2003-81-Order No. 2003-018 Recorded 2/5/2003REVIEWED
L A C UNSEL
DESCHUTES COUNTY OFFICIAL RECORDS CJ 2003'81
NANCY BLANKENSHIP, COUNTY CLERK
COMMISSIONERS' JOURNAL ,
2003-000081
02/0512003 01, 55.33 PM
For Recording Stamp Only
BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON
An Order declaring the intention to create a Local
Improvement District known as Collar Drive
L.I.D. for the improvement of Certain Dedicated
Public Roads Known as a portion of Collar Drive
from Masten Road to the southwest corner of Lot
6 Block 6 within Wagon Trail North, First
Addition Subdivision, Known as Collar Drive
L.I.D., Deschutes County, Oregon Accepting the
Engineer's Feasibility Report, Setting the Hearing
for Remonstrance, and Authorizing the Road
Director to Give Notice of Said Hearing.
* ORDER NO. 2003-018
*
WHEREAS, the Board of County Commissioners, By Resolution 2002-112 initiated the improvement
of certain dedicated public roads known as Collar Drive L.I.D.; and
WHEREAS, the County Engineer has investigated the feasibility of making the improvements,
estimated the cost of the improvements, proposed a method of assessment and estimated the amount of the
assessments against each of the specially benefited properties, in accordance with 12.48.150 of the Deschutes
County Code; and
WHEREAS, the Board has considered the Engineer's report and has determined to proceed with the
proposed improvements, subject to the notice and hearing requirements of Chapter 12.48 of the Deschutes
County Code; and
WHEREAS, the Engineer conducted a mail poll of all the owners of all specially benefited lots within
the L.I.D. in accordance with Section 12.48.166 of the Deschutes County Code. The poll approval rate is 60%
of the owners of land representing over 60% of the total amount of the estimated assessment for the proposed
local improvement; and
WHEREAS, Section 12.48.170 of the Deschutes County Code requires that the Board provide notice to
specially benefited property owners and set a hearing for the purpose of hearing remonstrances to said
improvements; now, therefore,
THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON, HEREBY
ORDERS as follows:
Section 1. That the Engineer's report relating to the improvement of certain dedicated public roads
known as a portion of Collar Drive from Masten Road to the southwest corner of Lot 6 Block 6 within Wagon
Trail North, First Addition Subdivison, Deschutes County, Oregon, marked Exhibit "A", attached hereto and by
this reference incorporated herein, be accepted and hereby approved.
PAGE 1 OF 2- ORDER NO. 2003-018 - COLLAR DRIVE LID
Section 2. That a hearing be set on March 5, 2003, at 10:00 a.m. at the Deschutes County Board of
Commissioner's Hearing Room, Administrative Building, 1130 NW Harriman, Bend, Oregon for the purpose of
hearing remonstrances to said improvements.
Section 3. That, subject to the hearing process set forth by Chapter 12.48 of the Deschutes County
Code, the LID be formed and the improvements carried out as described in said Engineer's Report.
Section 4. That the Road Department Director be authorized to notify benefited property owners of the
said hearing and proposed improvement, in a form substantially as contained in Exhibit "B", attached hereto and
by this reference incorporated herein.
rd 2
DATED this 13 ----day of , 2003.
ATTEST:
Recording Secretary
BOARD OF COUNTY COMMISSIONERS
OF DESCHU S COUNTY, OREGON
NNIS R. LUKE, hair
CtAl"
TOM DEWOLF, Commissioner
MICR L M. ALY, Co issioner
PAGE 2 OF 2- ORDER No. 2003-018 - COLLAR DRIVE LID
JTES c
EXHIBIT "A"
iiivx
Road Department
AA MEMORANDUM 61150 S.E. 27th St., Bend, OR 97702
(541) 388-6581 • FAX (541) 388-2719
TO: Board of County Commissioners
FROM: Gary Judd, Engineer
DATE: January 3, 2003
SUBJ: Feasibility study for the Collar Drive L.I.D.
This report is made pursuant to Section 12.48.150 of the Deschutes County Code concerning the
engineering investigation, by the Deschutes County Road Department, for proposed local road
improvements.
Deschutes County received a petition from certain property owners to improve certain dedicated
public road known as that portion of Collar Drive from Masten Road to the southwest corner of
Lot 6, Block 26 (Klamath County line) in Wagon Trail North, First Addition. Due to this
petition, the Deschutes County Board of Commissioners initiated a Local Improvement District
by Resolution No. 2002-112 signed on December 18, 2002.
The Resolution was referred to the Deschutes County Road Department for the completion of a
feasibility study of the proposed local improvements in accordance with Deschutes County Code
12.48.150. This report constitutes the engineer's findings.
GENERAL DESCRIPTION OF THE ROAD AND SURROUNDING AREA
The area in which the road improvements are sought constitutes a subdivision approximately 7
miles southwest of La Pine. The subdivision is accessed from Highway 97 by way of Masten
Road.
Masten Road intersects with Highway 97 south of La Pine. Masten Road is designated as a rural
Collector on the Transportation Plan Map. Collar Drive intersects with Masten Road. All of the
lots within the boundaries of the LID abut on the road to be improved.
The road within the proposed LID is currently an unpaved road consisting of decomposed
aggregate and dirt. The road was built to serve lots in the Wagon Trail North subdivision in the
early 1970's. Collar Drive was not constructed to current County standards and is not included
in the County maintained road system. The County bears no responsibility for maintaining this
road. Maintenance of the road must be provided by owners of the property served by this road.
Exhibit "A" Quality Services Performed with Pride
Page 1 of 12
Collar Drive LID
2 of 6
Since the road is unpaved, is prone to extensive washboarding and rutting, which requires
frequent grading to smooth the ruts and washboards out. Repeated grading, snowplowing, and
the effects of traffic have caused the base material to nearly disappear from the roadway. In
many places the road is now down to dirt, with rocks showing through.
A map of the area is attached hereto as Exhibit 1.
OPTIMAL LOCATION AND EXTENT OF THE IMPROVEMENT
The road to be improved is classified as a local street by the Deschutes County Transportation
Plan. Meaning that the purpose of this road is to carry local traffic and primarily serve lots
abutting the subject street. See DCC 17.08.620(F).
Since all Collar Drive within this part of the subdivision is included in the Local Improvement
District, this is an optimal location and extent of the project. Bullwhip Drive and Anvil lane are
not being improved by the Local Improvement District. These roads were created to serve future
development that may not occur under zoning. The proposed improved road will facilitate
orderly development and efficient use of infrastructure throughout the neighborhood as well as
effective maintenance of the improvements.
BOUNDARIES OF THE LOCAL IMPROVEMENT DISTRICT
DCC 12.48.130 requires that properties to be assessed be included within the boundaries of a
designated local improvement district (LID). Properties to be included in a LID are properties
that are benefited by the proposed local improvements. Attached as part of Exhibit 2 of this
report is a map showing the boundary of the proposed local improvement district and the
benefited properties, along with the location of the improvement and the road to be improved.
Properties abutting or have their only access from a road improvement are presumed to benefit
from such construction. Accordingly, except as noted herein, the boundaries of the LID have
been drawn to include those properties abutting or have their only access from the improvements.
Because the road is designated as rural local roads, they will be constructed to standards
appropriate for rural local roads.
A map of the Local Improvement District is attached hereto as Exhibit 2.
DESCRIPTION OF THE CONSTRUCTION DESIGN
The construction standards for local streets are found in the County subdivision ordinance. See
DCC 17.48.010. The relevant standards are set forth in Section 17.48.050 and Table A. Those
standards require a pavement width of 24 feet, a base depth of 6 inches of crushed aggregate and
a surface of 0-9 mat or 2" of AC. The road must be designed to the safety and design standards
of the American Association of State Highway and Transportation Officials (AASHTO). These
standards as adapted to rural local streets reflect the designation and function of the improvement
as a local street.
Exhibit "A"
Page 2 of 12
Collar Drive LID
3 of 6
This engineer's report has been drafted anticipating that the work to be done will meet the rural
local road construction standards. The following is a description of the proposed work under
those standards:
Mobilization - normal mobilization costs incurred in preparation of the work.
Construction Surveying - setting slope stakes, subgrade stakes, and base stakes for the
contractor to construct the road.
Traffic Control - signs and flaggers will be provided to warn, safeguard, protect, guide, and
inform the public and workers.
Sub grade - earthwork will be required to construct subgrade. There will be some
construction required to provide proper drainage.
Base - placing, shaping, compacting, and fine grading of base will be required. A six inch
depth of aggregate base will be utilized for the roadway and a four inch depth of aggregate
will be used for driveway approaches.
Paving - the paving will be a two inches in depth of asphaltic concrete surface. The
pavement width will be twenty four feet wide.
Miscellaneous Work - resetting mailboxes, moving utilities, drainage, and obtaining right-
of-way.
Engineering and Administration - the expenses incurred by the County in the preparation of
plans and specifications, inspection, surveying, accounting, payment collection, and interim
financing costs.
From the staff's review of the proposal and the site, it does not appear that there is anything that
would make the proposal unfeasible from a technical standpoint. All right-of-ways are dedicated
to the public with a width of sixty feet. Except for areas where the current road base does not
align with the right-of-way, the road to be improved is already laid out and in use. The terrain is
generally flat in nature, with some areas where excavation and embankment will be required. If
slopes extend outside of the right-of-way, easements will be obtained from the property owners
affected.
CONSISTENCY WITH LAND USE REGULATIONS
There are two considerations to be looked at in assessing whether the proposed improvements are
consistent with zoning requirements. First, whether the class of the road improvement is one that
would require land use approval and second, whether the requirements of the applicable zones
would require land use approval.
In this case, the proposed improvements would be considered to be a Class III road or street
project. Class III road and street projects are those involving modernization, traffic safety
improvements, maintenance, repair, or preservation of a road or street. See DCC 17.08.625(C).
Improvements falling within this classification do not as a general rule require a land use permit.
Exhibit "A"
Page 3 of 12
Collar Drive LID
4 of 6
As a general rule, it is only when modernization involves widening by more than one lane that a
land use permit is required. See, e.g., DCC 17.08.625(B) regarding Class II road and street
projects. That scenario is not presented by the proposed road improvements.
As to the requirements of the zones themselves, the proposed improvements are located within
Rural Residential (RR-10) zone. Class III road improvements in the RR-10 zone are outright
permitted uses. See DCC 18.60.020(F). The proposed project is consistent with the RR-10
zoning and may proceed without obtaining permits. Given that zoning allows for the proposed
improvement, the project is feasible from a land use perspective.
DETERMINATION OF MAXIMUM ACTUAL COST
Under DCC Chapter 12.48; assessments for local improvements may include, in the costs to be
assessed to benefiting properties, the "actual cost of the local improvement project. "Actual
costs" includes all direct and indirect costs incurred by the County to undertake a capital
construction project such as that proposed by Resolution No 2002-112 "Actual costs" includes
but is not limited to; the cost of labor, materials, supplies, equipment rental, property acquisition,
permits, engineering, financing, legal, administration, depreciation, amortization, reserve for
delinquencies, or defaults, and debt service. Administrative expenses may include those incurred
in preparation for formation of a local improvement district, such as meeting with property
owners, preparing and processing the feasibility report, and providing notice and conducting
hearings.
The engineer has determined the maximum actual cost of the proposed local improvement,
including interim financing, is $160,535.
Attached as Exhibit "Y' is a detailed schedule of the cost estimate.
The estimate construction costs are based on 2002 project costs for similar types of construction.
A contingency has been added to the construction costs estimate to cover unexpected cost
overruns due to unforeseen construction complications and to reflect the possibility of higher
construction costs due to increase in the costs of materials and labor.
PROPOSED METHOD OF ASSESSMENT
The recommended method of assessment, to arrive at a fair apportionment of the actual cost of
the local improvement to the properties specially benefited, is to divide the total cost of the
project or maximum actual cost, which ever is less, by the number of specially benefited lots.
This per lot apportionment method is recommended due to differing lot sizes, shapes, and
frontages, the presence of corner lots, and takes into account densities prescribed by zoning in the
area. The differences amongst the lots make for difficulties in apportionment if an alternative
apportionment method based on frontage or acreage were to be used. Since most of the lots
have more or less an equal size, it is reasonable to assume that each abutting lot will have only
one residence; therefore, the ability to use the improvements would be the same per lot regardless
of the frontage a particular lot has.
Exhibit "A"
Page 4 of 12
Collar Drive LID
5 of 6
The boundaries of the LID have been drawn to include only properties that abut or directly access
onto the proposed improvements. All included properties are zoned RR-10. Given the existing
zoning, the size of the subject parcels, and the nature of existing development in the area, it is
reasonable to assume that future development on the vacant lots in the proposed LID will be for
residential uses.
SPECIAL BENEFITS TO ASSESSED PROPERTIES
All of the properties to be assessed abut the proposed improvements. As rural local roads,
abutting properties may take access directly from any of the road segments to be improved.
After the improvements are finished, all properties proposed to be assessed will have the entirety
of their access be by way of a paved improved road designed and constructed to County
standards. County standards reflect the safety and design criteria of the Association of State
Highway and Transportation Officials (AASHTO). The roads to be improved currently do not
meet AASHTO safety standards.
Direct access from paved, improved roads will reduce wear and tear on vehicles and generally
make access to the abutting properties for the entire length of the access more convenient.
Direct access from paved, improved roads will improve response time from emergency service
vehicles, such as fire trucks and ambulances. Emergency service vehicles will not be required to
slow down to negotiate bad stretches of road.
Direct access from paved, improved roads will reduce dust raised by vehicles traveling past
residences on aggregate roads.
The status of the roads, as improved to County standards, will allow the County to accept the
roads into the County maintained road system for maintenance. The County currently has a
policy of not accepting roads or streets into the County maintained road system that have not
been constructed to County standards. Such roads are not maintained by the County and if
property owners who use them wish them to be maintained they must take responsibility for such
maintenance.
Unimproved roads require frequent maintenance to keep them from getting rutted and
washboarded. This can be an expensive undertaking, especially when additional base material is
added. Often, the washboards and ruts will reappear on the surface of the road after only a week
and the road will need to be regraded.
In a heavy snow winter, these roads often need to be snow plowed. As County maintained roads,
the improved roads would be plowed by the County according to the County's schedule for
plowing. Properties not abutting the improvements will not gain the benefits of County road
maintenance.
Direct access from a paved road will improve the property values of the abutting properties.
For all these reasons, the properties to be assessed are specially benefited from the proposed
improvements.
Exhibit "2" is a drawing showing specially benefited properties.
Exhibit "A"
Page 5 of 12
Collar Drive LID
6of6
DESCRIPTION AND ASSESSED VALUE
A description and assessed value of each lot or parcel to be specially benefited by the local
improvements and included within the LID boundaries, with the names of the owners of record,
is attached as Exhibit "4" of this report.
MAXIMUM ASSESSMENT AGAINST EACH LOT
The maximum assessment against each lot or parcel to be included in the LID is:
$160,535 / 15 lots = $10,702.30 per lot.
This is the assessment against each lot that the County agrees not to exceed, if the actual costs are
less than the engineer's estimate then the assessment against each lot will be reduced.
FINANCIAL CONSIDERATIONS
DCC 12.48.150(B) addresses minimum requirements for the financial feasibility of the proposed
project. Attached as exhibit "5" is the analysis by the County Finance Director regarding
financial feasibility of the project.
Exhibit "A"
Page 6 of 12
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Exhibit 3
COLLAR DRIVE
LOCAL IMPROVEMENT DISTRICT
COST ESTIMATE
ITEM
QUANTITY
UNIT PRICE
COST
MOBILIZATION
CONST. SURVEYING
All
All
Lump Sum
Lum Sum
$ 12,800
7,168
TEMP. TRAFFIC CONTROL
All
Lump Sum
1,792
TEMP. SIGNS
120 S.F.
$8.00
960
FLAGGERS
60 HRS
$33.00
1,975
CLEARING & GRUBBING
All
Lump Sum
4,192
EARTHWORK
640 C.Y.
$11.00
7,040
FINISH ROADBED
3,200 L.F.
$ 2.00
6,400
WATERING
"
600 M.G
$ 5.00
2,998
6
OF BASE
"
8,533 S.Y.
$ 4.40
37,547
2
OF A.C.
'
959 TNS
$ 35.00
33,555
2
AGG. SHOULDERS
1,422 S.Y.
$ 3.50
4,978
DRAINAGE
All
Lump Sum
1,000
DRIVEWAYS
15 EA.
$300.00
4,500
r
TAL
$126,770
ONTINGENCY
15%
12,690
TAL
$139,595
ENGINEER &
ADMINISTRATION
15%
20,939
TOTAL LID COST
$160,535
Exhibit "A"
Page 8 of 12
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Page 11 of 12
EXHIBIT #5
Collar Drive
Local Improvement District
Financial Anal
1. Assessment to Value Ratios
The ratio of assessed property value to the estimated LID assessment is one means of
determining the financial risk. The ratios and lot percentages in the LID are as follows:
Number of Lots
% of Project
Ratio Analysis
8
53.3%
10:1 or greater
4
26.7%
5:1 to 10:1
3
20.0%
2:1 to 5:1
0
0.0%
2:1 or less
The following information was compiled by the Deschutes County Road Department:
Approximately 3,200 feet of road is-to be improved and 15 lots are to benefit from this
road.
No one-property owner owns more than two lots within the boundaries of the LID.
The Assessor's records show 11 of the 15 lots developed; therefore DCC 12.48.330
"MINIMUM REQUIREMENTS FOR LOCAL IMPROVEMENTS INVOLVING
UNDEVELOPED LAND" does not apply. However, all of the lots meet the 2:1 value
test in A.I. Approximately 26.67% of the lots have property taxes owing.
II. Risk Related Undeveloped Land
Approximately 27% (4 lots) of the property within this area is undeveloped. Of the
undeveloped properties, 75% have value to assessments ratios greater than a 3:1 ratio and
25% have value to assessment ratios greater than a 2:1 ratio.
III. Interim Financing
Outside interim financing for this project may be required. Bonding for these
assessments will be required on behalf of property owners.
IV. Long-term Financing
Ballot Measure 50 has not affected our ability to issue limited tax improvement bonds for
a project such as this one, according to our financial advisor for recent bond issues.
Marty Wynne
Finance Director, Deschutes County
Exhibit "A"
Page 12 of 12
EXHIBIT "B"
NOTICE OF PROPOSED ROAD IMPROVEMENT
DATE: FEBRUARY 7, 2003
TO: ((NAME1))
((NAME2))
«NAME3))
((ADDRESS))
((CITY)), (<ST)) ((ZIP))
DESCRIPTION OF IMPROVEMENT PROJECT: COLLAR DRIVE L.I.D.
DESCRIPTION OF BENEFITED PROPERTY: ((ACCOUNT))
Estimated Cost of Improvement: $160,535.00
Estimated Amount of Assessment: $10,702.30
The Board of County Commissioners has initiated the above improvement. The County Engineer has
made a favorable report to the Board of County Commissioners regarding the proposed improvement.
The Engineer's report relating to the proposed LID is on file and available for public examination.
The area affected by the proposed local improvement is a portion of the Wagon Trail North, First Addition
Subdivision, located seven (7) miles southwest of LaPine. The road to be improved is a portion of Collar
Drive from Masten Road to the southwest corner of Lot 6 Block 6 within the Wagon Trail North First
Addition Subdivision. The benefiting lots that would be assessed for the proposed improvement include
those lots abutting the aforementioned road improvements shown on the attached list. Upon completion
of the proposed improvement, the roads will be accepted into the County Road System, and will be
maintained by Deschutes County.
IF YOU OBJECT TO THE PROPOSED IMPROVEMENT AND ASSESSMENTS, YOU ARE REQUIRED
TO FILE WRITTEN OBJECTION, IF ANY, WITH THE BOARD OF COUNTY COMMISSIONERS, C/O
DESCHUTES COUNTY ROAD DEPARTMENT, 61150 S.E. 27TH STREET, BEND, OREGON 97702,
WITHIN 20 DAYS AFTER THE MAILING OF THIS NOTICE, OR BY ORAL TESTIMONY AT THE
PUBLIC HEARING ON THE PROPOSED IMPROVEMENTS BEFORE THE BOARD OF COUNTY
COMMISSIONERS, WHICH WILL BE HELD ON MARCH 5, 2003 AT 10:00 A.M. IN THE DESCHUTES
COUNTY BOARD OF COMMISSIONER'S HEARING ROOM, ADMINISTRATIVE BUILDING, 1130 NW
HARRIMAN, BEND, OREGON.
If more than 50% of the owners of land representing more than 50% of the total amount of the
assessment for the proposed improvement file objections, the proposed improvement will be declared
abandoned and no new resolution shall be adopted within a period of one year. If the required number of
objections are not received, the improvement will proceed and you will be notified of the actual
assessment when it is determined by the Engineer.
This assessment, as finally approved by the Board of County Commissioners, will be entered into the lien
docket of Deschutes County and will be released when the assessment is paid in full. Owners may apply
to make payments in installments which can be paid over a ten-year period.
BOARD OF COUNTY COMMISSIONERS
OF DESCHUTES COUNTY, OREGON
TOM BLUST, Road Department Director
On Behalf of the Board of County Commissioners
Exhibit "B" Page 1 of 1
-C
C) rm!:411
MEMORANDUM
TO: Board of County Commissioners
FROM:
Gary Judd, Engineer
DATE:
January 27, 2003
SUBJ:
Collar Drive Local Improvement District
Road Department
61150 S.E. 27th St., Bend, OR 97702
(541) 388-6581 • FAX (541) 388-2719
BACKGROUND
On December 18, 2002 the Board of County Commissioners (BOCC) referred the Collar Drive
Local Improvement District (LID) to the Road Department to complete an Engineer's Report (see
attached) and to conduct a Mail Poll of the property owners.
DISCUSSION
The Engineer's reported found the Collar Drive LID project to be feasible and estimated the cost
of the 3,200 foot long project to be $160,535. There are 15 lots within the boundaries of the LID.
The estimated cost of each assessment is $10,702.30. Deschutes County has guaranteed not to
exceed this assessment cost.
All of the property owners returned their ballot by the postmark deadline of January 24, 2002.
Deschutes County Code No. 12.48.166 requires that 60% of the owners must vote yes for the
LID to be eligible for further consideration by the Board.
The mail poll results are:
VOTES IN FAVOR 9 lots 60%
VOTES AGAINST 6 lots 40%
RECOMMENDATION
The Road Department recommends that the Board approve the Order to set a public hearing and
directing notice be given of the hearing. Owners shall have the right to object to further
prosecution of the LID either by filing a written objection or by oral testimony at the hearing.
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