42-905-Ordinance No. 82-029 Recorded 7/7/19824
V _42 PACE 905
BEFORE THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY, OREGON
An Ordinance
Amending Ordin-
ance No. PL-1
0, The Bend
Area General
Plan, as Amended,*
to Substitute
the Transporta-
i
t
l
*
E
tion Element
o
at
ng
Re
*
L E
D
Circulation,
Adopting Find-
ings of Fact,
Continuing
*
J
Liabilities,
and Declaring
an Emergency.
ROSEMARY
PA TTERSON
DESCHUTES
ORDINANCE NO. 82-029
COUNTY CLERIC
WHEREAS, on Wednesday, June 23, 1982, the Board of County
Commissioners of Deschutes County, Oregon, held a public hearing
on the substitution of the transportation element relating to
curculation in the Bend Area General Plan; and
WHEREAS, it appearing that such new provisions should be
adopted and incorporated into the Bend Area General Plan; now,
therefore,
THE BOARD OF COUNTY COMMISSIONERS OF DESCHUTES COUNTY,
OREGON, ORDAINS as follows:
Section 1. To substitute the transportation element relating
to circulation, marked Exhibit "A", attached hereto and by this
reference incorporated herein for the transportation element
relating to circulation in the Bend Area General Plan contained on
pages 55 through 64 of the Bend Area General Plan, as amended.
Section 2. That the findings of the Bend Urban Area Planning
Commission, marked Exhibit "B", attached hereto and by this refer-
ence incorporated herein, be adopted as the findings and decision
of the Board of County Commissioners.
Section 3. The repeal of any Ordinance by this Ordinance
shall not release or extinguish any penalty, forfeiture, nuisance,
obligation or liability incurred under such Ordinance, unless a
provision of this Ordinance shall so expressly provide, and such
Ordinances repealed shall be treated as still remaining in force
for the purpose of sustaining any proper action or prosecution for
the enforcement of such penalty, forfeiture, nuisance, obligation
or liability.
Section 4. This ordinance being
preservation of public peace, health
declared to exist, and this ordinance
necessary for the immediate
and safety, an emergency is
takes effect on its passage.
1 - ORDINANCE NO. 82-029
VOL 42 PnE 906
r,
DATED this day of 1982•
BOARD OF COUNTY COMMISSIONERS
OF DE TES COU Y E
CLAY C HEPARD, C rman
ALBERT A. YOUNG, Comm*ss o r
ROBER C. AULSO , JR.,Comm&.s
AT EST:
SUSAN STONEM
Recording Secretary
It
2 - ORDINANCE NO. 82-029
f14 1 - 4-4
EXHIBIT "A" VOL 42 fAGF 90
TRANSPORTATION
The circulation element that follows sets forth goals, policies, and
strategies for improvement to the street system in the City and urban area.
It is based on an analysis of the existing street system and future traffic
demand. This 1982 update is the result of many changes in traffic demand
and studies that have classified problems and alternatives. The basic goals
for the street system are as follows:
To provide a safe, convenient means of movement for people and
goods within the urban area.
To reduce congestion and prevent future congestion.
To recognize and respect the natural features over which streets
pass and to be designed to minimize adverse impacts on these features.
To provide for pedestrian, bicycle, and public transportation
needs within the street system.
To implement needed improvements in order to foster economic develop-
ment and to promote safety and reduce congestion.
Background
The existing street system is largely the outgrowth of the platting that
first occured from 1905-1920 and the farm to market roads that led to other
communities in Central Oregon. Today the principal traffic carrying streets are
also state highways, U. S. 97 and U. S. 20. Both U. S. 97 (also known as 3rd
Street) and U. S. 20 are congested through the central part of the community.
U. S. 97 is the main north-south highway through the state east of the Cascades,
and U. S. 20 is a main east-west route through the state. Highway 97 carries
the most traffic within the urban area and experiences congestion from Brosterhous
Road on the south to the Highway 20-97 Wye on the north. During the last tan
years there has been a rapid increase in traffic on this route, unlike traffic
(J-
~ t
Transportation
?age 2
1/0/ Y.~ fa 90 7 A
in other parts of the state which have experienced declines due to the gasoline
shortages/boycottts and increasing-prices. These increases are the result of the
tremendous growth of the Bend area and Deschutes County and the increasing tourism
associated with the expansion of Mt: Bachelor ski area and summertime use of the
camping and lakes surrounding Bend.
Studies have shown that the majority of traffic on.Highway 97 is locally
generated or has the Bend area as a destination, and therefore construction of a
bypass would not relieve the congestion within the central part of the community.
The Bend Area General plan, prepared in 1973-76, recognized the main problems
that exist today. Many of the proposals contained in the Bend Area General Plan
were developed in 1976 and are now being implemented. Some of the proposals are
no longer viable and are being removed from the plan by these amendments. Many
changes in land use, growth and travel patterns have occured and forecasts for
population growth through the year 2000 will necessitate many additional improve-
ments to the street system. Several studies by the Oregon Department of Trans-
portation Highway Division have modeled the existing street system and future road
networks against future population and employment targets. There have also been
a number of consultant studies done for various projects, the most recent being
the North Corridor Traffic Study, by Wilbur Smith and Associates and Clark and
Joyce Engineers. These studies have identified alternatives to the existing
street plan, and suggested additions to the plan to accommodate the major changes
that have occured in the area. These studies have resulted in proposals to amend
the Bend Area General Plan as it now exists.
Problems and Issues
The general problems with the arterial street system is the lack of continuity
of existing streets and the lack of more than one or two streets within the
community area to accommodate traffic through or across the river or railroad.
To be more specific, the major problems with the existing road systems are defined
below:
. EXHIBIT "A" VOL FA~F ~7Vp
Transportation
Page 3
Inadequate capacity of U. S. 97 from Reed Market Road to the Highway
20 wye on the north.
Congestion and inadequate capacity at Greenwood, Franklin and Revere
intersections with 97.
Inadequate clearance under the Burlington Northern on Greenwood Avenue.
When the community grows to the populations forecast for 1990, the existing
areas that are congested will be over capacity as shown by the ODOT Bend Oregon
Arterial Traffic Update Study and North Corridor Traffic Study. If the community
continues to grow and reaches the population forecast for the year 2000, the extent
of congestions will be much wider spread and capacity problems on the key routes
through town will be acute.
The 1990 ODOT traffic forecast indicates that there will be inadequate capacity
across the Burlington Northern tracks, the Deschutes River at principal intersections,
and north-south along Highway 97 for summer peak traffic. These problems are
illustrated on the attached map from the ODOT study depicting the level of service
for the street network in 1990.
Given the current rate of capital expenditures by the City, County, and
State Highway Division it is unlikely that all the routes shown on the comprehensive
plan will be constructed by 1990.
Many of the arterials and collectors shown on the plan anticipate future
development which will create the need for these streets and the development will
build the needed street. Many of these arterials and collectors are based on
spacing of one mile for arterials and one half mile for collectors. Precise
alignment for these streets must be defined as undeveloped areas are built out.
In some areas additional collectors beyond those shown will need to be developed
as the community grows and their locations will be established as part of the sub-
division and project review process.
Transportation
Page 4
an sets forth a system of streets and roads necessary to ~c
people and goods safely and conveniently within the planning area. The present circu-
lation system has two major problems; an insufficient number of east-west crossings
through the community, and heavy traffic volumes on various sections of Highway 97.
Consideration was also given to the--possibility of some sort of urban transit system
for the Bend Area. At this time, there is little or no possibility that a public trans-
portation system could be put into operation and survive in the community. The general
plan does recommend a general increase in housing density throughout the planning
area as a means of making public transportation more feasible in the future. However,
it is reasonable to assume that any local transportation system would await some
type of state or federal financial assistance before it could become a reality.
As mentioned previously, major congestion problems in Bend result from an in-
adequate east-west circulation system and from heavy traffic volumes on various parts
of Highway 97 as it passes through the community. Franklin and Greenwood are the
only two grade separations with the railroad track. Because of this, these streets
are the focal point of most east-west traffic in the community and also serve to
congest 3rd Street in the central part of Bend. General traffic movements in the area
are significantly increased by vehicles moving from Greenwood to Franklin on 3rd
Street as part of an east-west movement.
There is also a concentration of traffic on Franklin between downtown Bend and
the railroad underpass. However, there is considerable movement relating to the indus-
trial area to the south and downtown to the west. If parking were removed from this
section of Franklin, some of the congestion would be alleviated.
The general plan makes several recommendations in an effort to improve east-west
circulation. Arterial connections are proposed north of Bend between Highway 97 and
Boyd Acres Road which would also eventually extend easterly to Deschutes Market Road
and beyond. These routes would provide access to the east side of the community with-
out having to proceed into the central part of the city before moving east.
Transportatign
Page S EXHIBIT "A" va 42 FACE 910
Additional or improved grade crossings are proposed at Addison, Revere, and
Portland-Olney. All of these improvements collectively would relieve the pressure
on Greenwood and Franklin as east-west routes. The Portland-Olney-Penn-Neff connec-
tion would provide an alternate east-west route across the entire community and will
provide excellent access to the new hospital. This route passes by Pilot Butte Junior
High and Juniper Elementary School, where there are already problems with traffic and
children going to school. There is a need now for safer school crossings, and the
problem will be further aggrevated by future increases in traffic volumes.---Considera-
tion should be given to pedestrain over-crossings on Neff to reduce the hazard to
children going to school. This route has several problems but, generally speaking,
is the only possibility for such a connection.
The grade at Greenwood Avenue should be lowered under the railroad overcrossing
to permit adequate clearance for all vehicles on this major street. The intersection
of Greenwood, Newport and Wall has been improved, providing better east-west movements.
The Revere crossings will also provide alternate movements across the central part of
the community. However, railroad switching activity in the central part of the community
will continue to limit the utility of these improvements. Every effort should be made
to encourage the railroad to move their switching activities out of the central part
of the city.
If urban development occurs to a significant degree on Awbrey Butte, Revere should
be extended west across the Deschutes River to provide an alternate route across the
central part of the community for population in that area. This improvement would
appear to be directly related to future growth possibilities in the Awbrey Butte
area. The extension of Addision Avenue across Highway 97 and Division Street to
Studio Road will help east-west traffic and access to Awbrey Butte. The Riverhouse II
entrance may need to be modified or moved to align with Addision.
The plan proposes a connection between Century Drive and Colorado Avenue in the
southwest section of the city. This will provide an alternate to Galveston and Frank-
lin in the central part of the city. This new route should also connect to Simpson
Avenue, and Simpson should continue west to the west side arterial.
Page 6
VOL 42 PAGE Oil
Several street extensions and connections are recommended in the southeast
part of the community to provide greater east-west continuity. Franklin should be
connected to Bear Creek Road in the.eemetery area, and Alden Avenue should_be extended
from 4th Street to Bear Creek Road. Wilson Avenue has been extended from the Diamond
International industrial area easterly to 15th Street. All of these connections would
increase east-west mobility in the community and tend to relieve the need for using
3rd Street and Highway 97 as parts of east-west traffic movements.
The extension of Arthur westerly across the south end of the industrial area to
connect with Century Drive will provide an alternate means of access to Mt. Bachelor
from the south, and could be used as an alternate route to the residential areas of
the west side of Bend.
Chase Road shall be extended from Brosterhous westerly to the proposed north-
south arterial west of Highway 97. This connection could relieve some of the conges-
tion at Brosterhous and 97, one of the more congested intersections on the south highway.
It would also provide an alternate route through the industrial areas on the southern
part of the community. Hamilton/Murphy Road shall'be extended to Ferguson Road.
The extension of Anderson Road (Norwood) from O.B. Riley Road across Highway 97
to Boyd Acres and then easterly to Yoeman as a new east-west arterial will provide an
alternative access to the two malls from the east. The extension of the frontage
road north from Norwood to the Mountain View Mall entrance on Highway 20 is needed
to provide access to the industrial area shown.on the land use plan.
The principal north-south congestion problems occur on 3rd Street near Greenwood
and Franklin, and on Highway 97 from south of the underpass to Brosterhous Road, and
north of the overpass to the Highway 20-97 intersection. The development of Division
Street as a parallel north-south route will relieve this congestion. This route can
be extended down Parrell Road to Highway 97. The intersection of Parrell, Highway 97,
China Hat and Lodgepole would need to be redesigned.
Transportation EXHIBIT "A"
Page 7 VOL r j PAGE 912
The circulation plan is shown on the general plan map. It symbol_zes -.e
bike, pedestrian, arterial, and collector streets, and includes major frontage
and business routes. It establishes-a system that will accommodate anticipated
major traffic movements in the planning area and will significantly improve both
north-south and east-west movements. Collector streets are intended to move
traffic within commercial, industrial, or residential areas to the arterial street
network.
The new street locations and alignments indicated on the plan are not exact,
and a more detailed study will be necessary to determine the best precise align-
ments. Most standards for major streets in developed areas will be minimums
because of inadequate right of way and tremendous costs of acquiring abutting land.
However, in many cases, slight increases in right of way can be obtained without
damage to adjacent uses. It is extremely important that adequate right of way
be secured before development occurs along streets in new areas, particularly as
new development takes place. These streets shall be secured as part of the sub-
division and development process or purchased through local government agencies.
Money spent in advance of need for street rights of way will be returned to the
community many, many times over as the area continues to grow.
Outside of the central area, most recommendations for arterial and collector
streets were made to obtain continuity in future alignments and a spacing of streets
which would serve anticipated growth. Local streets become a strong element in
the character and quality of the residential areas they serve. They should recognize
the character of the natural landscape through which they pass, and modification to
design standards should be possible when necessary to preserve this 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 modi-
fication 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.
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EXHIBIT "A"
QL Ci4 FACE U'l
Transportation
Page +9
Plate 9 illustrates a means of reducing the visual width of paving by placing land-
scaped areas in parts of the parking lanes. In this case, sidewalks are at the
curb and landscaping extends into the street and leaves two full traffic lanes.
Intersections become green spaces and yet have ample space for turning movements.
It also illustrates a local street _design which provides parking bays and land-
scaping within the street right of way. This design requires a 54 or 58 foot right
of way and provides two 12 foot moving lanes and 15 parking spaces in 3 bays along
the street. Parallel on-street parking along the curb of a standard section of
this length would yield about 20 spaces. If an occasional house were sited far
enough back from the street to accommodate more cars in a double driveway, the
difference in available spaces would not be significant. This kind of st-Let
may have special application to parts of the east side of the planning area where
rock outcrops and sharp changes in terrain elevations may lead to special considera-
tion for street standards. These two examples of variation in street design can
add variety and interest to single-family developments and make the street more
compatible with living areas.
Hillside areas also require special consideration in street design. Arterial or
collector streets with controlled access can reduce the number of lanes and park-
ing areas required, and thereby reduce the width of the street which must be
constructed on the hillside. Divided roads with different elevations for each
direction of traffic can also reduce the scarring of the hillside. Small one-way
loop streets providing service to limited numbers of houses will also minimize
cuts and fills on hillsides.
The circulation element of this plan provides for movement within and through
the project area and is extremely important. The safety, character, and quality
of the streets and highways has been a tremendous influence on our daily lives.
Emphasis on the engineering aspects of streets and highways historically has been
so strong that no additional comment is needed in this report. However, other
aspects have not been so carefully considered. For example, landscaped median
strips in 3rd Street and Greenwood could considerably improve the appearance of
both these facilities and of the City of Bdnd. Plate 10 illustrates a median
strip in Greenwood east of 3rd Street. It should be noted that the proposed land-
scape islands have little or no impact on access to adjacent property. However,
they would be visually landscaped. This same technique could be used on 3rd Street
wherever the continuous left-turn lane exists.
The ease or confusion of driving affects our attitude and frame of mind, and the
areas through which we pass can be pleasant or ugly. For example, the entrance
to downtown Bend along lst and Wail Streets into the central business district
provides a completely different "sense of place" than does a drive down 3rd Street.
The entrances to the community from both the north and the south bear no resemb-
lance to what people think of as "Bend". The variety of business signs, billboards,
street signs, traffic signals, and brightly colored, unrelated buildings rising
from the desert creates the entrances to the community. It is hard to imagine
that this is the same community where several lovely parks grace the banks of the
Deschutes River. The appearance of 3rd Street through the heart of the community
is similar, but newer. Approximately 25,000 cars pass through this splendid view
each day.
Page 10
' STREET MODIFICATION
PARALLEL PARKING
Vol rAG_
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PARKING BAYS
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PLATE 9
Page 11 I'i III
OL . 42 FACE
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'Transportatiot
Page 12
VOL 42 PAGE 917
The daily experience of moving about the community on major arteries does influence
attitudes and values, and streets should be more than just a place to drive cars.
They should compliment the environment through which they pass and should be
attractive as well as safe. This will require good street design as well as con-
trol of adjacent land uses. Major streets in new areas should have controlled
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 serve both safety and beauty,
and can be done in a variety of ways that will not unduly affect the function of
the street.
The statements which follow set forth policies for the circulation system`-in the
community:
Circulation - Statements of Intent of the Plan
1. Concerted community efforts shall be made to improve east-west circualtion
patterns in the central part of the community.
2. Rights of way for arterial and collector streets shall be obtained as part of
the development process.
3• Efforts shall be made to acquire parts of rights of way necessary for the
correction of intersections, excessively. sharp curves, or to complete the
continuity of alignment prior to development so that the cost of acquisition
to the public will be minimized.
4. Access control shall be part of the design standards for collectors and arterials.
5. Building setback lines shall be established along existing major arterial
streets to protect necessary future rights of way from encroachment by build-
ings.
6. In residential areas, development shall have side yards or rear yards along
arterial streets as a means of reducing congestion through turning movements
in and out of driveways.
7. Streets and highway rights of way shall be adequate toallow for sidewalks,
bikeways and reasonable and effective planter strips.
8. Arterial streets should have landscaped median strips wherever possible,
together with left-turn refuge lanes.
9. Public transportation routes should be encouraged throughout the area, and if
necessary, special provisions made in street design to accommodate bus stops.
10. Local street patterns and residential areas should be varied and interesting
wherever possible. Street widths should be studies to determine if alterna-
tives can be developed that meet the public need for a safe, convenient, and
cost effective transportation system.
11. Special development standards should be developed for hillside areas to avoid
unnecessary scarring of hillsides.
EXHIBIT "A" p
Transportation " VOL ~ 42 FACE 918
• Page 13
12. Special consideration shall be given to all residential streets where
appropriate to save rock outcrops or trees as.a means of retaining natural
character of the area.
13. Loop streets (except on hillsides) shall be encouraged as a means of dis-
couraging through traffic and increasing residential privacy.
14. Cul-de-sacs which end in a turn-around other than a circle should be considered
as a reasonable design solution, particularly in hillside areas.
15. Bikeway and pedestrian circulation plans are shown in the general plan.
16. Trails, bikeways, and pedestrian ways shall be developed into a coordinated,
integrated system for local movements throughout the planning area.
17. Pedestrian and bicycle traffic should be physically separated from vehicular
traffic wherever possible.
18. Trails and bikeways should be designed in a manner which will make walking or
cycling safe and interesting.
19. Any necessary revisions to community codes and ordinances to permit bicycles
on sidewalks, particularly along arterial and collector streets outside of
the central business district, should be made.
20. The circulation system of trails, bikeways, and pedestrian ways shall inter-
connect all schools and parks within the planning area.
21. Alterations to the community's design standards for curbs should be made to
permit bicycles to negotiate curbs at intersections.
22. Interurban transportation facilities should be located in or near the central
business district.
23. Special consideration is needed to evaluate public transportation needs and
possibilities within the urban area. The city and county will need to con-
tinually evaluate public transportation feasibility.
24. The new Division Street extension shall be designed with limited access to
ensure its future traffic carrying capacity.
25. Prior to or concurrent with rezoning of the area designated for standard and
medium density residential between O.B. Riley Road, Hardy Road, and Anderson
Road (Norwood Road), a system of through roads like the illustration "A",
or equivalent to it, shall be planned and, as development takes place, the
roads or portions thereof shall be improved to handle the traffic from the area.
26. When the extension of Division Street north from Highway 97 is completed, the
area currently zoned IG may be rezoned to Commercial and Light Industrial.
Development in this area shall dedicate the necessary right of way for the
extension of the street. Division Street shall be a designated landscaped
street with an appropriate landscaped yard required in the zoning ordinance.
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BEND URBAN AREA PLANNING COMMISSION REPORT Vol PAGE
AMENDMENT TO BEND AREA GENERAL PLAN
TRANSPORTATION ELEMENT
BACKGROUND:
In 1980, the City Commission authorized a study of the impact of Riverhouse
II development on Highway 97. This study resulted in the preparation of the
North Corridor Study by Clark and Joyce Engineers and Wilbur Smith and
Associates, and the North Corridor Study by the Deschutes County Public Works
Department. These reports were prepared in consultation with the Oregon
State Highway Division. The Bend Urban Area Street Priority Committee reviewed
these reports and recommended that the proposals of the Clark and Joyce `report-
be adopted as revised by the work completed by the County Public Works Depart-
ment.
In March a public hearing was held to gather information from the areas
directly affected and the community as a whole on the various proposals of the
North Corridor Study. Based upon thepublic comments and the previous reports,
we have reached the conclusions below:
FINDINGS:
1. All of the traffic studies predict increasing traffic on U. S. 97• This
traffic increase is the result of the=growth of Bend and Deschutes County.
The majority of the traffic on U. S. 97 is local or has Bend as its desti-
nation.
2. The various computor models done by the ODOT Urban Studies Unit and consul-
ting engineers predict that the existing streets in the north corridor will
be inadequate to handle the forecasted population and business activity
without major improvements to the street system.
3. A number of alternative projects have been considered. It appears that the
grade separation of Division Street and Highway 97, and construction of a
parallel route to the northerly Highway 20/97 junction will alleviate the
expected problems.
4. The extension of Addision Avenue from Riverhouse II and Highway 97 will
provide access between northwest Bend and Highway 97. This route, together
with the extension of Anderson Road to Boyd Acres, are essential to spread
traffic out to other streets besides Highway 97.
5. The increase in accessibility will allow additional development of adjoining
lands. These developments will need to construct arterials and frontage
roads for their accesses.
6. The north corridor amendments show the needed arterial and frontage roads
in (5) above. These roads will allow development to proceed and maintain
the capacity of the major north-south arterials.
EXHIBIT "B"
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VOL -32 PAGE 922
Bend Urban Area Planning Commission Report
Amendment to Bend Area General Plan
Page 2
7. The adoption of the extension- of Division Street will change the circum-
stances of the properties designated general industrial. The parcels will
be split, creating small areas on the west side of the proposed roadway.
This reduces their overall size and potential of general industrial uses.
8. Since the roadway is to be a principal roadway through the community and
it has been the intent of the community to keep such streets free of heavier
uses, i.e., wrecking yards, which a general industrial zone could allow.
9. Further, this road will become a major element of the transportation-system
seen by the many tourists attracted to the city. Therefore, it is essential
to have it well landscaped and treated like similar streets with a land-
scaped yard requirements.
CONCLUSIONS:
The proposed arterials shown on the attached map are needed to handle the expected
traffic that will occur in the north corridor. Many of these facilities will be
constructed as the area is developed. The major projects will take the coopera-
tion of the City, County, State, and local developer to complete.
RECOMMENDATION:
The Bend Urban Area Planning Commission recommends that the Bend Area General
Plan be amended to include the changes to the circulation system and land use
plan shown on the attached map, and that the zoning be changed to IL Light
Industrial.
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5/5/82