegetation in Bend give the area a distinctive visual character and quality. , and serve These features limit views within the community, thereby creating a sense of a smaller urban area. Land in all parts of the urban area that has been vacant for decades is being developed mid thereby This development is changing the feel of the community from a rural town to an urban city. The expansion of development may reduce or change the open space and natural features that "break-up" the appearance of the man-made environment. [city staff edits 11/4/97] Open space is clearly a broad term that can apply to many types of undeveloped and improved land. Table 1 on the next page describes six types of "open space" that exist to a greater or lesser degree within the urban area. r-1 L_J • 0 2-4 NATURAL FEATURES AND OPEN SPACE dio Bend Area General Plan Table 1 Types of Open Space Type Purpose Examples How to provide/ conserve . Natural • retain or restore natural ■ undeveloped park or public land O PUD development acres landscape and vegetation ■ landscape areas left in natural state o flexible subdivision standards areas • provide wildlife habitat ■ PUD common areas o commercial landscape standards ■ subdivision common areas O private or public land trust Large • active or passive recreation ■ community and neighborhood parks o property tax revenues developed • places for gatherings ■ school grounds o user fees / SDCs ■ PUD common areas o PUD requirements ■ golf courses O private investment • areas for quiet enjoyment ■ `pocket parks' o require during development Small 0 relaxation or resting spot ■ excess right-of-way O property owners association developed • visual break ■ planter in middle of cul-de-sac bulb o flexible subdivision standards ■ subdivision entrance O property tax measures ■ commercial plaza O sensitive design and construction ■ grounds around public utility facilities • visual break ■ irrigation canals o easements or dedications Corridor • community appearance ■ developed trails O setback regulations or linear • design rhythm ■ river canyon O transportation corridor designs 0 pedestrian amenity ■ pedestrian walkways O property tax revenues • wildlife corridor ■ street planter strip and median strip • physical or visual break ■ forest and BLM lands o public acquisition or ownership Perimeter between uses ■ regional park land o developer design • passive recreation ■ subdivision buffer to protect wildlife o conservation easement • wildlife habitat / corridor Private • passive or active recreation ■ house or multi -family yards O private ownership 0 relaxation and resting ■ private recreation facilities o association dues spaces 0 wildlife habitat O land trust purchase The list below is from the city's 1995 inventory of open space lands held by both public and private parties. The inventory is based on tax parcel ownership, and therefore provides only a rough estimate since some trail corridors, PUD common areas, and golf course properties may not have distinct tax parcel numbers. Public park and recreational facilities 905 acres City, county and other public properties 1,525 acres School district holdings 98 acres Private open space and recreational sites 963 aom Total Acres 3,491 acres NATURAL FEATURES AND OPEN SPACE 2-5 170 Bend Area General Plan 0165 • Although this number gives a rough estimate of total acreage, it does not describe the size, type, or land use that is currently considered as "open space." The city and county will continue to monitor the creation and conversion of open space in the urban area, and evaluate or modify as necessary the open space designations on the Plan map. The types and amount of open space will be reviewed in future updates of the Plan. "Areas of Special Interest" and Natural Features One of the common desires mentioned by residents through more than 20 years of community planning has been to retain and conserve the natural character of Bend as the community grows and changes. Although it is difficult to precisely define what ".the natural character" means to people, it can be considered a composite of features typical to Bend: ancient volcanic rock outcroppings, large ponderosa pines and junipers, the Deschutes River, improved public and private open space, and a relative abundance of wildlife and waterfowl. "Areas of Special Interest" are Ag designated on the Land Use Map because they have features typical ,,•I.:: I'~' ,;;; of Central Oregon, or represent N�. .- . -,.� important wildlife areas. The main <';� ,' .'i �,.-►,ti ".�`,'��' Area of Special Interest is a corridor along the Deschutes River, • •:' '� OM1. 5 ` ` ;i{ ' ,�'• ,• which includes the river canyons 41 u 4 ,�. • ;,', I� and rimrocks in the north and south r • '' .�y �• 1 . �. � ,. _"c'► " portions of the urban area. At the south edge of the urban area the Area of Special Interest includes a I 4L large meadow area betvveen Brookswood Bottlevffd and the��•- y %+1-fieh is frequently use 1 river,4. d ing the winter as a resting �fi;.;�:;;�`�' �Ll €eeding-area wildlife habitat t Y areas along the river canyon and Figure 2 -- `Area of Special Interest" lava rock a cinder cone. The owner of this outcropping property is interested in designing future development on the site that will protect this important wildlife area. [edit by staff 7/98 to be consistent with Plan map] 2-6 NATURAL FEATURES AND OPEN SPACE 7 / IN es Bend Area General Plan i The smaller, scattered Areas of Special Interest on the Plan Map are the more prominent rock outcrops and rock ridges in the urban area. They are not specifically inventoried with respect to size, quality, or importance. These high points break the line of sight so that the area retains a feeling of undeveloped open space. Because these Areas of Special Interest are small and the scale of the Plan Map is large, the indication on the Map represents the approximate location of the area. More detailed contour maps must be used to determine the specific boundaries of the Areas of Special Interest. Keeping these features relatively intact will help retain the natural character of Central Oregon as the community grows. The Areas of Special Interest and other natural areas can be retained as either public or private open space. Some sites within the urban area are already protected because they are owned and managed by public agencies. The city and county are planning changes to their codes that provide incentives or encourage developers to preserve natural features. Such code changes shall include, but are not limited to, the following: ❑ more flexible subdivision lot and street standards to allow including natural features into the subdivision design; • ❑ Planned Unit Development (PUD) standards that are easier to follow and administer; ❑ a new "cluster housing" subdivision option specifically aimed at preserving natural features; and ❑ relaxed flexible minimum residential density standards on sensitive lands to protect natural features. [edited by BUAPC 11/3/971 Local governments and special districts can also preserve or conserve natural areas through several non -regulatory measures. They can: ❑ seek donations or gifts of land from private parties; ❑ request transfer of land from federal agencies or other governmental organizations; ❑ purchase land using revenue from bonds, system development charges, or other fees; ❑ obtain conservation easements along the river or other sensitive areas to protect • NATURAL FEATURES AND OPEN SPACE 2-7 Bend Area General Plan.. wildlife habitat; ❑ include natural features and open space in the design of reservoirs, pump stations, and other such utility facilities; and ❑ locate transportation and utility systems to avoid natural features and Areas of Special Interest. Natural areas can also be retained in private ownership in a variety of ways without adversely affecting the density or development potential of a site. The city and county encourage the private sector to preserve natural areas within subdivisions and other developments. Many local developers have accommodated the goal of conserving natural features by incorporating rock outcroppings, mature trees and native vegetation and related features into their projects by: ❑ including them within common areas in Planned Unit Developments or subdivisions; ❑ including them within the undeveloped street right-of-way; ❑ adjusting lot lines and street patterns to leave them in the non -buildable setback areas; and ❑ making them part of the required landscape area in commercial, industrial, and multi- family projects. Deschutes River Corridor The Deschutes River is a thread that weaves the fabric of the community together. It runs for eight miles through the middle of the urban area, and flows past industrial, commercial, mixed-use, parks, and all categories of residential lands. The river has served many needs of the community, and in doing so, has become a common reference for the citizens. The Deschutes River was used to transport and store logs for the two sawmills south of downtown. It is a source of water for agricultural lands and power for homes. It has been the setting for recreation, community festivals, and entertainment for decades. With stretches of both fast-moving and still waters, the Deschutes River provides food and home for wildlife, and a respite for humans from the pressures of work and life. The importance of the river is underscored by state and local actions. In 1983 Deschutes 2-8 NATURAL FEATURES AND OPEN SPACE .7 • 0 ,J J6 W Bend Area General Plan County and Bend established a moratorium on hydroelectric facilities and created the Deschutes Basin Task Force commiitee to study the natural resources of the Deschutes River and its tributaries. The reports and other studies Produced by this taskorce are background documents for this Plan, and the work from this committee influenced the development of rules to Protect the river resources. Policy recommendations from the Task Force are included in the Deschutes County Comprehensive Plan. [added by staff 7/98 to correspond with Council direction to the Deschutes Basin Task Force policies as resource material to the General Plan.] Figure 3 -- Deschutes River, southern portion of urban area In 1986 the city and county added standards for the filling or removing material from the bed and banks of the river. In 1988 a statewide voters initiative added several miles of the Deschutes River to the state's scenic waterway program, including about one and one-half miles within the urban area. In the early 1990s the city and county adopted special Deschutes River Corridor development standards to recognize and respect the unusual natural beauty and character of the Deschutes River. [added by staff 7/98] The city has also adopted a Mixed- use Riverfront zone that allows for the redevelopment of land along the river previously used by the sawmills. This zoning district is designed to enhance the natural character of the river and to encourage access to and the enjoyment of the river corridor. Fish and wildlife There are several key wildlife areas in Bend. The most important, and most diverse, wildlife area is the riparian corridor and canyon walls along the Deschutes River. Although the river is in the middle of an urban area, the combination of still waters, rapids, the many species of NATURAL FEATURES AND OPEN SPACE 2-9 Bend Area General Plan- shrubs, lan shrubs, bushes, and trees, and the rock outcroppings provide a variety of important habitats and food sources. Wildlife species that inhabit the Deschutes River corridor include: deer, elk, cougar, otter, beaver, mink, racoon, osprey, red-tailed hawk, bald eagle, kingfisher, trout, whitefish, and several species of reptiles, amphibians, and waterfowl. Because of its value to wildlife and its related benefit to area residents, the river corridor is identified as an Area of Special Interest in the General Plan and shown on the Plan Land Use Map. At the west edge of the urban area is Tumalo Creek, a second important riparian and wildlife area. The Bend Metro Park and Recreation District manages about 600 acres along the creek for passive recreation such as hiking and picnicking, and has designated its property as a wildlife refuge. Most of the area along Tumalo, Creek is in a more natural condition than the urban portion of the Deschutes River. Because of that, the Tumalo Creek area is a more diverse and complex habitat than the Deschutes River corridor, and supports larger wildlife such as - coyote and cougar. West of the urban area in the Urban Reserve and adjacent forest lands there are areas where deer and elk herds feed during the winter when they move down to lower elevations out of the deep snow. The winter range is mainly north of the river, but herds may also move across the river into the southwestern portion of the urban area. In addition to these two areas, there are many smaller, more separate enclaves of natural features and native vegetation that the community seeks to conserve within developments. Several species of squirrels and chipmunks, lizards, snakes, quail, and many other bird species all fmd food and shelter in small natural areas and even in patches of natural habitat common to many residential yards. Besides.being beneficial to the wildlife, these habitat areas also provide opportunities for residents and visitors to observe and enjoy the interaction of natural plant, animal, and aquatic communities within our urban area. POLICIES Natural features and open space 1. L rrG a,Liy "it" t -c' .rciy rvoic a,vvr w�•awoa. •...r•�� w•ow ., �.t.... �� �•.�- �—.--- �.���. -- — --_ ._ �_--- Recreation District Is efforts to in ventoty and "taintain a ffst ofpubffc Open space 2-10 NATURAL FEATURES AND OPEN SPACE 0 0 1�1 110 -_.0110 Bend Area General Plan community.tand� that are bnpartant to the [BUAPC 11/3/97; edited by city staff 11/4/97. Deleted by BUAPC 11/17/97.] IA. The cit, county,-arrrl'Bend Metro Park and Recreation District will inventory and maintain a list of natural features and open space lands that are important to the community. [added by BUAPC 11/17/97; changed by staff per direction of City Council 7/1/98] 2. The Bend Metro Park and Recreation District shall have the primary responsibility to identify inventory, purchase, and manage public open space, and shall be supported in its efforts by the city and county. [moved to this position and changed by BUAPC 11/3/97; changed again by BUAPC on 11/17/97] 3. On a periodic -basis Beginning no later than 1999 and every three years thereafter, tyre d county Bend Urban Area Planning C-ommftsMn the Bend City Council or its designee shall hold public hearings to receive information identifying Areas of Special Interest and natural features. The city and county shall use this information to update and clarify the designation of Areas of Special Interest and natural features on the Plan Map. The city mid county will periodieally consider whetheT additiona4 7hTeas o Special Interest de re needed. [BUAPC 11/3/97; changed again by BUAPC on 11/17/97] 4. The city and county shall review proposed developments that include Areas of Special Interest and natural features identified on the Plan Map to ensure they follow the policies of this Plan. 5. Major rock outcrops, stands of trees, or other prominent natural features identified in the General Plan shall be preserved as a means of retaining the visual character and quality of the community. 6. Natural tree cover should be retained along streets in new developments to retain the natural character of Central Oregon within the urban area as the community grows. 7. All residential development should. respect the natural ground cover of the area, and the city and county shall work with developers to preserve mature trees within the subdivision. NATURAL FEATURES AND OPEN SPACE 2-11 170 Bend Area General Plan 0171 P 8. The city and eoun shall develop standards to conserve mature native trees and standards that describe the types of trees for commercial and industrial developments that are compatible with Central Oregon's climate. 9. The city and county shall participate with other governments, special districts, non- profit organizations, land trusts, interested businesses, and citizens in protecting open space. 10. The city and eountp shall develop flexible subdivision and development standards that make it easier for developers to provide open space within a neighborhood. 11. The city and county shall evaluate and adopt standards for the types of landscape materials and amount of open area buffers around structures that reduce the risk of loss from wildfires at the edge of the urban area. 12. The city and county shall have the primary responsibility for providing opportunities for the creation and management of private open space areas. 13. The Bend Metro Park and Recreation District shall designate areas in parks with significant natural values as undeveloped, managed open spaces for natural habitat, . educational, aesthetic and passive recreational use, and provide opportunities for trails, observation platforms, boardwalks, and interpretive signage. 14. The Bend Metro Park and Recreation District shall acquire strategic areas along the rivers, streams, and canals to protect and conserve scenic, recreational, and natural values, and make such areas accessible to the community. 15. The Bend Metro Park and Recreation District shall acquire park sites and open space lands where possible to establish pedestrian, bikeway and greenway linkages between parks, open spaces, neighborhoods, and schools. 15A. The city and county will consider how best to protect important native fauna and flora within the Bend urban area, as identified by the open space and natural features inventory. [added by BUAPC 12/1/97] Deschutes River Corridor 16. The city and county shall seek opportunities to retain the banks and canyon of the • 2-12 NATURAL FEATURES AND OPEN SPACE 1700172 . ... ............. Bend Area General Plan planning area. 18. Within the Areas of Special Interest designated on the Plan Map, the city and county may allow developments that carry out the intent of the Plan to enhance the variety and livability of the Bend Urban Area, and provided that such developments: O are not subject to natural hazards; O would not inflict irreversible harm to the riparian zone, O would enhance public open space, parks and access; D have gxcelknce af design are co atible with natural eatures• and 0 provide access to the river or by -a trail along the river corridor to the extent allowed by law [re -write of 916 by staff on 11/18 at direction of BUAPC on 11/17/97; approved by BUAPC 11/24/97; . edited by staff at direction of City Council on 7/1/98] .1.9. Any development within 100 feet of the watet's edge shall. be s*ect to a design Ptocedure,t-a'f-.-,-*Lm-Ur--'-' account flie go -'s "T the Areas of Special Interest and Plotection Offish and wildfife habitat. [deleted by staff 9/98 since river corridor standards are in zoning code] *roetopment on Park. [added by city staff 11/4/97 at direction of BUAPC on 11/3/97. Deleted by BUAPC on 11/17/97 and replaced by 419A.] 19A. The city and county shall prepare development regulations to further reduce visual and ecological impacts of development along Tumalo Creek and on the the Deschutes River. [BUAPC 11/17 & edited by staff 11/19/97 at direction of BUAPC; approved with changes by BUAPC 11/24/97; modified again by BUAPC on 12/1/97] 19B. The city andcountyshall request that the ODFW develop a list of trees and *1:2:z� NATURAL FEATURES AND OPEN SPACE 2-13 Bend Area General Plan vy vegetation appropriate for planting along the Deschutes River. The list shall be i used during design review of proposed riverfront development when landscaping or screening issues are considered. [added by BUAPC 12/1/97] Fish and wildlife 20. The county and eishall apply the requirements of the deer winter range overlay zone to any development in the Urban Reserve Area adjacent to or within one mile of the wildlife area designation on the County Plan or zoning maps. 21. All trout spawning areas for-tron shall be considered significant habitat and shall be protected. [city staff 11/4/97] 22. The city and county shall promote and support educational programs on riparian natural history, river maintenance and courtesies, impacts of habitat alteration, and habitat disturbance by domestic animals and human activities. 23. The city and county shall request that the USFS and ODFW adopt a winter elk management plan for the Benham Falls elk herd. Emphasis should be given to identification of their sensitive habitat in order to minimize potential conflict with _ development and recreational activities. i Deschutes Basin Study policies The following policies were developed by the city, county, and a citizens committee in the late 1980s in response to a number of issues that could impact the Deschutes River. Most o the policies deal with issues of regional or statewide significance, and therefore beyound the scope of the Bend Area General Plan The City Council on 7115198 directed staff to take these policies out of the bo4E of the Plan, but to include them as an appendix or referenced as a resource document A reference to these policies i�r_on pa _-9. 24. The city and county shall establish a water conservation committee including, but not limited to, local representatives from the irrigation districts, Department of Water Resources, Department of Fish and Wildlife (ODFW), United States Forest Service (USFS), Deschutes County and the City of Bend Planning Department, and Deschutes County and Bend Urban Area Planning Commissions to provide an ongoing forum regarding water management on the Deschutes River and its tributaries and to make recommendations to appropriate agencies. The committee should: i. Request assistance through Bonneville Power Administration'.s (BPA) 2-14 NATURAL FEATURES AND OPEN SPACE Bend Area General Plan technical assistance program for technical improvements in methods of irrigation and means of conservation of both water and energy. ii.Request assistance from the Water Resources Department, Bureau of Reclamation, and Soil and Conservation Districts to initiate an in-depth study of, and to set priorities for, actions that should be taken to improve the irrigation districts' delivery systems. iii. Assist the county and city in the implementation of the goals and policies of this section. 25. The city and county shall petition the Water Resources Department to amend the appropriate provisions in the Deschutes River Basin Plan to reflect the recommendations of the River Study Task Force. 26. The city and county shall petition the State Legislature to amend state law to designate in -stream use as a beneficial use to ensure that rights designated to in -stream use shall not be subject to downstream appropriation by holders of equal or junior rights, and petition the Water Resources Department to adopt a uniform, easily -accomplished . process for the transfer of water rights in the Deschutes River Basin to in -stream use. 27. The city and county shall petition the Bureau of Reclamation to conduct a feasibility study on the Manner Reservoir site, including (a) the non -irrigation flow required for filing, (b) to what extent gravity feed irrigation would be possible, and (c) to what extent low flows below Wickiup Dam could be augmented during the non -irrigation season. 28. The city and county shall petition the Bureau of Reclamation, USFS,. United States Geological Survey (USGS), and the Oregon Department of Environmental Quality (DEQ), to establish a bedload of sediment monitoring program and to determine an appropriate maximum discharge from Wickiup Dam, which program addresses the effects of bank erosion on rehabilitation of spawning habitat, riverfront property, recreation and scenic values, and accomplishes the determination of flow regime through interagency cooperation with the affected irrigation districts. 29. The city and county shall petition the Bureau of Reclamation to determine what the consequences would be to irrigation districts, recreation use, and the stabilizing of water releases below Wickiup Dam by maintaining a lower level of water in Crane i NATURAL FEATURES AND OPEN SPACE 2-15 Bend Area General Plan Prairie Reservoir, and diking off known high loss areas within the reservoir to minimize excess seepage. 30. The city and county shall encourage the Water Resources Department, irrigation districts, and municipalities utilizing diverted waters to enforce the "without waste" provision in appropriated water rights. 31. The city and county shall support efforts by the irrigation districts to provide financial incentives to conserve water. This incentive could be determined for example, by a water use fee on the minimum amount of water required (commensurate with the plant/soil requirements determined by the soil and water conservation districts) and an excess charge for water used over the base amount. 32. The city and county shall support efforts by the irrigation districts within the upper and middle Deschutes River Basin to allow expansion of irrigated land within a district's boundaries, as part of a means to share conserved water, for those districts that implement water conservation and in -stream flow enhancement programs. 33. The city and county shall encourage examination by irrigation districts and the Water Resources Department of options for providing additional flows below the North Canal Dam during the irrigation season. These additional flows shall not take the place of the current 30 CFS spilled by agreement with Central Oregon Irrigation District (COID), and North Unit Irrigation District (NUID). Options that might be considered include shared conserved water, public participation in irrigation district improvements, public "buy down" of interest rates on improvement loans, and public or private purchase/transfer of water rights for in -stream use. 34. The city and county shall continue to replace the Tumalo water supply pipeline. When this pipeline is complete, gates should be installed at the intake, which would help stabilize withdrawals from Tumalo Creek. 35. The city and county and Tumalo Irrigation District should shall explore options to improve in -stream flows and fish habitat in Tumalo Creek. Tumalo Irrigation District should consider apportioning their water draws to maximize the use of the Tumalo Feed Canal rather than the Columbia Southern Canal. This action should increase water flows through Shevlin Park and m rize minimize the excessive water losses that now occur in the Columbia Southern Canal. [BUAPC 11/3/97; staff 11/4/971 2-16 NATURAL FEATURES AND OPEN SPACE • 0 f 0 70 Bend Area General Plan 4 36. The city and county shall continue to strongly support and promote the conservation of all forms of energy resources through cooperation with the Northwest Power Planning Council, Bonneville Power Administration programs, recycling, solar ordinances, energy-efficient building standards, and appropriate geothermal resources. 37. Hydroelectric projects that are not physically connected to an existing dam, diversion, or conduit are prohibited. 38. The city and county shall develop a program to assure that hydroelectric projects located within existing man-made transmission systems and using existing flow regimes, or physically connected to an existing dam, diversion, or conduit, but not using existing flow regimes, are subject to the following provisions: Are consistent with federal and state law. ii. Hydroelectric projects shall not increase the maximum surface area of an impoundment behind an existing dam or diversion. iii. Hydroelectric projects shall not be located in significant/sensitive fish or wildlife areas unless it can be demonstrated that the project, if constructed, would restore significant/sensitive fish or wildlife habitat in the reach affected by the project. iv. Hydroelectric projects shall stabilize stream flows, restore degraded trout habitat, and provide public access to as great an extent as practical. v. Hydroelectric projects shall avoid adverse impacts if possible. Where not practicable, impacts shall be minimized, while providing for restoration of already adversely impacted areas along the river or stream. Restoration does not necessarily have to be in the immediate project vicinity. vi. Hydroelectric projects shall have no adverse impact to water -related and water - dependent recreation unless it can be shown that existing water -related and water -dependent recreation of the same type, quality, and quantity as that which may be lost can be restored or enhanced in the project vicinity. Recreational activities include those activities that occur now and which may reasonably be expected to occur in the future. vii. Hydroelectric projects shall include a river restoration plan documenting both on- • t2z�NATURAL FEATURES AND OPEN SPACE 2-17 Bend Area General Plan site and off-site restoration and enhancement strategies consistent with adopted goals and policies. The plan shall identify costs, time schedules, and coordination actions with all affected parties. The plan shall address, but not be limited to stabilizing water flows, trout habitat restoration, and public access. No hydroelectric project shall be permitted until the plan has been approved through the public review process. viii. Hydroelectric projects shall post a performance and restoration bond to ensure implementation of the approved restoration plan. ix. Hydroelectric projects shall be consistent with the provision of the Columbia River Fish and Wildlife Program and the Northwest Power Plan as adopted by the Northwest Power Planning Council. 39. The city and county shall recommend to the State Transportation Commission that the Deschutes River from below Wickiup Dam downstream to the first COI diversion, and from Sawyer Park north to the county line be included in the State and Federal Scenic Waterways Programs. 40. The city and county shall support the designation of appropriate segments of Fall River, Little Deschutes River, and Crooked River as state and/or federal scenic waterways. 41. Support the creation of a nonprofit, private organization that would take a complementary role in the acquisition of property to further the goals of preserving areas for the scenic, recreational, fish and wildlife values. 42. Buildings near the riverfront district should not constitute a physical barrier between the core and the river. 43. The city and county may require public access for any land use action adjacent to the Deschutes River and Tumalo Creek. Access sha-11 may be limited to foot traffic only; other non -motorized traffic may be negotiated by the city or county. [edited by BUAPC 11/3/971 44. The city and county shall include in all public access easement provisions addressing safety, security, vandalism, litter and any other maintenance concerns expressed by the landowner. The cooperation of the State Police and County Marine Patrol should be sought in working with these landowners and in maintaining the easement agreement. 2-18 NATURAL FEATURES AND OPEN SPACE \ • • • 0 • Bend Area General Plan 45. The city and county may accept by donation, fee title ownership for any riparian land for which public access is being required. If the city or county refuses to accept ownership, any required public access shall be waived. 46. The city or county may grant exceptions to the public access requirement where access would be near the nest sites of protected or sensitive wildlife species. In such cases, the city or county shall instead require a conservation easement to protect the nest sites from harassment and disturbance, using the assistance of the USFS, ODFW, and citizens knowledgeable of the nesting requirements of these species prior to drafting the easement. 47. The city and county shall request the Legislature to allow the County Assessors to recognize these public access easements in their assessment policies. 48. The visual impact of excavations or structures that will be erected or substantially modified along the rimrocks bordering the Deschutes River or Tumalo Creek shall be minimized. 49. Citizens groups, business associations, and private foundations and organizations should be involved in developing and implementing a greenway plan along the Deschutes River and Tumalo Creek. 50. The city and county shall support a riverfront development plan in conjunction with a county -wide greenway project. Q:\NEWPLAN2\CC_CHP2.DFT Drafted November 1996 Last Edit: September 22, 1998 .;.-44- ..y.;. NATURAL FEATURES AND OPEN SPACE 2-19 170 - 01'19 0 BEND AREA GENERAL PLAN CHAPTER 3: COMMUNITY CONNECTIONS TABLE OF CONTENTS PREAMBLE ........................... 1 GOALS............................... 1 OVERVIEW ........................... 2 . HISTORICAL FEATURES ................ 2 CULTURAL AMENITIES ................. 7 PARKS AND RECREATION .............. 8 PUBLIC EDUCATION ................... 13 Bend -La Pine School District Central Oregon Community College POLICIES ............................. 18 Historical sites Parks and recreation Urban trails Schools CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 C: • 170 •0180 Bend Area General Plan PREAMBLE Within the Bend Urban Area are many public agencies and private organizations that impact the governmental, educational, recreational, social and cultural l l aspects of our community. These agencies include state, county and city governments, Bend -La Pine School District and Bend Metro Park and Recreation District, social service and cultural agencies, historical preservation and art organizations, and others. The General Plan and related ordinances shall consider the interconnection among these agencies and organizations and their missions. [staff edit at direction of BUAPC] GOALS The topics in this chapter deal with history, culture, parks and recreation, and public education. Some of these topics are affected by forces that are outside the bounds of local land use planning. For example, there may be state rules that override local policies, and community cultural programs often change with the citizens' interests and support. For that reason, the goals below provide direction only for those topics that may be affected by land use planning: ❑ to encourage the preservation of historic and cultural resources within the urban area; ❑ to foster a sense of historic awareness among the citizens of the community; ❑ to expand the number and variety of cultural and artistic events venues held downtown and elsewhere in the community; ❑ to provide quality green spaces, natural areas, and recreation sites through public and private park land throughout the community; and ❑ to coordinate the development of future park and school sites to serve the expanding urban area population. COMMUNITY CONNECTIONS 3-1 170 0181 Bend Area General Plan OVERVIEW P: lari ing for a community is more than measuring the number of dwellings, the variety of jobs, or the miles of roads. The topics in this chapter describe other less tangible, but equally important, conditions that will shape the future of Bend. Primarily, the topics in this chapter affect the quality of life at a more personal rather than economic level for Bend urban area residents. However, the quality of our schools, parks, and cultural activities bolster the economic well-being of our community. The discussion below, and the policies at the end of this chapter, show how these topics fit into the comprehensive planning for Bend's future. [text added by staff at direction of BUAPC] HISTORICAL FEATURES end has a relatively short modern history, but a much longer Native American L history, going back thousands of years, as evidenced by the archaeological resources found along the river. While most archaeological resources have likely been destroyed within the urban area, there are a significant number of sites both north south o around the city that have been identified. [text change by BUAPC 12/8/971 3-2 COMMUNITY CONNECTIONS United States government scouts, such as John C. Fremont, and government survey teams explored Central Oregon in the 1840s and 1850s, but it was not until the 1870s that the first permanent settlement was established in the area. By 1877 a land claim was filed for the "Farewell Bend" ranch, located at the dramatic 90 degree bend in the Deschutes River just south of what is now downtown. A post office for the Farewell Bend settlement was applied for in 1886, and granted that year under the name of Bend. In its earliest days, Bend was a small • • • 170 • 0182 Bend Area General Plan trade center for the agricultural and ranching operations to the east and north. Shortly after the turn of the century, East Coast developers formed the first irrigation companies in the area, and construction was begun on several large canals and dams needed to take water out of the Deschutes River to irrigate the high, dry desert. The main canals are still in operation today, and snake through Bend as they carry water to agricultural lands as far away as Madras, 40 miles to the north. The City of Bend was incorporated in 1905, with a population of about 500 persons. In the next decade, two events changed the direction of Bend for the next half century. In 1911 the Oregon Trunk Line Railroad coming south from the Columbia River was completed to Bend. The railroad created a new lifeline to move people and products in and out of Central Oregon. Four years later, two large Minnesota lumber companies, the Shevlin- Hixon company and the Brooks - Scanlon company, announced plans to build large sawmills Figure 4. Shevlin-Hixon mill on east side of river as seen from Brooks -Scanlon mill on each Photo courtesy of Deschutes County Historical Society side of the Farewell Bend stretch of river. The railroad and lumber mills created an explosion in Bend's population and increased the number of residents to more than 5,000 persons by 1920. These same forces led to a COMMUNITY CONNECTIONS 3-3 ,, f ► � � y- f �,T�G/fir - _ - sawmills Figure 4. Shevlin-Hixon mill on east side of river as seen from Brooks -Scanlon mill on each Photo courtesy of Deschutes County Historical Society side of the Farewell Bend stretch of river. The railroad and lumber mills created an explosion in Bend's population and increased the number of residents to more than 5,000 persons by 1920. These same forces led to a COMMUNITY CONNECTIONS 3-3 1700183 Bend Area General Plan 0 tremendous growth in commerce and housing that is still evident today in much of downtown and older residential areas west and south of downtown. As a result, many of the historic buildings and structures listed in the city's inventory of historical buildings and places are direct products of the boom period of the first part of the 20th century. The Bend area history is recorded by the Deschutes County Historical Society. This organization maintains and operates the Des Chutes Historical Center in the old Reid School building at the south end of downtown. The Historical Society assists the city and county in their efforts to assess, record and preserve historic and cultural sites within the urban area. Such efforts are important because: ❑ public awareness of Bend's historical and cultural background has been and will. continue to be an important source of knowledge, pride, education, and enjoyment for visitors and residents; ❑ rapid growth and development make it imperative that the city's historical and cultural resources be identified and protected; and ❑ properly restored and utilized historical and cultural resources enhance the economy of the area. 0 Oregon Administrative Rules describe how local historic resources are to be evaluated, and the rules establish certain standards for historic resources of "statewide significance" and property owner notification. Table 2 on the next two pages lists the historic structures and sites that played a part in the growth and development of the Bend urban area. 3-4 COMMUNITY CONNECTIONS • u Bend Area General Plan,,,. Table 2 Inventory of Historic Sites in the Bend Urban Area HISTORIC STRUCTURES H. E. Allen House LOCATION 875 Brooks Street Bend Athletic Club Gymnasium* 520 NW Wall Street Bend Railroad Depot 1160 NE Division Street Bend Water & Light Co. Powerhouse/dam Foot of Vermont Street Bend Woolen Mill 1854 NE Division Street Brooks Scanlon Craneshed building 721 SW Industrial Way Mill "A" building 805 SW Industrial Way Charles Boyd Homestead* 20410 Bend River Mall Drive Cory Hotel 327 NW Greenwood Avenue Deschutes County Library Building* 507 NW Wall Street Delaware Grocery 845 NW Delaware Avenue Downing Hotel 1033 NW Bond Street Trinity Episcopal Church* 469 NW Wall Street First Presbyterian Church 157 NW Franklin Avenue A.L. French Home 429 NW Georgia Avenue Hoover's Universal Garage 124-128 NW Greenwood Avenue Steidl and Tweet irrigation dam Division St. near Yale Avenue Kenwood School 701 NW Newport Avenue Keyes House 912 NW Riverside Boulevard Liberty Theatre 849-851 NW Wall Street Lucas House 42 NW Hawthorne Avenue Thomas McCann House* 440 NW Congress Street Mountain View (Mayne) Hospital 515 NW Kansas Avenue August Nelson Building 838 NW Bond Street Niswonger House 44 NW Irving Avenue O'Donnel Building 921-933 NW Wall Street Old Clinic 731 NW Franklin Avenue Old Bend High School Building* 520 NW Wall Street O'Kane Building* 115 NW Oregon Avenue George Palmer Putnam House 606 NW Congress Street Pierson Blacksmith Shop 211 NW Greenwood Avenue A. J. Tucker Blacksmith Shop 200-202 NW Greenwood Avenue James E. Reed House 45 NW Greeley Avenue Reid School* 129 NW Idaho Avenue Evan A. Sather Home* 7 NW Tumalo Avenue Sawyer House 434 Drake Road St. Francis Catholic Church 494 NW Lava Road Shevlin-Hixon Executive House 545 NW Congress Street • COMMUNITY CONNECTIONS 3-5 IV Bend Area General Plan Table 2 Inventory of Historic Sites in the Bend Urban Area HISTORIC STRUCTURES LOCATION N.P. Smith Pioneer Hardware Building* 935-937 NW Wall Street Spheir Building 901 NW Bond Street Stover House* 1 Rocklyn Road Old U.S. Post Office* 777 NW Wall Street John I. West Building 130 NW Greenwood Avenue Wright Hotel* 215 NW Greenwood Avenue SITES DESIGNATED WITH PLAQUES LOCATION 1813 Rock 129 NW Idaho Street Bend School Landmark Drake Park A.M. Drake Homesite Drake Park Foley Landmark Pilot Butte State Park Johns Landmark Drake Park Oregon Trunk Freight Warehouse Site Railroad tracks & NW Division Pilot Butte Inn Site 1133 NW Wall Street Shevlin-Hixon Mill site Shevlin Center near dam Central Oregon Pioneers' Landmark Pioneer Park Weist Homesite Landmark 1315 NE Third Street * Sites on the National Register of Historic Places The items in this table represent the city's official list of historic places compiled by the city and county, and approved by the Oregon Land Conservation and Development Commission. Any land use action or building modification to the historic structures on the approved list must be reviewed and approved by the joint city/county Historical Landmarks Commission, a citizens committee established in 1980. Additional information and evaluation of historic sites is contained in resource material available at the city and county planning departments, the Des Chutes Historical Center, and in rules adopted by the state Land Conservation and Development Commission. 3-6 COMMUNITY CONNECTIONS • • 0 Bend Area General Plan CULTURAL AMENITIES Central Oregon's abundance of scenic and recreational amenities is complemented by a rich and diverse cultural climate of theater, music, and art in Bend. Performing arts can be seen throughout the year at the Community Theatre of the Cascades in downtown Bend. The Community Theatre has been putting on professional caliber productions since the early 1980s. In addition, the Central Oregon Community College Magic Circle Theatre is the venue for both college and community programs. There is also interest in the community to renovate the downtown Tower Theater building so that it can be used for lectures, concerts and other community events. Bend hosts one of the state's leading music festivals in Drake Park along the banks of the Deschutes River. Each summer the Cascade Festival of Music presents ten days of classical, pops, and jazz concerts that draws in performers and visitors from all over the country. The Munch & Music series of evening concerts in the park during the summer is another opportunity for the community to gather together to enjoy free music, fine food, and friends in beautiful surroundings. The community college Central Oregon Symphony, jazz band, and choir perform several times a year for area residents. The visual arts are represented with public art on street corners, at public buildings, and through exhibits at several public and private galleries in downtown Bend and elsewhere in the community. Several times each year the downtown merchants sponsor "Art Hops" when painters, sculptors, weavers and other artisans demonstrate their craft in the downtown stores. In addition to these amenities, the community supports other cultural events to celebrate cultural and ethic diversity in Central Oregon. Just south of the urban area is The High Desert Museum, a nationally renown, living, participatory museum with a wide variety of indoor and outdoor exhibits on nature, art, science, pioneer life, and Native American life on the high desert plateau. The museum also offers a year-round education program of classes, lecture series, and field excursions. •WL94 COMMUNITY CONNECTIONS 3-7 17U -0187 Bend Area General Plan PARK AND RECREATION FACILITIES The City of Bend has a long history of park development, beginning with the creation $ of Drake Park in 1921. Drake Park, the first of several parks along the Deschutes River, has become part of the identity and heart of the community. For decades Bend's citizens and visitors have enjoyed the many parks for their beauty, for sporting events, for community celebrations, and for casual recreation. Since 1974 all of the public parks and recreation facilities within the urban area have been developed and managed by the Bend Metro Park and Recreation District, a separate special PHOTO OF JUNIPER PARK OR PONDEROSA PARK TO BE INSERTED HERE Figure 5. district that serves the Bend area. The Park and Recreation District's Comprehensive Management and Development Plan assesses the district's services and operations, and establishes the framework for park and recreation planning within and adjacent to the Bend urban area. The objectives in the parks and open spaces section of the park district's Comprehensive Management and Development Plan have been incorporated as policies in this chapter of the Bend Area General Plan. The Bend Metro Park and Recreation District has almost three dozen park sites in the urban area, and more than 900 acres of park land in the urban area. The older neighborhoods in the west and central part of the urban area are generally well represented with parks that 3-8 COMMUNITY CONNECTIONS is • Bend Area General Plan • were developed before the 1970s. The parts of the urban area that experienced rapid residential growth in the 1990s have few developed park sites, although the district does have undeveloped park land on the east and north side of the urban area. In addition to the local park and recreation district facilities, Pilot Butte State Park—a volcanic cinder cone in the center of town with a commanding view of the urban area—is a favorite spot for residents and visitors. The Bend Metro Park and Recreation District also provides a large and diverse recreation and fitness program for Central Oregon residents. These programs offer a wide range of year-round activities for youngsters and adults. One set of programs, in cooperation with the local school district, provides after school activities and sports for school students. There is strong community interest in adding more park and recreation facilities to meet the ever increasing needs created by the expanding urban population. The Bend Metro Park and Recreation District Board has identified the following priorities for future development: ❑ new sports parks for children's soccer and baseball, and adult softball field; ❑ acquisition of riverfront park land and/or conservation easements; ❑ preserving and expanding the public and private trail system along the Deschutes River and Tumalo Creek; and ❑ development of neighborhood parks. • Figure 5A. Soccer at Harmon Park Photo courtesy of Bend Metro Park and Recreation District COMMUNITY CONNECTIONS 3-9 Bend Area General Plan The General Plan recommends the development of a trail system along the river wherever possible in an effort to provide public access to this outstanding natural feature. The park district already manages the 2'/z mile River Run trail at the north end of the urban area, and is working with property owners to develop other river trail segments. Several miles of riverfront trails also exist on private property, but are open to the public. In addition to the river trails, the General Plan recommends a system of recreation and transportation trails, which would interconnect neighborhoods, parks, and schools. More information on the urban area trails and a map of the trail system are included in Chapter 7, Transportation System. The Bend Area General Plan also supports and recommends a park and recreation system which would place a neighborhood park within walking distance of every residence in the community, as well as take advantage of natural sites within the area. There are many opportunities for new parks to be developed in conjunction with future school sites. The Bend Metro Park and Recreation District, the Bend -La Pine School District, and the city and county work together to coordinate the planning of park and school facilities to serve the growing urban population. A park facility located adjacent to a school has essentially the same service area as the school, and this approach to park planning has several advantages. The combined school and park make a year-round center for educational and recreational activities and allow each facility to be designed to complement the needs of both the park district and the school district. The coordinated school -park program may also afford an opportunity for cost savings to both districts. Besides eliminating some duplicate facilities, the coordination of siting new schools and parks could reduce the cost of acquisition, development, and maintenance of each type of facility. Table 3 on the next page provides a summary of the area's existing public park and recreation facilities managed by the park district and Oregon State Parks. The number and type of facilities planned by the Bend Metro Park and Recreation District through 2005 are also listed in the table. Figure 6 is a map of park sites in the urban area. 3-10 COMMUNITY CONNECTIONS is • • • • 170 - 0190 Bend Area General Plan Table 3 Public Park and Recreation Facilities in UGB and Urban Reserve TYPE OF FACILITY EXISTING FACILITIES (1996) PLANNED 1995-2005 Quantity Developed and Natural Acres Quantity Total Acres PARKS AND OPEN SPACES A. Neighborhood Parks 11 46.3 11 73.2 B. Community Parks 3 102.9 6 282.4 C. Metro / Regional Parks 2 655.9 (none) 0 D. Riverfront Parks 11 28.0 2 28.5 E. Sports Parks 2 35.0 2 195.0 F. Downtown / Urban Parks (none) 0 (none) 0 G. Mini -Parks / Pocket Parks (none) 0 (none) 0 H. Historic Sites 1 16.5 (none) 0 1. Greenway / Natural Areas / Preserves 2 6.8 (none) 0 J. Bikeways / Pathways / Trails 2 14.0 2 80.0 Total Parks and Open Spaces 34 905.4 23 659.1 RECREATIONAL FACILITIES EXISTING PLANNED Quantity Sq. Feet Quantity Sq. Feet A. Aquatic / Fitness Centers 1 22,000 1 40,000 B. Community / Recreation Centers 0 0 3 80,000 Total Recreation and Support Facilities 1 1 22,000 4 120,000 Source: Bend Metro Park and Recreation Distnct Comprehensive Management ana Development rian, City Planning Department parks and open space inventory COMMUNITY CONNECTIONS 3-11 173 - 019 Bend Area General Plan Figure 6 Developed Parks in the Bend Urban Area 3-12 COMMUNITY CONNECTIONS • • • 0 • 170 Bend Area General Plan More detailed descriptions and information on existing and planned park district facilities are in the district's Comprehensive Management and Development Plan. In addition to the facilities listed in the table and shown on the map, the Bend Metro Park and Recreation District has title to more than 1,100 acres in six sites outside the urban area. Existing developed and undeveloped park and recreation sites are shown on the General Plan Land Use Map. The Bend Metro Park and Recreation District has described the types and number of new facilities it thinks the community needs to develop during a ten-year period ending in 2005. Because the long-term, 20 -year park and recreation needs and corresponding locations have not yet been determined, the General Plan Land Use Map displays a symbol that represents the general location for future parks in those neighborhoods where a specific site has not been selected. As the Bend Metro Park and Recreation District updates its Comprehensive Management and Development Plan with new information on neighborhood parks or other facilities, the general symbol for future park sites on the Land Use Map will be replaced with specific demarcations. Until the 1998 update of the General Plan, neither the city nor the county had a separate zoning district designed to protect and enhance parks and public open space. The city and county now have a Public Facilities zone that is applied to developed park facilities, schools, public owned natural areas, and other types of open space. In addition to the public recreation facilities provided by the Bend Metro Park and Recreation District, there are six private golf courses within the Urban Growth Boundary, and two more just outside the Urban Reserve Area. Four of the courses within the urban area are currently open to the public. Besides providing recreational opportunities for residents and visitors, these golf courses serve a secondary role of providing some of the "large developed" open space within the urban area. PUBLIC EDUCATION he sections below describe the existing and planned public education facilities in the urban area. In addition to the public school system, there are several private and > parochial schools that provide elementary and secondary education. COMMUNITY CONNECTIONS 3-13 Bend Area General Plan The Bend - La Pine School District The Bend -La Pine School District is the only public school district serving the urban area. At the end of the 1990s, the district operated nine elementary schools, three middle schools, two high schools, and several small special "magnet" programs within or adjacent to the Urban Growth Boundary. These schools serve the Bend urban area and several thousand households outside the urban area. Roughly two-thirds of the students in the Bend schools are from within the urban area. In addition to the Bend schools, the district has schools in Sunriver and La Pine that served about 1,650 students in 1997. [added by staff 7/98] During the high growth period of 1988 through the 1997, enrollment in the Bend schools increased almost 48 percent. This dramatic increase in students is another indicator that the majority of people moving to Central Oregon are not elderly, but younger families with school age children. Figure 7 shows the increase in total enrollment in the Bend schools for the ten year period ending in 1997. Figure 7 Bend Area Public School Enrollment 12000 11000 c2 10000 CD 9000 W N 8000 Y 7000 6000 88 89 90 91 92 93 94 95 96 97 Year Source: Bend-LaPine School District 3-14 COMMUNITY CONNECTIONS 0 • • • • is a Bend Area General Plan In the early 1990s the Bend -La Pine School District constructed two elementary schools and one middle school to meet the rapid population growth. These new schools were above or near their maximum enrollment capacity within a year or two after they opened. Table 4 below compares the student load in 1997 with the design capacity of each school. Table 4 Bend Urban Area Public School Facilities Site Number of Maximum Enrollment Percent of Facilitv Name Grades Acres Classrooms Enrollment in 10/97 Capacity Bear Creek Elem. K-5 37.40 25 681 571. 84% Buckingham Elem. K-5 20.50 24 662 634 96% Elk Meadow Elem. K-5 13.00 24 650 702 108% Jewell Elementary K-5 16.74 24 675 596 88% Juniper Elementary K-5 30.41 24 675 551 82% Kenwood Elem. K-5 4.17 17 423 380 90% Kingston Elementary K-3 3.00 9 166 192 116% Lava Ridge Elem. K-5 40.00 24 650 671 103% Thompson/Amity Creek Elementar,� K-3 1.40 8 156 272 174% Cascade Middle 6-8 34.37 38 757 755 100% High Desert Middle 6-8 85.00 39 800 869 109% Pilot Butte Middle 1 6-8 33.13 1 39 825 963 117% Bend High 9-12 68.00 72 1432 1528 107% Mountain View High 9-12 30.00 62 1322 1730 131% Source: Bend -La Pine School District. Acreage figure may include additional land held by the district. Classroom number includes modular units. COMMUNITY CONNECTIONS 3-15 170 -0195 Bend Area General Plan In October 1997, the school board accepted a school siting study prepared for the district in cooperation with the city and county. This study provides information on enrollment, siting needs, and other factors to help the district determine the type, location, and size of school sites needed during the next 20 years. [new text by city staff, 1/98] The school district's estimate of future enrollment levels and school needs is based on the forecast population levels in the urban area and nearby rural lands. Figure 8 shows the 1995 student levels and the forecast enrollment level for the public schools based on the 1997 siting study. It can be Source: Bend -La Pine School District, 1997 seen from the data in this figure that total enrollment in the Bend area public schools is expected to increase about 45 percent by the year 2015. If the population growth and demographic patterns follow the forecasts in the 1997 study, there will be a need for three to five additional elementary schools, two to three new middle schools, and one or two new senior high schools or technical schools in the planning area by 2015. In 1998 local voters approved a $57 million bond levy to help meet the need for more schools. The bond will pay for construction of a new elementary school, a new middle school, a new high school and remodeling Bend High. [new text added by city staff 5/98] 3-16 COMMUNITY CONNECTIONS • • • Figure 8 Bend Public School Enrollment Forecast `s 20000 High/Technical----------- 15000 Middle Elementary k m -a 42 100 00 N 5000 : Z' I' i' I i' T MILEC' 1995 2000 2005 2010 2015 Year school sites needed during the next 20 years. [new text by city staff, 1/98] The school district's estimate of future enrollment levels and school needs is based on the forecast population levels in the urban area and nearby rural lands. Figure 8 shows the 1995 student levels and the forecast enrollment level for the public schools based on the 1997 siting study. It can be Source: Bend -La Pine School District, 1997 seen from the data in this figure that total enrollment in the Bend area public schools is expected to increase about 45 percent by the year 2015. If the population growth and demographic patterns follow the forecasts in the 1997 study, there will be a need for three to five additional elementary schools, two to three new middle schools, and one or two new senior high schools or technical schools in the planning area by 2015. In 1998 local voters approved a $57 million bond levy to help meet the need for more schools. The bond will pay for construction of a new elementary school, a new middle school, a new high school and remodeling Bend High. [new text added by city staff 5/98] 3-16 COMMUNITY CONNECTIONS • • • 170 - 0196 Bend Area General Plan Identifying the location for new public schools is an important function of the General Plan. The need for new schools is closely related to residential development and housing densities in the community. It is extremely important that schools be located with reference to the development pattern indicated on the General Plan. Elementary schools in particular can have a significant influence on the location or direction of growth in any given area, and will in themselves attract residential development. They should be centrally located in their service area, and spaced in a way that will permit reasonable locations for future schools as the area continues to grow. The city, county and Bend -La Pine school district will use the i997 siting study and ather studies most recent studies to evaluate ways to ensure the timely development of new schools in the urban area. [City Council change 7/15/98] Central Oregon Community College Central Oregon Community College is the state's oldest two-year college, having been created in 1949. Located on the west slope of Awbrey Butte, the 200 acre campus features a 102 student residence hall, a 38,000 volume college/community library, a 300 -seat performing arts center, and several lecture halls. The college has a long-standing policy to encourage community use of its buildings and facilities. The college enrolls about 3,200 full-time and part-time students each term, plus another 3,000 to 4,000 community education students taking non-credit courses. Degrees offered by COCC include the Associate of Arts degree, the Associate of Science degree, and the Associate of Applied Science degree covering several technical and professional fields. The college serves more than just the Bend area, and its instructional programs extend to a 10,000 square mile service area through a network of community centers in Christmas Valley, La Pine, Madras, Prineville, Redmond, Sisters, and Warm Springs. In a cooperative arrangement with public and private colleges and universities, the Central 0 9194 COMMUNITY CONNECTIONS 3-17 17® Bend Area General Plan is Oregon University Center at COCC offers both bachelor's and master's degrees in Bend through traveling professors and video computer. Because of the great interest in the region for a local college that offers bachelor's and master's degrees, the college board and members of the community have set a goal to expand Central Oregon Community College into a fully accredited four year college. POLICIES Historic sites 1. The city shall encourage the preservation, rehabilitation, and reuse of historic structures whenever practical. [BUAPC addition 12/8/97] 2. The `city andcountywill continue to encourage identification and preservation of significant historical and cultural sites. 3 . The preservation of exterior facades shall be the emphasis of the city's and county's encouragement of historic preservation. [rewording by BUAPC 12/8/97] 4.Publie edneation and involvement will be prornoted i • Bend's. [deleted by BUAPC 12/8/97 and replaced by 4A] 4A The city and county will encourage public educational institutions to promote the importance of Bend's history and historic landmarks. [added by BUAPC 12/8/97] Parks and recreation facilities 5. The Bend Metro Park and Recreation District, with the support of the city and county, shall ensure an equitable distribution of parks and open spaces throughout the District's jurisdiction. [text added by BUAPC 12/8/97] • targeted,f,. The Bend Metro ark and Recreation District shall acquire parks and. open spaces ino advance of need. The Distriet shall identify "park defieient" areas of the for and accept land donationsZvt7A reerea r space pote [deleted by BUAPC 12/8/97 and replaced by 6A. 6A. The Bend Metro Park and Recreation District shall identify "park deficient" areas of the community and shall acquire park and open space property in these areas. 3-18 COMMUNITY CONNECTIONS • • 170 - -0198 Bend Area General Plan [added by BUAPC 12/8/97] 7. The Bend Metro Park and Recreation District shall design parks and facilities that: excel in performance, function, image and affordability; facilitate social gathering opportunities and provide a balance of active and passive recreational opportunities, with an emphasis on multiple use and park "basics," including picnic areas, play areas, and multi -use turf and courts; and are good neighbors to adjacent properties. 8. The Bend Metro Park and Recreation District shall provide comprehensive sports complexes at dispersed locations throughout the community. 9. The Bend Metro Park and Recreation District shall orient riverfront parks to the river and to the riparian values of the river corridors. 10. The Bend Metro Park and Recreation District shall employ "soft" engineering practices when developing or revitalizing park sites, utilizing on-site storm water swales and retention ponds rather than piping water off-site, and shall restore wetland whenever possible. 11. The Bend Metro Park and Recreation District shall include operation efficiency, patron safety, and barrier -free access when designing or revitalizing park sites. 12. When it is consistent with the needs identified in the Park and Recreation District's Comprehensive Management and Development Plan, park land may be acquired from a willing developer during the land subdivision process. 13. The city, county and Park and Recreation District shall develop a new zone for public parks and recreation facilities within the planning area. . 14. The city —n d-eotmty shall support efforts by the Park and Recreation District and Bend - La Pine School District to jointly develop school -park sites to meet neighborhood park and school recreation needs. 15. The Park and Recreation District shall strive to develop neighborhood parks or community parks within a convenient distance V2 mine of every residence in the community. [text changed by BUAPC 12/8/97; changes reversed by CC 7/15/981 0 COMMUNITY CONNECTIONS 3-19 170 0199 Bend Area General Plan 16. Sites for small neighborhood parks are not shown on the Land Use Plan Map, but the city and county shall encourage private or public parties to develop small neighborhood parks. inay be developed by private or public parties as`part of residential [BUAPC changes 12/8/97; additional deletion by CC 7/15/98] Urban Trails 17. The city, county, irrigation companies, state and park district shall work together to develop a series of trails along the Deschutes River, Tumalo Creek, and the major canals so that these features can be retained as an asset in the urban growth boundary and urban reserve area. 18. The city and cou rty shall work with the irrigation districts to limit development within the canal easements that would impair the maintenance and operation of the canals. 19. The trails designated on the Bicycle and Trail System map shall be the basis for developing a trail system that serves the recreational and transportation needs of the community. 20. The city and , when pracitcal, shall, when prac , require connecting links to the urban trail system from all adjacent new developments. They shall reqUn e new ts afl(s) to the standards in the h ail plan fa, pnblic as . [changes made by BUAPC 12/8/97; additional changes and deletion made by City Council 7/15/98] Schools 21. The Bend -La Pine School District shall participate in providing necessary street, pedestrian, and bike facilities adjacent to the school sites as new schools are erected. 22. When a majority of a school's expected attendance will reside within the UGB, the Bend La- Pine School District shall make every effort to construct such school(s) within the UGB where students can walk to the school. 23. The cityand-county shall require major new developments to reserve land for school purposes in conjunction with the Bend -La Pine School District's adopted plan for the type and location of future facilities. 00000 QANEWPLAN2\Pc_cxP3.DFT First Draft: January 1997; Last Edit: September 23, 1998 3-20 COMMUNITY CONNECTIONS L-] • 170 - 0200 0 BEND AREA GENERAL PLAN CHAPTER 4: POP ULA TION AND DEMOGRAPHICS TABLE OF CONTENTS GOALS................................ 1 OVERVIEW ............................ 1 Population history Growth during the 1990s Age distribution Persons per household Education Income levels FORECASTS ........................... 11 Population Demographics POLICIES .............................. 15 y CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1995 • • go UZ Bend Area General han GOALS Amajor goal of the land use planning process is to insure that there is sufficient land ; within the urban area for housing, for business and industry, for public services such as parks and schools, and an adequate transportation system to serve those needs. The forecast growth and change in the urban area population is an important component in determining these land use needs. It is a goal of the city and county to use and evaluate the best historic information and expert forecasts in preparing this chapter. Regular updates of population and demographic information will be conducted to keep these forecasts current. OVERVIEW County, like the rest of the state, experienced cycles of population growth tied to economic conditions. Even though Central Oregon's rate of growth has been high, the actual number of new residents has been low compared to the Willamette Valley. For example, before World War II, Bend was the seventh largest city in the state; by 1995 it had slipped to thirteenth. As the population has grown, it also has become younger and more affluent, conditions that can be traced in part to the expansion of the local outdoor recreation businesses and the in -migration of "baby - boomers" from California and the Northwest. POPULATION AND DEMOGRAPHICS 4-1 Bend Area General n �NWAIds Population history Historically, the City of Bend population made up about half of the Deschutes County population. This changed in the 1960s when thousands of rural recreational lots and suburban lots were platted in the county outside of urban areas. Much of the county population growth in the 1970s and 1980s was driven by persons seeking open space rather than urban lots. The adjacent chart shows the change in population since the Figure 9 City and County Population Change 80000 -- ------------------------------------- 70000 —A city ' --------------- All County 60000 50000 q----------- -------- ------------- 40000 a' - ------------------ 30000 20000 10000 --------------------------- -- ---- --------- n 0 1940 1950 1960 1970 1980 1990> Census Counts Source: U.S. Census reports for Oregon 1940 census. The late 1980s marked the swing out of a recessionary period in Central Oregon and into better economic times. Bend's expanding role as the regional trade and service center, combined with its attractiveness as a year-round tourism and recreation area, fueled another surge of population and employment growth. Growth during the 1990s The 1990 census counted 20,450 persons within the city limits. The population within the county portion of the urban areas was estimated to be 12,100 based on census tract data for the "Bend District," for a total of 32,550 persons within the UGB. By July of 1997 the city population was 33,740 persons—up almost 13,400 persons since the 1990 census—although about one-quarter of the city's increase during this period was due to annexations. In this same seven-year period the population i a the county's portion of the urban area also increased dramatically, although the actual number of residents within • w 4-2 POPULATION AND DEMOGRAPHICS • 940 Bend Area General Plan the county portion of the urban area stayed about the same due to annexations. The July 1997 total for the Bend Urban Growth Boundary was calculated at about 44,400 persons. [population data in paragraph updated to 1997 data by staff 9/981 With an increase of almost 12,000 persons in seven years, the rate of growth in the urban area during this time was more than twice the statewide average. To put this increase in perspective, by the end of 1997 one out of four Bend urban area residents did not live in the area in 1990. [population data updated to 1997 by staff 9198] The growth pressures in the 1990s affected not only Bend, but all of Central Oregon. Between 1990 and 1997 Deschutes County was the fastest growing county in the state, and Jefferson County was third. Although the total Deschutes County population increased by more than 25,000 persons in seven years, the growth pattern in the 1990s was different than the previous boom in that most of the new residents settled in the urban areas. Table 5 below shows where county residents lived in 1995, the last year data was available for all three urban areas. [county population data updated by staff 9/98] Table 5 County Population Distribution in 1995 Jurisdiction July 1995 Population Total County Population 94,100 Bend UGB 39,720 Redmond UGB 12,590 Sisters UGB 940 Total urban Population 53,250 Total non -urban population 40,850 Source: City and County Planning departments and Portland State University Center for Population Research and Census. Aae Distribution Demographic information from the U.S. Census is available for the city, but not for the urban area as a whole. It is assumed that the demographics for the urban area population are POP ULA TION AND DEMOGRAPHICS 4-3 Bend Area General Plan similar to those of city residents. Table 6 compares the age distribution in four broad groupings for the city population since the 1960 census. The 1990 census data are also compared to the county and state populations, and shows that the city population was younger than the overall county and statewide population averages. Table 6 Comaarison of Bend Age Groupings Over Time Age Range City of Bend 1960 1970 1980 1990 County 1990 Statewide 1990 Age 0-24 43.2% 43.5% 42.7% 35.3% 33.1% 34.9% Age 25-44 24.4% 22.6% 31.6% 36.3% 32.8% 32.6% Age 45-64 21.8% 22.3% 15.2% 14.9% 20.2% 18.6% Age 65+ 10.6% 11.6% 10.5% 13.5% 13.9% 13.8% Source: U.S. Census reports and Portland State University Center Tor Population Kesearcn and Lensus As Table 6 and Figure 10 show, the biggest group of residents in Bend in 1990 was the post World War II "baby- boomer" generation —those persons aged 30 to 44 in 1990—followed by their children. Source: U.S. Census of Population and Housing, 1990: Summary Tape File 3 4-4 POPULATION AND DEMOGRAPHICS Deschutes County was one of the fastest growing counties in the state in the 1990s. Through the first half of the 1990s, about 88 percent of the increase was from "in- migrants"—people moving in from other areas. Based on driver's license data, more than half of the 17� • Bend Area General Plan new residents were from California, a higher rate than the statewide average. Similarly, most of the increase in the Bend UGB population since 1990 is attributed to in -migrants. Even though most of the population growth was in -migrants, it does not mean that the new residents were elderly or retired. A comparison of the first half of the 1990s to the previous decade is shown in Table 7. Table 7 t_ountv ro uiation u an a ana in -m>< rat><on Time Period Population h n Natural Increase In -Migration All A In -Migration . ALYes 0-64 In Migration 'A 65+. 4/1/80 -7/1/90 +13,458 4,878 (36%) 8,580 (64%) 4,990 3,590 4/1/90 - 7/1/97 +26,242 3,301 (13%) 22,941 (87%) 21,095 1,846 Source: Oregon Employment Department and Portland State Umversity Center Tor Population Kesearch and Census Even though the number of in -migrants in the first seven years of the 1990s was more than two and one-half times that of the previous decade, the number of elderly new residents was about one-third of the number in the 1980s. Only 8 percent of the persons moving into Deschutes County between 1990 and July 1997 were age 65 or older, compared to a statewide rate of 11 percent during the same period. The youthfulness of the new residents in the area is supported by the fact that the Bend -La Pine School District's K-12 enrollment increased 52.1 percent between the 1988 and 1997 school years. More information on public school enrollment levels and forecasts is in Chapter 3, Community Connections. [Table 7 and preceding paragraph updated to 1997 data by staff 7198] Persons per household The average number of people living in a dwelling, whether as a family or a household of unrelated persons, is a useful measurement to help forecast how many dwellings will be needed in the future. Figure 11 shows the percent of Bend households by number of persons for the past three census periods. Clearly, Bend is following a trend toward smaller household sizes as the percentage of one and two person households has increased as the percent of households with five or more persons has declined. . <r`; POP ULA TION AND DEMOGRAPHICS 4-5 Bend Area General Plan Source: U.S. Census of Population and Housing Although this trend toward fewer residents per dwelling is consistent with county and state trends, the average household size in Bend has consistently been lower than either the county or state averages. Table 8 compares the average household size for the state, the county and Bend since 1950. Table 8 Averaie Persons Per Household Area 1950 1960 1970 1980 1990 All of Oregon 3.1 3.1 3.0 2.6 2.6 Deschutes County 3.2 3.1 3.0 2.7 2.6 City of Bend 3.0 3.0 2.9 2.5 2.4 Source: U.S. Census reports for Oregon 4-6 POPULATION AND DEMOGRAPHICS is • Bend Area General Plan Education As reported in the 1990 census the education levels in Bend were a few percentage points higher than the county averages as a whole and the statewide averages. For those Bend residents aged 25 or older at the time of the 1990 census, 85.3 percent had high school degrees or higher, and 23.0 percent had bachelor's degree or higher. Many of the new jobs created in the urban area in the last part of the 20th century have been skilled or professional jobs in the service sector, finance, research, government, and manufacturing. This fact, combined with evidence from state surveys that a number of persons moving into the area have some college education, suggests that the percentage of education levels in the community will continue to increase. Additional information on education services and programs is contained in Chapter 3, Community Connections. Income levels Income levels for Bend families and households from the 1990 census are shown in Table 8A. Bend income levels increase fairly dramatically when additional family members are working in part -or full-time jobs. More than 60 percent of the Bend families had two or more workers. According to the census, income levels in Bend were generally a little lower than the overall county averages. Table 8A Income Levels in Bend (1989 dollars) Household Category Average for 1989 Percent of Total. Household $31,093 Family with no workers $22,064 12.7% Family with 1 worker $27,918 25.5% Family with 2 workers $42,452 51.8% Family with 3+ workers $52,288 10.0% All Families $37,134 100% Source: U.S. Census of Population and Housin¢. 1990: STF 3 POP ULA TION AND DEMOGRAPHICS 4-7 Bend Area General Plan The age groups with the lowest income levels were typically younger individuals and families, and older retired persons. Part of the lower average income levels in Bend may be due to the higher percentage of younger residents and smaller household sizes. Table 8B shows the income levels of households by several age groups. Table 8B Householder Aze by Income Levels 1989 Gross Income 15-24 - 35-44 - -64 - 75+ $0-$9999 26.3% 10.0% 7.5% 6.3% 16.8% 23.4% 35.5% $10,000-$24,999 49.5% 34.1% 28.5% 20.0% 27.4% 39.0% 46.5% $25,000-$34,999 16.6% 30.0% 20.9% 15.3% 24.7% 17.9% 8.9% $35,000-$49,999 7.6% 16.6% 21.1% 21.7% 17.3% 13.2% 2.5% $50,000 and up 0.0% 9.3% 36.7% 22.0% 13.9% 6.4% 6.6% Columns read down 1 100% 1 100% 1 100% 1 100% 1 100% 1 100% 100% Source: US Census of Population and Housing, 1990: STr 3 A related measure of income levels is the number of persons below the poverty level. Poverty levels reported in the 1990 Census are determined by comparing local incomes to a national standard of 48 income thresholds tied to the number and age of persons in Source: US Census of Population and Housing, 1990: STF 3 4-8 POP ULA TION AND DEMOGRAPHICS the household. The national standards are not adjusted for state, regional, or local cost of living variations. Figure 11A, using 1990 Census data, shows the relationship of persons in three broad age groups to the national poverty standards. Although the percentage of persons "below poverty" was higher than the county as a whole, it is interesting to note that the percentage of Bend residents receiving public assistance in 1990 was less than half the 0 40 V r.;Ua: Bend Area General Plan city's poverty level percentages. This difference may be due, in part, to the number of students and young recreational enthusiasts in Bend that generally have lower incomes. Figure 11B provides detail on the number of persons above or below poverty. Source: 1990 Census of Population and Housing, 1990: STF 3 While Figures 11A and 11B show the relationship of Bend residents to the poverty levels, they do not show the magnitude of incomes below or above the poverty levels. Table SC on the next page shows the levels by which Bend residents were below or above poverty in 1990. POPULATION AND DEMOGRAPHICS 4-9 Figure 11 B Poverty Status by Age 3500 :% Below Poverty Above Poverty r 3000 a 2500 p2Doo:::::::.::.. o. 1500 1D00 500 0 .. . 0-11 12-17 16-24 25-34 35-44 45-54 55-64 65-74 75+ Age Groups f ....n4ki.2t'o+:4:2•:v:S.?.`w"a'uws�.'$$i'7e.�lLtiLvife:�:.:tr�£'•'.7'FAY:9.iSb::.'e°uC+a4+:'vu:Ef.GdM.adin>J66�.G4fv.CL�+.w�1v Source: 1990 Census of Population and Housing, 1990: STF 3 While Figures 11A and 11B show the relationship of Bend residents to the poverty levels, they do not show the magnitude of incomes below or above the poverty levels. Table SC on the next page shows the levels by which Bend residents were below or above poverty in 1990. POPULATION AND DEMOGRAPHICS 4-9 U41U Bend Area General Plan Table 8C Income Level in relation to Poverty Level Ratio of income to Poverty in 1989 Number of Persons Percent of Total._ Population Less than .50 1,062 5.3% .50 to .74 676 3.4% .75 to .99 899 4.5% 1.00 to 1.24 791 3.9% 1.25 to 1.50 773 3.8% 1.50 to 1.74 1,246 6.2% 1.74 to 2.00 1,027 5.1% 2.00 and More 13,574 67.7% Source: US Census of Population and Housing, 1990: 5 l r 3 Both before and after the 1990 Census was taken, county income levels have shown a steady rise. The average income levels of county families and households increased almost 6 percent a year between 1984 and 1995, a rate faster than the statewide averages. Since Bend is the major employment center in the region it is assumed that income levels within the urban area more or less follow the county -wide patterns. The diverse and expanding economy in Bend provides a wide range of job possibilities, including entry level jobs in the trade and services, which allows young people and additional family workers access to jobs. Also, according to the 1993 Oregon in -migrant survey, new workers averaged eight years of work experience, which points to a growing pool of skilled workers. The Department of Housing and Urban Development estimated the county 1997 median family income at $38,900 — more than four thousand dollars above the average for non - metropolitan areas in the state. Since the last half of the 1980s the per -capita income levels in Deschutes County have steadily increased to match the state average. Even more interestingly, the county income levels have been above the Eugene, Medford, and Salem metropolitan areas since the early 1980s. 4-10 POP ULA TION AND DEMOGRAPHICS • • • Bend Area General Plan The leading source of personal income for residents in Deschutes County is the category referred to as "dividends, interest, and rent," which basically is income from investments. Income from this category has climbed to a level of about 21 percent of the total county income from all sources. The percentage of income from dividends, interest, and rent in this source has consistently been three to five percentage points higher than the statewide average since at least the mid-1970s. The relatively high percentage of income from dividends, interest, and rent is an indicator of economic stability and education levels within the county. FORECASTS S„ everal public and private organizations have prepared population and demographic ' forecasts for the county or region as a whole, but no independent forecasts have been prepared for the Bend urban area. Recent forecasts have been prepared by: ❑ the Oregon Department of Transportation (1993) — county population and employment forecasts through 2012; ❑ the Portland State University Center for Population Research and Census (1993) county population and age forecasts through 2010; and ❑ the Oregon Office of Economic Analysis (1997) — county population and employment forecasts through 2040. These forecasts were used by the city and county as guides in the coordination of county- wide population forecasts, and the preparation of the urban area population forecast. Population All of these forecasts predict continued higher than average growth rates for Deschutes County until early into the 21st century, followed by slower growth rates. Like the statewide and county forecasts, the urban area population is expected to continue rapid growth until about 2005, and then experience a slower rate of increase through the remainder of the planning period. The Bend urban area population is forecast to be 68,775 persons in the year 2020. Figure 12 shows the forecast in five-year increments. As noted earlier, the various population forecasts all predict a significant increase in the total population during the 1990s and into the next century. •XX POPULATION AND DEMOGRAPHICS 4-11 .w Bend Area General Plan 1990 1995 2000 2005 2010 2015 2020 Years e}:; hF� M'6L,--'.. '.•}h} }.:•F••.: ;. �• .>•., •e � ax_ {.,.�^.,. ..�,aa:--w rlrw '•;r,: ;. x:.•t Source: City of Bend Long-range planning The county and three cities have worked together to coordinate population forecasts for all three urban areas and the non -urban portion of the county. This forecast is based on an analysis of expected density levels, vacant lands, buildable lots, environmental constraints, and state regulations. Although additional development will occur in rural subdivisions and rural service centers, the majority of the new residents will settle in the three urban areas. The distribution of the population in the year 2020 is shown in Figure 13. As in the past, it is expected that most of the population increase will come from persons moving into the area. The Center for Population Research and Census at Portland State University further estimates that about 75 percent of the county -wide population increase through 2010 will be due to in -migration rather than a natural increase of births over deaths. This long term -percentage is slightly less than the early 1990s when almost 8 out of 9 new residents in the county were in -migrants. 4-12 POP ULA TION AND DEMOGRAPHICS • • u • Bend Area General Plan Source: Deschutes County Planning and city planning departments Demo -graphic In the early 1990s about 70 percent of the Bend population was less than 50 years old. The World War II baby -boomers made up the biggest bulge in the population pyramid (about 29 percent in 1990) followed by a plateau of baby -boomer children and grandchildren. In the year 2000 the baby -boomers will be in their early 40s to mid -50s age range, and by 2020 they will be in their 60s to mid-70s. The high percent of growth due to in -migrants affects the population age distribution. Even though the baby -boomer generation will make up part of the growth, an even larger portion of the new residents will be the baby -boomer children and grandchildren. This population growth due to younger people moving into the area will create a population age distribution that is contrary to the historic pattern of the baby -boomer peak followed by a plateau. Figure 14 is based on data in the Portland State University Center for Population Research and Census forecast for the county, and compares the age distribution to the year 2010. Since the population growth is so heavily influenced by in -migrants rather than expansion of the existing population, any forecast is highly speculative. POP ULA TION AND DEMOGRAPHICS 4-13 Bend Area General Plan Figure 14 Forecast County Age Groupings 12000 10000 8000 6000 4000 2000 O 0-4 -------- X----------- 1990 20-24 40-44 60-64 80-84 Age Ranges — �— 2000 -------------------- 2010 Source: Portland State University Center for Population Research and Census, July 1993 The large number of school age children and even larger number of young workers in the Center for Population Research forecast has significant implications for the Bend school system, for the economy and employment, and for the size and type of dwellings needed in the future. The U.S. Census reports for the years 2000 and 2010 will provide accurate data on the age of the urban area residents. POLICIES 1. The city shall review and update the urban area population forecast every five years. beginning in 1995 2000' [changed by BUAPC 12/8/97; changed by Council 7/15/98] 2. The city shall update income levels, household size, and other demographic information for the urban area after every U.S. census, or when other data for the urban area are available. 0000© Q:\N E W PLAN2\CC_C H P4. DF'r Drafted : mid-November 1996 Last revision or edit: September 23, 1998 • t 4-14 POPULATION AND DEMOGRAPHICS • 170 - 0215 BEND AREA GENERAL PLAN CHAPTER S: HOUSING AND RESIDENTIAL LANDS TABLE OF CONTENTS PREAMBLE ............................ 1 GOALS............................2 OVERVIEW ............................ 3 Historical housing supply Occupancy Household size The cost of housing Housing in the 1990s Gated communities and walled subdivisions FUTURE TRENDS AND FORECASTS ....... 12 Neighborhood livability New housing units Housing needs Housing affordability Housing density Land needed for new homes Land use categories POLICIES ............................31 Residential compatibility Neighborhood appearance Housing density and affordability Transportation connectivity Public utilities and services Destination resort siting • CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 • 170 - 021 Bend Area General Plan PREAMBLE .. 1r.14 011111. l.t" v11r.j!A"&vj Will Ova wativikows 101"AsimI IN toull iii 1 vii sposen . • 11 opwR , It .1 .1 1 - . 11 1 1 ;11t 1 t :.. •/ t1 r.w : t 1 �1.i liti i i.n. ..►:w. ir.l i or -.0 i'. t 1 t 11 It 1 - . . IYr .11 RIM immompwpwk 11 -000. wpwn Ron ouvippIkwww 1 • 111 .• 1!4 III 1�•/ t 1 r/ t t 1 1 . •1111 11III•ri ,I. boo1 ► ♦ . i t � � / • Ir /1 �1 � 1 •1/ • .w t .1 11 1 •1 11 1 1 No 1- r I villaiiii1,101 wlwgr.1 t 34 It. • , • f - 1 I . .1 t • • i i 11 .:11 • 1 . : / t t • "s i _ t - - i l I - - : w . i . 1 I t' - i i i t 1 1 ;1 ill I It t1.1 1W.11 1 i t t N ken IR:111 Pa•1/1 Is 111 :1 t1 t1 13 Now / r . I • :wl 1 i % 1 i 11 :.1 I if I pit] :11 It 111 Ross I Vol 11 - , ,Y. . t • . t t wt :1 - r11 - end offers a variety of living styles and residential choices. _Various housing outions are provided in different density levels throughout the city. Future housing when fanned with thou h ul street pattemy, consideration o natural features, and variety architectural styles will continue to promote safe, diverse and interesting neighborhoods. • &ig HOUSING AND RESIDENTIAL LANDS 5-1 -0 Bend Area General Plan A well designed transportation system is an important factor in designing new residential areas. It is these transportation links that help to tie new areas into the existing development pattern so the urban area functions more as a whole rather than as isolated parts. The transportation system must serve the neighborhood residents' interests, ages, and needs. Natural features such as rock outcroppings, draws, mature trees and natural vegetation are assets to the cornmunittil. Such features help to establish the character of a neighhorhood., Keeping such natural features in a development can also help break up the feel ' of increasing urban densities so Bend continues to feel like a small town. [Preface re -written by staff as per direction of City Council 7/15/98 because text was very similar to that in Goal section] GOALS hroughout the public workshops, visioning exercises, and committee meetings, one of the common themes was the desire to keep our neighborhoods livable. Bend will ' continue to offer a variety of living styles and residential choices, creating attractive neighborhoods located close to schools, parks, shopping and employment. It is a goal of the General Plan to accommodate the varied housing needs of citizens with particular concern for safety, affordability, open space, and a sense of community. A transportation system of streets, bicycle ways, and trails that connect our neighborhoods to schools, parks, shopping and employment and to other neighborhoods is an important factor in building and maintaining a sense of community. It is a goal that these neighborhood transportation linkages shall provide ways to move about the communi , ,and also create a positive community image through design elements that provide for safe and attractive neighborhoods. 5-2 HOUSING AND RESIDENTIAL LANDS • • • - vc-l:;iV: Bend Area General. Plan neighborhoods,J TV LLA. J_3V LUXU20Y . 1131,5A., C %J Vordhnam alau I C., V11%, TV WA UAVT L&%1V guided by the 6eneral Plan wiff help prornote diverse and interesting reduce costs, provide a moze efficient urban The need dor more housing in the urban area and the ever increasing rp ice of land can both work a ag inst preserving natural features in new developments. It is a goal that the General Plan policies and development standarals that promote more flexible and creative subdivision desijzns will help preserve natural features, while containing development within the Urban Growth Boundary. [edits by staff per general direction from City Council on 7/15/98] OVERVIEW major objective of the General Plan is to establish residential areas that are safe, convenient, healthful, and attractive places to live, and which will provide a . maximum range of residential choices for the people in Bend. One of the challenges facing the community as we move into the next century is how to plan for a variety of housing options in both existing neighborhoods and new residential areas that match the changing demographics and lifestyle of the residents. Just as the city and urban area population has had periods of rapid growth, so has the supply of housing grown to keep pace with the population. Bend has had three significant housing booms since it was incorporated in 1905. The first was in 1910-1920 when the big sawmills started up and Bend's population went from 500 to more than 5,000 in a few years. The second housing boom did not come for another 50 years when Central Oregon experienced a large in -migration of retired persons in the 1970s. The third, and biggest, of the housing booms hit the Bend urban area in the 1990s. Historical housin,- supplV The early burst of housing construction shortly after the turn of the century was needed to house the hundreds of new sawmill workers and their families. Most of these homes were constructed between downtown and the mills on either side of the Deschutes River. After this initial housing boom, construction slowed to more normal levels until the mid-1970s. HOUSING AND RESIDENTIAL LANDS 5-3 Bend Area General Plan Figure 15 and Table 9 show the change in housing numbers and the mix of housing types in Table 9 Mousing Starts for Bend by Decade Time Single Family Manufactured Attached PPrinrl Detached Homes Housing Totals 1970-79 the city during the 1970s, 1980s, 115 and 1990s. Housing data for the 2309 Figure 15 county portion of the urban area City Housing Starts 1970- 1997 was not collected until the late 1441 1980s, so comparable information o00 - - - . - - . for the whole urban area is not Totals 5167 596 3104 available. Figure 15 shows several 800 y -------------- ---------------------- housing trends within the city a soo -------------------------------- --- during a 28 -year period ending in 1997. First, the previous housing 400 H boom of the 1970s was small 200 r compared to 1990s. Second, 0 during a period of economic 70 72 74 76 78 80 82 84 86 88 90 92 94 96 decline in the mid-1980s very few Calendar Year homes and even fewer multi -family } units were constructed in Bend. ® Multifamily Single Family Third, multifamily units built in •�:.�:�:�.�:<:>:>..:r:<<W;x�:.:::�.�.:...�. r,.. ..,:..�:�.:.-:.:.:. Bend in the 1990s made up 36 Source: City of Bend Long -Range Planning Department percent of all the new starts within the city, more than twice the rate of the previous decade. Finally, as many dwellings were built in the first half of the 1990s as were built in all of the 1970s and 1980s combined. Table 9 divides this information into the three main housing types within Bend. Table 9 Mousing Starts for Bend by Decade Time Single Family Manufactured Attached PPrinrl Detached Homes Housing Totals 1970-79 1189 115 1005 2309 1980-89 1033 173 235 1441 1990-97 2945 308 1864 5117 Totals 5167 596 3104 1 8867 Source: U.S. Census and City of Bend building permit data. Attached housing mctuaes aupiexes, triplexes, multifamily units and condominiums. 5-4 HOUSING AND RESIDENTIAL LANDS 1 ■■��''�. • • u • Bend Area General Pian � ° During this 28 -year period, single family detached homes made up 58.3 percent of the total new housing units, manufactured homes 6.7 percent, and all types of attached housing 35.0 percent. Although comparable information for the unincorporated portion of the urban area is not available, the predominant housing type outside the city limits has been single family detached homes. The limited sanitary sewer service available outside the city and requirements for individual septic tank systems have restricted the ability to build apartments or manufactured home parks in the county portion of the urban area. One of the positive aspects of the housing expansion during the last quarter of the 20th century is that more than half of the total housing stock has been built since 1970, and about one-third since 1990. This means that these homes and apartments were built under newer and better structural, plumbing, electrical and energy conservation codes. In addition, many of the older "mill houses" built in the 1910s and 1920s south and west of downtown continue to be upgraded and remodeled using the current construction codes. Occupancy Historically, Bend has had a high percentage of renters. Table 10 shows the change in owner -occupied housing in the City of Bend over time, and compares the most recent census period with the "Bend Divi ston" census tract, the county as a whole, and the Oregon average. The Bend Division census tract includes the urban growth area and thousands of homes in rural subdivisions outside the urban area. Table 10 Occupied Housing Units of All Types Source: U.S. Census data; Oregon Housing and Community Services Department. Although the percentage of owner occupied housing in Bend was below the state average, it was closer to the state average than the greater Bend Division or the county as a whole. This suggests that there is a better variety of rental housing — duplexes, triplexes, multi - HOUSING AND RESIDENTIAL LANDS 5-5 City of Bend Bend Division 1990 Deschutes. County 1990 State Avg.. 1990 1960 1970 1.980 1990 All occupied units 3937 4712 7011 8526 16,557 29,217 ---- Percent owner occupied 71.9% 65.3% 55.5% 54.1% 66.9% 71.0% 58.3% Source: U.S. Census data; Oregon Housing and Community Services Department. Although the percentage of owner occupied housing in Bend was below the state average, it was closer to the state average than the greater Bend Division or the county as a whole. This suggests that there is a better variety of rental housing — duplexes, triplexes, multi - HOUSING AND RESIDENTIAL LANDS 5-5 W Bend Area General Plan family units, detached homes, and condominiums — available in Bend than in other parts of the county. A more detailed analysis of housing ownership patterns in Bend for 1990 is provided in Table 10A. This table shows the percentage of owners and renters by age groups. Not surprisingly, the majority of younger households are renters, with a shift in the pattern for those householders aged 35 and older. [text and Table 10A added by staff 1/98] Table 10A Bend Owners and Renters in 1990 Age of Householder Percent Owners Percent Renters 15-24 6.3% 93.7% 25-34 33.6% 66.4% 35-44 59.7% 40.3% 45-54 71.4% 28.6% 55-64 70.6% 29.4% 65-74 76.2% 23.8% 75 and older 67.9% 32.1% Source: US Census of Population and Housing, Oregon Several factors in the 1990s — the number of families moving into the area, the percentage of attached housing units built, a relatively large percentage of young persons, and the attractiveness of Bend for real estate investment — will affect the percentage of owners and renters, but data on this will not be available until after the year 2000. Household size As the area's population characteristics have shifted to include more young adults, there has been a corresponding shift in household size. Over the past three census periods the smaller one -and two -person households, as a percentage of all households, has increased since 1970. (See Figure 11 in Chapter 4, Population and Demographics.) The average household size for Bend in 1990 was 2.4 persons, slightly less than the county as a whole. • 5-6 NOUS/NG AND RESIDENTIAL LANDS LAJAdqr• Bend Area General Plan It is assumed that the urban area households experienced a similar reduction in household size and also average 2.4 persons per household. The average household size during the planning period to the year 2020 is expected to drop slightly to 2.3 persons per household. Even though the baby boomer generation will move into retirement toward the end of the planning period and create more one or two person households, Portland State University forecasts that an even larger number of baby boomers' children and grandchildren will move into Central Oregon. This surge of younger families will off -set the small household size of the older generation and maintain the 2.3 persons per household average. More information on demographics is in Chapter 4, Population and Demographics. [paragraph edited by staff 9198] The cost of housing The cost of housing, and the ability of current and future residents to afford housing in Bend, is an important consideration in planning for the amount and type of residential land. The rapid population growth and demand for housing during the past quarter century, coupled with the financial resources of newcomers to the area and increasing income levels, helped push housing costs up quickly. The median home value in Bend in 1970 was $13,300; by the 1990 census this figure had jumped to $68,000. The Bend median home value in 1990 was about $1,500 above the state average, but almost $6,000 below the overall Deschutes County median home value. During this same time the rent levels in Bend also increased, but at a slower rate than home prices. Although housing costs increased dramatically in Bend, the next two charts show that neither the absolute costs, nor the housing costs relative to income, was significantly different from other parts of the county. Figure 16 compares mortgage and rent costs throughout Deschutes County as reported in the 1990 U.S. Census. 0 HOUSING AND RESIDENTIAL LANDS 5-7 Bend Area General Plan Source: 1990 Census of Population and Housing, Oregon Figure 17 provides a more detailed comparison of housing costs as a percentage of household income as reported in the 1990 census. It also shows that the owner and renter housing costs in Bend, as a percentage of household income, were almost identical to the overall pattern in the county. Figure 17 Owner• Renter(1989) 60 .0 30 0 �• 10 0-19% 20-24% 25-29% 30-34% 35%+ Percent of Household Income Bend Owners *• County Owners ®- Bend Renters County Renters Source: 1990 Census of Population and Housing, Oregon 5-8 HOUSING AND RESIDENTIAL LANDS AmA LLjjM1qr 4b Bend Area General Plan A majority of Bend households were paying less than 25 percent of their income on housing costs. However, at the time the 1990 census was taken, three out of ten households had housing costs that were 30 percent or more of their income. This percentage in 1989 was higher than the state-wide non -metropolitan average of about one-quarter of the households paying 30 percent or more of their income for housing. From the census data it is apparent that most of the persons paying more than 30 percent of their income in 1989 were those younger than 25 years and older than 65 years. It is reasonable to assume that many of the younger persons were college students and recreational enthusiasts. In addition, about two-thirds of households in this category were renters in 1990. Housing in the 1990s During the 1990s the variety of housing being built was just as diverse as the people moving to Bend. Housing types constructed in the urban area included high-end custom built homes, moderate priced and starter homes, duplexes, apartment complexes, manufactured homes, subsidized housing, and condominiums—usually all under construction at the same time and in most parts of the urban area. There was also significant housing production in the county portion of the Urban Growth Boundary during the 1990s. Most of the housing in the county area was single family homes on large lot subdivisions, since the city sewers needed for apartments and higher density residential subdivisions had not been extended to most of the urbanizing area. The number of new housing starts in the urbanizing area dropped off in 1993 after the county required that new subdivisions have sewer service, while the activity within the city remained strong. Table 11 compares the new housing units in the city limits and the county portion of the urban area during the part of the 1990s growth period. Table 11 New Urban Area Dwelling Units 1990-1997 Single Family Homes Manufactured Homes Attached Housing Total Housing Units City County City County City County City County 2945 1630 308 328 1864 108 5117 2066 Sources: city and county building department data. County manufactured homes may include replacement units 0 HOUSING AND RESIDENTIAL LANDS 5-9 -L' :v :V,L.L �..:.. Bend Area General Plan Within the whole urban area during this portion of the 1990s the housing mix was slightly different than within the city limits. lie urban area percentages were: single family detached homes — 63.7 percent; manufactured homes in subdivisions and parks — 8.8 percent; and all attached housing — 27.5 percent. [edited by staff for clarity, 9198] The single family detached "stick -built" homes constructed during this period covered a full range of housing types and cost ranges. As Figure 18 shows, during the first half of the 1990s about 36 percent of the homes were smaller, "starter" homes, about 51 percent were mid-range homes, and about 12 percent were high-end homes. The selling price for homes in the urban area continued to increase dramatically in the early 1990s, but became stable by mid - decade as hundreds of new homes of all types were built to satisfy a range of housing needs. Similarly, monthly rental rates for older and new apartments i ...... lqi� increased to peak rates Source: city and county planning departments in 1993, then declined slightly and remained stable. The rising per -capita and household income levels in the 1990s helped keep housing costs at reasonable levels. Both the public sector and private sector sought to make sure that housing for low and moderate income families and individuals was available within the urban area. A variety of public, private, and public-private partnerships led to the creation of more than 320 housing units for low and moderate income individuals and families of all ages during the early 1990s. 5-10 HOUSING AND RESIDENTIAL LANDS is • • • r Bend Area General Plan y. " w Housing density patterns — the number of housing units built per gross acre of land — are useful in determining how much land new housing will consume. Data from the seven year boom period, 1989 through 1995, show that the average density of attached housing and manufactured home parks was not different from historical rates. However, the average density of single-family home subdivisions during this period did increase, probably due to a combination of development costs, demand for low and mid-range homes, and county requirements in 1993 that all new subdivisions within the urban area must have community sewer service. The average density for the three main housing types, expressed as dwellings per gross acre of land, is shown in Table 12. A rough comparison to dwellings per net acre can be made by multiplying the gross acre averages by 1.25. Table 12 AveraLye Housine Units per Gross Acre 1989-1995 All Single Family0r Single Family without Butte Manufactured Homes in Parks® Ail Attached`: Dwellings0 2.4 homes 2.9 homes 4.7 homes 15.5 dwellings Notes: T based on final subdivision plats filed; includes large lot Awbrey Butte homesites © based on new parks and expansion of existing parks in all residential zones OO includes duplexes, triplexes, apartments, condominiums and attached single family units Gated communities and walled subdivisions Bend, like other parts of the state, experienced an increase in the development of gated communities and walled subdivisions during the 1990s. As of 1996 there were six gated residential developments within the UGB and several "walled" subdivisions. Most of the gated communities were designed for golf -oriented residents or exclusive locations. However, one of the projects developed in the 1990s was a manufactured home subdivision where the gates provided additional security for residents and the private recreational facilities. Many residential subdivisions in Bend have added walls, fences, or earthen berms at the edges of the development. All of these developments are along major arterial roads, and for the most part these barriers serve to increase privacy and reduce road noise. WC .Ili :IVA . 1 . It 1 . . • . .1 . . ;.11 /1 ■ . 111 t . 1 .11 . tl - i 1 t 1 It �1 ; 11 • / MI ,t t / . t t 1 t 111 HOUSING AND RESIDENTIAL LANDS 5-1d IWAFAKM Bend Area General Plan • I Neill nu as N Rliver. N iME IV II F.11 Blois e n e . , R ,n • • r. N N• No NN • nee ,le a rN i e nlr. r e nnl N , Nle ► . • . .,e • le Me - 111W , Its FUTURE TRENDS AND FORECASTS he General Plan and implementing ordinances must provide enough land and s opportunities for the housing market to meet the changing needs of the community. s Several factors point to the need for the urban area to continue to provide for a mix of housing types in the future, and to be ready for an even broader mix of housing types than have been developed in the past. Expected trends during the 20 -year planning period are: ❑ the local economy will continue to expand, providing a mix of new professional and entry level jobs; ❑ household income levels will rise as more jobs and a greater variety of jobs are created, allowing families and individuals to keep housing costs at reasonable levels; ❑ the cost of developing land and providing safe, comfortable housing will continue to rise, but at more moderate rates than in the early 1990s; ❑ attached housing of all types, for both owners and renters, will make up a higher percentage of the housing supply; ❑ even with more attached housing, traditional detached single family housing will continue to be the main housing type well into the next century; ❑ manufactured homes—on lots and in parks—will make up a higher percentage of the housing; ❑ there will be more interest in incorporating natural features into the design of subdivisions and other housing developments; ❑ in new subdivisions there will be more emphasis on designs that have narrower streets, planter strips, better street connectivity, and fewer cul-de-sacs; ❑ as the "baby boomers" move toward retirement after the turn of the century, there will be more demand for smaller homes and probably for yards that need less maintenance; and ❑ thein -migration of younger families and individuals will keep the average 5-12 HOUSING AND RESIDENTIAL LANDS 4&i6a • • • Bend Area General Plan household size at the current level. Two important themes in the General Plan's efforts to achieve this goal—that is, how residential developments function and how they look—are described below. A third theme of providing small commercial centers to serve neighborhoods is covered in more detail in Chapter 6, The Economy and Lands for Economic Growth. Personal mobility and safety. Beginning in the 1960s and 1970s, subdivisions and houses were designed around the car. Residential streets became wider to comfortably handle parked cars on both sides and two-way traffic, with little or no emphasis on pedestrian or bicycle movement since cars were the transportation mode of choice. The predominant street patterns were cul-de-sacs and disconnected streets to reduce through traffic, and the favored housing design had the garage prominently placed in front for easy vehicle access. Although this type of subdivision had wide market acceptance, there were several drawbacks to this design. While the traffic was less in front of homes or apartments around the cul-de-sac, the homes at the throat of the bronchial -like arrangement of streets experienced much higher traffic levels as all the vehicles had to funnel past them to move to and from the area collector streets. Also, the frequent use of the popular cul-de-sac and loop LU M71W HOUSING AND RESIDENTIAL LANDS 5-13 rV U4/J Bend Area General Pan streets made it difficult to travel out of or through the neighborhood except by car. 0 By the mid-1990s in Bend there was renewed int a segment of the development industry interested in a return to more traditional residential development patterns with narrower streets, shorter block lengths, and alleys. This traditional pattern was the standard in Bend for almost 50 years, and exists in the central part of the city and east and west of downtown. Traditional lot and block patterns provide for much easier and direct access—for pedestrians, bicyclists, and vehicles— between neighborhoods and to parks, schools, and shopping. This General Plan includes policies to encourage better street connectivity and other measures such as shorter block lengths and pedestrian/bicycle accessways to improve pedestrian and bike connectivity between and through neighborhoods. A fegarages in the back off alleys and poiches in fiont, and have met with fin=diate succew developers. in Bet= ilavi- taken the traditional &velopment ideas to hewt, complete with [bold text added by BUAPC 3/98; last sentence deleted by City Council 7/15/98; staff edits to first sentence 9/981 A grid street pattern improves mobility and disperses traffic through many routes rather than channeling all traffic to just a few routes. But, it may also allow "cut -through" traffic when nearby collector or arterial streets are congested. The General Plan policies and implementing codes recognize this possibility, and allow for off -set streets, meandering grids, traffic calming devices bach as circ , and other traffic control measures when necessary to improve safety and livability in neighborhoods. [staff edit 9/98] Open space and natural features in residential areas. When the Bend Area General Plan was approved by the state in 1981, there were hundreds of acres of undeveloped land within the Urban Growth Boundary planned for future residential development. Almost all of this undeveloped land was in its natural state with rock outcroppings, bitterbrush, junipers, and pines. Most of this acreage was out toward the edge of the urban area, but there also were many pockets of 10, 20 or 40 acre parcels adjacent to or within established residential neighborhoods. During the boom of the late 1980s and the early 1990s, about 1,800 acres of these lands were converted to home sites, multifamily projects, and manufactured home parks. The rapid loss of undeveloped areas due to the pressures of growth led to greater community interest in incorporating open space and natural features into new housing developments. Although the city and county codes had measures that permitted developers to protect natural features, some were cumbersome to use and others required extra time and money. 5-14 HOUSING AND RESIDENTIAL LANDS uJidip• • r Bend Area General Plan?° 0230 Preserving natural features and incorporating open space areas into the residential landscape will help make every type of housing development more interesting and enjoyable. Providing for natural features and open space can be achieved in many different ways. It could mean setting aside an area of rock outcropping or large trees in a common area, or adjusting streets and property lines to leave natural features in right-of-way or building set- back areas. Open space can also be created through planter strips �.,.�,.,.• ��„� nr�c,u' c+dw�c :.. �,,.., between the curb and sidewalk, O 10a:habitat or small rllammals and birals; and O serve"a.ibuffer between different • land uses landscaped entrances to a development, and along pedestrian corridors between developments. Neighborhood parks are another way to provide open space in a residential area. Chapter 2, Natural Features and Open Space, has policies that support the community's interest in protecting open space and natural areas. In addition, the city will develop more flexible development standards and other measures that make it easier to include open space and natural features into subdivisions. New housing units The number of new housing units needed within the urban area during the planning period is tied to the future population growth and other factors. The City of Bend and Deschutes County have agreed upon a forecast population for the urban area of 68,775 persons by the year 2020. The total number of new dwelling units needed for the forecast population increase is shown in Figure 19. to A%14," HOUSING AND RESIDENTIAL LANDS 5-15 ,* 11 Bend Area General Plan Figure 19 Total Needed Dwelling Units During 25 -Year Planning Period 2020 UGB forecast population 68,775 Minus July 1995 UGB population - 39,720 Equals new residents over 25 years = 29,055 Divided by average of 2.3 personsihousehold - 2.3 Equals dwellings for new permanent residents = 12,632 Plus vacant units on market (5%) + 632 Plus second homes and vacation homes (10%) + 1,263 Total New Dwellings Needed = 14,52 7 Housing needs • In addition to a forecast of total new dwellings needed to house future residents, Oregon law requires that the General Plan provide for a variety of housing types that match up with the expected needs of future residents and families. The planning requirement for needed housing is made up of two parts: the mix or types of housing that best matches the forecast population needs; and the cost or affordability of housing that matches the income levels of residents. The changing mix of housing types. Future housing needs will not be the same as those needed during the previous 20 -year planning period. The changing lifestyles and demographics of the community will lead to a variety of new housing options such as smaller single family home lots and row houses, more varied and flexible subdivision developments, more manufactured homes in parks, and a high demand for rental units. More specifically, the General Plan and implementing measures provide for: Single family homes. There will always be a strong demand for single family detached hcmes, but the percentage of built -on-site detached single family homes wi]l should decline as the housing market matures and provides more attractive alternatives. About 5-16 HOUSING AND RESIDENTIAL LANDS Bend Area General Plan halfway through the planning period as the "baby boomer" generation reaches retirement age and their need for larger homes and lots will deeline and declines there will be more interest in owning attached homes and manufactured homes. Steps to ensure there will be strfficient residential land f6r a variety of single f�T�ly housing Stens such as the followingwill allowsufficient residential landhor a varietLof single ami y housing: U extending sewer service to all of the urban area; ❑ upzoning larger low-density residential land to Standard Residential (RS) zoning; ❑ reducing the minimum lot size in the RS zoning district; ❑ new policies to promote and encourage compatible in -fill residential development; ❑ new policies to provide for "refinement plans" in re -developing, low-density residential neighborhoods; and ❑ more flexible and easier to administer development standards. [text edits by City Council, 8/5/98] Attached housing. The percentage of attached housing units—primarily duplexes, triplexes, and apartments—needs to be higher than in the past to match the needs of . younger workers and families, and to provide "transitional" housing for people moving into the area before they buy homes. Attached housing is expected to provide more than one-third of the future housing. Ways the city will plan for more attached housing are: ❑ reducing the minimum lot size in the multifamily zones; ❑ reducing the amount of land required for second and additional units on a site; ❑ permitting apartments outright as a secondary use in commercial zones; ❑ extending sewer lines to parts of the urbanizing area planned for multifamily development; ❑ adding more than 100 acres of multifamily land around new commercial centers; and ❑ adding a third zoning district for multifamily housing. Manufactured homes. The percentage of these homes in the mix will increase as manufactured homes become a housing option for the younger and older households. The percentage of manufactured homes—about equally divided between homes placed in parks and on individual lots—will should increase to a level that is comparable to other Oregon cities of similar size. Steps to promote more manufactured homes are: ❑ providing sufficient land for a variety of detached homes on individual lots; 0 &TA HOUSING AND RESIDENT/AL LANDS 5-17 a Bend Area General Plan ❑ adding a new zoning district that provides for manufactured home parks at a more competitive density range; and ❑ designating at least 150 acres for the new multifamily zoning district. [CC 8/5] Figure 20 displays the percentage of the three main housing types planned in the past compared to the forecast mix of urban housing in the future. Figure 20 Past and Future Housing Mix Single Family "Stick Built" Homes Manufactured Homes on Lots and in Parks All Attached Multifamily Units Source: City of Bend Long-range Planning N Housing affordability. [Note: bold text on this page and the next page was added by city staff in 1/98 at direction of BUAPC] Housing is considered affordable if householders spend less than 30 percent of their gross income on mortgage or rent payments and utilities. A key factor in providing incomes to match the ever increasing cost of housing is a strong local economy with a mix of job types. 5-18 HOUSING AND RESIDENTIAL LANDS t Bend Area General Plan As an example, between 1990 and 1996 the cost of single family homes in the Bend area increased an average of 6.9 percent a year. But incomes grew at an even faster rate. During the slightly longer period of 1989 to 1997, the median family income in Deschutes County increased an average of 7.7 percent a year. The General Plan seeks to continue Bend's economic growth and job base for future residents by providing sufficient industrial land for manufacturing, professional services, technology and other primary jobs that provide the backbone of family -wage jobs. The growth in Bend's economy will continue to provide enough jobs and higher wages so that most households, especially those middle -age (35-60 years) householders in their peak earning years, will not have a problem affording housing in Bend. In the future, older families and households (the baby -boomer retirees) will be more financially secure than their parents generation and better able to find affordable housing. However, even with increasing income levels, many Bend householders and families will have a harder time finding affordable housing. Those persons most likely to have difficulty finding affordable housing are the younger householders and families that typically fall into the lower income levels during their early employment years, and single parent families with children. In Bend there are two main obstacles to achieving broad-based affordable housing. First, the relatively high rent levels make it difficult for persons in the very low income levels to find affordable housing. Second, the dramatic rise in housing costs in the 1990s made it more difficult for first-time home buyers and lower income families to buy a home. To overcome these obstacles the community will need to increase needs to address the supply of affordable rental housing for low income households, and to provide opportunities for home ownership for low and moderate income families. [City Council edit, 8/5/98] The city and county have provided low-cost or free land, grants, and other assistance to local housing groups to help meet the housing needs of the community. Between 1990 and 1996 local housing advocacy groups built more than 350 housing units — about 5 percent of all new UGB housing units — to provide affordable housing for low and very low income households. To provide for the long-term self-sufficiency of low and moderate income households in Bend the issue of affordable housing must be addressed in a comprehensive manner. •HOUSING AND RESIDENTIAL LANDS 5-19 Bend Area General Plan The city and county must continue to rely on housing groups and the local housing market to assure that affordable housing is available throughout the urban area. The General Plan and implementing codes encourage the market to provide affordable housing by: ❑ allowing smaller single family lots which may lower prices and spread development costs out over more dwellings; ❑ reducing street widths in residential areas; ❑ allowing accessory dwellings in new single family subdivisions; ❑ creating more flexible and easier to administer development standards; ❑ creating a new zoning district that permits attached housing, detached housing and .manufactured home parks at a density between the existing standard residential and multifamily residential zones; ❑ increasing the percentage of multifamily housing in the future housing mix; and ❑ reducing the minimum lot size in the multifamily zones to allow smaller homes on very small lots as small as 2,500 square feet. [City Council edit, 8/5/98] Housing density For most housing types the average density of future developments will be higher than historical levels. The forecast density ranges for the three main housing types are: Single family detached homes — 2.9 homes per gross acre; manufactured homes in parks — 7.5 homes per gross acre; and attached housing — 15.5 dwellings per gross acre. The new single-family detached average density of 2.9 homes per gross acre is comparable to the urban area average during the 1989-1995 boom period, after the large lot hillside subdivisions of Awbrey Butte are excluded. The upper Awbrey Butte area has a special low-density designation that will not be repeated in the urban area. Several considerations support the expected average density of 2.9 homes per gross acre: ❑ development levels in the Residential Standard (RS) zone—the zone with the most land—have been below the maximum densities allowed in the zone; ❑ smaller minimum lot sizes to add flexibility in subdivision design; ❑ requirements since 1993 that all subdivisions have community sewer service; ❑ large tracts of low and very low density land will be redesignated for standard residential density development; and ❑ during the most recent housing boom the trend has been for higher density subdivisions. 5-20 HOUSING AND RESIDENTIAL LANDS • • oMrM Bend Area General Plan Future manufactured home park developments are expected to be built at an average density of 7.5 homes per gross acre — a density range that is50 percent higher than the rate of the 1990s. The higher density in manufactured home parks will be achieved through the requirement that all new parks be served by a community sewer system and the creation of a new zoning district that allows manufactured home parks and other housing types at a density range of 6 to 10 homes per gross acre of land. This average density of 7.5 homes per gross acre satisfies a state requirement to provide for manufactured home parks in a density range of 6 to 10 homes per net acre. Apartments and other attached dwellings are expected to be constructed at an average density of 15.5 units per gross acre. This density level is the same as the average during the 1989-1990s boom period, and is essentially the same as the overall average of all attached housing developments within the urban area. Although this density level is below the maximum level allowed in the two main multifamily zones, past market forces have not driven up the density levels and it is not expected that the cost of land and other market factors will significantly increase the attached dwelling density level during the 20 -year planning period. Land needed for new homes iSince housing is the major land use within the urban area, it is most important to determine if there is sufficient buildable land within the urban area to meet the amount and type of land needed for the forecast housing. The manufactured home count must also include homes that may be relocated or replaced from existing parks on commercial and industrial land that is likely to be redeveloped to their intended uses. The amount of land needed for new housing can be estimated by comparing the forecast total new dwelling units (Figure 19) to the forecast housing mix (Figure 20) and the expected average density of the main housing types. (See discussion above.) The amount of land needed to meet the forecast housing needs is shown in Figure 21 on the next page. HOUSING AND RESIDENTIAL LANDS 5-21 Bend Area General Plan Figure 21 New Housing Units by Type and Acreage 14,527 new dwellings of all types Divided as follows 55% "stick -built" homes + 5% manufactured 5% manufactured homes homes in parks on subdivision lots 726 new homes PLUS 180 existing units relocated from 8,717 parks in commercial zones homes on lots I 906 homes in parks @ 2.9 homes/acre = @ 7.5 homes/acre = 3,006 gross acres 121 gross acres needed needed for homes for manufactured home on lots parks 35% multifamily and attached dwellings of all types 5,085 dwelling units @ 15.5 dwellings/acre = 328 gross acres needed for all attached dwellings Forecasting the needed acres must be compared to the supply of appropriately designated lands within the UGB to determine if there is sufficient land to satisfy the needed acreage for each of the three main housing types. Several factors were analyzed to evaluate the supply of residential land: ❑ the amount of vacant, buildable land by General Plan category; 5-22 HOUSING AND RESIDENTIAL LANDS LUbiRr C • • Bend Area General Plan ❑ the number of vacant, platted lots and manufactured home park spaces; ❑ the amount of land with tentative subdivision or PUD approval; ❑ existing parcels with homes that have redevelopment potential; ❑ residential land converted to new commercial centers during the planning period; ❑ change in residential designations; ❑ the amount of land needed for future parks; ❑ the amount of land needed for new public schools; and ❑ land for other non-residential purposes such as churches and private schools. The result of this analysis was that there was at least a 20 -year supply of residential land for each main housing type within the UGB as of the end of 1995. Table 13 below provides a summary of the analysis. The details and methodology of the analysis are contained in the resource documents available at the city planning office. Table 13 Needed and Buildable Residential Acres in UGB Housing Type/ Single Family Manufactured All Attached Acres Detached Homes in Parks Dwelling Units Needed Acres to 3,006 121 328 year 2020 Buildable Acres as 3,3300 150 610 of 12/95 Note: T 2,405 vacant and re -developable acres without tentative plans, or master plans, plus 925 acres in approved tentative plans, master plans, and vacant subdivision lots Land use categories The General Plan has four residential land use categories that are described on the following page and are displayed on the Plan Land Use Map. These categories provide for the variety and choice in housing types, lot sizes, and locations needed to serve the existing and future housing markets. The buildable acres in each category in Table 13 above are provided in two or more of the General Plan residential land use categories. In addition to these residential categories, some future housing will occur in the Plan's mixed use designations and as secondary uses in some commercial areas. HOUSING AND RESIDENTIAL LANDS 5-23 Bend Area General Plan Table 14 Residential Land Use Categories Land Use Implementing Density Range Primary Uses Secondary Uses Category Zones O Urban Urban Area one dwelling single family detached destination resort Area Reserve (UAR-10) for every 10 homes only in mapped Reserve acres areas Suburban one dwelling single family attached none Residential (SR2'/z) for every 2'/z homes acres Urban Residential Low 1.1 to 2.2 single family detached duplex, Standard Density (RL) dwellings per homes manufactured Density gross acre home park Residential 2.0 to 7.3 single family detached duplex, Standard Density dwellings per homes manufactured (RS) gross acre O home park Urban Residential Medium 6.0-10.0 manufactured home single family Medium Density dwellings per park, any attached detached, Density (RM -10) gross acre ® housing boarding houses Residential Medium 7.3 -21.7 any attached housing, single family Density dwellings per manufactured home detached, (RM) gross acre O park boarding houses Urban Residential High 21.7-43.0 any attached housing, single family High Density (RH) dwellings per manufactured home detached Density gross acre park, offices/clinics Note: O Some land use categories are implementect by oy more tnan one resiaentiai zone. OO Although single family lots may be less than 6,000 square feet in area, the number of dwellings per gross acre cannot exceed the maximum of 7.3 dwellings /gross acre. OO Lots in the multifamily zones may be as small as 2,500 square feet in area, but the number dwellings per gross acre cannot exceed the maximum in the Plan. Urban Area Reserve - lands with this designation lie between the Urban Growth Boundary and Urban Reserve Boundary. These areas shall be considered first for inclusion in the UGB when the need for additional residential land occurs. Areas 5-24 HOUSING AND RESIDENT/AL LANDS • U 111411 Bend Area General Plan with the 2 /2 acre zone reflect the existing development patterns and the presence of community water systems. The ten acre zone applies to large undeveloped areas and areas adjacent to agricultural uses, forest land, and deer winter range areas. The Urban Reserve area also has some potential for destination resorts, those developments providing visitor -oriented accommodations and recreational facilities in a setting with high natural amenities. Sunriver and Black Butte Ranch in other parts of the county are examples of destination resorts. Oregon's land use laws provide for the mapping of lands that are suitable and appropriate for destination resorts using specific criteria. In 1996 the Urban Reserve lands were evaluated using these criteria, and approximately 1,960 acres in the west and south parts of the Urban Reserve area were mapped as eligible for siting of destination resorts. The areas within the Urban Reserve in which destination resorts may be sited are shown in Figure 22 on page 5-26. Urban Standard Density Residential - covers the most land area of any land use category in the General Plan. It is the primary land use designation for existing and future single family homes, and is distributed throughout the urban area. This category, and its companion implementing zones, allow for a wide range of housing types at all price ranges. The Standard Density Residential (RS) implementing zone is applied to land within the city and areas within the county portion of the urban area that are developing with sanitary sewer service. Historically, development has occurred at levels below the maximum permitted density of 7.3 homes per gross acre. More flexible development standards and a variety of lot sizes down to 4,000 square feet will allow subdivisions and other housing development to be built at densities that approach the maximum of 7.3 homes per gross acre. The smaller lot sizes will not allow subdivisions to exceed the maximum density level, but it will allow for a variety of lot sizes within a development. This category also applies to the upper portion of Awbrey Butte, an area covered by the Awbrey Butte Master Development Plan which provides a more detailed density plan for the butte. The Awbrey Butte Master Plan allows large lots on the steep slopes of the butte to minimize erosion, reduce street cuts -and -fills, preserve native trees, and to reduce visual impacts. The Residential Low Density (RL) implementing zone applies mainly to areas where there is a pattern of existing, developed half -acre lots. These areas were generally platted and developed outside the city between 1970 and 1993 before city sewer service •HOUSING AND RESIDENTIAL LANDS 5-25 Viend Area General Plan was available and larger lots were needed for individual septic systems. The RL zone designation is used in these developed areas to provide compatible new development within existing neighborhoods. The RL zone is also retained in two areas in which the county and city expect to prepare neighborhood refnmemen redevelopment plans. The two areas undergoing refinement p! studies are shown in Figures 22A and 22B. Refnemen� Redevelopment plans will design more efficient water, sewer, and transportation systems for these neighborhoods, and consider standards so that new development is compatible with existing development. The peeted city and county expect to complete the refinement redevelopment plans for these two areas by January 2000. Chapter 1, Plan Management and Citizen Involvement, describes the process for conducting refnetnent redevelopment plan studies. [edits by city staff, 8/98] Urban Medium Density Residential - establishes a residential density range of 6 to 20 dwellings per gross acre. Due to market conditions, most subdivisions, manufactured home parks, and apartment projects have been developed below the upper density range in this designation. Medium Density Residential areas are distributed throughout the urban area in a pattern that reflects both existing developments and land for future development or redevelopment. These areas are • generally adjacent to commercial areas and along or near major transportation corridors. The implementing Residential Medium Density (RM) zone provides for a variety of housing types in the density range of about 7 to 20 dwellings per gross acre. The minimum lot size in the RM zone is 2,500 square feet. The other implementing zone, Residential Medium Density -10 (RM -10), provides for a variety of housing types at 6 to 10 dwellings per gross acre. This zone has a density range that is supportive of manufactured home park development. The RM -10 zone is mainly applied to undeveloped and redeveloping residential areas along arterial streets. Although the minimum lot size in the medium density zones is 4,000 square feet, the number of dwellings units per acre cannot exceed the maximum limit. Urban High Density Residential - allows the greatest concentration of population in the planning area and also is intended to acconnnodate professio setting.offices, chnics, and other medical facilities in a residential This designation 5-26 HOUSING AND RESIDENTIAL LANDS • Bend Area General Plan is applied south of downtown, adjacent to commercial areas along NE 4th and Greenwood Avenue, near St. Charles Medical Center, and adjacent to Central Oregon Community College. Most residential projects in this designation have been built at the lower end of the density range. Changing development costs, market forces, and other factors during the 20 -year planning period should increase density levels in this residential category. The Residential High Density (RH) zone has a 2,500 square -foot minimum lot size. [City Council deletion of sentence regarding office and medical clinics, 8/5/98. Council directed staff to research a new zoning district for offrcelchnic development and remove similar uses from RH zone.] HOUSING AND RESIDENTIAL LANDS 5-27 WAIO1r/J Bend Area General Plan Figure 22 • Urban Reserve Area Eligible for Destination Resort Siting [ ) Eligible Areas DESTINATION RESORT AREA MAP TO BE INCLUDED IN FINAL PRINTING -- SEE PREVIOUS DRAFT OF GENERAL PLAN (GREEN PAGES VERSION) FOR MAP . • 5-28 HOUSING AND RESIDENT/AL LANDS • Bend Area General Plan 0 Figure 22A Lava Ridge Neighborhood Redevelopment Plan Area LAVA RIDGE AREA MAP TO BE INCLUDED IN FINAL PRINTING -- SEE PREVIOUS DRAFT OF GENERAL PLAN (GREEN PAGES VERSION) FOR MAP •HOUSING AND RESIDENTIAL LANDS 5-29 ' S Bend Area General Plan Figure 22B Hollygrape Neighborhood Redevelopment Plan Area HOLLYGRAPE AREA MAP TO BE INCLUDED IN FINAL PRINTING -- SEE PREVIOUS DRAFT OF GENERAL PLAN (GREEN PAGES VERSION) FOR MAP 5-30 HOUSING AND RESIDENTIAL LANDS • • • Bend Area General Plan • POLICIES Residential compatibility 1. Future development and local development standards shall recognize and respect the character of existing areas. Maximum flexibility in development should be eneouraged in undeveloped ar . [sentence deleted by BUAPC 2/2/98] 2. In areas where existing urban level development has established a lot size pattern, new infill subdivision or PUD developments in the ,same zoning district shall have lot widths on the edges that are equal to or larger than those at least 75% of the lot width in the abutting subdivision if such lots are 20,000 square feet or smaller. Such developments may have smaller lots or varying housing types internal to the development. [edit by BUAPC 2/2/98; modified by BUAPC 2/23/98; modified by City Council 8/5/98] 3. The development of infill areas may, as an alternative to the standard subdivision review process, proceed through a public involvement process that would allow the maximum flexibility of design and provide for neighborhood participation. and consensus. [City Council edits 8/5/98] i 4. Private and public nonresidential uses are necessary and should be permitted within residential areas for the convenience and safety of the people. Such facilities shall be compatible with surrounding developments, and their appearance should enhance the area. 5. Of necessity, nonresidential uses will have to abut residential areas in different parts of the community. In these instances, any nonresidential use shall be subject to special development standards in terms of setbacks, landscaping, sign regulations, and building freight desin. 6. Class A manufactured homes shall be permitted as part of a manufactured home park, or part of a planned unit development, or on individual lots. Non -Class A manufactured homes may be allowed in manufactured home parks or as replacement for non- conforming manufactured homes subject to conditional use approval. 7. Manufactured homes located on individual lots in areas already developed with conventional housing shall be subject to special siting standards. 0 HOUSING AND RESIDENTIAL LANDS 5-31 Bend Area General Plan 8. Neighborhood commercial shopping areas may be located within residential districts and shall have development standards that recognize the residential area. 9. In many cases, home occupations are a legitimate use within residential areas, and shall be permitted provided that the use displays no outward manifestations of a business. W. Residential develoments sinall be loeated so that they are eorrverrient:: employment and shopping f�eififies, and they should be developed in ways that are eonsistent with the eharaeter of the topography:soilson the[deleted by BUAPC 1/5/98] 11. Certain private recreational uses, such as golf courses or tennis courts, can be successfully integrated into residential areas provided the location, design, and operation are compatible with surrounding residential developments. 12. Residential areas shall offer a wide variety of housing types in locations best suited to each housing type. , and sball be developed in. a way that will. trot create health o [deleted by BUAPC 1/5/98; put back in and edited by City Council 8/5/98] 13. Rehabilitation or redevelopment of older residential areas shall be encouraged. [BUAPC deleted and replaced with new # 13 below 1/5/98; reinstated by City Council, 8/5/98] 13. The city -and county -s-1-11-4-11 udevelop incvnLIV MuUuAgrC Me rehabilitation and . [added by BUAPC 1/5/98; deleted by City Council 8/5/981 :atom: 1 : • :: :. .. . [deleted Council 8/5/98] 15. The city and cotmty shafl use consistent residential development standards within the Urban 6rowth . [deleted by staff 9/98 as being unncessary with new management agreement] 15.A. the-urban-a, ca. [added by BUAPC 1/20/98; deleted by City Council 8/5/98] 5-32 HO USING AND RESIDENTIAL LANDS t C Bend Area General PfA " ° Z4 $ Neighborhood appearance (See related policies in Chapter 9, Community Appearance.) 16. Above -ground installations, such as water and sewer pumping stations, power transformer yards substations or natural gas pumping stations, shall be screened and designed to blend with the character of the area in which they are located. [edited by staff 1/20/98] trees.17. Eff-orts shall be made to design a tree planting plan for the exis I i -Fthe con=unity, and to plant approved [deleted by BUAPC 1/5/98 and replaced with new 917 below] community.f 7. The city shall develop an U, ban Forestry Plan which shall include annual tree planting goals for the existing areas of the [added by BUAPC 1/5/98; deleted by BUAPC on 4/20 and replaced by a related policy in Chapter 9] practical.1 7-A. Ali new developments shall includeiarge-canopy trees in the planter st., ip between t orb and sidewaliq as [added by BUAPC 1/20/98; deleted by City Council 8/5/98 and replaced by new 17A below that combines 17-17A] I.7A All new developments shall include trews, as practical, in the planter strip • between the curb and sidewalk. Such trees shall be consistent with the city's Urban Forestry Plan. [drafted by staff based on C. Council direction on 8/5/981 17B. Walls and fences along arterial or collector streets that are more than 3VI f�et in height shall be subject to special design standards. The fence or wall, and the area between the fence or wall and the curb or pavement, shall be landscaped and maintained by abutting property owner(s) or homeowners association. [added by BUAPC 3/2/98; phrase deleted by City Council, 8/5/98] 17C. Walls and fences in the front -yard setback area between the front of the house and the adjacent street shall not exceed 3% feet in height. [added by BUAPC 3/2/98; edited for clarity by staff 9/98] 18. All residential development should respect the natural ground cover of the area insofar as possible, and existing and mature trees within the community should be preserved. 19. The city encourages flexibility in design to promote safety, livability and preservation of natural features. Lot sizes as small as 4,000 square feet shall be allowed m!U be HOUSING AND RESIDENTIAL LANDS 5-33 0 Bend Area General Plan y,ppliedfor in'the RS zone to meet these objectives. [City Council change 8/19/98] 20. To encourage flexibility in design and preservation of natural features in areas planned for medium density housing, lots as small as 2,500 square feet shall be allowed in the RM -10 and RM zoning districts. 21. Hillside areas shall be given special consideration in site design by both the developer and local regulations. Building sites, streets, and other improvements shall be designed and permitted in a manner that will minimize excessive cuts and fills and other erosion - producing changes. (Note: see related policies in Chapter 10, Natural Forces.) Housinz density and affordability 22. Densities recommended on the Plan shall be recognized in order to maintain proper relationships between proposed public facilities and services and population distribution. Mirtimum density standards may be waived to preserve signifieant natural features- [deleted by staff 1/26/98; covered by #23 below.] 23. In developing a subdivision, Planned Unit Development, or multifamily housing project the following uses and natural conditions may be deducted from the gross acreage of the property for the purpose of density calculations: @ ❑ areas dedicated for public park use or public open space; ❑ areas developed for active recreational uses such as golf courses, tennis courts, swimming pools, and similar uses; ❑ land in excess of 25 percent slope that is not developed; ❑ natural wetlands and riparian areas that remain in a natural condition; and, ❑ "Areas of Special Interest" designated on the General Plan Land Use Map. 24. The city and county shall rezone residential lands to the designated General Plan densities when sewer service is available to the area. 25. Accessory dwellings to a single family home may be allowed in new subdivisions or Planned Unit Developments, provided that the maximum General Plan density is not exceeded. Accessory dwelling density inay be calculat The city er-c�amxp will calculate accessory dwelling density as a using the same fraction of a full dwelling unit provided in the .Systems Development Charges resolution. [added by BUAPC 1/20/98; modified by staff 2/9/98 @ direction of BUAPC; changed by City Council on 8/19/98] 5-34 HODS/NG AND RESIDENTIAL LANDS Bend Area General Plan _ 25A. The city and county will work with and support public and non-profit organizations that provide affordable housing within the urban area. [added by staff 1/30/98; edit by City Council 8/19/98] 25B. The city shall evaluate the community's housing mix and density levels every five years beginning in 2000. [added by staff 1/30/98] 26. When new commercial centers are created in developing residential areas, the city and county may allow up to 20 acres of medium -density residential housing within one - eight of a mile of the commercial center. T PON!k .. WWWW • n a n t i wt ' trtr a tr. t aALF141 i t' t the .t y and the otrot :t coxxidor along Highway 97 Business Ro6 medium detysity housing.[changed by BUAPC 2/2/98, deleted by CC 8/19/98] 28. Existing low-density residential areas that are adjacent to commercial or mixed use development at the south or north ends of the commercial corridor may be redesignated for medium -density development. Transportation connectivity (See related policies in Chapter 7, Transportation Systems, and Chapter 3, Community Connections.) 29. Medium -and high-density residential developments shall be located where they have good access to arterial streets and be near commercial services, employment and public open space to provide the maximum convenience to the highest concentrations of population. 30. Street widths on public residential local streets may vary depending on topography, anticipated traffic volumes, natural features that warrant protection, and existing street patterns in the neighborhood. Narrower streets may have limited on -street parking to ensure emergency vehicle access. 31. The city or county may require adjustment to the street pattern or installation of traffic calming devices in order to discourage high speed traffic on local residential streets. 32. In all residential areas the city shall encourage the use of open space amenities such as landscaped traffic islands or extra -width planting strips. •HOUSING AND RESIDENTIAL LANDS 5-35 170 0251 Bend Area General Plan 33. Schools and parks shad !! Ua be distributed throughout the residential sections of the community, and every dwelling unit in the area should be within convenient distance of a school or a park. [City Council edit 8/19/98] 34 Sidewalks shall be required in all new residential developments. Separated sidewalks shall be required as practical, on streets that provide or will provide access to schools, parks, or commercial areas. However, an alternative system of walkways and trails that provide adequate pedestrian circulation may be approved. [CC edits 8/19/98] 35. Efforts shall bemadecontinue to complete or connect existing walks along routes to schools, parks, or commercial areas. [City Council edits 8/19/98] 36. Bikeways shall be considered as both a circulation and recreation element in the Plan, and adequate facilities should be obtained for this purpose in all new development. 37. Efforts shall be made to extend trails, pedestrian ways, and bikeways through existing residential areas. 38. Residential block lengths shall not exceed 800 600 feet without a e ross street. To encourage connectivity and pedestrian access, residential block length • shall not exceed 600 feet except for topographic constraints. When existing conditions or topography prevent a cross street, a pedestrian accessway to connect the streets shall be required. [changed by BUAPC 2/2/98; revised by BUAPC 2/23/98] 39. Residential local streets shall be developed whenever practicable to increase connectivity within and between neighborhoods. [Bill Friedman to provide wording change] 40 Cul-de-sac and "hammer -head" residential streets may be allowed where existing development, steep slopes, open space, or natural features prevent connections, or when the objectives of connectivity are met within the neighborhood. 41. Fire .F,mergencyequipment access shall be considered during any new residential development. [City Council edit 8/19/981 Public utilities and services (See related policies in Chapter 1, Plan Management and Citizen Involvement and Chapter 8, Public Facilities and Services.) ft 1 5-36 HOUSING AND RESIDENTIAL LANDS q" - 0 Bend Area General Plan 42. All residential areas shall be provided with community water and sewer services and other facilities necessary for safe, healthful, convenient urban living consistent with the density of development. 43. Residential development shall be coordinated with other land use elements and community facilities which are consistent with projected housing densities. 44. Electric power, telephone, and cable TV distribution and service lines shall be located underground in new developments. Efforts shall be made time to place existing utility lines underground in established residential areas. [City Council edit 8/19/98] 45. Street lighting shall be provided in all new subdivisions at the time of development. Street light fixtures shall be shielded to direct light down. 46. Street names shall be unique within the county. Destination Resorts 47. In addition to lands excluded from eligibility for destination resort siting under state • law, the following lands within the Urban Area Reserve shall not be mapped as eligible for destination resort siting: (a) All lands owned by public agencies. (b) All lands zoned for surface mining. (c) All lands zoned SR -2 1/2 and all lands platted for subdivisions. (d) Land for which contiguous area not otherwise removed from eligibility is less than 160 acres, except where adjoining land under the same ownership outside the Urban Area Reserve is mapped with the Deschutes County destination resort (DR) overlay. (e) Single parcels, or adjoining parcels in the same or related ownership (including lands outside the Urban Area Reserve) of less than 160 acres. (f) Lands not adjacent to either (1) F1 zoning, or (2) Deschutes County destination resort (DR) overlay adjoining F 1 zoning. 48. Destination resorts, as defined by state law, shall only be allowed in areas designated for such use as shown on the adopted destination resort map. 49. A destination resort within the Urban Area Reserve shall be served by municipal water and sewer service or an approved community water and sewer service for domestic use. HOUSING AND AND RESIDENTIAL LANDS 5-37 170 - 025 Bend Area General Plan 50. No destination resort master plan shall be approved in the Urban Area Reserve until the county, pursuant to its management agreement with the city, has adopted destination resort development standards that, at a minimum, satisfy the standards in state law. 51. Any destination resort developed within the Urban Area Reserve shall provide a sufficient open space buffer between any development and the Deschutes National Forest lands to protect against wildfires and to protect the scenic values and wildlife values of the forest. 52. Destination resorts shall provide for any arterial or collector streets that are shown on the transportation system plan map to be extended through the site, or as needed as a result of a traffic study. 53. Destination resorts shall provide for pedestrian and bicycle access through the development from the urban area to the National Forest and/or other public lands such as parks, scenic areas, and designated trails. Refinement Plan Areas (See related policies in Chapter 1, Plan Management and Citizen Involvement.) a 54. A refinement plan that includes residential areas may prescribe residential density limits on specific properties which differ from the density range provided for in the General Plan. However, the average density of residential development allowed within a refinement plan area shall comply with the density limitations of the General Plan. 55. Within the two study areas shown on Figures 22A and 22B of the Plan no quasi- judicial plan amendment or zone changes shall be allowed while the county is conducting the refinement plan study. 56. If the city and county do not adopt refinement plans for the two study areas shown on Figures 22A and 22B by January 2000, the RL zoned land in those areas shall be rezoned to RS. Q:\NEWPLAN2\CC_CHP5.DFr Drafted November 1996 Last Edit: September 29, 1998 (2:16pm) 5-38 HOUSING AND RESIDENT/AL LANDS WLUh17V 0 170 -0254 BEND AREA GENERAL PLAN . CHAPTER 6: THE ECONOMY AND LANDS FOR ECONOMIC GROWTH TABLE OF CONTENTS PREAMBLE ............................. 1 GOALS................................1 OVERVIEW .............................2 Employment changes Increase in trade and service Income levels FORECASTS ............................4 0 Local trends Employment increases Land needed for economic growth Industrial Designated Areas Mixed-use Designated Areas Commercial Corridor Areas Commercial Center Areas POLICIES...............................14 General Industrial development Mixed-use development Commercial development CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 40 70 - 0235 Bend Area General Plan 0 PREAMBLE Bend cannot rest on the economic diversity that existed in the 1990s. The community must work hard to ensure that the local economy continues its pattern of healthy growth, and that new jobs in all wage levels are available for its citizens. Governments, economic development groups, and developers all have a role in retaining, expanding, and recruiting businesses that will serve our needs in the 21st century. The role of the General Plan is to provide an adequate supply of industrial, commercial, and mixed- use land for Bend's economic growth. GOALS The intent of the General Plan is to provide the community with sufficient land to meet the city's goal of promoting quality economic growth and assuring a diverse economy. The following goal statements describe the future economic hopes of the community and serve as the foundation for policy statements in this chapter. . The citizens and elected officials of Bend wish to: ❑ have a vital, diverse and sustainable economy, while enhancing the community's overall livability. ❑ ensure an adequate supply of appropriately zoned land in Bend to provide for a full range of industrial, commercial, and professional development opportunities. ❑ stimulate economic development that will diversify and strengthen economic activity and provide primary and secondary job opportunities for local residents. ❑ strengthen Bend's position as a regional economic center. ❑ improve the income levels of Bend residents. E3 improve the appearance of the contm ... i - , ty, particufarly along f fighw ay 9W3., d S distinct idenfity- of the Bend area. [deleted by staff as it covered under community appearance] ❑ create commercial areas in outlying sections of the community as neighborhood centers rather than as extending the existing strips along major roads. ❑ encourage more small neighborhood commercial developments and convenience commercial centers to reduce vehicle trips and trip lengths. 4P '� THE ECONOMY AND LANDS FOR ECONOMIC GROWTH 6-1 Bend Area General Plan OVERVIEW Al"t the turn of the century several companies in Central Oregon raced to build l. irrigation canals through the area, and agriculture — primarily horse and cattle ranching — provided the basis for the Bend economy. After the Oregon Trunk Railroad was completed through Bend in 1915, large sawmills were built in the area, and for two generations the local economy was measured by the sound of saws and the smell of cut pine. In the 1970s the Bend economy started to become more diverse with other manufacturing businesses, trade, medical services, and tourism providing a bigger share of local jobs. Along with the development of a more diverse job base, the number of jobs in the county and the urban area increased dramatically during the last quarter of the century. While the population more than tripled in the 27 years between 1970 and 1997, the wage and salary employment more than quadrupled. Table 15 County Population and Employment History 1970 1980 1990 July .1997 County Population 30,442 62,142 74,958 101,200 Wage & Salary E_mploymentOO 9,900 21,780 32,530 44,910 Source: Portland State University Center for Population Research and Census, and Oregon Employment Department TO Wage and salary employment makes up about 90% of all the jobs in the county. Not included are self-employed persons, jobs that pay on commission, agricultural workers, and family members in a family run business. Most of the growth in the county employment levels has come in the non -manufacturing sectors. From 1970 to July 1997 more than 30,000 new non -manufacturing jobs were created. In the early 1970s manufacturing jobs in the county made up about 24 percent of 6-2 THE ECONOMY AND LANDS FOR ECONOMIC GROWTH � • • Bend Area General Plan the total wage and salary jobs. This percentage had dropped county -wide to about 12 percent in mid-1997, and slightly higher at 13 percent in Bend. Comparable employment growth has occurred within the Bend urban area. Although the Bend urban area had less than 43 percent of the county population in the mid-1990s, more than 70 percent of all the jobs in the county were in the urban area. This high employment percentage is not surprising for two reasons. First, Bend is a regional trade, service, and education center for a five county area and a tourist destination, so many jobs at all levels exist to serve these needs. Second, there are more than 15,500 additional residents within five miles of the UGB in rural subdivisions, and these "exurban" residents typically work, shop, and receive services in Bend. Table 16 shows the number of jobs in the county and the Bend urban area in 1996. Table 16 Bend Urban Area Employment (1996) Total Jobs Jobs in Bend UGB Bend UGB Type of Wage & Salary Job in County. Bend, as Percent Percent by - UGB of Total Job Type Agricultural/ Forestry / related(D 940 533 56.79/o 1.8% Mining and Construction 3,381 2,608 77.1% 8.7% Manufacturing 5,185 3,868 74.6% 12.9% Transport./ Communications /Utilities 1,777 1,208 68.0% 4.0% Wholesale Trade 1,362 1,056 77.8% 3.5% Retail Trade 9,954 7,210 72.4% 24.0% Finance / Insurance / Real Estate 2,394 1,544 64.5% 5.2% Services and Miscellaneous jobs(Z 14,610 10,458 71.6% 34.8% General Government 1,883 1,523 80.9% 5.1% Totals 41,486 30,011 72.3% 100.0% Source: Oregon Employment Department "Covered Employment' data for Deschutes County Notes: a) category includes U.S. Forest Service, BLM, landscaping, nursery work, and veterinary jobs © category includes public and private education, training, schools, and similar jobs • THE ECONOMI'AND LANDS FOR ECONOMIC GROWTH 6-3 Bend Area General Plan Additional information on employment levels, income, and Bend's economic climate are contained in background document titled Resource Material Part 3 - Economic Conditions prepared by the Bend Development Services Department. FORECASTS ti istorically, heavy manufacturing and resource extraction — the industries that provided the "primary jobs" in a community — have been considered the •a> ,.�. foundation for a strong local economy because they produce goods that are sold outside the area. Examples of such local industries include sawmills, pumice mining, and secondary wood product manufacturing, among others. These firms are important because they bring money into the community and are relatively immune to fluctuations in the local economy. But over the years, the national, state, and local economies have become less dependent on resource extraction and production for jobs that export goods and bring in money. As a result, the concept of primary jobs has broadened to include such diverse businesses as high technology products and software, tourism, business services (firms that provide services to other businesses), and some regional retail and medical services that serve regional markets. To keep pace with changing economic conditions the City of Bend, the Central Oregon Economic Development Council and the Bend Chamber of Commerce strive to recruit and retain or expand businesses that will position Bend for the next generation of jobs. The city, COEDC, and the Chamber's strategies for job recruitment and retention/expansion are described in the adjacent box. One of the key strategies is to recruit new primary job employers that have salary levels that will support a family. Local trends The Bend area economy will need to continue to adapt and evolve to remain strong and 6-4 THE ECONOMF'AND LANDS FOR ECONOMIC GROWTH � C7 t Bend Area General Plan competitive during first two decades of the next century. Local trends for the next several years include: ❑ the industrial sector, a major source of primary jobs, will continue to become more diverse as new medium and small manufacturing firms locate in Bend; ❑ a need for large industrial parcels to support expanding or new industries; ❑ as Bend grows it will continue to attract interest from more national or regional restaurants chains, motels, and large retailers; ❑ an expanding mix of large retail stores and specialty shops will solidify the urban area as the regional trade center; ❑ Bend's climate and natural beauty also will draw in businesses and entrepreneurs wishing to relocate from other areas; ❑ the relatively large percentage of middle-aged and young persons in the area will provide a solid work force base for new or expanding businesses; and ❑ the exceptional increase in new jobs in the 1990s in Bend is expected to slow to more normal levels over the long term. Employment increases The forecasts of future employment levels in the Bend urban area to the year 2020 were prepared by the city staff. The forecasts were based on: (1) county employment projections from the Oregon Employment Department; (2) forecast population growth in the urban area and rural portion of the county; (3) the continued expansion of Bend as a regional service, trade, medical, and education center; and (4) employment goals and strategies of the city and the Central Oregon Economic Development Council. It is forecast that Bend's share of future county -wide employment will increase slightly to about 75 percent of the total county employment during the planning period. The forecast of total full-time and part-time wage and salary jobs in the Bend urban area is shown in Table 17. Table 17 Bend Urban Area Employment Forecasts Year 2000 2005 2010 2015 2020 Jobs 38,320 45,500 51,570 55,880 59,400 Source: derived by city from Oregon Office of Economic Analysis forecasts for Deschutes County .go— THE ECONOMYAND LANDS FOR ECONOMIC GROWTH 6-5 s Bend Area General Plan The mix of future wage and salary jobs by sectors is forecast to be roughly the same as mid- 1990 levels, with a few changes. Roughly 16 percent of the 21,000+ new jobs are expected to be in the manufacturing field, about four percent above the mid-1990 level. Also, the percentage of jobs in mining and construction is expected to decline as the pace of growth slows. Land Needed for Economic Growth The city used historical land absorption rates, adjusted for future growth levels, to forecast land needed for economic development. The land absorption rates are considered by the city to be a more accurate method of forecasting land needs than job numbers based on population or jobs -per - housing ratios. Figure 25 Figure 25 below shows the annual absorption of industrial Land Absorption by Year and commercial land v� 70 'thin the Bend UGB so 50 m 40 Q 30 20 10 0 v during an 11 year period. These figures are from i tax parcels so they are net acres of developed land without streets and 87 88 89 90 91 92 93 94 95 96 97 utility easements. Year The demand for Ind. Avg. = 32.4 acres; Com. Avg. = 30.8 acres commercial and Industrial zones BE Commercial zones industrial land within the -..•}' :• •}:•tib .'};}•k.::::i..:ii4°xa''-2�•.•?.::uo•IG id.�:_�::$:G.:;:i< .,:,:::•�:<.�:A�:�:<.> urban area varies from Source: City of Bend Long-range Planning Department year to year rather than following a trend of steadily increasing need. Different factors such as development of "super store" retailers or the expansion or recruitment of a manufacturing firm can effect the annual figures. Although there has not been a straight trend -line increase in land needed each year, the long term historic pattern indicates an increase in demand as the population and economy grow. The land needed for future economic development, using the absorption rate of industrial and commercial lands as a guide, is shown in Figure 26 below. A planning horizon to the • r� 6-6 THE ECONOMYAND LANDS FOR ECONOMIC GROWTH FMI • • • • Bend Area General Plan . year 2020 was used to match the residential and population forecast period. re "26 INDUSTRIAL AND COMMERCIAL LAND NEEDS LAND NEEDED FOR INDUSTRIAL USES Average annual acreage use from 1987-1997 = 32.4 net acres Times a 23 year planning horizon (2020) = 745 net acres Add 10% for streets and utilities — 75 'acres Industrial land needed 1997-2.020. = 820 gross acres LAND NEEDED FOR COMMERCIAL USES Average annual acreage use from 1987-1997 Times a 23 year planning horizon (2020) Add 5% for streets and utilities Commercial land needed 1997-2020 Total land needed 1997-2020 Firms that are targeted for future development in Bend will need a variety of parcel sizes and settings in which to locate. The urban area industrial, mixed-use, and commercial designations provide a mix of parcel sizes, site amenities, and locations to serve a variety of new businesses and most of the target industries. Table 18 shows the estimated buildable acres as of the end of 1997. THE ECONOMY AND LANDS FOR ECONOMIC GROWTH 6-7 -. Bend Area General Plan • Table 18 Summary of Buildable Acres (1997) Figure 26 Buildable Acres by General Plan Designation Buildable Acres Needed . Forecast Acres (23 years' Categories Industrial Mixed -Use Commercial (1997) 1997-2020)' Industrial .................................................................................................................................................................................... 531 acres 54 acres --- 585 820 Commercial --- 133 acres 488 acres 621 745 Total 531 acres 187 acres 488 acres 1,206 1,565 Source: City of Bend Long Range Planning Division. based on 1yy-) tot -by -lot inventory and adjusted for parcel absorption in 1996 and 1997. Figures may not include all Parkway takings or other lot changes. The 1,206 acres of land for future economic development falls short of the 23 year forecast needs in Figure 26. Because of the expected rapid growth in the economy through the 1990s and into the next decade, and uncertainty about how uses will develop in the mixed use zones, the city will re-evaluate the industrial, commercial, and mixed use lands in more detail in 1999. 0 As Table 18 shows, the supply of industrial land in the urban area is limited and there is insufficient land to meet the forecast needs to the end of the 2020 planning period. As noted earlier, the goal to increase the percent of jobs in the manufacturing sector, along with the other job sectors that typically use industrial sites -- wholesale trade, transportation, construction, and utilities -- will push the need for more industrial land. This increase, supported by the market and the local economic development strategies, will require the city to plan for about 240 more acres of industrial land than were available in 1997. One site that will be evaluated for future development is the City's "Industrial Reserve" property adjacent.to the Urban Growth Boundary. Besides the shortfall in the amount of industrial land needed for the forecast industrial growth, there is a second concern about the lack of large industrial parcels. Much of the undeveloped industrial land planned to meet future needs has been held in large parcels until sewer service is available. As sewer service is extended into these areas, the large parcels are being subdivided into smaller lot industrial subdivisions to meet the predominant industrial demand. As these larger parcels are subdivided during the planning period there 6-8 THE ECONOMY AND LANDS FOR ECONOMIC GROWTH � • 170 0263 Bend Area General Plan will be fewer large sites available to meet the need of large manufacturing, assembly, or warehousing firms. There is no industrial land currently in the urban area that is set aside or "held" in large lot sizes for target industries that need 15, 20, or more acres for an operation. This lack of large private or public industrial sites puts Bend at a competitive disadvantage compared to other cities in the region, and could lead to Bend residents to commute to work in other cities. The city will need to evaluate public and private lands inside and outside the Urban Growth Boundary for areas that can be set aside in large industrial parcels. The amount and type of commercial land will also need to be periodically reviewed to make sure sufficient land is available. Continuing changes in the commercial markets, along with local factors such as how fast new commercial centers develop and the activity in mixed use areas, will effect the supply of land for commercial development. Industrial Designated Areas Most of the buildable land in the industrial designations is planned for light industrial or industrial park development, which is consistent with the shift away from the traditional heavy industrial uses such as mills and large manufacturing. All of the industrial areas are 0 close to arterial and collector roads to provide easy access throughout the community and inter -connections to the state highway system. The industrial lands by General Plan category are shown in Table 19. Besides the developed areas, one undeveloped area is included in the General Plan to help meet future industrial needs. This 95 acre site is just inside the west edge of the Urban Growth Boundary, and was part of a pumice and rock mining operation that ended in 1997. This site will be redeveloped for light industrial or industrial park uses, and will provide for industrial jobs on the growing west side of the urban area. No specific site boundary is shown on the Plan Map. This industrial land is part of a undeveloped 380 acre site that also includes commercial and residential uses. Until a master plan is developed for this site, only the approximate location for this industrial area is shown on the Plan Map. In addition, the Plan provides for another 60 acres of adjacent industrial reserve land in the Urban Reserve Area for long-term industrial development on the west side. There is one area within the UGB that is zoned for surface mining and has sufficient rock and mineral resources to be mined beyond the 20 -year planning period. Because there are several mineral resource mining and processing sites adjacent to the urban area, no other • da-0 THE ECONOMY AND LANDS FOR ECONOMIC GROWTH 6-9 U3 Bend Area General Plan area within the UGB is planned for resource extraction. Table 19 shows industrial lands by the three Plan designations, and includes the surface mining area. Table 19 Industrial Designations Plan Category Description Size Requirement Industrial Park provides for research and development facilities and minimum 1/z acre lot size; compatible light manufacturing in a park -like setting no maximum Light Industrial provides for heavier commercial and light industrial no minimum or maximum uses in built- up areas of the urban area size General Industrial provides for light and heavier industrial uses with a no minimum or maximum minimum conflict between uses size Mineral Extraction provides for the extraction of pumice, ash, and rock no minimum or maximum to serve the construction needs of the urban area development size Mixed -Use Designated Areas The Bend Area General Plan Map has two areas designated for mixed-use development. The largest area is along the Deschutes River south of downtown and is labeled as Mixed - Use Riverfront. This mixed-use area creates the opportunity for the redevelopment of old sawmill sites into more intensive urban uses in the core of the urban area. This designation and implementing zone allow for a mixture of industrial, commercial, and residential uses within a framework that protects existing uses and provides compatibility through a facility plan, master plan and design review process. A second area planned for mixed commercial and industrial development runs through the middle of the urban area. One area covers an older industrial and commercial area along NE 1st and NE 2nd streets. A second area is in a mixed development area along Highway 20 North. This land use category is labeled Mixed Employment, and recognizes the existing pattern of light industrial, commercial, and institutional uses in this area. It provides for land in the center of the urban area to be redeveloped to a more intensive mix of industrial and commercial businesses and employment that is consistent with the diversified economy of the urban area. 6-] 0 THE ECONOMY AND LANDS FOR ECONOMIC GROWTHIma.-I R q, • Bend Area General Plan Table 20 Mixed -Use Designations Plan Catep-ory Description Size Mixed -Use Riverfront mixed commercial, industrial, and 220 acres total; minimum residential development applied along the 10 acres for Master Plan river in area of old sawmills; special review standards Mixed Employment mixed light industrial and commercial No minimum acreage uses in areas that already exhibit a pattern of mixed development. * The division of buildable acres is based on preliminary development plans and existing patterns. The Mixed -Use Riverfront category has about 35 additional acres for residential development. The Mixed - Employment category is made up of lands previously planned and zoned for industrial or commercial use. Commercial Corridor Areas Much of the commercial acreage in the urban area follows the historic pattern of development along the state highways, along major arterial streets, and in downtown Bend. In the future, as in the past, the commercial development along the highway corridors will be oriented to tourist commercial services, other needs of the motoring public, and major retailers that serve the area residents. Although the General Plan recognizes the opportunity for redevelopment and infill along the existing corridors, it sets new expectations for site and building development that will benefit both the customers and the community. New developments along the corridors will be required to have a good site layout to serve vehicles, and to address pedestrian and bicycle needs as well. The large "super store" retailers may develop along the existing corridors, and the city will need to develop special standards to address the traffic and design issues associated with these large developments. The two main land use categories along the highways and main arterial streets are Limited Commercial and Highway Commercial. New commercial areas should be designed as centers rather than as an extension of the existing commercial strips. New Limited Commercial centers that are developed away from the state highway system should have uses that support local needs, rather than the needs of • THE ECONOMY AND LANDS FOR ECONOMIC GROWTH 6-11 Bend Area General Plan tourists or motorists passing through the community. Although commercial corridor development will be limited in the future, the appearance of such areas continues to be a concern. Additional landscaping and trees, plus widening or adding new sidewalks shall be encouraged. Because highway commercial areas are located on the Plan along major entrances to the community, special consideration shall be given to landscaping, setbacks, access, and signing. These areas will form the first impression of the community, and can have a significant impact on the traveling public. Commercial Center Areas Part of the land needed for commercial development will be met by new small commercial centers or stores as generally designated on the Plan Map.. These centers are intended to support residential neighborhoods and reduce vehicle trips or trip lengths by providing commercial uses near or within developing residential areas. These new centers could be on one parcel, or several parcels within a limited geographic area like the commercial area on Newport Avenue, and should have several of the characteristics listed below that avoid the problems and appearance of "strip commercial" developments: ❑ buildings closer to the sidewalk ❑ limited vehicle access points ❑ shared parking facilities ❑ parking distributed around buildings ❑ walkways for pedestrian access ❑ uses that serve the neighborhood ❑ smaller monument signs ❑ buildings on site in scale with each other The two main Plan designations for commercial center development are Neighborhood Commercial and Convenience Commercial. In addition, a 25 -acre Limited Commercial center is planned near the west edge of the urban area. This center is intended to serve residential growth on the west side of the urban area, and is part of a large undeveloped parcel. This site will be adjacent to Mt. Washington Drive, but is shown on the Plan Map with a general site designation until a master plan is developed for this commercial site and 0 6-12 THE ECONOMYAND LANDS FOR ECON0,I�IIC GROWTH � • <L�1«T� Bend Area General Plan related industrial and residential development. Neighborhood Commercial areas are intended to provide locations for small businesses and services that fit into the residential development pattern and provide a convenience to residents in the immediate neighborhood. Specific Neighborhood Commercial sites are not shown on the Plan Map, but are intended to serve residential areas within a five or ten minute walk. Such uses are appropriate in residential areas if the following conditions are met: the building design and site landscaping shall be similar to the residential pattern in the area; the site size is one-quarter to one-half acre; the site is at least one-half to three-quarters of a mile from another commercial zone; and there is a market study or other analysis that shows there is an adequate residential base or other conditions in the area that can support the use. Convenience Commercial areas are intended to provide for the frequent shopping or service needs of nearby residential areas. They will consist principally of a relatively wide range of small retail and service uses, the largest of which would be a grocery store. Uses such as a grocery store, drugstore, small bakery, specialty shops, and offices would be typical of these areas. It is expected that new convenience commercial areas will develop to serve the emerging and future residential areas, and will particularly benefit the rapidly growing portions of the urban area. New convenience commercial areas reduce the need for residents to drive to the existing strip commercial areas for all their shopping or service needs. Convenience Commercial areas should occur as centers on one or more properties together in a block or across the street from each other, rather than as commercial strips. Convenience centers should be located on arterial or collector streets, preferably at or near an intersection with another similar street, and have a site size up to five acres. In order that convenience centers remain oriented toward serving nearby residential areas and do not expand to serve much larger parts of the community, commercial building floor areas should be limited to 35,000 to 55,000 square feet. The building design and site design should be compatible with the surrounding neighborhood. They should be spaced from one to one and one-half miles apart, and new locations should be based on a market study or other analysis that shows there is an adequate residential base or other conditions to support the uses. . U THE ECONOMY AND LANDS FOR ECONOMIC GROWTH 6-13 Bend Area General Plan Table 21 Commercial Designations Plan Category Description Size Requirements Convenience Commercial provides for frequent shopping and service needs of nearby up to 5 acres residents maximum General Commercial provides a broad mixing of commercial uses in older, close -in none sections of the community Limited Commercial provides locations for a wide range of retail, service, and tourist 5-30 acres commercial uses in the community along highways or in new centers Highway Commercial provides for those uses that have large site requirements, or are none oriented to highway access, or provide services to visitors Central Business District only applied to several blocks of downtown Bend none Neighborhood Commercial provides location for small services and businesses that fit into '/4 to '/2 acre residential area and serve the immediate neighborhood maximum POLICIES General IA. After the General Plan update in 1998 the city shall resume its study of industrial and commercial land needs, land. supply, and allocation of future lands. Such study shall The study will include an evaluation of the "industrial reserve" site north of Cooley Road, and other potential industrial areas inside and adjacent to the UGB, and local/regional commercial centers. [added by BUAPC and staff after withdrawal of proposed UGB expansion; modified by City Council 9/2/98.1 Industrial Development 1. emmminity eff6rts shall be direeted toward The city shall work to preserve prime industrial lands for industrial purposes. [BUAPC edit 2/17/98] 2. The community shall retain its policy of attempting attempt to diversify its industrial base. [BUAPC edit 3/2/981 M-1 ARL 6-14 THE ECONOMYAND LANDS FOR ECONOMIC GROWTH • • U. Bend Area General Plani - t b 3. Industrial development that will not impair the quality of surface or ground water -or esourees is eneottraged. New industrial development will not violate state or federal su, face or ground water standa, ds or air quality standa,. Existing industrial operations shaH are encouraged improve waste discharge levels and improve air quality conditions. [BUAPC edits 2/17/98 & 3/2/98; CC edits 9/2/98] 4. Since it has been established that the quality of the air may be adversely affected by additional discharges, the development of new industrial sites will be closely monitored in cooperation with the DEQ to prevent substantial degradation of the air shed. 11 be : : : : [deleted 1 :ti, ILil, 0- rld : : i ; 1 1 1 . • BUAPC 2/17/98] 8. Industrial areas shall be protected from incompatible commercialand residential uses. 9. Industrial developments along highways shall be subject to special development standards relating to setbacks, landscaping, signs, and outside storage. 10. Wherever industrial uses abut residential uses or residential zoning, special development standards relating to setbacks, screening, signs, and building height shall be established. 11. Community efforts should be directed toward improving the general appearance of industrial areas so that they make a positive contribution to the environment of the community. 12. Eontintfing eff-orts shall be made to upgrade the appearanee of existing industrial areas and to eliminate adverse waste diseharge and air quality eonditions. [deleted by BUAPC 3/2/98; part added to policy #3] I* - 0 THE ECONOMYAND LANDS FOR ECONOMIC GROWTH 6-15 Bend Area General PW" ' o z 7 0 13. The sawtooth pattern symbolized on the General Plwi map indieates a fie boundary between tts [deleted by BUAPC 3/2/98 & directed staff to include in Plan text or on Map] 14. Development of the industrial lands at the West edge of the urban area between Skyliners Road and Shevlin Park Road shall be limited to the Industrial Park land use category to minimize additional heavy truck traffic on Newport Avenue and Galveston Avenue. 14A. The 95 acre industrial area at the West edge of the urban area shall be designed and developed as part of an overall master plan for future industrial, commercial and residential development between Skyliners Road and Shevlin Park Road. [added by staff 3/98 based on CAC and BUAPC discussions. ] Mixed Use Development (policies 417 & 418 added by Citizens Advis. Comm.; policies 419 & #20 added by staff on 2/7/97) development15. Mixed-use :: .. to f�eifity plair, master plan, and d v processes tat ensure. a) that uses ;, developmentbetween incompatible - s- " --a-ft"U-1.1-i-LY-0of, development with the natural features of the site; and, e) dhat d: developed[BUAPC addition 3/2/98; combined into 16A at direction of City Council 9/2/981 16. Offeas designated as mixed ttse along flhe ..,-.r sit".11 be designed and :. .: 0 foster pedestrian :,: other non--inotor • ensure functionally --coordinated, aesthetieally pleasing and eohesive site plarming and • ensure compatibility- of mixed -ase development with the surrounding area impaets associated;, :. 0 eneourage aecess to, and enjoyment of, the Desehutes River. [combined into # 16 A below at direction of City Council 9/2/98] 6-16 THE ECONOMYAND LANDS FOR ECONOMIC GROWTH • Bend Area General Plow® - 0271 1 6A. Mixed-use development alon�the river in the old mill sites shall be subiect to facility plan master plan and design review processes to achieve the following purposes: provide a variety o f emplo my ent opportunities and housing types faster edestr an_and_other_non-motor_vehicle--- ccesswithin_ and _tothe site,_ _• ensure com�atibilit� of mixed-use development with the surrounding area and minimize off-site impacts associated with the development, • ensure the site planning, access parking areas and building designs are functionally coordinated and aesthetically pleasit and i improve the natural conditions along the Deschutes River, and to encourage ® access to and enjoyment of. the Deschutes River. [merge of # 15 & # 16 by staff at direction of City Council 9/2/981 17. Designation of the Mixed -Use Riverfront Plan category and corresponding MR zoning along the Deschutes River shall not be used to justify rezoning adjacent roperties or neighborhoods to a mixed use or commercial zone. 18. The property south of Cooley Road between Highway 20 West and the Mountain View Mall, as shown on the General Plan Map, shall be designated for mixed industrial and commercial development. Because this area is along the state highway and is an entrance to the community, it shall be subject to access controls and design review standards. 19. The area west of Highway 97 North and north of Empire Avenue, as shown on the General Plan Map, shall have a mixed-use designation for industrial and commercial development. Properties in this area shall take access from the frontage road or other internal roads that are shown on the transportation plan. Because of the high visibility of these properties, they shall be subject to design review standards. 20. The area of existing industrial and commercial development in the middle of the urban area north of Franklin Avenue to Addison Avenue shall have a mixed use designation for industrial and commercial development. Commercial Development 21. The existing pattern of commercial designations shown on the Plan Map along Highway 97 and Highway 20, and along arterial streets such as Newport Avenue, Galveston Avenue, SW 14th Street, 27th Street, and O.B. Riley Road shall not be extended farther along the street corridors. • FoTHE ECONOMY AND LANDS FOR ECONOMIC GROWTH 6-17 - Bend Area General Plarn 7 o - o z 7z .11 22. No new strip commercial development or extensions o0 f the commercial designations shall be permitted along arterial or collector streets. [staff edit 9/29/98] - • :. ::: [deletedlandseaping along the street frontage d landseaped median strips within the str right-of-way in order to soften the appearanee of existin. . a! developments by BUAPC•8 23 The city shall strive to retain and enhance desirable existing commercial areas and to -sapper encourage property owners efforts to rehabilitate or redevelop older commercial areas. [drafted by staff 2/18/98 at direction of BUAPC; City Council edit 9/2 98] 24. Zoning for commercial centers other than those shown on the Plan Map shall meet the location and size standards in the Plan text in addition to the Plan amendment and/or zone change criteria. 25. All commercial developments shall be subject to special development standards relating to setbacks, landscaping, physical buffers, screening, access, signs, building heights, parking areas, and design review. 0 26. The city and county shall encourage the development of Neighborhood Commercial centers. Neighborhood eommereial Such centers shall be small, one- quarter to one-half acre developments which serve the frequent needs of the people within a one-fourth to one-half mile radius of the site. A zone change request shall meet the standards in the Plan text. [changed by BUAPC 2/17/98] 27. Convenience Commercial centers should be up to five acres in area and be from one to one and one-half miles from another commercial use. meet & standwds in the Plan te [deleted by staff 9/29/98] 28. Commercial developments that abut residential zones or residential uses shall be subject to special setback and screening provisions. 29 a effort should b made to 1 GV11Q11GG The citx shall continue the revitalization, rocess in the Central Business District through rehabilitation or M 6-18 THE ECONOMY AND LANDS FOR ECONOMIC GROWTH • • Bend Area General Plan 1 70 ,. 0 27 3 redevelopment of existing areas. [City Council edit 9/2/981 30. The maximum building height in commercial areas shall be 70 feet. three-storie height (45 feet) to retain the character of the area and pr s of the mountains. [changed by BUAPC 3/16/98; City Council edits 9/16/98] 31. An area south of Murphy Road on the west side of Highway 97 has been marked for highway commercial with a flexible "sawtooth" boundary. This area shall be approved for development only when a system of frontage road and limited access control is created that will protect the capacity and safety of Highway 97 and South 3rd Street. 32. It is the intent of the Plan to allow commercial development adjacent to arterial streets and highways in areas designated for commercial development, provided that the developments access onto frontage roads or interior roads, and that access onto the highway or arterial will be limited. Points of access will be encouraged that provide for adequate and safe entrances and exits, and that favor right turns and merging over the use of traffic signals. • 33. The 25 acre commercial area at the West edge of the urban area shall be designed and developed as part of an overall master plan for future commercial, industrial, and residential development between Skylines Road and Shevlin Park Road. [added by staff 3/98 based on CAC and BUAPC discussions. ] 34. The city should plait for and support efforts to bring high density residential development as a secondary use to the Cent, a! Business District, Nfixed-use Riverfront a, ea, and other commercial dish icts. Such efforts ntay include i efinentent plans, financial incentives, use of redevelopment tax increntent finalicing funds for supportive infi astructure, relaxed parking requirements, and/or cooperative parking const, action to serve coininercial district residei [added by BUAPC 4/6/98; deleted by the City Council 9/2/98] P**1X file name is Q:\NEWPLAN2\COUNCIL6.DFT Drafted July 1996 Last Edit: September 29, 1998 • F3 THE ECONOMY AND LANDS FOR ECONOM/C GROWTH 6-19 • • BEND AREA GENERAL PLAN, CHAPTER 7: TRANSPORTATION SYSTEMS TABLE OF CONTENTS PREAMBLE ................................. 1 GOALS..................................... 2 PLAN BACKGROUND ........................ 4 TRANSPORTATION AND LAND USE ............ 8 TRANSPORTATION SYSTEM MANAGEMENT ... 11 TRANSPORTATION DEMAND MANAGEMENT ... 11 STREET SYSTEM ........................... 12 PEDESTRIAN AND BICYCLE SYSTEM .......... 33 TRANSIT SYSTEM .......................... 39 AIR AND RAIL SYSTEM ...................... 42 PIPELINE SYSTEM ........................... 43 TRANSPORTATION FINANCING ................ 43 TRANSPORTATION OBJECTIVES & POLICIES.... 45 TABLES AND MAPS 0 27 4 CITY COUNCHLIBOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER, 1998 • • x.70 -ozr5 PREAMBLE end residents cherish the clean air, pristine mountain views, small town charm and livability of their city. Our community seeks to retain those assets for generations to come. The Transportation Plan for the urban area plays a major role in determining how well we sustain those qualities. This Plan delineates a balanced and well- designed transportation system that is integrated with the diverse goals of the community and provides citizens a range of choices. It seeks to ensure that residents and visitors, with or without an automobile, can enjoy all of the city's amenities and services. The transportation system must be attractive, convenient and preserve the qualities that make Bend a special place to live. (Place Picture of Drake Park Trail Here) Figure 27. Part of Bend's river trail system follows the edge of picturesque Mirror Pond Photo by: City of Bend TRANSPORTATION 7-1 r 7 a -r n � fi Bend Area General Plan GOALS Goal Statement he transportation system that serves the Bend urban area must meet a complex set of community needs. The interrelated success of the economy and livability of our community depends upon the ability of the transportation system to effectively move people and goods, and to provide access to services and places of employment, while not disrupting the continuity and aesthetics %J the community. Completion of a multi -modal road network, trail, and transit system will help to achieve a balanced transportation system and reduce automobile reliance. This, combined with the development of compact community design and the integration of land uses, will provide a strategic approach to fulfilling the transportation needs of the future. Implementation of the transportation plan must be coordinated so that resources are allocated in an equitable and cost-effective manner. The transportation system will be developed with enough design flexibility to meet the needs of the multi -modal road network, trail and transit system will help to achieve a balanced transportation system and reduce automobile reliance." urban area, as well as to be sensitive to important community values such as aesthetics, preservation of neighborhoods, natural features and other quality of life criteria. It is therefore essential that the goals, objectives and policies of the Transportation Plan provide community assurance that safety, accessibility and mobility will be provided for all users. 7-2 TRANSPORTATION 16 t • U 170 - 0277 Bend Area General Plan Plan Goals ✓ Mobility and Balance: ♦ Develop a transportation system that serves all modes of travel and reduces the reliance on the automobile. ♦ Provide a variety of practical and convenient means to move people and goods within the urban area. ✓ Efficiency: ♦ Address traffic congestion and problem areas by evaluating the broadest range of transportation solutions. ♦ Coordinate and design transportation improvements to assure the expenditure of resources in the most cost-effective manner. ♦ Encourage the development of land use patterns that provide efficient, compact use of land, and facilitate a reduced number and length of trips. ✓ Accessibility and Equity: ♦ Provide people of all income levels with the widest range of travel and access options within the Bend urban area. ♦ Provide all transportation modes access to all parts of the community. ✓ Environmental: ♦ Recognize and respect the natural features over which transportation improvements pass to minimize adverse impacts. ♦ Design transportation improvements to preserve air and water quality, minimize noise impacts, and encourage energy conservation. ✓ Economic: ♦ Implement transportation improvements to foster economic development and business vitality. ✓ Livability: ♦ Design and locate transportation facilities to be sensitive to protecting the livability of the community. ✓ Safety: ♦ Design and construct the transportation system to enhance travel safety for all modes. TRANSPORTATION 7-3 170 - 0278 Bend Area General Plan PLAN BACKGROUND History The earliest roads of Bend formed along the main trails blazed by early settlers. These roads typically traced the shortest and easiest path between important destinations. The road alignments tended to follow the lay of the land, and were often based on making easy river crossings or routing around large or rough land forms. As the town became established and the community grew, the rural areas were defined by a system of farm - to -market roads that crisscrossed the countryside most with Bend as a common destination point. Much of Bend's current road system is the outgrowth of the platting that first occurred from 1905 to 1920. These plats were organized and based largely on the system of township and range section lines. Today's transportation system is a blend of turn of the century roadways, the uniform grids of the early 1900s (Figure 28B), and the more recent curvilinear streets with cul-de-sacs. Figure 28A. Early two-way traffic on downtown Wall Street The roadways important to early Bend were those routes between the neighboring communities and to other parts of the state. Today these roadways are recognized as highways of primary statewide significance and are designated as U.S. Highways Route 97 and Route 20. Highway 97 is the main north -south highway east of the Cascades and Highway 20 is one of the main east -west routes through the state. These roadways continue to carry the highest traffic volumes through Bend. Travel Changes raffic volumes on most roadways in the community have risen over the years as land use patterns, employment and household sizes have changed. The community has responded with new roadways to meet these changing needs. The opening of Wilson Avenue from 15`" Street to Division Street, in the 1970s, lowered volumes on Franklin Avenue. The development of Colorado Avenue, in the 1980s, relieved Franklin/ Riverside/14`" volumes and created some alternatives for Mt. Bachelor traffic. The Butler Market extension and the connection of Mt. Washington Drive to Highway 97, in the early 1990s, have provided a new east -west route. Completion of Brookswood Boulevard and the Baker Road interchange, also in the early 1990s, provided an alternative north -south corridor to Highway 97. It is anticipated that traffic volumes on many arterials will continue • to increase and new facilities and services will be needed. • 7-4 TRANSPORTATION 0 • • r 170 -0279 Bend Area General Plan •— Ir►z tNAI• 'Cut_ l'I.,-y cls m 0 11 G ON � i...J r' itUPI� LS) 1St' � � t xYt. � t� --� � 1 < 1 ! ..r � �i s ti° ' � M � (� � .a. `•_sIr Bbl bµ r . f {� 1DSi x,• ,� a rew z n i s a Mfr Y0 I n fi, a:w Aa ars R �a�•i ''� y, { .S 4� .. w + " �>Il "41 r 4t w ...+a 'i s s ,' •s dF .. w a `t s _ 1 " I s l � i � ' , �7 i 3 Ilj f sh a �,�.*" . ✓ „� �k ,: � � +� µ 41 � � v ' � kyiy � i 4r b1 7 � ' ! � > �'�.' L � w f . Sx �t'� 1. Y h �?'• r st., rra bF {y ,�< ..� �E.y , �... {i :.Rr p 44 t1 t� s y�'• ��4 . ��p � r � �t�x +.D ��{ �"�" '�i r° � 1� ` �,'� I � • '� f; � ¢a. ��r a�«+� z'`' rrt. to � kid !Y� ml.'�d' ° .•i 3C.: r. �?�k ,w.Tl !� { t ,�...._._;r.-.-..-, .,.,u,� Im Figure 28B. Bend, Oregon 1912 TRANSPORTATION 7-5 170 - n280 Bend Area General Plan Since 1990, Deschutes County has been one of the fastest growing counties in the state. Much of this growth has been concentrated within the Bend urban area. (See Chapter 4, Population and Demographics.) Also, motor vehicle travel in the county has increased at a 10 rate that is faster than the population growth. This is a phenomenon that is occurring across the country. [One indieater of the 14 -se in aute use is evideHeed b�; thefaet that there aF new fnere vehieles than people in Desehutes ] [Edited by staff 9/30/98] Planning for the Future end is having difficulty keeping up with its growth in traffic. The Bend Parkway will provide an improved north -south travel route within the urban area. However. the Parkway will not solve all of the community's transportation problems. Transportation deficiencies continue to include a lack of �fflns-it public transportation, an incomplete system of sidewalks and bike facilities, limited river and railroad crossings, and poor levels of service at some major intersections. [Edit by City Council on 9/2/98] To update the Transportation Plan, the city undertook studies on several major components of the transportation system. The off-road trail system was updated (Resource document: Bend Urban Trails Plan, June 1995), an evaluation of transit feasibility was done (Resource documents: Bend Urban Area Transit Feasibility Study, August 1994 & June 1996) and computer modeling analysis of different road, bike, pedestrian, transit and land use alternatives was completed for the Bend urban area (Resource document: Bend Area Travel Demand Forecasting Model, July 1996). This work was coordinated with and supported by the state and county. Citizen advisory groups assisted in the preparation of these studies. Development of the Transportation Plan used 20 -year projections and the distribution of land uses shown on the land use map as the basis for projecting the needs of the transportation system. The city updated its traffic model (EMME/2) based on this planning horizon projection and analyzed a no -build, a no -build plus alternative modes (pedestrian, bike, transit system and demand management techniques), a roads only, and the recommended alternative that combined attributes from all of the alternatives. [Minor edits by staff on 9/23/98] Under state law, the city and county agreed on a coordinated population forecast for the area within the Urban Growth Boundary (UGB). The city must maintain a 20 -year supply of developable residential lands to meet this population forecast. To determine the city's needs, land supply was analyzed including a survey of vacant lands. This analysis indicated that the majority of new growth will be accommodated on these vacant lands. This will create, within the UGB, an overall density forecast increase from 1229 persons/square mile, in 1995, to 2112 persons/square mile, in 2020. [Minor edits by staff on 9/23/981 The Transportation Plan improvements include the construction of missing links of arterial and collector streets and the street widening delineated in the combined alternative. The majority of these facilities will be built as development occurs. [The • 7-6 TRANSPORTATION • 171 170 0281 Bend Area General Plan pereent.] The amount of travel mode shift is dependent on completion of the missing arterial and collector links, the missing segments of bikeway and sidewalk facilities, and the implementation of a [tmnsitl public transportation system. This plan minimizes the environmental, economic, energy and social consequences of the transportation system. [Edits by staff on 9/23/98] The Transportation Plan includes a range of strategies to address both existing problems and future growth. These include roadway improvements, transportation system management, transportation demand management, bicycle and pedestrian facilities, and [mss] public transportation. The Plan is organized to address these transportation system components separately. It begins with goals, followed by separate sections that discuss the various transportation strategies. [Edits by staff on 9/30/98] TRANSPORTATION 7-7 I 7Q - n7u7 Bend Area General Plan TRANSPORTATION AND LAND USE he Bend Area General Plan is a comprehensive plan developed to meet the requirements of the 14 applicable statewide goals, state statutes and rules adopted by the Land Conservation and Development Commission (LCDC). The Transportation Planning Rule (TPR) requires Bend to prepare a Transportation System Plan (TSP). The goal of this rule is to bring about changes in the transportation characteristics of the community, particularly by reducing the number of single -occupant vehicle trips and the number of vehicle miles traveled. Chapter 7 of the General Plan provides the policy framework for planning transportation systems of the community while the TSP is a separate document that further defines transportation strategies, standards and technical details necessary to guide the implementation of the plan. There are essentially three ways, defined by the TPR, to effect changes that will reduce automobile reliance. They are all closely interrelated: (1) making changes in the structural elements: of the transportation system, (2) making changes in land use patterns to reduce the need for automobile travel, and (3) encouraging changes in citizen behavior. Structural changes can include building facilities attractive to alternative modes - bike, pedestrian and transit. By altering land use relationships, auto trips can be made shorter and less frequent, and pedestrian, bike and transit use will be more likely. Behavioral changes can be affected through the use of incentives and disincentives. Incentives to reduce automobile use include restrictions on parking, pricing parking, giving preference to car pool and van pool parking location, congestion, and raising gas and auto use taxes, among others. During the preparation of the General Plan update and the TSP there has been much discussion about "the transportation/land use connection" and how this could affect the need for new facilities. The new General Plan takes into account changes to planned land use and the facilities needed to support these land uses. The General Plan is based on a population and economic forecasts for the next 25 years. The analysis of the land needed to accommodate the expected population increase has resulted in a decision not to expand the UGB for residential purposes. b44e, the am .' w fittune industrial uses. � Within this context, plans for public facilities (sewer and water facilities) were revised to accommodate the expected growth. [Edited by staff on 9/23/98] The transportation plan projects a modest shift to alternative modes during the planning period. This is based on a number of factors: (1) Improving walking and bicycling conditions, including the implementation of a transit system, completion of a sidewalk system, completion of 68 miles of bike lanes and the development of 35 miles of off-street multi -use trails. (2) Changes in the organization of land uses, including the completion of a mixed-use riverfront zone and development of [sk] mixed-use neighborhood centers. (3) Changing driving behavior through active use of car and van pools, pricing of downtown parking, and other demand management and system management techniques. [Edited by staff 9/30/98] 7-8 TRANSPORTATION • • LJ • 170 - 0283 Bend Area General Plan Computer modeling of the transportation system has illustrated that an acceptable level of service can be achieved with the completion of the planned improvements to the street network and other modes of travel delineated within the Comprehensive Plan. However, it should be noted, some parts of the road system will be reaching capacity over the 20 -year planning period and future analysis may be necessary to address solutions to these potential problem areas. These capacity problems appear primarily on the east -west routes across the community and the river crossings. [Minor edits by staff on 9/23/98] Various changes appear in the updated General Plan that will improve the transportation and land use connection. The following is a brief summary: [Minor edits by staff on 9/23/98] ♦ Managing Growth: Managing growth and [ iwit ng pr -6," 12roviding for urban level development is an important function of the Plan and its Urban Growth Boundary (UGB). Tl, s ffE&aff grewth • ill be een t in ] The Plan further stipulates policies that guide where and how growth will occur in order to foster an efficient transportation system. New development is directed to areas where infrastructure is available or can eeeu at least eest� where new development is ,-egti red t^ shall pay the € i4 cost of providing urban services if it occurs ahead of planned capital improvement projects. i. Ae plan ^^nr areas.'for the de�wlepfflew ef kqnd-s Mat have urban seFviees. btkwe the awensien of these se, -We te new Expansion of commercial strips along arterial streets is also prohibited by plan policies. This will reduce the potential to generate land -consumptive retail uses along the arterial street system that often foster the continued development of auto -dependent land use designs. [Edits by staff and as directed by City Council on 9/2/98] ♦ Integration of Land Uses: One significant change, to the community and to the Plan, was the recent conversion of the Old Mill area into a [fid-�p ;NUJ mixed-use development with commercial industrial and residential development. The new Mixed -Use Riverfront (MR) Zone has replaced over 200 acres of formally industrial zoned properties with more intensive urban uses. Residential, retail and employment development, in the heart of the community, will enrich the area by providing an improved, housing and jobs mix that is easily within walking distance of the downtown, residential and other community amenities. Another similar change advocated in the new Plan, is the establishment of approximately 100 acres of the Mixed -Use Employment (ME) Zone. This new land use category will provide more land for a mix of industrial and commercial development. Each of the areas designated for mixed-use zoning have been located centrally in the community alcng important arterial street systems, to minimize the need for new roadway construction and to facilitate reduced trip activity. Both zones, by design, will encourage walking activity and are (or will be) easily accessible by transit service when it becomes available in Bend. TRANSPORTATION 7-9 Bend Area General Plan Commercial centers are also called for in the Plan. The provision for Neighborhood and Convenience Commercial zones throughout the community offers opportunities to better integrate shopping needs within close proximity to residential areas. The development of these areas will also provide convenient shopping within walking distance of neighborhoods and shorter driving distances for meeting basic consumer retail needs. In addition to the commercial zone designations, multi-family zoning will also now be permitted within the immediate area of these commercial centers. This change further fulfills the objective of increasing densities within the urban area and thus reducing some trips and the length of others. ♦ Encouraging Compact Form and In -fill Development: In order to promote the development of a more compact urban form, there have been a number of changes to the commercial and residential elements of the Plan. In Planned Unit Developments (PUD's), subdivisions and multi -family housing projects, allowances are now permitted for calculation of density. These S fit calculations exclude areas that cannot be built upon, such as: open spaces, steep slope areas, wetlands, etc. This builds greater flexibility and enhances the development of potentially difficult properties. Also, accessory dwellings and a new 4,000 square foot lot size are new ermitted may be allowed within new residential subdivisions. Each of these measures adds flexibility to achieve greater density requirements while enhaneing livability, a encouraging more compact urban form in new residential areas. [Edits by staff and as directed by City Council on 9/2/98] ♦ Public Facility Siting: The Plan provides public policy that encourages the siting of is schools and parks jointly so that economies of scale can be achieved with less demand for larger tracts of land. Also, schools and parks are encouraged to locate within convenient walking distance of residential areas served by those facilities. Public buildings and facilities are also encouraged to be conveniently located to provide maximum service for the greatest economy. In this regard, government offices are encouraged to be located specifically in the downtown. ♦ Trip Reduction: Various policies of the General Plan, in addition to the many bike, pedestrian, transit and non -automobile components articulated in this Transportation Chapter, further reinforce trip reduction efforts throughout the document. In particular, the policies of the Housing and Residential Lands chapter of the Plan reinforce the connectivity of streets, the construction of bikeways and the provision of sidewalks in residential areas. • 7-10 TRANSPORTATION T 7D fl9uti Bend Area General Plan TRANSPORTATION SYSTEM MANAGEMENT (TSM) ELEMENT ransportation System Management (TSM) improvements are intended to optimize the carrying capacity of roadways. TSM improvements can alleviate congestion and reduce accidents by minimizing the number of access points and turning movements, and by creating separate turning and merging lanes. Other TSM measures include controlling the location of driveways, constructing raised medians, on -street parking prohibition, signal construction and timing synchronization, and intersection corner improvements that facilitate easier turning movements for large vehicles. [Minor edits by staff on 9/23/98] By focusing improvements on congested intersections or areas that otherwise disrupt the flow of traffic, TSM improvements can provide a lower cost alternative to widening roadways (between intersections) and protect the function of roadways. TSM strategies are easiest to implement where they can be constructed along new or developing transportation corridors (e.g., along the East 27`" Street corridor). Conversely, creating turn limitations and access control along fully developed transportation corridors requires a significant adjustment by the motoring public and businesses affected by these changes. It is important that public agencies work cooperatively with impacted businesses to fully evaluate access alternatives and to minimize economic hardships that may be created by new circulation patterns. It is important that TSM improvements account [e] for the needs of all modes of travel, particularly that pedestrian, bike and transit movements, and safety are not compromised in exchange for improving roadway capacity. TRANSPORTATION DEMAND MANAGEMENT (TDM) ELEMENT ransportation Demand Management (TDM) strategies focus on altering driver behavior and mode choice to lower the demand on the street especially during peak travel times. Common measures to reduce the number or alter the timing of peak hour vehicle trips include: compressed or flexible work schedules, ridesharing, use of transit, bicycle or pedestrian commuting, parking management, or actions that reduce the need to travel, such as working at home and "teleworking". TDM programs complement other transportation planning strategies and goals that are aimed at preserving livability and reducing single occupant vehicle travel. Successful programs can be measured by an increase in vehicle occupancy rates and reduced vehicle miles traveled. Demand management strategies often involve an education and promotion effort to encourage changes from single -occupant driving behavior. Local government can help to educate the public regarding the actual costs of travel on the transportation system and encourage TDM programs to reduce system demand. Community -wide events can also encourage employees to participate in TDM efforts by promoting alternatives to driving TRANSPORTATION 7-11 1 7n uf)oa Bend Area General Plan alone. Together, these efforts can make important strides toward improving public awareness regarding travel alternatives. [Wording added by the BUAPC on 4/13/981 Demand management programs work best where there are heavily congested corridors, clear work trip travel patterns, limited parking, and the provision of viable alternatives to driving. Experience from successful demand management programs indicates that other important factors include development of quantifiable goals and periodic evaluation, demand management coordination, industry involvement, parking management, employee and employer incentive programs, and strong public support. Thus, transportation demand management strategies require a concerted community effort and commitment in order to fulfill the greatest trip reduction potential. THE STREET SYSTEM he street Ay ] network is the basis of the Transportation [P46mjsystein. It provides the framework for serving most anticipated modes of transportation and the planned land uses. The street system is composed of a wide range of arterial, collector and local streets. It has been developed to meet the goals and objectives of the Plan. The arterial and collector street network is illustrated on the Bend Urban Area Street System Map (Figure 39 40.). This Plan is based on an evaluation of needs for a 20 -year planning horizon (Resource document: Bend Area Travel Demand Forecasting Model Update, July 1996). The Plan also accounts for system needs beyond the planning period And the need to preserve certain corridors for the future. The Plan is based on a conventional functional classification system. This functional classification system provides a basis for the location and function of roadways shown in the Plan. The major street system consists of multi -modal transportation corridors providing space for sidewalks, bike lanes, transit routes, and motor vehicles. [Edit by staff on 9/23/98] The circulation plan designates a system of major streets that are necessary to move people and goods safely and conveniently within the urban area. The system is depicted on the Street System Map as expressways, principal arterials, major and minor arterials, and major collector- streets. In many instances, the alignments depict a generalized corridor, and precise alignments will be determined after further study and engineering analysis, or during the development of vacant properties. The road system is based generally on a spacing of one mile for arterials and one-half mile for collectors. Precise alignment for these streets must be defined as development occurs. In some areas, additional collector or arterial streets beyond those shown on the plan map may need to be established as the community grows. The location of additional major streets would be established by the city and eeunty as part of the land development process and Street System Plan amendments made as necessary. • 7-12 TRANSPORTATION 17® --Q287 Bend Area General Plan Most right-of-ways for major streets in developed areas will be minimums because of the . tremendous costs of acquiring abutting land. However, in many cases, slight increases in right-of-ways can be obtained without damage to adjacent uses. It is extremely important that adequate right-of-ways be secured as development or redevelopment occurs along these designated corridors to protect these future roadways. Roadway Classifications ♦ Expressways: Expressways are roadways designed to carry large volumes of traffic with limited traffic flow interruption. No direct property access is allowed. The Parkway is being designed with limited roadway access to preserve capacity and provide improved safety, and to accommodate the travel needs of the Bend community. 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. This corridor and the existing East 3rd Street will provide system capacity to meet needs of the 20 -year planning horizon. The corridor will provide for both through trips and trips within the urban area. The Bend Parkway, is a 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 traffic safely and efficiently between geographic areas within Oregon and between Oregon and adjacent states. The Parkway is an integral part of the urban area transportation grid. The Parkway is the only exnresswaplanned for the urban area. [On 9/2/98, City Council directed staff to only list in the plan each section of roadway that fit the functional classification definitions — with the more detailed descriptions of arterial streets to be contained in the Transportation System Plan.] [The following text (strike -out) to be moved to the Transportation System Plan]: existing 14ighway 97. Ae Parkway eenneets with the existing A�ghway' 97 South ef'Wurphy Read, L�qen eeniplefioii, the U.S. Highway, 974esignatio;f will Hleveftenf the e��ting F�-a y, eeun�,,, and the state have developed an TRANSPORTATION 7-13 !' • • Bend Area General Plan streets pass- under the •- - Several city street segments will be critical to the efficient function of the Parkway and careful review of development proposals and the regulation of access points along these streets is essential to protect the integrity of the expressway. Initial project construction will include the placement of raised medians along the first block of some of these streets to ensure safe and efficient operation of the Parkway. Also, as properties redevelop along Is these corridors, site access will be required to orient to the adjacent alleys or side streets and not directly to the Parkway access streets. ♦ Principal Arterials: The principal arterials in the Bend urban area include all portions of the state highway system except the Parkway (an expressway) and Century Drive (a minor arterial). The principal arterial roadways include The Dalles-California Highway and East 3rd Street (U.S. Highway Route 97), the McKenzie -Bend Highway (U.S. Highway Route 20 - "to the west") and the Central Oregon Highway (U.S. Highway Route 20 - "to the east"). These are primary highways providing important roadway transportation linkages to Bend. The 7-14 TRANSPORTATION •- ♦ Principal Arterials: The principal arterials in the Bend urban area include all portions of the state highway system except the Parkway (an expressway) and Century Drive (a minor arterial). The principal arterial roadways include The Dalles-California Highway and East 3rd Street (U.S. Highway Route 97), the McKenzie -Bend Highway (U.S. Highway Route 20 - "to the west") and the Central Oregon Highway (U.S. Highway Route 20 - "to the east"). These are primary highways providing important roadway transportation linkages to Bend. The 7-14 TRANSPORTATION 17U 0289 Bend Area General Plan principal arterial system also carries high levels of truck traffic. Most of the trips on the principal arterial system are destined to, or have stopovers in Bend. However, a small portion of the trips traveling these corridors has a regional or statewide destination and pass through the community on these arterials without stopping. The principal arterial system serves a statewide role and there are specific design, access management, and level of service requirements established by the Oregon Department of Transportation. These requirements are articulated in the Oregon Highway Plan, The Plan emphasizes the need to meet the functional criteria of the state system and the principal arterial system will also need to fulfill the city's need to maintain a functional street grid network for the urban area. [The following text (strike -out) to be moved to the Transportation Systems Plan]: to G, een�vee,44vetiue and tums east. �,�qen eemplefieti, the Parki+,qy will be designate 20. East „ 14 sp-eet, TRANSPORTATION 7-15 17U - 0292 Bend Area General Plan Principal Arterial - Transportation System Management Strategies: Highway access: Access management, specifically the type that restricts driveway access points, is a technique that can bolster system capacity and improve highway safety. However, the construction of improvements that will limit left turn movements must be sensitive to existing development that relies on the convenience of roadway system access. Thus, the -city and state should work cooperatively with businesses along the principal arterial street corridors to develop access management plans that will achieve the desired transportation system results and still fulfill business needs. Signal Spacing: Traffic signals and coordinated timing plans can improve or optimize traffic flow by providing a better grouping or "platooning" of traffic along arterial street corridors. Traffic signals can also improve gaps in traffic flow that facilitate access to the arterial system at intersecting streets and driveways between the signalized locations. It is therefore important that the location of traffic signals follow consistent spacing standards in order to fulfill the greatest system benefit. Traffic signals should not be utilized as a tool to facilitate i access to selected land uses, such as high-volume, commercial land use trip generators, but as a part of an overall coordinated transportation system planning tool. In most cases, this will limit the location of traffic signals to intersecting arterial and collector streets. ♦ Major Arterials: Major arterials are intended to serve as routes for travel between areas of major traffic generation and major activity centers. Trip lengths are commonly longer in nature along the major arterial street system. To fulfill this function, major arterial streets are normally spaced at -1-2 mile intervals. A greater emphasis on access control will be sought on these facilities. Effort will be made to limit left turn movements on these roadways to controlled locations through the construction of raised medians. Some segments of the major arterial street system may be constructed to four- or five -lane street widths, particularly at intersections to provide dedicated turn lanes, and sufficient right-of-way corridors (i.e., 100 feet wide) should be acquired for this type of future street design. Major arterials in the Bend urban area system include: Reed Market Road (east of Blakely Road), Empire Avenue (east of Highway 20/97) and East 27th Street (north of Reed Market Road). C, 7-18 TRANSPORTATION 1 ' • Bend Area General Plan [The following text (strike -out) to be moved to the Transportation Systems Plan]: AM Afqjer4rtepial Street •. 1W Reed beA�,eem Biake44ead and South 34 SP;eet-, will be improved in e00F4iHdfi_0Q" With ., ., ,, een ., r 1 , ♦ ♦ — _ad is Planned to be impreved to a three tefive lame ai-te4a! with 1iniite,4,qee FWt, . C -S, ren4, there are sente turn lane and bike !an ents beAveen Neuth 3r • 1 / The East 2 71414 vefffjie eorFider-, between ♦ 1 / ♦ 1 / �e As,e lames with senie addifienalfive lane widening at Highwq�, 20. TheFe are interwiit ♦ Minor Arterials The minor arterial street linkages planned for the urban area are illustrated on the Street System Map. As the community grows beyond the planning period or there are other changes in land use, additional arterial streets may be determined to be necessary. The alignments of new arterial streets on the Plan map are general in nature and refinements may occur through the land development process, or as otherwise determined by the city [and eewftyj. The minor arterial street system interconnects and augments the principal and major arterial street system. Trips are normally of moderate length. Minor arterials often border and establish the edge of neighborhoods. Minor arterials often support local or neighborhood commercial areas. Pedestrian and bicycle traffic is common on these streets. Minor arterials are generally spaced at about one -mile intervals, although in the more dense areas of the community minor arterials are commonly located at a greater frequency. Under ideal TRANSPORTATION 7-19 170 0294 Bend Area General Plan circumstances, access to the minor arterial street should be limited to prescribed spacing intervals and direct driveway access points should be limited as much as practical. The minor arterial street system will need to be improved to address a wide range of transportation system demands, including pedestrians, bikes, transit vehicles and motor vehicles. Minor arterial streets range in size from two- to five- travel lane roadways. New or reconstructed minor arterial streets widths will be based on the determination of the improvement needs of all modes of travel. Because minor arterials usually serve neighborhoods and support high levels of pedestrian and bicycle traffic, the addition of lanes to serve motor vehicles must be carefully balanced against their impacts. In the event that alternatives to street widening have been exhausted and additional lanes are necessary, all appropriate measures should be taken to consider design alternatives and solutions to mitigate the impacts created on the adjoining neighborhood. Landscaped center medians, access management, pedestrian refuges, and provision of street trees, among others, are examples of measures that can be taken to mitigate the impacts of road widening. The concept of extending a new arterial street across the Deschutes River, south of the mill, can be traced back to the 1950s. This alignment appears on the early city zoning plans of the 1960s and was later incorporated in the Bend Urban Area General Plan, in the late 1970s. The historic selection of Reed Market Road alignment as the planned south river crossing was based on a number of factors: 1. The alignment skirted the area occupied by Bend's last lumber mill. This was the edge of the industrial zoned properties where large equipment created noise and dust impacts. 2. The alignment was a continuation of the major roadway system serving the entire urban area, and the bridge would complete this east -west roadway linkage across the river. 3. Ease of roadway construction. This is attributed to the narrow river crossing width, the fact that it follows preexisting roadway grades to Century Drive on the west side of the river, and it crossed an already disturbed log deck area on the east side. 4. The alignment was largely undeveloped except for the mill activities. • 7-20 TRANSPORTATION 1 -7 f) .. n9Q1Z Bend Area General Plan Over the course of the preparation of the Plan update, City Council has held extensive . discussions on the subject of alternative river crossing locations and designs. In 1998, in response to these deliberations on a bridge location, Council made a decision that the extension of Reed Market Road should remain as shown on the plan. Stating further that it should be constructed as a two-lane roadway (i.e., the roadway should provide one travel lane in each direction, plus bike lanes and sidewalks, with raised medians and turn lanes permitted where necessary). [Paragraph added by staff per City Council action on 2/18/98] [Minor edits by staff 9/29/98] City Council's direction also supported the development of another "local" street bridge to be constructed within the Old Mill site at a location further downstream from the planned arterial bridge. The location and design of this bridge is to be coordinated between city staff and the developer of the Old Mill Site. The intent of this local bridge is to accommodate the traffic generated by the Old Mill development and to reduce the burden on adjoining arterial river crossings. [Paragraph added by staff per City Council action on 2/18/98] The city shall involve the public, the park district and other governmental agencies in developing a roadway design for the southern river crossing that complements the natural features of the river area. [Sentence added by BUAPC on 3/30/98] [paragraph that formerly described south river crossing as a possible future Century Drive deleted by BUAPC on 3/30/98] [On 9/2/98, City Council directed staff to only list in the plan each roadway that fit the functional classification definitions — with the more detailed descriptions of arterial streets to be contained in the Transportation System Plan.]: The -following are the minor arterials within the urban area.- rea:Minor Arterial Streets: From: To: Minor Bear Creek Rd. (also: l l th St. ext.) Franklin Avenue 271h Street Blakely Road Brookswood Blvd. Wilson Avenue Bond Street Wall Street Franklin Avenue Boyd Acres Road Empire Avenue Butler Market Road Brookswood Blvd. Beyond south UGB Blakely Road Butler Market Road Highway 97 Beyond east UGB Century Drive Beyond south UGB Colorado Avenue Colorado Avenue Century Drive. The Parkway Cooley Road Highway 20 Deschutes Market Road Division Street Highway 97 (north) Revere Avenue East 15th Street Highway 20 Knott Road East 18th Street Cooley Road Empire Avenue East 27th Street Reed Market Road Knott Road East 4th Street Butler Market Road Franklin Avenue • East 8th/91h streets Butler Market Road Reed Market Road TRANSPORTATION 7-21 [The following text (strike -out) to be moved to the Transportation Systems Plan]: Read. I - ?d to be develeped as an inter -change in thefup-H.-e. It 14411 eve -Ph -1-14114" be- 9�'LqC2eegg Feute to the eityL!s industrial park.: resev4,e area. Ae exi-sting read ends at the edge 4the eity owned industivia with A4ghway 97 may need te be grade separated. De:�,elepnientateoigthi-sigart&fC-oek-Y • 7-22 TRANSPORTATION 170 0296 Bend Area General Plan Empire Avenue O.B. Riley Road Highway 20 Franklin Avenue Wall Street Bear Creek Rd. ext. (11`h St.) i Galveston Avenue Skyliners Road Riverside/Tumalo Greenwood Avenue Newport Avenue East 3rd Street Hill Street Revere Avenue Wall Street Hunnel Road Robal Lane Cooley Road Knott Road Beyond south UGB Beyond east UGB Mt. Washington Drive Century Drive Highway 97 (Butler Mkt.Rd) Neff Road 8`h Street Beyond east UGB Newport Avenue Shevlin Park Market Rd. Greenwood Avenue Olney Avenue Hill Street 81h Street Reed Market Road Century Drive Blakely Road Revere Avenue Hill Street 8t" Street Riverside Blvd. Galveston Avenue Wall Street Robal Ldne Highway 20 Highway 97 Shevlin Park Mkt. Road West UGB Newport Avenue Simpson Avenue Mt. Washington Drive Colorado Avenue Skyliners Road West UGB Galveston Avenue Wall Street Hill St./Portland Ave. Franklin Avenue West 14`h Street Newport Avenue Colorado Avenue Wilson Avenue Blakely/Bond East 3rd Street [The following text (strike -out) to be moved to the Transportation Systems Plan]: Read. I - ?d to be develeped as an inter -change in thefup-H.-e. It 14411 eve -Ph -1-14114" be- 9�'LqC2eegg Feute to the eityL!s industrial park.: resev4,e area. Ae exi-sting read ends at the edge 4the eity owned industivia with A4ghway 97 may need te be grade separated. De:�,elepnientateoigthi-sigart&fC-oek-Y • 7-22 TRANSPORTATION 170 - 0301 MEMORANDUM Date: November 18, 1998 Subject: Adoption of General Plan revisions and related ordinances _Work Session changes At the November 1 W joint work session several changes were made to the General Plan. The changes made by the Council and Board at the work session are listed below. These changes will be incorporated into the final printed copy of the General Plan text and the Land Use Map. All references are to the October 1998 hearing draft (winter squash color pages). Text Changes: 1. Page 2-11, policy #IA. This policy will be edited slightly to read "The gj& and Bend Metro Park and Recreation District will... " 2. Page 2-14, policy #20. This policy will be deleted and replaced with the following policy: "The city and county shall ensure through conditions of approval that development in the Urban Reserve Area adjacent or within one mile of lands designated by the County's wildlife overlay zone incorporate setbacks or buffers to protect designated wildlife areas. " 3. Page 2-14, policies #24 through 50. These policies will be retained at the end of this chapter and renumbered sequentially from 1 to 27. 4. Page 3-20, anew policy #17 will be inserted just after #16. This policy reads as follows: "The city shall refer to the park district, for its review and recommendations, all development proposals that include or are adjacent to existing or proposed parks or trails. " 5. Page 5-24, Table 14. The first column in this table will be changed slightly to reflect the Council's direction to show on the General Plan Map which areas will retain the RL zoning. The Urban Standard Density category will be moved down opposite the Residential Standard Density (RS) implementing zone, and the Urban Low Density category will be inserted opposite the Residential Low Density (RL) implementing zone. 6. Page 5-25, last paragraph. To be consistent with the change to show the Low Density areas on the Plan Map, the beginning of this paragraph will be changed to read: "Urban Low Density Residential — applies mainly to areas where there is a pattern of existing...." 7. Page 5-37, policy #48. A second sentence will be added to this policy. The additional text reads: "An exception to statewide goals relating to agricultural lands, forestlands, public facilities and services or urbanization is not needed for development of a destination resort on the eligible lands in the urban area. " 8. Page 6-5, bullet items. A new bullet will be added that states: 'U the service and retail sectors will continue to be a significant source ofjobs; " B Memo regarding General Plan adoption —� Exhibit "ir' to County Ordinance No. 98-074 Page 1 A 170 - 0302 4104 9. Page 6-19, policy #30. Entire policy will be deleted and replaced with the following: "30. Proposed buildings that exceed 45 feet in height shall be reviewed through the conditional use permit process. " 10. Page 7-40, third full paragraph. The paragraph entitled Community Mobility will be added back into the plan, and the word "transit" replaced with "public transportation". The re- inserted text reads as follows: "Community Mobility Public transportation improves mobility for a wide range of the traveling public. School age children can use public transportation for trips to school, after-school activities, or recreational pursuits. Likewise, there are many other segments of the population that either don't have a car (many for financial reasons), are unable to drive or would simply prefer to let someone else do the driving. Seniors who need to make unscheduled trips for shopping, medical or other trips have added flexibility to augment their dial -a -ride activity. Workers of all ages can get to their jobs without owning or relying on a car. Thus, public transportation is a valuable service that fills a much broader function than solely trip reduction. It provides mobility for those without cars as well as being an alternative to the automobile for many travel needs of the community. " 11. Page 7-41, last paragraph and continuing on to top of page 7-42. The paragraph entitled Park and ride lots will be added back into the Plan, and the word "transit" replaced with "public transportation". The re-inserted text reads as follows: "* Park and ride lots, when strategically located, can support both public transportation and rideshare activities. If park and ride lots are located on the edge of the city, they can conveniently serve both directions of travel into and out of town. Park and ride lots provide a meeting place for carpools and a location for drivers to access a public transportation system. Park and ride lots can either be publicly constructed facilities, or more commonly, a partnership between public and private property interests, typically requiring a cooperative use agreement with the landowner. Shopping centers, churches, or the like, commonly have large parking lots that are underutilized during the day, making park and ride activity complementary with the business demands of the property owner. Van or shuttle systems can also incorporate park and ride lots into a parking management plan by shuttling employees to the workplace. This can help to minimize localized parking demand or traffic impacts generated by the employer. " 12. Page 7-47, policy #15. The text will be edited as follows: "15. The city shall refer to the park district, -for its review and recommendation all development proposals that include or are adjacent to existing or proposed parks or trails. " 13. Page 7-48, top of page. The heading will be changed from "TRANSIT" to "PUBLIC TRANSPORTATION." 14. Page 7-48, policy #1 under Public Transportation. The policy will be edited slightly to read: "1. The city, state, and other jurisdictions shall evaluate funding alternatives and seek appropriate resources to support a public transportation system. Effort should be made to evaluate creative funding techniques that may include the combination of public transportation resources." 15. Page 7-48, policy #2 under Public Transportation. The policy will be changed to read: "2. To accommodate the needs of Bend residents and visitors without access to a car, transit services shall be investigated. " 8 Memo regarding General Plan adoption —110M Exhibit "A" to County Ordinance No. 98-074 Page 2 170 -0303 16. Page 7-48. A new policy #3 will be added and subsequent policies renumbered. The new policy #3 states: ",L The city shall continue to provide and improve dial -a -ride services. " 17. Page 7-50, policy #16. This policy will be edited slightly be replacing the word "adequate" with the word "quality". Policy reads: "16 Quali facilities for bike, pedestrian and transit use shall be included in any road widening project to ensure that non -motorized mode needs are addressed in the street design. " 18. Page 10-4, third paragraph, second line. The word "strain" will be replaced with the word "test". Land Use Map changes: In single family residential areas that are planned to remain zoned Low Density Residential (RL), the Plan map will indicate these areas as Low Density Residential with a different color that will be added to the legend. General Clean up and Re -formatting Changes to the Plan text made by the Council and Board at work sessions before and after the public hearing will be included in the final, "clean" printing of the Plan. The different editorial font changes (bolding, italics, strike -through, etc.) will be deleted from the final printing. The editorial end notes following policies or text changes will also be removed. Staff also continues to make minor grammatical and typographical edits that will be included in the final printing. New computer software will allow us check and score the "readability" of the document. We will work to improve the "readability" of the final printing. Some pictures will also be replaced with new pictures that are more compatible with the computer software used to prepare the final, clean Plan document. End of Memo *** End of Memo B Memo regarding General Plan adoption —_Exhibit to County Ordinance No. 98-074 Page 3 Bend Area General Plan X64-• een• 40 and thi-ee lane reaeA�,ay, with bike lanes an siddep+�,Lq aleng niest of the west - ef XE •beA�,eem?. area develepment as an industrial eelleeteF street. ♦ Arterial -Frontage Roads In some areas along the arterial street system, it will be desirable to construct frontage roads. A number of frontage roads have been predetermined and are illustrated on the plan map. Frontage roads may be located, as determined necessary, by the state and city ,a�J, as properties develop along other arterial corridors. The intent of a frontage road is to collect traffic from properties that abut the arterial and channel this traffic to an intersecting street or controlled intersection with the arterial. The objective of this design is to control the random turning movements that would otherwise compromise the safety or diminish the capacity of the arterial street. In many cases, the frontage road may parallel the arterial for some distance before it makes a connection. The design of frontage roads shall be treated like any other public street, in terms of the location of sidewalks, planter strips and the structural section of the pavement. The width of the frontage road should be based on the forecast traffic expected to use the facility. For example, frontage roads anticipated to handle truck traffic should be built to the minimum Industrial Street Standard. ♦ Major Collectors The major collector street linkages planned for the urban area are illustrated on the Street System Map. Collector streets are normally located at about every half mile. Additional collector streets may be determined necessary as vacant lands are developed or there are other changes in land use. The alignments of new collector streets on the plan map are general in nature and refinements may occur through the land development process, or as otherwise determined by the city [and eemn,�J. The major collector street system provides both land access service and traffic circulation between the higher order arterial streets. The collector street system provides a connection between neighborhoods and the arterial street system. The majority of collector traffic is normally generated from the area that it passes through, but additional through trips can be anticipated in the collector volume totals. Collector streets, like the arterial street system, place a greater emphasis on mobility over access to land use. As such, access control measures should be maintained along major collector streets. Driveways should be combined and alternative connections to side streets or alleys should be provided. Major collector street function and design is a careful balance between the movement of vehicles and minimizing impacts caused by traffic volume, speed and noise. Major TRANSPORTATION 7-27 Bend Area General °�u5 collectors may include three -lane street sections to accommodate high turning -movement activity. Bike lanes are included on major collectors, therefore parking should not be permitted. Traffic calming devices may be considered where traffic impacts become ' adverse to residential livability. ♦ Residential Local Streets A residential local street provides the basic function of direct access to abutting residential properties. Thus, each parcel is allowed driveway access to the local street. Through traffic movements should be discouraged, although some traffic from other local streets in the same neighborhood may be expected. The overall objective is to minimize the traffic volumes on each local street by distributing the neighborhood traffic to several local streets. To achieve this end, local streets should be developed in a grid -like street pattern with about 300-600 feet between blocks. [Block length changed from 800 to 600 by BUAPC 2/23/981 Trip lengths on local streets are normally short and traffic volumes are lower, and the collected traffic from local streets is directed to major collectors. Because of this type of trip behavior, local streets should be narrower than collector streets to encourage slower travel speeds. Adequate space should be provided on all local streets to accommodate parking on both sides, sufficient room for the passage of cars, emergency vehicles and snow plowing equipment. Local streets are a strong element in the character and quality of residential areas. They should recognize the character of the natural landscape through which they pass, and modification of the design standards should be possible when necessary to preserve this is character. In addition, variations to a standard residential street should be considered as a means of relieving visual monotony in residential areas. However, any design modification must accomplish the same results as would a standard street. Changes in design standards should not be permitted simply as a means of reducing right-of-way or paving requirements. The location of residential streets will largely be identified through the development review process and streets shall be located according to the standards established by the functional [a�� will assist in this street location effort with the classification system. The city development of circulation concept plans to assure that an acceptable frequency of residential street grids are achieved within developing neighborhoods. ♦ Industrial Streets Industrial areas are normally located near the higher order street system, and as a result of this proximity, industrial streets provide a fairly direct transportation system linkage from the arterial streets to industrial zoned properties. This provides a convenient connection to industrial areas that generate a substantial number of truck trips in the movement of products and raw materials. Historically, the high truck volume has required that industrial streets be constructed wide enough to accommodate the large vehicle turning, backing and maneuvering activities. On -street parking is sometimes restricted to further facilitate turn movements and to permit trucks to occasionally queue up on the street. Thus, these 7-28 TRANSPORTATION 170 0306 Bend Area General Plan roadways should be built to a specific roadway design to accommodate the needs of this . type of vehicle movement, including broad curb radii and wider curb -to -curb widths. In recent years, due to changes in technology and a dramatic turn away from lumber products in this community, use of industrial areas has changed in some areas. In those examples, use of the industrial lands has taken on more of a business or office park image and truck traffic volumes are significantly lighter. In these instances, there is less of a demand for expansive street widths to accommodate truck traffic. With this in mind, a smaller street standard can be considered to handle this lower truck freight demand in those less intensive types of industrial development. Parking restrictions are less of a concern, but may be necessary to accommodate some nominal truck activity. Thus, a narrower street standard [ef44fie�] [Note: This street width reference will be discussed in the TSP] can accommodate the lighter industrial area needs of the business park type. environment. New industrial developments should match the appropriate street width requirements associated with the truck movements that are anticipated with the build -out of these areas. Industrial streets are normally not striped with turn lanes, except at major intersections, and occasionally they may be striped with a centerline to improve lane delineation. Bike lanes are not necessary on these types of streets, unless they are a part of a major collector, arterial street or otherwise part of the on -street bikeway system. ♦ Alleys .Alleys are a street design element that has been utilized in the Bend urban area for many decades. While their use was far more common in street construction and land development prior to the mid -1940s, the concept has come in vogue as a part of the "traditional neighborhood design" (TND) movement. Use of alleyways, as a rear property access point, has always been a means of reducing scattered turning movements along public streets and an advantageous way of making sidewalks more "friendly" and safer for pedestrians. Alleys also provide additional options for utility placement. Other Road Development Elements ♦ Intersections: Where arterial streets intersect other arterials, or in some cases where they intersect some of the more significant major collector streets, installation of traffic signals will, in most cases, be warranted. Another intersection treatment, now gaining greater acceptance in this country, is the use of a roundabout. Roundabouts have shown promising results in other communities, including reduced intersection improvement costs, improved capacities, reductions in roadway widening needs, and have proven to be a suitable alternative to some traffic signal installations. It is important that the city [a�eountv, develop standards for the location and design of traffic signals, roundabouts and other transportation system management techniques to provide guidance and consistency in the application of these • improvements. TRANSPORTATION 7-29 1 7n n�fl7 Bend Area General Plan ❖ Modern urban roundabouts: • The modern urban roundabout (Figure 29.) provides intersection control by circulating traffic movements counterclockwise around a central intersection island. Vehicles entering the roundabout yield to pedestrians at approach crosswalks and to other vehicles that have already entered the central circulating lane. For pedestrians, roundabouts reduce the amount of pavement required to cross, reduce wait times and minimize auto conflicts to a single direction of travel. Figure 29. Modern urban roundabout At all major Source: Oregon Bicycle & Pedestrian Plan intersections, where streets classified as a major collector or arterial meet, additional right-of-way needs to be preserved to accommodate turn lanes or alternative design treatments such as roundabout construction. This additional right-of-way, plus transition from the normal street section, should be delineated in the street standards of the plan. ♦ Access Management (Median Control): Access management along arterial streets is an important system management tool that can enhance roadway carrying capacity by minimizing conflicts caused by vehicle turning movements. The most common technique of access control is the management of private driveway locations. The higher the functional classification - the more restrictive the access control. The city, county and ODOT have adopted management agreements to the Parkway and policies controlling access on all types of arterials within the urban planning area. r� Another technique of providing access control is the construction of raised medians. Where raised medians are constructed for the full length of a street, driveways and intersections are precluded from left -turn movements. A less restrictive condition to full median control is • 7-30 TRANSPORTATION 170 - 0-308 Bend Area General Plan the construction of partial medians. In this case, breaks are permitted in the median at . predefined intervals to accommodate left turn movements. Breaks in the median may be allowed where the city determines that no deterioration in the roadway operation will occur. [Edited by staff 9/28/98] ♦ Community Appearance: The daily experience of moving about the community on major arterial streets does influence attitudes and values, and streets should be more than just a place to drive cars. They should complement the environment that they pass through and should be attractive as well as safe for all modes. This will require good street design as well as control of access wherever possible, and development should be designed to minimize unnecessary intersections and other turning movements. The installation of landscape medians and traffic islands on new and existing arterials can provide both safety and beauty, and can improve the function of the street (Figure 37.). As an example, a landscaped median within South 3rd Street and Greenwood Avenue could considerably improve the appearance of both these facilities and of the city of Bend. This technique should be considered wherever a continuous left turn lane exists along an arterial street. [Minor edits by staff 9/28/98] ♦ Steep Slope Areas: Hillside areas require special consideration in street design. Arterial or collector streets with controlled access can reduce the number of lanes and parking areas required, and thereby reduces the width of the street that must be constructed on the hillside. Small one-way loop streets providing service to limited numbers of houses will also minimize cuts and fills on hillsides. Awbrey Butte represents a major topographic feature in the community. Due to the uniqueness of this hill, several master plans for the development of.Awbrey Butte have been approved that have reduced street standard requirements. * {* Special street standards for portions of Awbrey Butte have been approved by City of Bend Resolution numbers 1679 and 2067.) ♦ Traffic Calming: The volume or speed of traffic that travels on residential streets can often be a source of discomfort to residents. In some cases, high volume or speed traffic can erode neighborhood livability. Where traffic conditions are excessive, there are a number of techniques that can be used to "calm" driving behavior. These include: narrowing the street, neighborhood traffic circles, speed undulations, curb extensions, islands, turn restrictions, street chicanes (i.e., converting a straight street to a meandering road with curb extensions), and combinations of devices. Traffic calming strategies often require an area wide treatment to ensure that the solution to one street does not shift the problem to an adjacent street or neighborhood. Also, proper initial street design can minimize the need for future traffic calming. Narrower roadways can also help to reduce neighborhood traffic speeds, and the combination of reduced road width and smaller corner curb return radii can improve crossing conditions for pedestrians. [The street standards of thePlan have been nie*ed to • .] ["narrower roadways" section moved from pg. 7-39 & edited by staff 9/30/98] TRANSPORTATION 7-31 170 0309 Bend Area General Plan ♦ Truck Routes: Truck traffic in the urban area is largely confined to roadways adjacent to industrial, commercial and surface mining zoned properties. Most of this traffic uses the nearest adjoining arterial street for access to and from its destinations. The Bend urban area also experiences a large volume of through trucks on the state highway system. The state highway system serves the major flow of truck traffic in the Bend urban area. These facilities should continue to be designated as the desired through truck routes in the community (i.e., Highways 97 and 20, Century Drive and the Parkway). No other designated truck routes are delineated on the Bend urban area plan. Concerns have been voiced about rock and cement trucks that travel the Newport Avenue corridor. This truck traffic is more local in nature and addressing this situation is difficult, due to the lack of alternative routes. The potential for the Empire Avenue/East 27th Street corridor becoming a Highway 20 truck bypass route is also a concern. This facility will be designed as a local arterial, and as such, it is not intended to carry through truck traffic. The need to place truck restrictions on arterial streets and to establish other designated routes in the urban area will be monitored as truck volume or noise issues change. ♦ Eastside Bypass The discussion regarding the need for an "eastside bypass" can be traced as far back as the 1950s. This idea was also incorporated into the original General Plan, in the late 1970s. In that plan, an expressway facility was described, that would skirt the southern and eastern edge of the urban area, as a possibility for meeting the future transportation needs of the community. While the document acknowledged that the need for the facility might not be achieved within the time frame of the plan, it did urge that the corridor be preserved for some type of future facility. In subsequent updates of the General Plan, the eastside bypass was eliminated from the circulation element of the plan and hence, no right-of-way was preserved for this expressway. In the study of the Bend Parkway, one of several alternatives considered was another version of the eastside bypass. This one deviated from the original plan by connecting to Highway 97 on the north, near Cooley Road. One key issue that led to the rejection of the Eastside Bypass alternative was the traffic data forecasts. The bypass was projected to pull away only 10,200 of the 75,000+ vehicles expected to travel Bend's central corridor by the year 2015. In addition, there was also other traffic impact and land use issues. Many of the landowners on the east side objected to the intrusion of a major roadway into a rural area. This applied not only to the bypass itself, but also to the east -west arterials that would have to be upgraded to connect to the bypass. Another concern was the potential of the bypass to foster development pressures outside of the Urban Growth Boundary. This would have been inconsistent with the road planning requirements recently defined by the state Transportation Planning Rule. • 7-32 TRANSPORTATION 170 --0'310 Bend Area General Plan Some public sentiment for the idea of an east side bypass has remained even though the .decision was made to build the Parkway. In light of this interest, the city has pledged to continue to evaluate the need for the bypass as the community grows. In recent U • transportation modeling, conducted as a part of the latest General Plan update, the north - south travel needs of the community remain satisfied by the present proposed system of arterials and collectors. Therefore, the need for a new major transportation facility, such as an expressway or bypass, has yet to be demonstrated within the Bend urban area. ♦ Safety One goal of the Plan is to enhance travel safety for all modes on the transportation system. To meet this goal, there are a variety of strategies that include focusing on travel behavior and improving transportation system design. Educating the traveling public regarding potential travel hazards and reinforcing the need to travel cautiously is one valuable accident countermeasure. Another technique involves evaluating transportation system deficiencies and implementing corrective measures to reduce travel hazards. Constructing new transportation facilities with sound design principals will also help to maximize travel safety. It is important that public agencies monitor the transportation system as it relates to travel safety. One important step is the periodic review of accident locations and the development of projects to correct these problems. These projects need to be further prioritized to ensure that resources can be directed to problem locations in a timely fashion. PEDESTRIAN AND BICYCLE SYSTEM Pedestrian and bicycle facilities are integral elements of the transportation system and valuable components in the strategy to reduce reliance on automobiles. The community benefits in many ways from adequate pedestrian and bicycle facilities including reducing traffic congestion, supporting tourism, and providing accessibility to all parts of the community. Further, the segment of the population without access to a car benefits from quality pedestrian and bicycle facilities. Trip Potential Travel by bicycle and foot has tremendous potential in the "... the outdoor spirit of the citizenry, the desire to engage in healthy exercise and the interest in alternative modes of travel provide a strong population base for generating non - automobile trips." Bend urban area. A large part of this is attributable to Central Oregon's predominantly sunny weather and relatively flat terrain. In addition, the outdoor spirit of the citizenry, the desire to engage in healthy exercise and the interest in alternative modes of travel provide a strong population base for generating non -automobile trips. The visibility of pedestrian and bicycle traffic throughout the year confirms the importance of these travel options. TRANSPORTATION 7-33 3 7n - n -ii 1 Bend Area General Plan Bend's relatively small size makes travel by bicycle or foot fairly feasible. Depending on the type of trip, studies indicate a willingness of people to walk between a quarter and a half mile, and bicycle upwards to a few miles. According to the 1990 National Personal Transportation Survey, 27 percent of all trips are one mile or less, 40 percent are two miles or less and 63 percent are five miles or less. The 1990 census data shows walking and bicycling accounted for about 7 percent of Bend's trips to work. Travel time to work for all trips was less than 5 minutes for 6 percent of the workers, less than 10 minutes for 31 percent and less than 15 minutes for 63 percent. A short trip length and travel time is part of the equation for encouraging non -auto trips. A complete and safe network of trails, sidewalks and bicycle facilities will further encourage these trips. Other Benefits: In addition to reducing traffic, non -motorized trips conserve fossil fuels, reduce noise, protect air and water quality, and reduce the demand for parking spaces. The air quality issue is particularly important to Central Oregonians, as the pristine mountain views and clean air are cherished resources of the community. A concerted effort to reduce automobile trips and the resultant exhaust emissions can be valuable in diminishing the impact on air quality. Community and Site Design: An adequate bike and pedestrian system requires a complete network of walkways and bikeways that connect parks, schools and activity centers. Orienting buildings to the street and providing safe connections from stores to the sidewalk, . and providing convenient bike parking all help make bicycling and walking more desirable trip choices. THE PEDESTRIAN SYSTEM * Walkways Walking is the most basic form of transportation, undertaken by virtually every citizen. Sidewalks are an essential element of the transportation system since every trip involves at least one walking segment. Because the primary function of sidewalks is to provide a safe place for pedestrians, facilities need to be designed accordingly. 7-34 TRANSPORTATION Figure 30. Landsacpe buffered sidewalk on Colorado Avenue Photo by: City of Bend I] 17® - n3 7 Bend Area General Plan Sidewalks will normally be located on both sides of the street and separated from the street by a curb and a landscape strip. In steep topography, sidewalks may be allowed on only one side of the street and may be curb -tight. Sidewalks are normally constructed with a concrete material although special paver blocks may be utilized in high -use pedestrian areas, such as the downtown, to enhance surface aesthetics. Sidewalks vary in width depending on anticipated pedestrian volumes but have certain minimum widths established to meet Americans with Disabilities Act (ADA) requirements. Minimum sidewalk widths are established in the implementing ordinances of the city. band the eewhw. [Edited by staff 9/28/98] •'• The Landscape Strip: The area located between a sidewalk and the curb serves many important functions and is commonly referred to as the planting or landscape strip (Figure 30). The landscape strip creates space for a variety of underground utilities such as telephone, cable television, fiber optic cables, etc. The landscape strip is also beneficial for locating utility poles, fire hydrants, benches, bus shelters and other features that might otherwise block or obstruct pedestrian travel along sidewalks. Landscaping helps to soften the hard edge created by pavement and curbs, and large trees can provide cooling summer shade for parked cars and sidewalk users, can help slow traffic and enhance the beauty of the community. The physical separation also improves the design of sidewalks by maintaining a constant grade without dipping at driveways, and makes American with Disabilities Act compliance easier. During winter months, snow can be plowed into these areas from the street and not block sidewalks. The landscape strip provides a physical separation from the adjacent roadway, providing enhanced pedestrian comfort and walking experience. •'• Street Crossings: Crossing local street intersections is normally not difficult because of lower traffic volumes and because the distances are relatively short. Crossing arterial streets is much more challenging because of street widths, high traffic volumes and speeds. Minimizing crossing distances required for pedestrians is important to reduce the psychological barrier created by wide streets and to increase pedestrian safety. • �5 u4 i BEFOR - 7A 40 00 KIN AFTER 4 •IC; ti, ix; Figure 31. Example of curb extension retrofit Source: Oregon Bicycle & Pedestrian Plan TRANSPORTATION 7-35 170 031 Bend Area General Plan Construction of curb extensions is one method to improve the visibility of pedestrians and reduce the crossing distance of the street (Figure 31). These extended "bulb -outs" add valuable pedestrian space and can help facilitate a quicker movement of pedestrians across busily traveled roadways. The additional space can also provide a location for bike parking or other sidewalk amenities. Downtown Bend is an excellent example of where this type of design has been used very successfully. ❖ Medians/Pedestrian Refuges: Another solution to addressing conditions where traffic volumes are high, or roadways are wide, is the construction of raised medians, islands or refuges. Medians can significantly improve pedestrian visibility and provide a place to wait for safe gaps in the traffic stream while crossing • Figure 32. Median allows pedestrian to cross one direction of traffic at a time Source: Oregon Bicycle & Pedestrian Program busy roadways (Figure 32). Medians can also improve the aesthetics of a community with added landscaping. Islands and refuges are especially important at large intersections to reduce the crossing distance and improve: ,. pedestrian comfort by minimizing4 'A ` �' �' a exposure to motor vehicles. ' ❖ Signalized Intersections: One important function of traffic signals is providing for the movement of pedestrians across busy intersections. Where large radius corners have been constructed at the intersection to accommodate higher speed turn or truck movements, building a dedicated turn lane with a raised island for pedestrians is important (Figure 33.). This significantly improves the comfort of pedestrians by reducing the amount. of uninterrupted pavement to cross. 7-36 TRANSPORTATION is Figure 33. Pedestrian refuges at a signalized intersection • Source: Oregon Bicycle & Pedestrian Plan �1 go 170 Q31 d Bend Area General Plan �k Sidewalk Needs The sidewalk system is generally well delineated in the downtown and newer subdivisions. The network needs to be completed on the arterial and collector street system and between activity centers and residential areas. * Multi -Use Trails Trails serve important community purposes for pedestrians, bicyclists and others. Recreational activity is the most recognized use of the trail system, with scores of residents and tourists using these areas for walking, jogging, bicycling and other activities. Trails also provide important connections and shortcuts to destination points that make travel by foot or bicycle safe, pleasant and convenient. Trails also provide citizens and visitors with links to the natural environment. One special quality of a trail is the opportunity they provide to escape the bustle of the city - while remaining within the city. This is particularly evident along the Deschutes River trail system (Figure 34). Public opinion supports this sentiment, as people cite the ability to depart from traffic congestion, noise exhaust as a prime factor in their enjoyment of trails. Trails are praise, for this reason and the community as whole supports the development of a more comprehensive system. The first trail plan was established w: the adoption of the Bend Area Gener Plan in 1976. This has been the poli( tool that has provided some protectio of trail corridors and has promoted tl: construction of the current limited system. In 1995, city consultants studied Bend's off road trail network evaluate the original 1976 trail plan (Resource document: Bend Urban Trails Figure 34. Deschutes River Trail Plan, June 1995). As a result, several additions were adopted by the city and county and incorporated into the General Plan in 1996. The current trail plan is illustrated on the Bicycle and Trail System Map (Figure 38.). THE BIKE SYSTEM Residents and tourists of all ages enjoy bicycling for both transportation and recreation use. Bend's relatively small size and short distances encourage travel by bicycle. The majority of the current bike system is found on arterial and collector streets as bike lanes. The network of multi -use trails also serves as an important part of the planned bike system. TRANSPORTATION 7-37 17U - 0315 Bend Area General Plan Bike lanes A bike lane is a space on the road shoulder that is delineated from the adjacent vehicle travel lane by a solid white striped line. Bike lanes are provided on both sides of the street and promote travel in the same direction as the adjacent lane of traffic. This practice provides a safer place for bicycles and requires a cyclist to conform to the laws of motor vehicle travel. Bike lanes are intended to provide a convenient and safe location for bicycles on collectors and arterials. Bike lanes provide a clear and distinctive location on the road for bikes to travel at their own speed. They improve driver expectation of bike movements and they reduce bike and auto conflicts. Bike lanes provide a benefit to all modes of travel. For pedestrians, they help separate bike movements from the sidewalk and they increase walking comfort due to the increased sidewalk separation from adjacent auto traffic. For motor vehicle traffic, the lanes add buffer space from road -side obstacles, they improve driveway and intersection sight distances and they provide a temporary place for disabled vehicles to pull out of the travel stream. BEFORE: AFTER: It is preferable not to permit on -street parking next to a bike lane due to the hazard of opening car doors and the conflict of cars moving in and out of the parking stalls. However, there may be locations where it is necessary to provide both parking and bike lanes. Where space is limited, one design solution is the construction of recessed parking bays to better accommodate the space requirements for both needs (Figure 35.). In other cases, such as the commercial downtown core area where a large inventory of on -street parking is essential, the need to provide vehicle parking may take priority over the delineation of bike lanes. In that case, where lower traffic speeds can be maintained, bikes can better mix with traffic without causing significant problems. Ll M Figure 35. Example of retrofitting street to accommodate bike lanes and on -street parking * Bike System Needs (on street) Source: Oregon Bicycle & Pedestrian Plan There are a number of bike system deficiencies that need to be addressed to better facilitate bicycle travel on the street network. Some collector or arterial streets have limited width to accommodate bike lane striping and street widening is necessary. Other cases are in the built-up central part of the community, where the combination of high parking demand, high pedestrian use, and the high cost to widen the street, make the construction of separate bicycle lanes difficult, if not impossible. 7-38 TRANSPORTATION L` 17® -n316 Bend Area General Plan There are also many physical barriers to travel, such as the river, the railroad, major roadways and the various buttes in the community. For east -west travel, the railroad/Parkway underpass at Franklin, and the river crossings of Galveston, Newport and Portland avenues are narrow and do not have sufficient space to stripe separate bike lanes. Widening improvements to these structures that will better accommodate both bicycle and pedestrian travel, should occur when these facilities are reconstructed. The Third Street railroad underpass also needs to be widened to better accommodate bikes for north -south travel. * Bike Parking Facilities For a bikeway network to be used to its full potential, secure bicycle parking must be provided at likely destination points. Bicycle thefts are common and lack of secure parking is often cited as a reason people hesitate to ride a bicycle to certain destinations. Bicycle parking should also be convenient, easy to access and provide suitable protection from the weather. Bike parking needs to be designed for both short- and long-term use depending on site conditions and demands. The city of Bend has provided a number of short-term bike racks throughout the central business area as part of the city's downtown redevelopment effort. These racks have helped reduce some of the automobile parking demand in this activity center. When transit facilities come on line within the urban area, bike -parking facilities will be provided at all park and ride or transit center facilities. Adequate bike parking facilities will be provided where other public facilities such as libraries, parks, recreation centers and schools are constructed. TRANSIT SYSTEM Transit Feasibility Bend does not currently have a fixed route transit system in place but does have a dial -a -ride system for seniors (60 and older) and eligible disabled persons. The dial -a -ride transit provides personalized door to door service but requires call ahead reservations a day or more in advance of a planned trip. The feasibility of transit within the Bend urban area has been the subject of two separate studies. In 1994, the city studied Bend's demographic, employment, travel and transportation system characteristics in relation to how they might support transit use (Resource document: Bend Urban Area Transit Feasibility Study, August 1994). In 1996, the city hired a transit consultant to further evaluate how transit could be implemented in the community (Resource document: Bend Urban Area Transit Feasibility Study, June 1996). This study augmented the previous analysis of transit feasibility by analyzing transit systems from similar sized cities, developing system evaluation criteria, conducting a public opinion survey on transit attitudes and financing methods, and evaluating capital needs and financing strategies. In 1997, based on this comprehensive evaluation of transit feasibility, . the City Council declared that transit was feasible at build -out for the city of Bend. The ci TRANSPORTATION 7-39 Bend Area General Plan will continue to evaluate the allropriateness of fixed route transit. [Wording added by City Council on 9/2/98] is [ proposed tfansit system. A five b route n+. 1 — ' to n the Transit ten M vnt-rrra�crescccrvzrsrrcr-rrarror c��rarrrr.rap system,(Figure 39.), shail serve as the proposed staA up system. The final design of the route the number and t�Te of transit steps remains the subjeet of fuFther- stud�-. > [Edited by City Council 9/2/98 - move discussion of possible fixed route transit to the TSP] Multi -Modal Strategies Transit is an important element of multi -modal transportation planning. It provides a valuable transportation alternative for high volume travel corridors. Transit service can improve the efficiency of arterial streets because fewer vehicles are required on the road to serve the same number of trips. When faced with costly road improvement or construction difficulties, aggressive trip reduction programs can add years of life to a roadway's capacity. Improvements to air quality can also be achieved by the net reduction of motor vehicle emissions. Transit service can also play an important role in reducing congestion and parking requirements in high demand areas such as the downtown. [The following text to be moved to the Transportation System Plan by City Council on 9/2/98]: Community Mobilio, Transit impfey mphility for- a wide range of t4e tr-aveling publie. Seaheel age ehild-Fea r. there are many other- segments ekhe popul a-6 --w that either- don't have a --oaf (many fe driving. Senier-s whe need to ma -11- unseheduled t-Fips f6r- shopping, medieal eF other- tt4ps have added "e-JI-J'Ay te +I,-;- A-1 � f.ide arativity. Workers of all ages ean glet to their -jobs A,;+1--+ --ing or- Felyif+g on a ean- Thus, tr-ansit is a valuable- sefvioe that fills a mueh broader- funestien than solely trip r-eduetion. it pr-evides mebi4ty for- t4ese-witheut r. J 7-40 TRANSPORTATION 170 0319 Bend Area General Plan the land 0 ging eenter-s, obtiFebes, ar- the like, eemmenly have large paEking lots- that are !ay, making park and r-ide aetivity eemplementafy with the business Elemands oft' owner. Van or- shuttle systems ean also ineer-per-ate par.4- is and ride lots inte a par-king management plan by shualing employees to the war4r. plaee. This ean help to minimize leealized par-king demand or- tr-affie impaets g@HeFated by the empleyen AIR AND RAIL SYSTEM Rail Service Freight Rail Service: The Burlington Northern -Santa Fe Railroad provides rail freight service to Bend. The rail line runs generally north -south through the center of town. The railroad serves various industrial zoned properties located along its length throughout the urban area. A railroad switching yard is located east of the intersection of Colorado Avenue and Division Street. A rail car weigh station, serving the freight shipping needs of the Central Oregon area, is located west of Division Street along a spur track that runs south of and parallel to Colorado Avenue. Passenger Rail Service: There is currently no passenger rail service in Bend. The nearest connection to passenger rail service in Central Oregon is in the town of Chemult, which is located about 70 miles south of Bend. This service is provided by the Amtrak Coast Starlight train that now has passenger stops in Oregon at; Klamath Falls, Chemult, Eugene, Albany, Salem and Portland. The feasibility of extending Amtrak service to Bend was analyzed during the development of the 1992 Oregon Rail Passenger Policy Plan. The study concluded it would be impractical to provide passenger service to Bend. [Text added per recommendation from ODOT, 12/97] Air Service Local Air Service: The Bend Municipal Airport is located approximately five miles northeast of the Bend urban area. The airport is owned and operated by the city of Bend but is located in an unincorporated portion of Deschutes County. Development of the Bend Airport dates back to 1942 when the land was deeded to the city in an effort to establish a municipally owned and operated landing strip. The airport is classified as a General Aviation/General Utility airport. There is no regular scheduled commercial passenger service at this airport. Regional Air Service: Regional daily air passenger service is provided to the Central Oregon area at the Redmond Municipal Airport, which is located approximately sixteen miles north of Bend. The Redmond Airport is classified as a Primary Service/Transport airport. It provides scheduled passenger service, and it accommodates larger and higher performance aircraft than the Bend Airport. The Redmond Airport is currently serviced by two commercial carriers; Horizon Air and United Express. is 7-42 TRANSPORTATION 4 -7r► .. 927n Bend Area General Plan PIPELINE SYSTEM Two major natural gas transmission lines operated by Pacific Gas Transmission Company Y serve Bend. These transmission pipelines extend north south through the state and are located approximately 1 to 2 miles east of the Bend urban area. Cascade Natural Gas provides the natural gas service to the city of Bend. No other major utility pipelines serve the Bend urban area. TRANSPORTATION FINANCING [The following text edited by staff 9/29/981: [Deleted text]: This seetion of the plan deser-ibes E)n impFeveffi.ents and programs planned to addressed, ineluding biko, pedestrian, tr-afisit and aute—me-bile usea. The following Tables deser-ibe funding r-eseur-ees that hav6 been pf-egfaffiffied for- expeaditur-e ever- the fle*t AN, year -s by the eity, eaunty and state. The five year- Capital impfevemefit PFE)gfaffis (CIP's) the eit�, and eetmoy are updated annually. The four- yeaf State Tr-anspeftation lmpr-eveme* Wegr-afn (STIP) is updated biennially. The leng tefm needs afe estimated pFojeets in the -5 to 20 yonr_range • [New text] : The Bend Urban Area General Plan provides a policy framework to help planinancial investments on the comanunitX ,s transportation system. Inapleinentation of the plan comes primarilVin two forms - from the private sector, where transportation improvements are provided durinZthe development of land and from public dollars expended by the cit- county and state The bulk of the transportation improvements found in the urban area todatJ have occurred as a result of these -funding resources. • Different goals and objectives for the transportation system sometimes control these two funding mechanisms Private transportation investments are commonly directed to areas driven largely by market demand In contrast, government resources can be -focused more to areas Q,f the greatest community need and overall system benefit. The city of Bend for example utilizes afive-year capital improvement program process to review priorities and to help plan transportation improvements accordingly. This program is updated nearly as.a part of the city budget process A similar process is conducted by Deschutes County to plan improvements on the county system that is located beyond the urban growth boundar-z. Also the State Transportation Improvement Program (STIP) is updated on a biennial basis for a four -year planning horizon for improvements to the state systena. _ TRANSPORTATION 7-43 170 - Bend Area General Plan Funding Dedicated resources: The majority of funding for a city, county and state roadway project is derived from state collected motor fuel taxes, weight mile fees and vehicle registration fees. These funds can be utilized for roadway maintenance, modernization and other roadway improvements within the public right-of-way. Cities and counties are required to spend a minimum of one percent of these funds each year on bikeway and pedestrian facilities. The city collects street system development charges (SDC's) from new development within the Urban Growth Boundary Area. The expenditure of street SDC's are limited to capacity improvements on the roadway system. Deschutes County receives timber sale revenues from the U.S. Forest Service, which are also used for roadway maintenance and improvement projects within the county. [Minor edits by staff 9/29/98] Other funding: The city of Bend also utilizes some General Fund dollars for transportation related projects and facilities, and the city has used urban renewal funds for transportation projects in the downtown area. In recent years, Bend has been a recipient of federal grants on a number of bicycle and pedestrian facility improvement projects. The state of Oregon also has a number of other special grant programs for bicycle, pedestrian and transit projects. The City's general fund, state transportation funds (STF), county funds and fares all support the cost to run the Bend Dial -a -Ride program. [Minor edits by staff 9/29/981 C7 • 7-44 TRANSPORTATION Bend Area General Plan Transportation Plan Objectives and Policies OF A. TRANSPORTATION SYSTEM MANAGEMENT Miectiv • Provide cost effective transportation improvements and implement strategies that will improve the efficiency and function of existing roadways. Policies 1) The city [and eewity] shall adopt land use regulations to limit the location and number of driveways and access points, and other access management strategies on all major collector and arterial streets. 2) The city [and eeuntyj shall ensure that land use actions support the access management policies of the Oregon Department of Transportation along the state highways located in the urban area. 3) The city, county and state shall implement transportation system management measures to increase safety, reduce traffic congestion to improve the function of arterial and collector streets, and protect the function of all travel modes. B. TRANSPORTATIONDEMAND MANAGEMENT Objective0 • To reduce peak hour traffic loading on the roadway system; • To reduce single occupant vehicle travel. LJ Policies 1) The city and county shall encourage businesses to participate in transportation demand management efforts through the development of incentives or disincentives. These programs shall be designed to reduce peak hour traffic volumes by encouraging ridesharing, bicycling, walking, "teleworking", alternative work schedules and transit use. 2) The city and county shall work with business groups, large employers, schools and the park district to develop and implement demand management programs. [Policy language added by the BUAPC on 3/23/981 3) The city shall take an active role in managing and regulating the amount of parking: a) In the downtown core area: The city shall participate in programs to lower parking demand, provide preferential parking for carpoolers, encourage mass transit use, encourage shuttle systems from external parking lots, and maintain an adequate supply of strategically placed bike parking facilities. TRANSPORTATION 7-45 Bend Area General Plan b) To encourage business groups and employers to develop parking management strategies that support reduced roadway system demand. 4) The city, county and state shall pursue the development of park and ride facilities. 5) The city and county shall pursue the development and utilization of tele -communication technologies that facilitate the movement of information and data rather than people. 6) The city, county and state shall take steps to educate the public regarding the costs related to travel on the transportation system and encourage transportation demand management alternatives. 7) Governmental agencies shall establish transportation demand management programs for their own employees to serve as a model for the community. C. PEDESTRIAN AND BICYCLE SYSTEMS Objectives • To support and encourage increased levels of bicycling and walking; • To provide safe, accessible and convenient bicycling and walking facilities. Policies • 1) The city, county, state and park district shall work together to acquire, develop and maintain a series of trails along the Deschutes River, Tumalo Creek, and the major canals so that these features can be retained as a community asset. 2) The city [�] and park district shall work together to acquire, develop and maintain the trails designated on the Bicycle and Trail System Map (Figure 38.). These trails, and future trail additions, shall support the recreational and transportation needs of non -motorized travel in the community. [Policy language revised by the BUAPC on 3/23/981 3) The city [J and park district shall adopt standards for trail system right-of-ways and trail improvement that are based on the type of planned trail use. 4) The city[U-Z-HICIFt.yJ shall develop safe and convenient bicycle and pedestrian circulation to major activity centers, including the downtown, schools, shopping areas and parks. Particularly in terms of east -west access to the downtown. 5) It is the policy of the city [ J to facilitate easy and safe bicycle and pedestrian crossings of major collector and arterial streets, specifically large intersections shall be designed to include pedestrian refuges or islands to reduce crossing distances as much as practical. Also, bike lanes shall be extended to meet intersection crosswalks. [Policy language added by the BUAPC on 3/30/981 7-46 TRANSPORTATION 170 - 0324 Bend Area General Plan 6) Bike lanes shall be included on all new and reconstructed arterials and major collectors. Bike lanes shall be added to existing arterial and major collector streets on a prioritized schedule. Specific effort shall be made to fill the gaps in the on -street bikeway system. An appropriate means of pedestrian and bicyclist signal actuation should be provided at all new or upgraded traffic signal installations. [Policy language added by the BUAPC on 3/30/981 7) Sidewalks or pedestrian facilities shall be included on all new streets. Sidewalks shall be added to all existing arterial and collector streets to fill the gaps in the existing system. Sidewalks connecting activity centers with residential areas shall be developed on a prioritized schedule. 8) New sidewalks shall be developed to city and eeunlJ standards and maintained by the adjacent property owners. Tree planted landscape strips shall separate all new curbs and sidewalks where practical. The city shall pursue similar ends for reconstructed roads and sidewalks. [Policy language modified by BUAPC on 3/30/981 9) Bikeways and pedestrian facilities shall be designed and constructed to minimize conflicts between transportation modes. 10) Bicycle and pedestrian facilities shall be maintained in a manner that promotes use and safety. 11) Bicycle parking facilities shall be provided at all new multifamily residential, commercial, industrial, recreational, and institutional facilities, and all transit stations and park and ride lots. 12) The potential to establish or maintain accessways, paths, or trails shall be considered prior to the vacation of any public easement or right-of-way. 13) The city, school and park districts shall work together to inventory, designate and protect, when possible, selected important access corridors and connector trails. City standards will be developed for such trail corridors. [New policy approved by the BUAPC on 4/6/981 14) The city and ee J shall develop local standards for the construction of bicycle and pedestrian facilities. The State of Oregon - Bicycle and Pedestrian Plan shall serve as a resource document to guide the development of these facilities and standards. [New policy approved by the BUAPC on 4/6/981 15) The city and eemntyj shall refer to the park district all development proposals that include or are adjacent to existing or proposed parks or trails. i[New policy approved by the BUAPC on 4/6/981 TRANSPORTATION 7-47 17Q - n325 Bend Area General Plan D. TRANSIT SYSTEM Objectives • • Develop [tmns [ public transportation facilities and services throughout the urban area to increase mobility and accessibility; • Develop public transportation services for the transportation disadvantaged. Policies 1) [ .] The city, [ce�,J state, and other jurisdictions shall evaluate funding alternatives and seek appropriate resources to support a [tr=y} public transportation system. Specific effort should be made to evaluate creative funding techniques that may include the combination of public transportation resources. [- -- ,�scG-Uy�i . "'crit-r�►�icp-(F'""""' ?n' shall Serve as the planned system of tFansit rewesfep the Bend U,-bqn apeq Until S-tieh time as. it �s ex -pati er ] [Fixed route system discussion to be moved to the Transportation System Plan by City Council on 9/2/98] . 2) Transit services shall be implemented that accommodate the needs of Bend residents and visitors without access to a car. The city shall continue to provide dial -a -ride services. 3) The city shall work together with Central Oregon communities and the state to develop or encourage an inter -urban public transportation service in Deschutes County. Priority shall be given to the Bend -Redmond corridor. [Policy reworded by the BUAPC on 3/30/981 4) . f axed route transit is established, ordinances shall be implemented that establish pedestrian and transit -friendly design along transit routes. Provisions shall be made in street design to accommodate future transit stops. [Wording added per City Council direction on 9/2/98] E. STREET SYSTEM Objectives • To provide a practical and convenient means of moving people and goods within the urban area; • To provide a safe and efficient means to access all parts of the community. • To provide an attractive, tree -lined, pedestrian friendly street scape sensitive to protecting the livability of the community [Objective statement added by the BUAPC on 3/23/981 Policies General. 1) Streets shall be located, designed and constructed to meet their planned function and provide space for adequate planting strips, sidewalks, motor vehicle travel and bike lanes 7-48 TRANSPORTATION Bend Area General Plan (where appropriate). Specific effort should be .made to improve and enhance east -west circulation patterns for all modes of travel throughout the community. 2) Where a subdivision or partition is adjacent to land likely to be divided in the future, streets, bicycle paths, and accessways shall continue through to the boundary line of the subdivision or partition. 3) Streets shall be classified and generally located according to the Bend Urban Area - Street System Map (Figure 39.), the Street Functional Classification (Table 22.), and the Street Grid System (Figure 36.). Street right-of-ways and improvements standards shall be developed to meet the needs of the Street System Map and Functional Classification System. The city [ondyJ shall consider the need for narrower streets and lane standards, and the role of on -street parking, to reduce vehicle speeds and avoid the construction of excessive pavement. [Policy language added by the BUAPC on 4161981 [Minor edits by staff 9/29/98] 4) The city and eountyJ shall manage the development process to obtain adequate street right-of-way and improvements commensurate with the level and impact of development. New development shall provide traffic impact analysis to assess these impacts and to help determine transportation system needs. 5) Access control shall be part of the design standards for major collectors, arterials, • principal arterials and expressways to ensure that adequate public safety and future traffic carrying capacity is maintained on the transportation system. The language of the City of Bend Arterial Access Policy and the Access Management Policy for Principal Arterial Facilities is adopted by reference as part of the Bend Area General Plan. Where commercial or industrial land uses abut residential areas, access shall not be directed to residential neighborhood streets. 6) City, [eou*�,-J and state transportation system improvements shall comply with the Americans with Disabilities Act requirements. 7) Traffic signals or roundabouts shall be permitted at the intersection of public street intersections in accordance with the design, spacing and standards adopted by the city [;ey] and state. [Policy language added by the BUAPC on 31301981 8) The City Council [and--- J shall involve the public, where appropriate, in the development of street designs prior to their construction. [Policy added by the BUAPC on 4161981 [Edited by City Council on 9/2/981 Residential Streets: 9) Residential block lengths shall not exceed 600 feet without a connecting cross street. When existing conditions or topography prevent a cross street, a pedestrian accessway to 4 connect the streets shall be required. [Block length changed from 800 to 600 by BUAPC 2123198] TRANSPORTATION 7-49 17® n:2,7 Bend Area General Plan 10) A grid -like pattern of residential local streets shall be developed whenever practical in order to increase street connectivity within a neighborhood. 11) The city [ep-ee] may require adjustment to the street pattern or installation of traffic calming devices in order to discourage high speed and volume vehicular traffic on local residential streets. 12) Street widths on public residential local streets may vary depending on topography, anticipated traffic volume, natural features that warrant protection, and existing street patterns in the neighborhood. Narrower streets may have limited on -street parking to ensure emergency vehicle access. 13) New alleys should be developed to city [ewd-e&mn-�y] standards and shall be maintained by the property owners. 14) Cul-de-sac or "hammer -head" residential streets may be allowed only where existing natural development, steep slopes, open space, or natural features prevent through street connections, or when the objectives of connectivity are met within the neighborhood. [Policy revised by the BUAPC on 3/23/981 Arterial Streets: 15) Due to the sensitive nature of the Deschutes River corridor, the extension of Reed Market Road between Blakely Road and Century Drive shall be limited to a two travel • lane roadway. [This is a new Policy added by City Council on 9/2/981 16) Adequate facilities for bike, pedestrian and transit use shall be included in any road widening project to ensure that non -motorized mode needs are addressed in the street design. 17) The city [a te ee�c t.. shall implement transportation demand management (TDM) and transportation system management (TSM) measures prior to major and minor arterial street widening beyond three lanes. If TDM and TSM techniques are determined insufficient in solving the transportation corridor problems, then an evaluation of the consequences that additional roadway widening may have on adjoining neighborhoods versus the benefits gained by additional street construction should be conducted as a part of the determination of need for a road widening project. a) Consequences may include: reduced crossing comfort and safety for pedestrians and bicyclists, increased traffic noise impacts, residential or business displacements, increased storm water run-off and water quality impacts, the potential for "generated" traffic and the disruption to neighborhood cohesiveness. b) Benefits may include: improved traffic flow, bicycle and pedestrian improvements, reduced accident potential, reduced traffic diversion to adjacent neighborhood streets and improved air or noise quality (caused by congestion). [Policy language modifced for part (a) by the BUAPC on 3/30/981 0 [Policy language modified to add major arterial by the BUAPC on 4/6/981 7-50 TRANSPORTATION • 1 71l • n:%8 Bend Area General Plan 18) The city shall involve the public, the.park district and other governmental agencies in developing a roadway design for the southern river crossing that complements the natural features of the river area. [Policy added by BUAPC on 3/30/981 19) The city and state shall develop and implement a plan to improve the appearance, safety and function of South 3rd Street, portions of Highway 20 and old Highway 97 when the Parkway is completed. 20) The city [ee*ntyJ and state shall work together to line the approach to the City of Bend along Highways 97 and 20, and the Parkway with large stature trees. [Policy added by BUAPC on 3/30/98, and further amended by staff for clarity 4/9/981 [Edited by staff on 9/29/98] 21) Landscaped medians should be included on all arterial streets, except where right-of- way acquisition is not possible, that incorporate left -turn refuge lanes at controlled intervals to improve community appearance, maintain system mobility and to reduce the adverse affects of wide street widths to all types of travel (Figure 37). On streets with multiple vehicle lanes and wide curb radii, pedestrian refuge islands shall be constructed to minimize street crossing distances. 22) Frontage Roads shall be provided parallel to arterial streets, as illustrated on the Bend Urban Area Street System Map, or as determined necessary by the city [tyJ or state, to maintain an acceptable level of safety and carrying capacity on the arterial street system. 23) The state highway system (i.e., Highways 97 and 20, Century Drive and the Parkway) shall be designated as the through truck route system. Trucks shall be permitted on the city and county arterial street system for local trip activity, unless otherwise restricted. Parkway: 24) The Bend Parkway will be planned, constructed, and managed to limit direct access to the facility to meet the objectives of the Access Oregon Highway (AOH) system, to protect the integrity of the route's through capacity, and to promote public safety. 25) To maintain the viability of the existing South 3rd Street and downtown business districts, the Bend Parkway will provide convenient access to these areas in so far as this does not compromise the function of the Parkway. 26) The construction of the urban portions of the Bend Parkway shall, to the greatest extent possible, include landscaping, medians, separated sidewalks, and bike lanes. TRANSPORTATION 7-51 170 0329 Bend Area General Plan Safety: 27) The city [�eu-n-tyJ and state shall improve transportation safety for all modes through approved design practice and sound engineering principles. 28) As a part of the development process, right-of-way shall be acquired as necessary for the correction of street intersections, excessively sharp curves, or as otherwise necessary to improve the safety of a road alignment. 29) The city [eeu*�YJ and state shall support efforts to educate the public regarding hazards related to travel on the transportation system. 30) The city and state shall monitor transportation accident and safety issue locations, and develop and implement corrective improvement projects. F. RAIL SYSTEM Po When railroad right-of-ways are considered for abandonment or vacation, the city, county and state shall seek the preservation of these corridors for other transportation services. 0 G. FUNDING [New section added by the BUAPC on 3/30/981 Policies 1) The city, county and state shall work together to develop new sources of transportation funding for all transportation modes. [Policy language added by the BUAPC on 3/30/981 2) The selection of transportation improvements, within the city's yearly Capital Improvement Program plan, shall be subject to public review and comment through a City Council public hearing process. [Policy language added by the BUAPC on 4/6/981 3) The city [ani y] shall recognize the need for a balanced transportation system in developing the transportation capital improvement program. [Policy language added by the BUAPC on 4/6/981 4) The city should explore ways in which to better inform and involve citizens in the development of transportation system budgets. [Policy language added by the BUAPC on 4/6/981 • 7-52 TRANSPORTATION 170 0330 Bend Area General Plan S) The city [�] should consider taking steps to utilize transportation system development charges (SDCs) for the full range of road capacity improvements, including: transportation demand management, trails, transit, sidewalks and bike lanes. [Policy language added by the BUAPC on 4/6/981 H. BENCHMARKS [New section added by the BUAPC on 4/6/981 Policv The city [nd couno] shall consider the establishment of transportation benchmarks to monitor progress toward a balanced transportation system. [Policy added by the BUAPC on 4/6/981 • 0 Q:\pin\rick\ tpu\TRANCH23.WPD TRANSPORTATION 7-53 N PON" 170 0331 �b Yb V OO O 0 0 N N z z z z v a b � V1 fA fA VI N V1 N fA 4% a� y N aNi 0 oai ayi �' aNi n aNi aNi �' O v ' uj' OO Oq W O CG O W O C1 O f� O 0.1 O GG ca � O F-' OY z .� 0 .� z o Q •� .� f-� w w ^ CL `v ro w V! M N N N Cd CIOco .� :Z Z .d �■ ./.+ Uy L � N �V �Q.. > > V .. a: V •�V+ O U O O O O C C cq c3 > z O ? . N ■� V V V CL u 0 U ca co ♦� cn O W L: O O O O O O O OO O C O m O iUy R ♦J a(�� RS O to (D M C cp ' y M O ,1�y O --' ca '�• l0 U tn cq _ .d V O w a � fj N 00 Co yV, Vci w w a w d u 1/2 MILE Figure 36. 1 7 0 — 0332 Street Grid System Typical Street Spacing 1 MILE 300-600' Legend: • street tune Arterial Major Collector Local wical Apacine I mile 1/2 mile 300-600 feet Figure 37. Arterial Streetseape Typicals ED F-1 C3 9 -------- ---- ---- ----- -- -- -------------- Raisedfl,andscap Median 170 - 0333 Landscape strip idewalk Sidewalk 0 ED -- ----------- Raised/Landscaped Median .......... .. ............ - --------------- -------- 0 � � Q F CD ED C3 J00 103 -------------- -------------- -------------- -®- I riveway Is 0 Figure 38 Bend Urban Area Bicycle and Trail System Map CP �0 c Legend: eo*000• Trail System Urban Growth Boundary 1-70 - 03.34 N N This Map is for illustrative purpose only and is W the actual General Plan - Trail System Map No Scale Figure 39 Bend Urban Area Street System Map 1. 7 0 0335 W las" Mut! Im 1ur mumu iuvC purpose only and 4 not the actual • East 27mpire Ave.: Hwy rMkL Rd, Mkt. Rd. General Plan — Street System Ma • East M t. R .: Blatitrkely Mkt. Road -East Reed Mkt. Rd. y P . Reed Mkt Rd.: Blakely Road -East 27° St. m Refer to General Plan = for Reed Market bridge crossing discussion • / 170 - 0336 BEND AREA GENERAL PLAN - 0 CHAPTER 8: PUBLIC FACILITIES AND SERVICES TABLE OF CONTENTS PREAMBLE .......................... 1 GOALS............................. 1 OVERVIEW .......................... 2 SANITARY SEWER FACILITIES ......... 2 WATER SYSTEM FACILITIES ........... 6 STORM DRAINAGE FACILITIES ........ 10 SOLID WASTE DISPOSAL .............. 11 • OTHER URBAN FACILITIES ............ 12 PUBLIC BUILDINGS AND FACILITIES ... 12 POLICIES ............................ 13 Sanitary Sewer Service Water Systems Storm Sewer Solid Waste Public Buildings CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 • • 0. I -UJjr Bend Area General Plan PREAMBLE Consideration of the public and private facilities and services within the Bend Urban Growth Boundary is an important focus of the Plan. Several of these services — water, sanitary sewers, energy supplies, and communications — are the backbone needed to support and encourage urban level development. Other urban services such as refuse disposal, emergency services, and storm water disposal are also necessary parts of the mix of urban services. Although most of these facilities and services have a longer planning horizon than used in the General Plan, they are still driven by the population and land use needs forecast in the Plan. [Note: preamble revised by staff at direction of BUAPC 4/13/98] GOALS dequate public facilities are the key to stable urban development. The goals below provide general guidance for maintaining and improving the level and quality of urban services as growth occurs in Bend. The citizens and elected officials wish: ❑ To have public and private utility systems provide adequate levels of service to the public at reasonable cost; ❑ For the city, county, and special districts to cooperate in the provision of adequate urban services in an efficient and timely matter to support urban development; ❑ For new development to pay its fair share of the cost of major facilities needed to support development; ❑ To ensure that public services will not have negative impacts on the environment or the community; and ❑ To locate and operate public buildings and other public facilities to best serve the needs of the residents. [ Note: goals added by staff at direction of BUAPC 4/13/98 ] . PUBLIC FACILITIES AND SERVICES 8-1 Bend Area General Plan OVERVIEW 0 he Public Facilities and Services chapter describes existing facilities and utilities in TBend and also describes what city facilities are needed to meet projected growth. The listing of city water and sewer projects planned for and expected over the next ten years provides a framework for decisions on when, where, and how public facilities will be provided to support the projected growth. The city will use the listing of projects as a basis for its annual capital improvement budget. SANITARY SEWER SYSTEMS Individual systems In 1992 the Deschutes County Community Development Department estimated that there were more than 3,000 individual sewage disposal systems within the Urban Growth Boundary. It is estimated that about 10 percent of these systems use the old drill hole system or use a septic tank drain field system that was installed prior to 1974 when the county first set standards and required permits. Generally speaking, ground in the urban area is not well suited for drain field disposal systems because the soils are relatively shallow over fractured lava rock. Between 1987 and t 1992 Deschutes County issued more than 270 permits to replace or repair failing drain field systems in the urban area. The majority of these repair permits were in subdivision lots in the south half of the urban area. The county Environmental Health Division expects the number of repair permits to increase as older or inadequate drain field systems age and lose the ability to treat the effluent. The Deschutes Basin has a complex geology of fractured lava rock. The state, county, and city are concerned about the potential for ground water and surface water contamination from effluent that works its way into the rock from drill holes and individual drain field systems. The likelihood of contamination increases as the systems get older and more systems are installed. There are both social and financial costs associated with failing individual sewage disposal systems. The possibility of local and regional public health risks from contaminated water systems represents a social cost. Replacing or expanding a drain field — if it can physically be done on a subdivision lot — can cost a home -owner thousands of dollars. The extension of the city's sewer system into subdivisions with drain field problems provides the best long 8-2 PUBLIC FACILITIES AND SERVICES t" 170 - 0339 Bend Area General Plan . term solution to protect the health, safety, and property of residents in the urban area. Municipal system The city completed its sewerage collection system and treatment plant in 1983. The treatment plant has capacity for an average flow of about six million gallons a day (60,000 population equivalent) and in 1997 averaged about 3.6 million gallons a day flow. Figure 41 charts the average daily flows at the wastewater treatment plant. The 1996 Utilities System Master Plan identifies future improvements to the sewerage collection and treatment facilities required to serve long range growth in Bend. The system is designed to serve lands within the Urban Growth Boundary and eventually the Urban Reserve Area. In 1986 the disposal of septic tank wastes at the county landfill was curtailed and these. wastes started to be disposed of at the city's wastewater treatment plant. Due to the increased volume of septic tank waste from throughout the county the Bend treatment plant in 1992 was near capacity in its ability to process organic materials. Several improvements under construction at the plant will increase the capacity of the plant. [staff edit 9/29/98] Two private sanitary districts and systems, Rimrock and Sunrise Village, were taken over by • the City of Bend after the developments were annexed to the city in the early 1990s. Their common tank and Figure 41 Average Daily Flow at City Wastewater Plant .1 4- 3.5— y 3 N c a 2.5 M 19 2 0 1.5 0.5- 0- 84 .5084 85 86 87 88 89 90 91 92 93 94 95 96 97� Year drain field systems were abandoned when the systems were connected to the city sewer system. The major need in the urban area during the planning period is to provide sewerage collection lines to developed areas surrounding the city. To meet this need, new PUBLIC FACILITIES AND SERVICES 8-3 .. Bend Area General Plan interim pressure lines have been completed by the city to commercial areas along Highway 97 and Century Drive. It is expected that additional interim pressure lines will be constructed to serve residential areas in the southwest and southeast portions of the urban area. Private systems Juniper Utility Company provides pressure sewerage facilities and service to an area generally south of Chase Road. The utility provides service mainly to subdivision developments by J.L. Ward Co., which also owns the utility. The Juniper Utility Company sprays the effluent on lands within the UGB owned by J.L. Ward. The Juniper Utility Company is expected to continue servicmg the current service area and other lands owned by J.L: Ward. Sewer system Fnancin� Table 28 lists sewer facilities the city plans to construct through 2002 to support the projected growth and land uses in the Bend urban area. The description, location, timing and estimated cost of listed facilities may change as a result of subsequent design studies, capital improvement programs, environmental studies, and changes in funding sources. City facilities may be constructed earlier than planned by an owner/developer choosing to develop an area prior to the scheduled extension or expansion of facilities by the city. The city has adopted System Development Charges (SDC), as allowed under state law, to help pay for new facilities. SDCs are levied against all new uses at the time of development. These fees are earmarked for major system improvements identified in the city's Utility Systems Master Plan such as interceptor lines and expansion of the wastewater treatment plant. The sewer System Development Charge is 60 percent of the allowable maximum charge. The City Council determined that this percentage reflects the proportionate share of system improvement costs that can be attributed to new growth. The remaining share of system improvement costs benefit the whole community and are collected as a part of the monthly user fees. 8-4 PUBLIC FACILITIES AND SERVICES .0 • Finish 21" Brosterhous interceptor Continue North UGB interceptor line 2000-01 Finish anaerobic digester at treatment plant $2,454,800 Sunrise Village tie-in Start effluent polishing filter at treatment plant 2001-02 Continue North UGB interceptor line $1,650,000 Finish effluent polishing filter at treatment plant 2003 to 2008 Long-range Sewer System Proiects Construct new primary clarifier at treatment plant. Expand headworks at treatment plant Construct Contact Basin at treatment plant Design / build Southeast / 27th St. interceptor Continue.North UGB interceptor Expand aeration basin at treatment plant PUBLIC FACILITIES AND SERVICES 8-5 170 -�03 Bend Area General Plan . Table 23 City Sewer System Projects (1997 dollars) Approximate Description of Project Rough Cost Year for all projects Construct centrifuge at treatement plant Install gravity belt thickener at treatment plant 1997-98 Sludge handling / dewatering improvements at $2,615,000 treatment plant Construct south canal gravity main interceptor line Design North UGB interceptor line Construct 27" Brosterhous interceptor Start 21" Brosterhous interceptor 1998-99 Construct Rimrock Pump Station $1,898,000 Construct River's Edge interceptor sewer Start Secondary clarifier #3 at treatment plant Start North UGB interceptor line Continue 21" Brosterhous interceptor 1999-2000 Continue North UGB interceptor line $1,630,000 Finish Secondary clarifier #3 at treatment plant Start anaerobic digester at treatment plant Finish 21" Brosterhous interceptor Continue North UGB interceptor line 2000-01 Finish anaerobic digester at treatment plant $2,454,800 Sunrise Village tie-in Start effluent polishing filter at treatment plant 2001-02 Continue North UGB interceptor line $1,650,000 Finish effluent polishing filter at treatment plant 2003 to 2008 Long-range Sewer System Proiects Construct new primary clarifier at treatment plant. Expand headworks at treatment plant Construct Contact Basin at treatment plant Design / build Southeast / 27th St. interceptor Continue.North UGB interceptor Expand aeration basin at treatment plant PUBLIC FACILITIES AND SERVICES 8-5 Bend Area General Plan WATER FACILITIES AND SYSTEMS he quality of water in the Bend urban area is a matter of major importance. Not only does water supply the needs of residential, commercial, and industrial users, 4 but it provides many of the recreational and scenic opportunities that make the Bend area an especially attractive place to live. Municipal system The City of Bend is the only municipal public water supplier in the Bend area. The city's water system includes about 11,000 service connections. Since 1926, the City of Bend's main source of water has been from Bridge Creek in the Tumalo Creek watershed. Tumalo Creek rises on the eastern slopes of Ball Butte and Broken Top mountain about 20 miles west of Bend in a protected watershed area, which lies within the Deschutes National Forest. Figure 42 compares average daily flow over a 14 year period. The water is of excellent Figure 42 chemical quality, and the bacteriological Bend Water System Average Daily Flow quality is good with only 10 chlorination treatment. 9 The water is a consistent VA_. 49'F. winter and summer, and is clear 0 7 except that it is slightly c9 s turbid during periods of 0 5 high runoff from the 4 watershed. These 3 periods occur only occasionally, and are of 2�a only a few days 84 85 86 87 88 89 90 91 92 93 94 95 96 97 duration. The 1986 Safe Year Drinking Water Act .,.:........................ Y .:: �>:d:b < �: v �:� required that all surface water systems in the nation provide filtration unless stringent watershed control, raw water quality and disinfection systems were met. In 1992 the city demonstrated sufficient evidence to meet the criteria, and obtained an exemption from the Surface Water Treatment Rules contained 8-6 PUBLIC FACILITIES AND SERVICES • • Bend Area General Plan in the 1986 Act. The Bridge Creek source can deliver up to 11.4 million gallons per day. The city supplements the Bridge Creek source with deep groundwater wells. In 1996 the city had nine wells on line to supplement the Bridge Creek source. These wells increase the delivery capacity of the city system to 24.7 million gallons per day. The city has 17.0 million gallons of reservoir storage, and another 5 million gallon reservoir scheduled to come on line in 1999. The city's 175 miles of water distribution system is primarily composed of ductile iron pipe. The city water system has metered service for industrial, commercial, and multifamily developments. However, the city was one of the last major water systems in the state to use flat rate (non -metered) billing for single family service connections. The city has instituted a variety of programs to go to a fully metered system and to conserve water. These programs include: ❑ since July 1995, requiring each new single family home to be on a meter; ❑ beginning in 1996, requiring meters to be installed when ownership changes; ❑ financial incentives for voluntary installation of a water meter; ❑ limited yard watering hours during April through October; . ❑ employing a water conservation officer during the summer to explain the water conservation program to residents; ❑ providing free water conservation kits to residential users; and ❑ a variety of educational efforts with the local Central Oregon Environmental Center. The city's 1996 Utilities System Master Plan identifies water supply, transmission, and storage needs throughout the urban area. Additional wells, reservoirs, main transmission lines, and smaller distribution lines will be needed to meet the projected urban area growth. Water system projects planned for in the next ten-year period are listed in Table 24. The regional water table at Bend lies within the Deschutes Formation, some 800 feet or more below land surface. The city's water and sewer master plan indicates that the regional ground water aquifer is substantial. Additional United States Geological Survey information and studies are being completed that are expected to confirm the capacity of the aquifer. Private providers The primary source of water for those residents outside the city limits is ground water. For the area outside the city limits within the Urban Growth Boundary (UGB), there were • PUBLIC FACILITIES AND SERVICES 8-7 170 • 0314 Bend Area General Plan approximately 270 wells logged on file with the Deschutes County Watermaster's office as of January 1980. The depth of wells ranges from 72 feet to 1,100 feet, yielding various gallons per minute flows. The shallowest wells are found in the northern areas of the UGB. Many of the wells located north of Bend obtain ground water from a sand and cinder zone that is perched above the volcanic rock Deschutes Formation. The wells in these perched water tables generally range from 100 to 200 feet in depth, rather than the 600 to 900 foot deep wells that tap the regional water table. Most of the perched ground water in the Bend area is believed to be recharged from local precipitation, canal losses, and irrigation, although some of the perched zones may be locally recharged from the Deschutes River. There are several private water companies supplying domestic water within the Urban Growth Boundary. Approximately 5,000 service connections within the UGB are furnished domestic water through private water systems. The largest are Avion, Juniper Utility, and Roats. The city has granted Avion Water Company a franchise for operation inside the city limits. This agreement requires that new line construction and other system improvements meets city fire flow requirements and other standards. The city is acquiring some of the smaller private systems that were originally established to serve specific subdivisions. These systems mainly supply domestic water and have limited fire flow capacities. The systems are generally located on the east and south sides of the Urban Growth Boundary in areas of lower residential densities. 0 Water system financing The following table lists the various water facilities the city plans to construct through the year 2002 to support the projected growth and land uses in the Bend urban area. The description, location, timing and estimated cost of listed facilities may change as a result of subsequent design studies, capital improvement programs, environmental studies, and changes in funding sources. City facilities may be constructed earlier than planned by an owner/developer choosing to develop an area prior to the scheduled extension or expansion of facilities by the city. The city has adopted System Development Charges (SDC), as allowed under state law, to help pay for new facilities. SDCs are levied against all new uses at the time of development. These fees are earmarked for major system improvements identified in the city's Utility Systems Master Plan such as reservoirs, wells, transmission lines, and treatment facilities. 8-8 PUBLIC FACILITIES AND SERVICES 170 - 0345 Bend Area General Plan The water System Development Charge is 75 percent of the allowable maximum charge. The City Council determined that this rate reflects the proportionate share of system improvement costs that can be attributed to new growth. The remaining share of system improvement costs benefit the whole community and are collected as a part of the monthly user fees. Table 24 City Water System Projects (1997 dollars) Approximate Project Description Rough Cost for Year all projects Finish Powers Road line extension Finish Boyd Acres Rd. #1 extension Continue Pilot Butte 43 reservoir 1997-98 Construct Boyd Acres Rd. #2 loop Construct Bear Creek Well 91 Continue Awbrey Butte #2 reservoir Replace old water lines Finish Pilot Butte #3 reservoir . 1998-99 Continue Awbrey Butte #2 reservoir Start Hwy 97 North transmission line Replace old water lines Finish Awbrey Butte #2 reservoir Construct 27th Street transmission Finish Hwy. 97 North transmission 1999-00 Start Mt. Washington north transmission Construct Awbrey Butte Well #1 Start Wyndemere transmission line Start Outback Reservoir #2 Replace old water lines Finish Mt. Washington north transmission Continue Wyndemere transmission line 2000-01 Continue Outback Reservoir #2 Start Pilot Butte Well #4 Replace old water lines $3,830,000 $2,225,000 $2,547,500 $2,304,500 04 PUBLIC FACILITIES AND SERVICES 8-9 170 - 0346 Bend Area General Plan L Table 24 0 City Water System Projects (1997 dollars) Approximate Project Description Rough Cost for Year all projects. Finish Wyndemere transmission line 2001-02 Complete Outback Reservoir #2 $2,845,500 Complete Pilot Butte Well #4 Replace old water lines 2003 To 2008 Long-range Water System Pro i ects Complete Rock Bluff #2 reservoir Complete Outback West well field Construct Awbrey #3 reservoir Construct Awbrey west transmission line Construct Yeoman Road 16" transmission line STORM DRAINAGE FACILITIES • ithin the urban area, drill holes and dry wells are used for disposal of the majority of surface drainage. The city has a limited storm drainage system that serves part of the west side of the river and downtown. This system drains to the river. As noted above, some domestic wells are in an area of a shallow water table that may be recharged by surface water such as irrigation canals and the river, or ground water. Disposing of storm water using dry wells or drill holes in this area presents a potential for ground water contamination. Due to .the complex lava terrain without a defined drainage pattern on the east side of the Deschutes River, the use of dry wells for storm water disposal is expected to be the chief means of drainage control. The city, county, and state Department of Environmental Quality and Department of Water Resources have developed a program for storm drainage in the urban area that will protect the ground water resource. This program includes dry wells, the use of landscaping and natural swales to contain runoff, and requirements that surface drainage from developments must be retained on-site. 8-10 PUBLIC FACILITIES AND SERVICES toga • C� 170 - 0347 Bend Area General Plan SOLID WASTE DISPOSAL Solid waste disposal for the urban area occurs at one county facility, the Knott Pit Sanitary Landfill, just outside of the Urban Growth Boundary on the east side of 27th Street. Deschutes County studies indicate that a new sanitary landfill to replace Knott Pit will be needed soon after the turn of the century. The county has begun the siting process for a new facility. . [deleted by City Council, 9/16/98] A second landfill just for construction debris and demolition material was in operation for several years adjacent to Simpson Avenue within the Urban Growth Boundary. This demolition landfill site is about 80 acres, and abuts residential lands on the north, and west, and commercial development along its east and south sides. The county closed this landfill at the beginning of 1997 and started reclamation work on the site in 1998. Collection of solid waste is done by private providers under city and county franchise. In 1991 it was estimated that only about 40 percent of the households in the UGB had signed up for a weekly collection service. Many people haul garbage directly to the Knot Pit Sanitary Landfill. However, there are many instances of dwnping on publie lands an of unlawful garbage dumping on public and private land. in the w -ban area. [edits by BUAPC 4/13/98] The two garbage haulers in the urban area provide weekly curb -side pickup of recyclable materials. In 1996 the urban area haulers picked up more than 5,840 tons of recycled materials. Items picked up at curb -side include aluminum, corrugated cardboard, paper bags, magazines and catalogs, newspaper, glass, plastic bottles, tin cans, and used motor oil. In the mid-1990s about 18 percent of the solid waste material in the county was being recycled by households and businesses either through curb -side service or dropped off at the county landfill and transfer stations. When bottle and can recycling at grocery stores and other recycling programs such as the county's yard debris mulch program are included, about 25 percent of the solid waste material is being recycled. • PUBLIC FACILITIES AND SERVICES 8-11 1.70 0348 Bend Area General Plan OTHER URBAN UTILITIES Electricity within the urban area is provided by Pacific Power and Central Electric Cooperative. Cascade Natural Gas Company provides natural gas service to most parts of the urban area. Adequate natural gas resources exist to serve the Bend urban area through the planning period. Telephone-Rnd Telecommunication services are provided by U.S. West Communications and several cellular phone companies. Cable television and radio service within the urban area is provided by Bend Cable Communications, omp Private utility providers within the city limits operate under non-exclusive franchise agreements with the city. [edits by BUAPC 4/13/98] PUBLIC BUILDINGS AND FACILITIES he city has public works shop facilities on Forbes Road that will be adequate for many years. Deschutes County constructed a new public works complex on SE 27th Street to serve rural parts of the county. This area was annexed to the UGB in 1996 to allow the county to expand its facility. The Bend City Hall at the south end of downtown was built in 1989 and expanded in 1992. The City Hall Annex is located next to City Hall. Also located at the south end of downtown are the Bend -La Pine School District Administrative offices, the county historical museum, the new main branch of the county library, and other public buildings. These various public agencies have cooperated on a re -design plan for an eight -block area at the south end of downtown known as Heritage Square. The county courthouse and various county administrative offices are located in several buildings at the north end of the downtown area. The county owns land in this area to expand its facilities. The Bend Metro Parks and Recreation District offices are also located at the north end of downtown adjacent to the river. Maintaining the city, county, and special district administrative functions downtown will help the community focus on the enhancement of downtown. In 1991 and 1996 Deschutes County received approval from the voters to construct a new adult correctional facility for minimum and medium security inmates and a new juvenile 8-12 PUBLIC FACILITIES AND SERVICES • • 401 170 - 0349 Bend Area General Plan correction facility. These facilities will be part of a county public safety complex located near Highway 20E in the north part of the urban area. The Bend Fire Department serves the city, the urban area, and some areas beyond the Urban Growth Boundary through the Rural Fire District service contract. The main fire station was built in 1918 and is located downtown on Minnesota Avenue. Three fire department substations serve both the urban area and adjacent rural district. The fire department has developed a plan to build two new substations and close the downtown station in order to provide better, faster coverage for the community. Police services in the urban area are provided by the City of Bend Police Department and the Deschutes County Sheriffs Department. The Oregon State Police regional headquarters is also located in Bend. POLICIES Urban sewer f. The city and eounty shall eontinue to apply common development standards within th Urban Growth Bound [deleted by staff 9/98 because of new mngmnt agreement] 2. The city and eonntp shall encourage development of serviced land prior to unserviced land or require the extension of sewer lines as part of any development within the UGB. [edited by staff 9/98] 3. The city shall coordinate the provision of sewer service with other providers within the Urban Growth Boundary. 4. All development within the Urban Growth Boundary shall be sewered or provide for sewers through a binding sewer service agreement with the city. 5. The eity and county agree tha No further special districts shall be formed to provide sewer service within the Urban Growth Boundary, nor shall any annexation be allowed to an existing district. [edited by staff 9/981 6. The city shall be the primary provider of sewage collection and treatment services for the Bend urban area. • PUBLIC FACILITIES AND SERVICES 8-13 1, 7 0 Bend Area General Plan 7. To reduce the reliance on individual sewage disposal systems within the Urban Growth Boundary the city will assist established neighborhoods that commit to a sewage collection system by extending pressure or gravity lines to the subdivision. Urban water 8. Within the urban planning area, x11 public and private water systems should be consistent with city standards for construction and service capabilities. [BUAPC edit, 4/6/98] 9. The city and county shall adopt standards f6r water systems iii order that future systems are eompatible and ean evefftnally be integrated into a whole system. [deleted by BUAPC with support of staff 4/6/98] 10. The city and-eanniq shall continue to coordinate with private providers and irrigation districts in matters of water concerns within the Urban Growth Boundary. 11. The city shall continue to implement a water conservation program that emphasizes enforcement, metering, and other methods to reduce the mis-use of water. Storm sewer 12. Dry wells, landscaping, retention ponds or storm drains shall be used for surface is drainage control. 13. The preservation and use of natural drainage ways for storm drainage shall be required in new developments as much as possible. 14. Due to the lack of a defined drainage pattern for most of the urban area, development shall contain storm drainage on-site. 15. The use of disposal systems will be coordinated with the Oregon Department of Environmental Quality and Water Resources Department to protect known shallow ground water areas. 15A. The city shall work to minimize the dischaMe ostreet run-off water directly into the Deschutes River. [added by BUAPC 4/13/98; edited by City Council and staff 9/16/98] 8-14 PUBLIC FACILITIES AND SERVICES • • 70 - 0351 Bend Area General Plan Solid waste 16. The city and county shall encourage recycling beyond the level required by state law as an alternative to landfill disposal. [changed by BUAPC based on staff recommendation 4/6/98] 17. The county shall reduce dust and blowing refuse at the landfills in order to ensure as few adverse impacts as possible from these facilities. 18. The city and -corm shall explore methods, including mandatory garbage service, to gain 100 percent disposal of waste at designated landfill sites and discourage the dumping of wastes on public and private lands. [edited by BUAPC 4/13/98] 19. The county shall develop a new solid waste management plan. [edited by BUAPC 4/6/98] Public buildings 20. Public buildings and facilities should be located so as to provide convenient public use and to provide maximum service for the greatest economy. Governmental offices should locate downtown when practicable. Other governmental facilities, reservoirs, landfills and correctional facilities should be located in areas with good public access to principal streets. (Added to Plan in 8/96 as part of county shops UGB change) 21 The County Public Works facility shall be planned and zoned with a Public Facilities designation. The uses allowed at the site from among those uses listed in a Public Facility zone shall be limited to public works and transportation facilities and yards and public service uses in existing facilities as such facilities may be expanded and accessory uses thereto. Commercial or manufacturing uses shall not be allowed at this site. (Added to Plan in 8/96 as part of county shops UGB change) Q ANE W PLAN2\PC_C H P 8. D FT First Redraft: December 1996 Last edit: September 22, 1998 PUBLIC FACILITIES AND SERVICES 8-15 170 - 0352 . BEND AREA GENERAL PLAN CHAPTER 9: COMMUNITY APPEARANCE TABLE OF CONTENTS PREFACE ....................... 1 GOALS.........................1 OVERVIEW ..................... 2 Residential areas Commercial areas . Industrial areas Deschutes River corridor Transportation corridors Site planning and design Landscaping Architecture Business and directional signs Conclusion POLICIES .......................9 CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 0 0 170 -6 0353 Bend Area General Plan:.. PREAMBLE One of the hallmarks of the nation's best communities is the thought, planning and community involvement put into creating and delineating an attractively built environment that relates to and incorporates the area's natural environment. A basic objective of this Plan is to retain and, where required, re-establish a sense of community in Bend as growth occurs. An important step in achieving this objective involves paying more attention to the overall appearance of the community and promoting better designs for all types of development. This step benefits the residents by creating a more visually attractive community, and can in some areas, such as along the main highways and transportation corridors, create the image of Bend for visitors and other Central Oregon residents. GOALS • Tv he purpose of including a community appearance section and policies in the General Plan is to provide direction to significantly improve the appearance of the entire V community, and especially in those high visibility areas along the commercial corridors. The community appearance section of this Plan has therefore been prepared in conformance with the following general goals: ❑ To make a concerted effort to improve the appearance of the community, particularly in the commercial, industrial and multifamily areas; ❑ To initiate community action programs for the purposes of developing an awareness in the community's citizens of appearance -related issues, evaluating community appearance and developing specific improvement programs; ❑ To identify those characteristics that give the community its individual identity and to preserve and expand those characteristics as growth occurs; and ❑ To significantly improve the appearance along the state highways and other transportation corridors as one means of recapturing the individual and distinct identity of the Bend area. COMMUNITY APPEARANCE 9-1 170 0354 Bend Area General Plan OVERVIEW Since the early 1970s Bend has had growth rates well in excess of the state average, and this trend is expected to continue into the first decade of the 21st century. The rapid growth has had an enormous impact on the physical character of the community, and has frequently resulted in a significant loss of the physical qualities that make Bend a unique and attractive place to live. Simultaneous with this growth, a deliberate and continuous effort is necessary to see that the thousands of individual decisions made in the process of development collectively constitute tangible progress towards retaining and re-establishing the livability and appearance of our community. The appearance of a community is a complex planning issue that involves both general concerns relating to categories of developments, and specific concerns about areas with high visibility and public use. These concerns are described under several categories in the remainder of this chapter. Residential areas The residential areas of Bend are generally among the most attractive and pleasant sections in the city. The city and county are developing new subdivision and other land development standards to ensure that future residential developments continue the tradition of quality that currently exists. Care should be taken to make certain that older residential neighborhoods retain their charm and vitality and do not enter into decline. One of the major challenges facing the community is to ensure that new housing developing at the edge of the community or as "in -fill" projects within neighborhoods is well planned and integrated within the larger context of the community. The "cookie -cutter" suivsigns, which were typical of marry devel Bend and most other cities, nmst ev IV%, LXLL%J Future subdivisions will have a more thoughtful design that works with the land and with the surrounding neighborhoods. Natural topography, foliage and rock outcroppings should be preserved and used to create character within developments rather than eliminated, and grading should be kept to a minimum. Naturally occurring open space, parks and greenbelts provide visual relief for residents and can link a developing residential area to an established one. [City Council edits, 9/16/98] 9-2 COMMUNITYAPPEAR,4NCE it Atilt 0 r� • • W Bend Area General Plan Commercial areas Outside of downtown, the commercial sections of the community generally show a lack of order and relationship between buildings and their sites. Although commercial areas make up only about three percent of the urban land area, they are often along the most frequently traveled routes and have a strong influence on the "look" of Bend. The development of automobile oriented businesses along the highways, coupled with the increase in national food, gasoline, and retail chains, have done more to set the current image of Bend than any other single factor. If the overall community appearance is to improve, it is important that the businesses within the commercial districts and local governments work together to improve the site design, building design, landscaping, signs and interconnections between properties. Several design considerations, examples of which are presented below, can improve the appearance of a development and keep it more competitive as Bend's commercial sector becomes more sophisticated: ❑ distrbuting parking around buildings so the building, not the parking lot, is the main focus of the site; • ❑ using building designs that reflect the regional setting and native materials such as rock and wood in the exterior; ❑ designing large structures so they blend in better with a more human scale and charm of Bend's older commercial areas; ❑ incorporating natural features of the site into the landscape plans, and maintaining the landscape areas; and ❑ integrating signs into the overall design of a site rather than relying solely on large signs to attract attention. Other structures that have an impact on the appearance of the commercial corridors are the electric power transmission and distribution lines. Most of the corridors have wooden poles, but larger and taller rust -colored metal poles for high voltage lines have been erected along Highway 97 South and the parts of the Parkway. In addition to the visual impact of the poles themselves, other utility lines for local power, telephones, and cable are also hung on these poles below the electric transmission lines thereby creating a ladder effect of lines and visual clutter. Eliminating or relocating the system of above ground utility poles and cables along the commercial corridors will improve the appearance of the commercial areas. 0 � COMMUNITY APPEARANCE 9-3 170 - 0356 Bend Area General Plan • Industrial areas Bend is known for both the high quality of its work force and the goods that are produced in the area. With the exception of Shevlin Center and a few other locations, most industrial areas do not have a consistent development standard so there is much variation from site to site. Although a few industrial operations do not lend themselves to significant building or site design changes, improvements to the appearance of most industrial operations would be beneficial to the community. First, since these are places where workers spend about half of their waking hours, improving the buildings and grounds would make them more pleasant places in which to work and take breaks. Second, given that the "clean" high-tech industries the city is trying to attract usually locate in pleasant, well landscaped campuses, the city and county need to develop new standards to ensure that new industrial areas meet the expectations of new businesses. Third, improving the appearance of industrial areas will create a more pleasing visual environment for community residents and visitors. Deschutes River corridor The Deschutes River has long been an important element of the appearance and quality of life in Bend. The city and county have adopted regulations to protect this priceless resource and promote good design as the community grows. A Design Review overlay zone applies to all development within 100 feet of the river, and the Mixed-use Riverfront zone guides the redevelopment of land along the historic "Farewell Bend" portion of the river. Transportation corridors Improving the appearance of the community also requires better, more thoughtful designs of the transportation corridors that serve the community. Streets in the community that are commonly recognized for their good design — and also function well for all transportation modes — are those that are designed with planter strips between the sidewalk and roadway and with a planted median strip. The Bend Parkway will incorporates a planted median strip in its design, and city engineers have developed standards for including planted medians in the major arterial and collector streets. The addition of landscaped medians along the major transportation corridors will help control traffic and prevent accidents, and will also help create a more attractive community by softening the appearance of areas that are currently completely dominated by man-made surfaces. Traffic signs, street lighting and street signs should be integrated into one structure to help eliminate confusing and hazardous visual clutter at intersections. The city and • 9-4 COMMUNITY APPEARANCE ^ 0 170 -0357 Bend Area General Plan county will continue to work with the state highway department to find alternatives to the old style traffic signals that hang from wires and dangle over state highways. Site planning- and desimn Thoughtfully planning the location of structures, parking, service areas, walkways and amenities has a marked impact on the overall appearance of an area. Well planned sites that are carefully integrated with neighboring areas have a powerful impact upon the function and attractiveness of their entire neighborhood. To recapture some of the human -scale, small town ambiance that for many years was Bend, much of the recent pattern and trends in site planning will need to be reversed. The pattern of buildings surrounded by acres of parking and set back away from the public street should be modified so that additional buildings on development "pads" or buildings on new sites are placed closer to the front property line and have a main entrance oriented to the street and sidewalk. [paragraph edited by staff 4/98 based on heating testimony] Interrelated to building siting, pedestrian walkways from both sidewalks and parking lots should be provided for safety and to help reestablish the desirability of pedestrian travel. These walkways should be pleasant to use and incorporate landscaping, drop-off bays, bicycle facilities and other non -automobile related amenities. They should be designed in such a manner that they are logical extensions of walkways on adjoining sites, and complement established urban and bicycle trails. Community amenities such as patio/seating areas, water features, artwork or sculpture, clock towers, pedestrian -oriented plazas with park benches or other features should be located adjacent to the primary entrances of buildings to help facilitate pedestrian meeting spaces and to provide places of refuge from parking areas. These amenities should be scaled to the size of their development and should be required for larger developments. The inclusion of community amenities helps to create attractive public spaces and reinforces the importance of a human -scaled environment. Site grading should be held to a minimum, and new developments should work within the parameters of existing topography in order to create a natural looking setting. Natural features and areas of special interest must be protected during construction and incorporated into the overall project design. • M642 COMMUNITY APPEARANCE 9-5 Bend Area General Plan Landscaping Attractive, well maintained landscaping can make an enormous difference in improving the appearance of an area. Landscaping should be integrated into the overall design of the site and structure and should reflect an understanding of how plant selection and placement can moderate and enhance a site. Large parking lots should be divided into areas, with each area surrounded by landscaped beds. Pedestrian walkways should be integrated into the landscaped areas, and trees should be required in parking areas to create a canopy over the majority of the paved areas. Bend's short growing season and rocky ground make it difficult for trees and shrubs to acclimate or grow quickly. Because of that, the use of large trees and shrubs that are native to Central Oregon is encouraged. These plantings also tend to be disease resistant and low maintenance, which make them especially suitable for commercial and industrial developments. This type of landscaping, combined with existing natural features on a site, can produce an especially pleasant environment that fits into the natural setting. Architecture During the first 60 years of Bend's existence, the structures that were built here reflected the scale of the town and were largely composed of the natural resources available within the region. Although a variety of styles were used, the resulting mix never detracted from the small town feel. The area has grown threefold since the 1970s, and most of the featureless building designs that could be from "anywhere USA" have occurred during the last 30 years of the century. This trend was emphasized in the 1990s as large, national retail chains moved to Bend. Figure 43. Examples of Bend Commercial Buildings 9-6 COMMUNITY APPEARANCE • • 0 170 0359 Bend Area General Plan Yet in spite of this, people remain attracted to Bend largely because of its original character, and have expressed a strong desire for new development in the town to be respectful of and, to some degree, express its original small town roots in the design of new structures. In order to accomplish this, structures need to be evaluated in terms of several components, including exterior design, wall articulation, building materials and roof design. Bend does not have a history that allows it to claim a particular architectural style as indigenous; however all existing styles here were designed to what is termed "human scale." Structures were small to moderate in scale and incorporated architectural details and elements for interest. Although it is unrealistic to ever expect a complete return to the designs of the past, large structures should be designed so that their impact is more consistent with the scale of commercial buildings in Bend. Specifically: ❑ walls on large buildings should be broken into smaller scale elements and articulated with architectural features appropriate to the chosen design; ❑ landscaping should also be incorporated along large walls to further break up the impact of large structural planes; ❑ main entrances should be clearly defined and highly visible, again using architectural . features to enhance their design; ❑ roofs should be designed to be integral with and appropriate to the overall architectural style of a structure. On large buildings, they should be designed to reduce the apparent exterior mass of the building. Variations within one architectural style are desirable, as are overhangs and other shadow -producing elements; ❑ the predominant building materials used on building exteriors should be materials that are characteristic of Central Oregon. These include brick, wood, native stone, textured concrete masonry units, and traditional glass products. Other materials should only be used as accents and be architecturally appropriate to a specific design. Building colors should be subtle, neutral or earth tone colors that reflect their natural setting; and ❑ exterior lighting should be shielded, directed down onto the site and confined to the site. Light poles, light fixtures, flag poles and similar structures should be limited in height. Business and directional suns If Bend is to retain the character and quality that originally made it one of the most attractive communities in Oregon, a major effort must be made to improve the appearance of business signs and public signs along its roadways. is � W COMMUNITY APPEARANCE 9-7 1 1 a - 0360 Bend Area General Plan 1 • Apart from the national chains, the type, size and location of business identification signs are seldom considered in the overall design of a site. The most attractive and typically the most effective signs are those that are designed to fit in with the building and site. These signs are memorable and effective because they carry through with the building theme and are not just another pole sign placed at the edge of the site just above or below the adjacent business sign. Figure 44. Examples of Bend wall mounted and pound signs The large number of businesses along the main transportation corridors, combined with the ever- increasing competition to catch a driver's attention, has created a forest of pole signs. Currently, principal business signs are accompanied by many lesser message signs . relating to credit cards, prices, specials, hours of operation and so forth. A second category of signs are directional and information signs. These signs, most of which are public signs in the street right-of-way, guide visitors and the motoring public to parks, the mountains, the college, .and numerous other sites. Sign clutter so completely dominates the landscape of the major commercial arterials that the individual effectiveness of each sign is minimized, thereby defeating the purpose of signs. Billboards and other "off -premise" signs are a third category of signs. These signs are most often used to advertise a product, business, or high-end housing development, or used as a directory sign, but also may provide community service information. Because they are targeted at the motoring public, they are most prominent along the state highways and main arterial streets in town. Billboards frequently compete with the on-site business signs and add to the sign clutter, which is contrary to the goal of improving the appearance of the commercial corridors. The city and county should review the local billboard regulations as 9-8 COMMUNITY APPEARANCE X61 • 170_ - 0361 Bend Area General Plan part of their overall review and upgrading of the city and county sign codes. As community concerns increase about the appearance of the transportation corridors and the neighborhoods, new, more thoughtful sign regulations must be developed. Sign regulations should be adopted that would not only control new signs, but establish a reasonable amortization period for the removal of existing noncomplying signs. Conclusion If the appearance of the community is to be reestablished and improved, local citizens must be involved in programs that effectively evaluate community appearance and develop programs for its improvement. Additionally, the city and county must act upon the citizens' wishes by enacting regulations that will effectively direct future development and redevelopment in a manner that is consistent with the historic patterns and aesthetic values of the community. Continued efforts by local government and its citizens can preserve and enhance the natural beauty and livability of the area and, in time, create a city that is truly worthy of its spectacular setting. POLICIES 1. The city, county, and special districts shall publicly advocate and coordinate activities relating to beautification and landscaping throughout the community. Unless otherwise agreed, each agency shall be responsible for improving the appearance of its own properties. 2. Community appearance shall continue to be a major concern and the subject of a major effort in the area. Major natural features, such as rock outcrops or stands of trees, should be preserved as a community asset as the area develops. 3. Through the use o The city will use advisory committees, public workshops, and other measures, the eity and county sha44 to identify those characteristics that give the community its individual identity and preserve and expand those characteristics as growth occurs. [grammatical edits by staff 9/98] 4. Sign regulations shall be adopted that approve the design and limit the size, location, and number of signs in residential, mixed-use, commercial and industrial areas and have amortization provisions to remove existing non -conforming signs within a %W -s # NONE= COMMUNITY APPEARANCE 9-9 170 -0362 Bend Area General Plan • reasonable period of time. that do not eonform with the regulations. [BUAPC 4/13/98] 5. Special design and landscaping requirements shall be established along streets designated by the Bend Urban Area arming-Gammission. These, might that include, but not be limited to Highway 20 West; Highway 97 and 3rd Street; Greenwood Avenue and Highway 20 East; Franklin Avenue; Riverside Avenue opposite Drake Park; Newport Avenue; Galveston Avenue from the river to 14th Street; Century Drive to the Deschutes National Forest boundary; Reed Market Road; NE 27th Street from Reed Market Road to Butler Market Road; and Mt. Washington Drive. [BUAPC & staff edit 4/13/98; City Council edits 9/16/98] 6. The city shall develop designs for arterial and collector streets that include landscaped planter strips and medians. Such designs shall include trees in the planter and median strips when practical and safe. [edits by BUAPC 4/13/981 7. Landscaped median strips should be installed on f fighway 97, NE 3rd Street, Greenwood A-ventze and othe rials in the urban area wherever practieal. [deleted by BUAPC 4/13/98 as being redundant with 9 ] 8. Special design consideration shall be given to development on hillside areas visible • from developed areas, and from Highway 20 and the Parkway within the Bend area. 9. The city mid eo nrty shall considereonsideration shall be given to establishing design review for all new development in the community with the exception of single-family houses and, duplexes and tri-plexes. [edits by BUAPC 4/13/98] 10. The city shall seek opportunities to relocate existing overhead utility lines underground in all parts of the community, and especially along the commercial corridors. :: community, and to plant approved trees. [deleted by BUAPC on 4120198] 12. After the Highway 97 Parkway opens, the city and county shall work with ODOT to improve the appearance of Highway 20, NE 3rd Street and South Business Highway 97. [Note: this policy will be repositioned to follow policy 46 in the next draft] 9-10 COMMUNITY APPEARANCE !&d& • • 0 - Bend Area General Plan 13. The city and coun shall develop ordinances requiring grading permits.—far subdivisions of parcels one aere or larger in size. [edits by City Council 9/16/98] eoimnereial and industrial land, and during residential subdivision developmen . [deleted by BU'' 9: 15. The city shall develop an Urban Forestry Plan which shall include: ■ annual tree planting plans for existing areas of the community; ■ a city approved street tree list; ■ steps to re -capture and maintain a "tree -city USA" designation; and ■ the adoption of a formal Bend City Tree Ordinance which includes regulating the removal of trees on commercial and industrial land and during residential subdivision development. [added by BUAPC 4/20/98] CMZ*Z*Z*Z*7 Q:\NEWPLAN2\CC_CHP9.DFT Drafted January 1997 Last Edit: September 29, 1998 • COMMUNITYAPPEARANCE 9-11 Elmo= BEND AREA GENERAL VEAN 3 s a CHAPTER 10: NATURAL FORCES TABLE OF CONTENTS PREAMBLE ............................... 1 GOALS ................................... 1 OVERVIEW ............................... 1 AIR QUALITY ............................. 2 ENERGY CONSERVATION .................. 4 NATURAL HAZARDS ....................... 5 STEEP SLOPES ............................ 6 POLICIES ............................. 8 CITY COUNCIL /BOARD OF COUNTY COMMISSIONERS HEARING DRAFT OCTOBER 1998 • 170 -0365 Bend Area .General Plan '.' ................... PREAMBLE he natural forces that have formed the physical environment of the Bend Urban Area continue to provide the area with many benefits: a moderate climate, clean air and water, plentiful stream flows and ground water, and natural energy resources from the sun, water, and geothermal energy. The Plan and related ordinances shall reflect the interest of the community to retain and enhance the quality and availability of these resources. GOALS atural forces such as the quality of the air, the energy of the sun, and the power smoldering deep under the lava flows are characteristic of Central Oregon. The local governments and community residents must work together to ensure these natural forces are not diminished. In support of this effort the Plan has the following goals: ❑ to maintain or improve the air quality for a healthful and desirable urban environment; ❑ to encourage energy conservation and the development of energy producing facilities that use renewable resources; and ❑ to work with state and federal agencies to develop new, more accurate mapping data on flood plains, faults, and other local natural hazards within the urban areas. OVERVIEW Inhis final chapter in the Bend Area General Plan provides discussion and data on natural forces — air quality, energy sources and conservation, and potential hazards such as flooding and land faults. Land use planning can have some influence on how future development impacts these natural forces. However, the effect of these forces on the growth and livability of the urbanarea is equally likely to be driven by factors that are beyond the physical and political control of the city or county. NATURAL FORCES 10-1 1 1 0 _ 0366 Bend Area General Plan AIR QUALITY amtammg and improving the air quality in the area is an important part of keeping Bend a desirable place to live. Bend is fortunate that local governments, citizens' groups, and the Oregon Department of Environmental Quality are working together to ensure that Central Oregon's sky remains blue and clear, and our citizens remain healthy without concerns of air pollution. Policies at the end of this chapter provide -direction for local actions to reduce air pollution. Both the federal and state government establish air quality standards for various pollutants, and may impose strict and costly control measures for communities that exceed the standards. In Bend, the two air pollutants that are of concern and monitored on a regular basis are carbon monoxide (CO) and very small particulate matter (PM 10). Automobile exhaust and other incomplete combustion are typical sources of CO production. Bend has exceeded the CO standards twice since 1987, and both occurrences were in 1987. A variety of materials such as wind-blown dust, field and slash burning, wood stove smoke, and road cinders used for winter sanding can produce fine particles that fall into the PM 10 air pollution category. Figure 45 shows PM 10 emission sources measured during the winter Figure 45 PM -10 Emission Sources in Bend Source: Oregon Department of Environmental Quality 10-2 NATURAL FORCES of 1994-5. The PM 10 air quality standard has been exceeded twice since 1987, most recently in the winter of 1996. A new particular matter standard is being established by the Federal Environmental Protection Agency. The impact of this new standard on Bend is unknown at this time. Although the few occurrences of exceeding these two air quality standards have not been of sufficient frequency to have Bend designated as an air quality "non -attainment area," the forecast of significant population and economic growth for Bend and Deschutes County increases concerns about Bend's ability to maintain 0 • • 170 - 0367 Bend Area General Plan compliance with the air quality standards. In 1989, a group of citizens sharing a concern for Bend's air quality started a true "grass- roots" effort to ensure that Bend's air would remain clean and healthy. This group, known as the Bend Clean Air Committee, consists of individuals that represent local, state, and federal government agencies, the scientific community, the medical community, industry, environmental groups, and concerned citizens. Since its beginning, the Bend Clean Air Committee has been very proactive and its efforts have included: ❑ conducting several surveys to gauge public awareness of air quality issues; ❑ sponsoring city ordinances restricting open burning and requiring replacement of non -certified wood stoves upon sale of homes; ❑ conducting educational campaigns; ❑ maintaining a wood stove burning advisory program during the winter using billboards, banners, public service announcements, and telephone hotlines; and ❑ giving an annual clean air award recognizing individuals and groups whose actions contribute to preserving and improving air quality. The existence of the Bend Clean Air Committee was a factor in the federal government's $100,000 grant in 1994 to the Oregon Department of Environmental Quality, the City of 0 Bend, and the Bend Clean Air Committee. The grant paid for monitoring carbon monoxide and particulate pollutant levels in Bend and for developing strategies to maintain compliance with the national air quality standards. Additional information on meteorological conditions in Bend and air quality standards is in two General Plan resource documents titled Goal 6: Air, Water, and Land Resources Quality and the Bend Air Quality Project Phase H Work Plan. ENERGY CONSERVATION The efficient use of energy has several benefits in this period of increased costs and - saves the consumer money, but and reduces the need for developing new (and often more expensive) sources of energy. is reduced. This element addresses energy conservation through a variety of land use planning and construction practices. [edited by staff with approval of BUAPC 4/20/98] 0 NATURAL FORCES 10-3 170 - 0368 Bend Area General Plan While no known sites that have a potential for oil, gas or geothermal resource development exist in the area, there are two hydroelectric sites within Bend. As early as 1910, a small hydroelectric dam was constructed on the Deschutes near downtown to generate power for the growing community. This facility is still in use today. In 1985 the Central Oregon Irrigation District built a hydroelectric facility using water from its irrigation flume along the river to power a small generating plant that is tucked into the hillside opposite Mt. Bachelor Village. In addition, there is still potential for heating and power from locally generated wood wastes, such as slash and mill trimmings. As noted earlier in the Air Quality section, Bend has an active program to upgrade wood stoves for more efficient use of the resource and to maintain air quality in the area. The large number of sunny days makes this area particularly suitable for solar power, both passive and active systems. During the summer, 300-350 British Thermal Units (BTUs) of sunlight energy are delivered to each square foot of land in the area, but this level declines to 175-200 BTUs during the winter. Bend was one of the first cities in the state to adopt "solar access" ordinances to provide good solar access during the winter solar heating hours so that homeowners can incorporate passive or active solar systems into their homes. The Bend area is fortunate to have some potential energy sources. available, since its However, the expanding population will continue to strain the ability of energy suppliers to meet the increasing demand. To meet this demand, a All available resources will have to be evaluated, used, and made compatible with the economic, social, and environmental goals of the local and regional population. No single answer exists, but a reasonable combination will have to be found. In the meantime, local planning efforts must be aimed at promoting greater efficiency in the use of existing energy resources, and in protecting and developing those resources we will need in the future. NATURAL HAZARDS fficial flood hazard maps for the Bend area and Deschutes County are published by O' the Federal Emergency Management Agency (FEMA). The flood hazard area within Bend is within or adjacent to the banks of the Deschutes River. During the winter of 1996-97 the high water level in some parts of the urban area exceeded the 100 - year flood boundary as mapped by FEMA. The city has requested that FEMA re-evaluate the 100 -year flood plain within the urban area and adjust their maps as necessary. 10-4 NATURAL FORCES • is • • 170 - 0369 Bend Area General Plan The Oregon Department of Geology and Mineral Industries has mapped some faults within the urban area. More information is needed on the type and extent of these faults. STEEP SLOPES evelopment on hillsides demands special considerations for site preparation, access, and utility placement. In planning and engineering, slopes are typically described as a percentage figure, which is a measurement of the change in elevation divided by distance. For example, if a lot has a 15 foot change in elevation over a 100 -foot distance, the slope would be 15 percent (15/100). As a comparison, the maximum slope or grade on interstate freeways is 6 percent. Several factors such as rainfall levels, vegetation cover, soil depth and base material affect the stability of slopes. However, it is generally true that as slopes increase in steepness, there is a corresponding increase in the impacts on the natural conditions on the slopes and in the difficulty of construction. A typical or general range describing slopes and the corresponding level of concern are: Percent Slope 0-10% l l%-25% 26%-35% 35% and above Level of Impact on Environment / Design and Construction Concern Slight Moderate Severe Extreme Although the Bend urban area is generally on a plateau at the base of the Cascade Mountains, there are a few areas that have moderate to steep slopes. Awbrey Butte, Pilot Butte, Overturf Butte, areas along fault scarps, and some areas along the river canyon in the south and north part of the urban area have slopes of 15 percent and more. There are several possible impacts associated with construction and road building on slopes: ❑ Disruption of natural landform and drainage patterns. Even when a road follows the contour around a hill there is a need to cut into the hill on the high side and fill on the down slope side to create a level surface. As the slope percent increases, more cutting of the hill on the high side and more filling on the low side to is needed to create a level travel 0 �_ NATURAL FORCES 10-5 170 - 0370 Bend Area General Plan way or building site. Most high desert soils are loose and powdery, and only a few inches thick. A major side effect of the cut and fill activity needed for road and building construction is the increased possibility of soil erosion. The impacts here are twofold. First, when native grasses, shrubs, trees and other vegetation that hold the soils on steep slopes are removed, there is greater exposure of soil and rock that is subject to wind and water erosion. In addition to erosion, slopes without vegetation are more likely to suffer slumping and sliding. Second, the amount of cut and fill areas, and the modifications to drainage patterns created by streets, driveways, sidewalks, and utility routes, can all create erosion problems and/or the degradation of the exposed rock through winter freeze and thaw cycles. ❑ Public safety. If a road, sidewalk, or other transportation route goes up the hill across the contours, then the steepness of the route can make it difficult for emergency vehicle access any time, and especially hazardous for any type of vehicle or pedestrian movement during winter conditions. Also, the increased impact on drainage and soil movement concerns with steeper slopes can create slumps, breaks or other problems with streets, sidewalks, trails, water and sewer lines, and other utilities ❑ Visual impact. Because the buttes and other sites with steep slopes can be seen from many parts of the urban area, there is interest in designing developments that minimize the amount disruption to the natural conditions. The Awbrey Butte Master Plan, which covers several hundred acres of steep slopes on the most prominent butte in town, includes street and site development standards to reduce the visual impact of development. There are several construction and subdivision design measures that can be applied to steep slopes to reduce the potential adverse impacts from development. Such measures include, but are not limited to: • larger lots to reduce the number of building sites and corresponding disruption of the natural contour and vegetation; • using narrower right-of-way, pavement widths, and "hammer -head" street ends rather than cul-de-sac bulbs to reduce road cut and fills; • taking access off alleys on the uphill side of a street to reduce driveway cuts into the hillside; • placing sidewalks at the curb, or having only one sidewalk along the street to reduce the cross -slope cut and fills; :D 10-6 NATURAL FORCES • Ll • • C� 170---0371 Bend Area General Plan • adjusting the building setback from property lines to minimize building site cuts and fills; • regulating the amount of vegetation cleared off a hillside lot; • requiring temporary use of hay bales, diversion dams, or other physical changes to control storm runoff during road and site construction; and • setting maximum grade or slopes on public streets and pedestrian corridors. Additional information, measures, and policies on street construction on steep slopes are included in Chapter 7, Transportation Systems. POLICIES Air quality 1. The city and euuntq shall encourage DEQ to perform more thorough monitoring of the air quality of the Bend Area, and shall work with DEQ to ensure that state and federal ambient air quality standards shall not be exceeded. 2. The city and county shall maintain an Program of pavmig or scaling dILtL streets. [deleted by BUAPC on 4/20/98 as recommended by staff] 3. The city, county and state shall continue to work towards improving circulation and traffic flow through the city in order to reduce carbon monoxide levels. 4. The city andcountp shall regulate open burning, wood stove installations, and consider other measures to improve air quality within the urban area. 5. The city and -eosin will cooperate with DEQ in continuing to monitor industrial emissions. 6. The city and -e shall review land -use development in the Bend Urban Area as to its potential air quality impact on Class I areas within a 20 mile radius. 7. The city and county shall develop a plan and program to mitigate any air quality problems, if before the city pets out of compliance with air quality standards: • `` 4h j;:i:j:;::; NATURAL FORCES 10-7 170 - 0372 Bend Area General Plan 8. The city shall support the local eican Aireoimnittee and othe citizen organizations in their efforts to improve the air quality in Bend. [edited by BUAPC 4/20/98] 9. The city and county shall develop a plan to mitigate the adverse air impacts of sanding roadways during winter weather. Energy conservation 10. The use of alternative energy sources should be encouraged. [edits by BUAPC 4/20/98 as recommended by staff] [deleted by BUAPC 4/20/98 as recommended by staff] 12. Any energy producing projects shall be consistent with the community's wildlife, recreation, open space, and scenic resource values. Natural hazards 13. The city mid countp shall continue to apply their Flood Plain zoning regulations along the Deschutes River and Tumalo Creek based on the best available data. 14. The city and countp shall encourage the Oregon Department of Geology and Mineral Industries to complete an assessment of faults in the Bend area. 15. The city mid-eeun shall review the construction plans for buildings that are proposed to be built across or along identified fault lines. Steep slopes 16. The city and-eaanty shall require development on slopes in excess of 10 percent to employ measures to minimize the hillside cuts and fills for streets and driveways. 17. The location and design of streets, structures and other development features on slopes in excess of 10 percent shall give full consideration to the natural contours, drainage patterns, and vegetative features of the site to protect against temporary and long-term erosion. 10-8 NATURAL FORCES 1-0 is • 1 • 0 170 -0373 Bend Area General Plan: 18. In areas where the natural slope exceeds 20 percent, the city and noun may reduce the minimum residential density (allow larger lots) or alternatively, may require cluster development through the PUD process to preserve the natural topography and vegetation or, steep slopes , and improve fare protection. [staff edit 9/29/98] * * W1Z Q:\NEWPLAN2\CC_CHP 10. WPD Drafted: February 1997 after moving air quality and energy conservation out of another chapter. Last Edit: September 29, 1998 (M NATURAL FORCES 10-9 C� 01 • 170 - 0374 APPENDIX A: GLOSSARY OF TERMS USED IN THIS PLAN ACCESS CORRIDOR - A separate travel way for pedestrians and bicyclists to minimize travel distances within and between subdivisions, planned unit developments, residential areas and commercial centers, major employment areas, transit stops, or within and between nearby neighborhood activity centers such as schools, parks, and convenience shopping. ARTERIAL (STREET) - A major street designed to move large volumes of traffic through the urban area, or to different neighborhoods. BALANCE/BALANCED - An allocation of planning, financial, and other resources based on the relative need or demand of competing or similar goals or programs. BEND AREA - A geographic area, larger than the urban growth boundary, roughly equivalent to the 97701 and 97702 ZIP codes. Often used by Chamber of Commerce, Realtors, and others to describe the service area and population around Bend. BIKE LANE - A portion of a roadway which has been designated by striping and pavement marking for the exclusive or preferential use of bicyclists. BIKE WAY - Any trail, path, part of a highway or shoulder, sidewalk, or other travelway specifically marked and/or signed for bicycle travel. BUILDABLE LANDS - Lands within the urban growth boundary that are suitable, available, and necessary for urban uses. Bend Area General Plan Glossary CAPITAL IMPROVEMENT PROGRAM - A schedule showing when permanent city or county facility improvements such as streets, sewers, and water facilities will be constructed and how they will be financed. Usually lists project five budget years in advance and is updated annually. COLLECTOR - A street designed to carry traffic between local streets and arterials, or from local street to local street. COMPREHENSIVE PLAN - A document with general, coordinated text, policies, and land use map that interrelates all functional and natural systems and activities relating to the use of land. DENSITY - The number of dwelling units per acre of land. The General Plan housing needs are based on dwellings per gross acre of land. DESTINATION RESORT - A self- contained development providing visitor oriented accommodations, developed recreational facilities, and permanent housing in a setting with high natural amenities. DEVELOPMENT - A manmade change to improved or unimproved real estate, including but not limited to construction, installation or change to a building or other structure, paving, or land divisions. DRAINAGE WAY - Any natural or manmade watercourse, trench, ditch, swale or similar depression into which surface water flows. IAIII OCTOBER `98 draft GENERAL PLAN - The official name for the Bend Area land use plan. Essentially the same as a Comprehensive Plan. GROSS ACRES - The total area including land used for public or private streets, alleys, easements, open space, and other such uses. IN -FILL - The use of vacant or under- developed parcels of land within existing developed residential areas. LOCAL STREET - A street designed to provide access to and from residences or businesses. MEDIAN - A physical divider, typically down the middle of a street, which may be of solid material and/or planted with shrubs and trees. MULTI -MODAL - A transportation system or right-of-way that plans for and provides for different transportation modes such as driving, walking, biking, and bus service. NATURAL AREAS - Includes land and water that has substantially retained its natural character. Such areas are not necessarily completely natural or undisturbed, but can be significant for the study of habitats, historic, scientific, geologic features, or as open space. NEIGHBORHOOD - An area made up of one or more subdivisions or housing developments with geographic features or manmade features such as major roads or raillines that provide distinctive boundaries to the area. NET ACRES - The amount of land remaining after necessary deductions have been made for streets, open space, utility easements, access corridors, or other 170 - 0315 necessary dedications. OPEN SPACE - Any open lands or waters that are free of intensive development and are intended to remain in such a condition. Includes parks, golf courses, public trails, cemeteries, conservation easements, and other public or private sites that are set aside to conserve natural or scenic resources. PEDESTRIAN FACILITY - An improvement provided for the benefit of pedestrian travel, including walkways, sidewalks, crosswalks, median refuges, signs, signals, illumination and benches. PLANNING AREA - The area within the Urban Growth Boundary and Urban Reserve Area, and subject to General Plan policies. PLANNING PERIOD - As used in the update of the General Plan, the period between 1995 and 2020. PLANTER STRIP - Typically the landscaped area between a street curb and sidewalk, or between a pedestrian walkway and parking or maneuvering areas in a parking lot. REFINEMENT PLAN - A development plan for a designated geographic area that provides more detail on future street and utility locations, and may include additional standards for uses. Refinement Plan, as used in the Bend Area General Plan, is not the same as defined in Oregon Revised Statutes, Chapter 197.200. RIGHT-OF-WAY - Public or private land dedicated and planned for the movement of people and goods. May include roads, sidewalks, bike lanes, landscaped planter strips, medians, areas for utility lines, and parking or loading areas. s Bend Area General Plan Glossary A-2 OCTOBER `98 draft RURAL LANDS - Those lands outside of the urban growth boundary or urban reserve area. SIDEWALK - A walkway separated from the roadway with a curb, constructed concrete or other durable surface, and designed for pedestrian use. TRANSPORTATION PLANNING RULE (TPR) - Oregon Administrative Rule 660-12 that establishes transportation system planning standards and guidance for local and state government. TRANSPORTATION SYSTEM - The local and state system of roads, bike lanes, sidewalks, trails and transit facilities needed to transport people and goods within and through the urban area. TRANSPORTATION SYSTEM PLAN (TSP) - An overall plan for all transportation modes in the urban area as required by the IsTransportation Planning Rule. Major policy issues in the TSP are discussed in the Transportation Systems chapter in the General Plan. • UNBUILDABLE - Land which because of natural conditions, location, or shape is unsuitable for urban development. URBAN GROWTH BOUNDARY (UGB) - A site specific line, shown on the General Plan land use map, which separates lands planned for urban level development from rural lands. URBAN LANDS - Lands that are planned for urban level and types of development and for which urban services are needed. This includes developed land within the city limits and adjacent area within the urban growth boundary. 170 0376 URBAN RESERVE AREA - An area beyond the urban growth boundary that is planned for long term expansion of the urban growth boundary for urban level development. The urban reserve area is shown on the General Plan land use map. QANE WPLAN2\GLOSSARY.DFT September 28, 1998 Bend Area General Plan Glossary A - 3 OCTOBER `98 draft