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30-409-Ordinance No. PL-10 Recorded 7/13/1979vot 30 409 t IN THE BOARD OF COUNTY COMMISSIONERS OF THE STATE OF OREGON , FOR DESCHUTES COUNTY <C a G~`~Q,SF ~ IPA 9 In the Matter of an Ordinance ) G~~ ~i'y J9 Establishing a Comprehensive ) ORDINANCE NO. PL-10 `s C'0 A~TTr Plan for the Bend Urban Area ) ~/Mly'C`s0 '~F f- ' The Board of County Commissioners of Deschutes County, a political subdivision ' of the State of Oregon ordains as follows: 1. The Bend Area General Plan as amended to the date hereof (herein referred ' to as "The Plan"), is adopted pursuant to ORS 215.503(2), 215.050, and 215.060 as the Comprehensive Plan for the Bend Urban Area. A true copy of said Plan is ' attached hereto as Exhibit "A," incorporated herein by reference. The Map entitled ' "Bend Area General Plan, City of Bend and Deschutes County, Oregon," attached hereto as Exhibit "B," and signed on the date hereof by the Board of County Commissioners ' (herein referred to as "The Board"), is adopted as part of the Comprehensive Plan for the lands shown therein. ' 3. Quasi-judicial amendments may be made to The Plan in accordance with the procedures described in ORS Chapter 215, and County Procedural Ordinance PL-9 and subsequent amendments and revisions thereof. ' The Map referred to herein shall be maintained by the County Clerk, and any quasi-judicial amendments thereto shall contain legal descriptions of the affected ' areas, be filed in the Journal of the Board of County Commissioners, and shall ' become effective upon the date signed by The Board. The Planning Director shall maintain a true copy of the original map and draw thereon all quasi-judicial t amendments to The Plan, as they are made by The Board. Failure so to revise said Map shall not affect the validity of any Plan ' amendment. The Board may, from time to time, direct the Planning Director by order to replace Exhibit "B" or a portion thereof with a map which includes all lawful I ORDINANCE PL-10 L to 30 F&410 amendments to The Plan to the date of said order. Such map, or portion thereof, shall bear the dated, authenticating signatures of The Board, and shall be filed as a replacement superseding Exhibit "B" with the County Clerk. Any map or portion thereof thereby replaced shall be retained in a separate file by the County Clerk. 3. In that the Land Conservation and Development Commission of the State of Oregon has required Deschutes County to adopt a Comprehensive Plan for the Bend Urban Area by May 31, 1979, in order to be in compliance with Statewide planning goals affecting the health, safety and general welfare of the public, an emergency is declared to exist, and this Ordinance, pursuant to ORS 203.045(9) shall take effect upon adoption. ADOPTED this day of June, 1979. BOARD OF ZUN Y COMMISSIONERS Chairman _C ommissione Commissioner PAGE -2- ORDINANCE PL-10 SAGE 411 Exhibit No. File No. Submitt,ed n~ 7 1 1 1 FT& EXISTING CONDITIONS BEND AREA GENERAL PLAN PART I PATTERSON • LANGFORD AND STEWART P L A N N I N G A N D U R B A N D E S I G N JANET J. HUENERS, OFFICE MANAGER 45 HAWTHORNE MEDFORD, OREGON 97501 TELEPHONE (503) 772-5203 December 1974 r To: The Bend Area Planning Advisory Committee The Bend City Commission The Deschutes County Board of Commissioners The Bend Planning Commission The Deschutes County Planning Commission Gentlemen: We are pleased to submit herewith Part I of the General Plan, Existing Conditions. This report, together with Part II, Economics and Population, provide a basis of information upon which most recommendations in Part III, The General Plan, are founded. Part I inventories, analyzes and evaluates the natural setting, existing land use and circulation patterns, the character of residential development and the several types of public facilities which serve the area. I Much of the research necessary to develop data contained in this report was done by the city and county planning staffs. We wish to express our thanks to Mr. John Hossick, Planning Director of the City of Bend, and Mr. Lorin Morgan, Plan- ning Director, Deschutes County, for their time and effort. Respectfully submitted, PATTERSON, LANGFORD & STEWART Ned M. Langford NML:jjh PHILIP C. PATTERSON NED M. LANGFORD LYLE A. STEWART., AIP i . vnt 30 Fxf 413 FOREWORD The Bend Area General Plan consists of three parts: Part I - Existing Conditions Part II - Economics and Population Part III - The General Plan Parts I and II provide the foundation of facts, assumptions. and projections used in the development of Part III, The General Plan. - i - VOL 30 facE 414 TABLE OF CONTENTS Page No. INTRODUCTION I CHAPTER 1 - NATURAL FEATURES 1 CHAPTER 2 - EXISTING LAND USES 6 Water Areas 13 Agriculture 13 Vacant 17 Residential 17 Commercial 25 Industrial 27 Institutional 28 Public Utilities 29 Land Use and Zoning Summary - Bend and Deschutes County Areas 30 CHAPTER 3 - RESIDENTIAL CHARACTERISTICS AND HOUSING ELEMENT 38 Subdivision History 38 Condition of Housing 39 Planning Area Descriptions 42 Tumalo 42 Cooley 46 Deschutes 46 Awbrey 46 Central 47 Pilot Butte 47 Ward-Hamby 48 Century 48 Kingston 48 Blakley 49 Bear Creek 49 Tillicum 50 Riverwoods 51 General Summary Comments 51 CHAPTER 4 - PUBLIC FACILITIES 53 Schools 53 Parks 55 Fire Stations 59 Other Public Facilities 61 CHAPTER 5 - CIRCULATION AND TRANSPORTATION 65 - ii - t vrn 3 a .5 LIST OF TABLES AND PLATES TABLE No. 1 2 3 4 5 6 7 8 9 10 11 12 PLATE No. Land Use by Analytical Area Land Use Summary by Analytical Area Land Use Summary by Planning Area Dwelling Unit Summary Housing Density Distribution Analysis - Total Project Area by Planning Area Land Use and Zoning Summary - City of Bend Land Use and Zoning Summary - Deschutes County, Bend Vicinity Condition of Structures Housing Density Distribution Analysis by Planning Area Condition of Structures by Planning Area Existing Schools Existing Parks Page No. 9 10 11 19 20 33 34 41 44 45 56 58 1 Bend and Vicinity iv 2 Hypsometric Map 2 3 Septic Tank Suitability 5 4 Analytical Areas 8 5 Existing Land Uses 12 6 Annexation History 15 7 Subdivision History 16 8 Population Distribution - 1960 21 9 Population Distribution - 1968 22 10 Population Distribution - 1974 23 11 Water Service Areas 31 12 Existing Zoning 32 13 Existing Zoning - Commercial 36 14 Existing Zoning - Industrial 37 15 Planning Areas 43 16 Potential Problem Areas 52 17 Existing Schools 54 18 Existing Parks 57 19 Fire Stations 60 20 Sewer Service Areas 63 - iii - SANDY I I GATES MILL CITY DETROIT / WAR IDANHA r SPRINGS I J E F F 2 / l IDGE } BEN / SUNRI' D E S C{ VOL 30 FAcf 416 ' ~ r > I HEPPNER 97 UPIN C CONDON ' 97- - - t /S i - l 19 ! W H E L E R , SO N RAS 26 MITCHELL j r _ J G R A N T I PRINEVIL E IND I G O K L - l PWJLINA , U T E S 2 - BROTHERS L AFAR' N--- --J LA PINE 97 BURNS GILCHRIST CRESCENT i I CHEMULT ' 31 SILVER 3951 H A R N E Y LAKE L A K E , SUMMER LAKE --10 R*T SUMMER CAKE K L A M A T H FALLS VICINITY MAP L AKEV IEW PLATE I I ' VOL 3 FAG"E 417 EXISTING CONDITIONS INTRODUCTION This report attempts to summarize general findings relating to existing conditions, factors and influences in the Bend Area. The maps, statistics and other data provide a generalized picture of the area as it exists today for the purposes of comprehensive planning. What it is today will influence what it can become tomorrow. In many ways, the physical developments in the community express the collective values of its people. Because the Bend Area was so stable for so long and then grew so fast, this may be less true here than in many communities. If we are to attempt to chart a pathway into the future, we must do so in a manner that reflects community attitudes and the common goals of the people. Fundamental to any long-range plan are the conditions which exist at the time the plan is prepared. Obviously, no plan for a community can ignore the natural environment, existing development patterns or community attitudes. Future plans must be based on a realistic evaluation of present conditions and future potential. For this reason, consider- able research is necessary in order to develop the factual basis for a general plan and this report summarizes the findings of this research for the City of Bend and adjacent areas of Deschutes County. The information contained herein represents the results of a joint effort on the part of the consultant, the City of Bend and Deschutes County. CHAPTER 1 NATURAL FEATURES The planning area is located in Deschutes County in Central Oregon at the foot of the eastern slopes of the Cascade Mountains. Bend, the largest city and the urban center of the county, is located on the Deschutes River at the junction of U. S. Highways 97 and 20. With forested mountains to the west and the Oregon Desert to the east, the planning area has a truly beautiful and varied setting. This natural beauty has made the Bend Area a year-round recreation center. The climate of the Bend Area also enhances its attractiveness as a year-round recrea- tion area. Mild, dry summers, coupled with the beauty of its mountains and the clear streams and lakes make the area highly desirable for fishing and camping. Cold winter and snow in the nearby mountains attract skiiers to Mt. Bachelor. The high percentage of sunny days, both summer and winter, and the relatively short distances make the area especially attractive to people from the Willamette Valley. - 1 - VOL 30 PAGE 418 HYPSONIE rYRI+C MAP woo "00 Qbd 8~ 38p0 3~g0 ~~p0 ~6g0 ~6p0 ~yy0 ~o0 3ayo yp0~ ~3yo y3UO 92_I'0 ~ i .J~ M ~ a A• a It+1 \ ^ t L ~lC'.~~.~~1~ ~ 3 L c _ v vy ct.' n5as~~6 .is • -'....-~wr1 ~t ~ ~'~~,r _ t ;.r n~m~e: Nest- wom x -K 1 m < s Y ~194 f, , PLATE 2 BEND AREA GENERAL PLAN ,S ~i• y w ! ~ .v 4 CITY OF B... AND DESCHUTES COUNTY, OREGON r-I I L ri VOL 30 PAGE 419 The planning area includes approximately 61 square miles of north-central Deschutes County. Plate 2. Speaking generally, the area slopes downward from the southwest to the northeast. Major exceptions to this general slope pattern are Awbrey and Tumalo buttes west of the Deschutes River and Pilot Butte east of the river. The general elevation of the area ranges between 3, 900 and 4, 000 feet in the southwest to between 3, 350 and 3, 400 feet in the ' northeast. The lowest elevations in the area lie along the banks of the Deschutes River north of Awbrey Butte. Awbrey Butte is the highest point in the planning area, with an elevation of about 4,206 feet. Pilot Butte at 4,138 feet, is the second highest point but is considerably smaller in size than Awbrey Butte. These two buttes are dominant natural features in the planning area and are important to the visual quality of Bend. Any developments relating to either should be very carefully considered. The most significant aspects of natural features in the Bend Area are the land surfaces and geology. A study is currently underway by the Department of Geology and Mineral Indus- tries, State of Oregon, and no attempt will be made here to describe the complex geology of the area. Rather, this report will attempt to describe differences within the area with refer- ence to existing and future urban development problems. The Deschutes River divides the planning area into two quite different landform areas. West of the river, hills and valleys trend generally southwest to northeast with many small drainage channels, most of which are dry much of the year. Tumalo Creek is the largest stream in the area other than the Deschutes and carries runoff from the Cascades all year. It is the major source of water for the City of Bend. Most drainage channels on the west side are relatively narrow with steep slopes and are separated by relatively broad divides, many of which are lava. Nearly all of the west side is relatively well drained with only infrequent closed drainage depressions. Speaking generally, most soils are deeper west of the river and underlying geology makes the western area less suitable for the use of drill holes for the disposal of septic tank effluent. The deeper soils and relatively normal surface drainage pattern will facilitate to some degree the installa- tion of sewer systems. However, rock outcrops and presence of rock at varying depths will still require a greater expense for installation of sewers than in most communities. The west side landform pattern also carries across the Deschutes for a short distance in the southwest corner of the planning area. With this exception, surface features on the east side are very different from the west. Perhaps the best description is found in a 1958 soil survey of the Deschutes Area by the Soil Conservation Service in which most of the area is classified as scabland. In that report, every characteristic of the area is described as "variable", except ease of irrigation, which ranges from "easy to very difficult" and work- ability which is "impossible". There is a general slope from south to north with the exception of Pilot Butte. Lava flows underlay the entire area and have resulted in a very irregular surface. Lava ridges, depressions and faults combine to interrupt the general slope. There is no drainage pattern -3- i] VOL 30 PACE 420 and snow and rainfall for the most part move directly down through the soil into fractured subsurface lavas. Soils vary in depth from none at all in areas of exposed rock to many feet as the wind-deposited material has covered the jumbled surfaces of the lavas. The east side of the planning area has been well suited to the use of septic tanks and drill holes as a means of sewage disposal. To date, contamination of ground water has been minimal. Most cases of well contamination have occurred in shallower wells on perched water tables rather than with wells drilled to the deeper regional water table. Recent rules established by the State Department of Environmental Quality prohibit further use of drill holes and require a drain field for use with individual septic tanks. According to the Soil ' Conservation Service report on Deschutes County dated February 1973, most of the land in the planning area has severe limitations for septic tank absorption fields. The exception lies south of the city east of the Deschutes River in an area generally south of Central Oregon Canal (Plate 3). d th h ll ep s ow a The irregular surface of the east side and the presence of rock at s will make provision of sewer service fairly costly. This is particularly true of the older developed sections of the area where there are no sewers at the present time. The city has been exploring innovative solutions to the problem of providing sanitary sewers to both existing and developing parts of the planning area. This kind of research should be continued in an effort to find the most reasonable solution to this unique and complex problem. The sewer system must recognize the character of the terrain and will have an extremely strong influence on future growth patterns in the Bend Area. i i per ne, jun The irregular terrain and natural vegetation of juniper and sage, or p and sage, give the area a distinctive visual character and quality. Some of this natural beauty has been lost in the development process where areas were cleared and developed. In some older sections, landscaping of yards and planting of broad leafed trees has created a lovely environment. However, it is quite different from the surrounding natural landscape. Perhaps in the future, greater care could be exercised in preserving the native junipers and pines. These trees grow slowly in the semi-arid climate and require considerable time to mature. ' The combination of irregular terrain and natural vegetation limit views and vistas within the community so that the general impression is that the community is smaller and less spread out than it actually is. This natural combination contributes to the feeling that Bend is a nice place to live. If future plans are to attempt to retain the present character and feeling in the community, this visual aspect should be carefully considered. It is possible that the rugged beauty of the natural landscape can suggest development patterns which will also compliment engineering and service considerations for future growth. -4- 1 I'll i VOL 30 FACE 421 SEPTIC TANK SUITABII_.ITY SEVERE LIMITATIONS _ SLIGHT LIMITATIONS 3 % f Rik 14 T A 6e~ ti ° xl~a~ , or Ire .r"4~` i :t R 3 / 13END AREA GENERAL PLAN 1 CITY OV 131.ND AND DESCOUTES COUNTY, OREGON vas 30 PACE 422 1 CHAPTER 2 r EXISTING LAND USES I One of the basic influences on future planning for any community is the nature and distribution of the existing development pattern. The location of residential, commercial and industrial areas and the importance of agricultural uses provides a basis for under- standing present conditions and for making projections for the future. Information con- tained in this report is based on a field survey of the existing land use on each parcel of property within the 61 square mile planning area. This survey was taken in January and February of 1974 and several reconnaissance surveys have been made since that time. In addition, extensive use was made of color aerial photography to locate buildings and uses not readily visible from ground-level observation. Once the field survey was com- pleted, various uses were grouped into a land-use classification system and recorded on maps at scales of 1" = 1001; 1" = 600' and 1" = 10001. These maps display the land use pattern in the community and are a basic tool to be used in the preparation of the plan. The land use map classifies all of each parcel in the planning area. Some were fully utilized for the current use and some were not. Those which appeared to be committed to a given use, whether fully used or not, were so classified. In other cases, when the used portion could be easily and accurately separated from the unused portion, a distinction was made. This technique sometimes causes confusion with statistics relating to commercial and industrial acreage actually in use as compared to projections for future use. However, allowances made based on visual surveys of these areas for future on-site expansion usually eliminates this as a problem. That, together with the fact that allocation of commercial and industrial land in a general plan is usually as much a political as an economic decision, makes the survey and classification system very workable. Population forecasts and commercial and industrial land need projections all serve to provide a sense of scale with reference to future planning. Residential land uses are a similar problem to some degree. Statistically, the acre- age actually used for purely residential purposes is exaggerated. For example, a residence on a parcel of land over two acres in area obviously does not use the entire site. As the area develops, additional services such as water, sewer, fire protection, street improvements, etc., are necessary and land values and costs to the property owner increase. This leads to future segregation or subdivision of larger parcels and additional dwelling units are added to ' the areas already classified as being used for residential purposes. This does not, however, make the classification invalid. The classification is intended ' to indicate housing densities at the time of the survey and identifies various areas with various characteristics. Each density group has characteristics and needs now and presents problems or opportunities as the area develops. 11 11 von 30 PAGE 423 As mentioned briefly above, the existing land use pattern was analyzed statistically. Uses indicated by the field survey were compiled and this data was summarized according to each land use classification. It was then tabulated for sub-areas within the total planning area and for the entire area. The overall summary by land use type indicates the relative amount and significance of each and the sub-area tabulation permits comparison and analysis of land uses in different sections of the total planning area. The basic statistical analysis was done in terms of two large analytical areas and thirteen smaller planning areas. Plate 4. The two large analytical areas include the City of Bend and the remainder of the planning area outside of the city. Table 1 gives detailed land use data for the entire planning area, for the City of Bend and for the remaining area outside of the city. Table 2 presents a summary of this same data in simplified form and shows the percentage each use grouping is of the appropriate area. Table 3 gives a land use summary for each of the thirteen planning areas. Plate 5 is a generalized land use map which is intended to show the existing development pattern in the entire planning area. Full color land use maps at scales of 1" = 600' and 1" = 1000' are available for review at the planning departments of the City of Bend or Deschutes County. An examination of Plate 5 indicates that much of the land in the planning area is open or undeveloped. The land use tabulation shows about 74 percent of the total area as grazing and range, open or vacant land. The largest tracts of undeveloped and unsubdivided land are found on the west side of the planning area. Large undeveloped areas are still to be found on the east side, but the scattered residential development pattern and property segre- gations have led to smaller parcel sizes. The general development pattern is fairly similar to other regional centers in Oregon. Most residential development is located within the City of Bend as is most intensive commer- cial activity. Major local industries are close to the city boundaries but are not within the city. Less intensive commercial activity has spread north and south along the highway out- side of the city. New residential developments on urban-sized lots have tended to occur within the city boundaries, often on property annexed to the city for that purpose. With the exception of a few subdivisions south of the city, most county residential areas have lots over one-half acre in size with many ranging from two and one-half to ten acres. To say that the overall development pattern of the community has similar characteristics to similar types of cities elsewhere in Oregon is not to say that the Bend Area is like Albany, Medford, etc. The appearance, quality of development, natural setting, climate, community attitudes and values have served to make Bend one of the more desirable places in Oregon to live. As we move into a future indicating rapid growth and development, we must try to retain those qualities and values which make the Bend Area the very special place that it is. This will not be an easy task. As growth occurs, increased development pressures on the land will make future community land use and zoning decisions progressively more difficult. Only by having a clear sense of direction for the future can we muster the dedication and commitment necessary to retain those characteristics and qualities which make the community the unique and desirable place that it is. -7- i VOL 30 PAGE 424 ANALYTICAL AREAS . CITY OF SEND PLANNING AREAS C COUNTY AREA - t r- f + l' z ~:T.FM10 CO©LEY j e DBSG`H' TES , i a i it T B E - C UTT i K1~G1 . r ............».ws... F . 1. RIVERWOD WARD- 14, HAMBV' 8 p • WAR IRiEEK, I a 1 P Ij j! .d PLATE 4 BEND AREA GENERAL PLAN CITY OF BEND AND DESCHUTES COUNTY. OREGON 1 Land Use Category WATER AGRICULTURE Grazing and Range Open VACANT 1 RESIDENTIAL 5 to 10 acres 2-1/2 to 5 acres 1 to 2-1/2 acres ' 20,000 - 43,599 (.47-.99) 10,000 - 19,999 (.24-.46) 6,000 - 9,999 (.14-.23) 3,500 - 5,999 (.09-.13) Less than 3,499 (.00-.08) TRAILER PARK COMMERCIAL Service Retail Auto Oriented Highway Oriented HOTEL-MOTEL PARKING INDUSTRIAL ' Light General Heavy UTILITY INSTITUTIONAL Church Related Medical Related Lodges, Meeting Halls Cemetery PUBLIC City-County State-Federal-Other SCHOOLS School Facilities PARKS Standard Use Special Use Private (i.e. golf) ' ROADS RAILROAD TOTALS yob 30 rAof 425 CITY OF BEND Dwelling Acres Units 72.03 0 498.21 110.90 442.64 1 3 0 15.92 20.02 27.07 82.25 368.50 342.99 150.29 56.96 13.72 43.84 38.18 32.55 7.51 34.47 7.35 24.29 34.83 99.29 5.14 22.88 20.73 5.86 30.88 54.69 140.58 125.39 2 6 19 134 1,244 1,927 1,227 1,196 168 2 1 0 0 2 0 0 0 1 0 3 0 0 0 0 0 0 TABLE 1 LAND USE BY ANALYTICAL AREA COUNTY AREAS Dwelling Acres Units 403.19 0 795.86 Acres 9 Dwelling Units 19,750.69 4,751.10 3,700.79 1,390.38 807.87 673.85 209.92 168.45 41.35 4.11 5.21 159.68 Acres 5 Dwelling Units 145.88 10.36 12.22 24.15 106.11 690.12 Acres 3 Dwelling units 141.37 Acres 0 Dwelling Units 14.11 2.13 19.46 85.80 495.35 31.70 26.69 2.00 2.84 47.80 95.59 399.26 15.98 53 90 0 202 219 428 316 510 206 34 88 545 0 1 1 22 1 0 1 5 2 0 1 0 0 1 2 1 0 TOTAL PROJECT AREA Dwelling Acres Units 475.22 0 20,248.90 54 4,862.00 93 4,143.43 0 1,406.30 204 827.89 225 700.92 447 292.17 450 536.95 1,754 384.34 2,133 154.40 1,261 62.17 1,284 159.60 713 54.20 2 50.40 2 56.70 1 113.62 22 SUMMARY GROUPS 475.22 Acres 29,254.33 Acres 147 Dwelling Units 4,524.74 Acres 8,471 Dwelling Units 332.98 Acres 30 Dwelling Units 48.58 3 9.48 0 43.75 1 120.63 5 594.64 3 36.84 0 49.57 22.73 8.70 10 78.68 1 150.28 2 539.84 141.37 0 55.73 0 120.64 1 176.37 1 6.20 0 9.69 0 15.89 0 483.37 4 483.37 4 832.87 0 1,135.80 0 1,968.67 0 39.10 0 182.14 0 221.24 0 3,863.86 5,936 35,375.98 2,734 39,239.84 8,670 675.63 Acres 5 Dwelling Units 1,968.67 Acres 221.24 Acres VOL 30 FACE 426 TABLE 2 LAND USE SUMMARY BY ANALYTICAL AREA Bend County Areas Total Project Area Acres % Acres % Acres % Range, Open & Vacant 1,051.75 27.22 28, 202.58 79.71 29, 254.33 74.55 Residential & Trailer = Parks 1,077.72 27.89 3,447.02 9.73 4,524.74 11.53 Commercial & Parking ; 163.90 4.24 169.08 0.47 332.98 0.85 Industrial & Utility 163.55 4.23 632.31 1.78 795.86 2.03 Institutional ; 80.35 2.08 79.33 0.22 159.68 0.41 11,Liblic 195.27 5.05 494.85 1.40 690.12 1.76 Schools 125.39 3.25 15.98 0.04 141.37 0.36 Parks 61.93 1.61 ; 613.70 1.72 675.63 1.72 Railroad 39.10 1.01 182.14 0.58 221.24 0.56 Sub-Total 2,958.96 76.58 33, 836.99 95.65 36, 795.95 93.77 Water ; 72.03 1.86 403.19 1.14 475.22 1.21 Roads 832.87 21.56 1,135.80 3.21 1,968.67 5.02 Total 3,863.86 100.00 35,375.98 100.00 39,239.84 100.00 -10 - i VOL 30 FAuE 427 00 m m Co l O r1 N m 00 l M M 00 M LO O M M LO r1 m d t0 l d~ ao 91VLTIO.L l M O "-I l LO d+ CO l l O 1114 O 00 rl l O M M m O l M 00 d+ 1--1 m M d N ao ao LO N l m 0 rr l m l N co m M CI cl to C; rl CV cl ai M W W N O m O e-1 c0 4 m r1 C O M LO Ili O N tO m N O 00 a0 1 I N C I aa~n~ co m N C11 LIB 0 L- co ri 1-1 't i Lo 1-4 0 1.4 o r-+ co ,-.I 11 1-I M N ~ t l d~ 00 N M cc r1 M LO 00 rl l O c0 Cl l O l m M 00 00 M 00 LO l rH l 0 I sPno~ Co N 'cf• rl l T-4 LO M aD l 00 t- O N O O N l rl LO N 1.4 m N 1-1 l 1-1 N I-I m CO m rl I I LO ~ ~H I I m CO I 1 1 1 1 I I I m N m 00 Lc~ M co O d~ N Ps o~ITS23 y+ W t- I M N I M 1 I 1 1 ri O N N uoi;naaoag m 0 O r1 1 I r1 m m 00 m N 1 1 00 M c9 LO M CO Co co to 1 I co m W pun Sxxecl cD m i C17 o CV i r~ 0 ch tri ~ o 9 l r1 1 M N 1 0 N d L I ~ z 1 I 1 1 1 1 1 I CO co c0 m 1 1 1 I l '-1 Lo Cfl W m 00 m I ( l co z siooiias I 1 1 I 1 1 1 d~ 1 0 14 1-4 M ~'L 04 M m m oo 00 co O 00 LO M m 00 m 0o I I l O M O Co CO M N 1 1 N ' 1 W a oiiaY►d m da 4 N oo - r; i Lri cfl ri ~ i I o m oa p.1 N M O N m 1-4 co r1 1 to F d ~ 1 I ~r Ln 00 r-1 r1 ~ 0 r-I 0 o l r1 1 1 O r1 N o m c~ l l 1 I 00 m I Inuoilr psui i o ri r 1 co i r1 N o~ r1 i o~ 1 M r-1 N 1 1-1 to r-I 1 LO w ;w) 'I?i?3I1 P N o M LO N o CD O rr ri oo m M m o rl -1 CO 00 o DD m Lo to CO w q IBZ xlsnPui L°r~ O 1.4 ~ m r4 tZ m `n N 04 Lov cc 14 r 1 l Oup~.znCI P~ I to m O o M l LO d+ M 1 t M N l LO M M N N m O O a0 m Into zauzuzo~ I I CV O ' 1 N Co 't 08 n4 t 1 to ti to M 14 CO oo r1 r-1 1 co rt M dajreas pui; l l tJ4 M uz 00 rr dt o M 00 co ~r 0 co 00 Lo 0 0 m l rl m -M m w l luTluapisag t.: ,,14 L8 m ri m cfl o 4 00 - O of o N ri l try m oo N -a N C4 r1 ~ N rl Ln M N r-I C0 C0 r1 co LO LO. r1 LO .d+ 00 DD d+ 'I,: m N CV LO M a M 00 C Co d+ O (~o O o N '-1 m rl M M M C I Itreonn Pun "0 m m m C, cc 0 00 It C11 m t- ,14 9aMInoia2V O M rt rl O N rt CD co O N m N N N N r1 to to O m L- oo M LO N M C V 4 co rl CV to r--1 rl cl C ~ w bA C .a x w ~ "0 g J x 0 U ; 1.4 d Cd M .Q $-4 o m bll 4 Q) Y - 11 - VOL 30 WE 428 RESIDENTIA DENSITIES SCHOOLS EXISTING " LAND USES nR_ rEET At' CIRCULATION PUBLIC FACILITIES - . J-r." 0 - xuac cir CWsT E.EMFNtvn- _ y s aTHEK , - - N11 EP J MJ iG AC RICULTURE C OMMERCIAL INOL'STRI AL & UTILITY OTHER ?s a.. as E c INSTITU IONAL s - wrr cE, ~r rr. i u PARKS cnaz r~ca sexcE x e E i oaen ® HE c R h PM a MEDICAL oMwM v . r oa EwT[ r --1 ru ac „ o, o cEME E El xu 1-1 R . ~ xott~e MOTEL warES. srtc a~usE A {..z 1i Air u Ais a, _ summoo Bi i L ~ ae■ri~~ j~l71/1 ~~yso~l .~,.s■...~.tlll , -r r _f t iT ~wrrler New"~■~r~a~~~■ r~■nu nT. i~l~~! f a; 7-`-} fr la~~er~._ nrA~ :.3~~j 'rr_ b~s~!•+,. r1 ~ iJl~ ItJ a _ w ~ 41I y [7 o PLATE 5 HEND AREA GENFRAI_. PLAN OP 13 ND AND llF,SCllU'C E•:S COI:NTY, OREGON ' - - - 1~ 1 t VOL 30 FACE 429 In order to map and analyze the many kinds of land uses which occur in the community, it is necessary to develop a classification system in which various kinds of uses can be grouped. The land use classification used in this general plan was designed to reflect urban development patterns and indicate areas of transition from rural to urban uses. No attempt was made to prepare a detailed breakdown of various kinds of agricultural lands in the planning area. A ' brief description of each land-use classification which precedes the discussion of the land use in the planning area is intended to be descriptive rather than a comprehensive listing of uses in each category. ' Water Areas - includes areas more or less permanently inundated by major natural or man- made water features. The principal water elements in the planning area are the Deschutes River and the irrigation canals. The total area of these features is insignificant but their impact on the community is not. Mirror Pond in Drake Park has long been a focal point in Bend. The clear water of the Deschutes is the source for the irrigation canals. The quality of this water is such that, with minor treatment at each home, it is used as domestic water by many resi- t dents in areas outside of the city. The Deschutes and the canals have created some problems in the local street pattern. ' The river and the major canals require bridging which is usually avoided in the development process if possible. At the present time, both offer an opportunity for the development of pedestrian, equestrian or bicycle trails as the area grows. There will be hazards associated ' with such uses and these kinds of improvements, particularly along the canals, should be very carefully considered. The river and canals also serve to recharge local ground water supplies. Flowing over fractured lavas, considerable water is lost during transmission. No one knows exactly how much water is added to water tables but local opinions indicate it to be a considerable ' amount. A problem worth noting is the siltation of Mirror Pond. As this process continues, ' the character of this lovely water area will change and with it, the character of one of the loveliest parks in the community. The city staff is aware of the problem and is exploring means of removing the accumulated deposits. It is an expensive problem and its solution ' should be an appropriate project for combined public and private community action. Agriculture - the agricultural classifications are oriented toward the influence of agricultural 1 use on the potential urban pattern within the planning area. Grazing and Range - includes open, undeveloped land on parcels of more than ten acres in area with no obvious agricultural or farm use. The land has not been modified for agricultural purposes. ' This classification accounts for 51.6 percent of all of the land in the planning area. The largest areas occur on the more undeveloped west side of the planning -13- VOL 30 PAGE 430 area and are usually pine, juniper and sage complexes where no effort has been made to convert the land to any more intensive agricultural use. There are some uses, such as an occasional pumice pit or borrow site at widely scattered intervals on the west side. On the east side, these areas are primarily juniper and sage and occur as fairly large tracts of undeveloped land in the urbanizing pattern north, south and east of the city. In the process of planning for the future of any community, it is customary to go beyond the city boundaries and to include as much of the surrounding land as rea- sonable which is in the process of urbanization. In this way, the existing urban pattern can be studied and analyzed both with reference to current conditions and future potential problems. Plate 5, Existing Land Uses, graphically portrays the development pattern in the Bend Area. It also shows the location and distribution of the large areas of grazing and range lands. One of the principal reasons for this large area of low intensity use is that there is a great deal more land in the planning area at the present time than there is a de- mand for, and the supply will continue to exceed the demand for development in the foreseeable future. Because the supply will exceed the demand anticipated during the planning period for this general plan, community efforts should be made toward encouraging development in areas which are best suited to urbanization. Factors which influence such suitability are existing or planned community services or access to highways or other public facilities such as schools or parks. Past community development patterns indicate little regard for these kinds of con- sideration, particularly in recent years. The annexation pattern of the City of Bend shown on Plate 6 begins to indicate an increasingly erratic pattern of land areas within the city. The subdivision history of the planning area shown on Plate 7 indicates a "shotgun" distribution of new residential developments within the community. Most of the real scatteration has occurred since 1960. It should be kept in mind that it is costly to the property owner and the taxpayer to encourage development in locations which will unnecessarily extend community services or cause health problems because of a lack of these services. In addition, installation of services and facilities which are costly and will become obsolete as the area urbanizes, such as septic tank systems, wells, sub-standard water or sewer systems, all can amount to a duplicate cost for the property owner. Open Land - includes irrigated and non-irrigated pasture or crop land, including more intensive agricultural activities (if any) occurring on parcels of more than ten acres in area. All or part of the parcel has been modified for agricultural purposes. Different kinds of agricultural activities take place on lands classified as open and no attempt was made to differentiate among them. This grouping accounts for the second largest acreage total in the planning area and amounts to about 12.4 percent of all of the land considered. Most of the open lands occur east of the Deschutes -14- F1 11 J i VOL 30 FACE 432 r r r r J r D I 1 1 PLATE 7 e R f {v _ FEND AREA GENERAL PLAN ~JR - CITY OF' BEND AND llGSC13Ll F.S COUNTY. OREGON rl kot 30 f w433 in parcels of 40 acres or less in area and are scattered among other land uses. Open lands are often similar in character to smaller parcels classified as residential 1 in the 2-1/2 to 5 acre or 5 to 10 acre groupings. Many times both are essentially home sites with space to keep horses or other animals in a suburban or rural setting. Since these are parcels upon which some effort has been expended in leveling, clearing, irri- gation, etc. , they often have a higher development potential for urban uses than do grazing and range lands. Vacant - includes open, undeveloped land in parcels of ten acres or less. This category also includes irrigated and non-irrigated pasture or wooded or brush-covered areas occurring in parcels of ten acres or less which are not considered agricultural units. Vacant land includes property both inside and outside the city which has been segregated into parcels of various sizes, all ten acres or less, to be used or sold as building sites. There are 4,143 acres of vacant land within the planning area, only 443 of which occur within the City of Bend. A large part of the vacant acreage, both inside and outside of the city, occurs in the form of vacant lots in recorded subdivisions. Those in the city generally are in the 10, 000 to 20, 000 square foot range while in the county, the range is from 2-1/2 to 10 acres. Most have access to some form of dedicated right-of-way and represent a substantial reservoir of property committed to urban or suburban development. Residential - this classification is based on the land area per dwelling unit, or housing density, rather than the number of dwelling units in any structure. Development problems and the needs for community services are more closely related to housing density than to the type of residen- tial structure. The lot size classification is as follows: 1 5 to 10 acres - large rural-residential lot, too small to be considered agricultural; can be subdividied further with relative ease; not often a problem for septic tank systems. 1 2-1/2 to 5 acres - relatively large rural or suburban lot; not too easily subdivided fur- ther into a reasonable urban pattern with adequate access--requires cooperation with other property owners which is difficult; not often a problem for septic tank systems. 1 lt t diffi ; a cu 1 to 2-1/2 acres - suburban lot area; further development becomes more this density septic tanks are a problem in some soils; keeping animals sometimes a 1 problem. .47 to .99 acres (20, 000 to 43,559 sq. ft.) - large urban lot pattern; septic tanks often 1 a problem except on favorable soils; utilities often expensive because of lot sizes. .24 to .46 acres (10, 000 to 19,999 sq. ft.) - urban lot pattern, all services should be available. .14 to .23 acres (6, 000 to 9, 999 sq. ft.) - standard single family urban lot pattern; 1 all services necessary. -17- . va 30 PAGE 434 . 09 to .13 acres (3,500 to 5, 999 sq. ft.) - medium density urban lot pattern, small r lot single family or duplex developments common; all services necessary. . 00 to .08 acres (00 to 3,400 sq. ft.) - high density urban development pattern, duplex ' and apartment developments common; all services necessary. Trailer parks - classified by housing density; all services necessary. r The residential classifications based on lot area per dwelling unit are intended to group uses with more or less similar characteristics and future development potential. At the present, about 68 percent of the dwelling units in the total planning area are inside the city, which ac- counts for slightly less than 10 percent of the land area. The remaining 32 percent are located outside the city. The largest concentration of residential development occurs in a rectangular area centered on the original town of Bend, generally within the boundaries of the city as they existed in 1950. (See plates 5 and 6). At the time of the land use survey, approximately 73 percent of the dwelling units in the total planning area were located east of the Deschutes and about 27 percent on the west side of the river. The housing densities of residential districts vary considerably within the area. ' Generally speaking, residential areas in the city are developed to a higher density than those in the county. This is true in part because of the availability of water service within the city, in part because most of the developed sections of the city were subdivided before 1920, and in part because of a different choice in living environments by residents. The average density in Bend is 5.5 dwelling units per acre while in the county areas, the density is 0.8 units per acre. Slightly over 99 percent of all housing units in the City of Bend are sited on lots of ' less than one acre in area, about 97 percent are on lots of less than 20,000 square feet and about 76 percent are on lots smaller than 10,000 square feet. In the county areas outside the city, about 36 percent of all housing units are located on lots having an area of more than one acre with about 13 percent on lots over five acres. About 20 percent of the number of dwelling units outside the city are mobile homes located in mobile home parks and another 18 percent are mobile homes sited on individual lots of various sizes. The influence of mobile home parks and mobile home subdivisions together with new ' single family subdivisions on private water and sewer systems have increased development densities in county areas to the point that about 50.6 percent of all dwelling units in the county area are on sites of less than 20, 000 square feet per unit. Table 4 provides a dwelling unit and housing density summary for the total project area, county areas and the City of Bend. Table 5 summarizes this information for each of the thirteen planning areas. i bdi i i ons, s n su v Much of the recent growth in the planning area has occurred on lots both inside and outside of the city. Since 1970, more population growth in the planning area has occurred inside the city than in surrounding county areas. Plates 8, 9 and 10 show popu- lation distribution in the planning area for the years 1960, 1968 and 1974. Plate 8 was de- veloped from former planning studies and 1960 Federal Census data. Plate 9 was developed from aerial photography and State Highway Department maps, and Plate 10 was developed from the land-use survey done as part of this planning program. The three maps were - 18 - i i i i i i i i i i i i v0! 30 PACE 435 TABLE 4 DWELLING UNIT SUMMARY Bend County Areas Total Project Area Dwelling Percent Dwelling Percent Dwelling Percent Lot Area in Acres Units of Total Units of Total Units of Total Over 10.00 4 0.07 143 5.23 : 147 1.70 5.00 to 10.00 2 0.03 ; 202 7.39 204 2.35 2.50 to 4.99 6 0.10 219 8.01 225 2.60 1.00 to 2.49 19 0.32 428 15.66 : 447 5.16 0.47 to 0.99 134 2.26 316 11.56 ; 450 5.19 0.24 to 0.46 1,244 20.96 510 18.66 1,754 20.23 0.14 to 0.23 1,927 32.46 206 7.53 : 2,133 24.60 0.09 to 0.13 1,227 20.67 34 1.24 1,261 14.54 0.00 to 0.08 1,196 20.15 88 3.22 : 1,284 14.81 Trailer Parks 168 2.83 545 19.93 713 8.22 Other Use Areas - 9 0.15 ; 43 1.57 52 0.60 Totals 5,936 100.00 2,734 100.00 8,670 100.00 - 19 - VOL 30 PAGE 436 to F~ W O a F [n F ~ 0 H w a F Q H W A C7 O x to 00 m m N to Ch M O N 00 co m O L ° L O~ 0 00 ° o ~ ~ ° 0 M C"~ to to co O• 1-1 m to L- C> 0 o O F U) 1.0 00 1~ M L M N CO N N m t- O i, tf> N DO L M M L co CD L O 00 'd( m L W L L CO A (n 1-1 1-4 N O L ; r-1 r-1 - r-1 0 ra OD C+0 co 00 L m r-4 .--I r-i m tf) O O OD L N 00 r-1 00 ao m -I O O -4 O to 00 O O O c9 00 O Cfl O O r-4 ri U O p M H 1.0 C) m cq to -tq L0 T--( m -4 a O CO co .-4 r-1 14 C.C m O 00 O rl (7) M N m CD ri to 14 N A ^ ra r-1 ~ L O O 00 00 co r-1 1-4 L CO O 'N -4 1-1 Cl O to 4 o L L (Y'3 1-1 cD In C) I'll ra o 0 to 2 . N co w O L r-I L• tri M rH r-+ N 00 I L 1 ao c; o i r-1 ri r- r 14 o ~ O Cd O ° to 00 co Cl) m 14 IN CJ M N to N 00 L to co tf) ° A m to N L N N -It L O L m r-I to m O U .--I m m ri N 00 r-q O Cfl -1 to CD L O U tf; Vt to r-1 O m CD O O r-1 O C''J .--I O C r-1 N r-1 r'1 1-1 O 0 O CV M -J4 to 14 L O co O L r-1 00 L N CO N d 1-4 to d A d r~ . m Cd Y) M L CO m It cl: -14 O O 00 -V O N O .--i U U M CO to 00 d+ m 14 O O L 14 O 14 O ~ U Z tf) 00 .--1 O O m O O O m OO N C O ~1 to I ~.I N m N N CO N -4 r-1 O O O N m L L LO ) e-d N N 'dt N 1-1 N ~ A F O -1 L O O O O O O O tf: N to ° lz~ fn m to C. O O 00 -4 O O m cl~ co 3~ O ~ J 0 0 0 0 0 cl C; C; U N 1" d N m C) O o o 0 0 o r'1 0 0 Cl to m to a U o - to co N r r o t A N U) Cl m m o o r4 m 00 o CD 't 0 0 0 00 O L o o N co CO o r-I 0 00 00 0 Q) U c9 r-1 m o 0 o N o 0 0 N co 0 0 N C) o r-4 m o o to CD r- o N co o o L ~p Q r-+ Co N 1-1 N r-1 1`1 r-1 d~ o U H U Cd O U x I O U L 0 U) -x- U ~ 41 ~ U S-1 i r a U + ' + ' bA k r U ~ cd 0 g U A U i~ U W H R - 20 - POPULATION DISTRIBUTION - 1960 • REPRESENTS 3 PEOPLE J j 3 Y Roga VOL r xs ; 'ell Y j${ ~b~ ax , F{ MAI, T - 4 C f ~i s g , j ~ ~ Y is a a. PLATE 8 BEND AREA GENERAL PLAN CI'CY OF 13END AND DESCHUTES COUNTY, OREGON nc) VOL 30 FACE XJO POPULATION DISTRIBUTION - 1968 • REPRESENTS 3 PEOPLE f { il. n 4 z 3 ` P 1 t lI o ~ , r i -ET i 9 t I 04 A"m VJJ ( r I _ I % T l t a I I-1. J w i ; i i I PLATE 9 I - BEND AREA GENERAL l'I •kN '••~S•'• _ CITY OF 33F,Nll. AND DESC.IIDTEa COUNTI". OHCIAti i i I n [J 77 L I 1 U POPULATION DISTRIBUTION- 1974 REPRESENTS 3 PEOPLE NOL 3n 440 prepared to provide a graphic comparison of growth patterns in the area and are not intended to show exact locations for each dwelling unit. A comparison of plates 9 and 10 shows the concentration of new units within sub- divisions. This has been influenced in part by increasingly restrictive standards relating to sewage disposal adopted by the State. It also results from the creation of private water systems outside the city which eliminates water supply as a problem to individual property owners. Most new growth in the city has occurred in the northeastern part north of Neff Road and east of Fourth Street. Additional new growth in the city has taken place west of the river on the south slope of Awbrey Butte. Nearly all of this growth has occurred on lots ranging ' from 7, 000 to 12, 000 square feet in area. Outside the city, considerable new growth has taken place in subdivisions with lots , ranging in size from about 8, 000 to 20, 000 square feet. Most of this development lies south and southeast of the city. Other developments have larger lot areas and display a fairly random distribution pattern in all directions from the city except to the west. Here, rela- tively little development has occurred presumably because of large ownerships, problems of water supply and difficulties with subsurface disposal systems. There has also been a substantial amount of growth on individual lots not a part of a subdivision. These lots are commonly one to two and one-half acres in area with many in the two and one-half to five acre range. Multiplication of this pattern can create very real future ' problems. Concentration of housing on relatively narrow, deep lots along existing county roads will make access to interior property difficult in the future. It can isolate large tracts within blocks which become very difficult to develop because of the multiplicity of ownership , and lack of access. When sewers become available, lots will become further segregated and, unless consideration is given to access to the interior of larger blocks, development possibilities may be limited unnecessarily. Patterns such as these are beginning to develop north and east of the city. Some planned unit developments have been started in the area and, if there is a market for these in Bend, can offer a highly desirable alternative to standard subdivisions. It is possible to create a more livable residential environment through this process and, at the same time, reduce some public responsibilities such as park and street maintenance. ' However, if carried too far, a series of independent, autonomous service districts may be created which, in the long run, will lead to duplications in effort, equipment and facilities that in time may be more costly to residents of the area than similar city or county services. , Planned unit developments also may offer special benefits to the Bend Area because of the natural ground surface. The land is very uneven and is characterized by erratic patterns ' of rock outcrops, lava ridges and rock at shallow depths beneath the soil. The general slope from southwest to northeast is interrupted by depressions or small ridges, making development of sewer systems complex and costly. If new development can be designed to better fit the land ' surface, considerable savings in costs may result. However, variations from community -24- VOL 30 PA standards must be such that the public health, safety and welfare are provided for, even though it may be accomplished in a different way from a standard subdivision. At the present time, there is a wide variety of choice for residential living in different sections of the planning area. Some current trends will create problems in the future and will tend to reduce the desirability of some residential areas. Consideration should be given to preserving a wide range of choice in residential districts and retaining the desirable charac- teristics of each kind of area. Mixing of housing densities or building types should be done ' with maximum care so that neither works to the detriment of the other. Commercial - ' Service - basically, a commercial activity where a service is rendered rather than goods or wares sold; for example, business and professional offices, banks, barber and beauty shops, small repair businesses, nursery schools, laundromats. Retail - retail stores and businesses with relatively small land requirements; for example, shoes, gifts, groceries, drugs, sporting goods. Auto-Oriented - commercial sales and services oriented toward the automobile; for ' example, gas station, minor auto repairs, auto dealers and parts, auto painting, auto rental, drive-in restaurants. ' Highway-Oriented - sales and service businesses with large site requirements, or those oriented to highway access; for example, building materials sales, auction houses, trailer sales, equipment sales and rental, nursery or greenhouses. Also includes ' commercial recreation not involving open space; for example, drive-in theaters, bowling alleys, miniature golf courses, etc. Hotel and Motel - Hotels and motels Parkin - separate, private or public parking lots not associated with a specific business or shopping center. Most commercial uses in the planning area occur as part of a fairly continuous six and one-half mile strip along Highway 97; or as part of the commercial strip along Greenwood; or in downtown Bend. Most remaining commercial uses are found within the city west of the river and serve a local neighborhood or traffic in route to Mt. Bachelor or elsewhere in the mountains ' to the west. Commercial development along Highway 97, Third Street, through the city includes a wide range of commercial activity. The central section, bounded on the north and south by railroad crossings, generally speaking is more intensively developed than sections to the north or south. Many of the uses are oriented toward serving local shopping and service needs rather than serving the traveling public. Two of the principal uses are shopping centers, one at Third and Franklin and another at Third and Revere, both oriented toward the Bend - 25 - VOL 30 PAGE 442 I market. In addition, there are financial institutions, business and professional offices, new and used automobile agencies and car washes along the street to serve residents of the Bend Area. Intermixed with these local or regional sales and service uses are numerous commer- cial activities oriented toward serving the traveling public. These include motels, restaurants, drive-in restaurants, and gas stations. Except for the motels, the other uses also serve local residents to some degree. Much of the development in the central section of the strip is rela- tively new and has changed the character of the city, both to the residents and to the traveling public. North and south of the central section of the strip, commercial uses are those requiring ' large sites or are oriented to the traveling public. One of the more common large space users are mobile home sales and service establishments. The relatively large number of these uses reflects the higher than average market for mobile homes in the planning area and Deschutes County in general. Other commercial uses found north and south of the city are motels, gas stations, truck service stations and repair facilities, and building supply establishments dealing in lumber, carpeting, plumbing, etc. Commercial developments north and south of the city are spaced along the highway and much land remains in residential or agricultural use, or is un- used. Most commercial development along Greenwood Avenue, Highway 20, consists of businesses and offices serving local or regional needs. A small shopping center at Greenwood and Eighth serves the frequent needs of people in the east side of the city. The predominant commercial uses are service activities such as business, professional and real estate offices. A motel and some service stations also respond to the needs of the traveler on Highway 20. Downtown Bend, generally located between Franklin and Greenwood, and Bond and the river, is the most intensively developed commercial area in terms of land use. Most pro- perties are small and many buildings occupy a high percentage of the lot area. It has many problems common to downtowns elsewhere such as small land parcels, multiplicity of owner- ' ships, inadequate parking, older buildings not well suited to modern commercial development and merchandising techniques and few amenities to attract the shopper. Most retail activity is concentrated on Wall Street and most new commercial uses or developments in the downtown area are of the service type such as banks or other financial institutions. Downtown Bend and the parks along the river are part of the character of the community which has given the city the image it enjoys throughout Oregon. Long-range planning should give careful consideration ' to downtown and its future. As mentioned previously, much of the commercial development in the planning area occurs in the form of commercial strips along highways 97 and 20. It is strongly recommended that community efforts be made to improve traffic safety and the appearance of these existing commercial developments. Median strips and left-turn lanes would help to improve traffic ' safety. Landscaping of median strips, landscaping along streets and some attention to building ' - 26 - 1 , vot 30 r 443 appearance and signs can greatly improve the appearance of all existing areas. If Bend is to retain its historic sense of quality and its image as an unusually desirable place to live, the appearance of Third and Greenwood must be altered to keep them from looking like any other strip commercial streets in a hundred other communities. Industrial - Light - basically, wholesaling, warehousing and light manufacturing, fabricating or processing; for example, wholesaling, warehousing, storage, light manufacturing, welding, sheet metal, machine, upholstering, printing, cabinet shops and bottling plants. General - basically, servicing of large equipment, heavier storage or processing activi- ties; for example, equipment repair or service (including trucks, general contractor operations, lumber storage (not a mill), trucking and freight handling, creamery. Heald - basically, heavy industrial uses; for example, lumber and plywood mills, wrecking yards, sand and gravel operations, foundry or iron works, gravel quarries. Industrial land uses are fairly widely scattered over the planning area with the largest ' single concentration consisting of the Brooks Scanlon - Brooks Willamette complex immediately adjacent to the Bend city limits on the south. It should be remembered that the land-use classi- fication system designated land used or apparently committed to industrial use as industrial land. In this case, committed means has been used,or is used from time to time, or in some other way has some physical evidence of past or current industrial use. A good example of this condition is the site which was considered for a new school on the east side of Ninth Street south of the high school. The property is occupied by unused in- dustrial buildings, it is served by a railroad spur and part of the site is used for log storage. For these reasons, the entire parcel was placed in the heavy industrial classification. Ano- ther type of example is a former or possibly current quarry site in the extreme southerly part of the planning area. Material has been removed from the site in the past but, at the time of the survey, there was no indication of current activity. The physical evidence does indicate a commitment of the property to an industrial activity and it was so classified. How- ever, this does not necessarily mean that these kinds of parcels will be recommended for indus- trial use in the general plan, but it does indicate a difference in land use and the nature of the use. These kinds of considerations in the classification system affect the acreage figures for industrial lands and should be considered in the allocation of land uses in the general plan. In terms of acreage, heavy industrial uses account for 594 acres or about 78.3 percent of the industrial total. Nearly all heavy industry in the area is involved in manufacture of wood products or in mining or processing gravel or pumice. Major active heavy industrial uses re- lated to wood products all have sites with rail access. Mining operations occur at the source of the material and most processing also takes place there. Shipment of pumice and manufac- ture of blocks also occurs at sites with rail access. - 27 - VOL 30 PAGE 444 1 General industrial and light industrial uses are distributed through the planning area along the north-south highway and railroad transportation corridor. Many wholesaling, distribution and freight handling uses are located in the central part of the city east of the railroad. Some of the more common general and light industrial uses outside the central section are contractor storage yards or buildings, truck and equipment repair facilities and fuel storage and distribution facilities. Most general and light manufacturing operations are located north of the city and include manufacture of products such as mobile homes and recre- ation vehicles, furniture and hydraulic equipment. Two operations located south of the central section produce bullets and clothing and are somewhat unexpected in the Bend area. General and light industrial uses together account for 164 acres, or about 21.7 percent of the industrial land use total. Employment trends indicate a growing diversification in the local industrial development pattern. Although wood products will continue as the mainstay of the local economy, increasing diversification can be expected in the future. As new industries seek locations in the Bend Area, different use groupings and development standards may be necessary. Present industrial de- velopments have largely ignored any considerations relating to appearance or compatibility with adjacent uses. It seems reasonable to assume that industrial areas should bear some resemblance to the character or quality of development in other parts of the community if Bend is to continue to be a highly desirable place to live and work. Such things as fences or planting to screen outside storage yards or in some cases, street paving or curbs would enhance the appearance of industrial areas. Some kinds of industrial uses seek an environ- ment of considerably higher quality than any found in existing industrial districts in the plan- ning area. As development continues and industrial uses occupy larger sections of the com- munity's land area, greater emphasis should be placed on these considerations, particularly along major streets and highways which are frequently viewed by the general public. Institutional - uses of various kinds considered institutional in nature and usually nonprofit; for example, churches and parochial schools, hospitals and cemeteries, lodges, granges, and meeting halls, Red Cross. institutional uses are widely distributed through the planning area with no distinctive pattern to their location. In terms of numbers, churches are the most common use in this group. In terms of area, cemeteries and hospitals are the largest land users. St. Charles ' Hospital is now in the process of constructing a new facility on Neff Road. Upon completion, this hospital will influence adjacent land uses and stimulate new development in the immediate area. Care should be taken to see that new uses are compatible with the hospital and that streets are improved to safely accommodate additional traffic. When the present hospital becomes vacant, future use of the building will become a significant community concern. The building should be carefully and objectively evaluated for alternative uses which may be consistent with the characteristics of the structure and the site. Some of the more obvious possibilities are to use the building for a nursing home, a convalescent , hospital, public offices, private offices, a detention facility, housing for the elderly, or as an apartment building. The building is large enough to accommodate one or more of these kinds of activities but each has different space and facility requirements. Remodeling costs should be analyzed and functional suitability should weigh heavily in the decision-making process re- lating to the final use selected. -28- I VOL 30 FADE 445 Public Utilities - all electric and gas utilities, telephone, telegraph, radio and television stations, private water systems, irrigation systems and facilities; for example, equipment and transformer yards, offices, radio and television stations, Public utility uses classified in this program account for a total of about 37 acres of the total planning area. This includes only the offices and various types of storage and equp- ment facilities. It does not include land used or overpassed by power, telephone or gas trans- mission lines, since most of these are located in public rights-of-way or are in an easement on land used for other purposes. The principal expression of public utilities in the land use pattern of the Bend Area is made by transmission and distribution facilities. Power and telephone lines are obvious ele- ments in the landscape and sometimes are the principal features of the skyline in the more intensively developed sections. Current community policies favor underground installation of power and telephone lines, particularly in new developments with urban housing densities. These policies should be extended throughout the planning area, including developed sections of the community. Another transmission system which expresses itself on the land is the system of irrigation canals. These canals take water from the Deschutes River at three different loca- tions within the planning area. The main canals east of the river flow across the planning area in an easterly or northeasterly direction with smaller distribution channels following the general slope of the area and flowing to the north. Many of these canals are located on raised 1 lava ridges and are above the general level of adjacent areas. This location at a slightly higher elevation has tended to keep canal waters free of contamination from storm water runoff or out- flow from subsurface sewage disposal systems. The water is of sufficiently high quality that, 1 with minor treatment on the site, it is a source of domestic water for many homes on the east side. Because many of the canals were established in channels dug from highly fractured lavas, there is considerable lost during transmission periods. It is believed that this leakage is a source of recharge water for local ground water supplies. West of the river, the main canal alignment follows the contours of the fairly normal land form patterns around Awbrey Butte. The canals on both the east and west side represent opportunities for development of trails as the area urbanizes. Any trail developments must consider the water hazard for children. In the long-range view, such a trail system could be- come a tremendous community asset as urbanization continues and open space disappears. Another type of public utility that indirectly expresses itself on the land is the private water system. There are several such systems in the area and all are not public utilities. Several have been developed to serve individual subdivisions. Others serve an individual subdivision and a large nearby area. The availability of community water systems can encourage residen- tial development by reducing the problem of possible water contamination from individual sour- ces on properties which also use septic tanks for sewage disposal systems. The community water system also offers a less expensive source than a private well in the Bend Area. ' If private systems are designed, engineered and constructed so that they may eventually be integrated into an overall system, they represent a one time cost to the user. If not, it may - 29 - VOL 30 PACE 446 be necessary to replace the system as urbanization takes place in the area. Private systems ' should also be installed with the idea that sewers will be necessary in the future. Use of certain types of pipe will require sewers to be kept a prescribed distance from the water line or the water line must be replaced. It seems pointless to install water systems, public or private, which are apt to be replaced when sewers are constructed. If this happens, it repre- sents a second and unnecessary expenditure of funds for water service. The county should give serious consideration to establishing standards for private water systems, or at the very least, make every possible effort to see that all state regulations are followed prior to the in- stallation of a private system. (Plate 11) The existing land use pattern is clearly a fundamental factor in the future development of the area. Future growth in the City of Bend and surrounding portions of Deschutes County can be expected to re-enforce existing land use patterns to a large degree. Many of the same factors which influenced past development will exert similar influences on the future. Com- munity effort should be directed toward solving the problems presently found in various use areas, and future action by the community should attempt to discourage the creation of similar problems in the future. Land Use and Zoning Summary - Bend and Deschutes County Areas Land use patterns have been described as part of the discussion of the entire planning area. Table 1 includes a detailed breakdown of the land use data for the planning area and Table 2 summarizes that breakdown. Table 6 gives the summary of existing land use in acres and percentage relationships to existing zoning in the city and Table 7 provides the same information for the county areas within the total project areas. This comparison shows the amount of land in various zones which is being used for the purposes permitted in the zone. Together, these tables indicate the effectiveness of the zoning and the amounts of land available for development within various zones. Plate 12 shows existing zoning patterns. The summary for the City of Bend indicates that residential zoning districts have effectively protected most of the residential areas from incompatible commercial or industrial uses. In both the city and county areas, residential or industrial land uses account for a rela- tively small percentage of the land area in any of these zoning districts. It is interesting to note, however, that approximately 41 percent of the land zoned C-1 in the City of Bend is used for residential purposes and approximately 47 percent of the C-3 District is occupied by resi- dential uses. In the county areas, the highest concentration of residential use in a commercial zone occurs in the C-2 District where it amounts to approximately 31 percent of the total. Residential uses are less common in industrial districts in both the city and the county than they are in commercial areas. As is common in most cities, more land is zoned for commercial and industrial purposes than is put to either use. This can be seen on tables 6 and 7 by reading the percentages of com- mercial and parking uses under each of the various commercial and industrial zoning districts. The C-4 District in the City of Bend is approximately 96 percent developed to commercial uses and is the most intensively used commercial zoning district in the planning area. The M-2 District in the city is approximately 85 percent occupied by industrial uses and is the most - 30 - I VOL 30 PAGE 448 EXISTING ZONING A ` A-1 t i A T -T M.II f I A.1 I it U r /M12 1 \ _ L___ 14-1 +1 1 } ft cc I TA-l~ a "s Fv I 41 Z F Z I r I - SR-1 L - PLATE 12 ;q BEND AREA GENERAL PLAN p - - - CITY OF BEND AND DESCHUTE:S COUNTY, OREGON i i t A ~ Q O W a w o CG Q N F H Q U W m Q I vot 30 prf 449 amA -4 -1 1 1 t- CV co 1 1 1 1 I I I I ~ O O I I ~ 00 ~ ~ • tf; V O ~ ~ ~ ~ ~ ~ ~ ~ ~ 1 1 p C 00 I I I I 1 1 I 1 p 0 I 1 p p~ I I I 1 1 I i 1 ~ Cl ~ 00 , C D L" O ~ ~ ' O ~ m 4 1 I 00 00 M w O. l CV yy M m M N co LA'S W tf) O 1 1 rN fir) ~ O . rn 1a -11* - M m. - ^ o o~ ~t+ 1 I 1 1 1 c ° o rn c co cJ ~J ' 't+ W O . n'J C N o co CV co U '"I I I 1 I I 1 I I i I C Z' O I t4 in 00 LO 00 0 I I I I 1 I I I I 1 0 0 00 I O O~ ; O N I I I 1 I I I I I 1 LO C$ C U 00 110 0 I 1 1 1 I It I 1 I 1 O co r-1 N 1 I co N 'd~ t0 m~ I I I I U p co 1 1 O C~ LO CD O co 1-1 to N 1-4 I I I I O C C~ j 1 1 c N • M N d I I 1 I N U 1 1 O '-1 O O O 1 1 I 1 p I I O r-I 0r) O r-1 CV I i I I -4 r- p m ~ 'Z7 co N co N GV m CD GV m d~ r.0 m m N 00 I 1 I I O ° O V N O d m 0 M J m l rcJ I 1 1 1 1 I 1 I N r- -1 c r m tf C p d rl cq O cq cD N m v~ -4 r-1 I I m p cD 00 O CV 't 00 M O di CV m CV 1 1 M 00 O p CV . cD . O M 00 cD 1 1 m ' 1 m .--1 cD cD d' ~ I 1 c ) . 00 ~ U 'A 1-1 m O m l- clJ CV co I I C O r-1 r-I Lf) r-1 ~ ti lr;~ <M 4 -M l;:'~" cD L`= I t I I J C- G m r 1 O r-1 N V C0 O 14 m CV r0 I 1 I I C 11 i t 1 ~ ° ° U r-4 cD co 14 (V 00 M O O I I I 1 ~ p r1 14 ^I 1 I 1 1 ° Z I I I I I 1 L Q N C II OD d I 1 1 I O d I I I 1 1 I C) 1 p ° I I 1 1 4 1 1 1 1 I I ° • I a m C4 00 C,; 1 11 I 1 1 1 1 C r -I 1 1 I 1 I I I 1 1 1 I 1 o d p " cq m m~ co m~ c~ r-1 Z cow 4 N 00 cV C11 00 00 m r'4 ~r 00 LO cq L') C I m r~ (7 cD C o o ` m . o p; v c 0 co o L ao + r-1 cli 00 0 00 0 0 0 ~ o 1-1 Cl) cv d r- o cli VD cli LO LO o m l~ ri 8° m Lo c> rr o m Lo r-1 r-d co 1-1 m m O ce) CV Lo co cD ~N m CD 00 00 co O ( I 00 O d O . O .-1 m O a ~O ~ 1n ° ° r-I r- m w cD O co d~ O C d+ CJ 00 CV C> C- CV 11 O O d M O rd r'I LO C w r-1 r-1 N N N N rn N rn rn U n rn uI m rn m U U U U N U U U Cv U N U N U N U U U P ;'1 r4 P r4 p pp P U N U N U N U N U N U U U N U N U N ~a ¢a ¢a tea, ¢a ¢a ~a ~ 1 ya ~a co En cd (v Cd <1 cli + r U s~ c "Cl bl) F ow H GY Z U ~5 4 Cl) a - 33 - VOL 30 FACE 450 ' O I I '"I O I t 1 1 1 I I I ° 0 I ' 1-4 00 Lo ~L L~ 00 o~ o&~ cq ML M~ M L- ~H CO N G: m ° 00 c °O 1.q d' I N C.0 H 1 I I 1 1 M O U U b v ° 00 t- M d1 Lo ~.o M M 1 I 1 1 1 1 1 1 I 1 1 1 I I I I o p O O 0 0 Cj Cl! ~ p j 1 1 1 I 1 I I I . . l r. O ~ C.) co M Lo 1 1 I I I 1 I 1 1-4 O co T-4 co M M LV CV Z 1 1 co 1 I 1 I 1 N N O Co M M oO Lo N -,T O U C • ti 1 ~ C'! O C! O N I I 1 1 CV I I I 1 1 I 1 1 ' 1 ° $ O rl e-1 d1 M . ~--1 00 CV N 1-1 1 1 I I 1 I N O Q ~-1 N CD O LQ O 0 f.0 CO ° 0~ co L C) N F ° ° j' C M w EE-+ Fel 00 v s- O M N u L- o t- ~ 0 0 0 er r1 -4 Lo M W rl O O 0 Z I Lo 00 cq t_ p p d+ 0 1 -4 C L p W !J 00 M N N c cV N CV ' E1 1 I I I 1 I I 1 I 1 0 C p z A r, 00 4 Lo c> 6 A ai N ; o a Co co 0 0 I I 1 I 1 1 I I I 1 1-4 00 ° M co w w E w O 00 e CID 1 I 1 I I 1 I 1 N Q Lo t- Cc C> c ) • O t- 1-4 O' I I 1 I I I 1 I ° O 1-4 cq 1-4 N "t 'o co rt+ Lo co t- O 1 I I 1 Lo N o 67 N O 1"1 rl L- O O ttj I 1 I 1 00 m N p I 00 d' 1 1 I I 1 ° ° d co m co O O O 1 1 1 1 r1 ~ O cV Lo 1-4 d+ Lo 00 00 m cq 00 O IfJ d~ N 00 O t.f) M d1 CD 1 ~ I 1 ,-1 00 M ° 1-1 M t~ N 0 M 67 0 O V 1 1 CS) O O e I (Zy' 00 co Cfl o0 L a O N N 0 N O C 1-1 C+') ; M O Is N N U U U U N U U N U U U U Q) U N U H f~ "1 1 P P P ~ f f r4 I.4 f~ ;-4 ' /1~ U W 11 / U W U U U U U N U N U 0 U d U N ¢a ¢a ~a Qa ¢a ~a Al a <1 PA ~a :a gQ 0 U c~ N f{ j Y 4 o - 34- I f VOL 30 FACE 451, ' intensively used industrial district within the planning area. Plates 13 and 14 show the existing commercial and industrial development patterns in theplanning area and the areas zoned for those uses. Plate 13 displays this information for commercial land use and zoning and Plate 14 for industrial land use and zoning. ' The disparity between land use and zoning is not uncommon and is not a problem if the difference is not excessive. If land is zoned for commercial or industrial purposes well beyond any foreseeable need, it will result of deterioration of residential uses within the area zoned, or it will retard the development for other uses in anticipation of commercial or industrial development. In addition, long-standing zoning patterns in areas where the use is still not consistent with the zoning raises the question as to whether or not some other zoning wouldn't be more appropriate for such areas. Future land use considerations should involve review of these kinds of situations and changes in land use and zoning patterns recom- mended where appropriate. This does not mean a general shifting or modification of zone boundaries, but rather, well considered modifications to some areas if past development trends or other factors indicate such changes to be reasonable. r - 35 - VOL 30 PACE 452 EXISTING ZONING COMMERCIAL ZONING EXISTING COMMERCIAL USE ` / r A-1 WI ~ r L J ~ J I , , i A-1 1: vkEr A-I 0 w f a P-D ~ t r 1 > r ~RL t _ k ~ - I R-I ~ _ Y~"' ~rFl ~C 1 f P-I JAI ~R R-i a ~ M 2 A_I EA -1-T r` M-2 ~t R=¢.~` _ ,l . / / I I - ~ R z E R 1 / A -I R P , 1 µ 7 R-I /J R 2 PLATE 13 BEND AREA GENERAL PLAN CITY OF REND AND DESCIII'TES COUNTY. OR.EODN i t i VOL 30 FACE 453 EXISTING ZONING ® EXISTING INDUSTRIAL USE D INDUSTRIAL ZONING A-1 A-1 a , i F s\ M l A 1 A-1 , Bono 1 r 1 ~ - I R-1 { A-1~ A-T mil„ .4k J 1 i r. a z ' U_ b E I-D R -r / a_z . . AI ~ q 1 p i an. PLATE 14 _/A -_I l BEND AREA GENERAL PLAN CITY OF BF',ND A%U DF.HCt1U• - ` I'IiS COl'NT1 OREGON VOL CHAPTER 3 RESIDENTIAL CHARACTERISTICS AND HOUSING ELEMENT 30 PA 1 GE454 Some general comments related to overall residential land use and housing densities have been made previously under the residential section of the land use discussion. This section discusses residential characteristics of the entire project area and for each individual planning area in terms of housing density, subdivision history and condition of structures. Subdivision History - In the process of subdivision review, most planning commissions and governing bodies focus their attention on engineering and improvement aspects of the problem. There is no question that these are improvement elements of urban development. However, equally im- portant are considerations relating to the natural terrain, vegetation, views, privacy, etc., which are often overlooked in the development process. Most subdivisions are designed to be built rather than to be lived in. It is interesting to note that more than half of the people in the planning area live in a development pattern created before 1920 or more than 50 years ago. (Plate 7) Development patterns and subdivision locations reflect our changing attitudes toward community life. Nearly all of the City of Bend was subdivided before 1920. In those days, the automobile had not taken over our lives and the city was the city and the country was the country. Laid out along the railroad tracks and the Deschutes River, the urban area is essentially two grid systems, one angled to reflect the interruption of the river. Lots are commonly in the 6, 000 to 7, 000 square foot range, and this pattern probably occupies about 80 percent of the developed land in the city. After 1919, there was little activity in urban type subdivisions. There were two major subdivision areas, one north and one south of the city between 1919 and 1949, and both areas created acreage lots. The patterns were and still are fairly similar even though the southern area was divided mostly in the early 1920's and the northern one mostly in the middle and late 1930's. Between 1950 and 1959, every new subdivision except one was located within the city or was adjacent to it and annexed to the city. These subdivisions all had urban sized lots. The small number of subdivisions between 1945 and 1960 indicates that the Bend Area did not participate in a general post World War II growth period. This is also verified by the popu- lation history of the area. Until the early 1960's, the Bend Area had a fairly compact urban form, with population concentrated in the city, some larger lot suburban-rural areas develop- ing north and south of the city, and a slowly growing fringe population to the east located on individual lots along county roads. - 38 - t I I VOL 30 FACE 455 ' After 1960, the area began to grow at a very rapid rate and subdivisions were recorded in all parts of the planning area. City boundaries expanded to accommodate new subdivisions at urban densities and, for the first time, subdivisions with urban-sized lots were being de- veloped in county areas. Most of the population growth has occurred since 1965 with the greatest increases occurring between 1970 and 1974 when the City of Bend added nearly as ' many people as it did between 1940 and 1970. County areas also increased rapidly as can be seen by the number of new subdivisions recorded between 1970 and 1974. All of these subdivisions in the county are served by a community water system of some kind and some have community sewer service. In fact, every subdivision recorded in the county area since 1970 is served by a community water system. However, they do not all contain urban-sized lots. Many have lots over one acre in area and some over five acres in area. Generally ' speaking, the larger lot subdivisions are in more outlying areas. Recent trends in both urban and rural lot subdivisions indicate a curvilinear street ' pattern rather than a rigid grid and there are some planned unit developments with common open spaces. Some thought should be given to further subdivision of some of the plats with larger parcels. As the area grows and land values and service costs increase, pressure will be felt to sell parts of lot to reduce tax or assessment obligations. It is possible to pre- plan subdivisions so that future reduction of lot sizes can take place in a pre-determined pattern which will make all parcels accessible and developable. This is perhaps a greater ' problem in areas that are developing by means of individual lot segregation rather than as subdivisions. The same pre-planning techniques can be applied through review of creation of individual lots or minor subdivisions. Condition of Housing - A classification of A, B, C, D and T was used to denote condition of structures in the area. Mobile homes or trailers are classified as "T" and no attempt was made to cate- gorize them by condition. The classification may be briefly summarized as follows: "A" Standard structures, mostly new housing, includes 34.2 percent of all structures in the area. "B" Structure with only minor deficiencies, some of which may be caused by changes in building or electrical codes since thetime of construction. Includes about 20.0 percent of the housing inventory. "C" Structures with significant deficiencies where remodeling to comply with ' present codes may not be economically feasible. Includes about 22.2 per- cent of the housing inventory. ' "D" Dilapidated structures, rehabilitation not economically feasible. Includes about 8.2 percent of the total housing inventory. "T" Mobile homes or trailers in parks or on individual lots. Includes about 15.4 percent of the total housing inventory. ' -39- I VOL 30 eacE 456 1 ' The classification is based upon an exterior evaluation of whether or not a structure meets current building, plumbing and electrical code requirements. " " " " In general, A and B structures are essentially standard with "B" structures having some minor deficiencies. "C" and "D" structures are substandard. However, it will be possible to rehabilitate many "C" structures. "A" and "B" structures together ac- count for about 54.2 percent of the total housing inventory, "C" and "D" structures about 30.4 percent and mobile homes about 15.4 percent. ('T'able 8) Inside the city, standard housing accounts for 57.5 percent of the structures, substandard 30.9 percent and mobile homes 3.6 percent. Outside the city, comparable percentages are standard 47.8 percent, substandard 13.4 percent and mobile homes 38.8 percent. h " " " " e T C and D structures amount to a substantial amount of substandard housing in the area. It should be remembered, however, that many "C" structures may be in good repair but would not meet current building code requirements. Their inclusion in this ' classification is related to a large degree to code changes, upgrading standards for fire walls, wiring and plumbing that have been made since their construction. h " " D T e structures do represent real housing problems and account for about 8 percent of the total housing inventory in the planning area. About 78 percent of these units occur in the City of Bend and they are located in the older sections of the city. Efforts should be made to upgrade the quality of housing in the city through some kind of rehabilitation programs. These programs can be initiated through either private or public efforts. If necessary, federal aid should be explored as a source of low-interest loans or as a source of assistance in some ' form acceptable to the community to provide safe, sanitary housing in some of the older areas. There are no large concentrations of "D" structures and any housing program would be directed toward rehabilitation rather than clearance. Mobile homes account for a sizeable part of the housing inventory, particularly out- side of the city. The Bend Area has grown rapidly in the past five to ten years and the mobile ' home has provided an alternative to conventional housing. Improvements in mobile homes themselves together with tight money and inflation have made the mobile home unusually at- tractive as a living unit. Because of city policies restricting mobile homes to mobile home ' parks, about 85 percent are located in surrounding county areas. Of these, about 55 percent are sited in mobile home parks and 45 percent on individual lots. , Mobile homes have been increasing their share of the total housing market in the United States for many years. The number of units in the Bend Area represents a fairly high percentage and a fairly high level of acceptance for mobile homes in the community. ' It is possible that mobile homes could be used as a feasible alternative to conventional housing in some cases where substandard housing is a problem. However, such action would have to be very carefully considered with reference to surrounding residences and , each would have to be considered in view of the individual circumstances. As time passes and the area continues to grow, new development can modify the 1 residential character and housing conditions in the area. In some locations, more intensive - 40 - , i i . WL 30 fw 45 7 TABLE 8 CONDITION OF STRUCTURES City of Bend Condition of Number of Percentage Structure Structural Units of Total A 1,576 31.8 B 1,272 ~ 57.5 25.7 C 1,449 29.3 ~ 38.9 D 476 9.6 T 177 3.6 Total 4,950 100.0 Outside City Condition of Number of Percentage Structure Structural Units of Total A 976 38.9 47.8 B 223 8.9 C 203 8.1 13.4 ~ 1) 132 5.3 T 973 38.8 Total 2,507 100.0 Total Planning Area Condition of Number of Percentage Structure Structural Units of Total A 2,552 34.2 54.2 B 1,495 20.0 C 1, 652 22.2 D 608 8.2~ 30.4 T 1,150 15.4 Total 7,457 100.0 Trailers - 713 in trailer parks and 437 on individual lots Commercial, Industrial, Institutional, Park and Public Uses contain a total of 52 structural units -41- VOL 30 FACE 450 residential development will be hampered by existing ownership patterns. Future pressures ' for smaller lots will lead to further segregations of property now held in ownerships ranging from one to ten acres. Further subdivision of these properties will be difficult in many cases , because of the lack of access to rear portions of lots and the resulting problems of cooperation between property owners to provide adequate access. Consideration should be given to special standards for these kinds of problems which will make possible desirable future development. ' Continuing encouragement of planned unit developments can add greatly to the long-range value and desirability of residential areas. This may be a particularly effective technique for the location of mobile homes in different parts of the planning area. Innovations possible ' with this technique can lead to residential districts which are designed to be lived in, rather than designed simply for the convenience of construction for the subdivider and contractor. Planning Area Descriptions - I The preceding comments in this section regarding housing density, subdivision history and condition of structures relate to the entire project area. The paragraphs which follow deal briefly with these subjects for each of the thirteen individual planning areas. These planning areas were delineated to include sections with similar characteristics, problems or future ' potential and their boundaries do not follow city limit lines or other similar political boundaries. (Plate 15) Each planning area has been given a name for reference purposes and reference tables have been prepared to show quantitative data pertaining to each individual planning area for Residential Densities, Table 9, and Condition of Structures, Table 10. Tumalo - Residential Density - Sparsely populated rural residential area with total of 56 units. ' All but one unit on lots greater than one acre with 57 percent greater than 2-1/2 acres. Subdivision History - Most subdivision development north of Tumalo Butte on either , side of Johnson Road. Lots in subdivisions have community water system and plats recorded after 1970. Most lots remain undeveloped and sizes range from about 2 to 6 acres. Condition of Structures - Mostly recent construction with about 73 percent "A" ' structures. Only four mobile homes in the area. Percentage of growth probably fairly high but with total of 56 units, number is not a significant part of the total area growth. Comments - Area now mostly grazing and range, open or vacant. Some development potential on relatively level areas between steep sided stream channels. Fairly inten- sive cultivated and irrigated section east of subdivision in southeast corner of the area. Part of area could probably be sewered if Awbrey Butte is sewered north of the butte and west of the river. - 42 - 1 i i `VOL 30 tAcE 459 m a P~ H O PAGE 460 >1 VOL J 4~ Q) ~rn $4 U " . U Q ~ C- Co O ua CO rM M 00 co 10 CV 00 M N rl t O co M 00 00 L O M U, O CV O CO O m O O O tCJ L CV O M t(~ rl N r O rl A 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 1-4 H co to 0 0 l r M L~ d~ m CV U) cV N O L O ~ 1 ..V M oo N M L 1 0 N O m ~f+ N L N m r .-1 m co l ~ . V o 1~ l- m ^ 'W I/~ W A ~ m 00 r1 . UM m co co Cfl m ~-1 t- O 00 m rl N M r-1 L1 rl d: M 00 00 m O O N O 1-4 m M O m m M m t- 00 t- ~ m y~ m m m m 00 00 01 L- 00 N rl co a 4 C ri o o m ..V Y✓ ~1 ..V ~r "r ^ t m rl A~ L_ m a C I= co 1-4 -4 r-4 O m o 00 O .-a d C cV m to -4 to rl r♦ rt N z ~ ' 6) f O 00 C CV It rl 00 M N m CV 00 O CV N m 00 rl co It t- O t- U J t- 00 rl Q 1 ) y ~ U y ~ 0 O D O cN CV rl d~ L: 6) O O Ln 00 GO tf~ a co PL1 rt rl S Cd m ° CD LO co r-I L- cl~ am m m m m ry LO N oo L - t C) to A r4 m N CV 10 m t- 0 m O O m O t- m O Q~ o O m CV -I:r O N -N O M m LC) m m rl O M O O m 4 O O CD M m O M d4 rl rl V~ z CV o u ! r ° CO 0 00 ' C II ~ m N -,d4 r LO 4 iq W r, A m M m O C.0 N L- M m 0 O N N 00 m O H ooM co r-4 o ^ Lo O C> 00 rr rn o 0 to U rt c,; d~ 0 0 ri N o 0 N rt M rn c~ A cq ,-1 .-1 i m cv cv m cq r r, o 0 0 cli rn N ti cn r+ d Cq It CV ra C11 A ca A l m 00 ~r N 00 N 0 0 O o cfl a m LO 0 0 0 0 00 C11 CV rl o 00 m 7m u ~ m .z+ ami t4 Ln 10 0 o r 1 0 0 rt 1~ C4 co C~ x ° O O O ri O O O tp Cfl d+ to A to co cli CV A m cG U'~ m o 0 m M m (M o co Cq r d m m 0 ti ~ oo ~t o 0 0 o 00 m o cV U~ N 6') O CS) rl O rl O c,; ~ rl ~ O r-1 m O O O O M O rl O CV co Cl O t - O rl m CV ri N rl rl rl A Cd ~ x 4+ a) ~4 a) 1 b0 - 4 cd ~ ~ Cd U Q a U a 3 U f~ m h a H -44- i i i Tum alo No. °h Cooley No. o/) Deschutes No. % Awbrey No. % Central No. Pilot Butte No. % Ward-Hamby No. % Century No. °fo Kingston No. Blakley No. off, Bear Creek No. Tillicum No. Riverwoods No. 1 V4GL10 No. ` z 0 FxE 461 TABLE 10 CONDITION OF STRUCTURES BY PLANNING AREA A B C D T Total 41 4 7 0 4 73.3% 7.1% 12.5% 0.0% 7.1% 108 44 30 10 134 33.1% 13.5% 9.2% 3.1% 41.1% 37 14 19 23 88 20.4% 7.7% 10.5%n 12.8% 48.6% 341 196 164 38 0 46.2% 26.5%n 22.20X 5.1%n 0 37 320 578 194 1 3.3% 28.3% 51.1% 17.2% 0.1 779 235 133 69 49 61.5% 18.6% 10.5% 5.5% 3.9% 140 15 22 39 39 55.0% 5.8% 8.6% 15.3% 15.3% 19 0 1 0 3 82.6% 0 4.3%, 0 13.1% 125 157 436 162 70 13.2% 16.5% 45.9% 17.0% 7.4% 124 103 96 36 305 18.7% 15.5% 14.59/,, 5.4% 45.9% 494 349 137 24 172 42.0% 29.7% 11.6%, 2.0% 14.7% 290 50 22 5 248 47.2% 8.1% 3.6% 0.8% 40.3% 17 8 7 8 37 22.1% 10.3% 9.1% 10.4% 48.1% 2,552 1,495 1,652 608 1,150 34.2% 20.0% 22.2% 8.2% 15.4% - 45 - 56 100.0% 326 100.0% 181 100.0% 739 100.0% 1,130 100.0% 1,265 100.0% 255 100.0% 23 100.0% 950 100.0% 664 100.0% 1,176 100.0% 615 100.0% 77 100.0% 7,457 100.0% VOL 30 PAGE 462 1 Cooley - I Residential Density - Suburban large lot residential area with 57 percent of units on ' lots over one acre in area. About 20 percent of units in mobile home parks. Con- tains about 23 percent of all units in the project area on lots over 5 acres in size. Subdivision History_- Largest subdivision filed in early 19201s. Two smaller ones ' with smaller lots filed between 1960 and 1970 and one other after 1970. Earliest subdivision had large lots which have since been further divided. Considerable de- velopment has occurred by means of property segregation rather than subdivision. Condition of Structures - Mobile homes account for about 41 percent of units. "A" structures amount to about 33 percent indicating growth in the area. "D" structures account for only 3 percent of planning area total. Comments - Fairly erratic ownership pattern in south part of planning area will create problems as area urbanizes further. Many wells in the area apparently to a perched water table. There has been some contamination. Large area of relatively developable land west of the Bend-Sisters Highway. Deschutes - I Residential Density - Suburban-rural residential area with about 62 percent of units on lots over one acre. About 33 percent in mobile home park in northwest corner along Highway 97. About 35 percent on lots over five acres on east side of area. Subdivision History - Two small subdivisions recorded after 1970 with lots ranging from 1 to 2-1/2 acres in one and 2-1/2 to 5 acres in the other. Most lots not part of recorded subdivisions. Condition of Structures - Mobile homes account for about 48 percent of housing units with more than half of these in mobile home parks. "D" structures account for nearly 13 percent of inventory. Comments - Some deep lots along county roads may be problems in future development patterns. Relatively large undeveloped parcels remain in most of area. Awbre,y - Residential Density - Nearly all housing occurs within city at urban densities. Large lots in 10, 000 to 20, 000 square foot range in west part of city with lots in 6, 000 to 10, 000 range in east half. About 40 percent with less than 3, 500 square feet of lot area per unit and those occur near College or on either side of Portland Avenue just west of the river. Area includes about 25 percent of all housing in total project area with less than 6, 000 square feet per unit, not including mobile home parks. - 46 - I ' 'VOL 30 FAPUE 463 Subdivision History - Much of developed area subdivided before 1920. Other subdivi- sions along south slope of Awbrey Butte recorded in 1950's, 1960's and 19701s, and ' are in the City of Bend. One subdivision has been recorded along north slope of butte since 1970 and has curvilinear street pattern and common open space. Another, recorded before 1920, is located on east slope of the butte and has no means of access. Condition of Structures - A good housing area with about 73 percent of the units in the "A" or "B" classification. About 5 percent of the total are in the "D" classification. About 46 percent are "A" structures indicating considerable recent growth in the area. There are no mobile homes in the area. ' Comments - Nearly all development is concentrated in the southeast part of the area. Remaining land mostly undeveloped and held in large ownerships. Area has considerable development potential but care should be taken not to over develop the butte. Central - Residential Density - A highly urbanized area entirely within the City of Bend. About 60 percent of units have less than 6, 000 square feet of land area per unit. Thirty per- cent have less than 3,500 square feet per unit. Only two units out of 1, 337 are on lots of more than one acre. Subdivision History - Includes the original town of Bend and entire planning area platted by early 19201s. - Largest concentration of problem housing and includes about Condition of Structures ' _ 32 percent of all "D" structures in the total project area. Relatively little new residen- tial construction. Parts of area need rehabilitation program for housing. About 51 per- cent of all units are in "C" structures. ' Comments - Older housing area, some of which will be replaced by new commercial or multiple family development around downtown. Pilot Butte - ' Residential Density - Urban residential area with lot sizes generally ranging from 6, 000 to 15, 000 square feet, accounting for about 79 percent of the units in the area. Most development in the western half of the planning area. ' Subdivision History - Most of area east to Pilot Butte subdivided by early 19201s. Newer ' subdivisions north of the butte filed in 1960's and 19701s. Most recent subdivisions nearly fully developed. Condition of Structures - Good housing area with about 80 percent "A" and "B" structures. The large number of "A" structures represents considerable recent growth. Most sub- standard housing in older western part of area in the vicinity of Third Street. ' - 47 - r VOL 30 FAME ` G4 1 Comments - Fairly rapidly growing section of the community with most new develop- ment north of Pilot Butte included in city sewer system. Recent annexations to the east include the new hospital and large sections of undeveloped land. Proximity to , Ward-Hamby - sewer system should continue to stimulate growth in this area. Residential Density - Large lot rural-suburban residential area with approximately 87 percent of the units on lots over 1 acre in area and about 43 percent on lots greater ' than 2-1/2 acres. Most units on 1 to 2-1/2 acre lots occur in southeast portion of area in a subdivision-like development. Subdivision History -All subdivisions in the area have occurred since 1960. Most development has occurred on lots which have been segregated as opposed to subdivided. Most large lot development occurs in the north half of the planning area. Condition of Structures -Fairly good housing area with about 61 percent standard. Mobile homes account for about 15 percent of the housing in the area, all on individual lots. tion continues. Large tracts of undeveloped land remain. Comments -Large deep lots fronting on county roads may cause problems as urbaniza- Century - and both appear to be oriented toward second homes and the Mt. Bachelor Ski Area. Lot Residential Density -Large sparsely populated area on the west side of the project area with a total of 72 units. Nearly all units occur in one subdivision or in a condominium , sizes and condominium densities indicate a range of from 10, 000 to 20, 000 square feet for about 85 percent of the units. Both developments are located along Century Drive. , Subdivision History -Subdivision in the area was filed in the 1960's and the condominium developed after 1970. Condition of Structures -All but one of the structures is standard and there are three mobile homes in the area. Comments -Most of the land in this planning area is undeveloped. There are sites , suitable for development on relatively level. areas between steep sided stream channels. Deeper soils in this area generally may simplify installation of public facilities such as sewer and water systems. Kingston - ' Residential Density - An older residential section with about 81 percent of the units on lots less than 10, 000 square feet and about 99 percent on lots less than 20, 000 square feet. About 52 percent have less than 6, 000 square feet of land area per unit. - 48 - VOL 30 rAGE 465 Subdivision History - Nearly all of the area was subdivided prior to 1920. The subdivision west of 15th Street was filed in 1925. ' Condition of Structures - About 63 percent of housing units have some problems. About 46 percent have some significent deficiencies. These smaller, older homes I are deficient in terms of current code requirements but many are quite livable. There are 162 units, or 17 percent, which have major problems. Many of the poorer housing units are in the southern part of the area. One of the better residential sec- I tions of the city is located between Portland Avenue and the river in the northeast corner of the planning area. Comments - The area is almost fully developed with older, modest housing. Some kind of public assistance may be necessary to upgrade housing in the area. In some cases, street improvements would improve the local environment considerably. Blakley - ' Residential Density - An area with concentrations of residential development at urban densities with intervening open areas or areas with suburban housing densities. About 77 percent of all the units are on lots of less than 20, 000 square feet in size. Urban densities concentrated in north end in city and south end in new subdivisions. Suburban density area is immediately south of the city and accounts for about 10 percent of the housing units on lots ranging from one-half acre to five acres in size. d Sub ivision History - Urban sized lot areas inside city subdivided prior to 1920. Urban density area in south subdivided after 1970. Suburban housing area subdivided I in early 1920's. A planned unit development design for mobile homes was recorded in 1974 in the low-lying area along the Deschutes River and little growth has occurred at that location. A large-lot subdivision was recorded in the southern part of the area between 1960 and 1969, and this subdivision is essentially undeveloped. Urban density subdivisions in the south include those for standard homes and another for mobile homes. ' Condition of Structures - Area includes slightly over 31 percent of all mobile homes in project area outside city and mobile homes account for about 46 percent of housing in- ventory in planning area. Including mobile homes, about 80 percent of housing is standard. Comments - Large undeveloped areas remain. Ownership pattern in suburban density areas may cause problems as urbanization continues. South part of area has only slight limitations for individual septic systems. Bear Creek - Residential Density - About 53 percent of the units have less than 10, 000 square feet of land area and another 20 percent are in mobile home parks at similar or higher densi- ties. Suburban or rural densities occur principally along the east side of the planning ' area. - 49 - VOL 30 PACE 466 1 Subdivision History - Subdivisions in west part of planning area recorded before 1919 ' or in early 1920's. Most other urban density subdivisions recorded in the 1960's or early 1970's. Most areas subdivided to urban densities are nearly fully developed. ' Condition of Structures - A good housing area with about 70 percent standard structures and an additional 15 percent mobile homes, about half of which are in mobile home parks. Most housing problem areas are in the western section in the older parts of the City of Bend. It has been a rapidly growing area as evidenced by about 494 "A" structures. Comments - A fairly rapidly growing area most of which has occurred at urban housing ' densities. Some newer subdivisions include larger lots than those found in the city or south of Pilot Butte on either side of Bear Creek Road. Much of area is inside city and ' recent annexation of 160 acres indicates considerable growth potential in this planning area. Tillicum - Residential Density - About 60 percent of the housing units have from 10, 000 to 20, 000 square feet of area per unit. These are about equally divided between standard housing on individual lots and mobile homes in mobile home parks. The relatively low density for the mobile home parks relates to the fact that the major park in the area was not fully completed or occupied at the time of the survey. Housing units on less than 10, 000 square feet of land area account for about 13.8 percent of the total. There is a section developed to suburban residential densities in the northwest part of the area, which ac- count for about 22 percent of the total housing units in the area. Subdivision History - A large lot subdivision was recorded in the early 1920's along Highway 97 and is the location of some of the suburban residential housing in the area. Other subdivisions have been recorded in the 1960's and early 1970's. These develop- ments exhibit a curvilinear street pattern and, in most cases, the developer attempted to save as many trees as possible. Some are planned unit developments with common open space. Condition of Structures - A good housing area where standard structures account for about 55 percent of the total inventory and mobile homes about 40 percent. Comments - Subdivisions in the area indicate an effort to recognize existing terrain and natural vegetation. Urban density developments are the only ones in the total project area outside of the City of Bend with sewer service. Recent location of a new elemen- tary school should stimulate development in this section. Riverwoods - Residential Density - Large sparsely developed area with a total of 77 dwelling units. Principally intended as a recreation subdivision, most lots range between 20,000 and 40, 000 square feet in area. -50- i I 11 F i ' vot 30 ?Am 467 Subdivision History - Subdivisions recorded in the 1960's and nearly all of the land in the planning area west of Highway 97 and the railroad is included in the subdivision. Most of the lots range between one-half and one acre in size with larger parcels in the north half of the development. Subdivision intended as a recreation development. Condition of Structures - Of the total 77 units in the area, 37 are mobile homes located on individual lots. About 32 percent of the housing in the area is standard and about 10 percent has major deficiencies. Comments - Large area east of the highway remains undeveloped and ownership is held in large parcels. Relatively smaller percentage of the total subdivision west of the highway has been developed. Soils in the area have only slight limitations for individual septic systems. General Summary Comments - The total project area reflects many of the characteristics of smaller regional centers in Oregon. Higher density housing is concentrated in the closer-in older sections of the com- munity with gradual increases in lot areas as distance increases from this center of the urban area. Exceptions to this are some recent subdivisions south of the city which have been developed to urban densities and, in some cases, have both a community water and sewer system. The subdivision history reflects a pattern of recent excelleration in growth with a large number of new developments occurring throughout the planning area since 1970. Both historic and recent growth patterns indicate a more rapid rate of development east of the Deschutes River than to the west. This pattern is most likely based on several factors including the ability to purchase smaller parcels on the east side as opposed to the west side, availability of water through the use of irrigation ditches or private water systems, more favorable geology for individual sewage disposal systems and better access to downtown Bend and Highway 97. This pattern could be altered to some degree in the future with the installation of community sewer systems on the west side of the river. In the discussion of each planning area, fragmented or erratic property ownerships and some natural features were cited as problems which would require special consideration for future development. These areas and features are located in a general way on Plate 16. The designation as a problem area is based principally on the fact that the number of owner- ships involved and the size of the parcels will be more difficult to develop in the future than are the larger parcels. As urbanization moves into some of these areas, pressures brought about by the installation of community facilities, such as water and sewer systems, will in- crease the cost of ownership and tend to encourage further segregation of the property. The Bend Area has the general reputation throughout the State of Oregon as a highly desirable place to live. Most of this reputation has been developed over a long period of time among residents of the state. Recent rapid growth in the community has tended to significantly altered the character of the area and, if Bend is to remain a special place, concerted community efforts must be made to retain those characteristics which make it an exceptional place. - 51 - VOL 30 FACE 403 1 Pn7- OTENTIAL PROBLEM AREAS PROBLEM AREAS CANYON WALLS OR ROCK FACES DEPRESSIONS LARGE ROCK OUTCROPS OR SMALL HILLS FAULTS 4 i k P~ . ll rr- >r~ - 'c 71 ti J D i 0 I PLATE 16 BEND AREA GENERAL PLAN / - CITY OF BENI) AND DESCFIOTFS COUNTY, OFIIIOON i i VOt 30 FACE 469 e CHAPTER 4 PUBLIC FACILITIES As is the case with future land-use patterns, long-range public facility requirements will be strongly influenced by those which exist today. This element of the plan includes schools, parks, fire stations and other facilities such as public buildings and solid waste disposal sites. A study was made with reference to these facilities in terms of present con- dition of each, and where appropriate, the potential for enlargement or expansion to meet anticipated future needs. In addition, some consideration is given to sewer and water prob- lems in the area. Schools - The school analysis includes only that part of Bend School District No. 1 which lies 1 within the project area. The Bend District covers all of the project area with the exception of a small section in the northeast corner which is in the Redmond School District. Table 11 gives the name, grades, enrollment and site acreage for each school in the project area. Only two schools, Lapine and Young are located outside the project area. Within the project area, there are three primary schools, grades 1 through 3 or 1 through 4, four elementary schools, grades 1 through 6, two junior high schools, grades 7 through 9, and one high school, grades 10 through 12. On October 1, 1973, these schools had a total enrollment of 5,275. The two schools outside the project area had 255 elementary students for a total district enrollment of 5, 530 students. There were 2,411 elementary, 1, 534 junior high and 1, 330 senior high school students. 1 7 11 P Enrollment in the school district increased by slightly over 1, 000 students between 1968 and 1973, or by about 22.2 percent. This represents an average annual increase of about 4.4 percent. The total increase amounts to an enrollment growth equal to two additional ele- mentary schools or one new junior high school. The enrollment added year by year varies considerably among elementary, junior and senior high school students. The greatest single increase in total enrollment occurred between the 1969-70 school years when 262 new students were added to the district. Between 1968 and 1973, elementary enrollment increased by 17.2 percent, junior high school enrollment by 34.9 percent and senior high school by 19.6 percent. Growth appears to be from in-migration of families with children of various ages so that growth by type of school has been fairly random year-by-year. At the present time, district standards for school enrollment are: elementary, 500-600; junior high, 750-800; and senior high 1200-1300. Site size standards are generally those recommended by the State which are: elementary - 5 acres plus 1 acre per 100; junior high - 10 acres plus 1 acre per 100; and senior high - 10 acres plus 1 acre per 100. The location of existing schools within the project area are shown on Plate 17. - 53 - voL 30 FACE 470 SCHOOLS AND PARKS EXISTING - SCHOOLS BEND SCHOOL DISTRICT I PARKS ---••--••-BEND CITY LIMITS J 0 y PLATE 17 BEND AREA GENERAL. PLAN CITY OF BEND AND DESCHUTES COUNTY,. ORVC',OS i vrn 30 P A71 As in most communities, school site sizes vary considerably for each type of school. Generally speaking, older schools have smaller sites and little or no possibility for expan- sion. New schools have larger sites, some much greater than required by State standards. This customarily results from purchasing a parcel of land for the school and the parcel may be larger than needed, but available only if the entire property is acquired. An examination of approximate site sizes given in Table 11 for various schools illustrates this pattern. The table also shows that most schools with smaller sites also have smaller enrollments. Some physical plants are quite old, and this together with a small site, makes future use or expansion of the facility questionable. Yew Lane School, recently closed by the district, is an example of this type of problem. Reid-Thompson, Marshall and Cascade may be similar situations. As enrollment growth continues, additional schools will be required to serve the popu- lation. School sites should be acquired in advance of need while property values make such acquisition most reasonable for the citizens. Future school needs must also recognize problems with existing facilities and locations for new schools may be influenced by the need to replace some existing facilities. Growth rates in the community will place heavy pressures on the people to keep facilities abreast of enrollment increases. At the same time, care should be taken to avoid overbuilding in the event growth patterns or population characteristics change. Changes in grade structure within the district can also alter building requirements. Recent consideration of a 6-2-2-2 system can vary needs for junior or senior high school sites. Use of primary schools can also modify the location and distribution of schools serving elementary school age children and establishment of a kindergarten program can increase classroom requirements. Careful consideration should be given to these alternative programs as part of the long-range planning for the district. Parks - Parks are one of the outstanding features of the Bend Area and Drake Park has played an important role in creating the image Bend enjoys both locally and throughout the State. The people of the community recently voted to establish the Bend Metropolitan Area Park and Re- creation District to provide improved services and facilities and to distribute the costs through- out the urban area, rather than just within the City of Bend. Formation of the district empha- sizes the importance of park and recreation services in the community. More recently, the people of the community rejected a tax base and a capital improvement measure to fund the district. It is now up to the district to find a level of funding acceptable to the people of the community. Existing park and recreation facilities and the park district boundary are shown on Plate 18. Table 12 lists the various facilities and their respective sizes. Acreage figures were computed as part of the land-use survey and may differ slightly from other sources. There is also some variation in this acreage and that listed for parks and recreation in the land use summary. This difference is caused by the fact that some parks are undeveloped at the present time and were classified as vacant land in the land use survey. Two large state - 55 - VOL 30 FACE 4 72 TABLE 11 , EXISTING SCHOOLS BEND SCHOOL DISTRICT NO 1 r . ELEMENTARY SCHOOLS ' October 1, 1973 School Grades Enrollment Acreage Bear Creek 1 -6 618 38.02 Kenwood 1 -6 407 4.01 Kingston 1 -4 138 3.13 Marshall 1 -4 88 5.14 , Pilot Butte 1 -6 635 29.20 Reid-Thompson 1 -3 171 2.52 R. E. Jewell 1 -6 354 16.00 Sub-Total 2,411 98.02 JUNIOR HIGH SCHOOLS ' Cascade 7 - 9 662 3.99 Pilot Butte 7 - 9 872 29.21 Sub-Total 1,534 33.20 HIGH SCHOOLS Bend Senior High 10 - 12 1,330 25.52 TOTAL 5,275 156.74 - 56 - ' r 1 I C n 1 t 7 t VOL 30 :?avE 473 SCHOOLS AND PARKS EXISTING D SCHOOLS - BEND SCHOOL OISTPICT ® PARKS BEND CITY LIMIT5 Vol Name Boulevard Brooks City Dump Site Columbia Drake Flume Harmon Jaycee Juniper Mirror Pond Vince Genna Stadium Pacific Pageant Pioneer Ponderosa Riverview Shevlin Stover Sugar Bowl Woodland Pond Acres 0.39 0.73 37.50 2.64 11.62 4.29 3.89 0.99 22.30 0.77 6.19 3.23 0.31 5.12 19.01 1.00 388.00 2.24 0.60 0.61 Total Acres 511.43* TABLE 12 EXISTING PARKS Facilities none - grass open space none - green open space along river 30 PACE 474 I none tot lot, foot bridge across river, picnic table, grass play area, rest room, river picnic tables, rest room, play area, paths, unimproved boat launching, river none, undeveloped bench along river playfield, concession building, play apparatus, boat grassed open space horseshoes, paved court, winter skating, swimming and wading pools, special children's play area, group picnic area, electric stoves, rest rooms, ball diamonds, small maintenance shop, craft shop, parking areas grassed open space, picnic tables, river lighted, fenced ball field grass area along river, park offices, putting green, 3 railroad cars, parking area grassed open space along river picnic tables, play areas, paths, fireplace, rest room, grass, gardens - beautifully kept at old city entrance new ballffeld, grass area, seating for spectators none - steep drop to river, wooded site picnic tables, play areas, paved paths, designated trails, campgrounds along Tumalo Creek small ball field, play area, tot lot, barbeque none, interior of subdivision block none - at high school *Awbrey Reservoir Site and Overturf Butte not included. Sawyer and Pilot Butte State Parks also not included. I I I - 58 - VOL 00 FACE 475 parks were not included in city or park district totals. These are Sawyer Park, a day-camp and picnic facility north of town, and Pilot Butte, a viewpoint. In addition, acreage figures were not included for the Awbrey Butte Reservoir Site or Overturf Butte. Both have potential as park sites and plans are already underway for partial development of the Awbrey site. However, neither is developed at this time. ' An examination of Plate 18 shows that nearly all of the parks and park sites are within the City of Bend. It also shows that ten of the sites are part of the park development along the Deschutes River. Future planning should continue this river development program and attempt to at least link these facilities together with a trail system. The city has recently acquired additional property near Mirror Pond to add to the park area and these efforts should be continued. As the Bend Area continues to grow, additional park facilities will be needed to serve the larger population and newly developed sections of the community. As with schools, park land should be acquired in advance of need so that sites can be obtained at the most reasonable cost to the public. Fire Stations - The Bend Fire Station provides fire protection for the city and the rural fire district. Nearly all of the developed parts of the project area are within the city or the fire district. Plate 19 shows the fire district boundaries, city limits, the fire station location and selected distances from the station. The map also shows high value areas in the community which are essentially locations of commercial and industrial land uses. The selected distances repre- sent coverage standards of the National Board of Fire Underwriters for communities with 1 populations ranging from 22, 000 to 95, 000 for high value areas (one mile), high density residential and apartment districts (one and one-half mile) and single-family residential areas (two miles). These standards are summarized below. 1 Maximum Distances for First Engine and Ladder Companies: Under 22, 000 Over 22, 000 to 95, 000 Types of Areas Served Engine Co. Ladder Co. Engine Co. Ladder Co. High Value, Major Commer- cial and Industrial Districts 1-1/2 miles 2 miles 1 mile 1-1/4 miles High Density Residential and Apartment Districts 1-1/2 miles 2 miles 1-1/2 miles 2 miles Where life hazard is above normal 1 mile 1-1/4 miles 1 mile 1-1/4 miles ' Single-Family Residential 2 miles 3 miles 2 miles 3 miles Low Density District, average distance between homes ex- 4 miles 4 miles 4 miles 4 miles ceeds 100 feet -59- VOL 30 FACE 476 t s r PLATE 19 BEND AREA GENERAL PLAN CITY OF BEND AND DESCHUTES COUNTY. OREGON 11 1 G t ' von 0 m E477 Communities under 22, 000 require fire flow (water) of approximately 4, 500 gallons per minute. Communities over 22, 000 require fire flow (water) of between 4, 500 and 9, 000 gallons per minute. It can be seen from the map, as continued commercial and industrial development occurs north and south of the city, additional fire protection will be required. It can also be seen that further urban development to the west will need to annex to the fire district or to the city or obtain a special contract for adequate fire protection. The fact that fire protection is provided by one fire fighting organization should simplify planning for fire services. Future considerations for fire protection should be directed toward establishing fire stations in locations which will provide desirable coverage and give the citizens maximum benefit for minimum cost. It should be considered one prob- lem inside and outside of the city and approached as a combined effort. In addition, care should be taken to see that new developments outside the city served by community water systems have systems and capabilities to provide adequate fire flow. Other Public Facilities - As the community grows, there will be an increasing need for community services and the buildings and facilities necessary to provide these services. The Bend City Hall is becoming increasingly more crowded as staff and equipment are added to serve the growing community. The same is true of both the Deschutes County Courthouse and the relatively new annex. The county not only has problems relating to growth but there is also the prob- lem of new functions which may be added by the State. These combined influences have now virtually filled the new annex as well as the courthouse. A committee is now examing pos- sible alternative sites and locations for jail and justice functions. There are advantages to having the courthouse and city hall located close together. Often, a citizen will go to the city hall when the courthouse is the correct place, or vice versa. Joint use of meeting space or off-street parking can also be advantages. Convenient, easy movement between the city hall and the courthouse could simplify cooperation between city and county departments. If public buildings are in or near downtown, they can provide land- scaping and open space in an otherwise very intensively built-up area. These kinds of factors should be considered relating to future planning for the location or expansion of the city hall or county courthouse. City and county shop needs will also increase with growth. It appears that county shop areas reasonably could be expanded at the present location. This site has fairly good access to the east, north and south, and is in an industrial section of the city. Should the county choose to move the facility to a more outlying location, the existing site may serve as a city shop area. However, if the county moves because of site limitations, the city will face a similar problem in the years ahead. - 61 - NOL 30 ?AUE 478 I There may be some question regarding the suitability of the present site and location I of the city shops. Although it is an exceptionally clean operation, it is adjacent to two parks and is on the entrance route to downtown Bend from the north. It may be possible to locate the city facility near the county shops as was recommended earlier in a study made in 1969. If the county operation moves, the city may use the site as mentioned above. In any event, the location for the city shops should have good access to all parts of the community and ' should have a site large enough to accommodate future expansion. The county library has survived funding problems in the recent past and now operates ' on a serial levy. It is located south of downtown Bend on Wall Street and the building is large enough to permit some expansion. The library provides county-wide services and future growth will create increasing demands for service. The main library is now reasonably well located in the central part of Bend, the population center of the county. There are many alternatives such as branch libraries or bookmobiles to provide service to other parts of the county. Planning for a library in the Bend Area should be done in the context of the entire county, but the location of a facility within the Bend Area can reasonably be considered a part of this program. Recent trends indicate that Bend is becoming more of a regional service center for ' other government agencies. This is particularly true of state agencies. Many state and federal offices are scattered throughout the business sections of the community. The basic criteria for locating these offices appears to be the availability of leaseable space or an owner who will build to lease. Neither the state or federal government appear to have any policies relating to the location of public offices within any community. As with local govern- mental agencies, it would appear that the grouping together of state and/or federal agencies would provide a convenience to the public. Future planning for public facilities in the Bend Area should consider the possibility of gathering together as many city, county, state and federal agencies as is reasonable to better serve the public. ' A relatively new solid waste disposal site has been developed by Deschutes County southeast of the city along Arnold Market Road. It appears that this sanitary land fill opera- ' tion will accommodate solid waste within the community for many years to come. One of the major public facility problems in the area is the general lack of a sewer ' system. About 8 percent of the city is now served by the system and all new developments are provided with sewers. There is one area south of the city in which the developer has installed a sewer system and treatment facilities for his development. Plate 20 shows the city's sewer system and the area served by the private system to the south. As state-wide concern is translated into more restrictive regulations, future develop- ment in the Bend Area will be progressively more strongly directed by the availability of sewer service. The location of sewers can become a principal force in directing future urban growth patterns. These facilities should be planned as part of the overall development pattern. The total project area will accommodate a much larger population than forecast in this program and no attempt should be made to provide sewers in all parts of the area. In addition, new ' federal guidelines indicate that sewer systems should not be designed for more than 30 per- cent over present requirements. Although this policy may seem shortsighted, it is neverthe- -62- t 1 111 L.J 11 J VOL 30 rw 479 SEVER SERVICE AREAS CITY OF BEND OTHER , Ip , v , l r .l j I ~ I } L. . T ' _}',:A `i' rs" ,:~.x _ _ 1 3n•Mav mow... x~~ o { y q-1 , I • T 7 i PLATE 20 x BENI) AREA GENERAL PLAN " s` Cl'PY OF BEND AND I7E SC1-I L'TES COUNTY, OREGON va 30 FgE 480 less a factor in the availability of federal funds. Since the entire area will not urbanize, I sewers should be provided in areas already developing to urban densities or in those sec- tions which can most reasonably be served. The city is and has been working for some time to solve the problem of sewering developed sections of Bend. With rock at shallow depths, it will be a very, very expensive ' undertaking. It is reasonable to assume that continued use of dry wells will eventually lead to pollution of ground water. However, studies by federal and state agencies have not dem- onstrated such pollution to date. , It is also possible that if sources of pollution, new houses, etc., do not increase, pollution to deep ground waters may not occur for many, many years. Perhaps a longer period of time to sewer existing sections of the city would be reasonable so that the program could be undertaken in small increments and not drain the city's fiscal abilities to provide for other community needs. To allocate a very large amount of community financial resources to solve a problem that state and federal regulating agencies have been unable to substantiate seems highly questionable. The natural environment and geology in the Bend Area are not the same as in the Willamette Valley, or Southern Oregon, or the Oregon Coast and, perhaps, different areas should be given different consideration. -64- 1 1 E I ~l I I I VOL 30 FADE 481 CHAPTER 5 CIRCULATION AND TRANSPORTATION The circulation pattern is one of the most pressing problems in the Bend Area. Recent rapid population growth has added congestion to streets and highways faster than the community could cope with the problem. In addition, long standing problems such as low underpasses or standing water in underpasses have become more visible and accute because of higher traffic volumes. The circulation element of the plan will be done in con- junction with the State Department of Transportation and will deal with internal area circu- lation and intercity transportation. Nearly all of the land in the project area classified as railroad is in rights-of-way. Many of the industrial uses have rail access and this service is important to the area. As in many communities, the tracks pass through the center of the community and have led to limitations of crossings. There are two grade separations for east-west traffic and two grade separations for north-south traffic. Because of grade limitations and the location of many industries along the railroad, realigning the tracks does not appear to be feasible. There is no rail passenger service to the area. Reasonably good intercity bus service is provided by the Trailway system and the terminal is located in downtown Bend. A larger site with better ingress and egress would lessen congestion in the terminal area. However, the central location is desirable and any alternative sites should be close to the central business district. The City of Bend recently acquired a small bus primarily for local service to senior citizens. It is still too early to evaluate the success of this program. There is no other local bus service in the area. Trucks, of course, are a vital part of the transportation system in nearly every area and every community. Large highway rigs do cause congestion within the community and, since Highway 97 is a major north-south route, many pass through the city which are not destined for Bend. Future planning should consider the possibility of a truck route through the city to relieve some of the congestion on Third Street. In addition, the possibility of a distribution center should be examined as a means of reducing the amount of large truck traffic on city streets. Commercial air transportation is provided for the Bend Area at the Redmond Airport. The Bend Airport is used by smaller private aircraft and charter services and it is unlikely that this situation will change in the foreseeable future. - 65 - VOL 30 PACE 482 ' As mentioned at the beginning of this chapter, traffic circulation is one of the ' principal problems in the Bend Area. Available routes through the community are limited for both north-south and east-west traffic. Highway 97 (Third Street) is the north-south ' artery in the community. Commercial development along the street has added many turn- ing points and turning movements to compound the traffic congestion. Limitation on east- west movements and the resulting concentration of traffic on Greenwood and Franklin have ' made their respective intersections with Third Street the traffic "highlights" of the area. Both Greenwood and Franklin underpass the railroad and each has limitations. ' Greenwood is a four lane underpass but has such a low clearance that many trucks must detour to avoid the hazard. hi spite of flashing caution lights, many hit the bridge. Franklin is a two-lane underpass and has adequate vertical clearance. Unfortunately, it is also situ- ated so as to collect storm drainage from areas to the east. The pump often proves inade- quate and the result is standing water at the bottom of the underpass. The south grade separation on Third Street is also a two-lane underpass with adequate vertical clearance. Third Street narrows from four lanes on either side to two lanes in the underpass. In addition, similar drainage and flooding problems occur here as on Franklin. ' Because of the high volumes of traffic on Third Street, the reduction in lanes from four to two, and the difficulty of bypassing this underpass when it is blocked or flooded, it is pro- bably the highest priority problem in the circulation system. At the present time, there are no continuous east-west routes across the City. This is a result of the influence of the Deschutes River, the railroad tracks and early subdivision patterns in the city. The most immediate possibility is the connection of Greenwood to New- port immediately west of Wall and the city is currently attempting to complete this connect- ion. Other possible connections will. require careful examination before any recommenda- tions can be made. General circulation on the east side of the city is frequently interrupted by unopened streets or discontinuous alignment determined by early subdivision patterns. The general circulation in the city must be improved in order to relieve unnecessary concentrations of traffic on Greenwood and Franklin. The same is true of the north-south traffic movements , east of 'third Street. Outside of the city the basic county road system provides reasonable access to most ' parts of the area. Street patterns in newer subdivisions tend to discourage through traffic to make individual developments more livable. This is a sound practice provided that general circulation needs are also recognized. Future planning should recognize a basic , networl; of arterial and collector streets to guide the development of the general circulation system. Street names are one of the major problems outside of the city. In one case, it is ' possible to drive from south to north on one continuous, straight road with segments named Ward, Richardson, Hamby, Butler Market and Hamehook Road, This is perhaps the worst example, but two names under similar circumstances are not uncommon. Changing street -6G- , `von 30 -u483 names is never easy but, as the area grows, more people will be inconvenienced by the change. This is not a problem unique to the Bend Area in Deschutes County. Some roads ' elsewhere are known by as many as three names for the same section of road. As mentioned previously, the circulation element of the general plan will be done ' in conjunction with the Oregon State Highway Division. Existing land use and traffic patterns and future land use and proposed circulation systems will be subjected to computer analysis in order to determine the most effective road network. Hopefully, upon completion of the comprehensive plan, the circulation element for the Bend Area will also be a plan approved by the Oregon State Highway Division. This should greatly simplify future cooperation be- tween the city and the state in the process of developing and improving the circulation system in the Bend Area. I I I - 67 - vot 3 Q ~A a 484 Foie No.._~__~__ Exhibit No.~ Submitted By ` d ECONOMICS_ AND POPULATION RENO AREA GENERAL PLAN PART va 30 fa 485. PATTERSON • LANGFORD AND STEWART P L A N N I N G A N D U R B A N D E S I G N t-% JANET J. HUENERS, OFFICE MANAGER 45 HAWTHORNE MEDFORD, OREGON 97501 TELEPHONE (503) 772-5203 July 1974 To: The Bend Area Planning Advisory Committee The Bend City Commission The Deschutes County Board of Commissioners The Bend Planning Commission The Deschutes County Planning Commission Gentlemen: We are pleased to submit herewith Part II of the General Plan, Economics and Population. This part of the General Plan is a summary of findings and pro- jections made by Albert D. Keisker and Associates, Specialists in Urban Develop- ment Economics. We have attempted to document and explain the basis for various projections so that they may be reviewed periodically to test their validity. The projections made herein are intended to provide a "sense of scale" for future growth' and are fundamental to nearly all recommendations made in the General Plan. These forecasts together with the existing characteristics of the community and its natural environment form the basis for the General Plan. We would like to express our appreciation to Mr. John Hossick, Planning Director, City of Bend, and Mr. Lorin Morgan, Planning Director, Deschutes County, for considerable assistance in this program. Respectfully submitted, PATTERSON / LANGFORD & STEWART Ned M. Langford NML:jjh PHILIP C. PATTERSON NED M. LANGFORD LYLE A. STEWART, AIP FOREWORD The Bend Area General Plan consists of three parts: Part I Existing Conditions Part II - E 6nomiee and Population Part III - The General Plan Parts I and II provide the foundation of facts, assumptions and projections used in the development of Part III, The General Plan. The preparation of this Report was financed in part through a comprehensive planning grant from the Department of Housing and Urban Development, under the provisions of Section 701 of the Housing Act of 1954, as amended. City of Bend and Deschutes County, Oregon - July 1974. - i - va 30 PACE 487 TABLE OF CONTENTS Part II Economics and Population Page No. CHAPTER 1 - ECONOMIC AND POPULATION GROWTH-- ANALYSIS AND PROJECTIONS 1 Economic Growth--Analysis and Projections 1 Population Analysis and Projections 8 CHAPTER 2 - LAND DEMAND AND ABSORPTION RATE-- ANALYSIS AND PROJECTIONS 13 Housing and Residential Land Use 13 Commercial Land Uses 19 Industrial Land Uses 27 j -H- TABLE No. 1 Labor Force in Deschutes County, Oregon 2 Distribution by Employment Category - Total Employment - Deschutes County, Oregon 3 Population Growth - 1940 - 1974 4 Pattern of Population Distributions Bend - Deschutes County 1974 5 Rate of Growth - Bend Area - Deschutes County 6 Average Annual Rate of Growth 7 Population Projections - 1980 - 1985 8 Housing Inventory City of Bend - February 1974 9 Housing Inventory County Areas - February 1974 10 Housing Inventory Total Urban Area - February 1974 11 wing Inventory - City of Bend - 1970 12 Additions - Housing Supply - City of Bend 1970 -1973 13 Additional Acres Needed - Residential Development TO 1985 14 Population w Bend Retail Trading Area - 1970 Page No. 3 5 9 9 10 10 12 13 14 14 15 16 18 21 PLATE No. 1 Vicinity Map iv 2 Bend Trade Area 20 VOL 30 rAcE 489 SANDY HEPPNER a - 97 MAIIPIN } l CONDON I 197 - 19 GATES DETROIT / ' MILL CITY IDANHA SPRINGS I ! W H E L E R 1 J E F F SO N MADRAS 2 26 MITCHELL i G R A N T / - ~ 97 6 - SISTERS I PRINEVIL E - REDMOND ---1_ I C O K I ~ PAULINA BEN SUNPoVER D E S C U T E S ' L - 2 ! OAKRIDGE ( BROTHERS 58 1 HATA6N LA PINE _ _ BURNS 97 GIICHRIST - - - - - CRESCENT \ CHEMULT i 31 SILVER 95 H A R N E Y LAKE L A K E SUMMER LAKE N I SUMMER i LAKE - K L A M A T H i VICINITY MAP 4 , 9 KLAMATH FALLS AKEVIEW PLATE I 6 ~ CHAPTER I L ECONOAUC AND POPULATION GROWTH--ANALYSIS AND PROJECTIONS i The eoonomic and population projections included in this report are made for the years 1980 and 1985. These forecasts for the project area should be considered as "working projections" and should be reviewed from time to time to verify the con- tinuing validity of the assumptions upon which they are based. It should be under- stood clearly that these forecasts are intended to provide a sense of scale for future problems which will face the oommumity as service requirementa continue to grow, rather than as an attempt to identify an exact number of people within the area in the target years. L A population forecast is fundamental to any general planning program because it is the anticipated number of people that establishes $lture land use and public facility needs. In most areas, population growth is a direct result of economic growth and the nature of the economic development indicates the amount and relative stability of increases in population. Employment requirements of different industries and businesses are directly related to population growth, and, in the Bend Area, em- ployment growth has directly stimulated population increases. Anticipated economic 'development and subsequent increases in employment provide the foundation for the population forecasts made herein Jbr the Bead Area General Plan. Economic Growth--Analysis and Projections Exceptional economic and employment growth in the economic base of the local area during the past decade is the cause of the recent population surge. Growth in the "basic" sector of the local economy has created many new jobs in itself and has added many more in the "non-basic" sector. Because these terms are extremely important to this economic and employment analysis, the inllowing definition of the economic base has been provided by the consulting economist for informational pur- poses' "The economic base of any area, whether it be a region, a community or some other geographic or political unit, is composed of certain "basic" activities which essentially export products and/or services - to points outside the local area, or find markets for their products and/or services among persons or groups who came from outside the area's economic boundaries. - 1 - VOL 30 FAu 49.1 These activities may take many forms. The growing of food, the processing of food products, and related agricultural pursuits are typically economic base functions, as are activities which tap natural resources such as forestry, mining, oil andgas extraction, and com- mercial fishing. Another major, economic base activity is manufactur- ing. Finally,_ tourism provides the most common example of an eco- nomic base function resulting from services rendered to persons or groups coming into the local economy." Between 1962 and 1972, total employment in Deschutes County increased by 6,210 new jobs, an increase of more than 72.5 percent. During the same period, the total labor force increased by 6, 600 persons, or by 71.8 percent. This,.indicates that em- ployment increased more rapidly than the labor force and has led to a slight decline in area unemployment from 69 percent in 1962 to 6.0 percent in 1972. Since 1962, employment opportunities in the area have increased at a: rate about twice that of the population. This is a most unusual economic circumstance and the automatic end result has been strong population growth in the area.. , The dramatic growth in total employment in recent years is a product of strong growth in key sectors of the area's economic base. The most important of these has been in the manufacturing category (Table 1). More jobs were added to this category than to any other between 1962 and 1972. The 1,360 new jobs represent a 78.6 percent in- crease and accounted for 21.9 percent of all new jobs in the county. Increased em- ployment in manufacturing would stimulate population growth by itself, but, because it is basic to the local economy, it has stimulated additional non-basic jobs and there- by contributed significantly to population growth in the area.. p More than half of the growth in manufacturing employment occurred in the lumber and wood products industry, the historic mainstay of the local economy. These 700 new jobs' amounted to a 52.6 percent increase between 1962 and 1972. Lumber and wood products manufacturing now accounts for 2, 000 jobs and continues to be an important part of the economic base of the community. Other manufacturing, which excludes both the lumber and wood products and food processing industries, nearly tripled in number of employees between 1962 and 1972. The 600 new jobs in this category amount to a. numerical increase nearly as great as the increase in the lumber and wood products industry. Other manufacturing accounted for 30.6 percent of all manufacturing jobs in 1972 as compared to 18.4 percent in 1962. This growth indicates some diversification of the industrial employment base in the community. The service and miscellaneous category added 940 jobs to the county between 1962 and 1972. This category includes the tourist and recreation industries so that part of this growth has occurred in basic elements of the local economy. The recreation industry is based on area attractions for recreation such as skiing, fishing and V W P4 0 0 V y„ (f~ N H O W U VInL N O~ ti 4th CO- M O M C4 to O-1 COQ S m ~ OD v-4-4 N Q~ N w GA t~ ` L~ .-i O r1 m w co ` W 4_ N GO V-4 V7 r♦ w r♦ w w w Mw N Nw r♦ N r!w 0 OW N N "4 ,O-1 00 l_ co 1--1 ra.4 Pi t- rl C~ H tD r-1 to d~ O N N 1[S O O V-4 M rl N rl N N r~ N rl 00 t0- O N 1A to O N 0 GOO 1-01 ,C-1 O oOo 0 to W tQ CA Lr m ri M r♦ 00 eN m rI w 1-1 4 - w 1~1 w w w w w w N nl N rl rl 1; ta ° ° V4co m O 00 ~t-0 l ef + Q S r1 O rt m N rl r1 ri rl i t- v 04 m 00 t- O v O~ M N N a t- N M I (n O to W "41 w 00 ri ri w ri ri m v m m m F1j C Zi p a 71 G) V w O 0 W m 0 n 30 4a 492 -3- von 30 ?AcE 493 hunting, which encourages people to return to the area fairly often. Some maintain second homes in the area and have different spending habits and service needs than do tourists passing through on the `highway, or stopping to camp in.a<nearby park. The tourist, however, -represents a much larger number of persons than do the recreationists. Although tourism and recreation are important, most growth. in the services category occurred in activities serving residents of the community and trade area. Overall, employment in services increased 119.0 percent between 1962 and 1972 and the amount of growth was greater after 1968 than before,indicating a continuing rise in employ- ment in this category. This growth was below that for total manufacturing, but was greater than any single category of manufacturing. - Wholesale-Retail added 1, 220 new jobs to the county during the 1962-72 period.. It is second only to manufacturing in the total employment picture in the community. Although mostly a non basic group, a good percentage of these jobs reflect economic activity from tourism, recreation and Bend's role as a regional shopping-service center. All of these are elements of the area's economic base. Contract construction has had the greatest percentage increase of any employment category, 252.1 percent. In any rapidly growing area, the need fJor housing and for new commercial and industrial, facilities stimulates construction activity and employ- ment. In many communities, contract construction is nearly all non-basic employment. This is not the case in Head, however, because a part of the new construction relates to recreation in the form of second homes, tourism in the form of motels, etc., and some new commercial construction to serve the regional retail-service sector of the economic base. Growth has occurred in all other employment categories with the exception of agri- culture. Agricultural employment declined for the total period;between 1962 and 1972 but has stabilized since 1968. Employment in the remaining categories is non-basic in nature and is less important as a primary cause of population growth because jobs in these categories come `about as a result of jobs and population growth stimulated by basic economic elements. Collectively, these groups grew by about 73.0 percent between 1962 and 1972 and accounted for about 35 percent of the total employment in the area. During the period from 1962 to 1972 the rate of employment growth varied in different sectors of the economy so that the relative importance of various categories has changed with time. The percentage each employment category accounted for in total employment is set forth in Table 2. An examnaxion of this table indicates that agri- culture declined; from 11.3 percent of the total to 4.9 percent. Manufacturing has remained fairly stable at from 19 to 21 percent of the total. However, lumber and wood products declined from a high of 16.8 percent in 1965 to 13.8 percent in 1972. Other manufacturing increased from 3.7 percent to 6.4 percent, indicating some di- versification in the manufacturing sector. Numerically, lumber and wood products easily remains the primary source of manufacturing employment in the community. -4 - ~v net QA N O 0 O GO 00 eN U13 Its M ~ t ~ M _ ~O-1 O 10 0; 0; N pq O tD cr P-4 to rr4 O O m N M m O O h It 00 d+ O w w Lam- • • . • • • • . • • c~ 0 to o M O L4 d+ eM 00 U; N N N rl 0 rl ri r-1 rl ri ri oo Qz a t.J 00 O 00 LO m rl u7 ua m M L- rl er 00 tp • • • • • . • • • . • O Q~w1 o co CM r4 er M d+ 1N-+ O 41 d Z U O ua c to 00 00 '.4 m to a er "o co 00 M 8 rO1 O M N *'1 09 4 Cp DO Q! d~ C+~ Z W 0 V-4 V-4 V-~ cq Q ~ w - t N O t+7 Q7 to V4 t- N mi m M N O O ~P+ F1 W O rOi C9 vM *'4 M N w M .-4 V 4 V-1 O rl t-4 CAA Z Z ~ c o a S ~ w H 4-4 -5- Vii. 30 FACE 495 With the exception of contract construction, which doubled its percentage of total employment, other categories remained relatively stable with reference to the total number of jobs in the community. Employment trends since 1962 indicate a pattern of sound growth in the economic base that has stimulated additional employment and rapid population growth. The economic base will continue to expand in the future in four basic segments of the local economy; manufacturing, Bend's role as a regional retail-service center, tourism, and recreation. These four elements have been and will continue to be the economic base of the community. An expansion of this base underlying the local economy is the key to future population growth in the Bend Area. Manufacturing will continue to grow and lumber and wood products will continue as the major activity in the industrial sector of the economy.' Sustained growth in lumber and wood products will be possible because of the following factors: The existence of a good long-term supply of timber in the forest areas serviced by facilities located in Bend, essentially the timber resources of the Deschutes National Forest. An anticipated increase in the volume of the annual allowable timber out in the Deschutes National Forest which is expected to increase by 8 to 9 percent over that permitted in recent years. The continuation of a'strong domestic and international market for timber, lumber, wood products in a variety of forms, and an expanded number of wood byproducts. The return of a very strong domestic housing market at least by the late 1,970's. The anticipation that a chip market, primarily for export, will add a significant volume and exhibit strong growth in Bend during the coming decade. The largest increase in the volume of allowable cut is expected to come from the harvest of Ponderosa pine and similar species. The current allowable cut in this category is about 135 million board feet a year, and an annual increase to 149 million board feet is anticipated. More frequent thinning of the timber crop and possible use of herbicides for brush control: could increase the annual yield to a level of about 175 million board feet per year. The development of the chip market in the wood products industry could be a signifi- cant addition to the economic base of the local community. The likelihood of an in- creased available supply of timber combined with strong sustained demand, both domestic and international, for wood and wood products will result in a strong growth pattern for this sector of the economy. i -6- VOL 3 6 In addition, growth in the category of otbor manufacturing will also occur. This growth is expected to tape the form of a wide-`variety of smaller firms with modest labor requirements which do not require locations near major markets and are anxious to leave the congestion and pressure of metropolitan areas. These two segments of manufacturing are expected to account for more than half of the new jobs in the basic sector of the Bend economy over the next decade. The second most important growth category will be the expanded function of the Bend Area as a regional service-trade center. It is anticipated that this growth will be gradual but steady and will have a high visibility in the entire community growth pattern over the coming decade. Bend will continue to grow and develop as a regional center for retail suing; wholesale-distribution activities; banking and financial services; medical services, Including hospital care; and professional business and personal services. Bend has served the area as a regional service-trade center for many years. How- ever, recent population growth in the Bend Area has brought about an increase in the number of services available and, in some cases, has improved the quality of these services. This is particularly true of the increase in the number and specialization of medical services as evidenced by an increasing number of doctors and the con- struction of the new hospital. Some of the new growth as a regional center still exists as a community potential rather than expressing itself at this time in physical norm. This is particularly true in the case of retail commercial development in the local economy. There is a signi- ficant unmet need for additional commercial development which has yet to occur in the community. Therefore, it is possible to forecast strong growth in the community as a regional retail center. Tourism will continue to acid to the employment base in the Bend area. However, recent additions to the inventory of tourist-oriented facilities in the community have been built in anticipation of an increased market so that growth in this sector is ex- pected to be somewhat modest during the coming decade. The recreation industry will contribute to the local economic base over the coming decade. This contribution will be a oontinuation of the community's established fimc- tion as a base for the summer recreation visitor. In addition, recent improvements to the M. Bachelor Md. Area will enhance the community as a base for winter recrea- tion. The primary growth over the next several years in the recreation element of the economic base is expected to be more oriented toward winter visitors. Reviewing the four major components of the Bend Area's economic base, it must be concluded that substantial growth in local employment and population will continue to occur. Population projections developed herein and sedbrth later in this report have been based on the character of growth trends in the local economic base as expressed - by employment growth. from the above amtn~ttn~ and from earlier analysis of -7- VOL 30 FACE 497 the recent local employment pattern, it is anticipated that a total of from 2, 000 to 2,100 new jobs will be added in the "basic sector" of the local economy between now and 1985. About 50 percent of these new jobs are forecast to occur in the overall category of manufacturing. in addition, it is anticipated that each new job in the basic sector of the local economy will create approximately two additional new jobs in the non basic sector. This antici- pated pattern reflects experience of the past decade when new jobs added to the basic sector stimulated the creation of about 1.9 new non-basic jobs. Based on these as- sumptions, it is anticipated that between 6, 000 and 6, 300 new employment opportuni- ties will be added to. the Bend economy between now and 1985. This projected increase in employment is slightly lower than that which occurred in recent years because it - appears unlikely that the Bend economy can sustain the extremely rapid rate of growth which it displayed between 1968 and 1972 and which continued into the first part of 1974. Population Analysis and Projections The economic and population growth of any area are closely interrelated and to a large degree interdependent. In the Bend Area, population growth has been stimulated by economic development and attendant increases in employment. Economic growth has been supported by development in the four basic sectors of the local economy: manufacturing; Bend's role as a regional center; tourism; and recreation. Population in Bend and Deschutes County increased at a moderate rate between 1940 and 1960, with the county increasing by 4,469 people and the City by 1, 915. These growth patterns indicate an average annual rate of 1.1 percent for the county and less - than 1 percent for the city. This level of growth is easily absorbed by the community with no obvious increased needs for services or facilities, and no real awareness of growth or change within the community. Between 1960 and 1970, population growth patterns changed significantly. The county population increased by 7,342, or 31.8 percent, and the city by 1, 774, or 14.9 percent during this period. The average annual percentage increase for the county and city were 3.2 and 1.5 percent respectively and both of these rates of increase are below that for total employment during approximately the same time period. Since 1970, the rate of growth has risen sharply for both the county and the city. During this period, county population has increased by 6, 898 or 22.7 percent and the city population by 5, 505 or 25.6 percent. In fact, the city has added nearly as many people since 1970 as it did during the entire period from 1940 to 1970. The average annual growth rate for the county and the city between 1970 and 1974 was 5.9 and 66 " percent respectively. During this same period, the Bend Area as a whole grew at a more rapid rate than either the city or the county individually, 34.2 percent or an average of 8.9 percent each year. The Bend Area now contains about 68.8 percent of the total county population, with the City of Bend accounting for 46.1 percent and the unincorporated fringe area 22.7 percent. The fringe area received about 44 percent of all popula- tion growth in Deschutes County been 1970 and 1974. It is interesting to note that the population in the City of Bend increased at a more rapid rate than the population in Deschutes County. This represents the reversal of a trend which held from 1940 through 1970. A strong population growth rate in recent years can be directly related to increased employment opportunities in the four basic sectors of the local economy. Although employment has increased at more rapid rates in some other sectors of the economy, the mainstay of local job increases has been and will continue to be the lumber and wood products industry. Therefore, future employment and population growth can be expected to fluctuate from year to year as the lumber and wood products industries respond to outside factors and influences such as interest rates, the national housing market and international lumber demands. Past population growth and distribution patterns are summarized in Tables 3 through 6. TABLE 3 POPULATION GROWTH 1940 - 1974 Area 1940 1950 1960 1970 1974* City of Bend 10,021 11,409 11,936 13,710 17,215 Bend Area 19,150 25,690 Deschutes County 18,631 21,812 23,100 30,442 37,340 * February Sources: U. S. Census; Land Use Survey, Urban Area Planning Study; Albert D. Keisker & Associates TABLE 4 PATTERN OF POPULATION DISTRIBUTIONS BEND - DESCHUTES COUNTY 1974 City of Bend 17,215 46.1% Bend Fringe Area 8,475 22.7% Remainder of County 11,650 31.2% Total 37,340 100.0% Sources: Land Use Survey, Urban Area Planning Study; Albert D. Keisker & Associates -9- Area City of Bend Bend Area Deschutes County VOL 30 SAC. 499 TABLE 5 RATE OF GROWTH BEND AREA - DESCHUTES COUNTY 1940 -1974 1940 -1950 1950 -1960 1960 -1970 1970 -1974 Amt. % Amt. % Amt. % Amt. % 1,388 13.9 527 4.6 1,774 14.9 3,505 25.6 3,181 17.1 1,288 5.9 6,540 34.2 7,342 31.8 6,898 22.7 TABLE 6 AVERAGE ANNUAL RATE OF GROWTH 1940 -1974 1940 -1950 1950 -1960 1960 -1970 1970 - 1974 Area Amt. % Amt. % Amt. % Amt. % City of Bend 138+ 1.4 52+ 0.5 177+ 1.5 910 6.6 Bend Area 1,700 8.9 Deschutes County 318+ 1.7 128+ 0.6 734+ 3.2 1,790 5.9 Sources: U. S. Census; Land Use Survey, Urban Area Planning Study; Albert D. Keisker & Associates. The current population of the Bend Area is very important to future forecasts. It estab- lishes a rather rapid growth rate when compared to 1970 census data and provides the base number for 1980 and 1985 projections. The basic source for current population estimates was a land-use survey conducted in January and February of 1974. One part of this survey was an inventory of dwelling units by type; i.e., single family, duplex, apartments and mobile homes. The survey indicated that there was a total of 8,670 dwelling units within the Bend Planning Area, 5,936 units inside the city and 2,734 units in the unincorporated area outside the city. -10- VOL 30 FAsf 500 The dwelling unit totals were converted to population figures by using average house- hold size factors of 2.9 people per unit inside the city and 3.1 people per unit outside the city. These population per unit estimates are slightly higher than indicated by the 1970 census, 2.88- in the city and 3.0 for areas outside the city. The estimate was increased slightly over 1970 data because of the number of new families attracted to the community by job opportunities. The increase is small because recreation and tourism jobs tend to attract one and two person households. No adjustment in dwell- ing unit totals was made because rapid population growth in recent years has led to a very low vacancy factor. An analysis of mail delivery in terms of total boxes served also confirmed the dwell- ing unit estimate and recent growth trends. Mail route data was adjusted to corres- pond with about the same area as is included in the project boundary. Increase in the number of boxes served indicated a growth of about 33.6 percent between 1971 and 1974. Similar work with new electrical connections indicates the same kind of trend. The key to sustained future growth rests with the growth of the local economy. Based on increases anticipated in the economic section of this report, substantial growth will continue in the Bend Area. The population forecast in this report is based primarily upon the employment fore- cast. To convert the employment projection into population, a population-employment ratio of 3 to 1 was used. Again, this population to employment ratio is higher than that recorded for Bend during the 1962-72 period. More new jobs will be dependent upon em- ployment in manufacturing and in the regional service enter function, with less of the total being attracted to the oomYmmity by the recreation-tourism industries. Because of this, the average household size should increase in number. Based on the above assumptions and calculations, it is estimated that the Bend Area will contain a total population of between 35, 000 and 36, 000 persons by 1980 and a total population of be- tween 43, 500 and 45, 000 persons by 1985. The above projections were developed specifically for the Bend Area included in this General Plan. In order to develop similar figures covering all of Deschutes County, a small additional growth factor should be added for growth outside of the Bend Area. The factor should be quite small, but will be of some consequence during the coming decade, at least in the case of Redmond. Deschutes County is expected to have a population of between 48, 000 and 49, 50.0 persons by 1980, and between 57, 000 and 59, 000 by 1985. It is difficult to forecast population for the City of Bend because one of the principal influences on population growth within the city will be the city's annexation policy. Much of the anticipated population increase in the urban area will occur at locations which are presently outside the corporate boundaries of the city. The location of de- velopment inside or outside of the city will be dictated substantially by future local policies and decisions relaxing to water supply, sewage disposal and annexation. If most new developments occur in areas annexed to the city, the City of Bend will ex- perience strong population growth. If not, the city can expect only moderate future -11- IriL 33 FaVE ~ increases. Because of these considerations, no population forecasts have been made for the City of Bend. The following table summarizes population projections for the Bend Area and Deschutes County. TABLE 7 POPULATION PROJECTIONS 1980 -1985 1980 1985 Bend Area 350 000 - 361,000 43,500 45,000 ; Deschutes County 48,000 - 49,500 57,000 - 59,000 It is clear that the community, faces a period of rapid growth. Increases in the Bend Area of from 9, 000 to 10,000 people by 1980 and from 17, 000 to 19, 000 by 1985, will _ have a significant influence on the character of the community and the need for services, regardless of whether or not development occurs inside or outside of the city. If the above growth projections seem high, it should be remembered' that the same area in- creased by slightly more than 30 500 people between 1970 and February of 1974. How- ever, if employment does not increase as anticipated earlier in this report, population growth will be affected accordingly. , It is also likely that growth will not occur at an even annual rate. Rather, it should tend to accelerate and slow down in alternating cycles as the lumber and wood products industry, responds to changing conditions. In any event, the population projection provides a sense of scale for the magnitude of future problems. It indicates probable needs for schools, parks, water and sewer service, police -and fire protection, streets, etc. which will be necessary as the area grows. The population forecast also provides a basis for estimating future land require- ments for residential, commercial and industrial uses. The problem, then, is to develop a series of community goals, objectives and policies and to prepare a comprehensive plan which will help bring about most desirable living environment consistent with the values and attitudes of the people in the community, one which willaccommodate approximately 45, 000 people by 1985. - -12- can 'Ju Am 5T `VOL CHAPTER 2 LAND DEMAND AND ABSORPTION RATES--ANALYSIS AND PROJECTIONS Population and economic growth indicate the future size of the community and pro - - vide a sense of scale for needs for public facilities. This growth can also be trans- lated in a general way into needs for different kinds of land uses. In this way, it is possible to allocate land use areas in the general plan in amounts related to probable future needs and thereby avoid gross over commitments of land to commercial and industrial uses. Residential land use estimates can be used to better direct residen- tial growth and help with more intelligent planning for water and sever systems and other public facilities. Housing and Residential Land Use In February 1974, the Bend Area contained a total housing inventory of 8, 670 dwelling units. This count is based on the land-use survey done as a part of this planning pro- gram. Of the total housing inventory, over two-thirds (68.5 percent) of the units were located within the City of Bend. The remainder occurred at locations in county areas adjacent to the city within the overall project area. The bulk of this housing inventory is made up of single family dwellings. However, there is also a sizeable volume of mobile homes being used as primary residential units. Most of these are located in county areas outside of the city and 62 percent of all mobile homes are located in mobile home parks. The combined total of duplex and apartment units slightly exceeds the total volume of mobile home units within the pro- ject area and nearly all of these multiple family units are located within the City of Bend. The composition of the busing inventory within the City of Bend as of February 1974 was as follows: TABLE 8 HOUSING INVENTORY CITY OF BEND FEBRUARY 1974 Single Family Units 4,563 76.9% Multi-Family Units 1,196* 20.1°, Trailers 177 3.0% Total 5,936 100.0% * Mostly Apartment Units Source: Land Use Survey, Bend Area Planning Study; Albert D. Keisker & Associates -13- CL 30 Fx 3 In the unincorporated parts of the project area, the composition of the housing inventory on the same date was as follows: TABLE 9 HOUSING INVENTORY COUNTY AREAS FEBRUARY 1974 Single Family Units 1,673 61.2% Multi-Family Units 88 3.2% Trailers 973 35.6% Total 2,734 100.0% Source: Land Use Survey, Bend Area Planning Study Albert D. Keisker & Associates It should be noted that over 35 percent of the current housing inventory in these county areas consist of mobile home units. The combined total housing inventory in the project area both inside and outside the City of Bend as of February 1974 was as follows: TABLE 10 HOUSING INVENTORY TOTAL URBAN AREA FEBRUARY 1974 Single Family Units 6,236 71.9% Multi-Family Units 1,284 14.8% Trailers 1,150 13.3% Total 8,670 100.0% Source: Land Use Survey, Bend Area Planning Study Albert D. Keisker & Associates As mentioned earlier, the validity of current housing inventory and population estimates is particularly important in the Bend Area. This is beceuse the data developed in this program represents a very rapid growth rate and provides the basic numbers for future population estimates. The validity of the February 1974 inventory can be fairly well documented for the City of Bend by referring to the housing inventory data set forth in the 1970 U .S. Census and the City Huildng Permit data since that date. -14- 30 ua 5%4 The 1970 census indicated that the City of Bend contained a total of 5, 034 dwelling units. Within this total, there were 4,109 single family units, 835 multiple family units, and 90 mobile home units, From 1970 through 1973, a total of 496 single family units and 373 apartments units were added to the local housing inventory according to city building permit records. Adding the new units to the 1970 census figures produces a total housing inventory far the city of 5,903 units at the beginning of 1974. The number of single family units would total 4, 605 and the number of mul- tiple family units 1, 208. A comparison with the land use inventory totals shown in Table 8 indicate a very close correlation between the two sets of data. The small mimerical differences are largely the consequence of the loss of a few units in the inventory due to demolition, fire, re- placement construction by nonresidential uses, etc., which are not taken into account in the city building permit information. Tables 11 and 12 summarize the 1970 census housing data for the city and additions made to that inventory through 1973 as indicated by local building permit data. Com- parable historical data on the size and composition of the housing inventory are not available for county areas. Hower, the correlation of information summarized for the city indicates that the 1974 housing inventory developed as part of the land use survey provides as valid a base for county areas as it does for the city. TABLE 11 HOUSING INVENTORY - CITY OF BEND 1970 Single Family Units 4,109 81.6% Multi-Family Units 835 16.6% Trailers 90 1.8% Total 51034 100.0% Source: U. S. Census 15. - TABLE 12 ADDITIONS - HOUSING SUPPLY CITY OF BEND 1970 - 1973 Single Family Apartments Total 1970 94 14 108 1971 101 74 175 1972 188 139 327 1973 113 146 257 Total 496 373 869 Source: Building Permit Data, City of Bend The present housing supply in the Bend Area is primarily in the moderate price ranges. The median value of owner-occupied homes in the city in 1970 was $13,400, slightly below the state-wide level. Further, at that time only 10.1 percent of all owner-occupied housing in the city was valued in excess of $25, 000. While there has been an upward shift since 1970, the basic pattern remains the same. Most subdivi- sion construction in the Bend Area has been in the $20, 000 to lower $30, 000 market range. The fact that over 35 percent of all current housing in county areas under analysis are mobile home units further indicates that the Bend Area is mainly a moderate price range housing market. Mobile homes typically provide a lower cost alternative to housing in today's economy than conventional new construction, particularly under the impact of inflationary pressures in labor and materials cost. The presence of this large volume of mobile home units is also a reflection of recent rapid growth of the Bend Area. This growth has produced a tight local housing market, particularly under present cost constraints and, under such conditions, the most practical answer to the question of housing for many households has become a mobile home. Against this background and the preceding population forecasts, basic projections can be made as to land demand for housing in the Bend Area between now and 1985. The land demand projections are based on several underlying assumptions regarding the local housing market, namely: Projections of future growth in the Bend Area indicate the continuation of a strong demand for housing and this factor will produce substantial ex- pansion in the total size of the local housing inventory. - 16 - i 311 There will also be a second factor operating in the local housing economy and this will be the demand for replacement housing. It is expected that this demand will become more important during the coming decade in Bend than it has been in the past. Under the dual impact of demands for new housing and replacement housing, local housing demand will remain strong. Although housing production will respond to these opportunities, the local supply-demand relationship is ex- pected to remain tight as long as current economic conditions relating to high cost, inflation, tight money, etc., continue. Expansion of the size of the local housing inventory will continue to produce substantial outward expansion of the highly urbanized portions of the Bend community. This will occur mainly in the form of subdivision development. The location of future residential construction will be determined primarily by local decisions relating to water, sewer, other utility and street services. Outward residential growth will probably take place where these services can be provided most effectively and at the most acceptable cost levels. Assuming competitive land price factors, replacement housing, either public or private, can occur at any logical location within the City of Bend where sites of sufficient size might be made available. Within the context of these basic assumptions, some quantitative conclusions can be reached. Population projections made earlier for the Bend Area anticipate a net in- crease in total population of between 9, 300 and 10, 300 persons by 1980 and between 17,800 and 19,300 persons by 1985. For the purposes of converting this anticipated growth into additional housing inventory units required to accommodate a larger urban population, an average household size of 3.1 persons has been used. On this basis, the projected population growth will produce an increase in the Bend Area housing inventory of 3, 000 to 3, 320 units by 1980 and 5, 740 to 6,220 units by 1985. The bulk of the market will continue to be oriented to- ward single family housing. The character of growth forecast for the Bend Area will not generate a substantially greater demand for apartment facilities in the future than it has in the past. As a general guideline for long-range planning purposes, it is forecast that approxi- mately 75 percent of the increased housing supply in the Bend Area will take the basic form of single-family units, with multiple family housing accounting for the remaining 25 percent. It is recommended that this ratio be used in developing land use allocations for residential demand in the urban area general planning process. This additional housing will require substantial amounts of additional land in the Bend Area for residential uses. Based on the above calculations, and assuming an average -17- TO 507 density of about 4.5 dwelling units per acre for single-family uses and 20 to 24 units per acre for multiple-family uses, new residential development will absorb aai additional 530 to 590 acres of land throughout the urban area by 1980. By 1985, these uses will require a total of 1, 020 to 1,125 additional acres of land over the 1974 residential land use total. These projections are summarized in Table 13. TABLE 13 ADDITIONAL ACRES NEEDED RESIDENTIAL DEVELOPMENT - TO 1985 To 1980 To 1985 Single Family 500 - 550 960 - 1, 050 Multi-Family 30 - 40 60 - 75 Total 530 - 590 1,020 - 1,125 Source: Albert D. Keisker & Associates Part of the single-family housing growth will occur in the form of mobile home units. This factor could account for as much as 20 percent of all additions to the local hous- ing inventory over the coming decade because of the character of the Bend market and rapidly rising costs in today's economy. It is also possible that some of the single- family developments will take the form of planned unit development projects. Mobile home developments such as mobile home parks and planned unit developments can generally be accomplished at slightly higher housing densities than standard single family subdivisions. To the degree that mobile home parks and planned unit develop- ments are a part of future residential construction in the Bend Area, the amount of land required to accommodate residential growth will be somewhat reduced. The greater part of future residential expansion is expected to occur in the southeastern and eastern portions of the total urban area. However, local decisions as to the loca- tion, extension and development of water, sewer and other utility services as well as streets will be a major determinant of the outward pattern of urban growth. In addi- tion, local private development decisions regarding large parcels of property on the west side of the planning area could significantly influence the availability of land for new residential growth. Decisions relating to utilities and services will be the most effective means of controlling the rate and direction of growth within the urban area. Generalized information developed as part of the land use survey relating to condition of structures suggests that the potential for replacement housing in the local economy is in the magnitude of at least 600 to as high as 1, 600 total units. From a construction market point of view, this additional dimension can represent a second market at least 10 to 25 percent as large as the primary new housing market initially identified. -18- Yea 0 FEE 5!00 Moderately priced housing units will continue to dominate the Bend Area housing market. The factors of increasing construction and financing costs which are im- pacting the housing industry nationally at present can be expected to make it increas- ingly difficult to satisfy the large moderate price housing demand in the area. This condition will likely lead to a pattern of rather sharp up and down trends from one year to the next in the annual volume of production over the next decade and will result in a series of rather uneven surges in the local growth rate. This will place additional pressures on efforts to control, direct and regularize the growth which will continue in the area because of the continued maturing and broadening of the local economic base. Speaking generally, the future housing market in the Bend Area will continue to be one for moderately priced housing with the mobile home providing an alternative to stan- dard housing units. The long-term impact of mobile homes in the planning area will depend upon continuing economic pressure on the housing industry which increases construction and development costs and, to some degree, local regulations relating to development standards and locational considerations for mobile homes. Commercial Land Uses The rapid population growth anticipated by 1985 will increase the need for commercial services as well as housing. For the purposes of this general planning program, future commercial needs were analyzed for retail and motel commercial activities. Retail Commercial activity will experience substantial growth in the Bend Area between now and 1985. This will be caused primarily by three factors; 1) The lag in commercial development at present in comparison to current market potentials. 2) Growth as a regional center for retailing and personal professional services will increase the market potential. 3) Population growth will generate added needs for day-today convenience goods. A summary analysis of the current and projected retail com- mercial market in the Bend Area economy follows in order to provide explanations and justifications for the findings, conclusions and recommendations made regarding this section of the area's economic life. Major retailing outlets in Bend serve an effective total trading area which includes Deschutes, Crook and Jefferson counties and the northern portions of Klamath and Lake counties. (Plate 2) This sphere of economic influence also extends into western Grant County, northwestern Harney County, and slightly into portions of Wheeler and Wasco counties. The total trading area is slightly larger than the one often used in the past for evaluating Bend's major retail market. The trade area has been extended in this analysis to include current penetration at modest levels into the outlying counties identified above. The trading area corres- ponds closely to the effective service area of St. Charles Memorial Hospital in Bend, and is also similar to the area of influence of Central Oregon Community College. Banking and personal-professional services are often extended outward over this same general geographic area. The orientation of the regional population to Bend for a -19- ~ll FACE VOL SANDY S I i HEPPNER - 97 CONDON ' L MAUPIN ~ ~ 197-_ GATES DETROIT WAR y MILL CITY IOANHA SPRINGS • W H R J E F F k SO N' +na MADRAS ySI 22 26 MITCHELL G R A N T ~ I 1- 97 26 I Fr.-%x4K:5> y 1 I ~ SISTERS PRINEVIL E ~ a. .4~'. RriDMOND BEND I vER su J T D E S C E S OAKRIDGE BROTHERS 58 - - i HAMP'fd N LA PINE _ -»f-- •.--»~.a:, *F'•.,zn.!~!+~y««s~na+f'**Yr'~?~ z,t BURNS GILCHRIST - CRESCENT ~ CHEMULT ' SILVER 39 H A R N E Y - LAKE L A K E - SUMMER LAKE SUMMER , LAME is, 6 - . > Ile- K L A M A T H i BEND TRADE AREA 140 140 97 KLAMATH FALLS L AKEV IEW PLATE 2 66 i I 'g`ot. 3 =A E. 510 series of functions, rather than just shopping, increases the frequency and con- sistency of retail trade volume in Bend. This pattern should become even more pronounced during the coming decade. In the 1970 population base, the total trading area was approximately 66,450 persons. Based on final U. S. Census figures, its distribution pattern was as follows: TABLE 14 POPULATION BEND RETAIL TRADING AREA 1970 Deschutes County 30,442 Crook County 9,985 Jefferson County 8,545 48,975 Northern Klamath County 7,500 Northern Lake County 1,675 Remainder 8,300 17,450 Total 66,450 Source: U. S. Census Deschutes, Crook and Jefferson counties can be considered as the primary trade area for Bend. In this primary zone, the depth of market penetration for shoppers goods sales is substantially greater than in those segments of the trade area which are more distant from Bend. These more distant segments represent a secondary zone of influence in which the volume of retail draw is much less, but still existent. In the calculations shown on Table 14, the population in northern Klamath County which is included in the Bend trade area is north of a dividing line between Chemault and the Diamond Lake Junction. For northern Lake County, the dividing line is just south of Summer Lake. It should be noted that approximately 65 percent of the total trade area's population base and its total annual dollar volume sales potential are located within the primary trade area. Population growth in the retail trade area was quite modest prior to 1970. Overall, the primary zone grew at an annual rate of about 2.1 percent between 1960 and 1970, with most of this growth occurring in the Bend Area and Deschutes County. Population remained essentially stable throughout the remainder of the trading area. Between 1970 and early 1974, the primary trade area population increased by between 8, 000 and 9, 000 persons, with just under 7, 000 of this total increase occurring in Deschutes County. This represents a growth of 16.3 to 18.4 percent in the trade area's primary -21- vot 30 ?#'R 511 zone in less than four years. Population in the remainder of the trading area has continued to remain relatively stable. Using the population projections made earlier for the Bend Area and Deschutes County; and assuming only modest growth in Crook, Jefferson and northern Klamath counties, with no significant growth in the remaining rural counties, the following projections are made for the population base of Bend's retail trading area by 1980 and 1985: 1980 87, 200 - 88,700 1985 100, 500 - 103, 500 The forecast for the total trade area indicates that the population can be expected to increase from the 1970 total of 66,450 to slightly over 100,000 persons by 1985. This means that the total trade area population will increase by more than 30 percent by 1980 and by more than 50 percent by 1985 over the 1970 population base. More im- portantly, nearly all of this growth is and will continue to occur in close proximity to Bend, thus maximizing its impact on major retail facilities in this urban area. Converting this population base to annual shoppers goods dollars, new growth alone within the residential population of the total trading area will generate an additional $15, 600, 000 to $16, 500, 000 annually in shoppers goods volume potential by 1980 over the 1970 base. By 1985, this annual dollar volume potential will reach a level of $23, 600, 000 to $25,500,000 in additional sales. This dollar volume potential repre- sents the total number of dollars which residents of the overall trading area will spend annually somewhere for shoppers goods purchases, i.e., purchases made in depart- ment stores, variety stores, discount outlets, apparel stores, shoe stores, other general merchandise facilities, gift and specialty stores, and furniture, home fur- nishing and appliance outlets. A good portion of this total dollar volume potential will be spent in retail facilities in the Bend Area. The rest will be spent in facilities located elsewhere. With the increase in dollar volume potential cited above, and assuming Bend does no better in the future than at present in terms of retail market penetration, annual shop- pers goods expenditures in the Bend Area would increase by over $5, 600, 000 per year by 1980. By 1985, this annual increase will reach a level of approximately $9, 000, 000. For ease of comparison, these dollar volume projections are increases over the 1970 base and are expressed in constant 1974 dollars. This increased annual sales volume will justify at least an additional 80, 000 square feet of major retail space in the Bend Area by 1980, and between 125, 000 and 130, 000 square feet of additional space by 1985. Beyond this factor justified by new growth alone, larger and more modern major retail facilities in the Bend economy would also be able to exert stronger market penetration within Bend's total trading area. While Bend is capturing as high as 65 percent of avail- able shoppers goods sales from among the resident population of the city and the Bend Area at the present time, the depth of market penetration falls off rather sharply in other segments of the trading area. For example, in the secondary zone of influence - 22 - va. ?u ^01 512 it is currently estimated at no more than 10 to 15 percent. Overall, shoppers goods market penetration is today estimated at a level of about 35 percent of total available potential for the composite trading area. Assuming that this 35 percent factor could be raised to a composite level of 40 per- cent, which is totally within reason considering larger and more modern retail outlets in Bend, an additional 35, 000 to 40, 000 square feet of major retail space can be justi- fied by the market. Such expansion of the existing major retail facility inventory can take place at any time. This increased market penetration combined with anticipated population growth provide a market justification for an additional 115, 000 to 120, 000 square feet of major retail space by 1980 and an additional 160, 000 to 170,000 square feet of such space by 1985. The continued growth of tourism in the Bend economy will have only minimal impact on most general merchandise outlets. However, it will have an important influence on purchases made in many smaller gift and specialty shops and has been taken into account in the overall shoppers goods expenditure projections made above. The projections for new commercial retail space will not generate a large demand for additional commercial land. Assuming a 2 to 1 land area ratio between parking and gross building floor area, only some 10 to 15 acres of land will be needed by 1985 to accommodate this additional growth. Thus, while it will have a strong impact on the fundamental economic structure and the urban design patterns of the community, it will not have a great impact on the issue of land absorption. The growth projected above is encouraged by the fact that there is no full-line de- partment store or major large-scale general merchandising outlet within the trade area at the present time. Major existing facilities including a 17, 000 square foot J. C. Penny store, a 30, 000 square foot Pay Less facility and two small catalog stores, Montgomery Wards and Sears. Under these conditions, the Bend Area market must be considered "ripe" for substantial shoppers goods retailing develop- ment. Most logically, the bulk of this additional major retail space could take the form of two new general merchandise outlets. One of these could be a modern, full-line de- partment store operation with 60, 000 to 80, 000 square feet of floor space. The other could be more along the lines of a contemporary discount store facility, somewhat larger in size than the general merchandise outlet. Because of these opportunities to develop major retailing outlets in the Bend Area, retail commercial development is one of the most serious challenges to be dealt with in the Bend Area planning program. Since major retail growth is justified by the market as a consequence of a recent and projected trade area growth, the question of whether this new development takes place within the established, older downtown area of Bend or in a new modern shopping center at an outlying location in the urban area is squarely before the community. -23- `,z 30 FACE 513 As part of the research for this general planning program, a 10 percent sample in- terview was made of 842 households relating to population characteristics and shop- ping habits in the project area. The survey was performed by students at Central Oregon Community College under the direction of Mr. Roy Hatton. We express our appreciation to the students and to Mr. Hatton for their efforts on behalf of the pro- gram. In this report, we will summarize only the findings related to shopping habits. Detailed information relating to the survey is available in the Planning Department of the City of Bend. The survey revealed a high degree of shopper loyalty to the Bend Area. Shopping was fairly evenly divided between downtown and other commercial areas of the community, and 70 percent of all major purchases were made in the Bend Area during the past year. Frequency of shopping in downtown Bend is still very high. Nearly 40 percent of all who responded shop downtown once a week or more frequently. Another 35.5 percent shop downtown two or three times per month. These two categories together total over 75 percent, or 3 out of every 4 persons responding. The results of the survey indicate that downtown still has strong drawing power as a retail center. Every effort should be made to strengthen this area in the future rather than "write it off as obsolete" and build anew regional shopping center elsewhere in the community. Although recent election results indicate voter displeasure with a specific method of redevelopment in the central area, the results of this survey would indicate that the people are not displeased with downtown as a shopping area. Perhaps the wisest course of community action would be to seek a different method of revitalizing downtown, not a different location for it. Major new retail facilities can be located either in downtown Bend or at an outlying site somewhere in the developing urban area. From a market development point of view, either course of action could be successful. However, the outlying shopping center alternative will probably have an edge due to a smaller number of development problems and constraints to resolve and overcome. This has been the classic historic pattern in urban development over the past thirty years and has led to the deterioration of the down- town area in almost every growing community in the United States. The outlying shopping center development approach is the simplest for the developer but its impact on the community is largely negative. If a major shopping center responding to increasing shoppers goods demand potential is developed at an outlying site, it will result in a radical shift of retail trade from downtown to the shopping center area. Downtown will cease to be the primary retailing location in the community and will thereby give up one of its principal historic functions. A weakened downtown will not only become economically less active and visually less attractive, it will produce an increasingly lower yield in tax revenue which has far-reaching consequences. Not only does the central area yield less tax revenue, it becomes a problem of major proportions to the community which can be very expensive to solve. - 24 - 311 wa 51- 4 All in all, the location of a new major retailing facility within the urban area will have as profound an impact on the economic life of the Bend community, the basic form and pattern of its urban structure, and its current planning program as any other single factor. Bend still has the option of retaining and strengthening its downtown as the community's priinary retailing center. It is strongly recommended that it do so by encouraging the location of these key additional retail facilities in the central area. With such facilities, downtown Bend can continue as a vigorous, healthy segment of the total community. The two new and larger retail anchors would double total retail sales in downtown over the next decade, and guarantee a solid and healthy central area for years to come. On the other hand, if these major retailing units go elsewhere, downtown will begin to decline in importance as a retailing district. It will decline in annual sales, in local tax support, in general appearance and ultimately in property values. This decline will be gradual at first but will accelerate once the full competitive impact of the new out- lying development is felt. The anticipated new retail facilities will not require particularly large land areas. Be- cause of this, revitalizing and upgrading downtown need not necessitate a massive re- development effort. Rather, as a cooperative public-private action, it represents a fully manageable undertaking which is totally justified by the market as a staged program of central area development over the next several years. Beyond the issue of major retailing units, growth in the population base of the Bend Area between now and 1985 will generate market justification for two additional convenience goods shopping centers. The geographic pattern of urban growth anticipated in the Bend Area over the coming decade indicates that one of these centers would be located in the southeasterly portion of the total urban area and the other in the northeasterly sector. However, development of large land holdings on the west side of the city could alter future locational considerations for these convenience centers. Motel Commercial activity will also expand during the coming decade and this segment of the overall commercial market requires separate evaluation. There is now a total of 29 motel, motor hotel and lodge facilities serving the tourist-vacationer-visitor market in the Bend Area. Over half of this supply is located along 3rd Street within the City of Bend or along U. S. 97 north or south of the city. Of this total, 14 of the facilities are considered to represent fully competitive modern accommodations and contain a total of approximately 1,100 units. However, many of the older remaining facilities still ex- perience good occupancy levels in serving various segments of the total Bend Area market. Within the competitive inventory of 14 facilities, 10 are located in the City of Bend. These include the Bend Riverhouse, Cascade Motor Lodge, Cimmarron Motel, Dunes Motel, Maverick Motel, Mountain Village Motel, Red Lion Motel, Riverside Motel, Thunderbird Motel, and the Westward Ho Motel. The current in-season double room occupancy rates for the competitive motel inventory located in the city range from $10 to $28 per night. - 25 - ,VOL DU The majority of these motel facilities experience very few vacancies during the summer season and the new and more modern of these have an average annual occu- pancy rate in the range of 70 percent per year. The motel-motor lodge inventory in the Bend market area has been upgrading and expanding in recent years due largely to the increase in volume of the out-of-state tourist trade. More recently, growth in the in-state visitor trade has added to the substance of this expansion. Several of the facilities listed above have been added to the local supply in recent years, the latest being the 92 unit Bend Riverhouse opened at the beginning of this year. With these recent additions, the supply of quality competitive units in the Bend Area inventory is considered to be slightly in excess of demand at present when measured on the annual market basis. At peak tourist season during the summer months, this condition will frequently reverse itself so that the current supply-demand relationship cannot be considered to be significantly out of balance. The four facilities not within Bend proper are more resort-oriented operations than commercial motels, each with attractive locations within easy driving time of the community. These include the Entrada Lodge with 15 units, the Inn of the Seventh Mountain with 260 units, Sun River Lodge with 211 units, and Black Butte Ranch with approximately 60 units. The latter three of these facilities are basically condominium developments whose owners allow management to rent their units when they are not in use. However, their presence still has significant impact on segments of the tourist- vacationer-visitor market in the total Bend Area economy. In evaluating their impact on the market, the factors of location and distance has been taken into account. How- ever, none of the driving distances or driving times is particularly significant so that it is of small consequence as a market deterrant. The major initial source of market support for motel patronage in the Bend Area is the out-of-state tourist and visitor trade. Data on out-of-state tourism revenues from the Oregon State Highway Department (1971) indicate a current visitor market potential in Bend from this source of between 190, 000 and 200, 000 total room nights per year. This volume is expected to increase by about 30 percent by 1980, and by another 25 to 30 percent by 1985. This growth will justify the addition of 100 to 140 more motel rooms to the local supply by 1980 and nearly double that amount by 1985. Demand from other market sources, particularly the in-state visitor trade, will generate still more growth in the Bend motel inventory in the years ahead. A substantial portion of this growth will be related to recreational activities in the Bend Area, the most pro- minant being the winter ski trade at Mt. Bachelor. Taking into account current occu- pancy levels during the overall winter period which are typically below those for the summer season, and assuming that in-state recreational trade in Bend will grow at a slightly higher rate than the out-of-state tourist trade, a total of 90 to 120 additional units can be justified by 1980 and 150 to 180 additional units by 1985 from these other market sources. -26- 30 rArz 516 Substantial expansion of the character and capacity of Mt. Bachelor as a winter sports recreation center could materially alter the volume of this projection prior to 1985. However, it is likely that any facilities beyond those projected above built to meet the specialized demands generated by Mt. Bachelor developments would be located outside the geographic limits of the Bend Area. Based on this summary analysis, it can be concluded for general planning purposes that a combined total of 190 to 260 additional units can be justified by 1980 with this range increasing to approximately 340 to 450 additional units by 1985. Converting this conclusion to facilities, it can be projected that two or three new motel or motor hotel operations can be developed by 1980 with an additional one or two added by 1985. These developments will not require the commitment of large land areas within Bend's urban pattern. However, their development will have significant im- pact on the form and character of the basic urban pattern in the Bend community in future years. Industrial Land Uses As discussed earlier in this report, significant growth is expected in manufacturing employment in the Bend Area economy between now and 1985. However, converted to a land demand factor, this growth will not generate a need for large amounts of addi- tional industrial land. In order to convert the employment forecast to anticipated in- dustrial land requirements, a factor of 12 employees per acre of industrial land was used. In addition, it was assumed that about one-half of the employment growth would occur in existing industries. It is more than likely that well over half of all new jobs added to the local economy will occur in these establishments. The employment forecast indicates an increase of from 2, 000 to 2,100 new jobs in manufacturing by 1985. Assuming that half of these jobs will occur in new industries, and that employment densities will average about 12 employees per acre, new industrial growth will require about 45 acres of additional land between now and 1985. It is pro- bable that employment densities will exceed 12 employees per acre as an average, in which case the industrial land requirement will be lower than that estimated above. If the employment density factor should fall to a lower number, the amount of industrial land would not be substantially greater. For example, an average employment density of eight workers per acre would generate a requirement for only about 65 acres to pro- vide for new growth. At the time of the land-use survey, there were about 760 acres of land used for industrial purposes in the project area. Most of this industrial land, about 80 percent, is outside the City of Bend. The existing industrial land use total of 760 acres plus an anticipated need for 45 to 65 acres indicates a land demand of from 805 to 825 acres by 1985. At present, there are slightly over 1,120 acres of land zoned for industrial use within the project area. This amounts to a surplus of from 295 to 315 acres of industrial land over the estimated need for 1985. Undeveloped areas now zoned for industry should be - 27 - u: 3 -x,57 reviewed for suitability for other uses. However, zoning of large parcels in rela- tively few ownerships can reduce the affective supply of land even though considerably more land is zoned than appears to be needed. In any event, the foregoing employment forecats and land demand estimates indicate that at least sufficient land is now alloca- ted within the project area to meet needs anticipated by 1985. -28- VOL 30 'PACE 51 File No Exhibit No. Submitted By ,7-r& !D BEND AREA GENERAL PLAN PART -11 t _ ' . V3L 3U- FACE 519 ADDENDUM THE'FOLLOWING CHANGES ARE MADE A PART O`F THE BEND URBAN AREA GENERAL PLAN, PART III, Page 8, change the 7th sentence in the second paragraph to read as follows: In the case of both the saturation and forecast period plans it is recommended ' , that the plans be reviewed and revised as necessary every year. ' Page 10, last paragraph, change to read: The area also has some potential for recreational development: The Bend Area ' and Central Oregon are desirable recreation places and developments such as ' Sunriver and Black Butte Ranch have become valuable assets to the-area. Open lands west of Bend have potential for similar or smaller recreational developments , and related activities which can be developed in concert with the general goals and objectives of this plan". Page 10, add a new paragraph at the bottom of the page to read as follows:' Research laboratories' or other similar activities not including manufacturing ' or fabrication may desire a site not in traditional industrial areas. Their location in an undeveloped area is possible with appropriate review to assure compatible relationships with adjoining properties,. streets, "utilities and the ekpected character of the area. Such facilities wuld need to meet the highest standards of design; appearance and control over environmental impacts. They would need to be reasonable in time and location with respect to the goals and policies of this plan. Page 11, change the first sentence on this page to read as follows: The western agricultural a d or open lands area also is a source of pumice, dirt n some sand and gravel. Page 14, change the table to read as follows: ' Residential Density Gross Acres or Net Units Per Designat-ians Square Feet Per Unit Gross Arse Rural 5 Acres 0.2 Suburban •2-1/2 to 5 Acres 0.4 - p.2 ' 1 to 2-1/2' Acres 0.2 - 0.4 Suburban High 20,000 - 40,000 sq. ft. 2.2 1.1 Urban Standard 6,000 - 20,000 sq. ft. 7.3 2.3 Urban Medium 2,000 - 6,000 sq. ft. 21.7 7.3 Urban High 1,000 - 2,000 sq. ft. 43.0 - 21.7 - and the corresponding paragraph from Urban low density residential to Suburban high density residential ' r y _ VOl 30- PAGE 5J20 , Page 18, change page, beginning with Urban Standard Residential Areas Urban Standard Residential Areas - 1. In areas with an existing community sewer system or in areas within the community facilities planning area where future sewer construction is financially committed and scheduled by an appropriate public entity within B period of five years of the date of an application for development: , 6,000 - 14,000 square foot lot size Requirements: - Community sewer and water system or ' Septic tank, drain field, dry sewer and community water system. 2. In areas outside the community sewer facilities planning area, but within a development alternative area for a fu ture--community -sewer system-or in areas within the community sewer facilities' planning area where future ' sewer construction is not scheduled within a period of five years-of the date of an application for development: 14,00D - 20=000 square foot lot size Requirements-: - Preplanned subdivision or land partition Community water system , Septic tank and drain field Multiple Family Areas - ' 1.. In areas with an existing community sewer system m 3n -areas within the community facilities planning area where future sewer construction is ' financially committed and scheduled by an appropriate public entity within a period of five years of the date of an application for development. 1,000 = 2,000 square foot/dwelling unit , Requirement: - Install community sewer and water system 2.,000 - 14,000 square foot/dwelling unit Requirement: - Community sewer and water system or ' - Dry sewer, septic tank, drain field and community water system. 2. In areas outside the community sewer facilities planning area, but wit:hitt a development alternative area for a future community.~sewar system or in areas within the community serer facilities planning area where future sewer construction is not scheduled within a period of five years of the ' date of an application for developments 14,000 - 20,-ODD square foot/dwelling unit Requirement: - Preplanned development - Community water system , ' -2- Septic, tank and drain field VOL '30 FAcE 521 ' Page 35, change the fourth sentence in paragraph three to read as follows: New residential developments should consider the need--€or pe-de&trian•:and- , bikeway facilities,..par,titularly-_- as--indicate-an the general plan. Change the third sentence of paragraph four to read as follows: No overhead utility lines should be allowed in any new urban density develop- ment -and -a long-range program should be initiated to .bury-. these,--lines. in- ' existing areas. Change the third sentence on the last paragraph to read as follows: ' A tree planting program should be developed for established parts of-the community which are without trees and encouraged in all new developments. ' Page 31, delete the last sentence of the first paragraph. ' Page 36, change number 41 to read as follows: ' 41. Sidewalks should be required on both sides of-residential streets in areas of urban densities unless the developer plans,-dedicates and improves ' an alternate system of walkways and--:trails to_: pra.vidS. -adequate, pedestrian circulation within .the-.residential.area. Change number 42 to read as follows: 42. Sidewalks, trails and pedestrian ways should be considered for. new I developments. Page 37, change number'49 to read as follows: - ' -49. All public utility facilities such as power, telephone and cable TV should be located underground in new urban density developments. - - ' Page 40, add a new paragraph to the Highway commercial area to xead'as follows. ' The area between South Highway 97 and Parrell Road is intended to reflect the potential for extended highway commercial or medium'-density residential. Extension of highway commercial to Parrell Road may be feasible when it is ' found after hearing, site plan review and analysis of the impact on adjoining properties that the development is in the public interest. , Page 44, add a new policy under No. 4: 5. Industrial development is encouraged that will not impair the quality of surface or ground water nor air resources. -3- , - ' voL 30 PAGE 522 Page 45, No. 3, revise to read as follows: 3. Continuing efforts should be made to upgrade the appearance of existing ' industrial areas and to eliminate adverse waste discharge and air quality conditions. Page 45, add No. 7, to read as follows: ' 7. The sawtooth pattern symbolized on the general plan map indicates a flexible.boundary between uses. Page 55, No. 24, revise to read: ■ 24. No public land declared surplus by a governing body should be disposed of without first having been reviewed by other governing bodies for suitability for public use. ' Page 55, add No. 25; to read as follows: 25. The community should make a concerted effort to preserve access to.the river and to augment the river park system whenever pDssible.. Page 587 No. 6, change to read as follows: 6. City shop and storage facilities should be consolidated. The present county shop site is a potential location. Page 59, change the second sentence of the third paragr.aph'to -read -as follows: The systems outside the city are small and may present problems in the future ' as urban densities increase and additional users are added to those systems. Page B2,, add before Implementation: Urban Grnwth Boundary ' The Urban Growth Boundary is defined on the General Plan map. This boundary establishes the area in which future urban services and development will tie ' encouraged. The goals and policies of this plan will foster orderly growth and development in this area. Page 83, paragraph 3, change to read as follows: VCS 30 PAGE 523 Plan Amendments - - - The Planning Commission shall-review and 'report -each fee Sport may port he body Procedure. to Comprehensive Plan to the governions rc . T of uacy o such rec as se nary the ede g hearing velo d t n . , e e appropria after clude, in p th that the plan continues to guide for the planuby-tfiling insure Individuals may petition for changes quest for ferring forms E ' by re the Planning Commission on may lan change. The governing body y hearing and recommendation - r review f , p o such a change to the Planning Commission nd Planning Commission shall *hold one or •more hearings in the public d t y a o The governing bo iving notice of the hearing to consider the proposed change affected. particularly ce to area es n h g , g a val di na general and, in case of individual map c hall recommend to the governing body'app ' The Planning Commission s dification of the proposed plan change. approval or mo objectives, policies and shall be consistent with the goals, ll' h l ' a Plan.changes changea shall statement of intents of the plan or thneseinguidelinividualereques s a A to reflect new policies. t the change is warranted dnbenefit,formthea e th dd h Uel ' a an nee demonstrate demonstrate ic r other specific facts that demonstrate pub a a change. intain records of all amendments to the plan in a ' The governing body shall ma nvenient for the public use. form co -5- ' 30 r 524 PHILIP C. PATTERSON ARCHITECT AIA LANGFORD AND STEWART PLANNERS-URBAN DESIGNERS - A I P JANET J. HUENERS, OFFICE MANAGER 45 HAWTHORNE MEDFORD, OREGON 97501 TELEPHONE (503) 772-5203 November 1975 To: The Bend Area Planning Advisory Committee The Bend City Commission The Deschutes County Board of Commissioners The Bend Planning Commission The Deschutes County Planning Commission Gentlemen: We are pleased to submit herein Part III, The Bend Area General Plan. This report together with Parts I and II constitutes a comprehensive plan for the Bend Urban Growth Area. We believe that the concepts and recommendations in the plan realistically recognize existing conditions and attitudes and that the plan can provide a guide for the future development of the entire community. Recognition of the concepts, objectives and statements of intent set forth in the plan will assist in this process so that future growth can truly be progress. It is hoped that the implementation of this General Plan will help the community avoid some of the very serious problems it will face as growth occurs. We are indebted to the Bend Area Planning Advisory Committee for their support through the many meetings involved in their participation in the planning process. Mr. Lorin 10 organ and Mr. John Hossick have been a source of support and assistance throughout the program. We are also indebted to Mr. Richard Bladorn of the Oregon State Division of Highways for his considerable assistance in the preparation of the circulation element of this plan. The cooperation of the Bend School District and the Bend Park and Recreation Department has been invaluable. We greatfully extend our thanks and appreciation to all for their time effort and understandin g. , Respectfully submitted, ANGF D & STEWART ON / PATTERS L Ned M. Langford NML:jjh PHILIP C. PATTERSON AIA NED M. LANGFORD LYLE A. STEWART AIP ' VDL 30 C'ACE 525 FOREWORD This is Part III of a three-part report which comprises the General Plan. These parts are: Part I - Existing Conditions Part II - Economics and Population Part III - The General Plan Parts I and II provide the foundation in facts, assumptions and projections used in the development of Part III, The General Plan. The General Plan, includ- ing its three components, was prepared for the City of Bend and Deschutes County in cooperation with the Bend School District, the Bend Park and Recreation Depart- ment and the Oregon State Division of Highways. - i - n JO FACE VOL E OF CONTENTS TABL Page No. INTRODUCTION 1 GENERAL GOALS AND OBJECTIVES 3 GENERAL POLICIES AND RECOMMENDATIONS 4 THE GENERAL PLAN 6 Land Use 7 Open Lands 9 Residential Areas 11 Commercial Areas Industrial Areas 38 43 Public Facilities 45 Schools 46 Parks Fire Stations 49 56 Public Buildings and Shops 56 Solid Waste Disposal 58 Sewer and Water Services 58 Circulation 63 Community Appearance 77 Implementation 82 - ii - VOL n 30 PACE 52+y 1 ATES LIST OF TABLES AND PL Page No. TABLE NO. 1 Minimum Street Right-of-Way and Basic Improvement Standards for Urban Subdivisions 69 2 Minimum Street Right-of-Way and Basic Improvement Standards for Suburban Subdivisions 70 3 Minimum Street Right-of-Way and Basic Improvement Standards for Rural Recreation Subdivisions and Rural Subdivisions 71 PLATE NO. 1 Vicinity Map iv 2 3 Variations in Development Patterns Variations in Housing Type and Major Street Access 21 22 4 Re-Subdivision Study - Existing Conditions 24 5 6 Re-Subdivision Study - Proposed Subdivision Pattern Pre-Planning Study - Large Lot - Future Pattern 25 Pre-Planned 27 7 Pre-Planning Study - Final Urban Pattern 28 8 Population Distribution - Existing and Projected 32 9 Existing and Projected School Enrollment 47 10 School Plan 48 11 Park Plan 52 12 Bikeway Standards 53 13 Fire Station Plan 57 14 Sewer Facilities Plan Area 60 15 Circulation Plan 68 16 Street Modifications 73 17 Landscaped Median on Greenwood 75 -iii - r 30 FACE 528 SANDY I HEPPNER 97 CONDON MAUPIN•~ L--, I 19 - - GATES 19 DETROIT CITY DANHA SPRINGS ~I I 1 J E F F SO N ' W H E L E R I MADRAS 2 2 MITCHELL j / I G R A N T / - J 1 97 6 I SISTERS I PRINEVIL E R DMOND 1 L l PAULINA BEND SUNRVER ' D E S C U T E S L- OAKRIDGE I BROTHERS LifATtPT IA PINE BURNS _ - GILCNRIST CRESCENT i I CHEMULT 31 SILVER I H A R N E Y I I LAKE L A K E SUMMER LAKE i I - SUMMER LAKE 6 K L A M A T H VICINITY MAP I~ 14 9 KLAMATH FALLS L AKEV IEW PLATE I 66 I 'va 30 ? 529 THE GENERAL PLAN INTRODUCTION In the broadest sense, planning seeks to guide future development of an area within a framework of goals and objectives which are consistent with the physical characteristics, attitudes, 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 protect the future health, safety, welfare and convenience of the citizens. The strength of such a plan lies in its comprehensive approach to the problems of urban growth. It deals with the many public and private uses of land, setting forth relationships and recommendations in graphic and descriptive form as a document to serve as a guide for future growth and change . The general plan provides a basis for coordinated action by enabling various public and private interests to undertake specific projects with a consistent under- standing of community goals and objectives. The plan functions as a working frame of reference for government officials and administrators by establishing community policies and by specifying methods and standards for implementation of these policies. Public facilities, such as schools, parks, streets, 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. These same community policies serve individual property owners and private interest groups as a means of evaluating their individual decisions in light of com- munity objectives. They are able to determine how their individual interests can best be served in a manner which is consistent with the plan. They are assured by the plan that once they commit their investment to the land, there will be a reasonable continuity of land policies which will protect their interests. The plan also provides a guide to the various public and private utilities charged with the responsibility of providing services to the community. Future service demands can be anticipated and facilities planned so that development can take place in the most economical and timely manner. I i n any area, each ind vidual and organization participates in some way in the planning process. The community planning process is the continuing effort to coordinate short-range and long-range private and public actions towards the fulfillment of generally accepted overall community goals. The general plan provides the foundation for the planning process by establishing long-range goals and objectives and by providing, -1- VOL 30 FAGE 53"J through its various elements, an integrated view of future public and private develop- S ment patterns in the community. It is not the last word, nor is it the first. Rather, it is an important tool to help the community identify problems and to take steps neces- sary to solve them before the cost of desirable solutions is beyond the community's economic capabilities to achieve. The Planning process is in itself a means of constantly evaluating the general plan. It is essential that the plan be adaptable but this must not be interpreted to per- mit piecemeal amendments that disregard the basic relationships established by the , original effort. Proposed changes must be carefully considered in terms of possible overall effects on the entire community. Accommodation of a proposed development which appears very desirable on the surface may, under a thorough investigation with reference to the plan, prove costly to both the future public interests and to committed private investments. Adherence to the policies developed in the plan provides a means of protecting existing public and private investments and values. The general plan is not a zoning plan. However, zoning is one of the important legislative tools available to help implement the plan. Any changes in zoning which occur are subject to a public hearing and a specific decision by the governing body. The greatest single problem between the plan and zoning activity is timing. Some areas suggested in the plan for different kinds of land uses can only be justified at some time in the future when sufficient population growth has occurred to warrant the development or when public facilities are available to support that development. All zone changes should be considered in relation to the general plan and this serves as one of the continuing means of evaluating the plan. If zone changes are contemplated which are contrary to the plan, the community should first amend the policies and con- cepts in the plan before a change of zone is made. This process insures that each petition for rezoning is considered in light of the best interests of the entire community. The plan recommends appropriate uses for various areas and attempts to provide a maximum range of choice in the planning area within the limits of community living. If there is to be a choice, various areas must be guarded against intrusion of other uses which will limit or destroy the privacy of homes or the proper economic functioning of areas of commerce or other special values. If there is to be choice which justifies a long-term investment in homes or businesses, areas must be set aside for different types of uses. If all uses are intermixed, there is, in fact, no safe choice for any indi- vidual kind of use. The plan must be implemented if it is to be of value to the community. The dif- ference between the plan as an empty gesture of community concern and the plan as a vital instrument of civic betterment hinges upon the involvement of both public and pri- vate sectors of the community in its realization. It involves extensive daily contact with public groups and individual citizens, the administration of appropriate codes and ordinances which influence development, capital improvement programing for the ex- penditure of local governmental funds, and the continuing refinement of the plan in special circumstances such as the central business district, park and recreation or -2- VOL 30 SAGE 531 community appearance. The efforts applied in the continuing planning process extend the plan from the present to the future accomplishment of its goals and objectives. The general plan provides basic guidelines with which the community can chart a course for change with some assurance that the result will be progress. The benefits of community living that we enjoy today are the result of what was done yesterday, and the benefits for future generations will result from what we do today. GENERAL GOALS AND OBJECTIVES The purpose of this plan is to attempt to describe a pathway into the future. It is more apparent now than ever before that the future will be as different from today as today is from yesterday. Change is with us constantly and occurs at a rapidly increas- ing rate. Our choice is not whether change should occur, but rather how and where it should happen. In our society, communities are created over a period of time as the combined result of thousands of apparently unreleated individual decisions. Lacking some overall frame of reference or goals, the results most often have been disorder, confusion, pollution, waste, congestion and ugliness. There are exceptions to this rule, but, unfortunately, they are few. The goals and objectives set forth in this plan are directed toward establishing a means of recapturing the character and the quality of the Bend Area. It is hoped that they represent a means of retaining the character of Bend as future growth occurs. Although rapid growth in the Bend Area has created many problems, it need not destroy the quality and livability of the area. However, action must be taken immediately if the Bend Area is to preserve the unique qualities which have made it one of the most livable communities in the state. The several goals and objectives that served as a framework in the preparation of this plan are set forth below. All of the policies and recommendations made in this plan were weighed against these interrelated concepts for the future. The goals and objectives are: 1. To retain and enhance the character and quality of the Bend Area as growth occurs. 2. To provide a sound basis for urbanization by establishing proper relation- ships between residential, commercial, industrial and open land uses. 3. To encourage city and county cooperation in the provision of urban services in order to bring about a more orderly development pattern and thereby avoid unnecessary tax burdens and excessive utility costs usually associated with scattered, unrelated development. 4. To recognize and respect the unusual natural beauty and character of the area so that the feeling of Central Oregon can be retained within the com- munity as growth occurs._ 3 - vas 30 FACE 532 I 5. To significantly improve the appearance of the community, particularly along Highway 97, as one means of recapturing the individual and distinct identity of the Bend Area. 6. To provide a safe and coordinated transportation and circulation system to bring about the best relationships between places where people live, work, shop and play. 7. To bring about a general increase in population density throughout the com- munity in order to facilitate future public transportation systems as energy supplies diminish. 8. To retain and enhance desirable existing areas and to revitalize, rehabili- tate or redevelop less desirable existing areas. 9. To continually strive for excellence in all private developments and public services within the constraints of economic reality. Economic reality should not be interpreted as maximum profit for minimum investment or as maximum local budgets for maximum services. 10. To encourage and promote innovations in development techniques in order to obtain maximum livability and excellence in planning and design for all new developments. 11. To continually explore, within the limits of the public health, safety and general welfare, innovations in development or regulations in order to romote maximum livability for the people of the community . p This plan is based on goals and objectives which will not be easily attained. They will demand a continuing search for excellence in public and private activities and will require the cooperation and support of the people in the community as well as a willingness to work. together on the part of all agencies of local government. The preparation of this plan as a joint county-city effort indicates that the commitment necessary to realize these goals is possible. This plan can become a means of directing community efforts toward sound future growth, better understanding be- tween private and public efforts and a more beautiful and livable community to the benefit of the people of the area both individually and collectively. GENERAL POLICIES AND RECOMMENDATIONS The following major policies and recommendations relate to the goals and ob- jectives of the plan. In the body of the report these basic policies are further refined for each of the various elements of the plan. -4- 1 VOL 30 PACE 533 1. Urban development should be encouraged in areas where services can be provided and in a manner which will minimize tax costs related to neces- sary urban services such as schools, parks, highways, police, garbage disposal, fire protection, libraries and other facilities and services. 2. Standards for development within the urban growth boundary should be prepared jointly by the city and county. 3. Future development and local development standards should recognize and respect the character of existing areas. Maximum flexibility in develop- ment should be encouraged in undeveloped areas. 4. Residential developments should be located so that they are convenient to places of employment and shopping facilities, and they should be developed in ways which are consistent with the character of the topography and soils on the site. 5. Residential areas should offer a wide variety of housing types in locations best suited to each and should be developed in a way which will not create health or erosion hazards. Densities recommended on the plan should be recognized in order to maintain proper relationships between proposed public facilities and services and population distribution. 6. Commercial facilities should be allocated in a reasonable amount and in a planned relationship to the people they will serve. Efforts should be made to separate commercial and noncommercial uses through the use of walls, fences or landscaping and open space. 7. Strip commercial uses should be directed to those areas where a commercial development pattern of this kind already exists. Any future expansion of com- mercial strips, if any, should be very carefully considered so that they do not cause unnecessary traffic congestion and do not detract from the appearance of the community. 8. Industrial areas of the community should be located where necessary ser- vices can be provided and with good access to transportation facilities. Con- tinuing efforts should be made to up grade the quality of existing and future industrial developments as the area grows. 9. Schools and parks should be located to best serve the anticipated population and provide maximum service for the greatest economy in terms of expendi- ture of tax dollars for both present and future residents. Sites should be acquired in advance of need so that the best are available for these vital public facilities. r -5- I %a 30 FACE 53 4 I 10. Streets and highways should be located and constructed in a manner which will accommodate both current and future traffic needs and they should be designed to maintain the character and quality of the areas through which they pass. 11. Off-street parking should be provided in adequate amounts so that traffic lanes of streets will not be unnecessarily congested by parked vehicles dur- ing peak hours. Parking lots should be surfaced and landscaped to make them attractive to use rather than their being simply open, barren, expanses of asphalt. 12. Mass transit, bicycle and pedestrian transportation and circulation systems should be recognized as legitimate and desirable future alternatives or sup- plements to complete dependence upon the automobile. 13. Community appearance should continue to be a major concern and the subject of a major effort in the area. Street-tree planting and landscaping, sign regulations and building improvements will all contribute to an improved environment, particularly along Highway 97. Major natural features such as rock outcrops or stands of trees should be preserved as a community asset as the area develops. This can be accomplished in subdivisions through , careful siting of houses and streets. THE GENERAL PLAN I Throughout most of its history, the Bend Area has been a quiet community in Central Oregon. However, since about 1965, the community has experienced an extremely rapid growth rate which has significantly altered the character and quality of the Bend Area. Traffic congestion and strip development along 97 have provided obvious examples to every- one that growth can create very real problems. In fact, the apparent character of the com- munity has changed radically since Wall Street was the entrance to downtown and the most obvious asset in the community was Drake Park. It is partially in response to these changes that the community chose to prepare a comprehensive plan. This same general concern has led to the formulation of the basic objective of this general plan which is to retain and enhance the character and quality of the Bend Area as growth occurs. In order to plan for the future of any community, it is necessary to evaluate the existing factors and influences and to make carefully considered assumptions of what the future may hold in terms of quality and quantity of growth. The more important factors and influences affecting planning considerations in the area are the natural features and existing development pattern, and the role of Bend as an urban center in Central Oregon. Another very important factor is the availability of services within the Bend urban area. The influence of natural features and the character and quality of the existing development patterns are discussed in length in Part I of this plan, Existing Conditions. F_ I ~J . vaz 33 FAu 535 The availability of community services is usually a strong determinant in the location and intensity of urban land uses. Water and sewer service customarily combine to make development possible at urban densities. However, in the Bend Area, water service and unusual geology have made urban development possible. Lack of easily accessible surface water and a very deep ground watertable lying beneath layers of rock have encouraged development of community water systems. The fact that the entire area is underlain with rock has discouraged installation of sewers. The nature of the underlying geology has led to the extensive use of drill holes as a means of sewage disposal. This method appeared to be quite satisfactory for many, many years. However, recent rapid growth in the community has raised serious questions regarding future pollution of the regional watertable. The State Department of Environmental Quality has directed the City of Bend to provide a sewer system and has largely disallowed new drill holes in the city. In county areas outside of the city, drill holes are no longer permitted. This change in sewage disposal methods presents the community with the difficult and costly problems which will greatly influence future development in the Bend Area. The General Plan for the Bend Area is a comprehensive plan. It includes approx- imately 61 square miles of land and is a single plan which relates proposed land uses to each other both inside and outside of the city. In addition, it ties both the city and the urbanizing area of this part of Deschutes County together with an integrated network of major streets and roads. A map showing the General Plan is included with this report. There are many land uses in the plan ranging from open, rural areas of the county to the many urban uses in the City of Bend. The plan recommends appropriate uses of various areas and attempts to provide a maximum range of choice in the plan- ning area within the limits of community living. If there is to be a range of choice, various areas must be guarded against the intrusion of other uses which would limit or destroy the privacy of homes or the proper and economic functioning of areas of commerce or industry. If there is to be a choice which justifies a long-term invest- ment in homes or businesses, areas must be set aside for different types of uses. If all uses are intermixed without proper standards or consideration for their surroundings, there is, in fact, no safe choice for any individual kind of use. Land Use - The kind, location and distribution of land uses is a basic element of any general pl an. Although the public facilities and circulation elements are important and should be developed in concert with land use, their numbers and characteristics are directly related to future residential, commercial and industrial areas. The land-use element of the plan should reflect to some degree the population and economic forecasts made for the planning area. However, it is not possible or reasonable to show on the plan the exact amount of land needed to accommodate anticipated residential, commercial or in- dustrial growth. If this were done, the plan would indicate the only land in the area that could be used for any given purpose and would create a land monopoly for designated -7- vo33 PAGE 536 t properties. In addition, most population and economic forecasts made for periods of ten to twenty years in the future are made to provide a "sense of scale" or "level of expectation", rather than to serve as a definitive statement concerning future growth. Most general plans are prepared for a time when the area is fully developed or "saturated", or for a specific time in the future, usually twenty years, and both methods have advantages and disadvantages. The saturation plan makes possible the development of a concept for the community when it is fully urbanized, whenever that may occur. In this way, the total requirements for schools, parks, and other public facilities can be estimated and the sites acquired well in advance of need. However, the time span between the present and full development is most often so great that the plan may be largely meaningless as it relates to the more immediate future and thereby loses its validity as a useful guide for community action. Further, in an era of accel- lerating change such as ours, a plan which attempts to project present development methods and social conditions twenty-five to fifty years into the future may well be foredoomed at its conception. General plans based on forecasts for a specific time in the future usually cover , a much shorter period than do saturation plans. This eliminates some of the problems of potential change in technology and gives some sense of scale of the magnitude of problems which the community will face. Such plans also imply, if not state, a rate of growth which can be translated into probable priorities for community action relat- ing to various major elements of the plan. However, many forecasts are made for a period of twenty years or longer and history has proved very few to be accurate. In- fluences which are impossible to foresee such as an individual management decision on the part of one major employer to enter or leave an area can significantly alter , growth patterns in smaller urban centers. In addition, plans based on a forecast for a specific future year usually do not look beyond that year and, if the growth rate exceeds the forecast, the plan is no longer a useful community guide. In the case of both the saturation and forecast period plans, it is recommended that the plans be re- viewed and revised as necessary every five years. If this is necessary, and it is, there would seem to be some question regarding the validity of preparing a saturation plan or a plan based on a twenty-year forecast. The Bend Area General Plan is not a saturation plan nor was it prepared for a specific future year. The population and economic forecasts included in Part II of the plan were made for 1985 and do provide a sense of scale for future growth. These fore- casts were used as a point of beginning in the allocation of land uses and public facilities. However, past zoning and planning decisions made by the county and city, the availability of community services and the existing development pattern greatly influenced the recom- mendations contained in the plan. For example, residential uses and subdivisions have been scattered over the planning area and have committed various sections to residential use. The plan recognizes this commitment but the resulting area greatly exceeds the anticipated population growth. This is illustrated by the fact that the population forecast indicates about 45, 000 people in the area by 1985 and the residential areas on the plan have an estimated holding capacity of approximately 259, 012 people at the highest indi- cated densities. In most cases, the need for public facilities has been related to the -8- J _ , 30X537 va population forecast rather than to the holding capacity so that, in some areas, the number of schools or parks does not seem appropriate to accommodate the amount of residential development shown on the plan. Development pressures and future needs for public facilities will not be the same throughout the area and an attempt has been made to recognize these variations in the general plan. In addition to variations in anticipated growth pressures, there are also significant differences in the characteristics of the existing development patterns in various parts of the planning area. These differences should be recognized and should be one of the factors considered relating to the character of future development. If, in any area, development has been sufficient to have established a particular char- acter, this character, if desirable, should be protected. Any new growth in an estab- lished area should recognize and respect its particular character and should not be so at variance with surrounding developments as to cause the nature of the local en- vironment to materially depreciate in character, appearance, value or residential privacy. This consideration should include residential, commercial and industrial districts, or even an entire acknowledged, identifiable community or neighborhood within the planning area. Local codes and ordinances should include standards similar to those in force at present for established areas as a means of protecting the character of these areas. Local regulations should not discourage variety in design in established areas so long as it is compatible with existing development patterns. The present use of planned unit developments with public hearing procedures is a useful and effective means of per- mitting variety and, at the same time, of recognizing the need for capatibility. How- ever, in order to encourage variety in undeveloped areas, procedures should be simplified if possible so that no unnecessary steps are involved that will excessively extend the time required for review and approval as compared to that needed for a more standard development concept. In keeping with the foregoing discussion of general land use considerations in the planning area, the following policies were used to guide the preparation of the land use element of the plan: 1. All new developments should recognize and respect the particular character of established areas in which they locate. 2. Innovations in concepts and flexibility in design should be encouraged in new developments in those more undeveloped sections of the planning area where no particular urban character has been established. Open Lands - The open land section of the plan deals with three basic types, forests, agricul- tural or open, and areas of special interests--private and public open space. This section of the plan was prepared in conformance with the following general policies: -9- VOL Agricultural or Open Lands - 30 fAcE 538 1. None of the land within the planning area is suitable for agricultural use. 2. Agricultural or open uses on the plan should be preserved as long as possible as useful open space until needed for orderly urban growth. Areas of Special Interest Private and Public Open Space 1. The banks and canyon of the Deschutes River should be retained as public or private open space throughout its entire length within the planning area except in the intensively developed central part of the community. 2. Major rock outcrops, stands of trees or other prominent natural features should be preserved as a means of retaining the visual character and quality of the community. The open land areas designated on the General Plan include much of the area outside of the Bend Urban Growth Boundary. The largest concentrations of these uses are located along the western side of the planning area. Although these lands were con- sidered in the Bend Area General Plan, it is anticipated that most of the area will not be needed for urban development within the period covered by the plan. Forest areas are shown on the plan in three different locations. The area in the southwest is owned by Deschutes National Forest and will be managed as a multiple use area with very little timber cutting. It serves as a buffer to the urban area, provides scenic views enroute to the Cascades to the west and is used for recreation by residents and visitors to Central Oregon. The other two areas symbolized as forest are the silva- culture research laboratory north of Portland Avenue and the nursery north of Butler Market Road. Both are expected to remain in use for the period covered by this General Plan. Agriculture or open lands cover extensive areas along the western side of the planning area. The planning area includes a great deal more land than will be needed for urban uses by 1985. This classification is intended to serve as a holding category and to provide opportunity for tax differentials as urban growth takes place elsewhere in the planning area. Most of the area has little or no agricultural value and, with a few ex- ceptions, only marginal value for timber production. However, some of it does have deeper soil than found elsewhere in the planning area and does have good future potential for urban development. The area also has some potential for recreational development. The Bend Area and Central Oregon are desirable recreation places and developments such as Sunriver and Black Butte Ranch have become valuable assets to the area. Similar or smaller recreation areas could be developed in the area west of Bend in response to general summer activities and to Mt. Bachelor, a short distance to the west. 1~ ICJJI L t F n -10- I vot 30 Tim539 The western agricultural or open lands area also is a source of pumice and some sand and gravel. The classification will help isolate these resource extraction opera- tions from incompatible urban uses. Other areas included in this category are located at the extreme north and south ends of the planning area. The northern site is owned by the Bureau of Land Management and it is being considered as a location for a major sewerage treatment plant site and spray irrigation field. The southern area, like the western section, may have some potential for development beyond the time considered in this program. Areas of special interest represent potential private or public open space. These areas have special characteristics and should be preserved as growth occurs. The main area is a strip along the Deschutes River which is intended to include the canyon of the river. The scattered areas are mostly rock outcrops or ridges common on the east side of the Bend Area. These high points break the line sight so that the area retains a feel- ing of undeveloped open space. The intent is to retain this character as the community grows. These open areas could be retained in private ownership as part of a develop- ment and included in housing density estimates so that developers are not penalized for preserving them. They could also be dedicated to the public as undeveloped parks or open space sites. The largest single area in this classification is the Bend Country Club and this facility should remain during the period included in this program. Residential Areas - The residential section of the general plan was prepared in conformance with the following general policies: 1. All new residential developments should comply with housing densities shown on the plan, regardless of type, site size or timing as related to other de- velopments. 2. Appropriate areas should be designed for various residential densities to provide a maximum range of choice with properly related amenities and facilities. 3. All residential areas should be provided with services and facilities neces- sary for safe, healthful, convenient urban living consistent with the density of development. 4. Residential development should be coordinated with other land use elements and community facilities which are consistent with projected housing densities. 5. Variety in types of residential uses consistent with the housing density and character of the area should be encouraged. 6. Various kinds of residential uses should be protected from the intrusion of incompatible uses in order to preserve and stabilize values and the character of the area. -11- VOL 30 PACE 540 , i 7. t) High density residential developments (1, 000 square feet per dwelling un should be permitted only in areas with community water and sewer services and their locations should have good access to major streets and be near commercial services and/or public open space. 8. Rehabilitation or redevelopment of older residential areas be encouraged. 9. Efforts should be made to provide safe, sanitary housing for low and moderate income families and the elderly. 10. Outlying residential developments should be consistent with the physical characteristics of the terrain and soil on which they are located and thereby avoid the creation of health hazards, excessive erosion and blight. 11. All residential subdivisions, major or minor, should be preplanned to per- mit future development at housing densities shown on the general plan and no buildings should be located so as to interfere with future streets, lots, or easements buildin setbacks . g , A major objective of this general plan is to establish residential areas that are safe, convenient, healthful and attractive places to live which will provide a maximum range of residential choice for the people in the planning area. The plan also recommends a moderate increase in the overall housing density within the planning area. This increase in density is intended to recognize the unusually high cost of providing community services and to encourage slightly greater concentrations of population in order to reduce travel distances and conserve energy in the future. The development of desirable residential areas applies to maintaining or improving existing districts as much as to proper de- velopment of new sections. The term density describes the quantity or area of land per dwelling unit regardless of housing type. A 10 acre tract of land may contain ten separate single-family homes or, it may contain one ten-unit apartment building. In either case, the density is one dwelling unit per gross acre and the number of units per acre obviously is the governing factor for population distribution. Density is a basic unit of measurement in determining future requirements relat- ing to the number of schools and parks, the capacity of water and sewer systems, the volume of traffic on streets, the size and amount of shopping and service-commercial facilities, and the number of electrical power and telephone connections. Once the several densities have been agreed upon, indiscriminant changes of or within areas can cause serious imbalance in the services and facilities mentioned above. The most com- , mon mistake is to increase density because this can lead to overcrowded schools with no undeveloped land available for expansion or for a new school, lack of open space, under- sized sewer and water systems, and traffic congestion on streets that are loaded far in excess of their design capacity. Conversely, a significant decrease in density can lead to a considerable waste of community capital resources and facilities if they are not needed or used by the resulting smaller population. - 12 - r F VOL 30 PACE 541 The moderate increases in density recommended in the general plan are slightly smaller single-family lots than are now permitted, a greater amount of area for duplexes or garden apartments, and a greater concentration of population in a- partment developments in selected locations than is permitted at present. Smaller single-family lots and a larger number of apartment developments within the com- munity should facilitate the installation of community water systems, sewer systems, streets, and other utilities including electric power, natural gas and telephone ser- vices. Local costs relating to the installation of underground utilities are exceptionally high because of the ever present rock. If lots are smaller and population more closely grouped, water lines, sewer lines and other utility lines will be shorter and will re- quire a smaller capital investment on the part of the people in the community. In addition, fewer miles of streets will be required and travel distances will be shorter. In this way, energy consumption can be reduced and possibilities for providing some sort of public transportation will be greatly enhanced. The several residential classifications are intended to guide the future growth of the community, but in the process, to encourage variety in housing types, particu- larly in undeveloped areas. The ten acre example given above, resulting in one dwell- ing unit per gross acre, is a case in point. Another example could be a five acre par- cel of property located in the 6, 000 square foot density range. The plan would permit a typical bt size of approximately 6, 000 square feet per dwelling unit. Five acres of land converted to square footage terms is 217,800 square feet. If the five acres were subdivided into conventional 6, 000 square foot lots, approximately 25 percent of the gross area would be developed into streets. This would result in approximately 54, 500 square feet of the original 217, 800 being "lost" for residential development. The net area would be 163,300 square feet of land available for houses and would amount to a- bout 27 lots at 6, 000 square feet each. If on the other hand, the five acres were not developed as a conventional sub- division but instead were developed using a condominium concept with a single building or several buildings, the entire original 217, 800 square feet could be mathematically divided by 6, 000 to yield a dwelling unit count of 36, a gain of 9 units over the conven- tional approach. The latter example assumes that the property is accessible to ade- quate roads where land for additional streets would not be required. The resulting housing density possible under a planned unit development or condominium concept yields the same number of dwelling units for the five acre tract as would be possible with a conventional subdivision at a 4, 500 square foot per dwelling unit density stan- dard. Zoning standards should recognize this possibility and establish appropriate density requirements which will lead to developments generally in conformance with the residential standards of the general plan. The location of different residential densities designated on the plan was made on the basis of population growth and distribution estimates, existing development pat- terms, natural features and conditions, general accessibility, probability of commer- cail services, and previous land use and zoning decisions made by the city and county. The degree to which these factors or combinations of factors influenced residential -13- VOL 30 FACE 542 I bl b Th i e e pro a ng area. density designations on the plan varies throughout the plann availability of community water and sewer services also had a strong influence on distributions of higher residential densities. This consideration led to the develop- ment alternative symbol on the map which will be discussed later in this residential section. All residential densities indicated in the development alternative symbols are combinations of other densities recommended elsewhere on the plan. The seven ranges of densities recognized on the general plan are as follows: Residential Density Net Acres or Units per , Designations Square Feet per Unit Net Acre Rural 5 Acres 0.2 , Suburban 2-1/2 to 5 Acres 0.4 - 0.2 1 to 2-1/2 Acres 0.2 - 0.4 Urban Low 20, 000 - 40, 000 sq. ft. 2.2 - 1.1 Urban Standard 6, 000 - 20, 000 sq. ft. 7.3 - 2.3 Urban Medium 3, 000 - 6, 000 sq. ft. 14.5 - 7.3 Urban High 1, 000 - 3, 000 sq. ft. 43.0 -14.5 Rural residential areas are intended to provide for residential living and large home sites in an agricultural or open environment. It is unlikely that community ser- vices will be available to most of the areas during the period covered by the plan. How- ever, small community water systems may be needed in some locations because of the high cost of wells. Suburban residential areas are intended to recognize existing developments in a more rural setting. Nearly all of these areas now have community water service and individual sewerage disposal systems. Urban low density residential areas are intended to provide large urban lots for development with a community water system and individual sewerage disposal systems. These areas occur in the eastern and southern parts of the planning area and would be excluded from areas planned for community sewerage disposal systems. Urban standard density residential areas are intended to provide for the most common urban residential densities in places where community services will eventually be available. Most of the areas shown on the plan now have some kind of community water service, are in areas which can readily be served by a community sewer system, or reflect an existing development pattern. I -14- 1 va 30 fAu 543 Urban medium density residential areas are intended to provide for lower density multiple-family developments and all should make provisions for both water and sewer services prior to development. Most of these areas reflect existing de- velopment or zoning patterns in the area. The largest new locations for medium density development are on the east side north of the new hospital, and east of Pilot Butte. Both of these areas should provide for community water and sewer facilities as they develop. Urban high density residential areas are intended to provide for the greatest concentrations of population in the planning area. All should provide for community water and sewer services before development occurs. These areas are located in the central parts of the community, near Central Oregon Community College and near the new hospital. High density residential areas are also intended to accommodate busi- ness and prcfessional offices in a residential setting and some limited medical facilities such as pharmacies or small laboratories. Development alternative areas are intended to recognize the problems of providing for community services prior to development in areas where new growth is expected to occur. This concept was developed to deal with conditions common to the Bend Area and Central Oregon. Virtually all of the Planning Area is characterized by a shallow soil cover over lava rock. This condition leads to exceptionally high costs for installation of underground utilities. The nature of the lava flows and complex underlying geology has also led to the extensive use of dry wells as a replacement for septic tank drain fields. This system is so simple and apparently successful that only about 9 percent of the City is connected to a sewer system. However, in recent years there has been a growing con- cern that this practice will lead to pollution of underground water supplies. The State has recently ordered the City of Bend to install a city-wide sewer sys- tem and has outlawed the use of dry wells as a replacement for septic tank drain fields. It is anticipated that State requirements will become progressively more restrictive in the future. As areas urbanize and lot sizes are reduced, individual sewerage disposal systems become less desirable. It is reasonable to assume that in the future the State will require a sewer system for all residential areas developed at urban housing densities. The City of Bend is now facing just such a situation. Current estimates indicate that sewering the City and expanding its plant, etc., will cost about $28, 000, 000. Of that total, about $17, 000, 000 are related to installing sewer lines in the City. Engineers esti- mates indicate that about 30 percent, or $5.1 million, are additional costs caused by the fact that the sewer lines must be installed by blasting trenches in improved streets through developed areas. In the case of the City of Bend, the problem is not as severe as it might be. Pre- sent indications are that State and Federal funds will cover about $21, 000, 000 of the total cost of $28, 000, 000 for the complete sewer system. This large grant is very unusual and is based on the City's fairly unique situation and the unusually high cost of sewer in- stallation. If development went ahead outside the City at urban densities without sewers, -15- VOL 30 PACE 544 1 it is unlikely that a similar grant would be available in the future to solve a repeat of the same problem. This means that newly developing areas will pay a much higher percentage of the total cost than is the case in the developed sections of the city with , a much longer development history. Population projections made as a part of this planning program indicate that , about 19, 000 people will be added to the Bend Area by 1985. This means the addition of approximately 6, 000 dwelling units provided there is an average of about 3 people per unit. There are about 17, 000 people in the City at present so the population increase , will add more people than now live in Bend. At least as much land and development will be required to accommodate the new population as that required by the present city population. If this growth and develop- ment occurs without provisions for sewers, the present situation facing the city will have been repeated. Discounting inflation, it could cost an additional $5 to $6 million to provide sewers just because the area is already developed. This, together with the $5 million in the City means that the community in general may spend between $10 and $11 million by 1985 simply because sewer lines are installed after the area develops. In addition, each new dwelling unit not connected to a sewer line will require a septic tank and drainfield. At approximately $1, 000 each, these installations will amount to about $6, 000, 000 for the 6, 000 new dwelling units. The $6, 000, 000 for septic systems and another $5-6 million of unnecessary costs for sewers after development has occurred represents a substantial drain on the financial resources of the community. As a com- munity investment, this money would be much better spent for schools, new underpasses, parks, roads, fire stations or other necessary public facilities. Not all new growth will take place under these circumstances. However, unless , steps are taken to guide development differently in the future, a major share of the ex- pected growth will occur as described. The Development Alternative concept is intended to recognize this problem and to discourage development at urban densities until some , provisions can be made for community services. Conditions vary greatly within areas shown as Development Alternative. In some , cases they can be served easily by the city sewer system. In other areas, septic tanks and drainfields will work well on larger lots. In still others, septic systems are not satisfactory because of shallow soils, slope or both. In the Ward development south of Bend, the developer has installed a sewerage disposal system and treatment plant to serve his development. Development Alternative areas in that section can easily be converted to urban densities by extending the sewer lines. However, it is a privately owned system and cannot be used by the general public. The wide variety of conditions and problems make specific policy statements dif- ficult. Neither the City nor the County are in a position to provide sewer service to much of the area at the present time. If all goes well, the entire city should be served by 1982 so that lines could be extended outward from the city limits. Some city and county areas located near the city's sewerage treatment plant site east of Pilot Butte could be served now. -16- C The County has just begun to consider becoming involved in this problem and with good reason. Historically, there have been few problems with septic tank drainfields or drill holes in the County. Recently, changes in State regulations have virtually eliminated the use of drill holes for new development and have created an awareness and concern about future growth using drainfields. The County has many problems to consider and much to do in the process of planning and establishing sewer service in the urban growth area. As mentioned earlier, a small area east of Pilot Butte could be served now. To provide service over fairly extensive areas would require formation of a service district and several years of planning and construction. Since there is no apparent problem in the area now, it may be very difficult to get voter approval of a sewer district. The most dif- ficult part of this entire situation is that the problems all lie in the future and there are few if any indications of them today. However, the purpose of any plan is to look to the future and attempt to foresee and avoid problems. If the plan is to be successful, problems must be solved in a con- text acceptable to the people of the community today. It is not possible at this time to set forth detailed and specific guidelines for Development Alternative areas because the options for development are not clear. Will the County initiate sewer service dist- ricts ? Will the State regulations eventually require sewer service? Would large parts of the area be interested in annexation to the City as a means of obtaining services ? How soon will enough new growth occur to make the problems more obvious? These and many other questions may remain unanswered for several years. There are some things we do know about the future. The rock will continue to i make construction cost higher than normal. The rock will probably continue to require blasting. The Bend Area will continue to grow. Growth pressure will increase land values and reduce lot sizes. Smaller lots will not work as well for individual disposal systems. Sanitation problems will result and, eventually, sewers will be required. It is not a question of whether or not sewers will be necessary, but rather, how to minimize the cost. The solution to services and increased housing densities must be a joint public and private of fort. If services are to be provided, the city and county must participate by doing those things which individual property owners or small developers cannot do for themselves. Facility planning for systems, establishment of districts and unifica- tion of standards are examples of functions and responsibilities of local government. As the city and county proceed with these activities, development alternative standards may change for some areas as additional engineering data becomes available. The Development Alternative symbol consists of two colors in each case. The colors correspond in meaning to those used for other residential areas on the map. The color which symbolizes the larger lot size is the recommended housing density for that area without community services. It recognizes lot sizes generally found in the area at the present time. The second color symbolizes the recommended housing -17- • VOL 30 PACE 546 1 density if all community services are provided. If community water service is provided, and if the area to be developed is preplanned to the approximate higher density shown on the plan, lots of less than 2-1/2 or less than 5 acres may be de- veloped. The following general policies are recommended for Development Alter- native are as : Urban Standard Residential Areas - 1. Within community sewer facilities planning area or areas with existing community sewer system: 6, 000 - 14, 000 square foot lot size Requirement: - Community sewer and water system or - Septic tank, dril hole, dry sewer and community water system. 2. Outside community sewer facilities planning area but within development , alternative area for future community sewer system: 14, 000 - 20, 000 square foot lot size Requirement: - Preplanned subdivision or land partition - Community water system - Septic tank and drain field Multiple Family Areas - 1. Within community sewer facilities planning area: 1, 000 - 3, 000 square foot/dwelling unit Requirement: - Install community sewer and water system 3, 000 - 14, 000 square foot/dwelling unit , Requirement: - Community sewer system or dry sewer and community water system , 2. Outside community sewer facilities planning area, but within development alternative area for future community sewer system: 14, 000 - 20, 000 square foot/dwelling unit Requirement: - Preplanned development - Community water system , - Septic tank and drain field - 18 - n va 30 P 547 Suburban and Rural Areas - 1. 2-1/2 - 5 Acre Lot Size: Requirement: - Preplanned subdivision or land partition - Community water system - Septic tank and drain field 2. 5 Acre and above lot size: Requirement: - Preplanned subdivision or land partition - Individual wells or community water system - Septic tank and drain field The development of desirable and stable residential areas is a major objective of this general plan. In urban residential areas, public and private services are neces- sary and desirable for safe, convenient and healthful living. Community water and sewer services are basic to all residential areas developed to urban standards. Once these more basic considerations are met, considerable attention and effort should be directed to establishing and maintaining the most desirable living areas possible within the economic constraints of each development. This philosophy should be extended to the enhancement or rehabilitation of older, less desirable existing residential areas. These areas should be identified and examined individually to determine the exact needs of each and the most appropriate programs or courses of action to solve their problems. Some action has already begun by the city through their community development program. The rehabilitation of exist- ing areas together with a concerted community effort to provide adequate, safe and sanitary housing for low and moderate income families and for the elderly should be high priority programs for future community action. An important concept of this general plan is that a range of choice in residential living alternatives in terms of location, density and housing types should be encouraged within the planning area. Although the plan does not recommend frequent intermixing of densities, it does indicate some variety in densities in many sections of the planning area. It does, however, strongly recommend encouraging variety in housing types throughout the planning area. It also recommends the preservation of natural elements of the landscape such as rock outcrops or stands of trees which will interupt the other- wise continuous urban development pattern. Without some effort to alter this pattern, the planning area will be filled with single-family houses, each single story, each the same distance from the street, each with a two-car garage, and each with a double driveway filled with cars, campers or boats. It is possible that a less rigid and stereo- typed development pattern will find increasing favor in the future. The increasing costs of housing construction has led to an increased use of mobile homes as living units within the planning area. It is possible that future growth will also include a higher percentage of apartments, townhouses or other types of housing which can be constructed at lower costs than the standard single-family house. If other than single-family housing -19- VOL 30 FACE 548 types consistent with designated densities are encouraged, they can add interest and , variety to the urban scene. However, the location of mobile homes within the com- munity should be given special consideration as part of the zoning process in order to , reflect prevalent community attitudes as closely as possible. The character of the planning area will change by 1985. The population fore- cast made as a part of this general plan indicates a population increase of about 19, 000 people over the next ten years. This population increase could amount to about 6, 000 new dwelling units in the area over that period. With the exception of the more inten- sively developed close-in sections of the city, the character and livability of the Bend Area will be as strongly influenced by what happens between now and 1985 as by what exists in the community today. I Future development can recognize the preferred single-family housing develop- ment in a variety of forms. One of the more significant aspects of residential neigh- borhoods is the street pattern. The street system in new areas should be designed so that it provides easy access to each lot from major streets and does not encourage traffic movement through quiet residential neighborhoods. Street alignments should , also provide easy access to schools, parks and convenience shopping areas. Schools and parks should be located within the residential service areas and away from major streets. These public facilities should be easily accessible to the people in the area which they serve without having to cross heavily traveled streets. This kind of neigh- borhood development should be encouraged in new developments within the planning area. It is difficult to superimpose this development pattern on existing areas, but , it can be used as a frame of reference for redevelopment or future expansion of exist- ing residential districts. Variations in street patterns and relative merits of each are shown on Plate 2. Those patterns which leave open space within the residential neigh- borhood have several advantages and would be particularly adaptable to the uneven terrain in the eastern part of the Bend Urban Area. Obviously, it cannot be strictly applied to rural or open areas where population is widely dispersed. However, the basic road network for the planning area does establish a framework for future de- velopment of these relationships. The smaller lot size of a well designed planned unit development does not increase the density in the overall area of the subdivision , necessarily but it does offer advantages in economy and livability. Aside from the assets of useable open space, variety and safety, some of the practical advantages are less land removed from tax roles and lower construction and maintenance costs , through reduced street area and utilization of natural terrain in order to avoid problems of drainage and difficult sites. Such developments will also enhance surrounding residen- tial neighborhoods. Plate 3 shows variations in housing types and major street access possibilities for residential development. Some of the anticipated new growth will occur in areas where the addition of new , housing units will be a problem because of existing development and property ownership patterns. Sections have been developed or segregated into relatively large residential properties ranging from one to ten acres in size and there will be a continuing demand for some properties in this size range. However, as the area continues to grow, history -20- , VOL 30 FncE 549 VARIATIONS IN DEVELOPMENT PATTERNS A - CONVENTIONAL RECTILINEAR 120 LOTS 8500 LINEAL FEET OF STREET C - CURVILINEAR 120 LOTS 8000 LINEAL FEET OF STREET B - MODIFIED RECTILINEAR 120 LOTS 7700 LINEAL FEET OF STREET D - PLANNED UNIT CLUSTER 120 LOTS 7350 LINEAL FEET OF STREET PLATE 2 REDUCED TRAFFIC - ECONOMY IN SERVICES HAZARDOUS THROUGH TRAFFIC-MONOTONY VARIETY - SAFETY - LOWER COSTS- USE OF NATURAL TERRAIN -EXTENSIVE OPEN SPACE VARIETY - NO THROUGH TRAFFIC - USABLE OPEN SPACE IN SMALL PARKS . va 30 PAGE 550 VARIATIONS IN HOUSING TYPE AND MAJOR STREET ACCESS CONVENTIONAL s V O STREET LOOP CLUSTER STANDARD CUL DE SAC Cl idi aoNTAOE RoAa MAJOR STREET ~ NDSCAPED BUFFER STRIP FRONTAGE CLUSTER PLANNED UNIT HI'GHRISE TOWNHOUSE 6 MAJOR STREET flUffER (MALL-) I~~ q o i CUL DE SAC MAJOR STRUT LOCAL STREET BACKUP LOT PLATE 3 VOL 30 T 51 shows that taxes and the pressure for more land for development will generate a strong demand to create additional lots and building sites from these larger properties. The manner in which the original properties are subdivided and where buildings have been placed will become of tremendous importance to the long-range efficient use of the land. In many cases, major land-use problems are built into the original subdivision and, if care is not taken with similar areas in the future, identical situations will again be created. A common problem in suburban areas outside of cities is found with the so-called deep lot or "picture frame" developments that were created at the time when the area was rural or at least on the fringe of the original city. Lots 100 to 200 feet in width by 300 to 1, 000 feet in depth with frontage on existing roads are fairly common. A home and accessory building are usually built in the middle of the lot and set back 20 to 30 feet from a narrow road. Time passes, new conventional lot subdivisions come, roads become more congested, the area is no longer rural and land values increase signifi- cantly. The older homes remain, often with well maintained yards adjacent to the house. However, the rear 200 to 700 feet of the once rural haven is given over to weeds and no practical method is available to use the "wasted land" that suddently has real economic value if it could be developed. In order to illustrate these problems and to recommend reasonable solutions, the consultants have developed a sequence of drawings which include an illustration of a means by which these areas can be further developed. Each example is an existing site within the planning area. The problems treated are an existing large lot subdivision and an example of preplanning for a large undeveloped site. An example of the resubdivision of an existing large lot development is shown on Plates 4 and 5. The area is located south of the City of Bend south of the intersection of Brosterhous Road and Parrell Road. Plate 4 shows the area as it is at the present time with deep lots ranging in size from 1 to 5 acres. Houses generally are near the street and some of the original parcels have been further subdivided. Plate 5 is an example of how the property could be developed as a conventional subdivision at standard residential densities. The proposal recognizes existing property lines as much as possible and the ownership pattern in effect dictated the design. Street access to open rear portions of properties was governed by the absence of houses and the development proposed would obviously require cooperation between property owners or their willingness to combine and sell their properties as one parcel to an interested developer. The kinds of problems encountered in further subdividing this site are located in various places in the planning area. Although resubdivision design is possible in many cases, the difficulty of obtaining agreement between property owners as to what happens to which properties and when is often insurmountable. Efforts should be made by public agencies to encourage integrated designs for these kinds of areas so that development does not always occur in the form of small, unrelated subdivisions with -23- it VOL RE -SUBDIVISION STUDY EXISTING CONDITIONS N- 0 200 app wo ao goo wo SCALE IN FEET ~ O r?P P er Fp PP, 6 \ \ 4iy \ \ v \ v OP \ \ OO / / • u D I - - - \ \ 3"o \\J \ I 3)10 O I o l D 30 FACE 552 O \ ~ v ~Fq O ~7 / PLATE 4 va 30 f 553 RE -SUBDIVISION STUDY PROPOSED SUBDIVISION PATTERN 11 'oo 11 PLATE 5 VOL 30 FacE 554 1 i i de- i t th l f ng un n er so e rema ur a no continuity to the street system which may serve to veloped properties. i i i l f th g e or na ng o Many kinds of problems can be avoided by sensible preplann acreage site in conformity with the future densities shown on the general plan. Plates 6 and 7 show an example of how this can be done for large acreage properties located on the south side of Neff Road east of Arnold Market Road. Using this preplanning con- cept, the property could be subdivided into small acreage residential sites now and then be resubdivided within a planned context at some time in the future when develop- ment pressures indicate a sufficient demand for urban size lots. Future urban sub- divisions would occur according to a pattern determined prior to the time of purchase by the owners of the small acreage residential lots and all would have been on notice , as to what the future potential of their property was at the time of purchase. Plate 6 shows the site and conditions as they exist at the present time. In addition to existing circumstances of ownership and terrain, there are other factors to be considered as the area develops. Neff Road is indicated as a major street and additional right-of-way will be required as the area develops. Plate 6 also shows the first phase of development by subdividing the larger area into smaller acreage residential sites ranging in size from two to ten acres. If the most desirable living area at the ultimate housing density is to be obtained, it must be designed before larger lot subdivisions occur and unplanned property segregations prohibit a good design for the future. In areas such as this, pre- planning can also increase the value of properties with an efficient design which will en- hance the future livability of the site. Plate 7 shows a further subdivision of the property to urban density standards. The area may not reach this density initially and larger residential acreage lots on Plate 6 were designed in a pattern and configuration of ownership which can later be reduced to smaller lot sizes according to this overall plan. Future streets and useable lots can be retained by constructing the initial housing on sites so that each will occupy a lot in the final design. In this way, the area can develop to urban densities in an orderly manner with access retained to each parcel in the final design. Preplanning not only simplifies future lotting to an ultimate housing density, it also facilitates provisions for future major streets, trails, school and park sites and other general , plan considerations. Although the entire study site is shown as the conventional sub- division, parts of the area could be developed as other than single-family housing as long as the housing density remains the same and enough of the street plan shown is retained to provide proper access to other properties. There are other situations within the planning area where undeveloped tracts ranging from five to ten acres have been surrounded by development. Consideration should be given to encouraging other than single-family developments on some of these parcels. Residential uses in other forms than standard single-family subdivisions can often make better use of difficult sites. In cases such as this, increased set backs from adjacent properties and adequate access can lead to a very desirable living situ- ation. However, in instances such as these, housing densities should conform to those designated on the general plan. -26- PRE - PLANNING EXISTING CONDITIONS va 30 ra 5 STUDY LARGE LOT- FUTURE PATTERN PRE-PLANNED Ai r r PLATE 6 va 30 PACE 556 I PRE - PLANNING STUDY FINAL URBAN PATTERN PLATE 7 1 . vot 0 557 There are several other factors and considerations which contribute to the livability of any area. Certain public and private nonresidential uses are necessary for the convenience of residents to serve their daily needs. Others can be very com- patible with a residential setting and provide open space or visual breaks in the resi- dential pattern while serving a neighborhood or general community need. However, all nonresidential uses in residential areas should recognize and respect the area in which they locate and be designed and developed accordingly. Certain kinds of commercial uses should be permitted in residential areas for the convenience of the nearby population. These include those services which are used on a frequent basis, such as a small grocery store, laundry or dry cleaning pick- up agency or a beauty or barber shop. These facilities and services should be care- fully located and their siting and design subject to thorough review to insure compati- bility with their surroundings. Larger commercial centers can include more exten- sive commercial services but would not enjoy the same freedom of location as the small convenience centers. Their locations would be restricted to major or major and collector street intersections, but their siting and design should also be subject to thorough review as would be the case for a neighborhood commercial development. The need for these kinds of commercial uses in residential areas in the Bend Area will be fairly limited. The location and distribution of major commercial areas along High- way 97 and along the major east-west arterial should provide for most of the commer- cial needs of the area within the period of time considered in this general plan. More specific information relating to commercial areas is given in the commercial section of this plan. Other private or semi-public uses such as churches, golf courses, riding academies or tennis clubs can add variety to the residential development pattern. However, these kinds of uses should be carefully sited both in terms of traffic circu- lation and their relationship to their immediate neighbors. Most uses of this type generate traffic at times when many people are enjoying the quiet of their homes and sites should direct as little traffic as possible on to local residential streets. Many of these uses also create noise or other problems and should be sited so that as little as possible of the activity on the site is unwillingly shared by the neighboring properties. There are public uses such as schools and parks which contribute greatly to the livability of residential areas. Schools, particularly elementary schools, are often so attractive as an environmental consideration that they often stimulate growth in their immediate vicinity. Because they do often direct growth, the location of schools should be subject to the approval of the Planning Commission. Although parks do not often generate development, they exert considerable influence toward maintaining values in areas where they are located. Both schools and parks are vital to living areas and should be encouraged. However, both kinds of uses and facilities should recognize the character and quality of the areas in which they locate and should be designed to be as compatible as possible with the residential surroundings. - 29 - VOL 30 FACE 558 Other public facilities such as fire stations or community buildings also can and should be functional parts of living areas. Through careful siting and design they can be blended into the residential pattern and, at the same time, provide their essential services to the community. Each location should be considered individually and each facility tailored to fit the need and to fit its environment. The nature of street and other off-site improvements will significantly influence the character of any residential area and its convenience as a place to live. Major streets in residential areas should be located and designed to enhance rather than dis- rupt the areas through which they pass. The natural landscape should be respected as much as possible and cuts and fills kept to a minimum consistent with traffic safety. This is particularly true of hillside developments. Major street rights-of-way should be defined before adjacent development occurs so that they may be obtained at the time of development in a manner which will minimize acquisition and improvement costs to the general public. The street and circulation system should provide for other means of movement than the automobile. Major or collector streets should be able to accommodate routes and stops for mass transit vehicles. Pedestrian and bicycle walks and trails should be provided in street rights-of-way or along routes designated and developed for this pur- pose. New residential developments should provide pedestrian and bikeway facilities in all new developments, particularly as indicated on the general plan. Standards for these facilities are suggested in the circulation section of this plan. Community effort should also be made to provide these facilities in existing residential areas. Other off-site improvements can significantly influence the appearance and livability of an area. Perhaps the most visible of these are overhead utilities and street trees. No overhead utility lines should be permitted in any new development and a long-range program should be initiated to bury these lines in existing areas. In addition, all above-ground utility installations such as transformer yards, gas, water, or sewer pumping stations should be designed to fit into residential areas or screened if necessary. Street trees can add beauty, character, charm, and shade to any section of the city and are particularly valuable in residential areas. Many of the older sections of the community have mature street trees and these trees have contributed to the value and long-range stability of these sections. A tree planting program should be developed for established parts of the community which are without trees and provisions should be made to insure the planting of trees in all new developments. In addition, insofar as possible, all existing mature trees on undeveloped properties should be preserved as development occurs. The preservation of the area's native juniper and pine trees in new subdivisions can greatly enhance the livability of these areas and retain some of the natural charm of Central Oregon. i I -30- r , vot 30 TAON 559 As the area grows, all new residential sections should be fully improved at the time of development if possible in order to reduce initial and long-range costs to the general public. These improvements should include present requirements plus street signs, street lights, trees, and provisions for pedestrian and bicycle circula- tion. Many of the foregoing comments also apply to medium and high-density residen- tial areas and to mobile-home park and subdivision developments. Although usually smaller in extent, many similar amenities are desirable in all living areas. However, medium and high-density residential developments should also be subject to certain locational standards and considerations. Community water and sewer service should always be available before medium or high-density developments are constructed or some provisions should be made to accommodate these facilities when they are avail- able. In general, these areas should be easily accessible by means of major streets and should be located on sites which are near commercial services and/or public open space. They should be situated so that the higher residential densities do not generate excessive traffic through single-family areas. The general plan also concentrates medium and high-density housing in parts of the central sections of Bend and along 4th Street to locate population concentrations in areas with maximum convenience to a commercial center or public open space. The plan also recommends medium and high-density residential areas east of Pilot Butte in response to the construction of the new hospital and as a means of encouraging extension of sewer services in the area near the Bend sewage treatment plant. No specific areas have been designated for mobile-home park development. It is recommended that they be considered as a residential use and subject to the same density standards as other residential uses. However, because of their different character, they should be located in mobile home parks or mobile-home subdivisions or on larger individual lots in some of the more undeveloped sections of the planning area. Individual mobile homes or mobile home parks should be treated as a conditional use in all residential areas and their location subject to a public hearing. Mobile home parks may also serve as an interim land use in commercial or industrial areas for property not yet needed for the purpose designated on the plan. If this is attempted, clear time limits and provisions for removal of the park should be agreed to by all parties prior to the initial construction of the mobile home park. As mentioned earlier under the general discussion of land use, the Bend Area General Plan is not a saturation plan or a plan for a specific period in the future. Rather, it is intended to provide a realistic guide for future community action and treatment of land uses varies in different parts of the total project area. Population forecasts of 45, 000 people indicate an increase of approximately 19, 000 between now and 1985. If the entire planning area were to develop at standard urban residential den- sities, the planning area would hold approximately 420, 000 people or about ten times the anticipated population. The projected population of 45, 000 has been distributed through the total planning area by individual planning areas and is shown on Plate 8. Land allocated in the general plan for residential development will accommodate -31- I I I I 11 I I I I I I I I I I I I I I 'vot 30 561 larger populations than estimated by 1985. This is caused by existing land-use patterns which have already committed undeveloped land, previous planning and zoning commitments made by the county and the city, and a clear trend in develop- ment that will occur by 1985 which will be sufficient to commit the development pat- tern of an area to residential use beyond that time. Anticipated growth in the Bend Area will have as significant an influence on the character of the area as what exists today. If the character and quality of Bend are to be retained as this growth occurs, it will require considerable effort and a constant concern on the part of the people to make this happen. Good development standards, respect for the natural environment, proper public services and facilities, and concern for the appearance of the community are all essential to the retention of the character and quality of Bend. The future quality of the area as a place to live will depend to a large degree on decisions made now which will guide future growth. The statements which follow set forth guidelines for future residential areas in the community. Residential Areas - Statements of Intent of the Plan 1. The basic and most important single development criteria for residential areas is housing density. 2. Residential densities indicated on the general plan should be respected and reflected in city and county codes, ordinances and development policies. The intent of the plan is to indicate housing density rather than type of building construction permitted within various density areas. 3. Once densities are agreed upon and the plan adopted, all new housing developments should conform with the designated housing density, regard- less of building type, site size or timing as related to other developments. 4. All residential developments should respect the physical characteristics of the site relating to soils, slope, geology, erosion, flooding and natural vegetation. 5. In all residential areas, consideration should be given to designing areas for living rather than directing the major effort to a development which is simple and economical to build. 6. In areas without community services, housing densities should be determined by the physical capabilities of the soils to accommodate individual subsurface disposal systems and to provide adequate area for future subdivision. 7. All residential areas developed to urban densities on lots of less than five acres should be provided with community water service. I - 33 - va 30 PAcf 562 1 8. The minimum lot size for new lots without community sewer service should be 14, 000 square feet and provide for further segregation to the density designated on the general plan. 9. Residential development standards within the urban growth boundary should be the same for areas of similar densities or topographic conditions, both inside and outside the city. 10. New developments in existing residential areas should respect the character and quality of the areas in which they locate. 11. New developments in areas without an established character or quality , should be permitted maximum flexibility in design and housing type con- sistent with densities and goals and objectives of the general plan. 12 . Consideration should be given to simplifying review and approval procedures for non-single family housing in undeveloped or newly developing areas, such as staff review and approval of proposals conforming to general plan densities, etc., with appeal procedures to planning commissions and governing bodies by either the applicant or surrounding residents. , 13. Hillside areas should be given special consideration in site design by both the developer and local regulations. Building sites, streets and other improve- ments should be designed and permitted in a manner which will minimize excessive cuts and fills and other erosion-producing changes such as con- centration of rapid storm water run off in inadequate facilities. 14. Areas of older or poorer quality housing within the community should be lo- cated and identified and efforts made through redevelopment programs to rehabilitate or redevelop these sections . 15. Medium and high-density residential developments should be located where they have good access to arterial streets and are near commercial services , or public open space. 16. Higher density areas should be concentrated along 4th Street for convenience to commercial services and public open space and to recognize future use of 4th Street as part of a one-way couplet system. 17. Higher density residential uses should be concentrated in closer-in areas to downtown to provide maximum convenience to highest concentrations of population. 18. Mobile homes should be considered as a type of residential development and be subject to the same density regulations as other residential areas. -34- I 1 19. Mobile homes should be permitted as part of a mobile home park, or part of a planned unit development, or on individual lots in areas designated by city and county zoning regulations. 20. Mobile homes located on individual lots other than planned unit developments should be subject to special siting standards. 21. Mobile homes should not be permitted on individual lots in areas already developed with conventional housing at urban densities unless mobile homes were part of the original development concept. 22. Certain private and public nonresidential uses are necessary and should be permitted within residential areas for the convenience and safety of the people. i 23. ty All nonresidential uses should recognize and respect the character and qual of the residential area in which they are located and be so designed. i 24. al Neighborhood commercial shopping areas may be located within resident districts and should have development standards which recognize the resi- dential area. 25. Development standards should be established for these commercial uses which will provide off-street parking, landscaping, access control, sign regulations, and design review. 26. In many cases, home occupations are a legitimate use within residential areas and should be permitted provided that the use displays no outward manifesta- tions of a business and is approved by the Planning Commission as to location. 27. Of necessity, nonresidential uses will have to abut residential areas in different parts of the community and in these instances, any nonresidential use should be subject to special development standards in terms of setbacks, landscaping, sign regulations and building height. 28. Recreational vehicle storage facilities should be permitted in residential areas and these facilities should be improved, landscaped and screened from adjacent residential uses. 29. In new residential developments, parking for recreational vehicles should be provided in common storage facilities or in the rear yard area of each build- ing site with clear access to a street or alley. 30. Certain private recreational uses such as golf courses or riding stables can be successfully integrated into residential areas provided the location, design and operation are compatible with surrounding residential developments. -35- VOL 30 FAcF 564 31. Schools and parks should be distributed throughout the residential sections , of the community and every dwelling unit in the area should be within walk- ing distance of a school or a park. 32. Because schools and parks can encourage or direct residential development, their location should be subject to the approval of the city or county. 33. All new residential development should be encouraged to provide public, semipublic and/or private open space as part of the development. 34. Area dedicated or provided as public, semipubl is or private open space as part of a residential development should be counted as part of the total area when computing residential densities for any given development. 35. Fire stations are necessary in residential areas and their location and design I should be compatible with their surroundings. 36. Community buildings including community recreation buildings or health and , social service buildings could be permitted in residential areas where those services are necessary or desirable and such facilities should be compatible with surrounding developments and their appearance should enhance the area. , 37. Except for major and collector streets, street patterns in residential areas should be designed to provide convenience access to each living,unit but not encourage through traffic. 38. Major and collector streets, particularly rights-of-way, should be secured as development proceeds so that a reasonable circulation pattern will result within residential areas. 39. Streets should recognize natural terrain features as much as possible to avoid unnecessary cuts and fills. , 40. Streets should be designed to carry anticipated traffic volumes and to provide space for an adequate planting strip and sidewalks or bikeways. , 41. Sidewalks should be required on both sides of all residential streets unless the developer plans, dedicates and improves an alternate system of walkways uate edestri ide de i ithi id ti e ti th l d t il l t , p q an c ar o prov a rcu on w n e res en a. an ra a a s 42. Sidewalks, trails and pedestrian ways should be provided in all new developments. , 43. Bikeways should 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. -36_ I va 30 Fig 44. Efforts should be made to extend trails, pedestrian ways and bikeways through existing residential areas. 45. Bicycle traffic should be permitted on sidewalks in all residential sections of the community in order to separate bicycle traffic from automobile traffic. 46. Provisions should be considered which will permit mass transit vehicles on arterial and collector streets within residential areas in the future. 47. All on and off-site improvements in residential areas should add to the character and quality of the area as a place for people to live. 48. Efforts should be made over a sustained period of time to place utility lines underground in existing residential areas. 49. All public utility facilities such as power, telephone and cable TV should be located underground in new developments. 50. Above-ground installations such as power transformer yards or natural gas pumping stations should be designed to recognize the character of the area are located in which the . y 51. Water and sewer pumping facilities and other above-ground installations should ned to blend with the residential areas in which they are located. be desi g 52. Street lighting should be provided in all new subdivisions developed at urban densities and ornamental street lights approved by the city or county should be installed at the time of development. 53. New techniques of providing adequate lighting such as ornamental yard lights should be considered as alternate or supplemental facilities to the normal street lights at intersections. 54. Street signs of a type approved by the city or county should be provided for each new residential development. 55. All residential areas should include other amenities as development situations permit, such as landscaped traffic islands or extra-width planting strips. 56. Street trees should be those which are suitable to the climate of the Bend Area, add color and beauty to the community and have a root system which does not interfere with underground utilities, curbs and sidewalks. 57. Natural tree cover should be retained along streets in new developments inso- far as possible to retain the natural character of Central Oregon within the urban area as the community grows. - 37 - 11 VOL 30 FACE 566 I 58. Efforts should be made to design a tree planting plan for the existing areas r of the community and to plant approved trees. 59. All residential development should respect the natural ground cover of the area insofar as possible and all existing and mature trees within the com- munity should be preserved. Commercial Areas - , The commercial section of the general plan was prepared in conformance with the following general policies: 1. Concerted community efforts should be made to improve the appearance of existing commercial areas and similar considerations encouraged in all new developments. 2. New commercial areas in outlying sections should be developed as centers , rather than as strips along major roads. 3. Development standards should be established for all commercial areas and particularly for those which will be adjacent to residential districts. 4. A limited number of neighborhood commercial developments should be per- mitted in residential areas as a convenience to the residents and these uses should conform to the character of the areas in which they are located. 5. Concerted efforts should be made to rehabilitate or redevelop older com- mercial areas in order to retain their values to the community. , Commercial areas designated on the plan generally recognize and re-enforce existing development and zoning patterns within the planning area, and suggest locations for additional commercial development. Most existing commercial uses in the project , area occur as part of a more or less continuous strip along the major north-south and east-west routes through the city and in downtown Bend. These commercial areas account for most of the commercial land use in the planning area. Although the plan recognizes the existing strip commercial development along major highways in the area, it strongly recommends that new commercial development occur in centers rather than as strips along major highways. One of the most difficult problems in the planning process is the designation and , regulation of commercial land uses. Most areas are reluctant to limit locations for business use for fear of discouraging competition and growth. This attitude is also based on a desire to allow each individual the opportunity to realize maximum gains from their property. However, time and experience have proven that this concept yields uncertainty, mixed land uses and development patterns which are so unstable , - 38 - a 0 rw W as to threaten all investments. In fact, zoning as it exists today has resulted from abuses of complete freedom of land use which have ultimately endangered. life, health, and property values in many areas. It is not the intent of the general plan to limit commercial activity, but rather to direct it into areas where it can develop harmoniously with the rest of the community. The plan proposes relationships between commercial uses and other elements of the community which can be achieved with minimum conflicts among uses. The responsi- bility for land-use decisions rests with the City Commission and the County Commissioners and careful use of this authority will make the entire community more attractive and eco- nomically sound. Aside from the economic role, commercial areas have a tremendous impact on the appearance of the community. Since they are almost invariably located along traffic arteries or at major intersections, they are seen by more people each day than any other parts of the community. They do in fact create for most citizens and visitors the visual image of the city, even though they occupy less than 5 percent of the land area. The appearance of Highway 97, Franklin and Greenwood streets, and downtown Bend play a very strong role in establishing the visual quality of the area. Improving the appearances of these sections, particularly that of Highway 97, should be a major community objective. As the population increases, the need for commercial land will also increase. The general plan recognizes six types of commercial areas: neighborhood, convenience, limited, highway, general and central business district commercial. The location and distribution of these areas are related in part to existing land-use and zoning commit- ments and to anticipated service areas and functions. The paragraphs which follow treat each of the various commercial classifications in terms of principal use, location within the project area, and special considerations or problems. Neighborhood commercial areas are intended to provide locations for small busi- nesses and services which fit into the residential development pattern and provide a con- venience to residents in the immediate neighborhood. A small grocery store or mini-mart, a barber or beauty shop, a dry cleaning pick-up agency, or a laundromat are examples of appropriate uses. Neighborhood commercial areas should be located on mayor or collector streets and have a site size of from 1/4 to 1/2 acre. In order that the centers remain small, commercial floor area should have between 5, 000 and 10, 000 square feet. All possible centers are not shown on the general plan because of their small size, but they should be from 1/2 to 3/4 miles apart and new locations should be based on realistic economic projections which demonstrate a need for the facility. 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, drug store, small bakery shop, specialty shops, and offices would be typical of these areas. These areas are located on the plan along Greenwood on the east side and on Galveston, 14th and Newport on the west side. -39- n VOL 30 FAcc 568 1 As time passes, there may be a need for convenience areas not shown on the plan. If this happens, new convenience areas should occur as centers rather than as commercial strips along major streets or highways. Convenience centers should be located on major or collector streets, preferably at or near an intersection with another similar street and have a site size of from 2-1/2 to 4 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 floor area should be limited to 35, 000 to 55, 000 square feet. They should be spaced from 1 to 1-1/2 miles apart and new locations should be based on realistic economic projections which demonstrate a need for the facilities. Limited commercial areas are intended to provide locations for a wide range of retail, and service, and tourist commercial uses in the community. Uses would include such things as retail stores, offices, banks, restaurants, motels, automobile agencies, service stations, etc. These areas are shown on the plan along 3rd Street from the , north overpass south to Cleveland, and along the old city entrance on First, Division and Deschutes. , There may be a need for additional limited commercial areas in the future which are not shown on the plan. New areas should be located as centers rather than as com- mercial strips. They should be located at intersections of major streets and have a site size of from 12 to 20 acres. There may be suitable sites adjacent to or part of existing commercial areas along the highway. If centers are developed in situations related to the highway, extra care should be taken to guarantee excellent access to the site and de- velopment plans should include proposals for solving congestion problems which may be created at highway access points. If new limited commercial centers are developed, , uses in these centers should not include auto agencies or motels. Highway commercial areas are intended to provide for those uses which have large site requirements, or are oriented to highway access or provide service to the traveling public. Uses could include motels, auto agencies, building material sales, mobile home or trailer sales, equipment sales and rental. In addition, highway com- mercial areas could include uses described for limited commercial areas as well as commercial recreation facilities such as bowling alleys, drive-in theaters, miniature golf courses, or similar activities. Because highway commercial areas are located on the plan along major entrances to the community, special consideration should 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. -40- 1 ' vot 30 r 569 General commercial areas include a broad mixing of commercial uses in older, close-in sections of the community. Uses could include retail, wholesale distribution and service uses such as retail stores, plumbing supplies, cabinet shops, tire sales, auto repair, etc. These areas are shown on the plan between 1st and 3rd north of Thur- ston, generally east of downtown between Greenwood and Franklin, and from Hill to the railroad south of Franklin. Central business district commercial is downtown Bend. Uses are mainly retail, financial and service activities located on small, individual parcels. This area is sym- bolized separately because of different development problems. Here, individual proper- ties are small and most are developed. Buildings occupy most of their sites so that building setbacks or off-street parking on each lot are impossible. Any major new de- velopments in the Bend Central Business District will require the cooperation of down- town merchants and property owners and the city. Recent efforts in that regard were not successful. There is a potential for new retail commercial development in the Bend area. Where it locates will have a strong impact on downtown. If another location is selected, it will greatly reduce the success of downtown as a retail center. The usual problems of multiplicity of ownership and tenants, small lots, lack of parking, and in- adequate traffic circulation are all obstacles in the path of a healthy future for the central area. Solution of these problems must be recognized as an extremely sensitive and diffi- cult task. It will take the active interest and cooperation of downtown property owners, businessmen and the people of the City of Bend to accomplish any program to revitalize this central area. As with other land uses, the general plan must recognize major existing develop- ments even though under similar locational circumstances they may not be recommended as a future development pattern. Strip commercial developments cause many problems in terms of traffic congestion, mixed uses and visual chaos. Each business along the street becomes a point of turning movements which can greatly reduce the traffic capa- city of the streets as well as increase by many times the number of potential accident situations. The length of the commercial strip, which is often backed by residential development, greatly increases the number of land-use conflicts between property owners. The businesses are designed to face the street and site improvements and beautification, if any, are usually done in the front part of the property. Little or no thought is given to the rear yard areas which abut back yard outdoor living spaces of adjoining residences. Very often, commercial strips are so long that available property exceeds the commercial demand and residential uses are often intermixed along the street to the detriment of both. The visual chaos created by strip commercial areas is so much a part of the ugliness of American cities that it is largely taken for granted. Like a bad odor, we have become accustomed to hundreds of signs fighting for a dwindling place in the sun, with utility poles suspending their wires over the clutter of obsolete, converted, added on to buildings covered by signs. All that we normally ask is that this visual litter be kept far enough back from intersections so that we can see the oncoming traffic when we try to drive out on to the streets. There are individual exceptions to this pattern, but they are too few and too far between to alter the picture. -41- VOL 30 FAGE 570 I i h nce t S ese areas cannot be removed, steps should be taken to solve some of the problems. Median strips can solve or relieve some of the traffic problems and special site development standards relating to set backs, fences and screening can reduce conflicts with residential uses. Reduction of the number and size of signs would do a great deal to restore some sense of visual order. These conditions are found along virtually the full length of 3rd Street and, to some extent, on Greenwood Avenue. Development along Highway 97 through the area has significantly changed the character of Bend. If the community is to retain its character and quality as growth occurs, significant improvements must be made in its present commercial area. Action by the City Council regulating signs in the central business district has altered the appear- , ance of that area. Additional steps should be taken regarding sign regulations in other sections of the city as well. Another step is to initiate a major effort to beautify streets in commercial areas with street trees, landscape medians where possible, and land- scaping on existing commercial properties along the streets through the cooperation of local businessmen in all parts of the community. These steps alone can change the face of the city in a few short years and recapture some of the charm of Bend. The state- ments which follow set forth future guidelines for commercial areas in the community: Commercial Areas - Statements of Intent of the Plan 1. Strip commercial developments shown on the plan along highways should not be extended. 2. No new strip commercial should be permitted along major or secondary streets. 3. Commercial uses along major streets and highways should be subject to special development standards relating to landscaping, setbacks, signs , and median strips. 4. On Highway 97, 3rd Street and Greenwood, efforts should be made to obtain landscaping along the street frontage and landscaped median strips within the street right-of-way in order to soften the appearance of existing commer- cial developments and better channelize turning movements on these streets. 5. Zoning for commercial centers other than those shown on the plan should be allocated on a basis of apparent need and this need should be supported by "real world" data by the applicant. 6. Care should be taken to control the size of these centers so that excessive , zoning does not require the addition of other kinds of uses which would generate traffic from well beyond the service area. - 42 - I 1 ` vot 0 571 7. All commercial shopping centers should be subject to special development standards relating to setbacks, landscaping, physical buffers, screening, access, signs, building heights and design review. 8. Neighborhood commercial centers are small developments which serve the frequent needs of the people in the immediate area and should consist of uses such as a mini-mart, barber or beauty shop or a laundromat. They should be between 1/4 and 1/2 acres, have between 5, 000 - 10, 000 square feet of gross floor area, serve a population of from 400 - 1, 000 people and be from 1/2 to 3/4 miles apart. 9. Care should be taken to control the size of any other new commercial de- velopments that may be required as growth occurs. Sites should not be oversized to a point where additional uses which would generate traffic from outside the intended service area are necessary to make the develop- ment an economic success. 10. Any regional shopping center should be located in the central business dist- rict or along Highway 97. 11. Commercial developments which abut residential zones or residential uses should be subject to special setback and screening provisions. 12. In all existing commercial areas, sign standards with appropriate amorti- zation provisions should be adopted in order to change the face of the city. 1 13. A concerted effort should be made to revitalize the central business district through rehabilitation or redevelopment of existing areas. 14. Buildings in commercial areas in the central section of the community should be limited to three stories in height to retain the character of the area and preserve views of the mountains. Industrial Areas - The industrial section of the general plan was prepared in conformance with the following general policies: 1. Community efforts should be directed toward preserving prime industrial lands for industrial purposes. 2. Industrial areas should be protected from incompatible commercial and residential uses. - 43 - I VOL 30 FACE 572 1 , 3. Adequate traffic circulation, off-street parking, loading and service areas should be considered as essential to industrial development. , 4. Community efforts should be directed toward improving the general appear- ante of industrial areas so that they make a positive contribution to the en- vironment of the community. Most of the existing industrial development in the planning area is located south of the City of Bend in the Brooks Scanlon complex or along the north-south corridor through the city which has rail or highway access. The general plan recognizes this basic pattern and adds considerable amounts of industrial land at both the north and south edges of the city east of Highway 97. The industrial area to the north adds con- siderable acreage to the section being developed by the Bend Industrial District. Areas for heavy industrial development are symbolized in this section because the site is of sufficient extent to permit lighter industrial uses or open spaces as buffers between heavy industrial development and surrounding residential uses. Additional industrial areas recommended south of the city are designated for light industrial development. These areas are adjacent to the railroad and have good access by means of arterial streets. The general plan recognizes the existing development pattern and, in addition, reflects some zoning and land-use commitments previously made by the county and the city. The amount of land shown on the plan exceeds by several times any anticipated needs indicated by the economic analysis in Part II of this report. This is caused to some degree by the fact that much of the proposed industrial land is held in large ownerships by relatively few property owners. In addition, there is a need to recognize some industrial locations for major new industrial developments. Industrial park areas are intended to accommodate those industrial or distribution uses which seek fully improved sites and protection against incompatible industrial uses, and are willing to abide by site improvement requirements and performance standards. These areas should provide industrial sites in a park-like environment. The only indus- trial park site recommended on the plan is located on the east side of the Sisters Highway south of Cooley Road. Light industrial areas are intended to provide for heavier commercial and light industrial uses devoted to wholesaling, warehousing, light fabrication and repair. Ex- tensive areas for light industrial development are shown on the plan. Most have rail access or good highway access and are extensions of existing industrial areas. General industrial areas are intended to provide for a wide range of industrial , activity including basic manufacturing industries. The areas shown on the plan reflect existing development or zoning patterns and all have existing or potential rail access. - 44 - t vat 30 ME;57133 There are some areas designated for industrial use in outlying sections of the community. These uses relate to gravel or pumice mining and must occur where the resource is available. No effort was made to identify potential gravel or pumice de- posits. Gravel deposits are rare in the planning area but pumice is available in many locations west of Bend. These operations can be carried out in agricultural or open areas with little adverse effect on adjacent uses. However, sites should be restored to some useable form after the resource has been extracted. In the past, the community has made a continuing effort to attract industrial development to the Bend Area. This effort has been reasonably successful but little or no attention was given to the manner in which new industries developed their sites. Future industrial development activities should concern themselves with quality of industrial development in the planning area and efforts should also be made to improve the appearance of existing industrial sections. The statements which follow set forth future guidelines for industrial areas in the community: Industrial Areas - Statements of Intent of the Plan 1. Industrial areas should be provided for new industry in a park-like setting. 2. Industrial developments along highways should be subject to special develop- ment standards relating to setbacks, landscaping, signs and outside storage. 3. Continuing efforts should be made to upgrade the appearance of existing industrial areas. 4. New industrial development should be encouraged to locate in areas where community services can be provided. 5. Wherever industrial uses abut residential uses or residential zoning, special development standards relating to setbacks, screening, signs, building height and design review should be established. 6. The community should retain its policy of attempting to diversify its industrial base. Public Facilities - Public facilities are those areas and improvements which accommodate or provide various government services to the people of the community. These include schools, parks, fire stations and other facilities such as public buildings, shop areas, solid waste disposal sites, sewer and water systems, etc. Adequate public facilities are essential to well ordered community life, sustaining and enhancing the health, safety, educational and recreational aspects of urban living. In many ways, the adequacy, character and - 45 - VOL 30 FACE 574 I the quality of public facilities express the community's collective opinion of itself and its environment. Schools - Identifying the location of public schools is an important function of the general plan. The need for new schools is closely related to residential development and hous- ing densities in the community. It is possible, therefore, to estimate the number of school-age children for each type of school which will be required to serve anticipated residential developments in various sections of the planning area. It is extremely im- portant 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 with reference to their service area and spaced in a way that will permit reasonable locations for future schools as the area continues to urbanize. The responsibility of providing schools rests with the local school district and the purpose of the general plan is to recom- mend a comprehensive plan for location of various types of schools consistent with anticipated development patterns. The school section of this plan has been prepared in cooperation with the staff of the Bend School District. Future enrollment estimates are based on the population forecast for 1985, not on the holding capacity of residential areas of the plan. Plate 9 shows existing and projected elementary, junior and senior high school enrollment for the total project area and for each planning area. It can be seen from the data on this plate that total enrollment is expected to increase to about 10,177 students by 1985. Based on this estimated, a plan was prepared for the type and location of schools neces- sary to accommodate future anticipated enrollments for various parts of the project area. The school section of the general plan is shown on Plate 10 and the general plan , map. It is anticipated that there will be a need for five additional elementary schools, two new junior high schools and one new senior high school in the planning area by 1985. This requirement is based principally on increase in population but also includes the phasing out of Marshall Elementary School and Cascade Junior High School. These two facilities are not suited for expansion and should be phased out as growth occurs. The school requirements indicated on the general plan are based on a 6-3-3 grade structure in the Bend School District. At the present time, the district is involved in re-examination of its system with reference to grade structures in different schools and year-round school as a possibility. Modifications in grade structures or year-round school could alter school facility requirements as indicated in the plan. For this reason, the school element of this general plan may be subject to revision and amendment as the school district proceeds with its deliberations relating to modifications of educational policies. -46- 11 r 11 n ■ f s s t 1985 POPULATION AND SCHOOL E'_\ 01,1.T\1ENT 141OREC_ ST POPULATION SCHOOL ENROLLMENT ELEM. JR. SR. TOTAL EXISTING 25,690 EXISTING 2,411 1,534 1,330 5,275 PROJECTED 45,000 PROJECTED 5,013 2,582 2,582 10,177 » .~..y».. . - ...«.««....t w j ~e.» t f 166 ELEM. JR. 16 10 SR. 9 411 46 24 24 ELEM. 972 91 JR. SR. 58 50 1,531 171 88 88 TUMA LO ; . COOLEY S s t L r' 3,476 6 563 ELEM. 326 731 JR. SR. 208 180 377 377 F . •s ~,z.tst• )t " E t 15 E 4,5 J• ELEM. JR. SR. 536 50 32 28 947 106 54 54 DESCHUTES t -•....•.s'"' 4,071 ,61 5 i i ELEM. JR. SR. 382 243 2 I I 959 494 494. ' AWBREY . t ' ,~,a' i PILOT BUTTE ELEM. JR. SR %'ELEM. JR SR. i - 372 237 205: ` 286 178 154; 463 239 • 239 - _ • 386 199 99, ' CENTRAL - i•",• ..»...««.......»a.:a - ' _ 3.976 7362 = . 3470 r ELEM. JR. SR.~~ = ELEM JR SR. / 213 582 20 13 11 65 33 33- % 373 237 820 422 206 422 BEAR C REEK ..r i X79 ,686 ELEM. JR. SR. 74 46 40 188 97 97 j{{ i i--- _ WARD HAMBY r f% r• ~ r. 2,31 t i r ' 4.25 p I CENTURY f% f ELEM. JR. SR. J O ELEM. JR. SR. rr 217 138 120 2 12 189 120 104 474 244 244 ,012 558 287 287 r,• BLAKLEY tt TILLIC M 228 f f....I:- - 4 1 t t f.». - ELEM. JR.. SR. ......................9 21 14 12 i RIVERWOODS 46 24 24 13f:111 .ARI~:a (~1:~F?FZ_AL I'1 ern ~~r. rtF:~n ~~u ur.~clii rs~ cot v'r~ ~nai•:c~~~ Fl, a ~J ■ r s t a- a a 11 FA j vot 30 fct 577 The school section of the general plan was prepared in conformance with the following general policies: Schools - 1. Schools in the planning area should be developed according to the policies of Bend School District No. 1 and the Oregon State Standards which are: Elementary Schools - Enrollment 550 students Intermediate Schools - Enrollment 800 students Senior High Schools - Enrollment 1, 300 students 2. School sites should have the following site size: Elementary Schools - Minimum 10 acre site Intermediate Schools - Minimum 20 acre site Senior High Schools - Minimum 30 acre site 3. The School District and Park District should continue to cooperate in the joint use of facilities for educational and recreational purposes. Parks - The park section of the general plan was prepared in conformance with the following general policies: 1. Develop a park system that expresses the community's personality. 2. Park and recreation development should be considered as a vital part of the future livability of the area and that efforts should be made to keep these facilities abreast of growth. 3. Park sites should be acquired well in advance of need so that they can be reserved for community use before the cost of acquisition becomes prohibitive. 4. Parks should be located within walking distance of every dwelling unit in the community. 5. Parks should be centrally located and easily accessible to the areas they are intended to serve. 6. The park district, city and county should initiate a regular program for ac- quistion and development of park and recreation facilities. -49- VOL 30 fACf 578 a Throughout the country and the northwest, development of parks and recreation facilities has become increasingly important in recent years. Over a period of time the demand for these facilities has been brought about in part by a higher standard of living and the resulting increase in leisure time. Such things as shorter work weeks, earlier retirement and increasing life span have added many leisure hours to the lives of a growing segment of the population. Park development has also become increasingly important because of the trend toward urban as opposed to rural living. As features in the urban landscape, parks will improve the character of existing neighborhoods and tend to stabilize property values. Many businesses and industries seek locations with a high level of environmental quality as a means of increasing their ability to attract and retain a stable and productive work i force. With the improvement of transportation systems giving greater flexibility for S~ business and industrial site selection, a well developed park and recreation system can be an important factor in attracting such developments to the community. The general plan recommends a park and recreation system which would place a neighborhood park within walking distance of every residential unit in the community as well as take advantage of natural sites within the area both inside and outside of the city. As the area grows, other opportunities will occur in addition to those shown on the plan. Each should be evaluated in terms of conformance with policies and objectives of the community. The general plan also recommends school parks be developed wherever possible. A park facility located adjacent to a school has essentially the same service area as the school. This approach to park planning has several advantages. The combined school and park make a year-round center for educational and recreational activities and utilize parts of the school facility which might not otherwise be used during the summer months. The park is immediately available during the school year for school activities and pro- vides a larger, more usable and more attractive school site than would otherwise be practical. The combined school-park site is somewhat larger than either a neighborhood park or an elementary school site individually. This larger combined site leads to better design of park and school facilities and allows more space to provide activities for age groups other than those served by the school. The school-park method can also afford opportunity for substantial savings through sharing of the cost of acquisition, development and maintenance of the site between the school and park districts. It also eliminates duplication of facilities. For example, the apparatus area and paved court customarily built with an elementary school also serve as park facilities on a combined site. Accessibility to the school from the park elimi- nates the need for construction of a separate recreation building for indoor activities. Some of the development costs can be shared by the school district, the park district and the local government, particularly the cost of improving streets adjacent to the site. Agreements between the school district and the park district which would spread the maintenance cost between the two agencies would reduce the cost to each. - 50 - it VOL 30 PAGE 579 The Deschutes River flowing through the community represents one of the outstanding recreational opportunities in the community. Several parks have been developed along the river and continuing community efforts should be made to acquire property as it becomes available. In addition, the 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. An effort was made to design a system of trails and bikeways which would interconnect schools, parks and various sections of the community. The park plan shown on Plate 11 and the general plan shows the park system and the trail system proposed in this plan. The consultants are indebted to the PTA's of each elementary school in the planning area for their contributions to the bicycle and pedestrian routes shown on the general plan. The bikeway and pedestrian routes pro- posed on existing streets and the trails on the general plan provide a comprehensive system for bicycle and pedestrian movement throughout the planning area. Improvement standards for trails and bikeways can vary considerably depending upon the circumstances under which each is constructed. Plate 12 gives improvement standards for these facilities under various conditions. One of the basic assumptions in the preparation of standards for bikeways is that bicycle traffic should be physically separated from automobile traffic. Sidewalks can be used by bicycles in all but the most congested parts of the central business district and standards recommended in this plan indicate wider sidewalks on most streets to serve as bikeways. On short, quiet residential streets, bicycles can safely use automobile traffic ways. Each bikeway on each existing street is an individual problem and must be eval- uated. If adequate, safe, bicycle routes are developed and maintained, they will offer a reasonable alternative to many present auto trips, particularly those necessary to transport children to and from their many activities. Bikeways may also encourage cycling to work much of the year and thereby reduce peak-hour congestion. However, if they are to function well, they must be carefully considered, safe and convenient, and not treated as a passing fad which, hopefully, will go away. Other special facilities such as neighborhood recreation centers, district maintenance yards, adult leisure cen- ters, etc., have not been treated in this plan. Some of these kinds of facilities may be included as part of some park area and may not need a special site. However, they should be considered in the process of developing a more detailed plan for park and recreation facilities. Refining the park elements of this plan should be a cooperative effort between the park district, the school district, the city and the county, if it is to solve the problem without duplicating efforts and facilities. The ideas in this plan are general and often represent or illustrate concepts which must be further refined. For example, site size standards for parks are intended to serve as a guide for all sites but, in the final analysis, the sizes may vary considerably from park to park. The plan also shows a trail system and symbolizes parks at some locations along the trails. Each recommended trail should be examined and refined as to alignment and appropriate width along its route. -51- Vol JU FAGE 3M BIKEWAY STANDARDS A - NEW STREETS • t t • t t ■ t s FUTURE INTERSECTION I SIDEWALK BIKEWAY l TITAN MARKERS 2'-0' ON CENTER VOL 30 fAm 581 PLANTER 20' R.'\ PLANTER I 0 O0 O 0 O TITAN MARKERS O FUTURE INTERSECTION 2 2'-O' ON CENTER 4'-9 i SIDEWALK I I/Y STREET am 'IT PROPERTY LINE STREET 5 7' MIN. 4.5~ BIKEWAY B -EXISTING STREETS PROPERTY `PLANTER . LINE PLANTER EXISTING INTERSECTION O CURB SECTION I 1 SIDEWALK APRON STREET O CURB SECTION ALTERNATE 4' 12' 12' 4 E SHOULDER SIKEWAY STRIPE APRON 10' .2' 4 10' 60' EXISTING STREET WITHOUT CURB C - SEPARATE BIKEWAY - TRAILS IV SIKEWAr-TRAIL- 2' PROPERTY UTILITY ROAD LINE TRAIL ALONG DRAINAGE CHANNEL PROPERTY PROPERTY LINE 2' 10' MKENMY-TRAIL 2' LINE SEPARATE TRAIL IN EASEMENT I PLATE 12 VOL 30 FAcE 582 1 At the time of the preparation of this plan, the people of the Bend Area have established the Bend Metropolitan Park and Recreation District. However, the district has not been funded and therefore plays no effective role in the development of park and recreation facilities. The City of Bend Park Department continues to be the operating agency in the area. For this reason, it was difficult to obtain policy direction in park and recreation development from the appropriate group. The policies and statements of intent contained in this plan were developed by the consultant in conjunction with the Park and Recreation Departments staff and should be subject to thorough review by the Park and Recreation District once it becomes an operating entity. The statements which follow set forth guidelines for park and recreation de- velopment : Parks and Recreation - Statements of Intent of the Plan 1. Retain a humanistic attitude toward serving the public so that services never become impersonal or "institutionalized". 2. Work from the wishes of the people as a basis for developing park and recreation systems and programs. 3. Facilities and programs should be kept abreast of growth and change. 4. Provide community leadership in beautification by example on Park and Recreation facilities. 5. Publicly advocate and coordinate activities relating to beautification and landscaping throughout the community. 6. Consider neighborhood interests in the process of designing neighborhood parks. 7. New concepts of mixing public recreation activities with revenue-generating commercial uses such as restaurants or other concession activities should be explored in order to help finance recreation programming, park acquisi- tion and maintenance. 8. Provide facilities first where population is concentrated rather than in out- lying areas. 9. Insofar as possible provide a similar or equal level of service throughout all areas served by the District. 10. Neighborhood parks will provide the foundation of a system for services to the people. -54- 1 VOL 30 PAcE 583 11. A neighborhood park should be developed within walking distance of all resi- dents of the district. 12. Neighborhood parks shall range from 3 to 5 acres in size. 13. Land acquisition should be the highest priority for the expenditure of capital improvement funds. 14. Park sites should be acquired in advance of need so that they can be reserved for community use before the cost of acquisition becomes prohibitive. 15. Larger parks and recreation facilities should be equally accessible to areas they are intended to serve. 16. Other parks should be centrally located and as easily accessible as possible to areas they are intended to serve. 17. Opportunities may occur for development of small parks not shown on the plan, and if the site is useful, should be obtained. 18. A trail system for bicycle, pedestrian and, in some cases, equestrian use should be developed and wherever possible, interconnect schools, parks and open spaces within the District. 19. All trails developed by the District should have recreation value and not be merely replacements for sidewalks which would otherwise be located else- where. 20. Wherever possible, trails should be developed along the Deschutes River and along major canals so that these features can be retained as an asset in the local environment. 21. Concerted community efforts should be made to preserve and develop as much as possible of the bank of the Deschutes River and Tumalo Creek for park and recreation uses. 22. Local codes and ordinances should be amended so that park land can be acquired through the subdivision process and a fee in lieu of land dedication established as a policy of local government. 23. The park and recreation element of the plan should be further refined to more carefully identify potential park sites and trails and to establish a program for priorities and acquisition and development of these facilities. 24. No public land declared surplus should be disposed of without first having been reviewed by the Park District for suitability for park and recreation use. -55- L VOL 30 PAGE 584 11 Fire Stations - 11 The fire station section of the general plan was prepared in conformance with the following general policies: 1. Fire protection in the planning area should be provided in accordance with the recommendations of the National Board of Fire Underwriters. 2. Fire protection in the planning area should be considered as a common problem by the city, county, water districts and the fire protection district. 3. Fire stations should be designed to accommodate a variety of fire fighting apparatus to reflect future changes in requirements relating to development within service areas. The general plan recommends five new fire stations to provide protection for the project area. The need for these stations is based on standards of the National Board of Fire Underwriters. Plate 13 shows the existing station and proposed fire station loca- tions and coverage from each station for high value areas (1 mile), high density residen- tial and apartment districts (1-1/2 miles), and single-family residential areas (2 miles). The existing central fire station will provide adequate protection for most of the close-in central part of the community in the future. Additional stations are located to provide coverage for areas north and south of the central area along Highway 97. In addition, one station is located near Central Oregon Community College and another near the new hospital. These stations will cover those facilities and surrounding resi- dential developments. The fifth station is proposed southeast of the city to provide coverage for industrial growth in that area as well as new residential development. Each new station should be designed to accommodate a wide variety of fire protection equipment. Current Underwriters standards relate fire protection needs to a series of complicated criteria which can only be determined after the area de- velops. For this reason, equipment requirements for the various stations must be determined at some time in the future. Public Buildings and Shops - Both the city and county will require additional public building and shops space as the area grows. The three basic public buildings to be considered are the county courthouse, the city hall and the public library. All three are now located in or near the central business district and have relatively convenient locations. There are several sites for expansion or relocation of these different uses within the central part of the city. The eventual disposition of Cascade Junior High School and the old hospital can affect future site posibilities. It is recommended that the city hall and courthouse be retained in or near the central business district and that the location of each facility be agreed to by both the city and the county. The library can be - 56 - • e f F1 VOL 30 PAGE 506 I expanded at its present location by acquisition of additional property in the same block. It could also be incorporated into a civic center should the city and county select a common location for joint development. The county is rapidly outgrowing its shop maintenance facilities. It is recom- mended that the county seek another site which has good access to all parts of the county and move their facility to a new location. It is also recommended that the city consider the present county shop facilities as a location for their maintenance operation. The following policies are recommended with reference to public building and shop facilities: 1. New county courthouse and city hall facilities should be located in or near the Central Business District. 2. There are several alternative locations for courthouse and city hall facilities in the central area and the location of each should be agreed upon by both the county and the city. 3. Efforts should be made to group public offices in a more or less common location as a convenience to the public. 4. Efforts should be made to encourage federal and state agencies to locate in or near the Central Business District, preferably near city or county offices. 5. County shop facilities should be moved to a larger site with good access to all parts of the county. 6. City shop and storage facilities should be consolidated on the present county shop site after the county facility has been relocated. Solid Waste Disposal - There are no solid waste disposal sites located within the planning area with the exception of a building material dump located off of Century Drive on the west side of Bend. It is recommended that solid waste disposal be done in conformance with the county-wide solid waste disposal plan. Sewer and Water Services - One of the most important problems that will be faced by the community in the future is the provision of water and sewer services. At the present time about 9% of the City of Bend is served by a sewer system and the State Department of Environmental Quality has ordered the city to provide service for the entire community. The city has proceeded with beginning steps to develop a sewer system and is currently in the process -58- I . VOL 30 rAGE 587 of developing a facilities plan for a sewer system which can serve the city and some of the surrounding areas. (Plate 14) There is a private system located in the Ward development southeast of the City of Bend at the present time. These are the only two areas in the community which currently have sewer service. The cost of providing sewers is exceptionally high in the Bend Area because of the underlying rock. This cost is increased substantially if the sewers are installed after the area develops. For this reason, it is extremely important that every possible community effort be made to provide for these services prior to development. A more detailed discussion of relative costs of sewers before and after development is provided in the discussion of development alternatives in the residential section of this general plan. That section of the plan recommends that the city and county become involved in making these services available in order to avoid these large and unnecessary costs. It will not be possible to avoid the entire cost but, if action is taken reasonably soon, the needless expenditures of general community funds can be reduced substantially over the next ten to fifteen years. The city now has a complete water system and there has been fairly extensive development of private water systems in areas outside of the city. The systems out- side of the city are small and will present problems in the future as urban densities increase and additional users are added to those systems. Action should be taken toward consolidating these various water systems into a single system or, developing common improvement standards so that they may be consolidated at some time in the future. The city and county should consider a joint action program to solve these major problems of community services. The general sequence of action outline included herein lists steps which the county may follow to provide urban services within the urban growth area. The list is intentionally general because there are many courses of action open to the county. There are possibilities for federal grants or matching funds for several of the steps and the City has developed or is now developing information and engineering data for a sizeable section of the urban growth area. This information can be used by the county should the Board of Commissioners choose to provide urban services to un- incorporated areas within the urban growth boundary. Any county program should be closely coordinated with the city to avoid unneces- sary duplication of services or facilities. The two areas should also have similar land development standards and system design and construction requirements to avoid con- fusion or encourage development in the area with lower requirements. Obviously, the county and city should carefully coordinate their programs and jointly develop standards acceptable to both. The urban services treated herein are sewer and water services. They are listed separately because the alternatives and problems facing the county are different in each case even though many steps and procedures are the same. I - 59 - SEWER FACILITIES PLAN AREA ~ CITY LIMITS FACILI-IES BOUNDARY.. ~_F / a pp o / q ~ C Fes,. I ~ I) p , P - 4 a a` 1 P t F J r LM S , ROAD d A I' iI. NEY r i .NNE -i I H ~ ~ I D ' GREEN J.nn Ct I CALV d'' _ (RANK- r SKYLlNERS \ - n a H .-I El \ fl z ~Y HUR lQ7, R 8 STEVENS H ROAD 1 MARKET_ - 1 r' I 9 i w p✓ a F ~ PLATE I -1 OP, Ale ,j BEND AREA GENEFt \I, PLAN, CITY OF HEAD AND DESCHUTHI C'Ol'\TY. ORFY:OiA VOL 30 AcE 580 Sewer Services - 1. Make policy decision that county will become involved in providing urban services with urban growth boundary. 2. Identify total area in which these services will eventually be provided. 3. Identify priority areas based on need, ease of providing service or probability of development. 4. Evaluate organizational alternatives for providing services: County service district Special service district Annexations to city 5. Make policy decision relating to treatment facilities: Provide county treatment facilities Contract with city for treatment Join with city to construct facility 6. Prepare preliminary sewer service plan to determine need, areas to be served and general cost estimates. (Some information already available from work done for the city.) 7. Based on items 1 through 6, define district and hold election to establish district. 8. Assuming district is formed, establish preliminary phasing for providing service. 9. Obtain aerial mapping of area and prepare facilities plan for areas to be served in foreseeable future. 10. Prepare detailed phasing plan relating to areas served, cost and funding. 11. Explore probable operation and maintenance costs using County Public Works Department as responsible agency. 12. Prepare detailed engineering plans for construction of first projects, call for bids and construct part of system. 13. Review county zoning and subdivision policies and standards in view of the availability of sewer services with reference to lot sizes and sanitation requirements. -61- t VOL 30 FACE 590 14. Modify zoning and subdivision standards as necessary in light of potential service areas. Water Services - 1. Make policy decision that county will become involved in providing urban services with urban growth boundary. 2. Identify total area in which these services will eventually be provided. 3. Identify priority areas based on need, ease of providing service or probability of development. 4. Evaluate organizational alternatives for providing services: County service district Special service district Annexations to city 5. Make policy decision relating to source of water supply: Develop county sources Contract with city 6. Prepare preliminary water service plan to determine need, areas to be served and general cost estimates. 7. Evaluate existing private water systems for suitability and adequacy for in- corporation into public system. Also evaluate cost of acquisition of systems. 8. Based on items 1 through 7, define district and hold election to establish district. 9. Prepare facilities plan for areas to be served in foreseeable future. 10. Assuming district is formed, establish preliminary phasing for providing service. 11. Prepare detailed phasing plan relating to areas served, cost and funding. 12. Explore probable operation and maintenance costs using County Public Works Department as responsible agency. 13. Prepare detailed engineering plans for construction of first projects, call for bids and construct that part of system. - 62 - I . va 30 PAS 591 14. Review county zoning and subdivision policies and standards in view of the availability of water service with reference to lot sizes and sanitation requirements. 15. Modify zoning and subdivision standards as necessary in light of potential service areas. The steps involved in providing sewer and water services apply mainly to the county. The city has taken most of these steps for at least part of the community at some time in the past. If both agencies are to participate in these services outside the city, the city will also have to do certain things if a joint program is to be possible. The city will have to: 1. Agree to extensions and connections to the city's system in areas outside the city limits. 2. Agree to use of city's water supply outside the city. 3. Agree to use city's sewerage treatment plan for county system. 4. Agree to common land development standards inside and outside the city. 5. Agree to common system design and construction requirements inside and outside the city. 6. Make engineering data and plans available to the county. 7. Consider county needs when developing priorities for areas to be served inside the city. The city and county have already agreed to an urban growth boundary. The Bend Area General Plan was formulated and financed by a joint city-county effort and the pro- vision of services to areas within the growth boundary is a logical extension of these joint efforts. Common standards and services for areas developing at urban densities can actually save the people of the community millions of dollars over the next ten years alone. It will not be easy for either the county or the city to join together in this effort. Both will have to alter long-standing policies and concepts if there is to be any hope of success. It can be done, and retaining the unique character and quality of the Bend Area should make the effort well worthwhile. Circulation - The circulation section of the general plan was prepared in conformance with the following general policies: 1 -63- VOL 30 PAGE 502 9 1. The circulation system should provide safe, convenient access to each parcel of property in the community. 2. Streets and highways should recognize and respect the characteristics of the natural features over which they pass and wherever possible, should be designed to minimize adverse effects on these features. 3. Streets and highways should also recognize the land use characteristics of the area through which they pass and should be designed so that they are an asset to the community rather than a disruptive influence. 4. Streets should be designed to serve their anticipated function with variations in design standards possible within the limits of sound engineering and planning. 5. The legitimate role of public transportation, bicycle and pedestrian circu- lation systems as viable future alternates or supplements to total dependence upon the automobile should be recognized. The circulation plan sets forth a system of streets and roads necessary to move people and goods safely and conveniently within the planning area. The present circula- tion 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 transporation 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. The general plan does recommend expansion of the present bus terminal in the downtown area. This is one of several alternate locations which could be used depending upon future detailed plans for the central business district with reference to city, county and library facilities. , As mentioned previously, major congestion problems in Bend result from an inadequate 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 routes in the community with any east-west continuity. They also 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. I - 64 - I VOL 30 FAU a.93 There is also a concentration of traffic on Franklin between downtown Bend and the railroad underpass. This congestion is related in part to the old hospital site and movement of the hospital to its new location should reduce congestion in this area to some degree. However, there is considerable movement relating to the in- dustrial 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. However, at some time in the future it will be necessary to widen the Franklin Underpass to four lanes. 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 the Bend-Deschutes Market Road and beyond. These routes would provide access to the east side of the community without having to proceed into the central part of the city before moving east. Additional or improved grade crossings are proposed at Underwood, Revere, Portland-Olney, and Hawthorne avenues. All of these improvements collectively would relieve the pressure on Greenwood and Franklin as east-west routes. The Portland=Olney-Penn-Neff connection would provide an alternate east-west route across the entire community and will provide excellent access to the new hospital. This routes passes by Pilot Butte Elementary School, where there are already prob- lems 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. Consideration should be given to pedestrian over-crossings on Neff to reduce the hazard to children going to school. This route has several problems but, speaking generally, is the only possibility for such a connection. The grade at Greenwood Avenue should be lowered under the railroad over- crossing to permit adequate clearance for all vehicles on this major street. The intersection of Greenwood, Newport and Wall is in the process of being improved at the present time and will provide better east-west traffic movements when the intersection realignment is completed. The Revere and Hawthorne crossings will also provide alternate movements across the central part of the community. How- ever, 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 improve- ment would appear to be directly related to future growth possibilities in the Awbrey Butte Area. 1 -65- VOL 30 Faf 594 1 The general plan proposes a connection between Commerce Avenue and Colorado Avenue in the southwest section of the City of Bend. This will provide an alternate to Galveston and Franklin in the central part of the City. 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 cemetery area and Alden Avenue should be extended from 4th to Bear Creek Road. Wilson Avenue should be extended from the Brooks Scanlon industrial area easterly to Ferguson Road. All of these connections would increase east- west mobility in the community and tend to relieve the need for using 3rd Street and High- way 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 should be extended from Brosterhaus westerly to the proposed north- south arterial west of Highway 97. This connection could relieve some of the congestion at Brosterhaus and 97, one of the more congested intersections on the south highway. It would also provide an alternative route through the industrial areas in the southern part of the community. The principal north-south congestion problems occur on 3rd Street near Greenwood and Franklin and on Highway 97 from south of the underpass to Brosterhaus Road. The recommendations made relating to improvements in east-west streets should relieve some of the congestion on this major north-south route. It is recommended that improvements be made in the east-west circulation system before any major efforts are expended on the north-south traffic pattern. The general plan proposes additional north-south routes as a means of reducing congestion on 3rd Street. A west side alternative is proposed on 1st and Division streets which extends southerly to the north end of the Brooks Scanlon development. The route continues southerly west of Highway 97 to the south end of the planning area. A connection is also shown from Division to Highway 97 by way of Scott and 2nd Streets. These con- nections will reduce the need to use Highway 97 or 3rd Street as a means of access to downtown Bend or the industrial area to the south. The plan recommends that 4th Street be a major street with a future possibility of a 3rd-4th one-way couplet system. This proposal assumes that the south underpass on 3rd Street will be widen to four lanes. 4th Street can provide access to shopping cen- ters and some businesses on 3rd Street without having to use 3rd as access. Use of 4th Street as a couplet is easier than 2nd Street because the right-of-way already exists with the exception of the couplet connections on the north and south ends. However, the 4th Street couplet would not solve congestion problems south of the underpass. If 2nd Street were extended over the tracks to the south and used as a 2nd-3rd Street couplet as far -66- LJ VDL 30 fA% 595 south as Cleveland, congestion problems on 97 south of the underpass would be largely removed. On the other hand, the severe congestion south of the underpass could be relieved by removing on-street parking and by adding turning lanes at the more congested intersections. The city has requested that the State Division of Highways review these alternatives and make recommendations regarding the north- south traffic patterns in the central part of the city. In any event, 4th Street should be considered a major street to provide an alternate location for north-south move- ments near 3rd Street. The extension of 4th Street south along Railroad Street and Baer Road to connect with Ferguson Road will provide an additional route to relieve congestion on Highway 97. An additional north-south route is recommended on the east side by connecting Boyd Acres Road to 8th Street, 8th Street to 9th Street, and 9th to Baer Road south of Wilson. This route would provide for north-south circulation without having to travel into the central section of the community. Other major and collector north-south routes on the east side can accommodate north-south traffic through the area and provide alternate routes for access to the new hospital from both the north and south. Most of the major street systems shown on the west side of the planning area lies some time into the future. Alignments are shown as a means of indicating general locations and should be used to preserve right-of-way for future development. The expressway shown on the east side of the planning area is a long-range bypass possibility. Traffic estimates indicate that 80 percent of all traffic on Highway 97 is destined for the Bend area. This raises serious question regarding the need for a bypass within the time frame considered by this plan. However, right-of-way for the proposed expressway should be protected from development as the eastern part of the planning area grows. In this way, the route will be available for development when the need arises. In the interim, the north-south arterial and collector system proposed on the east side of the planning area can be used as a bypass route, if necessary. The circulation plan is shown on Plate 15. It symbolizes the expressway, major and collector streets. It establishes a system that will be adequate to 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 net- work. Standards for street developments in different types of areas within the total planning area are given in Tables 1, 2 and 3. I i I - 67 - vfv CIRCULATION PLAN EXPRCSSWAY c"- P j ~ ~-GdLIECTOR \ / N ~ N~. ~se~iNOE ~ - ARTERIAL BEMR~Tep ""fiRaNSMR ATIOw GENTHR ~ ` ~ " ~,-RAILROAD 1 ~ 1 N 3 y C o r, RCAD a l~ ~ q U r . 1 f• ` ; ^,`Y d - a~n,+~s NFFF l Pogo A Ro z t -GPEENw ,oo s y ~ .,..t u s. HiGr+wnv ^.N 14- sr~'uNENS _ ~ - CPEEN Pogo r a~p ~ \ C 3 _ MAPKET.... STEVENS '.Pn4C l - - / 1 F ~ PLATE 15 I3T N1~ APE GENE RAL IL AN `i / CI'I l (W BEND \NI) (ll_ti(ltt TF5 CM ,1't')', (MEC YN t r i t 1 1 W F4 H V) A A z h M E1 z W W P, U z Qi w 0 H x C7 P4 H W W E-i cl) A z z O P4 0 PT-4 Street Signs Minimum Radius o 0 0 0 0 of Curvature 0 0 LO 0 0 Maximum % of by Grade (4) co ao 0 (D r+ ao Design Speed LO LO U13 LO LO M. P. H. M c-1 c1l ca Curb Return o o Z6 ~O Radius ca cli ,-4 ,-4 Curbs Type of Paving v c c" v v Paving Width j ::;4 zo ~D ; c Between Curbs LO M " M Right-of-way c 0 0 0,~ o Width oo co co co LO w0 0O U U Cd C! a ~ w - 69 - VOL 30 ? 597 0 a~ o s~ 0 0 M m 3 ~ o ~ o 4j V) ey 00 U U M ~ U 0 w Cd m o n a~ U U O ai cd U O U U cd Q) "0 5 o lz a 4 ~ o M "o NO 5 ~ bA a Pa U U U E, 0 C-q ~r U LO WCv N M .14 E-I A z H E~ z w O 9 a U U) qA Z S q E4 x O E-+ W W H z U) z O A z ~M W O w Street Signs Minimum Radius 0 0 of Curvature o M o LO -0 Cq to LO Maximum % of Grade (4) 00 CD C~I Cq 00 Design Speed M Cn LO Cn Cn M.P.H. ~ C11 Cinder or Crushed Rock Shoulder Width Curbs z z z z z Type of Paving v v v Paving Width Cq 00 Cq Cq N Cq Right-of-Way o o e e^ o Width 00 w U O r+ O U E, v O Cd c U r'0 U a ~ O U h"1 - 70 - 0 UI) 4-4 O M 3 i 0 i b0 0 a~ 0 cd CO a~ M U Cd i i U Cd 0 tr d C d z IA m Cd H U 'V Cd Cd 0 a~ Cd ~0. a~ U Cd ~•1 O Cd P. U voi 30 RUE 538 0 0 cUd 0 0 4-4 0 U U a~ C w W a 'S 0 a. a~ ~m bA CA U 0 O 0 0 Cd bA ~J f 11 t L J J t M W a a~ E-+ A Z N O a U CAA i W O i E-+ x O E_4 W W E-+ U) Street Signs v 0 v v i Minimum Radius °o °n o ~°n n of Curvature r-4 Maximum % of Grade (6) 00 o V-4 c11 r'' cI ' 4 00 Design Speed o o LO ►n LO M.P.H. C.0 LO M cq c11 Cinder or Crushed Rock -4' Shoulder Width Curbs z z z z z Type of Paving v 's, Paving Width Cq c.~ 00 M y Cq - cq a Right-of-Way o 0 0 0 o Width 00 cc cc cc - in ~ a i ~ «3 a ~ w - 71 - VOL 30 FACE 599 0 o a c d o m a 0 y ca 0 o ~ 4 o N U) U) Q U Cd 0 o :N cd m 4 ° 0 0- 6 cd U Cd o a~ a 4~ U Q cd a) Q o o U 0 ~ U cd ~4 Q) F, 0 C ° ~ 0 en a U d ~ ~ F4 :o U UI . O p ,i ci w v cc VOL 30 FADE 600 I 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 alignments. 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 excessive damage to adjacent uses. It is extremely important that adequate right-of-way be secured before development occurs along streets in new areas. These streets should be secured as part of the subdivision development process or purchased by 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 major 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 modification must accom- plish 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. Plate 16 illustrates a means of reducing the visual width of paving by placing landscaped 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 illus- trates a local street design which provides parking bays and landscaping within the street right-of-way. This design requires a 54 or 58 foot right-of-way and provides two twelve foot moving lanes and fifteen parking spaces in three bays along the street. Parallel on-street parking along the curb of a standard section of this length would yield about twenty spaces. If an occasional house were sited far enough back from the street to accommodate more cars in a double drive-way, the difference in available spaces would not be significant. This kind of street 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 consideration 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. Major or collector streets with controlled access can reduce the number of lanes and parking 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. - 72 - I t ■ t STREET MODIFICATION PARALLEL PARKING - ~ll --I III I z. w PARKING BAYS VOL 30 PAGE 601 PLATE 16 von 30 PAcf 602 2 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 streets and highways has 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 of these facilities and of the City of Bend. Plate 17 illustrates a median strip in Greenwood east of 3rd Street. It should be noted that the proposed landscape islands have little or no impact on access to adjacent property. However, they would effectively channelize traffic and, from the point of view of the driver, the street 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 1st and Wall streets into the central business district provide 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 bare no resemblance 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 create 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. The daily experience of moving about the community on major arteries does in- fluence 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 control 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 exist- ing 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 guidelines for the circulation system in the communit : y Circulation - Statements of Intent of the Plan 1. Concerted community efforts should be made to improve east-west circulation patterns in the central part of the community. 2. Wherever possible, rights-of-way for major streets and highways should be obtained as part of the development process. -74- 1 11, t • t s A O O z w w x c~ z 0 z a w ca w a t~ A z a E~ [~J -D d 141 8 q7 9 V 0 J !J-~I 13 - Pi c F=~l FF 3 W Y m Y J 3 W O h 3 3 W 0 VOL I I I I I I I I~ i 'if 'T i I I I I 1 I I I I I °a llf~ I I I ~ I a I _.I 1 , 30 PACE 603 Y J 3 W - O N i 3 W K O J Q H W D 'LATE 17 VOL 30 PAGE 604 I 3. Efforts should 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 should be part of the design standards for expressways and arterials wherever possible. I 5. Building setback lines should be established along existing major arterial streets to protect necessary future rights-of-way from encroachment by buildings. 6. In residential areas, development should be encouraged which have side yards or rear yards along arterial streets as a means of reducing conges- tion through turning movements in and out of driveways. 7. Streets and highway rights-of-way should be adequate to allow for sidewalk, bikeways and reasonable and effective planter strips. 8. Expressways and 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. 11. Special development standards should be developed for hillside areas to avoid unnecessary scarring of hillsides. 12. Special consideration should be given to all residential streets where appro- priate to save rock outcrops or trees as a means of retaining natural character of the area. 13. Loop streets and cul-de-sacs should be encouraged as a means of discouraging 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. a~a 15. Bikeway and pedestrian circulation plan shown in the general plan should be _ adopted and implemented as soon as possible. 16. Trails, bikeways and pedestrian ways should be developed into a coordinated, integrated system for local movements throughout the planning area. - 76 - 4 30 PACE 605 von 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 bi- cycles on sidewalks, particularly along arterial and collector streets out- side of the central business district, should be made. 20. The circulation system of trails, bikeways, and pedestrian ways should interconnect 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 will be needed to evaluate public transportation needs ossibilities within the urban area and . p I Community Appearance - The community appearance section of this plan was prepared in conformance with the following general policies: 1. To retain and enhance the character and quality of the Bend Area as growth occurs. 2. To make a concerted effort to improve the appearance of the community, particularly in commercial and industrial areas. 3. To initiate a community action program for the purposes of developing an awareness in the citizenry of the appearance of the community, both good and bad. i 4. Community action programs should be to evaluate community appearance and develop specific programs for its improvement. 5. To attempt to identify those characteristics which give the community its individual identity and to preserve and expand those characteristics as growth occurs. I - 77 - va 30 PAGE 606 1 The basic objective of this plan is to retain the character and quality of the Bend Area as growth occurs. Fundamental to the achievement of this objective is the appearance of the community. One of the principal problems in the community is that, for many years, growth occurred at a very slow pace. However, in the mid sixties, the rate of growth increased to a pace of six to eight percent per year and radically changed the time available for decision making in the community. This growth has brought many new people and new businesses to the community. The anti- cipated 19, 000 new people will bring more new business and new industry in the future. A deliberate and continuous effort will be necessary to see that the thousands of de- cisions made in the process of growth collectively constitute progress toward retaining the livability of this lovely community. The residential sections of the Bend Area are generally quite pleasant. However, efforts should be made to improve streets and to improve some of the older housing areas. However, care should be taken to retain valuable environmental features such as mature street trees in older sections as improvements occur. In new residential developments, street trees should be required along with other improvements to help establish and re- tain values in living areas. A plan for street trees should be prepared for both older and newly developed areas as part of a community beautification effort. In addition, new development should respect the natural environment in terms of rock outcrops and exist- ing tree cover as development occurs. I It must be assumed that, in general, residential areas reflect the values of the people who live in the community. They have invested their money, time and effort in establishing and maintaining these residential districts. There is a tremendous difference between the apparent values expressed in residential areas as compared to those of com- mercial or industrial districts. Industrial developments in the community have given little or no consideration to their appearance. Almost without exception, they exist as patches of ugliness wherever they are found in the community. Since these are places where workers spend about half of their waking life, it seems only reasonable that some consideration should be given to making their surroundings more pleasant. The commercial sections of the community also largely ignore their impact on the appearance of the area. Located as they are along major streets or at major inter- sections, they are seen more often by more people traveling within or through the com- munity than any other areas. It seems only reasonable that because of their location, their appearance should be at least equal to other sections of the community. The principal causes of ugliness in most commercial areas are lack of order or i relationship among buildings, lack of landscaping, hundreds of signs which completely dominate any field of vision, and the ever present utility poles with their overhead wir- ing. Most commercial buildings were built one by one, lot by lot, along the street with complete disregard for the appearance or use of other nearby buildings. Each was in- tended to stand alone on its site to fulfill its original commercial function. There was little or no thought given to their individual or collective impact on the community. At present the only exception to this is downtown Bend. Here, a community effort has been - 78 - VOL 30 rAGE 607 made to reduce the size and number of signs and it has greatly improved the appearance of the area. However, the full length of Highway 97 through the community reflects the general lack of concern for other nearby buildings or uses and the result is a typical jumbled string of structures and uses so common along highways everywhere. This single highway has done more to change the historic image of Bend than any other single factor. The lack of landscaping through the area is a major problem. Commercial buildings are usually separated from the street by areas of asphalt of varying widths. Again, there are exceptions and the exceptions prove what a difference landscaping can make in these commercial areas. It can soften the harshness of the paved en- vironment and can become a means of tying together the jumble of unrelated buildings. The landscaping must be maintained and this appears to be an insurmountable problem even though landscaping is maintained continuously in residential sections. It is possible to develop landscaped areas which are easily kept and which strongly influence the quality of the visual environment. Evergreen shrubs, small trees and various ground covers can all be used to interupt the continuous paving and make commercial areas a great deal more attractive than they are at the present time. The city and county now have site plan review procedures as a means of encouraging landscaping in new developments. The community should consider design review and should increase their landscaping re- quirements in new development. The city and county should participate in the beautifica- tion process by adding landscaped median strips and traffic islands wherever possible in major streets. Although building relationships and lack of landscaping are problems, signs are the greatest cause of visual chaos. They occur by the hundreds and completely dominate the appearance of most commercial areas. There are so many that competition for space reduces their effectiveness. As this competition increases, signs must become larger and larger to be seen. If the only signs along the streets were those which identified a business, the problem would be substantially reduced. The principal signs are accompanied by many lesser messages relating to trading stamps, credit cards, prices, products sold, etc. Competition for space has driven traffic directional signs and signals out over the street itself so that they may be seen. To further clutter the view, traffic signals are often placed over each traffic lane even though there is no difference in traffic move- ments. If Bend is to retain its character and quality which made it one of the most attractive communities in the State of Oregon, a major effort must be made to improve its appearance. Sign regulations should be adopted which would not only control new signs, but establish a reasonable amortization period for the removal of existing signs which would not comply with the regulations. The standards contained in the regulations should be such that sign- ing would be consistent with other values in the community. Such standards would greatly improve the appearance of the area and would be consistent with the character and quality of Bend. - 79 - Va 30 FACE 608 I Utility poles and overhead wires are also very prominant features in the cityscape. Both the city and county have taken steps to require that new facilities be placed underground. However, this does not solve the problem in existing areas. Efforts should be made to develop a systematic program for undergrounding part of the existing system each year. Utility poles and overhead lines have a tremendous impact on the appearance of the community and every effort should be made to hasten their removal. The preceding paragraphs have been critical of the appearance of commercial sections of the community. The consultant would invite the reader to walk or drive through these areas and observe conditions as they exist. People are accustomed to things as they are and no longer respond to what they see. A goal for the businesses within the project area should be to improve the appearance of their districts so that they are at least equal in quality to the values expressed elsewhere in the community. li b o zes In order to treat the appearance of major streets individually, the plan sym landscaping along those that will be most heavily traveled. In some cases, the treatment may only be a ten foot landscaped strip along the road. In others, it may be a scenic corridor to protect entrances to the community or areas of special visual quality. De- velopment of concepts and standards for treatment of major streets and highways should be the subject of a special study as part of continuing community efforts to refine this general plan. The Deschutes River has long been an important element of the appearance and quality of life in Bend. Efforts should be made to protect this lovely river as the com- munity grows. Special consideration should be given to changes and new development along the river as urban growth increases pressures for more intensive development. It is recommended that a "scenic corridor" or a special design review procedure be established on both sides of the river. l e If the appearance of the community is to be retained and improved, the peop should be involved. Community action programs should be initiated to evaluate community appearance and develop programs for its improvement. These could include concerted ef- forts to improve the appearance of streets and highways by establishing tree planting pro- grams in existing and developed areas; landscaping of traffic islands and median strips; establishing sign regulations for the entire area; encouraging private property owners in both residential and business districts to maintain and upgrade their properties; work toward placing utility lines underground in existing areas; protecting open areas from the intrusion of billboards and signs not relating to those areas; removal of debris from public and private properties throughout the project area; and developing improvement standards which will insure that future growth occurs in a manner which does not detract from the natural beauty of the Bend Area. All of these elements play a part in the overall appear- ance of the community and continued efforts by local government and its citizens can pre- serve and enhance the natural beauty and the livability of the area. - 80 - I 11 VOL 30 FAu 699 The statements which follow set forth guidelines for the improvement of the appearance of the community: Community Appearance - Statements of Intent of the Plan 1. Sign regulations should be adopted which limit the size, location and number of signs in commercial and industrial areas and have amortization provisions to remove existing signs within a reasonable period of time which do not con- form with the regulations. 2. Old or obsolete signs should be removed at the time of a change in use. 3. Consideration should be given to prohibiting all off-site advertising signs in all commercial and industrial sections of the city. 4. Special design and landscaping requirements should be established along the Sisters Highway; Highway 97 and 3rd Street; Greenwood and Highway 20; Franklin, Riverside opposite Drake Park; Galveston from the river to 14th; Century Boulevard to the Deschutes National Forest Boundary; and 4th Street from Alden to Webster. 5. Landscaped median strips should be installed on Highway 97 and 3rd and on Greenwood wherever possible. 6. Special design consideration should be given to development on those parts of Awbrey Butte visible from developed areas and from Highway 97 within the Bend Area. 7. Consideration should be given to limiting building heights in the central area to preserve the views of the Cascades to the west. 8. Commercial and industrial areas should be separated from residential areas by physical buffers or screens. 9. All development along the Deschutes River should be subject to design review In order to protect this priceless community asset. 10. Consideration should be given to establishing design review for all new de- velopment in the community with the exception of single-family houses and duplexes. 11. Efforts should be made to encourage the upgrading of existing commercial uses through painting or other remodeling programs. 12. Older sections of the community should be carefully evaluated and efforts made to rehabilitate or redevelop those areas requiring special treatment. -81- VGL 30 FADE 610 1 13. Concerted community efforts should be made to place existing overhead , utilities underground in all parts of the community. 14. Special efforts should be made to preserve large rock outcrops and stands of trees as the area grows to preserve the character and quality of the Bend Area. Implementation - This general plan is the result of a concerted effort by the people and government of Deschutes County and the City of Bend, and its several recommendations were developed at numerous meetings with citizens committees and local officials. If the plan is to have any meaning, it must be implemented. Effectuation of a general plan is not an easy pro- cess and requires constant vigilance on the part of local government and citizens. As growth occurs and conditions change, the plan will need to be reviewed and updated so that it remains a viable and useful tool for guiding growth and development. The various processes for implementing the plan are as closely interrelated as the elements of the plan itself. . Public information and participation is essential if the plan is to succeed. This plan was prepared with the assistance of many citizens in the community and ef- forts must be made to continue this involvement. The plan should be kept before the public as a basis for community action. By involving citizens and by keeping the plan current, it can become an effective tool for guiding future community development patterns in a manner consistent with the goals and objectives of the people. Adoption of the plan as a statement of community policy is essential to its effec- tiveness. When the plan is officially recognized as a guide to future growth pat- terns, public and private community actions must be evaluated in terms of the general plan. Action contrary to the plan should not be taken unless the plan is first amended to reflect the change in objectives or policy. ~rr► Revision of codes and ordinances is an important step in effectuating the plan. The zoning ordinance should reflect and refine land-use relationships and de- velopment standards recommended in the general plan, and zoning issues should be evaluated in the context of the plan. Subdivision ordinances should also reflect improvement requirements and other development standards included in the plan. Capital improvement programing is an important process in the implementation of the general plan. It consists of three basic elements--listing of necessary public improvements, determination of priorities, and a financial analysis. A listing of all capital improvements that will be needed in the foreseeable future is first es- tablished. Based on evaluation of the projects and their relative urgency, a priority is assigned to each project based on the apparent need. A financial analysis is pre- pared to determine existing and anticipated future sources of revenue which can be -82- u VOL 30 PAGE 611 applied to the capital improvement programs. From these projections, it is possible to estimate the amount of revenue available annually for capital ex- penditures and to allocate these funds to appropriate projects. Capital im- provement programs are usually prepared on an overall basis for 20 years in five-year increments, and they are revised annually as funds are expended and priorities change. Developing a realistic capital improvement program and applying it to the city and county budgeting processes can be one of the most significant and beneficial steps which the community can take to guide its growth in an orderly manner. There are many federal and state programs which can be applied to the community's capital improvement requirements. These programs cover a wide variety of problems and these sources of assis- tance should be fully explored and used as necessary to implement the plan. Plan Amendments will be necessary as time passes and conditions change. as stated at the outset, this plan is intended to be a guide for the future growth of the community. It should be subject to periodic review and should be flexible, but not so flexible as to be meaningless as a statement of community policy. Changes in the plan should be made in light of considerations relating to all or part of the community rather than to who owns the property and is he a "good" guy or a "bad" guy. It is recommended that the plan be reviewed by the Planning Commission every two years to whatever degree is necessary to insure that it is continuing to func- tion as a guide for community development. In addition, it should be possible for individuals to petition for changes or amendments to the plan in a manner similar to that for zone changes. There should be a public hearing before the Planning Commission and the Governing Body prior to making any changes. Any changes should be consistent with the goals, objectives, policies and state- ments of intent of the plan or these guidelines should first be changed or amend- ed to reflect the new policies. This should be true of both changes resulting from periodic Planning Commission review and from individual petitions. It is recommended that hearings on plan amendments follow the amendment proce- dures set forth in the zoning ordinance. rJ ~11 - 83- r 1 vot 30 rw 012 File No. Exhibit No~ URBAN GROWTH BOUNDARY FINDINGS Background Submitted By The City of Bend and Deschutes County prepared and adopted an Urban Growth Boundary in 1972. In 1973 the two jurisdictions began preparation of the Bend Area General Plan. The Urban Growth Boundary was modified by the Bend Area General Plan and now encompasses 27,100 acres. The boundary follows public ownerships, Shevlin Park and Tumalo Creek Canyon,. major acreage resi- dential developments, canals and topographic features. The attached map depicts the Urban Growth Boundary and City Limits. The Bend Area Urban Growth Boundary is intended to separate urban and rural land. The boundary is the result of several years of study and analysis. The Bend Area General Plan contains the timing for growth and development alternative policies which are intended to encourage orderly development within the boundary. The Urban Growth Boundary was established after review of the following facts and considerations. These facts, analysis and decisio ns are listed below in terms of the seven criteria set forth in the urbanizat ion goal and incorporate the Bend Area General Plan Part T, II and ITI. (1) Demonstrated need to accommodate long range urban growth requirements consistent with LCDC goals. (a) The area has grown at a rapid pace, abo ut 6% per year, since 1970. The table below depicts recent growth trends. POPULATION GROWTH 1940 - 1977 (1) 1970 (1) 1940 960 19 0 (1) 50 (1) 1 1977 - _ - Bend 10,021 11,409 11,936 13,710 16,500(2) ' Urban Area 19,150 30,000(3) Deschutes C 18 631 21 812 2 0 442 46 (2) I ounty , , , 3,100 3 ,800 Source: (1) US Census (2) Portland State Center for Population Research and Census (3) Estimate by Planning Department VOL 30 FAct 613 The growth shown indicates a 20.4% increase in the City's population, a 56.6% `increase in the Urban Area and 53.7% increase in the County's population Since 1970. ' The population projections developed for the Bend Area General Plan are shown below: ' POPULATION PROJECTIONS (1) 1980 - 1985 1980 1985 ' Bend Area 35,000 - 36,000 43,500 - 45,000 Deschutes County 48,000 - 49,500 57,`000 - 59,000 1 Extending these projections to the year 2000 the Urban Area is forecast to 1 have a population of some 62,500. The forecast is similar tolprojections made by Portland State and the Bonneville Power Administration attached as Appendix ' I. It is important to note that most of the forecasts made in the past several years have been conservative. (b) The Urban Growth Boundary contains approximately 42.3 square miles. The City of Bend contains approximately 6.75 square miles. The City's existing residential density is 5.5 dwellings per acre. (2) (c) The total planning area contains 39,240 acres. The land use survey ' found 29,253 acres either vacant, agriculture or open. (3) (d) Approximately 75% of the Deschutes County is in public ownership 1 as seen in the following table: DESCHUT1SS COUNTY LAND_ OWNE'RSH I P (3) ' USFS 977 1.6E BLM 520,000 County 22,000 State 28,442 ' Private - 410,796 Total County 1,958,400 -2- 3 ~ e. 1 ~f 1 . • • • • 1. Po • • A .I : ~N1 • L\ 1 • : r i I ~r i ~l M y ~I Q U L • VOL 30 FACE 614 • . i • • • • r • 17, I 1 ~ ~ r.a-'j EFF • ~y Z sFa NKU ~L _ ~ _ I aEa~ cue • -lb us~oi • • URBAN C,rUw R Gov m)AUy `y CIry L- JivUts KNbrr N 1" - 1 MILE VOL 30 FACE 615 ' Of the land in private hands some 70,000 is owned by Brooks Scanlon and I Gilchrist Lumber Companies and is managed as timber lands. (e) The Bend area has a dry cool. climate, which restricts agricultural pursuits. (f) Residential land needs based on the projected population to the year 2000: Year 2000 population 62,500 Current population - 30,000 • Population increase 32,500 Using the assumption that household size(5)will be 2.7 persons per household then some 12,000 new households will be created by the year 2000. If this population is housed 25% in multiple family units and 75% in single family ' units, then the following calculations give the range of land needs under two sets of density assumptions for single family development. Single family land needs: Using a 5% vacancy factor (9000 X 1.05 equals 9,450 units) HIGH LOW ' 3.5 Units/acre 2 units/acre 2,700 acres 4,725 acres Multiple land needs: Using a 7% vacancy factor (3000 X 1.07 equals 3,210 units) ' and if these units are built at an average density of 10 units/acre the land needed would be 321 acres. ' Total Land Needs Multiple 321 321 Single Family 2,700 4725 ' 3,021 Acres 5,046 Acres (g) The calculations above give a range of residential land needed ' for the forecast period. It does not indicate what additional land will be needed to let the market function nor does it take into account 1 -3- ' unbu.ildable areas. VOL 30 PAGE616 00 WiLhin the Urbaai Growth Boundary there are areas Lhat have been ' committed to urban development for many years. This can be seen in the ' history of subdivisions shown in Plate 7, Page 16 of Part I of the Bend. Area General Plan. ' (i) Map 2 depicts the pattern of subdivision activity since 1974. ilany of these have been developed at a density of two units/acre. See Appendix VI. (j) Previous commiLtments can also be seen in the many 10 acre or smaller lots that cover approximately 2,000 acres within the Urban Growth Boundary and are shown on Plate 16, Page 50 of Part I of the Bend'Area General Plan. These lands are also a source of future dev- elopable land as in-filling occurs, however, they are generally diffi- cult to development and for the most part are acreage homesites and.the ' l d ill b an w not e available immediately for development. ' (k) The ability of the market to provide a variety of choices is dependent on the amount of land contained within the boundary and available over time for development. The figures on residential land needs above added to the projected land needs for commercial, industrial and public facilities created a minimum level of land for the Urban 1 Growth Boundary. The present boundary provides for these needs and incorporates additional land area that provides a reasonable land area 1 for future market choice. Attached in Appendix II is a land use summary for the whole planning area as of 1974, Appendix I1I a land use ' summary for the City and County. (1) ' Overa7.1 .land needs are the sum of res identlal , commercial, i.ndusLrial, pub.l.i.c. plus imirl(cL needs to the year 2000. The plan desig- nates 1209 acres for commercial, 1769 acres for industrial and 990 acres for public for the year 1985. Using the same analysis as contained in Part II another 1,000 acres of land will need to be allocated to these ' uses by 2000. -4- 1950 - 1359 C T ':i 1970 1974 dT +.1 19?0-1949 1960 • 19f9 I •y! i i•I F~f i i. I / I I ; ,I h' I I I I • ~ T~ ~ I I I l~-, ~Y.s P I I l I ^'f~ E J J, I; wry,,. ~ ~`l ~ n,; .T• ` pT _ ell iY'r I I 1 1 . J LrI 1 ~~,~r 11(1 )n l~?~1Tfwlk~~ r I J- Y' L11! tJ r s . 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'.III• ~ I , :r.~ sf ~ jjj~ ' ' l . u l 1 I) r Yf tl I ~9 - l `I.I I 5• t I 1 1'I F H,x-, 1. 1 a1 ril Vin. ,lllilll ll' \I I I C~ 1I ( e.r^ I Il 'lA%"\ _.n °;IJ.rl IL ,1 I4 lr I ,w I ~;a Y , II~.,~~.y~ ~I,' l~ •1til~l~- j I. "...I . I I - I I f 41.1 1 L I J j iml 1 I pA 1 I ~ i~l I \ .i ice, ,'I lil '~~',y! ~lp~'~~ 11 `(I1 T ~ n o w,.~l q~~~}i 'Y 1 Y I1~' 1 111 _I I' ; ` I~r u' 1 ll1 ~ 11 I 14 I I, I J 11- ~ i V a> i tl I ]'I P I I'•~'rl . ~ t~ 1.+ i,l ~ I r 7-1 t, 'A 1 1 d ~ai"• l UkI'I Y • - I r HKND / R10,A C:I':NHIIIA1, PLAN \ ~`,1 .1 i, I ~ J '1l ~ ~ ~ CITY OF 111',N0 AND COUNTY. 01111COON Div Low ANT sinrc P ov ~a' o~ de Lo t~.e ~t- GT..~ P'r~ try nt t,n A-'~'~ P :l..Ua-;1~1 p 2- ~ %r } "f Y r ,1 Y ' r ' • - J u. r ~ • ~ J \ N f, J ) , " ` r ; ,I l C L ~ "1 . ~ rl ' T - f . ` ,y .•4,~ A l p l 4 I .f ,t.. . Y1 \ ~ S . .Y •1 ! "~L.•J )~Y.1 ~4 rJ ~ N ( 4 Ir.: ~ ~ . , . J \ C~ I y (•.~1 ~ ti , y ) t r F ` ` . ` . VOL PRf11+LEM AItE AS CANTON WALLS OR IIOfK fACFS, i tOEI'R15.;1ONS r I.ARf.F. ROCK OUTCROPS 041 SMAI.L HILLS - I 1 FAULTS }1R~~T Vt' " f.~~~ 1, l ,l'.~ ~ ~ ~ I:. CL? NN, ' % .1 I .ti ` ~ } ' I f F~ + tl~, ~ ~ , I IIfr I , j / ~ ~ +J°i 1 ' I I I ~1 I I~ II I'•I 'I!~i ' .~I. J;C zol, 11 II t ` 4 8H'~ I 1 f <y I I rkt I I _ _ r' I ~ `1jt ~ I w.~t` } . 41 i ~ 1_ p. I. 1 ~ r-' , I I i ~JfV.i., F 1 p; VA' _ Y .'rl 1 +4. ~ ~ f • , I I ~.1 ~ ~ : ~ r I it 1: ~ ' ~ + tV -1 t i _ n \~1 1 t ~1 I il. i I i 7'I ~.~llIli V.~\ 11~.^~ ~'J I••~, I fly., ~ ~ ~ 1 11LIIk I~i c. ~t r, .tt Ik 1 ~ 11 ~ ~ r I L ' I I l ( h"" _ f, d t I I I d t ' I . F - _ I 1 t I., h L I l J' ~ ! V .fit 1 ' I . y I • J'~~i~ , I, ;.I ~ fir. ~•-~'i •1,1L; 1 `..,E:.1. u PLATE 16 I ~ _ ~i I tJ 'ay / M1 ~~~.t (III ..1 , 1 ~At`1,•,,•.,~ t'. i• i ~ I I ~ • •0 1 r L , r 131;NI) \RI;i\ G 'NERAI, 1'I,i\N r' ~ ('I'I'1' 111' I11: vl1 AND IIVlV('l lll'I'I:v ('f )IiN't'1', 0111{00N ' ']'lie ~laii - VOL 30 PAcE 620 (m) ']'lie t e nc uragcs the development of hither densities where services are available which is consistent with the Energy and Housing goals. (n) Tables I and 11 gives a land use allocation for the Urban Growth Boundary and planning area as shown of the Bend Area General Plan Map. ' (2) Need for housing, employment opportunities and livability: ' (a) The need for land for housing is described above and related to the expected population growth. (b) The population forecasts were based on employment forecasts contain- ed in Part II of the Bend Area General Plan. Appendix IV gives an up- dated employment history for Deschutes County. Growth in employment is paraltcling the forecast. (c) The plan designated additional lands for the industrial and commercial development. The plan designates 1209 acres for commercial development and 333 were in use and 1769 acres for industrial develop- ment and 776 were in use. ' (d)_ The plan designates some 1567 acres of land as area of special ' interest. These designations are intended to preserve major rock out- cropping, river canyon walls, treed areas. There are another 990 acres ' designated for parks and schools. (3) Orderly and economic provision for public facilities and services: (a) The City's Sewerage Facilities Plan proposes a collection system that would provide service for a population equivalent to 85,000 people. The plant is being built to serve 60,000. The facilities plan covers an ' area of approximately 19 square miles. The population forecasts for this area do not propose a saturation on ultimate holding capacity for 1 the area. The densities for most areas outside the present City limits ' would be in the range 5.5 to 8 people per acre. -5- ` VOL 30 PAGE 621 (b) Outside of the facilities plan area new development is to provide ' community water systems on larger Lots with septic tanks and drainfield systems for sewage disposal. ' (c) One-development is also installing its own sewerage system which covers approximately two square miles in south part of the Urban Growth Boundary. ' (d) The City's water system is designed to serve much of the land adjacent Lo the. City Limits. Several water companies provide community water service to developing land with the UGB. (e) The plan proposes school and park locations that would provide service to the developing areas. ' (4) Maximum efficiency of land uses within and on the fringe of the exist- ing urban area. (a) The boundary was determined in part based on existing patterns of ' development and the desire to encourage infilling within this area. (b) The boundary provided a balance between existing developed land and market needs for choice in the future. (c) The plan encourages a slight increase in density. This was done to promote energy conservation and to make it more economical to provide sewers. (d) The third general goal of the plan says "To encourage City and ' County cooperation in the provision of urban services in order to bring ' about a more orderly development pattern and thereby avoid unnecessary tax burdens and excessive utility costs usually associated with scattered, Unrelated developments." Tlie timing for growth policy also indicates "Although the Bend Urban Area Plan designates most areas for Urban Development, the timing for urban growth should always be related to ' the availability of adequate, necessary community services and have some continuity with other existing developments." (7) - 6- LAND USL ALLOCATIONS WITHIN THE,, URBAN GROWTH BOUNDARY VOL YoresL Open /A _,r icu l t u r. i I. Special Interest Water Commercial Industrial Schools, Parks, Public, Institutional Residential 'total Total Area Residential Categories Over 5 Acres 21- - 5 Acres 1. - 211 Acres 20,000 square feet 1 Acre 6,000 - 20,000 square feet 2,000 - 6,000 square feet 1,000 - 2,000 square feet Sub Total Development 5 Acres - 5 Acres - 5 Acres - 5 Acres - 2'-§ Acres 2!2 Acres 2'2 Acres 21i. Acres Sub 'foL~ Alternatives 20,000 square feet 6,000 square feet 2,000 square feet 1,000 square feet - 20,000 square feet - 6,000 square feet - 2,000 square feet - 1,000 square feet l .I_ .IY:ve 5/26/78 221. 2,606 1,567 450 1,209 1,769 990 18_, 288 27,100 Acres 953 277 131 3,365. 2,101 618 85 7,530 Acres 617 7,850 357 170 38 1,065 654 7 10,758 Acres 30 FACE 622 i 42,3 square miles I LAND USI. A'JMGA'1J0NS (Lnti.re Planning Area) ' Acres forest 1,527 Open or Agricultural 7,126 ' Areas of Special Interest 1,789 Water 475 ' Commercial 1,213 Industrial 1,853 Schools, Parks, Public, Institutional 1,211 Residential Total 24,414 ' Plan Total 39,608 Acres ' Residential Categories Over 5 Acres 5,746 212 - 5 Acres 1 - 2! A 617 2 cres 735 20,000 square feet - I Acre 3,754 6,000 - 20,000 square feet 2,101 2,000 - 6,000 square feet 61.8 ' 1,000 - 2,000 square feet 85_ Sub Total 13,656 Acres t Development Alternatives ' 5 Acres - 20,000 square feet 5 Acre - 6 000 f 617 s , square eet 7,,850 5 Acres - 2,000 square feet 357 5 Acres - 1,000 square feet 170 212 Acres - 20,000 square feet 38 22 Acres - 6,000 square feet 1,065 2'2 Acres - 2,000 square feet 654 ' 2'2 Acres - 1,000 square feet _ 7 Sub Total 10,758 Acres JY:ve 5/26/78 i VOL 30 PAcf 623 61.9 square miles YoE 30FACE 624 j (e) The City has changed its auuexaLion policy to encourage the ' annexation of adjacent lands in order to fister orderly growth. The City his requested Lhat DEQ allow small lets with drill hole disposal or no drainfield replacement area to lands annexing to the City and building sewer systems that will connect to the Phase I sewers to be built by the City. DEQ has agreed to this request as seen in the letter attached as Appendix V1. (S) Environmental, energy, economic and social consequences. Much of these considerations are discussed above under earlier findings. The plan is based on economic and population projections. These projections were converted into expected school, park, fire, water, sewer and other needs. ' The growth of the community has and will continue to change the appearance and character of the community. The plan recognizes the need for five new elementary, two junior high and a senior high school. Three fire substations, ' a major expansion of the sewage. and water systems and major street construction projects. (a) The main goal of the Bend Area General Plan is to maintain and en- 1 hance the quality and character of the City and surrounding urban area. (b) The projected growth will result in change. There will be a need ' for more schools, parks, streets, fire and police services. (c) This growth will stimulate economic opportunities that didn't exist ' and aid in the development of jobs for the residents of the area. (d) The area has experienced a rapid growth during the past seven years. There has also been a rapid increase in the cost of housing and land both inside and outside the Urban Growth Boundary. To reduce the impact of rising costs the City is adopting a Zoning Ordinance that reduces lot t sizes from 7,000 sq. ft. to 6,000 sq. ft. (e) The development of the sewerage system will remove a potential health and environmental hazard from this area and enable more dense t development consistent with the plan. VOL cl. O PACE 6255 (f) The projected growth was reviewed with local DGQ officials for possible airshed problems and it was felt no adverse impacts would result. .(g) The growth is creating traffic congestion. The improvements to the street system shown on the plan are the highest priority next to the sewer system with the City Commission. (h) Greater densities will be energy efficient but may also lead to greater social problems in terms of police protection. (6) Retention of agricultural land as defined, with.Class I being the highest priority for retention and Class VI the lowest priority. (a) During the development of the plan it was found that: "(1) None of the land within the planning area is suitable for agriculture use. (2) Agricultural or open uses on the plan should be preserved as long as possible as useful open space until needed for orderly urban growth. "(8) These conclusions/policies were reached after reviewing climatic records(9)for the area, the existing land use and parcel sizes, the farm deferral records and general and detailed soils maps for Deschutes County and the Bend area. The main large blocks of agricultural lands in Deschutes County are in the Tumalo, Cloverdale, Lower Bridge, Terrebonne, and Alfalfa areas. (b) There are still several commercial farms around the Bend area 1 , (10) however, no known co mmercial farm is within or adjacent to the UBG. (c) The land forms in this area consist of broken features with lava rock outcropping breaking up the soils bodies. 'rile soils in much of the area is characterized as scabland Class VII by SCS soil maps. 1 -8- (d) The plan indicates that Hic agricultural "classification isOintend- FAGEs2~j ed to serve as a holding category and to provide opportunity for tax ' differentials as urban growth takes place elsewhere in the planning .area. Most of the area has little or no agricultural value (11) and 1 later the western agricultural or open lands area is a source of pumice, ' dirt and some sand and gravel." (12) In Part I the description of the land use categories had this to say: "Agriculture - the agricultural classifications are oriented toward the influence of agricultural use on the potential urban pattern within the plan- ning area. j Grazing and Range - includes open, undeveloped land on parcels of more than ten acres in area with.no obvious agricultural or farm use. The land has not been modified for agricultural purposes. This classification accounts for 51.6 percent of all of the land in the lannin~ area. The largest areas occur on the more undeveloped west side of the planning in parcels of 40 acres or less in area and are scattered among other land uses. Open lands are often similar in character to smaller parcels classified as residential in the 2-lj2 to 5 acre of 5 to 10 acre groupings. Many times both are essentially home sites with space to keep horses or other animals in a suburban ' or rural setting. Since these are parcels upon which some effort has been expended in leveling, clearing, irrigation, etc., they often have a higher development potential for urban uses than do grazing and range lands. Vacant - includes open, undeveloped land in parc(!Is of ten acres or less. This category also includes irrigated and non-irrigated pasture or wooded or brush-covered areas occurring in parcels of ten acres or less which are not considered agricultural units. -9- ~L 3© FAGS 62'7 Vacant land includes property both inside and outside the City which has been segregated into parcels of various sizes, all ten acres or less, to be used or sold as building si.tes. 'Chore are 4,143 acres o[ vacant land within Lite ' planning area, only 443 of which occur within the City of Bend. A large part of the vacant acreage, both inside and outside of the city, occurs in the form ' of vacant lots in recorded subdivisions. Those in the City generally are in the 1.0,000 to 20,000 square foot range while in the County, the range is from' 2-1/2 to 10 acres. Most have access to some form of dedicated right-of-way ' and represent a substantial reservoir of property committed to urban or sub- urban development."(1-3) ' (7) Compatibility of the proposed urban uses with nearby agricultural activities. The boundary does not.separate the urban area from agricultural areas. It is located on large public ownerships, major stream canyons or adjacent to major areas of acreage homesites or lands identified as scabland by the soil survey data. 1 Other Boundary Considerations Defensibility During the review of the plan, it was evident that Lite west side of the planning area was and is held by a limited number of owners and in many cases is subject to mining programs. Although there is substantial vacant area on the west side of town, the boundary was established along the USFS ownership, Shevlin Park and the Tumalor Creek Canyon. This makes a fixed future boundary and provides ;in opporLuni.ty to protect the valuable mineral resource area until it is used and reclaimed for other uses in the future. The use of significant public ownership such as BLM and County lands on the north and ' east sides of the boundary also create a premanent planning area for the City and County. -10- ' Yreviou:, Coimn it tmen t VOL 30 FAGS 628 'I'he History ul: subdivision :activity, and individual tract splits had committed much of the area to urban development in the 1960's 'a. I and early 1970's. While this-has led to a somewhat scattered pattern, it also reflects the desire of obtaining open space. This is a desire that was high among the goals to try ' to preserve the existing character of the area. One of the goals established I by Elie plan was to discourage building on the rock outcropping, and thereby use these rocks as screens to the line of sight keeping the undeveloped appear- ance. Map 2 shows an updated subdivision history. This, together with Plate 16 graphically illustrates the previous committment that a vast portion of the planning area had, previous to 1974 and 'the development since then to date. The development and adoption of the original boundary in 1972 upon which many public and private decisions have been made is extremely important part of the community's planning effort. A reliance by the community on these decisions will strengthen the overall planning program. 1 P t -11- n H FOOTNOTE'S VOL 310 FACE 629 1) Bend Area General Plan, Part Il,, p. 12 2) Bend Area General Plan, Part I, p. 18 3) Bend Area General. Plan, Part I, Table 1, p. 9 4) County Planning Department 5) The household size was derived from a sample survey conducted by Portland State Center for population research and census. [recent studies in other cities indicate that the household size is still dropping and a projection by a HUD economist in a report entitled Housing and Urban Development Situation Report,'August 1, 1977, suggests that Deschutes County household size will lower to 2.63 by 1980. The impact of this will be to cause a slightly higher land demand. 6) 'Stevens, Thompson & Runyan, Inc. Sewerage.Facilities Plan, Vol. I & 1I; and BECON, Memoranda No. 6 Collection System. 7) Bend Area General Plan, Part III, p. 4 8) Bend Area General Plan, Part III, p. 10 9) Ray Hatton, Bend Country Weather and Climate. 10) Review of the UGB with County Extension Agent 11) Bend Area General Plan, Part III, p. 10 12) Bend Area General Plan, Part I, pp 16 & 17 13) Bend Area General Plan Part I 1• s H U W O W H O y; H Q ~ W w 0 C14 H ' O rd H U w I.4 7 O H H H trl rr1 ON H I d O W COD m 0 r-I a w a a H W O m N 1 r. i 0.1 C h0 irl ! a rYJ ~t' M N I • .C irl N o1)U t~ r-1 C(1 7 C 0 to ~t C rn N I O r-i •.C Vl b0U oc N r I H O tol O O O,. Lr O l ~O Y .t Q\ N O O O O1 vl O l Ol h 00 00 ~ Lr) t` N r-1 N C(1) tn C a o 1 V 1 co 00 11 N I .C 0, N r I bou A 1 O O O O n Co c\ N ^ M r-{ trl ~O N trl O N O O -•t Lr co ^ rn I.D rn N I On a O rte. O O J A O N O 41 r-1 U O O~ t ON C`J N m (31 41 C >1 IJ X-4 4j U M r1 G r) C N N N1 o u J1 H/ U 0 N M M N r-1 N O r•1 r-1 O O O O*1 O M ~D N On m N O O O O I` 00 trl ko Cl) 00 N trl v1 Ci O O O O ~7 r` ^ rn v'1 ~O N O O O O Irl n O Ln D\ N 0 0 O O rl O O cr IT N N N C 4 U q o0 U1 C N N O u ca O 0 N N J-1 C H to 7> 0 JJ N~r rn •r-I X r--I UJ 1.1 S•1 O N W J-1 .7 O rl 4J (U ~D C +i N U N 4-1 co u O +-1 N 34 [A as Q J-1 b cn C JJ u ~O14 .r{ o :3 =1 •r+ o rj) J-1 x G 1..1 o CO "o •r~ C..1 q N .C 6 u O ro }.1 r-1 N N vI O w W N N O r-I R1 •r-1 > •0 C C J1 a C N O o r-+ 04 ra C r1 u w O o O P+ tH X F: $4 U O N m ai G 1•-1 a 41 cQ O V rd N U u O rn VOL 30 rAcF 630 L:mcl Use Category Wr1'I'1•:It AGRICULTURE (;r,-v,Wg and Range Open VACANT RFSIDKN HA 1, 5 to 10 acres 2-1/2 to 5 acres 1 to 2-1/2 acres 20,000 -,13,5T) (.,17-. 99) 10,000 - 19,999 (.2d-.46) 6,000 - 9,!)99 (.14-23) 3,500 - 5,999 (.09-.13) Less than 3,499 (.00-.08) I'll A11,ElI PARK ('.IIAINIKRCIA1, service Auto Aldo Oriented IlighwaY Orlenlcd IIO'1'1? L-D101'1:1, ' PARKING INDUSTRIAL Light General Ilcany I I'I' I I ,1'1' Y HONA1, Church Related Aledival Related Lodges, Meeting hails Cemetery Pt'R11IC City-Goant.F State -Fedcral-Other SCIIOOI S School Facilities !'Al - I tit~nld:Irld 1'4o Special 11!w Pr4V111R (i.e. gold) IWADS IIA I IJIOA U T'OTA LS APPENDIX 11 VDL 30 'AGE 631 I'A 111,1; I LAND USE 11Y ANALYTICAL AItI.A CI'T'Y OF'Bl-,ND COUNT Y AREAS TOTAL PROJECT AREA SUNIMARY GROUPS r Dw,.Iltng Dwelling Dwelling Acres Units Acres Units Acres Units 72.03 0 403.19 0 475.22 0 475.22 Acres 494.21 1 19,750.69 53 20,248.90 54 110.90 3 4,751.10 90 4,86,2.00 91 29,254.31 Acres 147 Dwelling Units 442.6,4 0 3,700.79 0 4,143.43 0 15.92 2 1,390.38 202 1,406.30 204 • 20.02 6, 807.87 219 827.A9 225 27.07 19 673.85 428 700.92 4,17 82.25 13.1 209.92 316 292.17 450 368.50 1,211 168.45 510 5:56.95 1,754 4,52.1.74 Acres 3,12. 99 1,927 41.35 2061 384.34 2,133 8,471 Dwelling Units 150.29 1,227 4.11 34 154.40 1,261 561.96 1,196, 5.21 88 62.17 1,284 13.72 168 145.88 5,15 159.60 713 43.84 2 10.3f 0 54.20 2 38.18 1 12.22 1 50.40 2 32.55 0 24.15 1 56.70 1 7.51 0 106.11 22 113.62 22 332.98 Acres 30 Dwelling Units 34.47 2 14.11 1 48.58 3 7.35 0 2.13 0 9.48 0 24.29 0 19.46 1 4:1.75 1 34.85 0 85.80 5 120.63 5 795.86 Acres 99.29 1 495.35 2 594.64 3 9 Dwelling Units 5.14 0 31.70 0 36.84 0 22.88 3 26.69 1 49.57 4 20.73 0 2.00 0 22.73 0 159. 68 Acres 5. 86 0 2.81 0 8.70 0 6 Dwelling Units 30.88 0 47.80 1 78.68 1 51.69 0 95.59 2 150.28 2 00. 12 Acres 140.58 0 399.26 1 539.84 1 3 Dwelling units 125.39 0 15.98 0 141.37 0 1.11.37 Acres 0 Dwelling Units 55.73 0 120.64 1 176.37 i~ 6.20 0 0.69 0 15.89 0 Acres 493.37 •I 483.37 q G 1)wclling Units Dwelling 812.87 0 1,135.80 0 1,968.67 0 1,968.67 Acres 39.10 0 182.14 0 221.24 0 221.24 Acres 3,863.86 5,936 35,375.98 2,734 39,239.84 8,670 ` • VOL 3~ FAcf 632 be N e co se I 1 t t t t i 1 O C .-1 r+ 1 1 1 1 p t- M N 1 1 1 1 1 1 . 1 I r t C F 00 { I to p c0 N . l 1 1 1 1 1 1 1 , Cy • r-I d0 1 1 p C~ .CV 1 f 1 I 1 1 i t 1 t 1 i 1 1 1 1 p O O ' s4 1 { co r1 r-i c0 bR C) b° O bR° r+ b° O b° v co b° 00 V-1 M co N N co co N 10 co 00 m O 1 1 w CO C 1 . M . . r♦ . r-1 • N • M I 1 • ' ~r to + N . W . O • v to O . O d+ • M ! 1 O • O • tom- co a 7! Fa d M N M 1 I d? M r4 U E"' 1 d' b~ t 1 1 1 1 1 1 1 1 1 M~ co { -'t U-3 co t/~ ar co Co O O 00 d+ 1 • O O . rl .1 00 CV 1 t 1 1 1 E 1 t t 1 1 1 l 1 1 1 1 1 1 { • O d O U M M 1 1 1 i 1. i 1 t { i O r4 w ' N 1 1 co b° l N v b° U-3 b~ - Cn ~ t 1 t 1 1 1 1 M p l 1 1 OU ) tf) to O M ri ~f7 N r•1 O p 1 1 •N L- .M •N • d~ i t I 1 P t 1 1 . N d U 1 1 I 1 O O rl • r4 O • O O r-1 O N 1 t 1 I p p v-4 ~ m r-t Mb~ 'A cNSe cn Nb~° In In L~ N O c0 N O W t0 0 m N 00 1 1 ~ 1 O O O M 1 . N . 00 . M . CO . a: N• i 1 ( 1 • N • N U ° r4 .M-1 cD M N t4 00 o U') ( 1 1 t i 1 1 ! W O `tN r-1 N N b~ t0 b° N b° m b° r 1~ H bR t ( MaR d+ p H a' C Co M CV d' 00 M O d+ N M N 1 ( M 0o O p N . O • O . M • 00 • C7 • to o I I . O M • • 00 C) . •-t • CO • O • cr • e t 1 1 • p U r•i t4 M m m t- M N M t 1 e-f t0 p ri ri Lo r♦ '-4 p A t W d• W d4 bR N b~ eM b` Co W'. { 1 t 1 N V O H o. C~ V-1 a V-4 C 104 M O d' M N f l t 1 t` F-4 H i C> 4 l O0 • N • O . O , t 1 ( l • W U • r r-1 t' • r M r♦ N 00 M O O t 1 t I C) rX4 N .-1 W M Q F-4 C4 O r4 -17° d4 S i 1 1 1 Obi t t 1 1 t r ~ t ' A M co p Q, 1 c0 O 1 1 1 1 M l 1 1 1 I 1 40 U 0° l C3 a tow CO m V) C4 N ~ A zi m ER (n bR M Zj m w d. b~ co e-1 b° co b° e-•1 b~ Q N Lf d+ N 00 N N 00 00 O ri if 00 rN LO N d~ ►f) O a ) . C) - . . C) • 1' . N . a • O • C~ . O . N ! O tf~ . M • CD . O t- . 00 . 4 r ♦ • ' N 00 00 O O O r4 O ri M N 11 N O N M N M to C> O8~° r4 b° Mb~ M Ob° d4 00 b~ Cmt to b° r-1 r♦ M ri CY) C) O M N to 00 CO m C? 00 00 to O C • O O • c t r-t ; C) O a' % tp • •lfl . t!7 . O • O t-1 . N . C) • - aD • co O CO -It O O d~ M 00 N O t- N 1 1 O O d• M Cfl r+ r4 r♦ tfj C) ' r•1 N 0 Q d) m n U1 N 0) to U) 0 r 0) U 0) U 0) U U U Q) U 0) U U U 0) U 0) U fa P rA pp pp pp i4$4 p p Pk r'1 k U 0) U Q) U Q) U U U U U 0) U Q) U 0) U 0) ¢a <4 a, -cv, w Ca Qa ¢Q•1 < P4 ~a ~a Q -0 i-1 g - U l a bA U gCIS -Cj o . ;-4 ;4 " . bl) ^ u E! o o E-4 0) q 0 En P4 a U 4 4 ~ ~ a N 17! M O L- 1 t`• M ~ . V-4 N Lam- N 'd4 0D~R Obi M t- eM ' 1 • N • O " N O UM er N CO r1 N N . rl o L U N M r1 IV cl~ N N O co 1 • CA • M ' U r1 • V t4 el r-4 V-4 d4 C l Irp r-1 Q H LC0 q a H N A 04 Ei O Q ' ~ U W a A ' x U z W A t 1 r•1 O . O 1 to 1 1 M t!; N M N tR Co N G) 4m • tf~ . M r-I W V~ M H O b~O tO b~° In CO M M cM r-1 M tf~ ~ r••1 N M 00 m N . N • . N M Cn • O co N N N r-1 1 1 1 1 M 1 t O 00 • O 1 1 O t t N ~ 1 I i f 1 1 l t 1 i M 1 1 ~ O 1 1 M N 1 1 1 1 i I 1 f l 1 1 1 1 1 1 1 t j 1 1 CO ~p d+~ p~ O M O L' ~ O r-1 C O N O O 1 I M M 1 1 t t 1 I i t 1 1 1 1 I I r-1 00 S` r-1 co C0 CA CA m L- 00 N . N r~ M M ~ 00 G7 00 • CA • rl • L7 • r1 M O O oo V-1 O -4 -4 O C; . r-1 tf; O 00 M N r U 3 M ~ N O O 1 i 1 1 1 ! t ! t t A o0 0 .••1 00 1 1 1 1 1 1 1 t I 1 . N • O i t 1 1 I t 1 1 CA • m L N • CM 00 I I t l 1 1 t 1 t 1 ca OD ~p M 1 m tom' O M t` r4 1 1 1 1 1 ► ! 1 • N O • O . r-d i co . M M O • ti O O • O 1 1 1 I t r1 N r-I N 1 ! 1 'd' & O& w& tom` z5R C> 6R N O t- ro r••1 T-1 L- O O LO 1 1 1 F I t 1 1 1 • M O d~ ; L ~ d+ ry . M M CA Cl) C O O N O N LO r-•1 n4 OD b\ OD LO \ L N OD O In 't t~- 00 O r1 LO M ' ' . CD 1 r-1 • M 00 tf~ N • M c ; CO l I . M C0 . M 00 LO 00 • O rl . t- N • C . N O N r••1 M t t 1 1 O C_n t- N r-1 l 1 N VOL 30 rArx 033 s° i i c ° 1 o 1 I LO C> rl co Ci i f 1 t p U co 1 O ~ tf3 p OD O • co 1 1 O p • ~ L r-1 M 1 1 M p td 1 i C C 14 C -7 V-1 1 t LO (D O 0 N O . r-i O t E M O H 4 O rI H W g4 cq O O C) C' O 00 N LO O L 00 N Co N cli N LO 0 N . r A d~ • 00 T-4 C) r-1 g O M . O . O t- oo Oo co O O N It rD r-i to N O OO O . O L-- • O to O r-1 ° c q H M -1 r-1 O O CA • O O • tf.1 M O ~ I'- O O O M 0 N CO CU U CQ Q) a) U to U U w U U w U U fn a) N U U) U N U CA 4) N U U) U CD U U ~ U ;4 ;4 W U U IL4;4 U W U~ U N U a) U C D N Q a -:4 a, < w ¢ w Q w ¢ a <C P, < A , A, < A, ai 'd PC9 Cd a Ei a~ •b s~ P, U i o E m a) o cn C4 . VOL 30 FacE 634 W to s (71 f,. : BC to (7) fT crl co (D C) [D CO n : W tT CU M in ~ O ; [T ( ID C] O N N r ~I .-1 i n U1 U] M I x3 N C'• pl \D \O cD In Ul UI (I \D In W to O O O 0 0 0 0 CT r( C- 1 cp to O D~ O O O O 0 0 Ol U L! if) O M N -1 O O n) O r^ ` C1 to N M M ,1 ul O N lJ C 1 -zr C) to r- co -3 kin wo to cy, L -3 IN (1) 1-4 ri ('1 CJ t ) -4 [7) .d O Eli .-I J -1 Eli (1) W \D 0 (3, r- Ml C 1 M O H M 0 N O 0 0 O O O 0 O 0 0 CJ M y N ( v M fl7 1 r-1 Io ,1 r r N U N v J J U) N J .S U 0 U7 In [n O O O ~ O O O O 0 O O O O O M CO Ul to CO O to to .--1 \l7 C J J (D Ql U) N Ul N 0 ~a U N (D M N M -i N M ul •N Q O O O O O O O O O O O [D O (D -i U) (T H O O v U _ (1^ ,-I to U1 O N ['1 -4 C .-1 Li) N r, N fi M N c\M 1 0 O U W n E W O O J N O O O N O O O O O O 0 O O 0 M in n N to J N [I, r- 0 v •1 I ED F; •-1 (U .-1 W M N M1 tV N 0 o u 1,4 w H Q N "I 1 Ch H N v W Q N IT 0 O C` O U'1 O r- O M O O O O O 0 O ^ O O O O M N m 7 ~ A G] W I _ l IT C- r- -I W O in i, M (D H - O H tT OT U7 C` (3) - N fD a In -1 Lr) 10 .y M N N r-1 N H N C F W q ~ 7 C 4 V) N ~ '"i C Q N U U O O -T O J O In O In O N O 0 O O O O O O O 0 O J N (D C` M '-1 -i \[1 M 1 0 N O ,--1 M N UJ H U7 ,S to N r In 0 ul N .-i N -I N -i - ^ M ~N ' a 0 al 0 C. 7 t .a 0 Ql ul to 0 0 N 0 u1 0 -1 0 0 0 n o 0 o O o 0 0 Ul N m [C) -1 -A N p O w n 71 :r. w 0 p' l Ol UJ l71 r, t l r- .-I -1 M in J 7 H O N N C\.-i r H w E u H I1) N 0 Cl UJ M' 0 0 -T 0 [D O n C7 0 O 0 O O O O O,^ 0 C) (T in w J O y a Q to in .-1 U7 H M J S r- M Q1 J ('1 lT N H r-I .1 U C W N 0 .N N ' > N U) A ~ U U U i a) L u u C ~ fil Eli nl 11 C i. 0- U to O 4~ n U) N 'l7 r, E U I UI U) U) Gl W pq U- 9. F-, Y r-1 D C O +-1 10 to W ..-I •rl 0 t-1 U [T 0 " 14 41 U a H F CC ED (1. J U •.i 10 a) N t Ill to ~I v 1-1 _1 i , H a(J . 1 j Ij (1) t l. --l Ell v G 1-1 L J.1 N ti? IU T W fJ Ill i' : N . l11 U y_ UI .I+ 111 ZJ it C. C) k. CY C t. fJ 10 1..1 17 I 1-/ i., U 0 V+ 0 N {i U W 1X1 C ( ~ •rl C W F rl fl - + .-1 _ i Q i I to _ U W FI 1 I to W W f! I •H .i -C ) to [.J 111 { I [ 1 1 .-1 I ,1 7 ll .~I N Il l] III 11 II 111 11 11 k' 11 1 1 , Ul III •.1 1 I 1 I ~-1 I JI .1 111 I 1 . -1 1 . _ _ fJ 1 • 1 • 1_ 1 111 Ili I, J l,_ l_1 I 111 I u U ul ti) r~ ] 974 Arrowhead Acres Cady Add Countryview Estates Davis 1st East Villa 2nd Golden Mantle II Golden Mantle III Holliday Perk Homestenid 2nd Knoll height, Pinebrook Romaine Villa8e #6 Sunset ],St Sunset 2nd R , 1975 Los Serranos 1st Romaine Village #7 Sunny Acres 1 I 1976 Eagle View 1st Edgeeliff ' frontier West Holliday Park .1r;t ' M)MOSLead 3rd KinF;s forest ' Knoll ilei.l;hts l.st Meadow View 4th Pinebrook II APPENDIX VL Subdivision HiStor.y .1.974 To Present Subtotal Subtotal. Acres 22.7 .5.4 32.8 29.7 64 14.8 27.3 13.9 24 10.27 17.71 10.65 ].7.03 i10_ 03 250.29 28.7 10.07 39.91_ 78.69 19.68 15.9 8..5 16.79 ].4.7.7 39.03 3.7 3.1 21.94 VDL 33 FAGS Dn 35 Lots 11 17 13 49 36 10 31 42 38 27 26 17 19 11 347 7 21 l.4_ 42 17 38 16 41 17 43 8 9 30 1976 ConCi.nued Acres OLots` 4 ' (teed Market East 1st 7.2 121 ' Ri*Inroc1, I L I Romaine 118 24.03 22 . 28.94 56 Swalley View 49.08 18 ' Thomas Acres 14.03 23 'l'imber Ridge 52.41. 99 Trap Club Road _ 8.06 _21. 326.66 470 1977 Airpark 20 36 ' Ambrosia 20 30 Br.ightenwood 17.8 29 ' Broadway 1 4 Brycewood 20 5 ' Choctaw Village 22.3 85 Chuckanut 111 7.7 23 ' Desertwood 49.63 81 Desert Wood 111 44.8 76 ' llidew.ay 11 24 Hunters Circle 44.4 89 Janelo Court Ki F l 3.3 9 ngs orest st 39.66 48 ' Larkwood Meadowview 5th 22.86 •.41 5.26 22 Nottingham Square 44.75 80 ' Pinebrook III 1.8.7 28 Quail Ridge Park 70 21 ' Reed Market Last 2nd 13.12 22 Suntree 20 30 V i I I ta};e Faire 28 45 V is to Del 'So.l. 60.27 24 Woodside Ranch ]I I Woodside R h IV 96.2 38 anc 56.35 22 Woodside Ranch V 11-2 63 Subtotal _ 849.1 975 - - 5 - . _ 7 19 t 3 WE 637 78 - thru March 24 13riF;htcnwoo(I P,str itc•:, Acres Lo t E, . 13 roat1w ty 1st 21.6 39 1 13.lucb.Lrd 3.11 10 Choctaw "A" 3 12 Ilomestead 4th 4.17 16 ' J-ll Ranch Fatates 42.56 40 4 83 Kiwa Meadows . 24 Prophet's 1)en 14.96 58 Quail Ilollow 6.5 8 Quail Ridge 6.74 20 ' Romaine #9 70 24 • 5untree 51.5 93 ' Winchester 19.64 32 20.58 77 304.76 496 ' 1.974 250 29 . 347 1975 78.69 42 1976 326.66 470 1.977 849.1 975 ' 1978 March 304.76 - 496 1809.5 2330 Approved by the Board of County Commissioners on the day of 1979. ATTEST: BOARD OF COMMISSIONERS chutes Co Cler k _ COMMISSIONER 1 VDL 1TO P~• 10, 1 BEND URBAN AREA FINDINGS - ADDENDUM 1979 A. Population and Planning Period 1 Planning Period 1979-2000 1. Population Forecast: 4.5% Per Year Growth = 84,000 1 2 0% P Y th = 5 G 96 500 . er ear row . , 1 Current Population: = 33,000 Persons per Household: = 2.3 (State Average) 1 Multi-Family Housing Mix = 33% Single Family Housing Mix = 66% 1 Overall Urban Density = 4.5 People per acre 1 A-1 Requires 5,173 acres of vacant land for residential A-2 Requires 6,135 acres of vacant land for residential 1 3. It is likely that the continued dvelopment of the area as a recreation- al and tourist center will continue the pattern of second homes within bena as well as Deschutes County. Approximately 10% of the housing is second homes. This means that 10% more land will be needed by 1 the year 2000 for housing in the Bend UGB. 1 * This addendum amends where applicable the Urban Growth Boundary Finding as adopted by the Deschutes County Board of County Commissioners, June 218, 1979. 1 L r i BEND URBAN AREA FINDINGS VOL W# two PAGE 2. B. Vacant land primarily on the west and north side of the UGB have been included within the boundary. The following reasons were the basis for the establishment of the boundary in this location and the inclusion of these parcels as urbanizeable land. 1. The boundary follows natural physical features(Tumalo Creek Canyon) ownership and boundaries along the westside. 2. These areas will allow large-small lot developments maximizing land development efficiency. 3. These areas have been irrevocably committed to development. 4. Lands on the westside will be easier and more economical to develop than lands on the eastside, due to absence of bedrock conditions and difficult rock types that make excavating for sewers and roads less costly. A direct benefit to the provision of affordable housing. ' 5. Westside acreage is held principally by three major land owners making the planning and developments of these areas more com- prehensive. This also limits the availibility of land throughout the urban area. ' 6. A large portion of the vacant lands west and northwest are within the Phase II Sewer Boundary. ' 7. The westside of the boundary does not have an established road network. Because of this, new developments will develop with full urban service to city standards. ' 8. Development of the western areas will allow the creation or con- struction of roads which will relieve traffic congestion on Highway 97. 1 9. The Park and Recreation District boundaries correspond generally to the UGB. This district was formed in 1976. C. Timing of Services Policies and programs for the timing and phasing of urban services have been adopted by the City of Bend and Deschutes County. Included are: ' 1. Phase II Sewer Report, Policies, Surcharge Ordinance. 2. Urban Area Management Agreement 3. City of Bend Capital Facilities Plan (CIP) 11 BFND URBAN AREA FINDINGS PAGE 3. VOL 3 Otf W Outside of the present Phase II sewer service boundary sub- divisdnns with l/2 acre=and larger lots wia-Utilize septic tanks and dra nfiiU s, along with either public and private water supply. D. Defining Development Alternative areas on the Plan Development alternative areas are intended to recognize the pronlems of providing for communit services ri r t d l i y p o o eve opment n areas where new growth is expected to occur. This concept was developed to deal with conditions common to the Bend Area and Central Oregon. Virtually all of the Planning Area is characterized by a shallow soil cover over lava rock. This condition leads to exceptionally high costs for instal- lation of underground utilities. The nature of the lava flows and complex underlying geology has also led to the extensive use of dry wells as a replacement for septic tank drain fields. This system is so simple and apparently successful that only about 9 percent of the City is connected to a sewer system. However, in recent years, there has been a growing concern that this practice will lead to pollution of underground water supplies." problem and to discourage development at urban densities until some provisions can be made for ccamunity services." "Conditions vary greatly within areas shown as Development Alternative. In some cases, they can be served easily by the city sewer system. In ' other areas, septic tanks and drainfields will work well on larger lots. In still others, septic systems are not satisfactory because of shallow soils, slope or both. In the Ward development south of Bend, the developer has installed a sewerage disposal system and treatment plant ' to serve his development. Development Alternative areas in that section can easily be converted to urban densities by extending the sewer lines. However, it is a privately owned system and cannot be used by the general public." l G 1 1. Part III. Bend Area General Plan pp. r r BEND URBAN AREA FINDINGS PAGE 4 Vot The County has just begun to consider becoming involved in this problem and with good reason. Historically, there have been few problems with septic tank drainfields or drill holes in the County. Recently, changes in State regulations have virtually eliminated the use of drill holes for new development and have created an awareness and concern about future growth using drainfields. The County has many problems ' of planning and establishing As mentioned earlier, a small now. To provide service over mation of a service di struction. Since ther may be very difficult The most difficult part all lie in the future today. to consider and much to do sewer service in the urban area east of Pilot Butte fairly extensive areas wo and several years of plan pparent problem in the ter approval of a sewer entire situatk in is that are few, if any, indic in the process growth area. could be served uld require for- ning and con- area now, it district. the problems ations of them However, the purpose of any plan is to look to the future and attempt to foresee and avoid problems. If the plan is to be successful, pro- blems must be solved in a context acceptable to the people of the of the community today. It is not possible at this time to set forth detailed and specific guidelines for Development Alternative areas because the options for development are not clear. Will the County initiate sewer service districts? Will the State regulations eventually require sewer service? Would large parts of the area be interested in annexation to the City as a means of obtaining services? How soon will enough new growth occur to make the problems more obvious? These and many other questions may remain unanswered for several years. There are some things we do know about the future. The rock will continue to make construction cost higher than normal. The rock will probably continue to require blasting. The Bend Area will continue to grow. Browth. pressure will increase land values and reduce lot sizes. Smaller lots will not work as well for individual disposal systems. Sanitation problems will result and, eventually, sewers will be re- quired. It is not a question of whether or not sewers will be neces- sary, but rather, how to minimize the cost. ' The solution to services and increased housing densities must be a joint public and private effort. If services are to be provided, the city and county must participate by doing those things which individual property owners or small developers cannot do for themselves. Faclility plan- ' ning for systems, establishment of districts and unification of standards are examples of functions and responsibilities of local government. As the city and county proceed with these activities, ' develornent alternative standards may change for some areas as additional engineering data becomes available. The Development Alternative symbol consists of two colors in each case. ' The colors correspond. in meaning to thos used for other residential areas on the map. The color which symbolizes the larger lot size is ' the recommended housing density for that area without community services. strict eis no a to get vo of this and there r VOL 30 wX P. BEND URBAN FINDINGS PAGE 5 It recognizes lot sizes generally found in the area at the present time. The second color symbolizes the recommended housing density if all community services are provided. If community water service is provided and if the area to be developed is preplanned to the ap- proximate higher density shown on the plan, lots of less then 2-1/2 or less then 5 acres may be developed." 1. With the development of the Phase II Sewer System Seport,.the City and County now have a basis to define areas for future. public sewer system service. 2. The City's sewerage system is expected to be operational in 1981. 3. The City has adopted a policy to encourage annexation of adjacent lands in order to provide full urban services as they are developed. 4. The development alternative symbol is a mechanism to encourage timely, orderly and effecient provision of services and an incen- tive to developments to provide standard density development with full services. E. Vacant Lands 1. Tax lots existing at the time of the land use survey were clas- sified as "Vacant", if no dwelling existed. 2. These lands were included since they were existing tax lots under different ownership in 1973. ' 3. A majority of these lots have been built on since 1973 and are acreage hcmesites. 4. These areas are not likely to be split into smaller lots in the near future and therefore, cannot be considered as available ' buildable lands. This can be seen in the testimony against chang- ing zones in these..areas. ' F. Existing Subdivided Lands 1. The developments have irrevocably committed the surrounding vacant ' lands to urban development and between these lands and the city limits. G Density Projections 1. In order to comply with Goal 14 (2), Goal 10 to provide a variety of lot sizes and lifestyles, a variety of land use densities are in- cluded in the plan. 2. Half acre lots have been provided for outside the Phase II Sewer ' Boundary. Sewers will not be provided to these lots because of the cost factor involved. However, these areas are committed to urban use. Septic tank and drainfields are acceptable to the ' DEQ. ' JBENI) URBAN FINDINGS PAGE 6 roe 30 6V 3. The underlying urban density in the Phase II sewer service area is ' the minimum 6000 sq. ft. lot or approximately 5.5 dwellings er acre densit h p y . 4. The density outside Phase II sewer boundary will be a maximum of 2 dwelling units per acre. H. Anti-Sprawl Policies ' 1. The City of Bend and Deschutes County adopted the UGB in 1972 and this boundary has had a long period of use in the community. The City of Bend and Deschutes County have adopted a Phase II ' Sewer Boundary which will encourage in-filling at standard high densities. t 2. The City of Bend has standing in all land use public hearings outside city limits but within Boundary. ' 3. The Phase II Sewer Boundary policies incorporate a plan for pro- viding services within that area. 4. The City and County have agreed that orderly growth should emphasize ' growth from the City outwards and that the provision of Goal 14 dealing with conversion of urbanizable land will be used as the test for future developments with the UGB. r r Approved by the Board of County Commissioners on the day of 1979. ATTEST: BOARD OF COMMISSIONERS COUNTY OF DESCHUTES COMMISSIONER T~ 3 w 644 Q F ED BEAD URBAN GROW7H BOUNDAR`.' JUL 131979 FINDI14GS OF FACT DES osrMARY F,gTTE UTES CO RSpN Deschutes County Bend Urban Area Zoning - ADDENDUM LINTY CLERK General Findings: 1. In 1977 the City of Bend's population projection for the Bend Urban Growth Area by year 1985 was 43,500 to 45,000 people (Bend AreaiGeneral Plan, Volume 2, Page 12). 2. Deschutes County's estimate of the population for the Bend urban area by the year 2000 is 84,000 people (Comprehensive Plan, Deschutes County, Resourse DoC mlent,1979, page 138). 3. The amount of land within the Phase II Sewer Boundar- and the RS zone was established to provide for the distant future of the urban area so that we do not allow medium density urban development (i.e., SR-20) to preclude the expansion of potentially needed future high density development and its accompanying public facilities and services. 4. Excess land has been provided for in the urban growth boundary over and above that which is immediately needed for the year 2000 for the following reasons: a. Reasonable provision for the expansion of public facilities past the year 2000. b. Making allowance for choice and variety in peoples' tastes:in selection of home sites. C. Market stabilization and neutralization of market speculation. Surface Mining (SM) Zoning Findings: 1. All of the adopted SM areas were reccmnrended for this zoning by the surface mining citizens ccannittee. 2. The SM land represents the predominant mineral resource supplies within the urban &rowth boundary. 3. These areas are located close to major urban development and therefore will supply aggregate at economically competitive prices. 4. Due to the surface mining areas proximity to urban development, reason- able secondary uses for this land upon reclamation is likely to be ur- ban development. Urban Area Reserve (LIAR-10) 1. Agriculture or open lands cover extensive areas along the western side of the planning area. The planning area includes a great deal more land than will be needed for urban uses by 1985. This classification is intended to serve as a holding category and to provide opportunity for tax differentials as urban growth takes place elsewhere in the planning area. (Bend Area General Plan, Part 3, Page 10). f BEND URBAN GROWTH BOUNDARY ADDELA)UM PAGE 2. 645 LIII~ 2. Agricultural or open uses on the pl-aA should be preserved as long as possible as useful open space until needed for orderly urban growth. (Bend Area General Plan, Part 3, Page 10). 3. The UAR-10 area meets the need to keep large parcels of relatively undeveloped land within the urban area so that future expansion of urban residential development is possible with relatively little disruption to pre-existing homesites and land uses. Suburban Residential (SR-22) 1. ANeecU4-o provide adequate numbers of housing units at price units and rent levels which are omriensurate with financial capabilities of the areas' citizens. (LCDC Goal #10). 2. Public testimony was received indicating the desire of people to maintain the existing trend for 21j acre parcels in the areas so zoned in the northeast section of the urban area. 3. Except for the area zoned SR-22 in the northeast section of the urban growth boundary, no other areas in the boundary which are zoned for Li acres have any substantial amount of land available. 4. All areas outside the urban growth boundary are-. proposed to be developed at a 10 acre minimum; therefore, there is a need for some large urban lots. Approve by the Board of County Comissioners on the day of 1979, COMMISSIONER r~ F .rp COMMERCIAL ZONING `jUL 13197 FINDINGS ®FS~6 SRy PATT¢RS C0uNTy CORK The Bend Area General Plan was prepared in conformance with the following general policies: 1. Concerted community efforts shoi ld k e-'TTade to improve the appearance of existing commmercial areas and similar considerations encouraged in all new developments. 2. New commercial areas in outlying sections should be deve- loped as centers rather than as strips along major roads. 3. Development standards should be established for all commercial areas and particularly for those which will be adjacent to residential districts. 4. Commercial areas designated on the plan generally recognize and re-enforce existing development and zoning patterns within the planning area, and suggest locations for additional comm- ercial development. Most existing commercial uses in the project area occur as part of a more or less continuous strip along the major north-south and east-west routes through the city and in downtown Bend. These commercial areas account for most of the commercial land use in the planning area. Although the plan recognizes the existing strip commercial development along major highways in the areas, it strongly recommends that new commercial development occur in centers rather than as strips along major highways. 5. It is not the intent of the general plan to limit commercial activity , but rather to direct it into areas where it can develop harmoniously with the•`rest of the community. The plan proposes relationships between commercial uses and other elements of the community which can be achieved with minimum conflicts among uses. The responsibility for land-use decisions rests with the City Commission and the County Commissioners and careful use of this authority will make the entire community more attractive and economically sound. 6. There may be a need for additional limited commercial areas in the future which are not shown on the plan. New areas should be located as centers rather than as commercial strips. They should be located at intersections of major streets and have a site size of from 12 to 20 acres. There may be suitable sites adjacent to or part of existing commercial areas along the highway. If centers are developed in situations related to the highway, extra care should be taken to guarantee excellent access to the site and development plans should include proposal for solving congestion problems which may be created at highway access points. wa 34 wa 041 7. Because highway commercial areas are located on the plan along major entrances to the community, special consideration should 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. 8. Strip commercial developments cause many problems in terms of traffic congestion, mixed uses and visual chaos. Each business along the street becomes a-point of turning movements which \ can greatly reduce the traffic capacity of the streets as well as increase by many times the number of potential accident situations. 9. Strip commercial developments shown on the plan along highways should not be extended. 10. No new strip commercial shouldbe permitted along major or secondary streets. GENERAL FINDINGS 11. A proliferation of the access points to a street, road, or highway can: destroy the traffic function of the street, road, or highway; create safety hazards; and result in costly high- way improvements at the expense of the public and individual property owner. Access control along highways can often provide the most cost-effective means of maintaining manageable highway capacity and should be implemented wherever feasible. (Comprehensive Plan, Deschutes County, Resource Element, 1979, page 186). 12. Commercial zones have been expanded in other areas(Denser Road, Hwy 20, and Parrell Road, Hwy 97) which satisfies public need, provide locations closer to population centers, provide more efficient and safe access locations and provide readily available highway access. 13. Certainly one issue is bound to be of increasing importance is the cost of commuting locally. The sprawling development pattern which has characterized development in recent years will mean expensive transportation for families. Effective transportation planning and suitable facilites development will become increasingly important as will appropriate land use planning since the two processes are inseparable.(page 179, Deschutes County Resource Element, 1979). 14. Local efforts to encourage closer developments, a more efficient energy pattern, high densities for housing, and recycling of materials should have important impacts on local energy consumption (page 179, 180, Resource Document, Deschutes County 1979). a VOL 39 tAtA 648 15. Transportation demands are affected both by the degree of clustering and community planning and by density. "Planning" alone can save nearly 14% of the total energy consummed, but "planning" combined with increased density can save up to 44% (page 5, The Cost of Sprawl, Executive Summary, 1974). 16. Additional commercial areas have been designated at the highway 97 and Parrell Road area and also the highway 20 east and Denser Road area. These sites have been recommended over what the Bend City Commission and the Deschutes Planning Commission have recommended. 17. The establishment of shortened and compacted commercial zones as in the area of highway 97 south and Parrell Road and also Denser Road and highway 2.0 allows for energv savings which can result from havina access by shoppers to more than one shoDDina site within walkina distance of a aiven Darkina area. 18. The Bend Area General Plan desianates this area as commercial. This means the possibility of commercially zoned property still exists. Property owneres if wishing to have commercially zoned property will have tb aDply for zone chanae. 19. The amount of traffic (ADT) has increased 33% at 3/10 mile north of McKenzie Interchange in the last 5 vears. 1973 count 7200 ADT, 1978 count 9600 ADT. 20. Concern was expressed by some citizen groups in the south highway 97 area reaardina commercial stio development in that area. The areas of concern were highway access, traffic congestion; and driver safety (March 21 and 28 public hearing on Bend URban Area Zoning). App ved by the Board of County Commissioners on the. J day of 1979, ATTEST: BOARD OF COMMISSIONERS COMMISSIONER