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2005-1330-Minutes for Meeting October 12,2005 Recorded 11/22/2005Document Reproduces Poorly (Archived) Deschutes County Board of Commissioners 1300 NW Wall St., Bend, OR 97701-1960 (541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org MINUTES OF DEPARTMENT UPDATE — SOLID WASTE DEPARTMENT DESCHUTES COUNTY BOARD OF COMMISSIONERS WEDNESDAY, OCTOBER 12, 2005 Commissioners' Conference Room - Administration Building - 1300 NW Wall St..., Bend Present were Commissioners Tom De Wolf, Michael M. Daly and Dennis R. Luke. Also present were Mike Maier, County Administrator; Tom Blust and Roger Olson, Road Department; and Timm Schimke of the Solid Waste Department. Also present were several representatives of local hauling and recycling firms and a representative of the Oregon Department of Environmental Quality. No representatives of the media were present. The meeting began at 2:15 p. m. A copy of the agenda is attached for reference. The Board directed Timm Schimke to comment back to the Department of State Lands regarding proposed changes to the preliminary concept plan for the Stevens Road area. They also indicated he should get input from the Road Department. There needs to be a buffer zone adjacent to the Solid Waste and Road Department facilities. Being no further items addressed, the meeting adjourned at 3: 00 p.m. DATED this 12th Day of October 2005 for the Deschutes County Board of Commissioners. ATTEST: Recording Secretary DESCHUTES COUNTY OFFICIAL NANCY BLANKENSHIP, COUNTY COMMISSIONERS' JOURNAL RECORDS CLERK Q 2005.1330 11/22/2005 04:43:03 PM Solid Waste Update Agenda October 12, 2005, 2:15 p.m. Commissioners' Conference Room 1. Department of State Lands Stevens Road / Deschutes County Planning Project 2. Other DSL STEVEN ROAD TRACT AND COUNTY PROPERTY PRELIMINARY CONCEPT PLAN SUMMARY Revised Draft October 10, 2005 Prepared by Cogan Owens Cogan and SERA Architects BACKGROUND AND OVERVIEW The Stevens Road is one of many properties that the Oregon Department of State Lands (DSL) owns throughout the state which are managed to benefit the state's Common School Fund, with revenues directed to support K-12 education in Oregon. The property was acquired from the federal Bureau of Land Management (BLM) in the 1990s. When the property was initially acquired, Deschutes County expressed concern about the prospect of state ownership and use of the property. In response, DSL convened a group of state and local agency representatives to prepare a Master Plan that identified short and long-term uses for the property. This original Master Plan was prepared with the assistance of David Evans and Associates. Since that time, the property has remained undeveloped. DSL has identified allowable and restricted uses of the property. Several easements and other uses have been allowed on the property, including utility easements. Overnight camping, discharge of firearms, dumping of waste and motor vehicle use are not allowed. DSL enforces these restrictions in response to complaints from the public and/or neighboring landowners. When DSL prepared the initial Master Plan, the agency did not expect to develop the property for urban uses for a significant period of time, given that it was not in the City of Bend's urban growth boundary (UGB) and was not expected to come into the boundary for a decade or more. However, the pace of growth in the Bend area has increased significantly during the past 10 years, increasing the likelihood that the property may be eligible for inclusion in the UGB sooner than initially expected. DSL wants to be prepared for that possibility with a plan that allows future use and development of the property once it is eligible for inclusion in the UGB and annexation to the City of Bend. Deschutes County owns a large tract of land directly south of the DSL site. This planning process also addresses a portion of that property. The County's project area is adjacent to the County's existing Public Work Department, as well as areas used now or in the future for solid waste management activities. In considering future use and/or development of their property, the County's primary goals are to buffer the County's solid waste facilities from potential impacts related to development of the Stevens Road property and to ensure compatibility between the Steven Road site and adjacent County property. This document summarizes and illustrates preliminary ideas for future development of the Stevens Road site and the County property. Proposed development concepts for the Stevens Road Tract will be further refined and incorporated in an updated Master Plan for the site. Recommendations for the County property will be described in a draft Concept Plan for that site. In preparing this 1 preliminary planning document, DSL and County staff and their consultants (Cogan Owens Cogan, SERA Architects and Century West Engineers), conducted the following activities: ✓ Reviewed the existing master plan and other relevant materials, including planning land use, park, transportation and other planning documents prepared by the City of Bend, Deschutes County, the Oregon Department of Environmental Quality (DEQ) and the Bend Metro Park and Recreation District. ✓ Convened a meeting of state and local agency representatives to discuss future land needs, opportunities and constraints associated with the site. ✓ Conducted follow-up meetings with County and City officials to discuss plans to accommodate future growth in the Bend area. ✓ Prepared preliminary design concepts and reviewed and refined them in consultation with DSL staff, including a design charrette conducted on September 14, 2005. DESIGN PRINCIPLES AND OVERALL OBJECTIVES The Stevens Road Tract represents a unique set of opportunities for the state, the City of Bend and the community: ✓ Generation of revenues from development of the site to benefit public schools statewide through the Oregon Common School Fund ✓ Ability to help meet a variety of community needs for housing, including affordable housing opportunities, employment, parks, open space, and other community facilities ✓ A single, large, vacant parcel, with relatively few environmental constraints ✓ Ability to meet the needs of future residents of this site and to some degree, the surrounding area ✓ A location directly adjacent to the City's existing urban growth boundary (UGB) and to existing developed areas; a portion of the property is already located within the Bend UGB ✓ Access to existing sewer and water lines and a major roadway with capacity for additional traffic ✓ Relatively flat topography and outstanding views of the Cascades to the west and other mountains to the south ✓ County property represents an opportunity to buffer future urban uses on the DSL property from existing and future operations at the County's solid waste facilities to the south Constraints include the presence of caves, collapsed lava tubes and sensitive bat species on a portion of the site; an area that was historically used for disposal of solid and septic waste; and a natural gas transmission line that runs north/south through approximately the center of the property. These constraints are described in more detail in an accompanying Interagency Scoping Meeting Summary document. DSL envisions development of a "complete community" on this site, with opportunities for residents to live, work, shop and play in the same area, reducing transportation and other public facility needs. This overall approach to a self-sustaining development will be coupled with 4 sustainable development design and construction techniques to create a one -of -a -kind neighborhood within the City. Development principles include: ✓ Develop a mixture of uses that creates opportunities for living, working, recreating and shopping within the development, reduces the need for automobile travel, and increases opportunities for bicycling and walking. ✓ Maximize revenues for the Oregon Common School Fund through lease or sale of the property for urban development. ✓ Coordinate with the City of Bend, Deschutes County, other public agencies and citizens to ensure that future development is consistent and integrated with overall goals for community- wide growth and development. ✓ Create a mixture of housing types that meet the needs of households with a range of incomes, including affordable housing needs. ✓ Coordinate development of the Stevens Road property and potential uses on the County property with long-term use of the adjacent County -owned solid waste facilities and associated property. ✓ Help meet short and long-term community needs and objectives for land use, housing, and economic development. ✓ Protect sensitive environmental features and resources from the impacts of development. ✓ Incorporate sustainable development and design principles and practices, including but not limited to the following: ➢ Energy efficient building materials and building construction practices (e.g., energy efficient windows, building orientation, high -efficiency heating and cooling systems, recycled building materials, etc.) ➢ Alternative energy sources, including solar power. ➢ Native vegetation and other landscaping practices that minimize irrigation needs. ➢ Natural drainage facilities and practices (e.g., bio-swales, detention ponds, rolled curbs) ➢ Permeable or semi -permeable surfaces for low impact areas such as driveways, bike paths or similar areas. MAJOR PLAN ELEMENTS Specific components of the proposed development include: ✓ Emphasis on residential development. Consistent with the City of Bend's residential and housing needs studies and plans, a significant portion of the site would be devoted to housing (approximately 320 acres or 50 percent). This land could accommodate approximately 2,000 housing units, assuming an average density of 6.3 units per acre (consistent with targets identified in the City's residential land and housing needs analysis). Housing is expected to include a mix and range of housing types, including higher density and multi -family housing that can help meet overall community needs for affordable housing. As a state agency landowner, 3 DSL is in a unique position to help meet these community needs through partnering with other governmental agencies, affordable housing developers and others. Approximately 15-25 percent of residential acres are targeted towards higher density residential development (duplexes, triplexes, four-plexes and apartments). Given the relatively higher densities of these types of housing, that translates into potentially 40% or more of the housing units. Most of this development is concentrated in proposed earlier phases of development and in relatively close proximity to existing roads (27th Avenue). ✓ Opportunities to meet short and long-term employment needs. Recognizing that other areas within the community are planned to accommodate much of the City's long-term employment growth (e.g., the downtown/Central Bend area and Juniper Ridge), employment uses are allocated to a relatively modest proportion of the site (approximately 20 percent and 128 acres). Proposed employment uses include: ➢ Community or neighborhood commercial development in primarily to serve residents within and in close proximity to the Stevens Road development. A commercial hub is proposed at the northwest corner of the site, with a main street, commercial and mixed-use development area radiating to the southeast. A modest amount of commercial development is proposed within a village center, located approximately in the center of the site. Two additional, small neighborhood commercial areas are identified in the eastern half of the site and likely 'to occur in later stages of development. These uses account for approximately 15 acres, with the potential for up to 750 jobs, assuming an average of 50 employees per acre. ➢ Flexible employment areas in the northwest and southwest corners of the site. These areas could be zoned for tech -flex, office, light industrial or other, similar uses to meet short-term land needs for these types of uses. They are located on the portions of the site that will be easiest to develop in the short-term, given proximity to 27th Avenue and existing sewer and water lines. Approximately 96 acres (15 percent of the site) are designated for this type of use. This area could be expanded or reduced, depending on needs for this type of land identified by the City as it updates its estimates of future employment land needs. This could translate to approximately 4,500 jobs, assuming just under 50 jobs per acre (average employment density for a mix of office and tech/flex employment). These uses may serve this site and to some degree the surrounding area. They also represent opportunities to generate long-term revenue for the Common School Fund. ✓ Passive open space. A relatively significant portion of the site is identified for future open space, in large part to protect caves and associated bat species located on the property. These areas would be managed to protect these sensitive resources, while allowing some use for passive open space enjoyment, where feasible. A large, comprehensive trail network within the site is proposed, with connections along and to the canal (NW corner), PGT transmission line trail corridor and proposed neighborhood parks on this site, as well as a community park proposed for the County -owned site to the south. The open space network also connects both the DSL and County properties to an existing middle school site to the southwest and to possible future trail corridors along the canal that runs through the northwest corner of the DSL site. ✓ Active parks and open space. Two to three neighborhood parks, totaling approximately 10-15 acres, are proposed for the site, consistent with expected residential development within the area and level of service standards adopted by the Bend Metro Park and Recreation District. A community park of approximately 25 acres in size is proposed on the County -owned property to 4 the south. This would help meet park needs for the site and buffer the County's landfill to the south from residential and commercial development on the Stevens Road property. ✓ Energy production. A portion of the site (along the southern boundary) could be used for production of solar or other alternative energy sources. A significant amount of energy could be produced within a relatively modest area and used to support other proposed development. This would further support the overall goal of environmental sustainability. This also may be an opportunity to generate long-term revenue for the Common School Fund. ✓ School and other community facilities. Development of the site will drive the need for additional elementary schools and possibly a middle school. Approximately 10 acres have been identified for development of an elementary school, based on typical standards for school sizes, the proportion of school age children, and goals for efficient land use and development. One school could be located within the village center area, along with other possible community facilities to serve residents (e.g., a library, fire station, and/or small community center). No middle school sites are incorporated in the Plan, given the close proximity to the existing middle school site to the southwest. Additional coordination with the Bend School District could result in a recommendation to devote more land to future school sites. ✓ Adequate and sustainable transportation system. The preliminary concept map identifies major roads (arterials or collectors) to serve the site, emphasizing connections to major land uses within and outside the property. A boulevard design could be used for major roads, providing access to the village center. Local neighborhood streets could feature designs aimed to calm traffic, encourage bicycle and pedestrian use and improve safety. Sample cross-sections illustrating these designs accompany this report and concept map. PUBLIC FACILITY NEEDS Needed capacity and related improvements to water, wastewater and storm drainage facilities are still being assessed and will beincorporated in the next draft of this document. PHASING A three-phase approach is envisioned for development of the property: ✓ Phase 1 —Northwest corner of the property. This area is already in the City's urban growth boundary. Development of this area for commercial use would provide relatively immediate revenue opportunities for DSL and could help leverage resources for subsequent phases. ✓ Phase 2 — Remainder of property west of PGT transmission line. This portion of the property could be developed as a second phase of the project or considered as partial development of the property within the next 20 years if inclusion of the entire property within the City's UGB is not feasible or warranted. The PGT line provides a relatively natural dividing line for phased development, in part due to issues related to the need to buffer and ability to cross the transmission line. Development of this portion of the site first would help meet potential short-term needs for employment land and needs for affordable housing development, along with longer term needs for additional housing and community facilities. This phase of development also could stand alone as a complete community. 5 ✓ Phase 3 — Property east of the PGT transmission line. This portion of the property could be developed as a second phase within the 20 -year planning period related to UGB expansion or could represent a longer-term (20-50 year) development opportunity, depending on the outcome of the City's UGB amendment process. Development of this area could be integrated with and support the first phase development. It also would serve as a buffer between the first phase development and low-density existing rural residential development farther to the east. COUNTY PROPERTY This planning process also addresses a portion of County -owned property due south of the state- owned Stevens Road site. A portion of the County's property is currently occupied by the County's public work department. This part of the site is expected to continue to be used in that capacity and for a solid waste transfer station. In considering future use and/or development of their property, the County's primary goals is to buffer the County landfill (further south) from potential impacts related to development of the Stevens Road property and ensure compatibility between the Stevens Road site and the adjacent County property. Given these objectives, it is likely that the County will not pursue inclusion of their property in the UGB within the near term, although no policy decisions have been made towards this end and this position could change. Assuming the County property remains outside the UGB, it can accommodate only a limited number of (non -urban) uses based on County zoning and state planning requirements. This concept plan proposes the following types of uses for the County site: ✓ Community park (approximately 25 acres). ✓ Living machine demonstration site to process storm water and possibly wastewater. ✓ Energy or power generation which could be expanded from DSL site (as shown on the accompanying map) to incorporate portions of the County property. There also may be opportunities for a joint venture between the County and DSL to generate energy from alternative sources and/or generation of methane on the County site. ✓ Trails and open space associated with the above uses and used to buffer County solid waste facilities from urban uses on the Stevens Road site. Specific short or medium-term uses have not yet been identified for the remainder of the site but are expected to be identified during the remaining phases of this project. Although the County property may not be included in the UGB in the short or medium-term, it could be considered for inclusion in the longer-term. If it is, a broader range of uses could be considered and additional transportation facilities likely would be needed to connect this site to adjacent properties to the north, south and west. Long-term, urban uses could include light industrial, institutional or other uses. :1 NEXT STEPS DSL staff and its consulting team will conduct a design charrette with state and local agency representatives and other interested parties in late -October to review and refine the concepts described here. Building on the results of that charrette, the project team will then conduct the following tasks: ✓ Review Conceptual Plans with City and County officials ✓ Develop a strategy for inclusion of the property within the UGB, based on results of the City's UGB amendment study to date and consultation with local officials ✓ Prepare a draft Master Plan ✓ Finalize the Master Plan and findings that support the proposed UGB amendment strategy ✓ Present the master plan to the State Land Board or Land Board Assistants 6 Stevens Road - Section 11 Tract: Site Scheme 0 400 800 1.2DO = = LEGEND J. tAND USE Stevens Road - Section 11 Tract: Site Scheme 0 400 800 1.2DO = =