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32-359-Ordinance No. PL-16 Recorded 10/3/1979. `yy. VOL 32, fAGE 359 IN THE BOARD OF COUNTY COMMISSIONERS OF THE STATE OF OREQ FOR DESCHUTES COUNTY OCT In the Matter of an Ordinance ) Establishing the Sisters Urban ) Area Comprehensive Plan ) R~SFMAR 3 rg~9 ORDINANCE NO. PL-16 yP~~FRSp n; CO C1-pRk The Board of County Commissioners of Deschutes County, a political subdivision of the State of Oregon, ordains as follows: SECTION 1. The purpose of this Ordinance is to adopt the Sisters Urban Area Comprehensive Plan for the City of Sisters. SECTION 2. The Sisters Urban Area Comprehensive Plan is amended to the date hereof (herein referred to as "The Plan"), and is adopted pursuant to Oregon Revised Statutes as the Comprehensive Plan for the Sisters Area. A true copy of said Plan is attached hereto as Exhibit "A," and incorporated herein by reference. The map entitled, "Sisters Urban Area Comprehensive Plan," attached hereto as Exhibit "B," and signed on the date hereof by the Sisters City Council and the Board of County Commissioners (herein referred to as the "Governing Body"), is adopted as the Comprehensive Plan for the lands shown thereon. SECTION 3. Quasi-judicial amendments may be made to The Plan in accordance with the procedures described in the Oregon Revised Statutes, Urban Growth Management Agreement, County Procedural Ordinance PL-9, and subsequent amendments and revisions thereof. SECTION 4. The map referred to herein shall be maintained by the City Recorder and County Clerk, and any quasi-judicial amendments thereto shall contain legal descriptions of the affected areas, be filed in the Journals of the City Recorder and Board of County Commissioners, and shall become effective upon the date signed by the Governing Body. The Planning Director shall maintain a true copy of the original map and draw thereon all quasi-judicial amendments to The Plan as they are made. Failure to revise said map shall not affect the validity of any Plan PAGE -1- ORDINANCE PL-16 r VOL c lr" fAur amendment. The Governing Belly 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 amendments to The Plan to the date of said order. Such map, or portion thereof, shall bear the dated, authenticating signatures of the Governing Body, and shall be filed as a replacement superseding Exhibit "B" with the City Recorder and the County Clerk. Any map or portion thereof thereby re- placed shall be retained in a separate file by the City Recorder and the County Clerk. SECTION 5. In that the Land Conservation and Development Commission of the State of Oregon has required Deschutes County to adopt a Comprehensive Plan for the Sisters Urban Area by September 1, 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 ~QQ d of September, 1979. a ATT T: R SEMARY-PA ER ON Co t nC-J l PAGE -2- ORDINANCE PL-16 , JR., Commissioner I BOARD OF COUNTY COMMISSIONER ~4 //1 & CLAY C. SHE ARD, Chairman v - VOL 32 FAUF361 URBAN GROWTH MANAGEMENT AGREEMENT 1 L' CITY OF SISTERS AND DESCHUTES COUNTY, OREapiDy" ~CT3 , O SISTERS URBAN GROWTH BOUNDARY 9RyP,q1)F 9~9 1114 d CO WHEREAS, the City of Sisters and Deschutes County have ' jointly prepared and adopted the Sisters Urban Area Comprehensive Plan; and WHEREAS, the PLAN establishes an Urban Growth Boundary and establishes policies for development; and WHEREAS, the City and County have agreed that orderly development and the efficient provision of public facilities is in the public interest; and WHEREAS, ORS 197.010 authorizes governmental units to contract and enter into joint operational agreements with one another; and WHEREAS, THE Urban Growth Management Agreement for the Sisters Urban Area is intended to foster the following purposes; 1. To retain and enhance the character and quality of the Sisters area as growth occurs. 2. To provide a sound basis for urbanization by establish- ing proper relationships between residential, commercial, industrial and open land uses. 3. To encourage City and County cooperation in the pro- vision of urban services in order to bring about a more orderly and efficient 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 amenities of Central Oregon can be retained within the community as growth occurs. 5. To significantly improve and protect the appearance of the community as a means of enhancing the individual identity of the Sisters area as the "Gateway to Cascades". 6. To provide a safe and coordinated transportation and cir- culation system to bring about the best relationships between places where people live, work, shop and play. r vat 32 FACE 2 7. To bring about a general increase in population density throughout the community in order to facilitate future public transportation system as energy supplies diminish. 8. To retain and enhance desirable existing areas and to revitalize 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 services; but rather in terms of what is good for the community as a whole. 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 and regulations in order to promote maximum livability for the people of the community. WHEREAS, the City of Sisters and the Deschutes County Board of Commissioners hereby establishes this AGREEMENT for urban growth planning and management which shall serve as a basis for decisions pertaining to development within the Sisters Urban Growth Boundary. 1) The Urban Growth Boundary as adopted or as hereafter amend- ed will establish the limits of urban growth for the Sisters Urban Area. A. City annexation shall occur only within the officially adopted urban growth boundary. B. Specific annexation decisions shall be governed by the official annexation policy of the City of Sisters. The City will provide an opportunity for the County to respond to annexation requests. C. Establishment of the Urban Growth Boundary does not imply that all land included within the boundary will be annexed to the City. D. Development of land for uses designated on the Com- prehensive Plan will be encouraged to occur on undeveloped lands adjacent to or encompassed by the existing City Limits prior to the conversion of other lands within the boundary. E. Urban facilities and services must be adequate in con- dition and capacity to accommmodate the additional levels of growth, as allowed by the Comprehensive Plan, prior to or concurrent with the land use actions. . r VOL 32 FAUF 363 2) Deschutes County shall retain jurisdiction over land use decisions within the unincorporated urbanizable area and all land use actions shall conform to the following procedural policies: A. Recognizing that unincorporated areas within the urban growth boundary could ultimately become part of the City of Sisters, the City's recommendation will be con- sidered. It is the intent of the County to administer a mutually adopted City/County policy in the urbanizable area until such time as the area is annexed. B. The County shall submit to the City a copy of all pending applications for land use actions - within the unincorporated urbanizable areas. The City shall have until its next scheduled meeting or thirty days to respond to the County. C. The City shall submit to the County a copy of pending land use actions within the incorporated area which affect lands under County jurisdiction. The County shall have twenty days to respond to the City. 3) All new subdivision and partitioning activity within the unincorporated urbanizable area shall conform to urban standards as set forth in the Sisters Ordinances. 4) The City, County and affected agencies shall coordinate the expansion and development of all urban facilities and services within the urbanizable area. A. Provisions for urban facilities and services shall be planned in a timely manner limiting duplication in an effort to provide greater efficiency and economy of operation. B. A single urban facility and service extended to the urbanizable area must be coordinated with the planned future development of all other urban facilities and services appropria_.°te to the area, and shall be provided at levels necessary for expected uses as designated on the Comprehensive Plan. 5) Long-range transportation planning for the urbanizable area shall be a joint City/County process coordinated with all affected transportation agencies. 6) It is the intention of the agreement to encourage develop- ment consistent with the Sisters Urban Area Compresive Plan and the Statewide goals. VOL 32 FAu 354 7) Whenever the City oi County desires to make a change in the Urban Growth Boundary or,the Sisters Urban Area Plan, its governing body shall appi?ovO! a.discussion draft of the amendment and forward the same to the other governing body. The other governing body shall consult with its planning commission and approve by order the discussion draft or any desired changes in it. The draft shall then be sent to the initiating governing body for approval or changes, and so on, until agreement is reached on the text. The City and County governing bodies shall then set a mutually acceptable date for a joint hearing duly noticed in accordance with County Ordinance PL-9. At the hearing, testimony shall be taken from all interested persons on the proposed amendment, which shall be read at the beginning of the joint hearing. The conduct of the hearing insofar as the right to present and rebut evidence is concerned shall be governed by County Ordinance PL-9. At the conclusion of the taking of testimony, the City Council and then the Board of County Commissioners, shall separately vote on the proposal before the hearing. If any modifications are passed by one governing body, such modification shall then be voted upon by the other governing body. If the proposed modification is passed by the other governing body, the proposal as modified shall bind both the City and the County. If the proposed modification is not passed by the other governing body, neither governing body shall be bound by its vote on the modifications, and both governing bodies may continue negotiations and take votes following the above procedure until the same set of proposals and modifications are passed by both governing bodies. The joint hearing may be adjounr-ed from time to time by a majority of the members present and voting from each governing body. Approved by the Sisters City Council this ,2;1 day of Sept. , 1979. ATTEST: CITY COUNCIL: City Recorder mayor - 2 o - 7-elk Approved by the Deschutes County Board of Commissioners this d4L Y of ~2 mr, 1979. ATTEST: BOAR D OF OUNTYCOMMISSIONERS CHAIRMAN iCunty-Clg k COMMISSIONER CO d IONE f YCi t 32 PAG'E F~ o~r~C C O 1919 SISTERS `M,,4An~~~"aER„ VABAm AREA COMPREHENSIVE. PLAN "The Western Town" Sisters, Oregon Deschutes County July, Is" W W N MCR~-,AN 4 ASSOCIATES ~ ppRE76E7NA1.AANNIW IV'DUL7AN13.__ E, /1 w ~l - - T10DIIEDONDYE. EAi ElND.011EOON 07701 d ANCEQ FL- FnRFwnRD SISTERS URBAN AREA COMPREHENSIVE PLAN VOL 32 rAUE366 The Sisters Urban Area Comprehensive Plan consists of seven parts which are designed for easy reference, clarity and convenience to the general public. The seven parts are: Part I Introduction . Part If Citizen Involvement Part III General Goals and Objectives Part IV Resource Inventory Part V Comprehensive Plan Proposals - Findings and Policies Part IV Implementation Programs and Policies Part VIII Appendixes Parts 1 and 11 of the Plan include a statement of public purpose, planning background information and citizen involvement program. Part Ill includes a statement of general goals and objectives as they apply to the Sisters Urban Area and Planning Area consistent with statewide Planning Goals. Part IV includes an inventory of existing physical, social and economic conditions, programs and issues which provide the basis for developing comprehensive plan policies and ordinances. Part V includes the proposals and policies of the plan supported by adequate findings. Part VI describes implementation programs and policies for carrying out and enforcing the comprehensive plan. It includes an urban growth management agreement policy which will ensure city-county coordination. It also ex- plains how the plan policies and maps are to be interpreted and includes policies relating to annexations, zoning, subdivision, land partition and standards for the design and construction of public improvements. r Part VII includes definitions, a complete bibliography, existing land use map, Comprehensive Plan Map and amendments. 32 . k,:r36"7 VOL CONTENTS Foreword Part I INTRODUCTION 1 Statement of Purpose 1 Planning Background 3 Part II CITIZEN INVOLVEMENT 6 Statewide 6 Deschutes County 7 Sisters Urban Area 8 Part III GENERAL GOALS AND OBJECTIVES 9 Part IV RESOURCE INVENTORY 13 Historical Background - Pre-Historical Era 13 - Early Exploration 14 - Early Settlement 16 - Camp Polk 16 - City of Sisters 17 Environmental Setting - Area of Influence 20,21 - Planning Area Characteristics 21 - Urban Growth Boundary 24 Population - Trends and Characteristics 26 - Population Projections 28 Housing - Condition of Structures 30 - Buildable Lands 31 - Census Housing Data 31 - Housing Data Analysis 32 - Housing Issues 33 Economy - Employment 34 - Projections 36 Land Use - Residential 41,43 - Commercial 43 - Industrial 43 - Quasi-public 44 - Public 44 1 ! VOL 32 PACE 368 - Parks and Recreation 45 - Transportation 45 - Agriculture 45 - Vacant Land 46 -Flood Plain 46 Public Facilities E Services - Governmental 46 - Fire Protection 47 - Law Enforcement 48 - Library 48 - Solid Waste 48 - Water Supply 48 - Schools 49 - Parks and Recreation 50 - Related Facilities and Historical Sites 50 Transportation - Air 53 - Major Streets 53 - Local Streets 55 - Transportation Issues 55 Part V COMPREHENSIVE PLAN PROPOSALS - FINDING AND POLICIES 56 Land Use Element - Open Lands 56 - Residentail Areas 57 - Commercial Areas 62 - Industrial Areas 63 Public Facilities and - City Facilities and Services 65 Services Element - Schools 67 - Parks and Recreation, Historic Sites 68 - Utilities Transportation Element 71 E n i El m nt 75 co om c e e Housing Element 78 Energy Conservation 86 ' Urbanization Element 89 Community Appearance - Landscape Management 94 - 1880 Architectural Theme 95 VOL 32 FACE 369 Part VI IMPLEMENTATION PROGRAMS AND POLICIES 107 Coordination and Responsibility for Planning- CRS 197 107 Urban Growth Management Agreement 108 Comprehensive Plan Review, Adoption, Amendments 108 Interpretation of the Comprehensive Plan 109 Implementation Policies, Ordinances and Programs 109 - Annexation Policy 109 - Zoning Ordinance 110 - Subdivision Ordinance 110 - Capital Improvements Programming 110 Intergovernmental Agency Program Coordination 111 Part VII APPENDIXES 113 Definitions 113 Bibliography 124 Existing Land Use Map Comprehensive Plan Map Amendments NOL 32 FAcf 370 PART I IRTRODUCTIOR NOL 32 PAGE 371 I PART I INTRODUCTION !1 The Sisters Urban Area Comprehensive Plan includes the City of Sisters and an area surrounding the city which is expected to become urbanized by the year 2000. It is the official planning document for the Sisters Urban Growth Area and contains resource information and recommendations for the "planning area" which consists of approximately six square miles. Statement of Purpose The basic purpose of the Comprehensive Plan is to guide future development of the area within a framework of goals and objectives which are consistent with the physical characteristics, attitudes and resources of the Sisters community and to organize and coordinate complex interrelationships between people, land, resources and facilities in a manner which will protect the health, safety, welfare and convenience of its citizens. The Comprehensive Plan provides a basis for coordinated action by enabling various public and private interests to undertake specific projects with a consistent understanding of community goals and objectives. The plan. functions as a working frame of reference for government officials and ad- ministrators 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 community 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 interest. The plan also provides a guide to the various public and pri- vate 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. Each individual and organization participates in some way in the planning process. The community planning process is the continuing effort to coordi- nate short-range and long-range private and public actions towards the ful- fillment of generally accepted overall community goals. The Comprehensive I VOL 32 FnE 372 1 Plan provides the foundation for the planning process by establishing long- range goals and objectives and by providing, through its various elements, an integrated view of future public and private development 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 necessary 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 inter- preted to permit piecemeal amendments that disregard the basic relationships established by the original effort. Proposed changes must be carefully con- sidered in terms of possible overall effects on the entire community. Ac- commodation 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 in- vestments. Adherence to the policies developed in the plan provides a means of protecting existing public and private investments and values. The Comprehensive Plan is not a zoning plan. However, zoning is one o` the important legislative tolls required to 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 suf- ficient 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 con- templated which are contrary to the plan, the community should first evaluate the policies and concepts in the plan. 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 urban 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 individual kind of use. -2- I F1 1 1 Ll 1 r-, NoL 32 PAGE 373 The plan must be implemented if it is to be of value to the community. It requires public awareness and 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 expenditure of local governmental funds, and the continuing refinement of the plan in special circumstances such as the central business district, park and recreation, community appearance, etc. The efforts applied in the continuing planning process extend the plan from the present to the future accomplishment of its goals and objectives. The Comprehensive 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. Planning Background Planning first began in 1966 following the repeal of county zoning, sub- division and building codes. These ordinances were repealed primarily because there was no comprehensive plan which would have set up public policies on land use matters and how to implement them. In 1966, Deschutes County alone, with the cities of Sisters, Redmond and Bend, undertook a massive effort to reinstate the planning program and develop a comprehensive plan. Since that time, planning has always been a joint effort and the county's first comprehensive plan also included an urban area plan for the Sisters area. After the adoption of that plan in 1970, the city and county elected to update the plan with more detail in 1973. During the final stages of updating the Plan, statewide planning legislation was enacted (ORS 197-SB 100) and the Oregon Land Conservation and Development Commission was created (LCDC). Statewide Planning Goals have not yet been adopted before completion of the Sisters Comprehensive Plan update and therefore making it necessary to update the plan again to comply with the statewide planning goals. Much of the information and materials used in updating the comprehensive plan is contained in the following primary planning related studies. This background material along with input from both the public and private sectors make it possible to prepare the necessary findings for the plan. t 1. "Background for Plannin -Deschutes County., Oregon" Bureau of Municipal Research, University of Oregon. March, 1966. -3- I VOL 32 fAGE~~`~ 2. "Comprehensive Plan to 1990-Deschutes County, Oregon" Grunwald, Crawford and Associates. June, 1970. "Sisters Urban Area". 1970. 3. "Comprehensive Water and Sewerage Study-Deschutes County" CHI M. December, 1970. 4. "General Soil Map with Soil Interpretations for Land Use Planning-Deschutes County, Oregon" Soil Conservation Service, USDA. February, 1973. 5. "Central Oregon Transportation Study" (Sisters Segment) Central Oregon Intergovernmental Council. August, 1973. 6. "Multiple Use Plan-1970, Sisters Ranger District" U.S. Forest Service, Deschutes National Forest. May, 1970. 7. "A Comprehensive Development Plan for the Sewerage Sys Improvements, City of Sisters, Deschutes County, Ore or R GE, Inc. May, 1972. 8. "A Comprehensive Plan for Water System Improvements" HGE. 1975. 9. "Deschutes National Forest Classification and Ownershi U.S. Department of Agriculture. 1973 (Draft). 10. "Geology and Mineral Resources of Deschutes County, Oregon" N. Peterson. 1976. 11. "Flood Plain Information, Squaw Creek, Sisters, Oregon" Corps of Engineers. 1978. 12. "Final Report, Deschutes County Forest Lands CAC" 1978. " - 4- r i i i i i i i i 32 FAcc375 13. "Deschutes County Overall Economic Development Plan" Deschutes County Economic Development Committee. 1978. 14. "Central Oregon Open Space Recreation Study" Central Oregon Intergovernmental Council. 1974. 15. "Comprehensive Plan, City of Sisters" City of Sisters and Deschutes County. 1974. These are the primary documents used for the background material. Other reference material used in the preparation of the comprehensive plan is con- tained in the Appendix section. - 5- `'In, L ~ fAUE PART 11 CITIZEN INVOLVEMENT VOL 32 rAGE 377 1 PART 11 CITIZEN INVOLVEMENT In order to understand the full perspective of citizen involvement it is necessary to briefly recite the entire program on a statewide, county and city level since all three are involved in the comprehensive planning process for the urban area. Statewide Citizen involvement in land use planning has been mandatory statewide since 1973. Senate Bill 100 (ORS 197.160) requires each county governing body to submit a program for citizen involvement in preparing, adopting and revising comprehensive plans within the county. Each program must at least contain provision for a citizen advisory committee broadly representative of geographic areas and of interests relating to land use. Pursuant to Senate Bill 100, the Land Conservation and Development Com- mission (LCDC) developed a set of statewide planning goals. The number one goal is citizen involvement, and is intended to insure the opportunity for citizens to be involved in all phases of planning process. Each jurisdiction must develop, publicize and adopt a program appropriate to the local level of planning. Coal one further requires the incorporation into the planning process of the following components in every citizen involvement program. 1 1. To provide for widespread citizen involvement. 2. To assure effective two-way communication with citizens. 3. To provide the opportunity for citizens to be involved in all phases of the planning process. 4. To assure that technical information is available in an understandable form.- 1 5. To assure that citizens will receive a response from policy makers. 6. To assure funding for the citizen involvement program. Further, the law requires that Federal, State and local agencies and special districts coordinate their planning efforts with the governing body and make use of existing local citizen involvement programs. i -6- I VOL 32 FAGE 378 I Finally, Oregon law requires a mechanism to be used for an evaluation of the citizen involvement program to: 1. Assist the governing body in developing a citizen involvement program. 2. Assist in implementing the program. 3. Evaluate the success of the program and new approaches. Local citizens need to be a part of the decisions made about how their unique area and resources are developed. An active program for citizen in- put in the comprehensive plan process is a democratic opportunity to develop an end product reflective of the local resources, activities and people. Oregon law insures that opportunity. Deschutes County Citizen involvement has occurred in Deschutes County since 1968. But with the advent of the LCDC goals and the project of updating the Deschutes County Comprehensive Plan, the citizen involvement program took on an exciting revival in 1978. The revised and adopted program began with a well publicized educational meeting at the local college to acquaint Deschutes County residents with citizen involvement in land use planning and the upcoming opportunities for participation. One hundred and fifty persons attended to view a state- wide and local slide show on the goals, an explanation of the program, 'an attitude survey (later compiled by local college students) and several hand- outs. For a month thereafter people began to sign-up for advisory committee membership. In a year the Board of County Commissioners, effectively acting as the com- mittee to evaluate the citizen involvement program, appointed eighteen citizen's advisory committees with a total of 326 officially appointed members. -and up to 300 additional persons indirectly involved. The structure of the citizen involvement program was all-inclusive. The County chose to have both urban area and community committees as well as a number of specific subject committees. The subject committees were set up to function as a small panel of technical experts and. interested citizens. Coordination .with many local agencies occurred at this level. The groups operated like a workshop. addressing each major plan element in full detail. Each committee was given a general I "VOL 32 PAGE 3 ! 9 work program to collect inventory, identify needs and problems and pre- pare justified recommendations. Committees met two to four times a month, and ten to twenty times totally. Each group prepared a detailed and factual preliminary report which was then presented to the Overall Citizen's Advisory Committee for comment. Revisions to each report were made by the committee and then submitted in a final version to the planning staff. The work accomplished was tremendous. The initially weak data base along with a demanding time schedule for plan completion was a handicap the devoted citizenry chose to tackle themselves. Consequently, detailed reports prepared by local citizens because the basis, often word for word, for the new comprehensive plan. ' The unincorporated community committees involved all interested residents. The program was outlined to address each planning goal and develop a list of problems, needs and directions for future community growth. Community residents were dedicated in preparing their concerns for review by the Overall Citizen's Advisory Committee and eventually submitting the final review to the planning staff. ' The three urban area advisory committees worked diligently to prepare tl-.eir own comprehensive plans. The planning consultant for Redmond and Sisters periodically reported to the Overall Citizen's Advisory Committee to assure communication and coordination. Sisters Urban Area As part of the countywide citizen involvement program and pursuant to ORS 197.160, the Board of County Commissioners and the Sisters City Council 1 jointly appointed the Sisters Urban Area Advisory Committee to update the Sisters Urban Area Comprehensive Plan. The committee has met bi-monthly and sometimes weekly in the preparation of the plan. The City Planning Commission which serves as the official Committee for Citizen Involvement periodically reviews the functioning of the Advisory Committee. The CAC is made up of an equal number of city and county residents. In accordance with the overall program, periodic reports are made to the County Governing Body to assure necessary communication and coordination. The ongoing citizen involvement program will include a series of publicized . meetings held annually to review and recommend any necessary plan amend- ments. Utilizing the local weekly newspaper, Sisters Nugget and the Bend Bulletin, comments form the general public will be solicited as a feedback 1 mechanism. The Planning Commission will adopt formal program for the review and updating process to assure continued citizen involvement. 1 11 t VOL 32 ?P'-f 3 So PART III GENERAL GOALS AND OBJECTIVES "VOL 32 PAGE 381 PART III GENERAL GOALS AND OBJECTIVES ' For planning proposals and programs to be meaningful to the Sisters Urban Area, they must be based on fundamental concepts which are well-founded in the community. To this end, the Citizen's Advisory Committee evaluated community resources, examined issues and opportunities and outlined goals and objectives upon which to base planning proposals for attaining the character and quality of community environment expressed as being desirable for Sisters and surrounding areas. The goals stated herein are consistant with Statewide ' Planning Goals. Initial definition of planning goals and objectives was adopted by the Citizen's Advisory Group on April 10, 1974. The following includes those goals and the goals and objectives recommended by the Sisters Urban Area Advisory Committee for the updating of the Comprehensive Plan. ' Position Orientation 1. To recognize Sisters as the gateway to the Cascade Mountains and Central Oregon Recreation Area. 2. To recognize and promote Sisters as the service center for commerce and public services in support of surrounding recreational, recreation residential and agricultural demands. I City Image and Visual Appearance 1. To recognize Sisters as a Recreational-Retirement Community. 2. To encourage the development of a central architectural and sign theme based on Western and/or Frontier building of the 1880's. 3 T . o improve, identify and emphasize the entrances to the City. 4. To encourage maintenance of property and its value. 5. To improve public street standards as a means of upgrading City image and visual appearance. 6. To encourage landscaping management practices. VOL 32 PAuE 382 Environmental 1. To maintain the clear and clean quality of air and water. 2. To maintain an adequate program of solid waste management. 3. To maintain and expand the service capabilities of the muni- cipal water system. 4. To encourage the development of adequate sewerage treatment systems. .5. To maintain the quality of space and openness inherent to Central Oregon. Social and Housing 1. To improve and expand leisure time offerings of the community, particularly for the youth and elderly. 2. To provide a level of coordinated services which insures safe, healthful and convenient conditions for all segments of the population. 3. To encourage housing quality and diversity that is responsive to community demands. Forest Lands 1. To conserve forest lands for forest uses. 2. To protect forest lands from incompatible uses and encourage landscape management practices along scenic routes. Economic 1. To capitalize on recreation-tourist support functions. 2. To encourage improvement and up-grading of the central business district in support of local population demands and the recreation- tourist industry. 3. To encourage the provision of professional services now lacking in the community. 4. To encourage development of light industrial activities of a clean and non-offensive character. -10- 32 %E383 I Transportation 1. To develop an acceptable transportation solution to the increasing congestion introduced into the heart of the community via major east-west highways. 1 2. To provide an orderly street network which offers safe and convenient communications between the various areas of the community. ' 3. To determine future needs and requirements for airport facilities. Energy Conservation 1 To conserve energy. 2. To encourage and develop energy conservation programs. Coordination and Inter-Agency Cooperation ' 1. To jointly establish an Urban Growth Management Agreement with Deschutes County for the Sisters Urban Growth Boundary. 2. To establish an effective administrative procedure for coordination between the Sisters Planning Commission and Deschutes County Planning Commission for coordinating community expansion and re- solving problems in the "Planning Area" of Sisters. 3. To initiate administrative programs between public agencies responsible for programs which serve the coordinated needs of the Planning Area. Implementation 1. To maintain active citizen participation on a continuing basis for continued citizen in-put in the continuing process of planning and plan implementation. 2. To adopt procedural ordinances to carry out the planning process and to adopt zoning and related development codes necessary to implement the Comprehensive Plan. 3. To develop an initial long-range financial plan and capital improve- . ments program. -11- 32 Fni W VOL 4. To adopt o Subdivision Ordinance on i en with the subdivision standards of Deschutes County and the Sisters Zoning Ordinance. 5. To adopt standard specifications for Design and Construction of Public Improvements. t u -12- 1 VOL 32 PART IV RESOURCE INVENTORY 1 rVOL 32 PAGE 306 ' PART IV RESOURCES INVENTORY HISTORICAL BACKGROUND Central Oregon's resources and environmental setting have been molded by ' the geological formation of the region. The endeavors of man, from the original Indian cultures through the exploration, early settlement and development by white men, have significantly altered the regional resources and environment. Sisters' existence is a result of the cultural evolution of man in Central ' Oregon. Current orientation toward the support of recreational and tourist activities, can draw upon the history of the locale and region as a resource in support of this interest. Pre-Historical Era Formation of the land base which is now Central Oregon, was preceded ' by an extensive period during which sea water covered the area. Folding and upheaving of underlying land eventually displaced the waters to form an inland plain. Marine fossils uncovered east of the ' Crooked River bear witness to this action and date the oldest formation in Oregon some 225 million years ago during the Age of the Fishes. Subsequently, initial volcanic action built up various mountains and peaks and spilled lava throughout many deep valleys in the area. It was during this period which geologists have named Clarno, that they recorded the first mammal life in Oregon. Columbia lavas then spread over the Pacific Northwest and covered much of inland Oregon, leaving only older highland "islands". This action disrupted and blocked drain- age of the area, resulting in formation of the high pre-historic lakes. ' Animal life continued to develop and the Cascade Mountains began to emerge in the west. Mountain-born glaciers now introduced an Age of Ice. The original Cascades were significantly altered due to the movement of this ice. Extensive ice coverage to the north shifted the weather pattern, bringing storms .southward, with heavy rainfall. This rainfall indirectly formed large South-Central Oregon lakes due to natural impoundment of water. Volcanic activity continued to shape the Central Oregon area up to recent times. Some 6,000 years ago, Mt. Mazama to the south, erupted -13- I VOL 32 FACE 387 violently forming Crater Lake and depositing a vast layer of ash and pumice over the northwest. Indians are identified to have been in this area through discovery of artifacts under Mazama ash in the upper Deschutes basin. Approximately the same time that Mazama was developing, Mt. Newberry in the Paulinas, formed near the southern edge of the Deschutes plateau. Newberry erupted, consumed its summit and eventually formed Paulina ' and East Lakes within its calders. Volcanic action continued in the form of small cinder cones at the base of the mountain. From these ' cinder cones and cracks in the parent mountain, lava spread over the surrounding area until approximately 1,000 years ago, signaling the end of Central Oregon topographical change through volcanic activity. ' Through radio-carbon dating, the earliest identified habitation by man is established around 9,000 years ago in the Fort Rock basin. Early Exploration , During December of 1825, Peter Skene Ogden and a party of Hudson ' Bay Company trappers embarked from the Columbia River, at the River of the Falls, the Deschutes of Central Oregon, to survey the little known region of inland Oregon. This was the first recorded ' exploration of the Central Oregon area. At the same time Ogden left the Columbia, Finan McDonald was sent east across the Cascades to join up with Ogden along the River of the Falls. Upon joining up forces, the group crossed the Deschutes above Madras, moved across the Agency ' Plains, making their first camp on the Crooked River. From this point, the explorers continued eastward along the Crooked River into the John Day area. Ogden made a second trip south from the Columbia during 1826-27. He left his previous route at Dufur, went directly to White River and followed the western tributary to the Deschutes for a crossing at Sherars Falls. From here, the party continued into the , Malheur-Harney region. On his return trip, Ogden discovered East and Paulina Lakes in Newberry Crater, before turning south to California. Nathaniel J. Wyethe became the first white man to visit the present site , of Bend. During December of 1834, Wyeth and his party proceeded through a heavy winter storm into the upper Deschutes River country. Their travels along the river brought them into contact with Benham and Pringle Falls. On his return trip, Wyeth paused at the head of Squaw Creek, before reaching the Columbia in February of 1835. -14- 1 VOL 32 I'ACE 388 1 Eight years later, during 1843, John C. Fremont, an officer in the Topographic Engineers of the U.S. Army, guided by Kit Carson and Billy Chinook, a Warm Springs Indian, made the next thrust into the Deschutes country. Departing The Dalles in November, they moved up the Deschutes to Tygh Valley, crossed the White River, proceeded through the Warm Springs country and reached the upper meadows of Tumalo Creek. Fremont's group then con- tinued south into California. The early pioneers associated with the first wagon train immigrants I to cross Central Oregon did not initially settle in the Deschutes country. In 1845, the Blue Bucket Mine party from Missouri was the first wagon train to cross the interior country. Upon leaving Ft. Boise, the train left the Oregon trail and headed across relatively unknown Central Oregon.. Legend states that somewhere in Malheur country, gold nuggets were discovered when water was drawn from a stream in a blue bucket . East of the John Day River, the train lost direction, continued through the High Desert with all its adverse conditions, eventually reached the Crooked River near Prineville and completed their journey at The Dalles. The second group of immigrants to cross Central Oregon was the Clark Massacre Party in the fall of 1851. At the Snake River the group was attacked by Indians, killing several of the party. West of the Snake, the train departed from the Oregon Trail, approximating the route taken by the Blue Bucket Mine group. Clark had been advised to guide on three mountains (The Sisters) and to watch for a low volcanic cone, called Red Butte (Pilot Butte), directly in front of The Sisters. Here was located a good camping spot on the Deschutes River. The .Clark Party rested along the Deschutes for several days, apparently at the location of Bend's Pioneer Park, prior to moving north and crossing the Barlow Pass to finally reach Cottage Grove. The Elliot Cutoff Party followed in the fall of 1853, the largest of all wagon trains to cross Central Oregon. The group became lost when they mistook the Three Sisters for Diamond Peak, the mountain which was to guide them to a new Cascade crossing. This pass near Diamond Peak had previously been crossed by a road-viewing expedition from Lane County. To save time, the Elliot Party headed west into the Central Oregon high country. Due to extremely adverse conditions, t f 389 ~ VOL 32 ea _ the train broke off advance segments to try and find help for the group. One group crossed the mountains west of Bend, between two of the Sisters. The main train finally found its way to what is now known as the Willamette Pass. In 1855, Lt. Robert S. Williamson and Henry Larcom Abbot were as- signed to the Pacific Survey, to find the most suitable and economic route for a railroad from the Mississippi to the Pacific Ocean. Leaving their ship in San Francisco, the group moved northward and entered Oregon south of Klamath Falls and continued to the Upper Deschutes country. Here Williamson scouted the eastern slopes of Trout Creek and returned near the Sisters site to link up with Abbot. After reaching Ft. Vancouver, Abbot reported that topographic barriers of the Deschutes country would be almost impassable. This early engineering reconnaissance was to be proven wrong. Early Settlement Due to trouble with the Indians, particularly Chief Paulina, the govern- ment strongly discouraged settlement east of the Cascades. This w"s expressed as an official order from August of 1856 to October 1859. Despite the lifting of the order, there was not a significant movement of settlers into Central Oregon, other than those in search of gold. Around 1863, the first settlers began to appear in the Deschutes country, primarily along the routes of travel from the Dalles to the Upper Deschutes. Constant harassment by Chief Paulina and his followers throughout Central Oregon, prompted the Army to establish outposts and camps for the protection of miners and settlers. One of these was Camp Polk, just a short distance from Sisters. Camp Polk Camp Polk was established in 1865 adjacent to Squaw Creek, just three miles northeast of the City of Sisters. The military detachment which established the camp were men of Company A, 1st Oregon Volunteer Infantry, commanded by Captain Charles La Follette. Leaving Ft. Yamhill, this was the first military group to cross the Cascades via the new Santiam Road. Upon arriving at the site adjacent to Squaw Creek, Captain La Follette named the camp Polk after his home country. Here the men prepared a parade ground, trimmed a t -16- 1 VOL 32 FACE 390 ' tall tree for a flag pole and built eight cabins. Before winter operations could be initiated against the Indians, word was received from the Chief of the Army to muster out all volunteers. Subsequently, the Camp Polk detachment remained in winter quarters and in the Spring of 1866 returned to their home, thus ending the brief military history of Camp Polk. During 1879, the Camp Polk site was homesteaded by Samual M.W. Hindman and his family. In 1875, Hindman established a post office and a store and became the community's first postmaster. At this ' time, the area between the Cascades and the Deschutes River was virtually uninhabited, but destined to bustle with the future movement of cattle and sheep over the Santiam Pass. r City of Sisters ' While Hindman was developing Camp Polk, the nearby Sisters site was being transformed from a ranch to a town. During the 1880's, large flocks of sheep were driven past the town site to summer pastures in the high Cascades. Sisters was the last settlement between Prineville and the mountains and consequently early entrepreneurs did a brisk business in the summer months. The name Sisters was bestowed upon the town by Jacob Quiberg, a farmer and stockman in the vicinity. This name was chosen because of the proximity to the three imposing Cascade peaks which overlook the town, The Three Sisters. 1 In 1888, the Camp Polk post office was moved to the village of Sisters and given the name of its adopted town. This post office was located on the homestead of John Smith, who had filed homestead rights in 1886 and received title in 1891. Smith was later to relocate the post office within the present city limits where Sisters Market now stands. During 1898, John Smith sold his holdings to Alex Smith, no relation, and in 1900, Alex Smith sold one-half interest to his brother Robert. On July 10, 1901, the Smith Brothers filed the original town plat which comprised six city blocks bounded by Cascade Street on the south, Adams on the north, Elm on the west and Larch to the east. Mail was now being carried by stage from Shaniko, Prineville and Cline Falls, as Redmond would not be established until 1906. This mail was taken to Cascadia, where it was transferred to Pony Express for points west. t VOL 32 FADE 391 Sisters became a stopping place for travelers as it was the inter- , section of the Santiam and McKenzie Roads. Business and growth increased with the movement of stock to the U.S. Forest Service mountain pasture allotments. At the turn of the century, cattle raising had become a vital industry around Sisters. This industry centered around the vast holdings of the Black Butte Land and Livestock Company, with one of its headquarters at Black Butte Ranch approxi- mately eight miles northwest of Sisters. By 1908, the benefits of the sheep traffic bound for mountain pasture dwindled. Lumber also contributed to the activity and growth of the community. Small mills were in operation as early as 1890 and a large mill was built within the town site in 1912. Since then there have been many other mills in the area, with the last one just north of the rodeo grounds ceasing operations in 1965. Sisters' first school was built around 1885 and located near the Lundy ' Ranch, two miles to the north. The school was then a part of District No. 9, Crook County and accommodated thirty children. Around 1890 a second one-room school was constructed near the site of the present ' Park (Motel. Fire struck the city a disasterous blow in 1923, destroying an entire ' block of business houses between Elm and Fir, south of Cascade. Again in 1924, fire consumed buildings on both sides of Cascade from Fir to Spruce. t The first pipeline for distribution of water in the city was installed in 1916. During the 1930's, electricity became available from the Lang- man Electric Company, which was generated in a building next to the Hitchcock.Mill. Central Electric Cooperative extended a line from Redmond in 1941, replacing the private system. Street lights were in- stalled in June of 1951 along Cascade, the principle business street of the City. A special election was held in 1946 and the people of Sisters voted 115 to 61 in favor of incorporating the town. Population of the city at this time was approximately 700. Sisters continues to enjoy its location at the junction of the Santiam and McKenzie Highways, as service center for tourist traffic and the -18 1 11 1 t VOL 32 PAGE 392 vast recreational area within the adjacent U.S. National Forest lands of the Cascade Range. The Sisters annual rodeo provides a major com- munity attraction of each year, which has become known throughout the state. Climate, recreational resources and major highway linkages bring continued activity to the community. Recent development of recreational oriented land developments, such as Indian Ford Ranch, Black Butte Ranch and Tollgate and Corssroads indicate continuing growth and change for the city and its surrounding area. VOL 32 PAGE39 I ENVIRONMENTAL SETTING Sisters is located at the eastern base of the Cascade Mountain Range in the westerly portion of the Central Oregon Area consisting of Deschutes, Crook and Jefferson Counties. Its unique geographical setting clearly identifies it as the gateway to the Cascades by the general public. The city, the Urban Growth Boundary and the Planning Area are all within the boundaries of the Deschutes National Forest. Bend, the Deschutes County seat, lies 21 miles to the southeast, Redmond 20 miles to the east and the Santiam Junction, 20 miles to the northwest. Within the City of Sisters, U.S. Highway 20 and Oregon 242 converge at Cascade Street, with their respective beginnings at Newport and Florence on the Oregon coast. Both of these highways continue eastward, inter- secting with U.S. Highway 97, a north-south, intra-state highway, at Redmond and Bend. Continuing eastward, these highways intersect with Interstate Highway 80N, and east-west Trans-continental Highway and to the west, they provide important connections with Willamette Valley urban areas and markets, as they traverse Cascade Mountain public recreational and scenic areas. The western portion of the Central Oregon Area can be characterized as the ' meeting of the Central Oregon agricultural area and the eastern gateway to the Cascade.Mbuntain Santiam Recreational Area. It is primarily an agri- cultural area situated in and about national forest lands. MW The area is in the process of change from what once primarily supported a agricultural endeavors, to one which is more diversified through the intro- duction of manufacturing, land subdivision and exploitation of the scenic and recreational resources in the region. This change can be noted with the development and expansion of the Bachelor Butte ski area, continued development at Sunriver, Indian Ford Ranch development immediately north of Sisters, Black Butte Ranch development approximately 8 miles to the northwest and recreational subdivision development taking place immediately to the west and in the Camp Sherman area. The Central Oregon environment with its semi-arid, low rainfall and high percentage of days with sunshine, provides a setting which is luring an ever increasing number of people to live and/or spend their leisure time in the region. -20- 1 AREA OF INFLUENCE vot 12, wn394 The Sisters area of influence is a major subregion of the larder Central Oregon area and is probably the most diverse. Geographically, it contains , or borders on the highest mountain peaks, the deepest, steepest canyons, and the best agricultural lands in Deschutes County. It is also the most scenic and is heavily used for recreational purposes. The area of influence is generally identifiable by geographical boundaries in most cases, which do not fit jurisdictional boundaries. The northern geographical boundary is the Metolius River Canyon, its western extension and Jefferson Creek which marks the southern boundary of the Warm Springs Indian Reservation. The eastern boundary could easily be defined by the Deschutes River Canyon. The southern boundary would run eastward from the summits of Broken Top, Tam MacArthur Rim, Bearwallow Butte, and Triangle Butte. From here the boundary is not easily definable by geographical description, but would generally follow Bull Creek to Tumalo Reservoir, then along the Columbia Southern Canal to the Deschutes River Canyon wall, north of the Tumalo townsite. Most of the area of influence is within Deschutes County, but a portion of Jefferson County is associated with Sisters because of geographical conditions making access to the towns in Jefferson County ' next to impossible. Whatever occurs in that part of Jefferson County, therefore, affects the town of Sisters. t 1 Ll The economic area for Sisters is substantially smaller however. On the east, the economic area is diminished by the economic dominance of Bend and Redmond, the two principal economic centers in the Central Oregon area. For example, most forest resources harvested within the Sisters geographical region are currently being transported to mills in either Bend or Redmond, tying the area economically to those two larger economic centers. Also, largely because of a lack of employment opportunity in or near Sisters, many Sisters area residents commute to jobs in either Bend or Redmond, making their employment output, and often their consumption, a part of the economy for the larger community. PLANNING AREA The planning area has of Sisters, the Urban This approximates the been defined as the incorporated limits of the City Growth Boundary and an immediate surrounding area. following area _21- . VOL 32 FACE 395 i. _ ° ` f 10 as J 3220 India i 1 I T. I 0 ■ S11 I fl 13,f Ford L l 1 , \ c V Brooko Rptd - 1100 ~ ~ ~ 1 • . i ~ ! Q14 ' IlOn k ~ Z-) I 31 1 Tollgate r I i Brook Resources 0 / S C i1 0 11 ~11 I ' S\ I 0 fro its 0 ! M L r ?i , r •N tAL- T iQ\ - 30 1t ►l NIN A A BOUNDARY I yp IT 16 /I is '19 SISTERS, OREGON URBAN PLANNING AREA r1 s PLANNING AREA : t meet AN r . m ~~r>r 1 wOL 32 F 3.96 1 F Township 14 South, Range 10 East, Willamette Meridian South of the Southeast of Section 33 South Z of the Southwest of Section 34 Township 15 South, Range 10 East, Willamette Meridian West I of Section 3 All of Section 4 All of Section 5 All of Section 8 All of Section 9 West I of Section 10 This places the City of Sisters at the approximate center of the Planning Area containing some 3,060 acres (4.78 square miles). See following plate, Sisters, Oregon - Planning Area. Terrain The majority of the Planning Area is relatively flat. The terrain slopes from the southwest corner of the Planning Area at approximately 1% to the northeast at the base of McKinney Butte, where it then rises some 160 feet to the summit of the butte. The City of Sisters has a U.S..Geological Survey bench mark elevation of 3,186 feet. Squaw Creek, as it enters the Planning Area from the south, becomes the most significant waterway in the area. It is joined by Indian Ford Creek at the southwestern base of McKinney Butte and continues east- ward to its jucture with the Deschutes River in Lake Billy Chinook above Round Butte Dam. Squaw Creek is the source for irrigation waters delivered by the Squaw Creek Irrigation District. Vggetation Native vegetation cover consists primarily of Ponderosa. Pine inter- spersed with Juniper and contains ground cover consisting of Bitter- brush, Manzanita, Idaho Fescue and Forbes. Animal Life Local animal species consist primarily of mule deer, coyote and a few elk and black bear. Fur bearing animals identified by the U.S. Forest Service are beaver, marten, otter and mink. (wail and sage grouse -23- I VOL 32 Fmx 3`x'7 I are to be found locally and bald eagle nesting areas have been identified within U.S. Forest land. Local streams and surrounding lakes are known for their trout fishing. Soils Soils within the Planning Area consist principally of Sisters Loamy Sand and Wanoga Loamy Fine Sand. The Sisters soils are brown loamy sand in color and texture at the surface with yellowish-brown loamy sand sub- soil and a yellowish-brown gravelly loamy sand sub-stratum. Soil depth is more than 60 inches with somewhat excessive natural drainage and rapid permeability of from 6 to 20 inches per hour. The Wanoga soils are grayish-brown loamy fine sand subsoil and a hardpan sub-stratum. Soil depth is from 20-40 inches with good natural drainage and moderately rapid permeability of from 2 to 6 inches per hour. Climate Central Oregon climate may be characterized as having cold, moist winters and warm, dry summers. There are a high percentage of days with sunshine each year. In Bend and Redmond, some twenty miles southeast and east of Sisters respectively, there are approximately 130 clear days and 90 partly cloudy days. Most of the 145 cloudy days af- ford some sunshine through thin cloudiness. Sisters' weather provides annual precipitation ranging from 15 to 30 inches, with the majority falling in October through March. Annual snowfall averages around three feet. The mean annual air temperature ranges from 41 to 46, with lows of -20 and highs of over 100. Frost can occur year around in the Sisters area as well as most of Deschutes County. Winds are generally from the west to southwest, with an average velocity at 10-12 miles per hour. URBAN GROWTH BOUNDARY I The Urban Growth Boundary for Sisters consists mostly of the present city limits, an expanded area to the west and a small area to the north and east. - 24- I~ von 32 PuE 398 The size of the boundary is based upon a 4.50 growth rate projection over the next 20 years and is consistent with growth rate projections utilized by Deschutes County. The growth rate is expected to fluctuate with changing times but will be used for planning purposes as the Comprehensive Plan is updated. The Urban Growth Boundary is described as follows: Beginning at the northeast corner of Section 9, Township 15 South, Range 10 East, Willamette Meridian; thence running southerly along the east line of said Section one-half (1) mile to the one-quarter corner; thence westerly along the center line of said Section 9 and extending to the center of Section 8 of said Township and Range; thence northerly to a point 200 feet south of the McKenzie Highway (Ore. 242); thence westerly to the west line of Section 8; thence extending north- erly to the west one-quarter corner of Section 5; thence ex- tending easterly to and including Camp Polk Road; thence southerly to the north line of Black Butte Street; thence easterly to the east line of Section 4; thence southerly to the point of beginning, containing 1,040 acres, more or less. -25- fl val. 32 FACE 399 I POPULATION Population trends and characteristics are summarized from available published data by the Center for Population Research and Census of Portland State University. Future projections of population are derived from assumptions based on trends and reasonable economic expectations that appear likely, particularly tourist-recreational resources. Trends and Characteristics Since incorporation of the City in 1946, with an estimated population of around 700, the community has shown a marked decline in total population for census years 1960 and 1970. However, from 1970 to 1978, Sisters has experienced an increase of 394 persons, 57$ over the 1970 census figure of 516. This has been attributed primarily to the establishment of former second or retirement residences in the community as a permanent residence, retirement immigration and in- creased commercial activities. See Table No. 1, Comparative Population , Trends and Projections. The Sisters area has experienced significant growth between 1960 4.id ' 1970, which is reflected in the surrounding developments of Black Butte Ranch, Tollgate, Crossroads and Indian Ford Ranch develop- ments. This is currently indicated by recent increases in school age population from Black Butte and. Indian Ford Ranches. Age distribution figures for comparative analysis and trend development are not available. However, from existing data and Figure No. 1, , Population Age Distribution, the following characteristics are presented: 1. Analysis of school age population and School District ' No. 6 enrollment figures indicate that 34% of the school population is derived from the District Service Area out- side the city limits. Taking into account current ment growth in surrounding developments, future school loading may develop more rapidly outside the city limits. 2. The 0-19 age group, containing the majority of school age population, represents 300 of the total city population, some 7% less than the percentage 1 -26 1 `VOL 32 F41X90 AGE Unknown 0 - 4 5 - 9 10 - 14 15-19 20-34 35-44. 45-59 6o-64 65 and over POPULATION AGE DISTRUBUTION Sisters, Oregon - 1978 395 415 (48.8%) (51.2%) SOURCE: Portland State University Center for Population Research and Census October/November 1972 1979 Straight-Line Projection - May, 1979 -27- TOTALS 2 .2) 58 7.2) 7% 58 ( 7.2) 65 ( 8.0) 130 ( 16.0) 51 ( 6.3) 159 ( 19.6) 78 ( 9.5) 148 ( 18.4) 810 100.0% VOL 32 PAGE 411 I representation for the county. This reflects the community's smaller family size, downward trends in birth rate and general older age of the population. 3. Prime labor market population, age 20-59 (41.9%) indicated depressed employment opportunities. 4. The 60 and over age group represents a little under 280 of the population expressing the retirement character- istic of the community. 5. Sex distribution is about even, with a little over 2% more females than males. Population Projections Projecting future population, particularly with regard to future points in time, is not an exact science. Population growth in our nation has historically been associated with economic opportunities attracting people to centers of activity. These economic opportunities have generally been related to localized resources, markets, transportation and change in transportation mode and location of government facilities. Therefore, in developing future estimates of population for Sisters, certain assumptions are made based on trends, local resources and environmental desirability of the area. The factors which will probably effect significant growth of Sisters' population is the realization of a public sewerage collection, trans- mission and treatment system and an improved water distribution system, coupled with immigration of retired and/or recreation oriented residents. Annexation of adjacent housing units may also have an immediate impact on the numerical population. Table No. 1 , Comparative Population Trends and Projections, presents population estimates to the year 2000. It is based on an accepted 4.5$. annual growth rate which is used for Deschutes County as a whole in the Deschutes County Comprehensive Plan. -28- I 1 'l r 11 11 'VOL 32 PAuE 402 TABLE NO. 1 COMPARATIVE POPULATION TRENDS AND PROJECTIONS State of Oregon Tri-County Region Deschutes County City of Sisters 1960 1970 1,768,687 2,091,385 +16.26% +18.26% 39,669 48,975 + 9.13% +23.48% 23,106 30,422 + 5.90% +31.78% 602 516 1978 1980 1990 2000 49,700. 53,400 82,900 128,200 +75.53% +55.24% +54.64% 810 844, 1,373 2,135 +71,32% +55.32% +55.49% -14.28% Source: US Census and Portland State Center for Population Research and Census to 1978 1978-2000 population projections for Sisters and Deschutes County are based on 4.5% annual growth rate - developed and adopted by the Deschutes County Economic Advisory Committee June, 1978. -29- VOL 32 FACT 433 HOUSING Nearly all the housing in the Sisters Planning Area is contained within the city limits and future housing can be expected to be located within the Sisters Urban Growth Boundary. It is important to keep in mind when reviewing planning policy that most of the housing that supplies the local labor force is located outside the Planning Area within recreation residential areas. The following data and a review of the basic issues will provide a basis for the housing element of the comprehensive plan. Condition of Structures A field survey was made in April, 1979 to update a previous Land Use Survey conducted in January, 1974 which classified all residential units by their general structural condition. Table No. 2, Condition of Residential Structures - Sisters, Oregon, presents a tabulation of housing structural conditions for the City. Eighty-seven percent of Sister's housing inventory is of relatively sound structural quality, with approximately 73% in relatively good repair and over 14% in need of preventative maintenance or minor repair, the majority of the later being conventional single-family dwellings. A little over 6% of the housing units are in need of major structural repair, primarily conventional single-family units. Dilapidated units make-up over 4% of the inventory, all single-family units and over 2 of all units may be considered of sub-standard construction. TABLE NO. 2 CONDITION OF RESIDENTIAL STRUCTURES - SISTERS, OREGON Rating Mobile Single Code Totals Home Family A 236 (74.2%) 114 109 B 46 (14.5%) 2 44 C 18 ( 5.6%) 2 14 D 10 ( 3.1%) 10 E 8 ( 2.6%) 8 TOTALS 318 (100.0%) 118 185 - 30- Multiple Family 13 2 15 fl I r r r I I I 1 J Fva 32 rnn 404 A = Recent construction or good repair. D = Dilapidated. B = Preventative maintenance and minor repair. E = Sub-standard. C = Major repair. 1 Source: Land Use Survey, Field Inventory, January 1974 Updated Field Survey, April, 1979 Deschutes County Permit Records Buildable Lands A buildable lands inventory was conducted in May, 1979. The most significant restraint to buildable lots within the City of Sisters is the lack of a sewerage system which has recently been rejected by the ' voters. It is likely that development will have to take place on larger parcels for some time in the future which will reflect on the size of the Urban Growth Boundary. Original platted lots within the city are not adequate to accommodate individual sewage systems and it is ' necessary to combine parcels in order to be able to build. The following Table indicates the number of combined parcels that are buildable con- sidering parcel size, sewage disposal limitations and flood hazard areas ' along Squaw Creek. Vacant Vacant Platted Lots Net Acreage ' Single Family 47 103 Multiple Family 5 10 ' Commercial 17 6 Commercial occupied by Residential 12 Industrial and Heavy Commercial 29 32 Source: Field Survey from Land Use Inventory - May, 1979 Corps of Engineers Flood Map Survey - August, 1978 r Census Housing Data Detailed housing data from the 1970 Census of. Population and Housing is not available for the City of Sisters. However, 1972 special ' enumeration conducted by the Center for Population Research and Census' of Portland State University presents data on occupancy and 1 -31- VOL 32 PAGE405 size of household . Housing occupancy data was updated from city building permit records. TABLE NO. 3 HOUSING OCCUPANCY - SISTERS, OREGON 1972-1978 Total Owner Renter Year Units Occupied Occupied 1972 299 (100%) 220 (73.5%) 58 (19.4%) 1978 318 (100%) 238 (74.8%) 63 (19.8%) TABLE NO. 4 SIZE OF HOUSEHOLD - SISTERS, OREGON 1972 Vacant 21 (7.1%) 17 (5.3%) Number of Number of Persons Units 1 63 (22.7%) 2 117 (42.7%) , 3 36 (12.9%) 4 28 (10.1%) 5 22 ( 7.9%) 6 6 ( 2.1%) 7 3 ( 1.1%) 8 11 2 ( 0.7%) ( o.4%) , Housing Data Analvsis From a resource standpoint, a little over 10% of Sisters' housing inventory is in need of major corrective actions and 14% requires preventative maintenance to maximize the longevity of that portion of existing housing resources. This initial assessment of Sisters' housing indicates over 5% -32- wL 32 Th, 406 of the housing being dilapidated and sub-standard in construction. The structural observation did not take into account internal environ- mental conditions, nor exterior factors such as open space and its maintenance, land use and traffic conflicts and level of support services which all bear upon the total quality of housing. These factors should be carefully considered in any programmatic approach to housing for Sisters, particularly through the introduction of new units to the inventory. Occupancy data indicates that Sisters' housing is predominantly owner occupied with limited rental Inventory. The curre► vacancy rate is about 5%, most of which are rental units. Household size is reflective of the retirement character of the community, both in number of persons per household and the number of persons sixty and older in the population age distribution. Just under 65% of the households consist of two (42.1%) and one (22.7%) persons and 28% of the population is sixty years of age or older. This data reflects the particular housing requirements of retired singles and couples, not only as to specific spacial requirements and support facilities, but also range of choice and financial ability. Specific data on income by age group and family composition is not available. However, with approximately 28% of the population being sixty years or older, indicates potential for typical problems of limited financial ability to secure decent and adequate housing for persons on social security and/or modest pensions. Summary of Housing Issues 1. Deterioration of existing housing inventory, with dilapidation and sub-standard units. 2. Limited rental inventory. 3. Particular housing requirements for retired singles and couples. 4. Individual financial ability to secure decent and adequate housing. -33- VOL 32 PAGE 4 J7 1 ECONOMY Sisters' Settlement, development, and initial economy was closely tied to crossroads, transportation and agriculture, primarily cattle and sheep raising. Today the general economic character of the Sisters area is timber management and logging, recreational and agricultural. Agriculture is the smaller of the basic economy units in the Planning Area. Economic conditions are generally not favorable for farmers in Deschutes County, except in the most favorable of times. Specialized livestock raising is the predominant agricultural activity in the. Planning Area. Logging, timber management, and other forest activities account for the principal payroll of the Sisters general area. Contract logging on both government managed and private forest lands harvests ' approximately 75 million board feet of timber annually. The Sisters District of the Deschutes National Forest is headquartered at Sisters providing a significant payroll for the area, for both full-time and ' seasonal personnel. The Oregon Department of Forestry, Central Region, also maintains a staffed district office at Sisters. Recreation is still a growing basic industry in the Sisters area. The forest-generated recreation impact in the Sisters area in 1976 was estimated at 713.3 M visitor days. Although not all of these generate direct economic benefit for Sisters, the rapid development of tourist- oriented businesses in the region attest to the economic impact in the area. Related to the recreation industry in the area is the land subdivision business. Many of the farm, and privately-owned lands in the forest areas, are rapidly being converted to residential, or recreation/ residential uses. Indian Ford Ranch, just one mile north of Sisters, containing 1,700 acres, has been in the process of paced develop- ment since the early 1960's, oriented toward rural western living. Brooks Resources, the area's largest single private landowner, is also developing land for residential and resort purposes. Three developments within two miles of Sisters could accommodate approxi- mately 1,500 home units. A fourth development six miles west of Sisters could accommodate an additional 1,250 units. Since 1973, significant growth in recreation service-oriented businesses - 34- VOL Jr- f ASE 08 ' has occurred, and some professional services are becoming established. A projected new shopping center complex just west of Sisters will provide substantial development opportunity, and will tend to cause ' local payroll to remain in the Sisters area, since a large proportion of personal income was being taken to Bend, Redmond, Eugene, Salem or Portland for both consumer's and shopper's goods. Employment ' Although economic information for the Sisters area is somewhat limited, Table No. 5, Business Employment and Payroll, Sisters Area presents the basic economic activities identified in the area and their relative ' importance. It will also indicate a substantial increase in employment and payroll in 1978 over 1972/73. Most of this increase has developed in the last two years. ' Due to Sisters' proximity to Redmond and Bend, the principal centers for economic activities in Deschutes County, county employment trends provide some insight to the Sisters area as a segment of county activities. I TABLE NO. 5 ' BUSINESS EMPLOYMENT AND PAYROLL - SISTERS AREA Approximate Annual Firm or Company Employm ent Payroll 19Z2/73 1978 1972/73 - - 1978 ' Barclay Logging Co. 05 $ 75 1,-6015 $1,1 ,0 00 U.S. Forest Service Sisters District 30 32 250,000 310,000 ' Brooks Resources 50 150 500,000 1,700,000 School District No. 6 24 36 193,000 364,000 City of Sisters Motel, Hotels 6 6 16 8 32,000 18,000 144,000 23,000 Grocery Stores 16 24 48,000 84,000 Restaurants 30 63 100,000 215,000 1 Service Stations 12 16 70,000 130,000 Commercial Shops n/a 68 n/a n/a Other Government 20 24 200,000 260,000 472 Source: 1973 Data, 1972 Data, Firm or Company Disclosure Western Bank, FDIC 6210/06 1978 Data, Firm or Company Disclosure - Survey -35- C Vol. 32 PAGE 499 Although Table No. 5 presents business employment data it does not ' reflect all of the employment conditions of the residents within the Sisters Urban Area. Many people who work in Sisters reside in the ' outer rural or recreation /residential areas. Unpublished data does indicate however that most of the commercial businesses identified in Table No. 5 are employed by local residents. The Oregon State Employment Division does not provide labor force data for small ' cities but has developed some labor force trends on a county-wide basis. Table No. 6, Non-Agriculture Wage and Salary Employment, identifies county-wide labor force trends as it might be compared to Sisters. Table No. 7 identifies unemployment trends on a county- wide basis which is probably comparable to Sisters. Agricultural employment in the area effecting Sister'seconomy has , continuously shown a decline in the order of importance in the total economic picture of Deschutes County. The continuing erosion of agricultural viability on a commercial, full-time basis, and conversion ' of commercial farm lands to hobby farms or non-farm uses will allow the downward trend to continue. This trend can be seen in the comparison of employment by major industry group in Table No. 8. ' In Deschutes County as a whole, wholesale and retail is the leading employment sector. The principal manufacturing activity is based on wood products, for which the Sisters area presently supplies a sub- stantial portion of the raw material. Contract logging based in Sisters is heavily dependent on national lumber and wood products markets. Non-wood products based manufacturing employment in Deschutes , County made up 28% of total manufacturing employment in 1972. It had shown a 240% increase from 1961 to 1972, indicating that a strong diversification trend from reliance on lumber and wood products manufacturing was occurring. By 1978, wholesale and retail employ- ' ment surpassed manufacturing as seen in Table No. 6. The table shows that non-manufacturing employment has shown the most significant growth. These non-manufacturing sectors continue to grow and will stay strong so long as the recreation-based tourism and construction industry stay strong. Projections Agriculture as a source of employment can be expected to continue to decline due to the sub-marginal environment for traditional farming methods in the area. Specialty high-value livestock type operations are growing and doing well near Sisters. They are apparently the , only types of farming that can bear the extremely high land costs. If this agricultural type does not become more important for farm I -36 1 0 Ll . a 32 ra 410 output value, movement toward conversion of agricultural lands to hobby farms or to non-farm uses could be expected to continue to occur. Local industrial development prospects of major industry appear dim, due to limited resources. Established locations for the lumber and wood products industries can be expected to remain in Bend and Redmond. Brooks-Scanlon, the major wood product manufacturer in the region is an extremely progressive lumber company and would probably not consider a new plant in Sisters unless long-term economic bases indicate that such would be a profitable move. Contract logging in the area's timberlands should continue, dependant on even- flow, sustained yield forest management on public as well as on private timberlands. Management of public forest lands for other than timber output will have an effect on the available timber supply. Large- scale conversions of commercial forest land, on both public and private lands to other, non-lumber oriented primary uses could adversely affect the ared.s economy. Light industrial activities oriented toward the support of recreation demands may offer limited opportunities, even with the competition presented by Bend and its broader base of support. Considering the potential for increased recreational oriented activities and immigration of retirees, there may be future opportunities for limited warehousing and distribution of consumer goods. Building construction demands brought about by increased development of recreational /retirement sub- divisions will encourage continued activities in support of the construction industry and local supply of building materials. Population growth in the Sisters area will increase local demands for a broader selection of consumer goods, and even perhaps some shopping goods, in various retail categories. If expansion occurs, or continues to occur, based on quality, the Sisters market, or economic area, may enlarge, eroding some of the effect Bend or Redmond currently have in the influence area. Recent introduction of banking services, legal and eventually medical services, veterinary and architectural services, and a proposed new shopping center will lessen reliance on Bend or Redmond for these services. Several realtors have located in the area,. keeping the ' potential for sales commissions in Sisters rather than wholly in Bend or in Redmond. These trends should continue. VOL TABLE NO. 6 NON-AGRICULTURAL WAGE AND SALARY EMPLOYMENT DESCHUTES COUNTY - 1970 and June 1979 (Numbers of People Employed) 32 PAGE 411 Percent Category 1970 June 1979 Change Change Manufacturing Lumber and Wood Products 1,620 2,840 1,220 75.3% Food Products 110 110 0 0.0 Other Products 610 1,000 390 63.9 Total Manufacturing 2,340 3,950 1.610 68.8% Non-Manufacturing-, Contract Construction 480 1,570 1,090 227.1% Transportation, Communications and Utilities 570 1,190 620 108.8 Wholesale and Retail Trade 2,230 4,930 2,700 121.1% Finance, Insurance and Real-Estate 710 2,080 1,370 192.9 Service and Misc. 1,510 3,840 2,330 154.3 Government 2,060 4,350 2,290 111.2 Total Non-Manufacturing 7,560 17,960 10,400 137.6% TOTAL ~=g00 211810 .121010 121.3% Source: Labor Force Trends, Employment Division, Department of Human Resources, State of Oregon. * Excludes self-employed and unpaid domestics. -38- 1 TABLE NO. 7 COMPARISON OF EMPLOYMENT BY MAJOR INDUSTRY GROUP DESCHUTES COUNTY, OREGON I~ J Agriculture Non-Agriculture Self-Employed Manufacturing Contract Construction Transportation, Comm. and Utilities Wholesale and Retail Trade Finance, Insurance and Real Estate Service and Miscellaneous Government VOL 32 FAE412 Rank Rank Rank Rank Rank 1961 1965 1970 1972 1978 5• 6 7 8 N/A 4 4 5 4 N/A 1 1 1 1 2 9 8 9 7 6 7 7 8 9 7 3 2 2 2 1 8 9 6 6 5 6 5 4 5 4 2 3 3 3 3 Source: State of Oregon, Employment Division. Deschutes County Comprehensive Plan - 1978 Data. -39- J VOL 32 FACE 413 TABLE NO. 8 UNEMPLOYMENT - DESCHUTES COUNTY January 1976 to March 1978* Month January February March April May June July August September October November December 1976 12.2% 11.8 11.4 10.4 11.7 8.1 8.8 8.1 8.0 8.2 8.9 9.3 1977 11.0% 10.6 10.7 9.6 8.3 8.4 8.2 7.2 7.4 7.1 7.7 7.2 1978 6.6% 6.8 6.0 5.2 5.4 5.4 5.9 5.6 7.1 6.6 7.8 7.9 1979 Source: Resident Oregon Labor Force and Unemployment by Area, Monthly Reports, State of Oregon, Employment Division, Department of Human Resources. * Unadjusted, percent of total labor force unemployed. 11.6% 11.6 10.1 8.1 7.9 -40- va 32 P -414 LAND USE Previous existing land use and ownership inventories were done in January, 1974 for a planning area and the city limits. This data may be obtained from the Sisters Area Comprehensive Plan adopted in 1974. While the data may be of some value in veiwing a larger area and land use changes within the city limits, it does not reflect existing conditions of the Urban Growth Boundary. Tables No. 9 and 10 combine all available information and presents new data for the Urban Growth Boundary which will provide the basis for compre- hensive plan policies. TABLE NO. 9 LAND TENURE - URBAN GROWTH BOUNDARY (UGB) % of Gross Ownership Acres UGB Area Gross Area - UGB 880.0 100.0% United States of America Department of Agriculture 80.0 9.09 State of Oregon 17.1 1.94 Department of Forestry Sisters State Park Deschutes County 1.4 .16 School District No. 6 18.0 2.05 City of Sisters .7 .08 Public Right-of-Way 163.0 18.52 Total Public Ownership 280.2 31.84% Source: Deschutes County Assessor Records and Property Area computation from Land Use Survey -41- VOL 32 FAGE 415 TABLE NO. 10 LAND USE STATISTICS - CITY OF SISTERS Number of Units Acres % of Gross Area 100.0% 30.7 3.6 1.0 1.2 5.8 23.3 34.5 GROSS AREA City Limits Planning Area NET AREA* RESIDENTIAL Mobile Home Single-Family Multi-Family COMMERCIAL Residential" Retail Service INDUSTRIAL Light QUASI-PUBLIC Church Fraternal PUBLIC Government School Forest Service TRANSPORTATION Streets VACANT LAND Platted Lots Vacant Land 384 (121) (228) 90 ( 37) 5 ( 3) ( 2) 162 (162) 417 3,060 320 128 38) 77) 15 ( 7) ( 2) ( 6) 4 5 ( 4) ( 1) 24 ( 1) ( 18) ( 3) 97 144 ( 90) ( 54) 17 Motel Units, 10 Hotel Units and Mobile Home Park * Note: Net Area = Gross Area less Streets Source: Land Use Survey, Field Inventory, June 1978 -42- t 7 Residential 32 q-41 1 Based on the land use inventory within the Urban Growth Boundary, Table No. 10 and the current population of approximately 900,128 acres of residential land provides a population density of a little over 7 persons per acre and represents 14.5% of the Urban Growth Area. Existing platted residential lots and vacant land suitable for residential expansion within the city is limited. Of the 162 platted lots, approximately 55 may be available for residential purposes, plus 80-90 acres of vacant land. Some of the smaller lots encounter problems in accommodating a dwelling unit and sub-surface sewerage disposal system. Based on current average household population, existing vacant platted lots and acreage may be capable of accommodating an additional population of 700-800, providing problems are not encountered with sub-surface sewerage disposal and the land is available to the market. To maximize opportunities for choice of residential sites, in the event a public sewerage system is not realized in the foreseeable future, it is reason- able to expect that 250-300 acres of land may be required to accommodate the population estimate by the year 2000. This would require an additional 125 to 175 acres of land within the Urban Growth Boundary. Commercial Retail and commercial services for the Planning and the local market areas are primarily concentrated within Sisters along Highway 20. Approximately 14 acres of commercial land presently serves a market population of around 5, 000 people, or 2.8 acres of commercial land per 1,000 people. Existing commercial lots are 114 feet deep and range in widths of 30, 40 and 60 feet, presenting definite limitations to development flexibility due to off-street parking requirements and sub-surface sewerage system leaching field area over which no development may occur. Due to current development standards, particularly sanitation, and diverse small lot ownerships, there is a need for larger parcels and/or acreage for commercial purposes; which are properly related to the existing commercial area and afford development flexibility. Industrial Industrial development is limited primarily to the logging operations -43- VOL 32 FAGUE 417 maintenance facility, just west of the city and new light industrial uses are beginning to develop within the newly-platted industrial park. This area also provides for heavier commercial uses which relieves the sanitation restrictions encountered in the downtown area. Community industrial interests and opportunities are centered around ' non-offensive light industrial activities, which includes warehousing and distribution, construction industry support facilities, light manufacturing and logging industry support functions, such as trucking terminals and maintenance facilities. There are ample sites located within the Sisters Industrial Park to accommodate these needs. Quasi-Public ' Three churches and two fraternal organizations, utilizing 2 acres, provide the only quasi-public facilities in the Planning Area. ' Public ' Government, to include the City Hall /Fire Station, Post Office, County and a minor city ownership in the southwest corner of the Planning Area, account for a little over 5 acres of the public land use. ' School District No. 6 maintains its only school facility, adjacent to the north side of Cascade Street (Highway 20), which is bisected by the Camp Polk Loop Road. The Oregon State Board of Forestry maintains the Central Oregon State District offices on approximately two quarter city blocks, west of Elm Street, on Washington and Hood Streets. South of Washington , and adjacent to Elm Street are two city blocks which formerly accommodated District Offices of the U.S. Forest Service. Both of these properties are indicated to be surplus to Federal needs and may become available for re-use. The Oregon State Board of Forestry has indicated interest in the block west of Elm for expansion of their operations. De h sc utes National Forest holding of the federal government comprises the principal public land use in the Urban Growth Area, some 75 acres or 8.5;. The principal intensive use within these lands is at the junction of Highway. 20 and Pine Street. This area includes the Sisters District Ranger Administrative Offices, eight single-family dwelling units, 4a ~ VOL 32 rAcE 418 warehousing and maintenance facilities. In addition the Oregon State Highway Division operates a highway maintenance facility just north- west of complex. These National Forest holdings preclude community expansion to the south and to the west, north of Highway 20. However, these lands currently insure a sizeable public holding of open space adjacent to and available for community use. It has been indicated that these particular National Forest lands along with others that form the ' periphery of federal holdings, may be subject to future exchange with private land to consolidate National Forest lands. If such exchanges should occur, there will be future implications to the City of Sisters regarding land ownership /use conversion. P k d R ti s an on ar ecrea The only park facility available to the community is the 16 acre Sisters State Park, at the eastern end of the City, adjacent to Highway 20. Park facilities with recreation opportunities for youth and the elderly have been expressed as a community need. Transportation With the majority of streets in Sisters containing 80 feet of right-of- way in conjunction with short blocks, the amount of land used for street purposes is higher than normally experienced in other Oregon communities. Over 28% of the City is devoted to public street right- of-way. 08.5% of the Urban Growth Area) The existing airport makes up the other major transportation use of Planning area land. At present, the location of the field presents no land use conflicts, however, expansion of the community will bring land use compatibility into sharp focus. i A riculture g Agricultural land use, primarily pasture, comprises some 17% of the Urban Growth Area and is limited in any agricultural production. These areas immediately abut the city limits and are classified as ' "urban reserve" with the UGB to be held for future urban expansion. The area north of the city has ceased to operate as a viable economic unit and is somewhat fragmented by the airport and lesser private holdings. Taking into account gravity sewer service and a general land slope to the northeast, this area provides an opportunity for orderly community expansion into this area in the future. oL 32 FADE 419 I v The limited agricultural area to the southwest is in two major land holdings, with the exception of some smaller holdings in the northeast corner. This area offers an additional opportunity for orderly com- munity expansion and is best located for domestic water service expansion. Vacant Land Vacant land consists of 21.7% of the city limits which includes 162 platted lots. The remainder of the vacant land is concentrated in the east and southeast section of the city, across Squaw Creek, directly west of the city. Major vacant holdings in the Urban Area outside the city, center around the old Brooks-Scanlon Camp between the McKenzie and Santiam Highways. Flood Plain The U.S. Army Corps of Engineers has completed a flood hazard inventory on Squaw Creek which runs through the southern portion of the urban area. Approximately 20 acres of land will be subject to flood plain zoning along both sides of the channel which will ' prohibit building construction. Public Facilities and Services 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 orderly growth and community life, sustaining and enhancing the health, safety, educational and recreational aspects of urban living. In many ways, the adequacy, character and the quality of public facilities express the community's collective opinion of itself and its environment. Governmental The City of Sisters is organized under the mayor-council form of municipal government. The mayor and four members of the council conduct the business of the City at a regularly-scheduled meeting held on the second Thursday of each month. -46- I I t. . VOL 32 FACE 42o A seven member Planning Commission, appointed under the provisions of ORS 227.020, is responsible to the council for matters pertaining to City planning and development. At present, two members of the commission are also on the city council. The commission is responsible for the administration of the Sisters Zoning Ordinance. The city comes under the new Oregon State Building Code which. provides for minimum construction standards within the community. The City Hall located on Fir Street, just north of Cascade, supports the majority of city governmental functions. This 2,860 square foot building houses the fire department, provides limited joint-use space for the police department and city. recorder, city planner, water and street department storage and a general purpose meeting room for city meetings, municipal court and use by the public. Space is limited and presents problems as related to functional arrangement and privacy. A new fire hall proposal was recently defeated by the voters which will require further study of alternatives. I Fire Protection Sisters maintains a 30-man volunteer fire department which presently maintains a fire insurance rating of 6. The department provides contract services to a rural district of approximately 14 square, miles surrounding the city. Mutual assistance arrangements are currently ' in force with Redmond, Bend, Cloverdale, Black Butte Ranch and Camp Sherman. ' The department utilized approximately 35% of the City Hall space, which accommodates a salvage van, two pumper trucks and related storage. Facilities are limited and crowded and lacks a tower for proper drying of hoses. Drills and training are conducted one evening weekly to maintain operational proficiency of the department. Fire control and suppression of a non-structural type are also ' provided by fire crews of the Oregon Department of Forestry, U.S. Forest Service, and Bureau of Land Management. These crews are summer seasonal, coincidental. with the highest risks for forest or range fires. Law Enforcement ' The city currently maintains a three man police department. Support , VOL 32 FACE 421 facilities are limited. Separate and secure facilities are not available for booking or evidence storage and all detention must be accomplished by use of facilities in Redmond and Bend, providing space is avail- able. ' The Deschutes County Sheriffs Department is responsible for law e f n orcement functions for the area surrounding Sisters. ' Library City library services are provided by 2,520 volume collection, maintained in a converted residence on Cascade Street. A librarian is provided under the Central Library Program of Deschutes County and additional book resources are available from the main library in Bend through a continuing program of book rotation. The library building lacks plumbing and therefore is deficient to the extent that there are no public restrooms or water available in support of operations. Solid Waste The City of Sisters currently operates a solid waste collection program under ordinance authority, providing service to all residents within , the City of Sisters at established rates. Collected wastes are currently disposed of in a county operated sanitary landfill on Fryrear Road, s m f il o e ive m es east of the city. It is anticipated that a new disposal ' site will be required in approximately 2-3 years. The city will need to rely on Deschutes County to provide an adequate disposal site in the future. Water Supply The city provides municipal water service, utilizing Pole Creek as , a source from which the city has been allocated a water right of 1.25 cubic feet per second (CFS) and may allocate up to a maximum of 3.55 CFS. The city maintains a 3-million gallon impoundment reservoir at the point of diversion and supplies the city distribution system via a 12 inch diameter asbestos cement transmission main. Chloronation treatment of the water is accomplished around midpoint of the transmission line. A 1970 county-wide engineering study of both water and sewerage ' requirements indicates sufficient storage capacity and adequate transmission capacity to meet a maximum daily demand plus a 1,000 - 48- VOL 32 PA-GE 422 GPM fire flow for a population of 750 persons, which at the time of the study, was projected for 1990. Currently the population of the city exceeds that figure and it is further exceeded by virtue of service to customers outside the city limits. A new comprehensive water system study should be accomplished in the near future to determine the water system needs to accommodate the projected ' population for the year 2000. The present system is vunerable to outage should the transmission main become damaged and serious problems have been encountered at the Pole Creek source due to freezing and the inability to maintain water flow to the impoundment reservoir. This latter problem reached almost disasterous proportions during February 1974. At present, the city has a new well in the vicinity of Squaw Creek and Elm Street to provide emergency water supply in the event of problems at the source or within the transmission main. ' The transmission system is not metered from the impoundment reservoir, nor are the customers who receive service, with the exception of some ' commercial accounts and customers outside the city limits. This makes it impossible to determine system efficiency on an input-output basis or assess line losses. It has been indicated by city maintenance ' personnel that line loss is a problem, particularly in old sections of the distribution system utilizing steel pipe. Past practices of supplying customers outside the city limits with small capacity lines, present problems of being able to provide adequate service from these sub-standard facilities. In addition, future annexation of the city is not a consideration for supply of city water service outside the city limits. Schools ' School District No. 6 services the City of Sisters, north to include Indian Ford Ranch, easterly approximately 8 miles along the Bend .Highway, south along Three Creek Road and west to Black Butte ' Ranch and along the McKenzie Highway. All school facilities are located in Sisters along Camp Polk Loop ' Road and support a K-8 educational program. Grades 9 through 12 are transported to Redmond High School under contractual arrange- ments with the Redmond District. -49- vol. 32 FADE 423 District voters recently approved a bond levy for a new school facility which is under construction. The facility is expected to accommodate enrollment requirements for about 5 years at which time ' additional facilities will be needed. It will become necessary at that time, if not sooner, to replace or relocate the existing building west of Locust Street. Use of school facilities in support of total community educational, social and recreational needs is actively supported by both the school board and administration. This is reflected in such uses as programs for the elderly, youth, Sisters Community School and major community functions requiring assembly space which can be provided only by the school gymnasium. School playground areas also support community needs for organized field activities, in addition to two r tennis courts. Central Oregon Community College, located in Bend, has recently appointed a coordinator for Sisters, to provide a General Education and Development Program for the Sisters area. Course work is initiated based on interests in the community, utilizing local facilities such as ' school classrooms and gymnasium and instructional staff is drawn from community resources. Parks and Recreation , The city does not provide nor maintain municipal recreation facilities. Existing school facilities meet some of the field recreation requirements of the community and Sisters State Park at the eastern city limits supports the community. Table No. 11, Improved Recreational Sites, lists available public recreational sites in the immediate vicinity of the city. Related Facilities and Historical Sites ' Within a twenty mile radius, the Deschutes National Forest provides numerous recreational facilities ranging from recreational sites and points of interest, to major tourist attractions such as Suttle and Blue , Lakes, which are operated in conjunction with private enterprise. Some of the identified historical sites within the Sisters area are ' presented in Table No. 12, Historical Sites and Major Points of Interest, in Table No. 13, Points of Interest. -5U 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 32 PAcE 424 VOL TABLE NO. 11 IMPROVED RECREATIONAL SIT ES - SISTERS AREA Tent Trailer Picnic Name Sites Sites Sites Water Activities Location Sisters State Park 10 0 13 Pi Picnicing/ East City Rest Stop limits on Highway 20 Cold Springs (NFS) 5 22 0 St Hunting/ West 4 miles Fishing on Hwy 242 Indian Ford (NFS) 17 15 5 Pi Hunting/ Northwest 5 Fishing miles on Hwy 20 (NFS) National Forest Service Pi Piped St Stream TABLE NO. 12 HISTORICAL SITES - SISTERS AREA Name Facilities Camp Polk Site Historical Marker Coache Creek Toll Told Station site on Station Old Santiam Wagon Road Lost Trapper Cabin Cabin built around 1905 Site 00' x 161) Sisters Hotel (proposed) -51- Location Northeast 3 miles via Locust Street Northwest 111 miles via Old Santiam Wagon Road West of Three Creek Meadow V01 L 32 FAuE 425 TABLE NO. 13 POINTS OF INTEREST Name Facilities Location Dee Wright Observatory Geological observatory West 15 miles via with interpretations McKenzie Highway at McKenzie Pass Head of the Metolius Origin of Metolius Northwest 14 miles Rives at base of via Highway 20 and Black Butte Camp Sherman Road -52- l VOL 32 FACE 426 TRANSPORTATION Transportation is the means by which to move goods and services as well as to move tourist and local consumer traffic. The transportation impact on Sisters plays a key role in its identity and economic structure since nearly all traffic to and from the west must travel through the city. Air Commercial air service is provided at Roberts Field in Redmond, 20 miles to the east via Highway 126. Air West provides two daily jet flights, one northbound and one southbound. In addition, general aviation support facilities are available through the fixed base operator to include charter flights, flight training and aircraft. maintenance and service. Sisters Airport (a private airfield) provides a 3,5501 x 50' paved and unlighted runway (2-20). The airport is unattended and does not offer fuel nor provide any services. The airport supports local[) based aircraft and primarily accommodates recreation oriented traffic. Continued development of recreation oriented developments, principally Black Butte and Indian Ford Ranches, will place increased demands on airport support functions. The airport has certain operational limitations, which are associated with runway orientation and prevailing winds and high elevation terrain some 2,000 feet northeast of Runway 2. ' Major Highways U.S. 20 (Santiam Highway), a primary State Highway, intersects with U.S. Highway 126 (McKenzie Highway) at the western city limits and continues eastward through the City, as the principal business street. East of the city limits, opposite Sisters State Park, the highway sprits into U.S. Highway 28 (Redmond Highway) and U.S. Highway 20 ' (Bend Highway). These highways are two-lane uncontrolled access systems, with on- street parking on both sides of Cascade Street, within the city limits. The western uncontrolled intersection of Highways 20 and 126, due to the actue angle of intersection, presents a safety problem for merging traffic, particularly eastbound traffic on Highway 20. ' The eastern intersection of Highways 20 and 28 presents problems in approach alignment, sight distance and interchange of traffic in both east and west directions. ' -53- V r ~3L 32 iaUE 427 11 Due to the State Highway Division policy of closing the McKenzie Pass Highway (126) during the winter period because of snowfall, this route is only open 4-6 months out of the year. This highway functions primarily as a summer scenic route and is not destined to become a principal carrier of inter-state traffic. Average daily traffic (ADT) volume over a five year period has increased significantly on the Santiam Highway west of the city limits, the McKenzie Highway, along Cascade Street and along the Redmond and Bend Highways to the east. See, Table No. 14. Due to on-street parking and the lack of refuge lanes for turning movements on Cascade Street, traffic congestion is becoming a problem, particularly on weekends during the summer season or when a major activity occurs in the community. For the most part, the existing highway accommodates traffic during the remainder of the time. TABLE NO. 14 MAJOR H IGHWAY AVERAGE DA ILY TRAFFIC McKenzie Hiahwav - US 126 1963 ADT 70 40o 1967ADT 150 680 1972 ADT 190 770 1977 ADT 410 790 .01 miles east .02 miles west U.S. Hwy 20/Santiam Hwy/Ore 26 .30 miles north of McKenzie Hwy .02 miles east of McKenzie Hwy .01 miles east of Elm Street .02 miles east of Locust Street .01 miles southeast of Ore 126 1,600 11900 2,950 4,150 1,900 2,600 3,400 4,250 2,400 2,900 4,000 4,900 1,950 2,700 3,550 4,350 1,300 1,500 1,950 2,450 Redmond Highway - Ore 126 .01 miles east of Bend Hwy 700 750 1,350 Source: Oregon Department of Transportation, Highway Division 1,650 -54- 1 d vol. 32 ('ASE 428 Local Streets The majority of the street rights-of-way in the central section of the communtiy is 80 feet and surfaced with a 20 to 22 foot wide asphaltic paving. Curbs, gutters, drainage system and sidewalks are not provided. For appropriate streets, this wide right-of-way provides ample opportunity for relatively easy expansion of traffic carrying capacity, increased on-street parking capabilities through street widening incorporating diagonal parking and street beautification through landscaping of park strips. Traffic volume data is not available for the city street network, however, county figures are provided for Three Creeks Lake Road (Elm Street and Forest Service Route 1534) at the junction of Brooks logging road approximately one-half mile south of the city limits. The 1971 ADT was 112 vehicles. Other significant regional roads are the Camp Polk Loop Road (Locust Street) providing access to the airport, Indian Ford Ranch and general access northward and Squaw Back Road (Pine Street), also providing access northward. Vehicular Transportation Issues 1, Short and long-term solutions to increasing major highway traffic volume in the business section of the community add associated problems of on-street parking and turning movements. 2. Ordering of city system of arterial and collector streets to move traffic efficiently and conveniently to and from all functional areas of the city and provide the base for orderly expansion to new growth areas. -55- vot ;J2 fAa 429 PART V COMPRESESSIVE PLAN PROPOSALS - FINDING AND POLICIES 1 vaL 32 ma 4 30 PART V COMPREHENSIVE PLAN PROPOSALS, FINDINGS AND POLICIES The Comprehensive Plan policies are based on the established general goals and objectives described in Part III and are supported by adequate ' findings developed from updated and new resource data. The Plan maps and text are intended as a statement of public policy encompassing development objectives of and for the urbanizing area of Sisters. Each ' of the following comprehensive plan elements include a goal summary, a list of supportive findings and plan policies. ' LAND USE ELEMENT Goal: To encourage a harmonious relationship between residential, ' commercial and industrial development and to encourage a balanced quantity of land use typed in a manner consistent with the carrying capacity of the land. ' OPEN LANDS Open lands within the Urban Growth Boundary consist of open grazing lands, forest areas and open apace. Findings 1. Agriculture: Agricultural land within the Urban Growth Boundary is limited to grazing and is considered marginal and uneconomical for general agricultural production. Such ' lands are located adjacent to the present city limits. These areas will be held in "urban reserve" according to established urbanization policies. 2. Open Space: The Sisters State Park together with an abundance of open space throughout the area of influence along with forest lands within the planning area provide ample open space ' for the Sisters area residents. Open space along the highway entrances to the city is an important asset to the well-being of the community as well as open space along the flood plain of Squaw Creek. 3. Forest Lands: Forest lands within the Planning Area does not have commercial timber value but does have scenic value along ' transportation routes which are protected by landscape manage- ment practices of the U.S. Forest Service. Other forest lands within the Urban Growth Boundary are suitable for urban development at such time as the extension of urban facilities are needed to facilitate orderly urban expansion. -56- Vol 32 FAGS 431 Policies 1. Agricultural lands within the Urban Growth Boundary shall be maintained and used as "urban reserve" areas until such time as needed for urban expansion pursuant to established urbanization policies. 2. Sisters State Park shall continue to serve as a public park. 3. Open and forest lands along the highway entrances to the city shall be protected as scenic corridors with landscape manage- ment programs developed and implemented by the County, State and U.S. Forest Service. RESIDENTIAL AREAS The. residential section of the Comprehensive Plan includes a variety of housing types at varying densities and is based on the following Findings 1. Residential development in Sisters is held at relatively low density because of the lack of public sewers and limited water supply. 2. Most of the city consists of older housing units, many of which are being replaced in commercial zones and thereby reducing the number of available lots in the city. 3. There is not a sufficient amount of buildable lots available within Sisters to accommodate the projected growth. An additional 280 acres of residential land will be needed by the year 2000., 4. Mobile homes comprise about one-half of the housing market in Sisters and are recognized as an acceptable form of housing at more affordable prices. 5. The originally platted 30 and 40 foot wide lots in Sisters are not adequate to accommodate new residential units and it is necessary to combine them reducing the total number of vacant buildable lots. -57- 1 6. There are currently no sidewalks in residential areas. VOL 32 PACE 432 7. There is a shortage of apartment units in Sisters which is partly due to the lack of public sewers and an adequate water system . 8. There is no program to provide for any low income housing in Sisters although the City has acknowledged the Central Oregon Housing Authority to help provide such housing. i Policies 1. Housing density shall be the basic and most important deve- lopment criteria for residential areas. 2. Residential densities indicated on the Comprehensive Plan shall be respected and reflected in city and county codes, ordinances 1 and development policies. The intent of the plan is to indicate housing density rather than type of building construction 1 permitted within various density areas. 3. All residential developments shall respect the physical char- acteristics of the site relating to soils, slope, geology, erosion, flooding and natural vegetation. 4. 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. 1 5. In areas without community services, housing densities shall be determined by the physical capabilities of the soils to accommodate individual sub-surface disposal systems and to provide adequate area for future subdivision. 1 6. All residential areas developed to urban densities on lots of less than five acres shall require community water service. 7. New lots without community sewer service should have a minimum of 14,000 square feet and shall provide for further segregation to the density designated on the Comprehensive Plan. 8. Residential development standards within the Urban Growth I Boundary shall be the same for areas of similar densities or topographic conditions, both inside and outside the city. -58- I vol. 32 FACE 433 9. Medium and high-density residential developments should be located where they have good access to arterial streets and are near commerical services or public open space. 10. Higher density residential areas should be concentrated ad- jacent to commercial services. 11. Higher density residential uses should be concentrated in closer-in areas to downtown to provide maximum convenience to highest concentrations of population. 12. Mobile homes shall be considered as a type of residential development and be subject to the same density standards as other residential areas. 13. Mobile homes located on individual lots other than planned unit developments shall be subject to special siting standards. 14. Mobile homes shall 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. 15. Mobile homes shall not be permitted on individual lots in areas already developed with conventional housing at urban densities unless mobile homes were part of the original develop- ment concept. 16. Certain private and public non-residential uses are necessary and should be permitted within residential areas for the con- venience and safety of the people. 17. All non-residential uses should recognize and respect the character and quality of the residential area in which they are located and be so designed. I 18. In many cases, home occupations are a legitimate use within residential areas and shall be permitted provided that the use displays no outward manifestations of a business and is approved by the Planning Commission as to location. 19. Of necessity, non--residential uses will have to abut residential areas in different parts of the community and in these instances, any non-residential use shall be subject to special development standards in terms of setbacks, landscaping, sign regulations and building height. 1 32 r4M va ' ermitted should be f iliti i l 20. p ac es e storage Recreational veh c in residential areas and these facilities should be improved, landscaped and screened from adjacent residential uses. 21. Certain private recreational uses such as riding stables should be permitted in residential areas provided the location, design and operation are compatible with surrounding residential developments. 22. Schools and parks should be distributed throughout the resi- dential sections of the community and every dwelling unit in the area should be within walking distance of a school or a park. 23. Because schools and parks can encourage or direct residential development, their location shall be subject to the approval of the city or county. id 24. e All new residential development shall be encouraged to prov public, semi-public and/or private open space as part of the 1 development. 25. Area dedicated or provided as public, semi-public or private open space as part of a residential development shall be counted as part of the total area when computing residential densities for any given development. 1 26. Fire stations are necessary in residential areas and their location and design should be compatible with their surroundings. 27. 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 with surrounding developments and their appearance should enhance the area. 28. Except for major and collector streets, street patterns in residential areas shall be designed to provide convenience access to each living unit but not encourage through traffic. 11 29.. 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. 30. Streets should be designed to carry anticipated traffic volumes and to provide space for an adequate planting strip and sidewalks or bikeways. -60- VOL 32 FADE 435 1 31. Sidewalks shall be required on both sides of all residential streets unless the developer plans, dedicates and improves an alternate system of walkways and trails to provide adequate pedestrian circulation within the residential area. 32. Bikeways shall be considered as both a circulation and recreation element in the plan and adequate facilities shall be required for this purpose. 33. Efforts shall be made to extend trails, pedestrian ways and bikeways through existing residential areas. 34. All on and off-site improvements in residential areas should add to the character and quality of the areas as a place for people to live. 35. Efforts should be made over a sustained period of time to place utility lines underground in existing residential areas. 36. All public utility facilities such as power, telephone and cable TV should be located underground in new developments. 37. Above-ground installations such as power transformer yards or natural gas pumping stations should be designed to recognize the character of the area in which they are located. 38. Water and sewer pumping facilities and other above-ground installations shall be designed to blend with the residential areas in which they are located. 39. 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. 40. Street signs of a type approved by the city or county shall be provided for each new residential development. 41. Street trees shall be those which are suitable to the climate of the Sisters area, add color and beauty to the community and have a root system which does not interfere with under- ground utilities, curbs and sidewalks. -61- 1 1 I Vai 32 fa 4"6 42. Natural tree cover shall be retained along streets in new developments insofar as possible to retain the natural character within the urban area as the community grows. 43. Efforts should be made to design a tree planting plan for the existing areas of the community and to plant approved trees. 44. All residential development shall respect the natural ground cover of the area insofar as possible and all existing and mature trees within the community should be preserved. COMMERCIAL AREAS There are three commercial areas contained in the plan. The first is the "General Commercial" area within the city along Hood, Cascade and Main Streets. The second is the "Highway Commercial" area located west of the city along U.S. Hwy. 20. The third area is within the light industrial park which permist certain heavy commercial uses and uses that are more compatible with industrial type uses that cannot find adequate land area in the downtown area. Findings 1. Commercial activity in. Sisters has increased rapidly over the past two years due to increased demands of area recreational and residential development. 2. Sisters is expected to continue as the commercial center for an immediate trade area consisting of approximately 5,000 full and part-time residents. 3. The lack of a public sewer system makes it impossible to develop certain commercial uses in the downtown area. 4. Off-street parking in the downtown commercial area can be partially provided within existing 80 foot rights-of-ways. 5. There is insufficient land area available downtown to satisfy the long-range anticipated commercial requirements for the 1 Sisters area. 6. Existing parcel sizes are inadequate to accommodate sewage requirements making it necessary to combine parcels for future development. 7. All commercial development in Sisters is subject to the western architectural theme contained in current Comprehensive Plan adopted in 1975. -62- VOL 32 FACE 43'7 Policies 1. Strip commercial developments shown on the plan along high- ways shall not be extended. 2. No new strip commercial development shall be permitted along major or secondary streets within the Sisters Planning Area other than those areas shown on the Plan. 3. Commercial uses along major streets and highways shall be subject to special development standards relating to land- scaping, setbacks, signs and median strips. 4. Care shall be taken to control the size of shopping 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. 5. Commercial shopping centers shall be subject to special development standards relating to setbacks, landscaping, physical buffers, screening, access, signs, building heights and design review and shall comply with the adopted western architectural theme. 6. Commercial developments which abut residential zones or residential uses shall be subject to special setback and screening provisions. 7. In all commercial areas, sign standards shall be adopted in harmony with the western architectural theme. 8. A concerted effort shall be made in the central business district to develop areas for off-street parking. 9. Buildings in the downtown commercial areas shall be limited to three stories in height to retain the character of the area and shall comply with the western architectural theme. INDUSTRIAL AREAS Findings 1. The 37-acre Sisters Industrial Park should adequately serve the industrial needs of the area for the planning period. 2. The industrial area is within the approach area of the Sisters airport. There are no adopted approach zone standards. -63- 1 ua a38 Policies 1. Development standards shall be adopted to control building hei ghts and uses within the airport approach area. This area should contian only low intensity uses. 2. A buffer of open space and landscaping shall be maintained around the industrial area. 3. Non-polluting industries and heavy non-tourist related commercial uses should be allowed in the industrial park. AIR, WATER AND LAND RESOURCE QUALITY Findings 1. At present, there are no known. air and water quality problems in the Sisters area. There is no community sewer system however and policies have been developed in the Plan to promote the development of a community sewerage system. 2. The various elements of the Plan contain policies relating to the protection of the air, water and land quality of the area. Policies 1. The city and county shall work together in implementing Plan policies relating to air, water and land quality of the Sisters area. 2. All development shall comply with State and Federal Air and Water Quality Standards. -64- Vol 32 PAvE 439 PUBLIC FACILITIES AND SERVICES ELEMENTS The projected growth for the Sisters Urban Growth Area will require a corresponding expansion of public facilities and services. Planning policies governing the manner in which public facilities are expanded will help direct the location and intensity of future land use. In addition to shaping the form of urban expansion, public facilities such as parks and open spaces can preserve significant natural features and open spaces while meeting the leisure needs of the residents of the area. The following findings and policies address the general issues concerning the city facilities and services, schools, parks and recreation, historic sites and utilities. CITY FACILITIES AND SERVICES City facilities and services dealt with include city hall facilities, sewer and water, police, fire, library and solid waste services. Findings 1. City Hall : The city hallbuilding houses all administerial functions, fire equipment and courtroom and is overcrowded at present. The building contains 2,860 square feet of floor space and based on the projected growth, approximately 5,000 square feet would be needed in the future. Conflicting uses of the single meeting room creates problems affecting the public as well as city administrative functions. 2. Sewer System: There is no sewer system in the city. Lack o public sewers restricts development to large parcels with individual sewer systems. It is expected that this trend will continue for some time due to voter defeat of bond elections. The city's comprehensive sewer plan will need to be updated to reflect the location of the Urban Growth Boundary. The lack of public sewers will have an adverse effect on the economic extension of other public facilities and services because densities will be spread out over a larger area. 3. Water Supply : The capacity of the city's water system is adequate only to supply 750 people. The capacity is exceeded by the current population of 810 and will not be adequate to supply the projected population. The present system is, vunerable°to outage. The system is not metered which reduces efficiency. -65- I fl u 11 r 1 I 1 vot 32 fmm~ 44fl 1 Li 1 11 4. Law Enforcement: The city maintains a 3-man police force. The city has a higher percentage of reported crimes than Bend, Redmond and Deschutes County. Inadequate and substandard facilities force the police department to use facilities at Bend and Redmond. 5. Fire Protection: The city maintains a 30-man volunteer fire department. The department services the Rural Fire Pro- tection District which consists of approximately 14 square miles. Fire equipment and facilities are not adequate to accommodate the projected growth. 6. Library: The city library is small and overcrowded. It has no plumbing or public restroom facilities which restricts its operation. 7. Solid Waste: The solid waste collection program of the city appears adequate for the foreseeable future. DEQ has in- dicated there are not plans at this point to terminate the Fryrear land fill site. Policies 1. The city should prepare and adopt a plan for expanding city hall in its present location or alternate sites. 2. The city should continue to work toward the development of a public sewer system. 3. Urban expansion shall be based on whether or not public facilities can be provided. 4. Urban expansion above the city's water service level shall be prohibited unless the city distribution system is improved. 5. The city shall maintain its policy to assess new development for the additional costs of public services it creates. 6. The city shall update its water supply plan to reflect the projected growth and the Urban Growth Boundary. 7. Police protection services should be maintained at levels con- sistent with the crime rate as the population and tourism increases. -66- VOL 32 FACE 441 8.. Plans for expansion of city hall should include the relocation of the library. 9. The city should encourage a program for recycling in con- junction with its solid waste program. Such a program should be developed jointly with Deschutes County. 10. The city shall continue to utilize the existing sanitary land fill for garbage disposal and shall cooperate with Deschutes County in location alternate sites in the event Fryrear Pit should be discontinued. 11. The city, in conjuction with the county should develop an adequately funded capital improvement program. SCHOOLS Planning for school facilities in Sisters will be based on the following findings and policies. Findings 1. The new elementary school being constructed will accommodate 550 students and is adequate to serve the current population of the district but at the current growth rate it will soon be to capacity. 2. The existing school will not support the projected growth. The year 2000 population projection would indicate that at least one additional elementary school and a high school will be needed. 3. The school and playground areas provide multi-purpose uses to the public. 4. The location of the existing school will not adequately serve the eventual development of the west side of the urban growth boundary and busing would be necessary unless a school is located to serve that area. Policies 1. Sisters School District should continue to make available its facilities for multiple uses to the public. 2. Sisters School District should make early efforts to acquire additional school sites in accordance with the land use plan to avoid high future land costs. 3. New schools should be planned for the joint park and recreational use of its playgrounds. -67- 1 1 i i i v~ 4, The community should support the continuing General Education and Development Program offered by Central Oregon Community College. PARKS AND RECREATION - HISTORIC SITES 3 M 2 Planning for parks and recreation, and historic sites, will be based on the following findings and policies. Findings 1. The city had no parks and recreation program. The Sisters School provides some facilities, however. 2. The community has expressed a need to provide a parks and recreation program and with the expected growth, the need will become more evident. 3. The Sisters State Park serves primarily as a picnicking area and rest stop for tourists. It also provides for tent camping. The park will not satisfy long-range park and recreational needs due to its location in relation to future growth areas and due to the projected growth rate. It also provides a different function than a neighborhood park would provide. 4. Deschutes County also has no park program for the Sisters area. 5. Early acquisition of land will prevent having to acquire future sites at a much higher cost. 6. The trend toward more leisure time, combined with a growing need to conserve resources increases the requirements for recreational opportunities. 7. Squaw Creek provides an opportunity for a connecting trail and bikeway system. Policies 1. The city and county should work toward developing a park and recreation program for the Sisters Urban Area. If such a program were to become a reality, it should adhere to the policies stated herein. 2. Work from. the wishes of the people as a basis for developing park and recreation systems and programs. -68- I r VOL 32 FACE 43 3. Facilities and programs should be kept abreast of growth and change. 4. The community should provide leadership in beautification by example of park and recreation facilities. 5. Neighborhood interests shall be considered in the process of designing neighborhood parks.. 6. Park facilities shall be provided first where population is concentrated rather than in outlying areas. -7. Neighborhood parks will provide the foundation of a system for services to the people. ' 8. A neighborhood park should be developed within walking distance of all residents of the district. 9. Neighborhood parks shall be of sufficient size to accommodate the population growth. , 10. Park sites should be acquired in advance of need so that they can be reserved for community use before the costs of acquisition becomes prohibitive. 11. Parks should be centrally located and as easily accessible as possible to areas they are intended to serve. 12. Opportunities may occur for development of small parks not shown on the plan and they should be acquired if they are determined to be useful. 13. A trail system for bicycle, pedestrian and, in some cases, equestrian use should be developed and wherever possible , interconnect shcools, parks and open spaces. 14. Trails should be developed along Squaw Creek so that these features can be retained as an asset in the local environment. 15. Local codes and ordinances shall 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. 16. The community should develop a program to review and select certain buildings and sites within the urban growth area that may have historical value. A Historical Sites Ordinance shall be adopted to aid in the implementation of this policy. _ , 69- 1 VOL 32 FAcE 444 UTILITIES Electric power to the area is provided by Central Electric Cooperative. Telephone service is provided by United Telephone Company. Findings 1. Scattered development and low densities results in higher utility costs which is eventually borne by the consumer. 2. Energy conservation practices tend to reduce the overall costs by spreading the utilization of power over a larger number of people. Policies 1. New developments shall be planned at the highest density possible for the more efficient extension of utilities within the urban area. 2. Development should be located close together for the more economical extension of utility lines. 3. Utility companies should assist in implementing these policies by reviewing preliminary development plans prior to their approval. 4. The city, county and utility companies shall work together in developing energy conservation policies and programs. -70- VOL 32 FACE 445 TRANSPORTATION ELEMENT Transportation is a crucial element of the comprehensive plan for Sisters since all east-west bound traffic via the Santiam and McKenzie Passes must go through Sisters. Goal: To provide and encourage a safe , convenient and economic transportation system. To consider alternative transportation modes and needs in terms of environmental impacts, public costs, social consequences, energy conservation and impact on the local economy. To develop short and long-term solutions to the ever increasing , major highway traffic volume in the business section of the community and the associated problems of on-street parking and turning movements. To develop an urban area system of arterial and collector streets to move traffic efficiently to and from all functional areas of the city and provide for their logical extension to , future development areas. Findings 1. The present transportation system for the Sisters Urban Area is inadequate for local as well as through traffic. ' 2. The timing, location and expansion of the transportation system are important factors affecting future urbanization. , 3. The majority of the community's future movement will occur over street rights-of-way, whatever the mix of transportation modes. The private motor vehicle will be the major mode of , transportation over the planning period. The second major mode of transportation will be the bicycle. 4. A major concern of the community regarding the transportation system is the need to maintain and improve the livability of residential areas in the face of increasing population and transportation requirements. 5. Traffic conjestion on Cascade Street is a critical problem. -71- 6. 7. 8. 9. 10. 11. 12. 13. 14. 15. 16. 17. 18. 19. va The needs of those people who, because of age, economic status, or physical or mental disability have limited trans- portation choices require special consideration in the planning of the transportation system. Transportation is a major consumer of increasingly scarce energy resources. On-street parking along Cascade Street results in major traffic conflicts with local cross traffic and through traffic. A one-way traffic couplet would reduce traffic conjestion. Side streets having 80 feet rights-of-ways provide good potential parking areas for the commercial areas. The Oregon State Highway Department maintains Cascade Street between the face of the curbs. The City of Sisters is responsible for the Cascade Street from the curb face to the right-of-way line. The city does not have an adequate maintenance program for repair of streets and sidewalks. The city does not have a storm drain system to dispose of snow melt ponding and storm run-off. Existing major streets and most local streets do not meet current adopted urban standards. Cascade Street will not be capable of accommodating the projected traffic for the planning period. There is not mass transit services available for the Sisters area other than through bus lines. There are no bicycle or pedestrian lanes or trails in the Sisters urban area. Barclay Field serves as a landing strip for local business and recreational purposes. Commercial air service is provided by Roberts Field in Redmond. -72- v 32 FADE 44'7 Policies 1. In order to reduce or eliminate congestion on Cascade Street, the City and State Highway Departments should develop a program to separate directional traffic utilizing Hood Street for eastbound traffic, and Cascade or Main Street for west- bound traffic. 2. Major arterial streets will be Camp Polk Road, Three Creeks Lake Road, U.S. Hwy. 20, Oregon Hwys. 126 and 212. These major arterials should be connected by a "beltline" collector system. 3. A path/trail system shall be developed,. with non-motorized traffic separated from motorized traffic along jamor arterials and collectors. 4. All development proposals adjacent to arterials within the Urban Area shall have turnouts for school busses and for heavy ingress and egress traffic. Turnouts should be pro- vided by County and State departments at particularly scenic areas. 5. Access shall be limited on arterials, for improving traffic flow and safety with appropriate traffic control facilities. 6. Off-street parking shall be provided in and near all commercial, professional, industrial, institutional areas except where required parking can be developed with 80 ft. rights-of-ways. 7. The city shall adopt a capital improvement program. 8. A trail for recreational /historical significance should be developed along the route of the Old Santiam Highway, at least to the Cache Mtn. Toll Station for non-motorized use. 9. Trails and paths for non-motorized vehicles, pedestrians, and horses shall be considered as part of development plans for new residential development with planned connections to all parts of the community. -73- va 32 10. The City of Sisters along with the School District, county and other agencies shall work together with schools, groups and individuals for development of a "mass-tansit" system, with connections between residential areas, schools, shopping, open space, parks and government facilities within the Urban Area. 11. Citizens should be -encouraged to utilize methods of travel other than the automobile as much as possible to facilitate energy conservation. 12. An airport master plan should be developed for Barclay Field which will govern airport related activities and pre- scribe development standards for surrounding development compatible with air approach criteria. -74- L 32 FAGS 449 VO ECONOMIC ELEMENT ' The economy of Sisters is unique in comparison with most other parts of Central Oregon as discussed in Part IV. Statistical employment and income data on a countywide basis may not accurately identify economic conditions in Sisters. However, from the updated data that is available for the Sisters area, the following findings and ' policies make-up the economic element of the plan. Goal: To diversify and improve the economy of the area. ' To guide growth in a manner which will result in a balance between economic and environmental interests. Findings ' 1. Recreational oriented tourism and recreational (full and part- , time) residential uses within the Sisters influence area pro- vide the basic industry of the area making retail trade the major employer of Sisters. 2. Sisters provides for most of the industrial and commercial ' activity within the influence area creating a need for more land area than would normally be found in a small community. ' 3. There are approximately 45 acres of commercial zoning within the Sisters Urban Area which is consistent with the 1974 ' Comprehensive Plan and is expected to be adequate to serve the projected population for the planning period. Approx- imately 15 acres of commercial property is developed. ' 4. There are 37 acres of industrial zoning in the city which is consistent with the 1974 Comprehensive Plan and is expected to be adequate to serve the projected labor force of the ' area. 5. While Deschutes County's overall economic welfare is somewhat ' limited because of its geographic location and transportation restraints, Sisters' economy in recent years is enhanced by and increasing dependency of area residents of Black Butte Ranch, Indian Ford, Camp Sherman, Tollgate and Crossroads , developments. 6. The population of the Sisters urban area has increased signifi- cantly in recent years to coincide with that of Deschutes County. -75- i L vot 32 w 450 7. The per capita income for Deschutes County as a whole increased from $4,641 to $6,061 for a 31% increase. The per capita income of the City of Sisters is lower due to the higher number of retired age persons with fixed incomes, thus reducing the buying power of many local residents. 8. The lack of public sewers and an inadequate water system within the central business district is a deterrent to economic development of Sisters creating necessary developments outside the CBD. 9. The comparable cost of living data for the typical Central Oregon family released by the Bureau of Labor for the Central Oregon area entitled "Autum 1977 Urban Family Budgets and Comparative Indexes for Selected Urban Areas" can be compared in the following tables: Low Intermediate Selected Area Income Income High Income U.S. Average $10,481 $17,106 $25,202 San Francisco 11,601 18,519 27,418 Central Oregon 10,453 15,334 21,703 The following table indexes the comparative budget costs for the three income levels. The U.S. average is expressed as 100%. Low Intermediate High Selected Area Income Income Income U.S. Average 100% 100% 100% San Francisco 111 108 109 Central Oregon 100 90 86 ' From the foregoing, it appears that the budget costs for a low income family residing in Central Oregon are roughly the same as for the average U.S. low income family. However, for the middle and upper income levels, average living standards can be maintained in Central Oregon on substantially lower income levels. -76 voL 32 FACE 451 Policies 1. The community shall continue to support tourist trade as the basic catalyst to the economy of Sisters. 2. Continued efforts shall be made to implement the transportation policies of the Comprehensive Plan. 3. Commercial and industrial zoned land shall be maintained as presently adopted. 4. The community shall support the development of an improved water system. 5. The community should support the development of a public sewer system. 6. Utilization of the Sister's Industrial Park shall be encouraged to enhance employment opportunities, thereby attracting needed professional and personal services. 7. Zoning for the various land uses shall be done in a timely manner to assure proper balance of economic growth and residential development and the provision of public facilities and services. 8. The community shall continue to support the western motif theme for all commercial areas. 9. A capital improvement program shall be completed to enhance economic development in a more timely manner. -77- E HOUSING VOL 32 FAvE 452 The housing element of the comprehensive plan is based upon the housing issues identified and the following findings and policies. Goal: To provide adequate numbers of housing units at price ranges and rent levels which are commensurate with the financial capabilities of households. To allow for flexibility of housing location, type and density within the Sisters Urban Growth Boundary consistent with Statewide Planning Goal No. 10. Findings 1. There are 318 households in the Sisters urban area of which approximately 14% are in need of preventive maintenance or minor repairs. Approximately 6% are in need of major repairs. The majority of the housing (236 units) is in good condition. 2. There is an inadequate number of rental units available in the Sisters area. Additional rental units are needed to accommodate retired singles and couples. 3. Increased commercial and industrial employment in Sisters will help the financial ability to better afford moderate ' housing for the working age group. It will not assist the 28% retired age group however. 4. The projected population. for the Sisters urban growth area is 2,135 which reflects a 4.5%annual growth rate. ' 5. Household Size Over the years, the number of persons in a household has declined. In 1960, the average Oregon household size was 3.09 persons per household. In 1970, that figure de- clined to 2.94 people in the household. According to the 1970 U.S. Census of Population, Deschutes County registered 3.0 persons per occupied housing unit (3.1 owner occupied, 2.8 renter occupied). Table No. 4 indicates that in 1972 the household size in Sisters was less due to a higher per- centage of retired age persons. A 1976 Bonneville Power Administration forecast estimates ' that the Deschutes County average 1980 occupied housing -78- 1 va 32 FACE 453 I size will be 2.77 persons and 2.51 persons in the year 2000. Approximately 10 percent of the Deschutes County housing stock is vacant yearround because of the high number of recreation and secondary residences. If a persons per housing unit formula is applied, then the B.P.A. forecast would reflect 2.52 persons per hosuing unit in 1980 and 2.32 persons in 2000. A household population based on occupied units is a much better indicator of housing need. The following chart represents estimated household sizes for occupied units and total units broken down in five year interval ranges from 1980 to 2000. FUTURE HOUSEHOLD SIZE ' Year Occupied Units Total Housing Units 1975 2.89 2.62 1980 2.77 2.52 1985 2.67 2.44 1990 2.60 2.39 1995 2.55 2.35 2000 2.51 2.32 Pacific Northwest Bell has published Population and Household Trends, ' 1975-1990, wherein the average estimated household size for occupied housing units is slightly lower than the estimates projected by B.P.A. Year Average Household Size for Occupied Units 1975 2.79 1980 2.69 1985 2.62 1990 2.57 I 1 1 6. Households vol_ 32 r 454 On a countywide basis, 990 of the County's 1975 population lived in households, with the remaining one percent living in group quarters, such as nursing homes, correctional settings and dormitories. Given the 1975 average household size of 2.6 persons, it is not unexpected that over 50% of the households were composed of either two or three persons. The rural nature of the County is exemplified in that approximately a third of the county's households were composed of four or more persons and that the larger households occured most frequently in unincorporated areas while approximately 65% of the single-person household resided in the incorporated communities. The following table shows these statistics are different for Sisters. NO. OF HOUSEHOLDS OF SELECTED SIZE CATEGORY - 1975 7 Ave. 1 2-3 4-6 or more H ouse- Total Person Person Person Persons holds Deschutes Co. 15,581 2,587 77 4,660 517 2.6 Bend 6,058 1,199 2,988 1,705 166 2.6 Redmond 1.697 359 827 458 53 2.7 Sisters 263 63 144 48 8 2.9 Source: County. Assessor, 1970 U.S. Census, PSU 1975 Reports 7. Household Income The county's average employee earnings is $9,468; 8% less than the State average of $10,233. This rather low reported earnings, in relation to the State, could be function of the proportionately high number of jobs in the lower paying tourism, recreation and service related industries; a factor which is expected to be more applicable to the Bend area than the Redmond area. The Oregon State Department of Commerce currently extimates the County's median family income to be $15,779. Comparatively, the State's median family income is estimated at $16,768, and the national level at $16,946. Relative to the Effective Buying Income for the region at $10,529, with Jefferson County at $10,266 and Crook County the lowest at $9,740. -80- I VOL 32 FAGF 455 Many of today's households have multiple incomes in excess of $10,000. It is therefore little wonder that recent housing construction has been of the medium to higher type, and that the disparity of low-income families is often overshadowed by the relative affluence of others. In 1970, more than 10% of the County's 8, 337 families, and more than 39% of the 2,208 unrelated individuals had incomes below the poverty level. Of the persons 65 and over, 26.9% had BPL incomes. The Center for Population Research and Census, P. S. U. , estimates that the number of residents age 65 and over in 1`975 had an increase of 315 persons age 65 and over with BPL incomes. Of the total of 1,036 renter households in the County in 1975, 30% are reported to have paid 250 or more of their income for rent. Of these, more than 84% had gross incomes of less than $5,000 per year. In 1970, it was reported that 10% of all homeowners were financially burdened by excessive high monthly housing expenses. Unfortunately, a number of factors combines to make it virtually impossible to determine the current exact number of households burdened with ex- cessive monthly housing costs. Further, while the incomes of area households have increased since the 1970 Census, housing costs have increased at a far more rapid pace. As long as the current factors of excessive housing costs, material increases, land and development costs, decreasing housing purchasing power, and a higher than average unemployment rate prevails, area. low and moderate income households will find it increasingly difficult to acquire decent, affordable housing. 8. Housing Stock Comparable housing stock date for Sisters is indicated in Table No. 3. Like population increases, the percentage of increase in total housing units between 1972 and 1978 exceeds the State rate. Of 318 total units, 238 (74..8%) are owner occupied, 63 (19.8%) are renter occupied and 17 (5.30) are vacant. Table No. 2 and the following table shows comparable numbers of housing units by type of housing for the county and its three incorporated cities. -81- 1 1 1 VOL 32994516 TYPE AND NUMBER OF HOUSING UNITS 1 Unit 2+ Unit +GRP Quarters Mobile Home County 12,996 2,897 3,827 Bend 4,813 1,920 230 Redmond 1,622 638 215 Sisters 185 17 118 Source: 1970 Census updated with 1970-77 Oregon Building Summary and Mobile . Home Report - Housing Division', Dept. of Commerce, Salem, Oregon 9. The average number of people per household has decreased, and it expected to continue to decrease, over the next 22 years. Computations include a combination of B.P.A. and Pacific Northwest Bell's average number of persons per house- hold forecast estimates. 10. The occupancy rate is the reciprocal of the vacancy rate. A five percent vacancy rate is generally indicative of a healthy and stable housing market. Therefore, the reciprocal of a 5% as a constant occupancy rate is used to project housing requirements for the Sisters Urban Area. 11. Required Number of Units The number of units required for any given year is equal to the population divided by the average household size for that given year. e.g. 2000 estimated population @ 4.5% annual growth rate = 2,135/2.32 = 920 total units. The following Table No. 15 projects the total number of housing units needed for the Sisters Urban Area at 10 year intervals, plus a 5% vacancy factor. -82- I VOL 32 eaCUE457 TABLE NO. 15 PROJECTED HOUSING NEEDS - SISTERS URBAN AREA Household 5% Vacancy Total Year Population Size Factor Required Units 1980 884 + 2.52 = 351 1 .95 = 370 1990 1,373 + 2.39 = 574 .95 = 604 2000 2,135 + 2.32 = 920 .95 = 968 12. Buildable Lands - Projected Requirements There are presently 113 gross acres -of inventoried lands suitable for residential development within the city limits. There are presently 384 units on 128 acres. Of this, 44 units and 12 acres are commercially zoned and are ex- pected to be eliminated by the year 2000. Therefore, with 340 units on 116 acres within the.projected urban growth boundary, an additional 628 new units will be needed by the year 2000. Without public sewers, it is anticipated that the overall household density will be approximately 2.25 units/acre. This average includes both single-family and multiple- family units. With 628 new units required, 280 additional acres will be needed within the urban Growth boundary. -83- M VOL 32 ? 458 L B ild d l 13. an s Non- e u ab Non-buildable lands within the Sisters Urban Growth Boundary include the flood-prone areas along Squaw Creek (as identified by the U.S. Army Corps of Engineers), open spaces and buffer zones along the incoming scenic highways, lands occupied by commercial, industrial, public facilities, transportation routes, electricity, water, sewage and public open space. 14. There are a substantial number of older homes in Sisters, many of which are occupied by low-income persons or families. Such homes were built prior to the adoption of a building code and many lack adequate plumbing and winterization. 15. Although there are building and subdivision codes now for Sisters, the city and county has no housing code to deal with inadequate housing conditions. 16. The City of Sisters has no program for low-income or elderly housing. 17. The City of Sisters has authorized the Central Oregon Housing Authority to operate within the city. 18. Economic restraints include a relatively high percentage of retired persons on fixed incomes along with unemployment and/or high cost of living which diminishes the purchasing power for housing. P li i o c es 1. Development codes and programs for housing shall be con- sistent with the Residential Policies contained in the Land Use Element of the Comprehensive Plan. 2. Zoning standards shall encourage high density development in appropriate areas to minimize the cost of public facilities and services and facilitate energy conservation. 3. The Land Use Plan shall provide a sufficient amount of land for the various housing types. The amount of land allocated shall be consistent with the findings for housing needs. 1 - 84- i r E 459 32 FA v Vfli. 4. Because transportation for low-income families is a problem, it is important that more low-income housing be provided inside the Sisters Urban Area, and that such housing be provided in close proximity to commercial service areas. 5. Based on the housing issues and findings presented, the City and County shall undertake the following: a. Codes and Ordinances: Work toward the adoption of necessary and desirable city codes and ordinances that insure adequate development guidance for the pro- vision and maintenance of housing. b. Preventative Maintenance: Work toward the development of a city-wide educational program of preventative maintenance and rehabilitation to assist in maintaining and extending the useful life of the existing housing inventory and for correcting serious physical deficiencies. c. Elderly/Low-income Housing: Enlist necessary public support and assistance in making available to the city i and county, housing programs for elderly/low-income indivuduals and families. - 85- VOL 32 FACE 460 I ENERGY CONSERVATION Most of the area's energy conservation findings and policies involve the county and the two larger cities of Bend and Redmond. Basic considerations that involve the urban growth area of Sisters are identified in this plan and are consistent with county and state objectives and programs. Goal: To manage land uses in a manner to maximize the conservation of all forms of energy, based upon sound economic principles. Findings 1. There are no public or private sponsored energy conserva- tion programs within the Sisters Urban Area. 2. There are no known natural sources of energy within the Sisters Urban Area other than wind and solar. 3. A high degree of energy consumption in proportion to the size of the city is due to its geographic location in relation to major transportation routes, extensive commercial service area requirements and scattered low density developments in the outlying rural areas that depend on Sisters for goods ' and services. 4. Solar energy uses are highly feasible in the area as well as Central Oregon in general due to the high degree of sun exposure. t 5. Low density and/or scattered development is not energy efficient . 6. Energy-wise construction can be gw-eatly encouraged and simplified by carefully choosing neighborhood arrangements and lot orientations to provide critical sunlight access. 7. Transportation accounts for 36% of total state-wide energy use. Personal transportation accounts for 56% of an average household's energy use. t 8. Reduction of motorized transportation significantly reduces. energy use, reduces pollution, is more economical and reduces traffic congestion. t -86- 1~1 VOL 32 FAuE 461 9. Continuing public awareness of the reasons and the need for energy conservation is important in executing an energy effective land use plan. 10. Recycling is an effective energy conservation technique. For example, aluminum when reclaimed takes only 50 of the energy required to process raw ore, including handling and transportation costs. Recycled copper requires only 11% of the energy needed to obtain the metal from raw ores. 11. Energy conservation considerations in construction standards appears in the Uniform Building Code. 12. Thermal rating of new dwellings creates energy efficient floor plans and orientation more desirable to the public. Thermal rating in the long run provides incentive to home- owners to increase the value of their units without increased materials or labor. 13. Presently in Oregon, utilities are required to provide energy conservation inspection advice to homeowners in terms of beat loss analysis. If such records were kept on file by the City and County, owners of well-weatherized houses would benefit as well as the house-buying public. Policies. 1. The City of Sisters and Deschutes County shall encourage programs to conserve energy resources and promote energy efficiency. 2. Solar energy shall be encouraged in new development. Con- version of conventional electrical heating systems shall be encouraged. 3. Wind energy methods should be explored. 4. Wood waste from logging operations should be made available for firewood to reduce household use of electrical heat. S. Winterization programs shall be encouraged for existing older homes with inadequate or substandard insulation. 6. Energy efficient transportation systems shall be promoted and reflected in the transportation plan. Methods of travel other than the automobile should be encouraged i -87 VOL 32 FACE 462 ' 7. The City shall join with Deschutes County in its projected recycling program requirements outlined in the County's Comprehensive Plan. 8. In addition to lot orientation considerations, new development shall not be governed by covenants which prevent energy conservation. 9. To eliminate energy waste in the provision of public services (school bus, fire protection, utilities, and transportation), development within the urban growth boundary must be orderly and "leapfrogging" shall be avoided where possible. 10. To minimize transportation needs, higher densities shall be located near urban centers and along major transportation corridors. 11. New developments shall provide paths for non-motorized traffic separate from roadways. These. paths shall be laid out to provide convenient access to places of education,' ' recreation, shopping and to connecting routes outside of the development. 12. Major consumers of energy, such as commerce and industry, should be located whenever possible near established energy distribution centers. 13. The City and County shall seek to minimize unnecessary road construction and add more capacity to existing energy delivery corridors. 14. Energy delivery transmission routes should gy y utes shou d be established as soon as planneed population densities are decided. . 15. Since energy loss is greater in the transmission of lower voltage electrical power, areas should be set aside for sub- stations near load centers. 16. The City and County should develop a program for public awareness and education of the reasons and need for i energy conservation. VCi 32 FADE 463 URBANIZATION Goal: To provide for an orderly and efficient transition from rural to urban land use. To assure that planning and implementation of the plan for the Sisters Urban Area is consistent with the best interests of both city residents and county residents in terms of both short and long-term effects. To retain and enhance the character and quality of the Sisters Urban Area as growth occurs. To recognize and respect the unusual natural beauty and character of the area. To provide sound basis for urbanization by establishing proper relationships between residential, commercial, industrial and open land uses. To encourage city and county cooperation in the provision of urban services in order to bring about a more orderly development pattern. To provide a safe and cooodinated transportation and circulation system. To retain and enhance desirable existing areas and to revitalize, rehabilitate or redevelop less desirable existing areas. To encourage and promote innovations in development techniques in order to obtain maximum livability and excellence in planning and design for development. To assure that the timing for growth is commensurate with the ability of the community to provide public services. Findings The following findings are derived from the various applicable compre- hensive plan elements, particularly the housing element, and are applied to the seven factors of the Urbanization Goal No. 14 which pro- vides the basis for establishing the Urban Growth Boundary. 1. . Demonstrated Need to Accommodate Long-Range Urban Population Growth Requirements Consistent with LCDC Goals -89- 32 FAGS 464 vii The present size of the city is not adequate to accommodate the projected growth requirements for the year 2000. The current population of 810 is projected to increase to 2,135 by the year 2000. There are 113 gross acres of buildable residentail lands within the city limits. Existing land use inventory indicates 384 dwelling units on 128 acres. This area includes 44 dwelling units on 12 gross acres which are commercially zoned and are expected to be eliminated during the planning period. From Table 15, the projected housing needs for the area indicates that 968 total units will be re- quired by the year 2000. Subtracting the 340 existing units, an additional 628 new dwelling units will be needed to satisfy the future housing needs of the Sisters urban area. Without public sewers (which has continued to fail at the polls), it is estimated the overall unit density of the Sisters growth area will be 2.25 dwelling units /acre. This average includes both single and multiple family units. With 628 new units required, an additional 280 acres of buildable lands will be needed with- in the urban growth boundary. r There are 37 acres of zoned industrial lands of which 32 acres are presently vacant and buildable. No additional industrial lands are needed for the projected growth. There are 45 acres of zoned commercial lands within the current urban area plan. No additional commercial lands are needed for the projected growth. 2. Need for Housing, Employment Opportunities and Livability From the foregoing findings it is concluded that additional lands outside the present city limits will be needed to pro- vide adequate housing lifestyles for the future citizens of Sisters. Documented housing market and structural con- ditions support the need for additional housing at various price ranges. Moderate to low income housing is a higher priority of need for Sisters due to a high retirement age population on fixed incomes and lack of employment oppor- tunities. Employment opportunities will increase with the development of the Sisters Industrial Park and new commercial ' activities indicated on the Plan. 3. Orderly and Economic Provision of Public Facilities and Services Current levels of public facilities and services are not adequate to accommodate new growth beyond the city limits of 1 - 90 1 VOL 32 FACE 465 Sisters. Developments occuring outside the urban area are creating additional demands on city services. Policies have been developed to help offset some of the additional public costs created by new development, such as a Systems Development charge. The primary use of such funds is to upgrade the city's outdated water system. The city, in cooperation with the County and State Highway Division, is actively involved in upgrading the city's sub- standard street system with limited funds. The city has no sewer system which has created a relatively low density development pattern. The Department of Environ- mental Quality has not considered Sisters as a health hazard area and sufficient funds have not been available. Attempts have been made by the city to obtain public acceptance. A sewer plan was prepared and hearings were held but funding was overwhelmingly defeated by the voters. The critical area of need is within the commercial core area where certain needed commercial services are limited due to the lack of land area for drainfields. A sewer system is being planned for the downtown area which will have to be funded by the commercial property owners. The significant and unique problem in Sisters is that most all of the com- mercial property owners do not live in the city and therefore cannot participate in elections. The community, as well as the Citizens Advisory Committee, have repeatedly expressed that it does not want a sewer system (except for the commercial area) and the size of the urban growth boundary is based upon an overall projected density of 2.25 dwelling units /acre. 4. Maximum Efficiency of Land Uses within and on the Fringe of the Existing Urban Area The Comprehensive Plan required phasing of development to the highest density possible under sanitation limitations with no public sewerage system. Plan policies will result in a growth from the core area outward in a manner commensurate with the ability to provide public facilities and services. This will be accomplished under the annexation, zoning, subdivision and urbanization policies and regulations. -91- J Fl L-1 n I VOL 32 FAGE 466 r 5. Environmental, Energy, Economic and Social Consequences The present community of Sisters is very compact and is limited to some degree for urban expansion areas. A mix- ture of U.S. Forest Service, open grazing and flood plain immediately adjacent to the city limits make it impossible to expand the city limits without some inclusion of these areas. The compactness of the area does facilitate energy conservation and the economic extension of uses and facilities, even though the density of development will be lower without a public sewer system. The environmental quality of the area is depicted by the vast open space and natural amenities which . run far beyond the Urban Growth Boundary thereby minimizing the effects of conversion of a minimum of rural lands adjacent to the city to urban use. The Urban Growth Boundary represents the minimum area needed to satisfy the projected growth. As a result, it will result in the down zoning of over 1 , 000 acres of county resi- dential zoning located within the Planning Area but outside the Urban Growth Boundary. 6. Retention of Agricultural Lands ' The Urban Growth Boundary as justified by the foregoing includes 147 acres of irrigated grazing land adjacent to the city limits. The SCS has not classified soils in the Sisters area but it is estimated the soils would fall between Class IV and Class VI. The geographical nature of the Sisters area as described in item No. 4 and 5 make it necessary to include these areas as "urban reserve" areas which would be retained for limited agricultural use until at least 750 of the city is developed first. These areas have been considered to be economically unfeasible for agricultural production. Forest lands and other private wooded areas will consist of the remaining area required-for future urbanization. 7. Compatibility with Proposed Urban Uses and Nearby Agricultural Activities Development pressure on agricultural land will be minimized by factors outlined in item No. 6 and the fact that over 1, 000 acres of agricultural land will be down-zoned outside the Urban Growth Boundary. The grazing lands included in the UGB 1 -92- I VOL 32 FAcF 467 are already adjacent to urban development and are expected to be the logical extension of future urban uses and public facilities and services. Policies The following policies are developed in support of the foregoing Urbanization factors of Urban Growth Boundary consideration. 1. The urban growth boundary shall be used as the official area for which to plan all public facilities, annexations and future land use for the year 2000. 2. The urban growth boundary shall not be considered for amendment unless it is determined that the carrying capacity of the current UGB has reached its maximum with adequate findings of fact. 3. In order to assure the economic provision and utilization of future public facilities and services, the present city shall develop to 75% capacity before expanding into the "urban reserve" areas. 4. Marginal agricultural lands within the urban growth boundary shall be classified as "urban reserve", to be used for limited agricultural purposes until such time as other non-agricultural lands develop first or until a demonstrated public need, consistent with these policies, can be shown to exist. 5. All additional public costs created by a development shall be paid for by the developer as deemed necessary by the governing body. 6. The city and county should make continued efforts to gain public support for fire protection, police protection, water system, etc. to help implement urbanization policies and facilitate energy conservation. 7. An urban growth management plan shall be jointly adopted and implemented by the city and the county to carry out the comprehensive plan policies. -93- 1 1 1 1 1 1 1 t VOL 32 ram COMMUNITY APPEARANCE Goal: To maintain the high quality visual appearance of the Sisters Urban Area consistent with the General Goals and Objectives outlined in Part III. LANDSCAPE MANAGEMENT Landscape management is a tool used to protect natural qualities of the area and to assure that new development makes adequate provisions for additional landscaping to enhance the visual appearance. Findings 1. A policy for landscape management has been contained in 2. 3. 4. Policies 1. 2. the City and County Comprehensive Plan since 1970. Specific standards however have not been developed. The city and county can, under existing ordinances, require landscaping in new developments requiring site plan review. All State Highways entering the city are officially classified as "Scenic Highways" at the State, Federal and local level. Landscaping improves and compliments the overall aesthetic acceptability of the area and in turn enhances the economic health of the community. Sisters Urban Area ordinances shall include sufficient standards to preserve and enhance the integrity of the scenic highways entering the city. Sisters Urban Area ordinances shall include necessary criteria for landscaping of commercial and industrial areas. - 94- VOL 32 FACE 469 1880 ARCH ITECTURAL.THEME The concept of a central architectural and sign theme based on Western and/or Frontier building styles of the 1880's has been initiated in the business sector of the city. This is presently expressed through several store fronts remodeled in this style and many new commercial developments in the downtown area. The result of this interest and endeavor has been adoption of a community development objective to "encourage the development of a central archi- tectural and sign theme based on Western and/or Frontier building styles of the 18801s." This particular goal is concerned with city image, visual appearance, a tourist oriented economy and has been prompted by the desire to establish city identity, interest and attraction of visitors and tourists in support of a significant community economic activity. Legislative mandate of architectural design and construction is for the most part a difficult and controversial task by virtue of choce limitation and subjective interpretation of design style expressions. Therefore, encouragement for goal attainment should be initiated through a com- munity expression of resolve and a subsequent adoption of a policy s7LJte- ment by the Council in resolution form. Particular emphasis and application should in turn be directed to community commercial endeavors and related tourist-recreation support activities. Additional encouragement and results may also be fostered through the local Chamber of Commerce in the form of a policy statement by the business community and a continuing program of business community education and support. Such a central architectural theme may also be encouraged and realized through options available within a contemporary design approach utilizing current materials and methods of construction, with particular attention being goven to scale, form, exterior materials, color and signing. One significant factor bearing on the majority of construction materials presently utilized and also during that period, wood-frame construction, is fire and life safety. This will necessitate attention to fire-restive construction for building separations and general protection of life and property. To provide the basis for developing this central architectural and signing theme, the following data regarding architectural styles, materials, methods of construction, color and miscellaneous features of the 1880's are presented for development guidance. It is not intended as a precise interpretation of the architectural design and building philosophy in its purest form, but as a methodology of approaching an overall period expression of architectural style. 1 1 fl r u _95- 1 I r UZ11.. 3Z m Principal features of the period's architectural style revolve around the renaissance or rebirth of the elements of classical architectural orders, expressed in period building materials and methods of construction, with the presentation of an impressive rectangular false store front. In ' relation to Western and/or Frontier towns, with their explosive boom and unusual economic "bust," this was principally carried out in light wood frame and bearing wall masonry (brick) construction. Light wood frame construction predominates the majority of Western towns in this category, however there are substantial exceptions as exemplified by Jacksonville, Oregon; Virginia City, Nevada and Granite City, Montana. The following numbered sections are keyed to subsequent illustrations to exemplify methodology of use of materials and construction techniques. 1.00 Materials 1.10 Structure: Light wood framing, post and beam and masonry bearing walls are typical structural systems. Light wood framing may be achieved through current construction practices utilizing Ballon Framing and/or Western or Platform Framing with light -wood framing details, up to two and three stories in height. Here attention will have to be given to building code requirements for fire-resistive construction and building separation. Masonry bearing wall con- struction, particularly in brick, provides an alternative with inherent fire- rotective ben fit p e s. 1.20 Roof: Roof systems may be supported by a standard rafter system ' or pre-fabricated light wood trusses. Typical roof coverings may be realized with shingles or shakes at a minimum slope of four inches in one foot. Alternative coverings are metal withstanding or ' batton /ribbed seams or ashpaltic shingles. 1.30 Exterior Finishes: Typical materials are varities of horizontal wood drop siding, vertical board and batten (rough sawn or surfaced four sides) and cedar shingles, with the latter particularly applicable to ornamental patterns on residential structures and brick masonry. ' 1.40 Windows: Wood sash windows are typical, to include double hung, casement, horizontal sliding and fixed sash. Availability of currently manufactured stock in styles keeping with the period, is limited as to capturing the period window style. This is particularly true for large expanses of glass in commercial store fronts and will undoubtedly require special fabrication. 1.50 Doors: Combination glass and wood panel doors are typical and are available in certain standard types in single and divided glass lights. To approach the variety of period door styles will require ' modification of standard door types, particularly in arrangement of glass lights or necessitate special manufacture. -96- I VOL 32 PAGE 471 1.60 Ornamentation and Trim: The principal features of period orna- mentation are concerned with the revival of elements of classical architectural orders. This primarily concerns the entablature or the upper section of wall or story that is usually supported on ' columns or pilasters and consists of the architrave, the lowest division of the entablature resting immediately on the capital or top of the column and the molding around a door or other rectan- gular wall opening; frieze or the part of the entablature between the architrave and cornice (top), the richly ornamented band; and the cornice or the molding and projecting horizontal member that crowns the architectural composition. In addition, this revival was manifest in the use of wood columns supporting the porch or covered entrance along the front of a building, reminisant of the classical portico or colonnaded building entrance. This archi- tectural embellishment also embraced the use of balustrade or "fence" between columns and at the periphery of second story porches. ' 1.70 Exterior Surface Finishes: Depending upon the intended longe- vity of a particular structure and the quality of exterior finish materials, period structures present variety within the basic , construction practices of the era. Rough sawn or milled board and batten surfaces were unfinished to oiled and/or stained to protect the surface materials. This is ' practical with the use of Cedar or Redwood which both contain natural oils that protect the wood. As a practical matter for ex- tended protection of any board and batten surface, the use of a sealer or oil base or solid color stain is warranted. The same is true of vertical surfaces finished with Cedar shingles. Horizontal wood drop siding was normally finished with paint, however in many instances, no finish applied. Here a sealer or stain would be appropriate, in lieu of a painted surface. In consideration of providing boardwalks in lieu of concrete sidewalks, ' only pressure treated wood members should be used. 1.80 Color: Rough sawn or milled board and batten, particularly Cedar ' and Redwood, may be retained in a natural finish which ultimately weathers to silver-gray in color. During the period, there was a lack of high glass finishes, therefore ' color applications were generally flat in nature. To duplicate this character flat or low gloss products currently on the market should be utilized. , Applied surface colors were predominantly flat white for most buildings, particularly the exposed surfaces of porches or covered walkways and ornamentation attached to brick masonry buildings. Large area surface ' colors other than white, were primarily flat earthy ochers, yellows, browns and reds. These colors are generally contrasted with white trim at the cornice, vertical corner trim of the building, windows and doors, porch and balustrade. ' - 97- . , 32 X472 ' Modern interpretation of color application has tended toward a broader color selection in keeping with the white-dark contrast, by adding deep blues, blue-greens and red-orange. ' Color availability and selection for stains is readily obtained from product manufacturers. One example of such product used extensively in the Northwest is Olympic stain, particularly the solid color stains. These stains offer a fairly broad range of color selection and provide a flat, deep colored finish in keeping with the period. ' Latex base paints also produce a flat finish color and low-gloss oil base enamels offer additional applications for colored finishes. Color selection samples are readily available from paint manufacturers ' such as Glidden, Sherman-Williams, Fuller or Pittsburg. 2.00 Methods of Construction ' 2.10 General: Adherance to presently accepted methods of construction and compliance with applicable building codes and development or- dinances is recommended as the minimum standards. Fire and life safety are of particular concern. As the majority of new construction and existing building renovation is adjacent to public walkways, attention to good construction safety ' practices is necessary. This is particularly true in the more con- gested commercial areas. 2.20 Standard False Front Commercial Structure: The following graphic illustrations keyed to this numbered sub-section illustrate standard approaches to the construction of this element. r 2.30 Construction Details: See the following graphic illustrations for various details. ' 2.40 Ornamentation: See the following graphic illustrations for examples. 3.00 Miscellaneous 3.10 Fences: See the following graphic illustrations for examples. ' 3.20 Gates: See the following graphic illustrations for examples. F1 3.30 Signs: Signing was generally handled by painting the sign directly on the facade of the building either directly on the finish material or on a sign board which was subsequently affixed to the building. Ornamentation is achieved at the edge of the sign board by its particular shape and the application of edge molding or individually cut raised letters utilized for relief and contrast. Other signing methods include projecting double faced boards affixed high on the facade of the building and structurally supported by wires. -98- I VOL V F+r NE 4 Free hanging sign boards attached under covered porches were also utilized. Lettering was generally ornamental and/or shaded and painted in contrasting colors on flat white surfaces. Examples of lettering are provided in the following graphic illustrations keyed to this sub- section. Individual cut-out letters applied to the sign surface and routed lettering provide additional acceptable techniques for signing. EXAMPLES OF 1880 ARCHITECTURAL TECHNIQUES STORE BUILDING - CROOK CITY, Dakota Territory (1877) Cornice (1.60) Board $ Batten (1.30) Double-Hung Window (1.40) S i g n ---j (3.30) Fixed-Sash Window (1.40) -.99- Shingle Roof (1.20) False Store Frort (2.20) OLD MOLSON BANK Molson, Washington (1908) Doors (1.50) Shingle Roof (1.20) Horizontal Drop Siding Exterior Finish (1.30) Standard False Store Front (2.20) .E- Architrave (1.60) Fixed Sash Windows (1.40) False Columns (1.60) - Sign (3.30) Board Walk (1.70) 100 VOL 32 FAcE 474 Cornice ,l'~~ (1 .60) VOL 32 Fgr 475 STORE FRONT - UNION, OREGON (c. 1880) Cornice (1,60) CV Frieze (1.60) Horizontal Drop Siding (1 .30) Projecting Sign Base (3.30) l''~ I I, ~ I l ( I I I I li 1 i II al I I Ll Y1.1 False Front (2.20) 101 u 10 (1.30) I, i WINDOW DETAIL SILVER CITY, NEVADA (1892) (1.40) STRAP HINGE (1.50 & 3.20) VOL 2 All 4% Cornice (1.60) r_. Lea -T, Ro f 11-io) SECTION PORCH COLUMN $ ORNAMENTATION 102 COLUMBUS HOTEL WADSWORTH, NEVADA (c. 1868-78) Vlnuniciu F(2.40) Chomfered Column (1.60) Board Walk or Porch (1.70) VOL 32 PAGE 477 TYPICAL HORIZONTAL WOOD DROP SIDING (1.30) VERTICAL BOARD & BATTEN SIDING (1.30) EXTERIOR CORNER DETAIL (2.30) 30) COLUMN DETAIL AT PORCH ROOF BLOOMFIELD'S GENERAL STORE BLOOMFIELD, CALIF. (c.1351-84) (1.60) 103 vn 32 X478 Ornamentation (1.60 & 2.40) Drop Siding (1.30) FALSE FRONT CORNICE DETAIL (1.10, 1.20, 1.301 2.20, 2.30 & 2.40) loo Ornamentation (1.60 & 2.40) VOL 32 FA'E 477 Building Face Roof (1.20) - Balustrade (1.60) t TURNED COLUMN & BALUSTER GOLD HILL BAR & HOTEL GOLD HILL, NEVADA (1863-88) FENCE DETAIL 105 (3.10) Call umn (1.60) COLUt,ANED PORCH BANK CF CALIFORNIA GOLD HILL, NEVADA (C.18c?i 3 ;wff 480 AB I rW;, ~~.~ydnllll~l (It M re 7in1l.-I rill' IN. Y ' P ~ LETTzas VAIRM Due -1184 11 -9 Al m N - Rl- ' TYPICAL 1880 LETTERING (3.30) io6 'I ,mi 481 PART VI IMPLEMENTATION PROGRAMS AND POLICIES a 32 w 482 I PART VI IMPLEMENTATION PROGRAMS AND POLICIES The Comprehensive Plan for the Sisters Urban Area has value only to the extent that it is supported by the community and its citizens, as a policy statement for the general guidance of future development actions which work toward attainment of community goals and objectives. Realization of community goals and orbjectives through the Comprehensive Plan is dependent on adoption of the general proposals of the Plan, its specific policies and the tools for implementation. Coordination and Responsibility for Planning ORS 197 ' ORS Chapter 197 effectuates state-wide policy with respect to the authorized governmental planning function, Comprehensive Plan pre- paration. These policies state that Comprehensive Plans (1) must be adopted by the governing body, (2) are expressions of public policy, i.e., policy statements, generalized maps, standards and guidelines, (3) shall be the basis for fules, regulations and ordinances which implement the plan, (4) shall be prepared to assure that all public actions are consistent and coordinated within the plan, and (5) shall be regu arty reviewed and modified to meet changing needs and desires of the citizens the plan serves. Both the cit nd th l f y a e county are responsib e or preparing and adopting a comprehensive plan for the Sisters Urban Area. The Comprehensive Plan must be consistent with state-wide planning goals approved by the ' Oregon Land Conservation and Development Commission (LCDC). Zoning, subdivision and other ordinances or regulations must be enacted to implement the Comprehensive Plan. Deschutes County through its governing body is responsible for coordination of this planning activity and all activities affecting land use within the County. ' LCDC is charged with the responsibility of making sure that state-wide planning goals are compiled within preparing, adopting, revising and implementing existing and future Comprehensive Plans. LCDC is authorized to review plan provisions, ordinances and regulations if petitioned by (1) City or County when land conservation d d l an eve opment action taken by a governmental unit is in conflict with state-wide planning goals, (2) a county governing body, when a comprehensive plan or ordinance adopted by a governing body is in conflict with state-wide planning goals, (3) a governing body when the action of the county governing body is considered outside the authority vested in the county body, and (4) any person or group of persons whose interests are substantially affected, a i -107- r VOL 32 FADE 483 comprehensive plan provision or any ordinance alleged to be in violation of state-wide planning goals. Urban Growth Management Agreement In order to assure proper city-county coordination for land use actions within the Sisters Planning Area, an Urban Growth Management Agree- ment shall be jointly prepared and adopted by the City and County governing bodies. The agreement shall include a joint committment to comply with the urbanization goals and policies of the Comprehensive ' Plan and shall include a review procedure for the Planning Area, Urban Growth Boundary and city limits. Comprehensive Plan Review Adoption, Amendments , After the Citizens Advisory Committee has completed its work on the Comprehensive Plan and Ordinances, the Planning Commissions of the city and county are responsible for reviewing and maing recommendations to their respective governing bodies. The governing bodies (City Council and Board of County Commissioners) shall adopt the Plan and Ordinances and any subsequent amendments after holding a public hearing. Plan Amendments will be necessary as time passes and conditions change. ' The plan is intended to be a guide for the future growth of the community. It should be subject to periodic review ane 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. The plan shall be reviewed by the Planning Commission every year to ' whatever degree is nessary to insure that it is continuing to function as a guide for community growth. The Planning Commission shall make a written report of its review to the Governing Body by January 1st of eacy year. 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 must be a public hearing before the Planning Commission and the Governing Body prior to making any changes. Any changes should be con- ' sistent with the goals, objectives, policies and statements of intent of the plan or these guidelines should first be changer or amended to reflect the new policies. This should be true of both changes resulting from periodic Planning Commission review and from individual petitions. Hearings on plan amendments shall follow the amendment procedures set forth in the ordinance adopting the Plan. -108- 1 J 3 A84 VQL I Interpretation of the Comprehensive Plan Administration and interpretation of the Comprehensive Plan is a continuing process and for this purpose the material contained in this report and supplemental large scale Plan Maps identical to the one published herein, constitute the Comprehensive Plan. Full under- standing and interpretation of proposals contained on the maps may be accomplished only through proper reference to the descriptive analysis, policies and proposals contained in this report. The Comprehensive Plan documents imply overall agreement on major issues. It implies variation while working toward the achievement of basic community goals and it provides for adjustment or modification ' of policies and proposals as changing conditions dictate. Proper ad- ministration of the Plan demands flexibility, variation and adjustment, however, such changes in policy or proposals must come from careful independent study of broadly based issues and not be dictated by "issues of the moment," such as controversial zoning requests, momentary fiscal problems or the inadequacy to public facilities. Necessary changes which may be required through the years, should normally be accomplished during the annual review proces. If a change should become necessary prior to this event, a formal process of study, review and public hearings must be followed in the manner of initial ' plan development and adoption. Implementation Policies, Ordinances and Programs t The following implementation measures are essential to the functional success of the Comprehensive Plan. Annexation Policy To insure continuity, coordination and adequacy of all city ' services, the following annexation policy is necessary: 1. Areas to be considered for annexation to the City of Sisters shall have boundaries contiguous to the then existing city ' limits. 2. Annexation of property within the Urban Growth Boundary to the city shall be made prior to the provision of any city services. Consent to such annexation to thecity shall be governed by the Oregon Revised Statutes and the following criteria: _109- I VOL 32 FAGE'485 A. Utility systems, streets and appurtenances thereto shall. be constructed to city standards and specifications by the property owner(s) prior to the area being annexed. B. That the city is fully capable of providing a full ' range and level of city services to the proposed an- nexation area that is then currently enjoyed within the city. C. Or, that the proposed annexation area is within the ' service capabilities of programmed 'expansion and such services can be provided within a reasonable and/or mutually agreed upon period of time. Zoning Ordinance Modifications and amendments to the existing city zoning ordinance have been made to bring the ordinance into conformance with provisions of the Comprehensive Plan and to provide the city with a more effective implementation tool. The ordinance is contained in a separate document in conformance with the land use policies set forth in the Land Use Element of the Comprehensive Plan. Upon adoption of the Comprehensive ' Plan, the Revised Official Zoning Map may be adopted as provided for under the new Zoning ordinance. For that portion of the Urban Growth Area that is outside the corporate boundaries of the City, zoning actions must be coordinated with and by the County and accomplished in general conformance with the Compre- hensive Plan upon demonstration of need. Subdivision Ordinance A proposed subdivision and land partition ordinance has been prepared ' as a separate document supplemental to this report. The ordinance has been fashioned after the format, organization and terminology of the Deschutes County Ordinance to minimize public confusion and foster coordinated administration of subdivision guidance. Capital Improvement Programming Capital improvement programming is an important process in the implementation -1.10- VOL 32 PAa 486 ' 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 established. 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 prepared to determine existing and anticipated future sources of revenue which ' can be applied to the capital improvement programs. From these pro- jections, it is possible to estimate the amount of revenue available annually for capital expenditures and to allocate these funds to approp- riate projects. Capital improvement 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. De- veloping a realistic capital improvement program and applying it to the city and county budgeting processes can be one of the most signi- ficant 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 assistance should be fully explored and used as necessary to implement the plan . Intergovernmental Program Coordination ' Responsibility for the provision of necessary public programs and support facilities to maintain the desired level of public services for the City of Sisters is vested in all levels of government. These include the City ' of Sisters with its existing and projected range of program services; Deschutes County, particularly in roads, health and sanitation and building; School District No. 6, U.S. Forest Service for public use of forest lands; ' Oregon State Department of Transportation, for highways and airport facilities' State of Oregon Department of Environmental Quality; State of Oregon Department of Commerce in the housing program area; and elements of the Federal Government for surplus federal properties and financial ' grant and aid programs. This results in a broad range of program concern and intensity, project priority, authorization and funding and implementation ' timing. Authority and responsibility vested in city legislative powers does not include the ability to compel other levels of government . to comply with ' rind/or coordinate their program activities with those of the city. consequently, it is imperative that the city establish lines of communication -111- VOL 32 FACE 487 with related governmental agencies whereby positive influence may be exercised toward coordination of programs and facilities which are the responsibility of more than one level of government or a specific project is inter-related to other governmental programs and facilities. This action may consist of (1) identifying the responsible segment of involved governmental agencies with which to establish effective lines of com- munication and coordination, (2) define agency responsibilities as to roles and committment in the implementation of specific programs and/or projects, (3) coordinate the priority, timing and funding of involved levels of government in realizing a well integrated program or facility and (4) referral of program and project proposals to related governmental agencies prior to execution. -112- VOL 32 rx-f 4 8 8 PART VII APPENDICES I VOL 32 GaGE489 n 1. Access or Access Way: Is the place, means, or way by which pedestrians and vehicles shall have safe, adequate and usable ingress and egress to a property or use. 2. Annexation: To add or join to, append or attach, especially to a larger, or more significant thing. To incorporate into a county, state or city. Annexation is the process by which usually contiguous fringe territory is added to an existing municipality. 3. Architectural Control : Regulations and procedures requiring structures to be suitable, harmonious, and in keeping with the general appearance, historical character and style of 1880 western theme. ' 4. Average: A number that typifies a set of numbers of which it is a function. The arithmetic mean. 5. Bonuses (also known as incentive zoning) : The awarding of bonus credits to a development in the form of allowing more intensive use of the land if such public benefits as greater than the minimum open spaces are preserved, special provision for ' low and moderate-income housing are made, or public plazas and courts are provided at ground level, 6. Buffer Zone: A strip of land created to separate and protect one type of land use from another; for example, as a screen of planting or fencing to insulate the surrounding from the ' noise, smoke, or visual aspects of an industrial zone or junk- yard. In other instances a greater width of land to separate and protect farm production from more dense, urban land use. I 7. Capital Improvement Program: A governmental timetable of permanent improvements budgeted to fit its fiscal capability some years into the future. " 8. Cluster Development: Is the same as and replaces planned unit development;" is intended to concentrate improvements within the density allowed overall and to preserve and protect open land; should be consistent with the public facilities and services policies; and should require a minimum of 80 percent ' for improvements (excluding fencing) of the contiguous land under the same ownership. -113- PART VIII APPENDIXES DEFINITIONS 1 E90 VOL 32 Fn 9. Community Facilities: Public or privately owned facilities used by the public, such as streets, schools, libraries, parks and playgrounds; also facilities owned and operated by non-profit ' private agencies such as churches, settlement houses and neighborhood associations. 10. Commuter: A person who travels regularly from one place to another, as from a suburb to city and back. 11. Comprehensive Plan: Means a generalized, coordinated land use map and policy statement of the governing body of a state agency, city, county or special district that interrelates all functional and natural systems and activities relating to the use of lands, including but not limited to sewer and water systems, transporta- tion systems, educational systems, recreational systems, and natural resources and air and water quality management programs. " " Comprehensive means all-inclusive, both in terms of the geographic area covered and all functional and natural activities and systems occuring in the area covered by the plan. "General nature" means. a summary of policies and proposals in broad catagories and does not necessarily indicate specific locations of any area, activity or use. A plan is "coordinated" when the needs of all levels of governments, semi-public and private agencies and the citizens of Oregon have been considered and accommodated as ' much as possible. "Land" includes water, both surface and subsurface, and the air. , 12. Conditional Use: A use that may locate in certain zoning districts provided it will not be detrimental to the public health, morals, and welfare and will not impair the integrity and character of the zoned district. Examples of conditional use permitted in a commercial, industrial, or agricultural zone are temporary carnivals, religious revivals, and rock concerts. The duty of the commission approving such applications is to condition the use so that it will , not be unsuitable to the surrounding area or community at large. 13. Conservation Easement: A tool for acquiring open space with , less than full-fee purchase; the public agency buys only certain specific rights from the owner. These may be positive rights, giving the public rights to hunt, fish, hike or ride over the land, or they may be restricted rights limiting the uses to which the owner may put his land in the future. Scenic easements allow the public agency to use the owner's land for scenic enhancement such as roadside landscaping and vista point preservation. -114- % vol 14. Dedication: A turning over of private land for a public use by an owner or developer, and its acceptance for such use by the governmental agency in charge of the public function for which it will be used. Dedications for roads, parks, school sites or other public uses are often made conditions for the approval of a development by a planning commission. ' 15. Dedication, Payment in Lieu of: Cash payments required as a substitute for a dedication of land by an owner or developer, usually at so many dollars per lot. This overcomes the two principal problems of land-dedication requirements by applying the extractions on development more equitably and by allowing purchase of sites at the best locations rather than merely in ' places where the development is large enough to be required to dedicate a school or park. 16. Density: The number or residential dwelling units per acre of and/or the amount of land area expressed in square feet of land assignable to each dwelling unit in a residential development, including, but not limited to, one house on one lot, shall be computed as follows: The gross area of land within the develop- ment, less the total aggregate area dedicated for streets, schools or other public facilities, but not including public or private parks and recreation facilities dedicated or created as an integral part of the development; divided by the total number of dwelling units in the proposed development, equals the density. ' 17 Densit Transf A t h i f i i e . y er: ec n que o reta n ng op n space by concentrating residential densities, usually in compact areas ad- jacent to existing urbanization and utilities, with outlying areas being left open, so that the residential density of the entire community will average out at the same number of dwelling units as if the community were developed from end to end with large lots. A variation of this involves allowing density transfers by private developers who buy the development rights of outlying properties that are publicly desirable for open space and adding the additional density to the 'base number of units per- mitted in the zone in which they propose to develop. ' -115- VOL 32 FADE X492 18. Easement: A right afforded a person to make limited use of another's real property, as the right-of-way. 19. Ecology: The study of the mutual relationships between organisms and their environment. An ecosystem is an ecological community. , 20. Eminent Domain: The right of a government to make a taking of private property for public use or benefit upon payment of just compensation to the owner. The terms "eminent domain" and "condemnation" are often used interchangeably, although condemnation may also mean the demolition by public authority of an unsafe structure where no compensation is paid to the owner and the condemmned property does not become public land. "Inverse condemnation" is a condition in which the govern- mental use of police power to regulate the use of land is so ' severe that it represents a de facto taking of private property for public benefit or use without just compensation. 21. Environmental Impact: An assessment of a proposed project or , activity to determine whether it will have significant environ- mental effects on the natural and manmade environments. When no significant environmental impact will result, a "negative declaration" is submitted instead of the Environmental Impact Statement (EIS) which is the detailed report on how the project will affect the environment. Significant environmental effects are associated with those actions which: enerall ' y g 1. Alter existing environmental components such as air and water quality, wildlife habitats and food chains. ' 2. Disrupt neighborhood or community structure (i.e., dis- place low-income people). 3. Further threaten rare or endangered plant or animal species. ' 4. Alter or substantially disrupt the appearance of surround- ings of a scenic, recreational, historical, or archaeological site. ' 5. Induce secondary effects such as changes in land use, unplanned growth, or traffic congestion. F -116- ' ' VOL 32 PA A%, ' 22. Erosion: To erode is to wear away by or as if by abrasion, dissolution, transportation, weathering and corrosion. The removal, loosening or dissolution of earthy or rock material form any part of the earth's surface. 23. Exception (also called variance) : The official provision of an exemption from compliance with the terms or conditions of a building or zoning regulation by a local board or administrator vested with the power to authorize it. It is usually granted if there are practical difficulties in meeting the existing re- quirements literally, or if the deviation or exception would not have a detrimental impact on adjacent properties or affect sub- stantial compliance with the regulations. While an exception ' (or variance or special use) is a departure from the standard application of the zoning ordinance, it is provided for within the ordinance. A day care center, for example, might not ordinarily be permitted in an area zoned exclusively residential, yet since ' this might be a perfectly desirable and acceptable place for the care of preschool children, allowance for anexception, subject to conditioning of how the operation will be conducted, will be ' pre-established in the text of the zoning ordinance. 24. Goals: Mean the mandatory statewide planning standards adopted ' by the Land Conservation and Development Commission pursuant to ORS 197.005 to 197.430. 25. Groundwater: Water beneath the earth's surface between saturated ' soil and rock that supplies wells and springs. 26. Guidelines: Mean suggested approaches designed to aid cities and counties in the preparation, adoption and implementation of comprehensive plans in compliance with the goals and to aid state agencies and special districts in the preparation, adoption, and implementation of plans, programs and regulations in com- pliance with the goals. Guidelines shall be advisory and shall not limit state agencies, cities and counties, and special districts to a single approach. 27. Improved Land: Raw land that has been improved with basic ' facilities such as roads, sewers, water lines, and other public infrastructure facilities in preparation for meeting development - standards. It sometimes refers to land with buildings as well, but usually land with buildings and utilities would be called a developed area, while the term "improved land" more often 1 describes vacant land with utilities only. -117- VOL 32 FAGF X94 28. Incorporated: To merge or unite with an existing entity of legal corporation. Bend, Redmond and Sisters are incorporated cities in Deschutes County. 29. In-filling: The use of undeveloped lands already in areas of existing housing and high densities. 30. Land Use Plan: A basic element of a comprehensive plan, it designates the future use or reuse of the land within a given jurisdiction's planning area, and the policies and reasoning used in arriving at the decisions in the plan. The land use plan serves as a guide to official decisions in regard to the distribution and intensity of private development, as well as public decisions on the location of future public facilities and open spaces. It is also a basic guide to the structuring of zoning and subdivision controls, urban renewal and capital improvement programs. 31. LCDC: The Land Conservation and Development Commission of the State of Oregon. 32. Leapfrog Development: Development that occurs well beyond the existing limits of urban development and thus leaves inter- vening vacant land behind. This bypassing of the next-in-line lands at the urban fringe results in the haphazard shotgun pattern of urbanization known as "sprawl." 33. Median: The middle value in a distribution, above or below which lies an equal number of values. 34. Mobile Home (trailer) : A factory-built home, equipped with all of the basic amenities of a conventional home (bath, kitchen, electricity) , which can be moved to its site by attaching it whole or in sections to an automobile or truck. (A trailer is a much smaller mobile shelter, usually used for camping and outings rather than as a permanent dwelling.) Prefabricated modular units currently come complete with built-in furnishings, appliances, porches, and other extras. "Double-wides" and -118- 11 i F 1 1 F Ll I L~ l "triple wides" are units connected together to form a single structure of size and roof design similar to that of a conven- tional home built on a foundation on site. Mobile home parks rent spaces with utility hookups to mobile home owners; some- times they also rent the mobile homes. The parks range in size from a few parking spaces equipped with plumbing and electrical connections to elaborate mobile home communities with swimming pools and community centers. About a quarter of the single-family home sales since 1968 have been captured by mobile homes. 35. Moratorium: In planning, a freeze on all new development pending the completion and adoption of a comprehensive plan. In recent years building moratoriums have also been insti- tuted by water and sewer agencies when sewage treatment facilities are inadequate or when water shortages are threatened. They have alos been voted into being by residents of communi- ties whose schools and other public facilities have been over- whelmed by rapid growth. 36. Open Land: Is land without tree cover, land which has been or is now being irrigated or which has been supported or now supports an irrigation water right; land which is exposed, land without cover except grass, brush and sparse or im- mature trees; land or topography which are not such as reasonably to conceal structures, improvements and personal property. 37. Open Space: That part of the countryside which has not been developed and which is desirable for preservation in its natural state for ecological, historical or recreational purposes, or in its cultivated state to preserve agricultural, forest or urban green- belt areas. Open space also consists of any land area that would, if preserved and continued in its present use: a. Conserve and enhance natural or scenic resources; b. Protect air or streams or water supply; C. Promote conservation of soils and wet lands; -119- t VOL 3 2 PAGE 496 d. Conserve landscaped areas, that reduce air pollution and enhance the value of abutting or neighboring property; , e. Enhance the value to the public of abutting or neigh- boring parks, forests, wildlife areas or other open space; f. Enhance recreation opportunities; P rv hi t ic site g. or rese e s s; h. Promote orderly urban development. 38. Parcel: Means a nit of land that is created by a partitioning of land. 39. Partition: Means either an act of partitioning land or an area or tract of land partitioned as defined below: " " means to divide an area or tract Partitioned land of land into two or three parcels within a calendar year when such area or tract of land exists as a unit or contiguous units of land under a single ownership ' at the beginning of such year (ORS 92.010). 40. Peak Hour: For any given highway, the sixty-minute period of the day during which it carries its highest volume of traffic. Usually this occurs during the morning or evening rush, when the majority of people attempt to get to or from.work. 41.. Performance Standards: Zoning regulations providing specific criteria limiting the operations of certain industries, land uses, and buildings to acceptable levels of noise, air pollution emmis- sions, odors, vibration, dust, dirt, glare, heat, fire hazards, wastes, traffic generation and visual impact. This type of zoning may not bar an industry or use by specified type, ' but admits any use that can meet the particular standards of operation set for admission. Instead of classifying industries in districts under the headings "light," "heavy" or "un- restricted," it established measurable technical standards and classifies the industries in terms of their probable environmental impact. Terms such as "limited," "substantial," and "objection- able" determine the overall acceptability rating of a particular use. ' -120- 1 1 r I VOL CAI f 497 42. Planned-community: Is a fully self-contained complex of resi- dential, commercial and industrial areas, transportation facilities, utilities, public facilities and recreation areas. 43. Planned Unit Development (PUD) : A self-contained development, often with a mixture of housing types and densities, in which the subdivision and zoning controls are applied to the project as a whole rather than to individual lots as in most subdivisions. Therefore, densities are calculated for the entire development, usually permitting a trade-off between clustering of houses I and provision of common open space. ' 44. Plat: Includes a map, diagram, drawing or replat or other writing containing all the descriptions, locations, specifications, dedications, provisions and information concerning a subdivision. 45. Police Power: The inherent right of a government to restrict an individual's conduct or his use of his property in order to protect the health, safety, welfare, and morals of the community. In the U.S. this power must relate reasonably to these ends I and must follow due processes of the law; but unlike the exercise of the state's power of eminent domain, no compensation need be paid for losses incurred as a result of police power ' regulation. 46. Right-of-way: The right of passage over the property of another. The public may acquire it through implied dedication- accepted access over a period of time to a beach or lake shore- line, for example. More commonly, it refers to the land on which a road or railroad is located. The pathways over which utilities ( and drainage ways run are usually referred to as easements. 47. Road Types: Arterial: Roads designed for through access between major traffic generators. Arterials should provide I primarily the traffic mobility needs. Collector: Roads which gather the traffic from the local roads between arterials. These roads should I provide a balance between the needs of land access and traffic mobility. I I t -121- i vas 32 FADE 498 i I Local: Roads designed for land access serving local traffic only. 48. Rural Lands: Are those Lands outside the Urban Growth Boundary which are non-urban uses with no or hardly any public services. Manufacturing, industrial, commercial and urban residential uses are not appropriate on rural lands. 49. Septic Tank: A tank plus a leaching field or trenches in which the sewage is purified by bacterial action. It is distinct from a cesspool, which is merely a perforated buried tank that allows the liquid effluent to seep into the surrounding soils but retains most of the soils and must be periodically pumped out. 50. Sewage System: A facility designed for the collection, removal, treatment, and disposal of waterborne sewage generated with- in a given service area. It usually consists of a collection net- work of pipelines and a treatment facility to purify and dis- charge the treated wastes. 51. Special District: Means any unit of local government, other than a city or county, authorized and regulated by statute and includes, but is not limited to: water control districts, irrigation districts, port districts, regional air quality control authorities, fire districts, hospital districts, mass transit districts and sanitary districts. 52. Spot Zoning: The awarding of a use classification to an isolated parcel of land which is detrimental or incompatible with the uses of the surrounding area, particularly when such an act favors a particular owner. Such zoning has been held to be illegal by the courts on the grounds that it is unreason- able and capricious. A general plan or special circumstance such as historical value, environmental importance, or scenic value would justify special zoning for a small area. 53. Strip Zone: A melange of development, usually commercial, extending along a major street leading out of the center of a city. Usually a strip zone is a mixture of auto-oriented -122- 11 VOL 32 PALE 499 ' enterprises (e.g., gas stations, motels, and food stands), truck-dependent wholesaling and light industrial enterprises, along with the once-rural homes and farms overtaken by the haphazard leapfrogging of unplanned sprawl. Strip develop- ment, with its incessant turning movements in and out of each enterprises's driveway, has so reduced the traffic-carrying ' capacity of major highways leading out of urban centers that the postwar limited-access freeway networks have become a ' necessity. In zoning terms, a strip zone may refer to a district consisting of a ribbon of highway commercial uses fronting a major arterial road. 54. Subdivide: To divide a part of parts of land parcels into ' at least four smaller parts of lots. A subdivision is the process of laying out a parcel of raw land into lots, blocks, streets and public areas. Its purpose is the transformation of raw land into building sites. 55. Urban Fringe: An area at the edge of an urban area usually made up of mixed agricultural and urban land uses. Where leapfrogging or sprawl is the predominant pattern, this mix- ture of urban and rural may persist for several decades until the process of urbanization is completed. 56. Urban Growth Boundary: Is an established line identifying ' an area which contains land lying within and adjacent to the incorporated city and which is determined to be necessary and suitable for future urban uses capable of being served by urban facilities and services. 57. Urbanizable Lands: Are those lands within the urban growth boundaries and which can be served by urban services and facilities and which are necessary and suitable for future expansion of an urban area. 58. Urban Reserve: Those rural open lands lying immediately adjacent to the city limits that are needed for eventual urban expansion before the year 2000 but not unit) at least 75% of r the present (1979) city limits has developed. -123- 1 1 VOL 32 FAGE 500 BIBLIOGR APHY 1. Oregon Revised Statutes, Volumes 1 and 2. Chapter 92: Plats and Subdivisions, Enabling Legislation for Establishing a Public Platting and Sub- division Review Board and its Permissive Functions. , Chapter 197: Comprehensive Planning Coordination. Chapter 215: County Planning. Chapter 222: City Boundary Changes; Mergers and Consolidations. Chapter 227: City Planning and Zoning, Enabling Legislation Permitting the Formation of City Planning Com- missions, Commission Organization and Planning and Zoning Functions. 2. State of Oregon Structural Specialty Code and Fire and Life Safety Code, 1973 Edition, Uniform Building Code, Amended by _ Department of Commerce. Building Codes Division, Salem, Oregon. 3. "701" Comprehensive Planning Assistance Grant Application, Sisters, Oregon, 17 May 1973. ' 4. East of the Cascaded, by Phil F. Brogan, Binford and Mort Publishers, Portland, Oregon 1964. 5. The History of Sisters, written by Mrs. Tillie Wilson and Mrs. Alice Scott, Sisters, Oregon, 1973. 6. Background for Planning, Deschutes County, Oregon, Bureau of Municipal Research and Services, University of Oregon, Eugene, Oregon, March 1966. 7. Comprehensive Plan to 1990 - Deschutes County, Oregon, Grunwald, Crawford and Associates, January 1971. 8. Comprehensive Water and Sewerage Study - Deschutes County, Oregon, Cornell, Howland, Hayes and Merryfield, December. 1970. (Sisters Segment) 9. General Soil Map with Soil Interpretations for Land Use Planning - Deschutes County, Oregon, Soil Conservation Service, U.S. Department of Agriculture in cooperation with Oregon Agriculture Experiment Station, February 1973. 10. Central Oregon Transportation Study, Central Oregon Intergovern- mental Council, 31 August 1973. (Sisters Segment) -124- L 32 "'Ai*E 1501 VO 11. Multiple Use Plan - 1970, Sisters Ranger District, Deschutes National Forest, U.S. Forest Service, Sisters Ranger District, Deschutes National Forest, 15 May 1970. 12. A Comprehensive Development Plan for Sewerage System Improve- ments, City of Sisters, Deschutes County, Oregon, HGE, Inc. , May 1972. 13. Deschutes National Forest, Classification and Land Ownership I Study (In Progress), U.S. Department of Agriculture, Forest Service, Preliminary Draft, 1973. ' 14. City of Sisters, Center for Population Research and Census, Portland State University, Portland, Oregon. 15. Economic Data, Western Bank, Sisters Branch Charter Application, 1973. 16. Labor Force in Deschutes County, State of Oregon Employment Division De artment of Human Re o , p s urces. 17. Labor Force Trends, Bend Local Office, State of Oregon Employment Division, Research and Statistics Division, January 1974. 18. 1973 Survey of Buying Power, Sales Management Magazine, 1973. 19. Traffic Volume Tables for 1963 and 1972, Oregon State Highway Division. I 20. Traffic Volume Tables for 1978, Oregon State Highway Division. (Updated) 21. Deschutes County, Subdivision Ordinance No. PL-2. 22. Zoning Ordinance of the City of Sisters, Oregon, April 1973. 23. Planning Design Criteria, Joseph DeChiara and Lee Koppelman, in cooperation with the School of Architecture - Pratt Institute, Van Nostrant Reinhold Co., New York, 1969. 24. Standard Drawings for Public Works Construction, prepared by Oregon Chapter American Public Works Construction, 1972. 25. The Settlers West, Martin F. Schmitt and Dee Brown, Bonanza Books, New York, 1955. t -125- VOL 32 FAuE 502 26. Ghost Town of the West, William Carter, Lane Magazine and Book Co., Menlo Park, California, 1971. 27. Ghost Town El Dorado, Lambert Florin, Superior Publishing ' Co., Seattle, Washington, 1968. 28. Ghost Towns of the Northwest, Norman D. Weis, Caxton Printers, Ltd. , Caldwell, Idaho, 1972. 29. Decorative Alphabets and Initials, edited by Alexander Nesbitt, Dover Publications, Inc., New York, 1959. 30. General Soil Map with Soil Interpretations for Land Use Planning _ Deschutes County, Oregon, Soil Conservation Service, USDA, February, 1973. 31. Geology and Mineral Resources of Deschutes County, Oregon, N. Peterson, 1976. 32. Flood Plain Information, Squaw Creek, Sisters, Oregon, Corps of Engineers, 1978. 33. Final Report, Deschutes County Forest Lands CAC, 1978. 34. Deschutes County Overall Economic Development Plan, Deschutes County Economic Development Committee, 1978. 35. Central Oregon Open Space Recreation Study, Central Oregon Intergovernmental Council, 1974. 36. Comprehensive Plan, City of Sisters, City of Sisters and Deschutes County, 1974. -126- 1 I