2008-734-Minutes for Meeting June 23,2008 Recorded 7/9/2008COUNTY
NANCYUBLANKENSHIP,F000NTY CLERKDS Y~I 200Y-134
COMMISSIONERS' JOURNAL 070912008 10;48;07 AM
IIIIIII IIIIIIIIIIIIIIIIII I II III
2008-734
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Deschutes County Clerk
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Deschutes County Board of Commissioners
1300 NW Wall St., Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.ora
MINUTES OF BUSINESS MEETING
DESCHUTES COUNTY BOARD OF COMMISSIONERS
MONDAY, JUNE 239 2008
Commissioners' Hearing Room - Administration Building - 1300 NW Wall St., Bend
Present were Commissioners Dennis R. Luke, Tammy Melton and Michael M.
Daly. Also present were Laurie Craghead, Legal Counsel; Tom Anderson, George
Read, Peter Gutowsky, Kristen Maze and Terri Payne, Community Development
Department; Hillary Borrud; KOHD TV; and approximately twelve other citizens.
Chair Luke called the meeting to order at 10: 00 a. m.
1. Before the Board was Citizen Input.
None was offered.
2. Before the Board was Consideration of Signature of Document No. 2008-
131, an Intergovernmental Agreement to Provide Building Inspection
Services to Lake County.
Tom Anderson said that the cost is an hourly rate plus mileage to handle
inspections in these distant locations.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 1 of 15 Pages
3. Before the Board was Discussion of the Deschutes County Comprehensive
Plan Update Work Program.
Citizen Tony Aceti asked if this is about the TSP, and if he could hold his
questions until after the presentation.
Peter Gutowsky, Kristen Maze and Terri Payne came before the Board. Mr.
Gutowsky gave an overview of the goals and procedures for making any
updates, which will be a lengthy process. Ms. Maze presented a PowerPoint
demonstration of the item and stressed why it may be time to make changes to
the comprehensive plan, which was originally developed in the 1970's. (A copy
of the presentation is attached for reference)
Commissioner Luke asked if the plan will be presented in other locations. Ms.
Maze said they will take the proposed plan to the public at various locations,
and will include a survey of some kind to obtain suggestions from the public.
Comments can also be made on a website "blog".
Commissioner Luke said that ODOT has held a lot of meetings on the Cooley
Road interchange and should be contacted for information and input.
Commissioner Melton asked what level of public involvement there will be.
Mr. Gutwosky stated that an update could be provided to the Board every
month or two to keep the Commissioners informed on what has transpired at
that point. Commissioner Luke suggested that perhaps the Board can sit in on
future Planning Commission meetings when this issue is to be addressed.
A brief discussion took place regarding the possibility of Terrebonne
incorporating, and whether Crooked River Ranch could be a part of this.
Terri Payne said there are there three things for the Commissioners to consider.
Is it appropriate to have the Planning Commission act as the steering team and
devote perhaps one meeting a month to the Comp Plan update. They would
oversee the process, trying to get community involvement every step of the
way. Peter Gutowsky added that when there are specific topics, they could get
feedback prior to meeting with the public.
Commissioner Luke asked how much their opinions would influence the public
input. Mr. Gutwosky replied that in no way will the opinion of the Planning
Commission narrow the scope of the information; they would help with making
the information more organized and easier to understand.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 2 of 15 Pages
The Board indicated that using the work plan as a format to handle the issues is
appropriate, and there will be full public involvement every step of the way.
Mr. Gutowsky stated that solar access would be addressed. Commissioner
Luke said that it would likely only apply when there are large, rural lots that do
not already have structures on them. He added that the role of Deschutes
Junction will change over the years, when 19'h Street has finally been
established and Juniper Ridge has begun development.
Commissioner Daly stated that he feels the landscape management issue needs
to be reevaluated. Mr. Gutowsky said that scenic overlays will be reviewed.
Commissioner Melton asked about item H, economic development and housing,
she views transit and transportation as separate items; public transportation as
well as infrastructure. Also, in regard to wind power and other energy
producing possibilities, she asked how they will be handled in relation to views.
Mr. Payne said these are big picture issues. The comprehensive plan is general
policies, but the specifics are handled though Code, balancing viewshed issues
with advantages of technology and circumstances. Mr. Gutwosky added that
destination resort remapping is an issue; the comprehensive plan provides the
framework for developing goals and policies.
Tony Aceti stated that he has valuable information from 2006 from various
attorneys in the Portland area. He specifically addressed Deschutes Junction.
Some of the information relates to LUBA decisions. He added that productive
farmland is a big issue; commercial farming is not feasible on a small scale and
even if a parcel has water rights, no profit is possible. He asked that he be a
part of the stakeholder group to provide input on the development of the
comprehensive plan update. (get a copy of his handout). He said he represents
about ten owners in the Deschutes Junction area.
Commissioner Melton asked how stakeholder groups would be defined and
formed. Ms. Payne stated that she has talked with various people in
Terrebonne, Tumalo and other areas that have a specific interest in this issue.
Also, there are organizations such as builders and Realtors who will be invited
to provide input.
Commissioner Melton said it is her understanding that the Planning
Commission is the general stakeholder that would be providing guidance, with
people from various areas becoming involved as things progress. Ms. Payne
agreed.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 3 of 15 Pages
Commissioner Luke said that he is glad that this is being addressed.
Commissioner Melton agreed and appreciates the fact that this is being tackled
even in view some difficult economic times.
4. Before the Board was Consideration of Signature of Resolution No. 2008-
104, Adopting the Proposed Deschutes County Fee Schedule for Fiscal
Year 2007-08.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
5. Before the Board was a Public Hearing on the Deschutes County Budget
for Fiscal Year 2008-09.
Chair Luke opened the public hearing. Terri Maerki and Marty Wynne
explained that there have been various changed to several funds.
Commissioner Melton asked if the domestic violence program position would
be used for just this purpose. Dave Kanner said that this is the direction given,
and anyone taking the job is not assured of a position forever, depending on
funding aspects.
Ms. Maerki then went over a few more transfers and changes.
6. Before the Board was Consideration of Signature of Resolution No. 2008-
089, Adopting the Fiscal Year 2008-09 Deschutes County Budget.
Mr. Wynne said that there are a few budget items that are being considered
further, due to changes in the economy and Measure 50 issues.
This item will be addressed at the June 30 business meeting.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 4 of 15 Pages
7. Before the Board was Consideration of Signature of Resolution No. 2008-
090, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Deschutes County Budget for Fiscal Year 2008-09.
This item will be addressed at the June 30 business meeting.
CONVENED AS THE GOVERNING BODY OF THE 911 COUNTY
SERVICE DISTRICT
8. Before the Board was Consideration of Signature of Resolution No. 2008-
103, Adopting the Proposed Deschutes County 911 County Fee Schedule
for Fiscal Year 2008-09.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
9. Before the Board was a Public Hearing on the 911 County Service District
Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony presented, he
closed the hearing.
10. Before the Board was Consideration of Signature of Resolution No. 2008-
071, Adopting the Fiscal Year 2008-09 Budget for the 911 County Service
District.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 5 of 15 Pages
11. Before the Board was Consideration of Signature of Resolution No. 2008-
072, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the 911 County Service District Budget for Fiscal Year
2008-09.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
CONVENED AS THE GOVERNING BODY OF THE EXTENSION AND 4-
H COUNTY SERVICE DISTRICT
12. Before the Board was a Public Hearing on the Deschutes County Extension
and 4-H Service District Budget for Fiscal Year 2008-09.
Chair Luke opened the hearing, and said that it appears some miscellaneous
fees are charged, and therefore a hearing on a fee schedule needs to be held.
This item will be addressed at the June 30 business meeting.
13. Before the Board was Consideration of Signature of Resolution No. 2008-
077, Adopting the Fiscal Year 2008-09 Budget for the Deschutes County
Extension and 4-H Service District.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
14. Before the Board was Consideration of Signature of Resolution No. 2008-
078, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Deschutes County Extension and 4-H Service
District Budget for Fiscal Year 2008-09.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 6 of 15 Pages
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
CONVENED AS THE GOVERNING BODY OF THE SUNRIVER
SERVICE DISTRICT
15. Before the Board was Consideration of Signature of Resolution No. 2008-
057, Transferring Funds from the Operating Fund to the Capital Reserve
Fund.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
16. Before the Board was Consideration of Signature of Resolution No. 2008-
058, Transferring Funds within the Operating Fund.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
17. Before the Board was Consideration of Signature of Resolution No. 2008-
059, Authorizing the Operating Fund to Borrow from the Reserve Fund.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 7 of 15 Pages
18. Before the Board was Consideration of Signature of Resolution No. 2008-
060, Transferring Funds within the Reserve Fund.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
19. Before the Board was Consideration of Signature of Resolution No. 2008-
107, Adopting the Proposed Sunriver Service District Fee Schedule for
Fiscal Year 2008-09.
Tom Gunn, member of the Sunriver Service District board, said that there were
no changes since the hearing.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
20. Before the Board was a Public Hearing on the Sunriver Service District
Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony presented, he
closed the hearing.
21. Before the Board was Consideration of Signature of Resolution No. 2008-
075, Adopting the Fiscal Year 2008-09 Budget for the Sunriver Service
District.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 8 of 15 Pages
22. Before the Board was Consideration of Signature of Resolution No. 2008-
076, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Sunriver Service District Budget for Fiscal Year
2008-09.
Mr. Gunn stated that the amount went up approximately $.03, which is well
below the maximum rate.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
CONVENED AS THE GOVERNING BODY OF THE BEND LIBRARY
COUNTY SERVICE DISTRICT
23. Before the Board was a Public Hearing on the Bend Library Service
District Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony presented, he
closed the hearing.
24. Before the Board was Consideration of Signature of Resolution No. 2008-
079, Adopting the Fiscal Year 2008-09 Budget for the Bend Library
County Service District.
This item will be addressed at the June 30 business meeting.
25. Before the Board was Consideration of Signature of Resolution No. 2008-
080, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Bend Library County Service District Budget for
Fiscal Year 2008-09.
This item will be addressed at the June 30 business meeting.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 9 of 15 Pages
CONVENED AS THE GOVERNING BODY OF THE REDMOND
LIBRARY COUNTY SERVICE DISTRICT
26. Before the Board was a Public Hearing on the Redmond Library County
Service District Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony presented, he
closed the hearing.
27. Before the Board was Consideration of Signature of Resolution No. 2008-
081, Adopting the Fiscal Year 2008-09 Budget for the Redmond Library
County Service District.
This item will be addressed at the June 30 business meeting.
28. Before the Board was Consideration of Signature of Resolution No. 2008-
082, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Redmond Library Service District Budget for Fiscal
Year 2008-09.
This item will be addressed at the June 30 business meeting.
CONVENED AS THE GOVERNING BODY OF THE SUNRIVER
LIBRARY COUNTY SERVICE DISTRICT
29. Before the Board was a Public Hearing on the Sunriver Library County
Service District Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony offered, he closed
the hearing.
30. Before the Board was Consideration of Signature of Resolution No. 2008-
083, Adopting the Fiscal Year 2008-09 Budget for the Sunriver Library
County Service District (District 2).
This item will be addressed at the June 30 business meeting.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 10 of 15 Pages
31. Before the Board was Consideration of Signature of Resolution No. 2008-
084, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Sunriver Library County Service District Budget for
Fiscal Year 2008-09.
This item will be addressed at the June 30 business meeting.
CONVENED AS THE GOVERNING BODY OF THE BLACK BUTTE
RANCH COUNTY SERVICE DISTRICT
32. Before the Board was Consideration of Signature of Resolution No. 2008-
108, Adopting the Proposed Black Butte Ranch County Service District Fee
Schedule for Fiscal Year 2008-09.
DALY: Move approval.
MELTON: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
33. Before the Board was a Public Hearing on the Black Butte Ranch County
Service District Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony presented, he
closed the hearing.
34. Before the Board was Consideration of Signature of Resolution No. 2008-
073, Adopting the Fiscal Year 2008-09 Budget for Black Butte Ranch
County Service District.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 11 of 15 Pages
35. Before the Board was Consideration of Signature of Resolution No. 2008-
074, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Black Butte Ranch County Service District Budget
for Fiscal Year 2008.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
CONVENED AS THE COUNTYWIDE LAW ENFORCEMENT DISTRICT
(DISTRICT 1)
36. Before the Board was Consideration of Signature of Resolution No. 2008-
105, Adopting the Proposed Countywide Law Enforcement Service District
(District 1) Fee Schedule for Fiscal Year 2008-09.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
37. Before the Board was a Public Hearing on the Countywide Law
Enforcement Service District (District 1) Budget for Fiscal Year 2008-09.
Commissioner Luke opened the hearing; being no testimony presented, he
closed the hearing.
38. Before the Board was Consideration of Signature of Resolution No. 2008-
085, Adopting the Fiscal Year 2008-09 Budget for the Countywide Law
Enforcement Service District (District 1).
MELTON: Move approval.
DALY: Second.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 12 of 15 Pages
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
39. Before the Board was Consideration of Signature of Resolution No. 2008-
086, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Countywide Law Enforcement Service District
(District 1) Budget for Fiscal Year 2008.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
CONVENED AS THE RURAL LAW ENFORCEMENT SERVICE
DISTRICT (DISTRICT 2)
40. Before the Board was Consideration of Signature of Resolution No. 2008-
106, Adopting the Proposed Rural Law Enforcement Service District
(District 2) Fee Schedule for Fiscal Year 2008-09.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
41. Before the Board was a Public Hearing on the Deschutes County Rural
Law Enforcement Service District (District 2) Budget for Fiscal Year 2008-
09.
Commissioner Luke opened the hearing; being no testimony offered, he closed
the hearing.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 13 of 15 Pages
42. Before the Board was Consideration of Signature of Resolution No. 2008-
087, Adopting the Fiscal Year 2008-09 Budget for the Rural Law
Enforcement Service District (District 2).
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
43. Before the Board was Consideration of Signature of Resolution No. 2008-
088, Levying Ad Valorem Taxes for the 2008-09 Fiscal Year and Making
Appropriations of the Rural Law Enforcement Service District (District 2)
Budget for Fiscal Year 2008-09.
MELTON: Move approval.
DALY: Second.
VOTE: MELTON: Yes.
DALY: Yes.
LUKE: Chair votes yes.
RECONVENED AS THE DESCHUTES COUNTY BOARD OF
COMMISSIONERS
44. ADDITIONS TO THE AGENDA
None were offered.
Being no further items to come before the Board, Chair Luke adjourned the
meeting at 11:30 a. m.
DATED this 23rd Day of June 2008 for the Deschutes County Board of
Commissioners.
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 14 of 15 Pages
De is R. Luke, hair
cAn~~ ~
Tammy Baney, Vic air
ATTEST:
Recording Secretary
Minutes of Board of Commissioners' Business Meeting Monday, June 23, 2008
Page 15 of 15 Pages
Changes to Approved Budget
I Deschutes County Budget FY 2008-09 I Approved I Change to Change to Revised
Budget Resources Appropriations Budget Explanation
General Fund-Non Departmental
Transfers Out-Mental Health (275) 54,608 25,000 79,608 Pilot Program
Contingency 5,980,100 (25,000) 5,955,100 Support for 1 year provided by Gen] Fund
Total General Fund Change _
Revised General Fund Requirements 31,400 261 31,400,261 1
Transfers In-General Fund (Other) 54,608 25,000 79,608
Personnel Services-Extra Help plus benefits 8,338,297 - 25,000 8,363,297 Interns for Seniors Program
Total Mental Health Change 25,000 25,000
Revised Mental Health Fund Requirements 14,330,230 25,000 14,355,2W
Materials & Services-EDCO Grants/Contributions 100,000 10,000 110,000 Increase in budgeted support for EDCO
Contingency 15,005 (10,000) 5,005
Total Video Lottery Change _ _
Revised Video Lottery Fund Requirements 790,000 790 000 1
General Fund-Non Departmental
Materials & Services (Public Information) -
Contingency (Revised) 5,955,100
Total General Fund Change
Revised General Fund Requirements 31,400,261
40,000 40,000 Adds back two new segments and two
(40,000) 5,915,100 recycled segments per month.
31,400,2611
Beginning Net Working Capital 200,000 80,000 280,000 Two Capital Projects, Justice Center
Capital Outlay (Building Remodel) 90,000 - 80,000 170,000 Sealant and Skylight, will not be completed
in FY 07-08
Total Building Services Change 80,000 80,000
Revised Building Svcs Fund Requirements 2,895,268 80,000 2,975,268 1
Materials & Services (Fees & Permits) 10,000 10,000 Fee associated with Low or No Cost Food
Provider
Contingency 5,915,100 (10,000) 5,905,100
Total General Fund Change
Revised General Fund Requirements 311400,261 - 31 400 261 1
Beginning Net Working Capital
547,000 116,144
663,144 Revised estimate based on current data
Personnel Services
3,123,658
72,791
3,196,449 Add one Parole & Probation Officer
Contingency
458,061 -
43,353
501,414 Increased by balance of BNWC
Total Parole & Probation Fund Change
116,144
116,144
Revised Parole & Prob Fund Requirements
4,274,078
116,144
4,390,222
Changes to Approved Budget
Deschutes County Budget FY 2008-09
Approved
Change to
Change to
Revised
Budget
Resources
Appropriations
Budget
Explanation
CDD Transfers from Reserve Funds
CDD Reserve
Beginning Net Working Capital
2,459,111
(15,000)
2,444,111 Adjust to estimated net working capital
Transfers Out-Community Development (295)
2,024,977
457,134
2,482,111 Increase transfer out to operations
Contingency
472,134
(472,134)
- Move to transfer out category
Total CDD Reserve Fund Change
(15,000)
(15,000)
Revised CDD Reserve Fund Requirements
2,497,111
(15,000)
2,482,111 ;
Beginning Net Working Capital
2,052,856
(118,000)
1,934,856 Adjust to estimated net working capital
Transfers Out-Community Development (295)
1,541,268
435,388
1,976,656 Increase transfer out to operations
Contingency
553,388
(553,388)
- Move to transfer out category
Total CDD Bldg Prgm Reserve Fund Change
(118,000) (118,000)
Revised CDD Bldg Prgm Res Fund Requiremnts
2,094,856
(118,000)
1,976,856
Beginning Net Working Capital
166,269
110,000
276,269 Adjust to estimated net working capital
Transfers Out-Community Development (295)
100,604
180,465
281,069 Increase transfer out to operations
Contingency
20,465
(20,465)
- Move to transfer out category
Unappropriated Ending Fund Balance
50,000
- (50,000)
- Move to transfer out category
Total CDD Elec Bldg Prgm Reserve Fund Change
110,000 110,000
Revised CDD Elec Prgm Res Fund Requiremnts
171,269
110,000
281,2691
Beginning Net Working Capital
(1,877,224)
(900,000)
(2,777,224) Adjust to estimated net working capital
Transfers In (CDD Reserve Fund)
2,024,977
457,134
2,482,111
Increase from reserve fund
Transfers In (CDD Bldg Reserve Fund)
1,541,268
435,388
1,976,656
Increase from reserve fund
Transfers In (CDD Electrical Reserve Fund)
100,604
180,465
281,069
Increase from reserve fund
Materials & Services
1,774,169
(12,898)
1,761,271
Indirect Charges-Reallocation Adjustment
Contingency
697,895
185,885
883,780
Net change to contingency
Total CDD Fund Change
172,987
172,987
345,974
Revised CDD Fund Requiremnts
8,409,101
172,987
8,582,68-8 1
Approved Budget FY 08-09
300,390,592
Board approved budget changes
371,131
Net budget total with budget changes
300,761,723
Changes to Approved Budget
Redmond Library County Service District
Unappropriated Ending Fund Balance
Total Redmond Library CSD Fund Change
Revised Fund
Approved I Change to I Change to
Budget Resources Appropriatioi
4,000 5,000
5,000 5,000
Revised
9,000 and total budget required to levy
Board approved budget changes
Pending budget changes
Net budget total with approved and pending budget changes
5,000
194,000
IF YOU WISH TO TESTIFY
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Please reply to WILLIAM K. KABEISEMAN
billkab®gsblaw.COM TEL EXT 3231
October 20, 2006
Tony Aced
Hay Depot
21235 Tumalo Road
Bend, OR 97701
Re: Deschutes Junction Unincorporated Community
Dear Tony:
You asked me to set out the justification for pursuing the designation of an unincorporated
community for Deschutes Junction. This letter will explain how such a designation is possible. I would
note that, simply because it is feasible, does not mean it will be easy. Any unincorporated community
will require that certain matters, discussed below, must be justified. Moreover, it is within the County's
discretion to determine whether to recognize. the unincorporated community and, if so, what property
should be included within the boundaries of the community. Pursuing such a designation appears to be
feasible under the current law and administrative rules, but is by no means a given. With those caveats
in mind, what follows is an explanation of one way such a designation could occur.
Unincorporated communities are lands outside any city's urban growth boundary, but which
includes a concentration of lands subject to an exception to Goals 3 or 4, and meet certain additional
requirements. The Oregon Land Conservation and Development Commission (LCDC) adopted OAR
Division 660-022, 41so known as the "Unincorporated Communities Rule," to govern how counties may
deal with such communities. - (A copy of the rule is attached.) The purpose of that administrative rule is
to
"Establish a statewide policy for the planning and zoning of unincorporated communities
that recognizes the importance of communities in rural Oregon. It is intended to expedite
the planning process for counties by reducing their need to take exceptions to statewide
planning goals when planning and zoning unincorporated communities." OAR 660-022-
0000.
The rule requires counties to "designate and identify unincorporated communities in accordance with the
definitions" in the rule. OAR 660-022-0010. Significantly, the rules note that ``counties may amend
these designations as circumstances change over time."
0
G A R V E Y S C H U 8 E R T 8 A R E R Tony Aceti
October 20, 2006
Page 2
It appears that the. 1979 Deschutes County Comprehensive Plan identified Deschutes Junction as
one of several "rural service centers" in the County. The area does contain many exception areas,
including residential, industrial and other uses.
The County updated its Comprehensive Plan in 2002 and, at that time, implemented the
Unincorporated Communities Rule and identified several areas that it would treat as unincorporated
communities. The list of such communities did not include Deschutes Junction; instead, the County
stated that the area "did not meet the criteria of any of the four types of unincorporated communities."
Therefore, the County did not change the zoning for Deschutes Junction.
Z* However, there is nothing in the state administrative rule or the local comprehensive plan that
prevents the County from re-examining that conclusion. In fact, LUBA has clearly indicated that cities
and counties can re-examine the exact same issues in multiple cases. See Lawrence v. Claclamas
County, 180 Or App 495,43 P3d 1192 (2002) (A copy of that decision is attached). In fact, as noted
above, the Unincorporated Communities Rule exlicitly contemplates that counties will amend their
designated communities from time to time.
If Deschutes County wishes to re-examine the designation of Deschutes Junction, a case can be
made that Deschutes Junction qualifies as a rural service center. OAR 660-022-0010 defines an
Unincorporated Community as follows:
(10) "Unincorporated Community" means a settlement with all of the following
characteristics:
(a) It is made up primarily of lands subject to an exception to Statewide Planning
Goal 3, Goal 4 or both;
(b) It was either identified in a county's acknowledged comprehensive plan as a
"rural community", "service center", "rural center", "resort community", or
similar term before this division was adopted (October 28, 1994), or it is listed in
the Department of Land Conservation and Development's January 30, 1997
"Survey of Oregon's Unincorporated Communities";
(c) It lies outside the urban growth boundary of any. city;
(d) It is not incorporated as a city, and
(e) It met the definition of one of the four types of unincorporated communities in
sections (6) through (9) of this rule, and included the uses described in those
definitions, prior to the adoption of this division (October 28, 1994).
Es
y G A R V E Y S C H U B E R T B A R E R Tony Aced
October 20, 2006
Page 3
As discussed above, the area has a concentration of lands subject to Goal exceptions. There are several
industrial sites in the area and, in addition, there are several large rural residential areas in the immediate
vicinity. Therefore, it meets subsection (a) above. In addition, as noted above, Deschutes Junction was
identified as a "service center" in the 1979 Deschutes County Comprehensive Plan, so subsection (b) is
satisfied. Deschutes Junction is clearly outside any urban growth boundary and is not incorporated as a
city; therefore, subsections (c) and (d) are met. Finally, given the uses in the area, Deschutes Junction
likely meets the definition of either a "rural service center" in subsection (8) or a "rural community" in
subsection In fact, given the large number of rural residential developments in the area, Deschutes
unction could also qualify as an "urban unincorporated community" under subsection (9).
In short, although Deschutes County has already implemented the Unincorporated Communities
Rule when it went through periodic review in 2002, nothing prevents, and in fact the rules encourage,
counties from re-assessing the status of unincorporated communities.
I hope this adequately answers your preliminary questions about Deschutes Junction and the
Unincorporated Communities Rule. If you have any questions, please do not hesitate to contact me.
Sincerely,
GARVEY SCHUBERT BARER
By
William K. Kabeiseman
Attachments
cc: Greg Winterowd
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Deschutes County Board of Commissioners
1300 NW Wall St., Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.ora
BUSINESS MEETING AGENDA
DESCHUTES COUNTY BOARD OF COMMISSIONERS
10:00 A.M., MONDAY, JUNE 23, 2008
Commissioners' Hearing Room - Administration Building - 1300 NW Wall St., Bend
1. CITIZEN INPUT
This is the time provided for individuals wishing to address the Board, at the Board's
discretion, regarding issues that are not already on the agenda. Citizens who wish to speak
should sign up prior to the beginning of the meeting on the sign-up cards provided. Please
use the microphone and also state your name and address at the time the Board calls on you
to speak. PLEASE NOTE: Citizen input regarding matters that are or have been the subject
of a public hearing will NOT be included in the record of that hearing.
2. CONSIDERATION of Signature of Document No. 2008-131, an
Intergovernmental Agreement to Provide Building Inspection Services to Lake
County - Tom Anderson, Community Development
3. DISCUSSION of the Deschutes County Comprehensive Plan Update Work
Program - Terri Hansen Payne, Peter Gutowsky, Peter Russell & Kristen Maze,
Community Development Department
4. CONSIDERATION of Signature of Resolution No. 2008-104, Adopting the
Proposed Deschutes County Fee Schedule for Fiscal Year 2007-08 - Marty
Wynne, Finance
5. A PUBLIC HEARING on the Deschutes County Budget for Fiscal Year 2008-
09 - Marty Wynne, Finance Department
6. CONSIDERATION of Signature of Resolution No. 2008-089, Adopting the
Fiscal Year 2008-09 Deschutes County Budget - Marty Wynne, Finance
Department
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 1 of 11 Pages
7. CONSIDERATION of Signature of Resolution No. 2008-090, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Deschutes County Budget for Fiscal Year 2008-09 - Marty Wynne, Finance
Department
CONVENE AS THE GOVERNING BODY OF THE 911 COUNTY SERVICE
DISTRICT
8. CONSIDERATION of Signature of Resolution No. 2008-103, Adopting the
Proposed Deschutes County 911 County Fee Schedule for Fiscal Year 2008-09
- Marty Wynne, Finance Department
9. A PUBLIC HEARING on the 911 County Service District Budget for Fiscal
Year 2008-09 - Marty Wynne, Finance Department
10. CONSIDERATION of Signature of Resolution No. 2008-071, Adopting the
Fiscal Year 2008-09 Budget for the 911 County Service District - Marty
Wynne, Finance Department
11. CONSIDERATION of Signature of Resolution No. 2008-072, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
911 County Service District Budget for Fiscal Year 2008-09 - Marty Wynne,
Finance Department
CONVENE AS THE GOVERNING BODY OF THE EXTENSION AND 4-H
COUNTY SERVICE DISTRICT
12. A PUBLIC HEARING on the Deschutes County Extension and 4-H Service
District Budget for Fiscal Year 2008-09 - Marty Wynne, Finance Department
13. CONSIDERATION of Signature of Resolution No. 2008-077, Adopting the
Fiscal Year 2008-09 Budget for the Deschutes County Extension and 4-H
Service District - Marty Wynne, Finance Department
14. CONSIDERATION of Signature of Resolution No. 2008-078, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Deschutes County Extension and 4-H Service District Budget for Fiscal Year
2008-09 -Marty Wynne, Finance Department
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 2 of 11 Pages
CONVENE AS THE GOVERNING BODY OF THE SUNRIVER SERVICE
DISTRICT
15. CONSIDERATION of Signature of Resolution No. 2008-057, Transferring
Funds from the Operating Fund to the Capital Reserve Fund - Sharon R. Smith,
for Sunriver Service District
16. CONSIDERATION of Signature of Resolution No. 2008-058, Transferring
Funds within the Operating Fund - Sharon R. Smith, for Sunriver Service
District
17. CONSIDERATION of Signature of Resolution No. 2008-059, Authorizing
the Operating Fund to Borrow from the Reserve Fund - Sharon R. Smith, for
Sunriver Service District
18. CONSIDERATION of Signature of Resolution No. 2008-060, Transferring
Funds within the Reserve Fund - Sharon R. Smith, for Sunriver Service District
19. CONSIDERATION of Signature of Resolution No. 2008-107, Adopting the
Proposed Sunriver Service District Fee Schedule for Fiscal Year 2008-09 -
Marty Wynne, Finance Department
20. A PUBLIC HEARING on the Sunriver Service District Budget for Fiscal
Year 2008-09 - Marty Wynne, Finance Department
21. CONSIDERATION of Signature of Resolution No. 2008-075, Adopting the
Fiscal Year 2008-09 Budget for the Sunriver Service District - Marty Wynne,
Finance Department
22. CONSIDERATION of Signature of Resolution No. 2008-076, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Sunriver Service District (District 2) Budget for Fiscal Year 2008-09 - Marty
Wynne, Finance Department
CONVENE AS THE GOVERNING BODY OF THE BEND LIBRARY
COUNTY SERVICE DISTRICT
23. A PUBLIC HEARING on the Bend Library Service District Budget for Fiscal
Year 2008-09 - Marty Wynne, Finance Department
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 3 of 11 Pages
24. CONSIDERATION of Signature of Resolution No. 2008-079, Adopting the
Fiscal Year 2008-09 Budget for the Bend Library County Service District -
Marty Wynne, Finance Department
25. CONSIDERATION of Signature of Resolution No. 2008-080, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Bend Library County Service District Budget for Fiscal Year 2008-09 - Marty
Wynne, Finance Department
CONVENE AS THE GOVERNING BODY OF THE REDMOND LIBRARY
COUNTY SERVICE DISTRICT
26. A PUBLIC HEARING on the Redmond Library County Service District
Budget for Fiscal Year 2008-09 - Marty Wynne, Finance Department
27. CONSIDERATION of Signature of Resolution No. 2008-081, Adopting the
Fiscal Year 2008-09 Budget for the Redmond Library County Service District -
Marty Wynne, Finance Department
28. CONSIDERATION of Signature of Resolution No. 2008-082, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Redmond Library Service District Budget for Fiscal Year 2008-09 - Marty
Wynne, Finance Department
CONVENE AS THE GOVERNING BODY OF THE SUNRIVER LIBRARY
COUNTY SERVICE DISTRICT
29. A PUBLIC HEARING on the Sunriver Library County Service District
Budget for Fiscal Year 2008-09 - Marty Wynne, Finance Department
30. CONSIDERATION of Signature of Resolution No. 2008-083, Adopting the
Fiscal Year 2008-09 Budget for the Sunriver Library County Service District
(District 2) - Marty Wynne, Finance Department
31. CONSIDERATION of Signature of Resolution No. 2008-084, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Sunriver Library County Service District Budget for Fiscal Year 2008-09 -
Marty Wynne, Finance Department
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 4 of 11 Pages
CONVENE AS THE GOVERNING BODY OF THE BLACK BUTTE
RANCH COUNTY SERVICE DISTRICT
32. CONSIDERATION of Signature of Resolution No. 2008-108, Adopting the
Proposed Black Butte Ranch County Service District Fee Schedule for Fiscal
Year 2007-08 - Marty Wynne, Finance
33. A PUBLIC HEARING on the Black Butte Ranch County Service District
Budget for Fiscal Year 2008-09 - Marty Wynne, Finance Department
34. CONSIDERATION of Signature of Resolution No. 2008-073, Adopting the
Fiscal Year 2008-09 Budget for Black Butte Ranch County Service District -
Marty Wynne, Finance Department
35. CONSIDERATION of Signature of Resolution No. 2008-074, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Black Butte Ranch County Service District Budget for Fiscal Year 2008-09 -
Marty Wynne, Finance Department
CONVENE AS THE COUNTYWIDE LAW ENFORCEMENT DISTRICT
(DISTRICT 1)
36. CONSIDERATION of Signature of Resolution No. 2008-105, Adopting the
Proposed Countywide Law Enforcement Service District (District 1) Fee
Schedule for Fiscal Year 2007-08 - Marty Wynne, Finance
37. A PUBLIC HEARING on the Countywide Law Enforcement Service District
(District 1) Budget for Fiscal Year 2008-09 - Marty Wynne, Finance
Department
38. CONSIDERATION of Signature of Resolution No. 2008-085, Adopting the
Fiscal Year 2008-09 Budget for the Countywide Enforcement Service District
(District 2) - Marty Wynne, Finance Department
39. CONSIDERATION of Signature of Resolution No. 2008-086, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Countywide Law Enforcement Service District (District 1) Budget for Fiscal
Year 2008-09 - Marty Wynne, Finance Department
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 5 of 11 Pages
CONVENE AS THE RURAL LAW ENFORCEMENT SERVICE DISTRICT
(DISTRICT 2)
40. CONSIDERATION of Signature of Resolution No. 2008-106, Adopting the
Proposed Rural Law Enforcement Service District (District 2) Fee Schedule for
Fiscal Year 2007-08 - Marty Wynne, Finance
41. A PUBLIC HEARING on the Deschutes County Rural Law Enforcement
Service District (District 2) Budget for Fiscal Year 2008-09 - Marty Wynne,
Finance Department
42. CONSIDERATION of Signature of Resolution No. 2008-087, Adopting the
Fiscal Year 2008-09 Budget for the Rural Law Enforcement Service District
(District 2) - Marty Wynne, Finance Department
43. CONSIDERATION of Signature of Resolution No. 2008-088, Levying Ad
Valorem Taxes for the 2008-09 Fiscal Year and Making Appropriations of the
Rural Law Enforcement Service District (District 2) Budget for Fiscal Year
2008-09 - Marty Wynne, Finance Department
RECONVENE AS THE DESCHUTES COUNTY BOARD OF
COMMISSIONERS
44. ADDITIONS TO THE AGENDA
Deschutes County meeting locations are wheelchair accessible.
Deschutes County provides reasonable accommodations for persons with disabilities.
For deaf, hearing impaired or speech disabled, dial 7-1-1 to access the state transfer relay service for TTY.
Please call (541) 388-6571 regarding alternative formats or for further information.
FUTURE MEETINGS:
(Please note: Meeting dates and times are subject to change. All meetings take place in the Board of
Commissioners' meeting rooms at 1300 NW Wall St., Bend, unless otherwise indicated. If you have questions
regarding a meeting, please call 388-6572)
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 6 of 11 Pages
Monday, June 23, 2008
10:00 a.m. Board of Commissioners' Meeting - Includes Budget Hearings, and Adoption of
Fees and Budget
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, June 25, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, June 26, 2008
9:00 a.m. Quarterly Update - Fair & Expo Center
11:00 a.m. Quarterly Update - Commission on Children & Families
Monday, June 30, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
5:00 p.m. Joint Meeting with the City of La Pine Council, in La Pine
Wednesday, July 2, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, July 3, 2008
8:00 a.m. Regular Meeting with the City of Sisters Council, in Sisters
Friday, July 4, 2008
Most County offices will be closed to observe the July 4rh Holiday
Monday, July 7, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
3:30 p.m. Regular Meeting of LPSCC (Local Public Safety Coordinating Council)
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 7 of 11 Pages
Tuesday, July 8, 2008
11:00 a.m. Commission on Children & Families' Interviews
Wednesday, July 9, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, July 10, 2008
7:00 a.m. Regular Meeting with the City of Redmond Council, in Redmond
12:00 noon Audit Committee Meeting
Wednesday, July 16, 2008
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, July 17, 2008
2:00 p.m. Joint Meeting of Commissioners and Fair Board, at Fair/Expo Center
Monday, July 21, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, July 23, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, July 28, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 8 of 11 Pages
Wednesday, July 30, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday gust 4, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
3:30 p.m. Regular Meeting of LPSCC (Local Public Safety Coordinating Council)
Wednesday, August 6, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, August 13, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monda,AAugust 18, 2008
10:00 a.m. Board of Commissioners' Meeting
12 noon Regular Meeting of Board of Commissioners and Department Directors
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, August 20, 2008
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, August 25, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, August 27, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 9 of 11 Pages
Monday, September 1, 2008
Most County offices will be closed to observe the Labor Day Holiday
Wednesday, September 3, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, September 4, 2008
10:00 a.m. Quarterly Meeting with District Attorney
11:00 a.m. Quarterly Meeting with Community Development Department
1:30 p.m. Quarterly Meeting with the Road Department
Monday, September 8, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
3:30 p.m. Regular Meeting of LPSCC (Local Public Safety Coordinating Council)
Wednesday, September 10, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, September 11, 2008
7:00 a.m. Regular Meeting with the City of Redmond Council, in Redmond
11:00 a.m. Quarterly Meeting with Mental Health Department
1:00 P.M. Quarterly Meeting with Health Department
Wednesday, September 15, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 10 of 11 Pages
Thursday, September 17, 2008
8:00 a.m. Public Affairs Counsel Conference Call - Legislative Update
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, September 18, 2008
9:00 a.m. Semi-annual Meeting with the County Clerk
10:00 a.m. Quarterly Meeting with Community Justice
Monday, September 22, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, September 24, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, September 25, 2008
9:00 a.m. Quarterly Meeting with Fair & Expo Center
10:00 a.m. Semi-annual Meeting with Assessor
11:00 a.m. Quarterly Meeting with Commission on Children & Families
Monday, September 29, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, October 1, 2008
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, October 2, 2008
9:00 a.m. Regular Bi-monthly Meeting with Congressional Staff
Board of Commissioners' Business Meeting Agenda Monday, June 23, 2008
Page 11 of 11 Pages
G
wg
Deschutes County Board of Commissioners
1300 NW Wall St., Suite 200, Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org
AGENDA REQUEST & STAFF REPORT
For Board Business Meeting of Monday, June 23, 2008
Please see directions for completing this document on the next page.
DATE: 6-17-08
FROM: Terri Hansen Payne CDD 385-1404
TITLE OF AGENDA ITEM:
Discussion of the comprehensive plan update work program.
PUBLIC HEARING ON THIS DATE? No
BACKGROUND AND POLICY IMPLICATIONS:
Long Range Planning Staff are initiating an update of the Deschutes County Comprehensive Plan. This
document provides a blueprint for growth and conservation for the next twenty years. This update is
anticipated to take up to 2 years and to involve discussions on a variety of general topics, such as rural
land use as well as specific discussions of areas such as Terrebonne and Tumalo that are experiencing
growth. This work session is to introduce the comprehensive plan work plan and draft website.
FISCAL IMPLICATIONS:
None
RECOMMENDATION & ACTION REOUESTED:
Discuss and provide direction on the comprehensive plan work program.
ATTENDANCE: Terri Hansen Payne, Peter Gutowsky, Peter Russell, Kristen Maze
DISTRIBUTION OF DOCUMENTS:
N/A
Community Development Department
Planning Division Building Safety Division Environmental Health Division
117 NW Lafayette Avenue Bend Oregon 97701-1925
(541)388-6575 FAX(541)385-1764
http://www.co.deschutes.or.us/cdd/
MEMORANDUM # 1
TO: Deschutes County Board of County Commissioners
FROM: Terri Hansen Payne, Senior Planner and Long Range Planning Staff
DATE: June 17, 2008
MEETING: June 23, 2008
SUBJECT: Comprehensive Plan Update Work Plan
BACKGROUND
A comprehensive plan consists of a theme and narratives, together with goals and policies, that
provide a cohesive and comprehensive blueprint for future development and conservation. The
text, goals and policies are based on a combination of community input and an analysis of
existing conditions and future trends. Once the goals and policies are adopted, they are
implemented through tools such as zoning codes or subdivision ordinances. All goals and
policies adopted by the Board of County Commissioners must be in compliance with Statewide
Planning Goals.
The Deschutes County Comprehensive Plan was written in 1979 and has been updated in a
piecemeal fashion since that time. Generally plans are intended to cover a timeline of 15-20
years but are often updated more frequently, so that they continue to reflect changing
community values and to provide guidance on complex land use issues.
The major updates to the County plan occurred during State mandated Periodic Review, which
lasted from 1988-2003. During that time, the County incorporated amendments required by
changes to State Statute, Statewide Planning Goals and State Plans (from other State
agencies). Additionally, the County looked at amendments needed to address changes in local
circumstances. Many of these amendments to the plan were major, but narrowly focused on the
specific items, such as the unincorporated communities.
Overall, the Periodic Review changes did not coordinate with the comprehensive plan as a
whole. The narrowness of the amendments has led to a fragmented plan of various dates that
does not provide a cohesive and comprehensive guide to land use. Consequently, staff is
initiating a process to create a new comprehensive plan. This memo is intended to provide an
initial look at the proposed work plan.
WHY THIS MATTERS
Deschutes County faces many new land use challenges, particularly on how to determine
appropriate land uses in rural areas.
Quality Services Performed with Pride
Comprehensive Plan Memo # 1
Deschutes County is one of the fastest growing counties in the country, with 90,000 new
residents anticipated by 2025. The new growth raises questions of where and what kind of new
development is appropriate. Because growth is managed in large part by State land use
regulations, the focus of many recent discussions on rural land use has centered around rural
development that is sanctioned by the State, specifically destination resorts. Members of the
community have raised concerns over how to objectively assess resort impacts and benefits.
The other side of the discussion is the question of whether there are lands that are important
enough to need conservation, and if so, how can those lands be equitably preserved as rural
reserves.
For the County, a community-wide discussion of rural lands, including general discussions of
what type of growth is appropriate and where, as well as more specific discussions of
destination resorts and rural reserves, will allow the County to create goals and policies that will
shape rural land use over the next twenty years.
An updated Comprehensive Plan would better reflect current community land use values.
Oregon's land use system was widely debated in the 1970s. Since that time the State has
added many new residents who did not participate in the previous discussions and who
consequently do not really understand or have a stake in the current system. Additionally there
are people who do not agree with the decisions made in the 1970s or who believe the system
has evolved in the wrong direction. In response, the State initiated a Task Force on Land Use
(Big Look) to rethink the state-wide land use program.
The Big Look is mandated to provide the 2009 Legislature with input on potential amendments
to State land use law. Exactly what will come from the work of the Big Look is hard to predict,
but this summer, the Big Look will be leading a state-wide discussion on land use. Their
discussion will provide a good background for local discussions on land use. Engaging the
community does not guarantee everyone will be happy with decisions made, but will assist in
creating plan policies that reflect current community values.
The Comprehensive Plan is the policy document behind our more specific land use regulations.
A comprehensive plan outlines general goals and policies based on community interests. Those
goals and policies are then translated into action through specific zoning and other regulations.
In current planning, if a project meets the specific regulations required it will be approved. The
place to influence land use regulations is in the policy discussions of the comprehensive plan.
PROCESS CONCEPTS AND OVERVIEW
Creating a new comprehensive plan can be done in innumerable ways. Attachment 1 provides a
graphic overview of the process the County is proposing. Broadly, a comprehensive plan update
poses and answers three basic questions (Attachment 2).
1. Where are we now and where are we going?
2. Where do we want to go?
3. How do we get there?
STAFF
Currently there are four long range staff members whose responsibilities, among others, include
coordinating with other governments and agencies, processing staff and applicant initiated code
amendments, working with the Planning Commission and addressing transportation issues. The
comprehensive plan update has been identified as the primary project for the long range
Pg 2 6-23-08
Comprehensive Plan Memo # 1
planning section. Additionally, the Board of County Commissioners has budgeted $75,000 from
the general fund for FY08-09 to support a current planner to assist the long range team in the
comprehensive plan update. There should be adequate staffing for this project.
The anticipated major staff roles are as follows:
■ Terri Hansen Payne - Coordinate the public input process, coordinate preparation of the new
plan, including goals and policies
■ Peter Gutowsky - Coordinate the background research and analysis, coordinate the agency
input, coordinate with South County groundwater issues and results of the Bend Urban
Growth Boundary expansion project
■ Peter Russell - Coordinate the TSP project
■ Kristen Maze - Coordinate the website, assist with research and public input
■ Current Planning Staff - as needed
PROJECT COORDINATION
The comprehensive plan project will be the overarching long range planning project for the
coming fiscal year. Other projects on the work plan, including South County groundwater issues,
destination resort remapping and a new Transportation System Plan, will fold into the
comprehensive plan discussions and could each result in a comprehensive plan chapter.
TENTATIVE TIMELINE
■ Spring/Summer 2008: Data gathering and analysis
■ Fall/Winter 2008/2009: Community conversations
■ Spring/Summer 2009: Preparation of a draft plan, including text, goals and policies and
implementation plans
■ Summer/Fall 2009: Public review and hearings
■ 2010: Adoption by the Board of County Commissioners
2008 WORKING COMPREHENSIVE PLAN
Besides being outdated, the current Comprehensive Plan is disjointed and difficult to read and
understand. The formatting is not clear or uniform and the dated background information limits
the plan's usefulness. For the last year staff has been working on "tuning up" the existing
Comprehensive Plan to create a document that the public can more easily access, understand
and critique. This "tuned up" plan will not be adopted, but rather be used as a working document
to assist in the upcoming discussion of existing conditions. (Attachment 3)
PLANNING COMMISSION DISCUSSION
Staff led a discussion with the Planning Commission on June 12 to get their input on the role of
the Planning Commission, the tentative work plan and ideas for public input. The results of that
discussion are listed below.
Q1. What should be the role of the Planning Commission in the comprehensive plan update?
Planning Commission recommendation:
■ Have the Planning Commission act as a Steering Committee
■ Devote one Planning Commission meeting per month to the update
■ Have the Planning Commissioners act as hosts for the public involvement programs
Pg 3 6-23-08
Comprehensive Plan Memo # 1
Q2. Does the work plan work?
Planning Commission recommendation:
■ Start with background information and issue identification
■ Incorporate other planning projects into the comp plan update
■ Analyze existing chapters, goals and policies (Where are we now and where are we going?)
■ Go out to stakeholders and the public for input (Where do we want to go?)
■ Write new goals and policies (How do we get there?)
■ Take the new plan to the public for comment
■ Adopt the new plan
■ Initiate implementation of the new plan
Q3. What methods of public involvement would be most effective?
Planning Commission recommendation:
■ Work with staff to create a public involvement program that allows for discussion of the trade-
offs inherent in land use planning
■ The input plan could incorporate the following ideas.
• Use a logo and call input process `community conversations'
■ Technical advisory group for agency partners
• Work sessions on current goals and policies
• Vision workshops
■ Issue forums on rural land use, including destination resorts
■ Survey to identify additional issues
• Interactive website
• Geographical meetings for specific areas such as the unincorporated communities
• Meeting format prepared for local community groups, including a slide show presentation
and opportunity to answer questions and obtain feedback
NEXT STEPS
At the June 23`d work session Long Range Planning Staff will present a slide show highlighting
the work plan and will show the Board of County Commissioners a draft comprehensive plan
website design. Staff would appreciate input from the Board of County Commissioners on the
work plan, especially on the role of the Planning Commission and the public input process. Staff
will report back to the Planning Commission on the Board decisions.
Attachments:
1. Process Overview
2. Draft work plan outline
3. Deschutes County Working Comprehensive Plan
Pg 4 6-23-08
DRAFT COMPREHENSIVE PLAN WORK PLAN OUTLINE
Background Work
Where are we now? Where are we going?
1. Compile and analyze background information and trends
a. Resource lands: farm, forest
b. Natural resources: water, air, land, wildlife
c. Natural disaster potential: wildfire, floods, landslides, other
d. Historic, cultural, mining lands
e. Urban Growth Boundary, Urban Reserve Area, and city coordination
f. Transportation
g. Public facilities and services
h. County role: economic development, housing
i. Recreation: destination resorts
j. Potential growth: where and how much
k. Other
2. Identify issues for further discussion and ongoing coordination
a. Coordinate internally: other county departments, the Planning Commission, the Board
of County Commissioners
b. Coordinate externally: other government agencies, special districts, community
organizations and the general public
3. Create a community and agency input process
4. Evaluate existing comprehensive plan goals and policies
Community Conversations (note: this is just a first look, other issues are likely to be identified)
Where do we want to go?
5. Community values discussions
a. What do we like about Deschutes County?
b. What doesn't work in Deschutes County?
6. Identified issues discussions
a. Rural land use (destination resorts, rural reserves)
b. Rural/urban coordination
c. South County groundwater
7. Identified area discussions
a. Unincorporated Communities, particularly Terrebonne, Tumalo
b. South County
8. Coordinate with Transportation System Plan public input
New Comprehensive Plan
How do we get there?
9. Write new goals, policies and text
10. Identify and prioritize implementing measures
11. Formal adoption process with public hearings before the Planning Commission and Board
of County Commissioners
Deschutes County Comprehensive Plan
Glossary
"Access or access way" means the place, means, or way by which pedestrians
and vehicles shall have safe, adequate and usable ingress and egress to a
property or use.
"Aquifer" means a water-bearing rock, rock formation or a group of formations.
"Annexation" means to add or join to, append or attach, especially to a larger,
or more significant thing. To incorporate into a county or city. Annexation is the
process by which usually contiguous fringe territory is added to an existing
municipality.
"Archeology" means the systematic recovery by scientific methods of material
evidence from man's life and culture in past ages and the detailed study of this
evidence. The study of antiquity, ancient times or early conditions.
"Architectural control" means regulations and procedures requiring structures
to be suitable, harmonious and in keeping with the general appearance,
historical character or style of their surrounding area.
"Average" means a number that typifies a set of numbers of which it is a
function. The arithmetic mean.
"Berm" means a narrow ledge or shelf, as along a slope. Relative to surface
mining operations, a berm is a mound of dirt used for screening operations or
for storage of material to use during reclamation of the mining site.
"Bonuses" (also known as incentive zoning) means the awarding of bonus
credits to a development in the form of allowing more intensive use of the land
if such public benefits are greater than the minimum open spaces or
agricultural lands are preserved, special provisions for low and moderate
income housing are made, or public plazas and courts are provided at ground
level.
"Buffer zone" means a strip of land created to separate and protect one type of
land use from another; for example, a screen of planting or fencing to insulate
the surrounding area from the noise, smoke, or visual aspects of an industrial
zone or junkyard. In other instances, a greater width of land to separate and
protect farm production from more dense, urban use.
Gloss
"Capital improvements program" means a timetable of public improvements
budgeted to fit the jurisdiction's fiscal capacity some years into the future.
"Cluster development" means it is intended to concentrate on residential
improvements and to preserve and protect open land; should be consistent
with the public facilities and services policies; should require a minimum of 65
per cent open land and a maximum of 35 per cent for improvement (excluding
fencing) of the contiguous land under the same ownership.
"Community facilities" means 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.
"Commuter" means a person who travels regularly from one place to another
place and back, as from a suburb to city and back.
"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,
transportation, educational and 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 functional and
natural activities and systems occurring in the area covered by the plan.
"Generalized" mean a summary of policies and proposals in broad categories
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 have been considered and
accommodated as much as possible. "Land" includes water, both surface and
subsurface, and the air.
"Conditional use" means a use which meets certain conditions and may locate
in some 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.
"Conservation easement" means 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.
"Dedication" means 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,
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parks, school sites or other public uses are often made conditions for the
approval of a development.
"Dedication, payment in lieu of means cash payments as 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 exactions on development more equitably and by allowing
purchase of sites at the best locations rather then merely in places which the
development is large enough to be required to dedicate a school or park.
"Density" means the number of residential dwelling units per acre of land
and/or the amount of land area expressed in square feet assignable to each
dwelling unit in a residential development, including but not limited to one
house on one lot. It is computed as follows: the gross area of land within the
development, 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.
"Density transfer" means a technique of retaining open space by concentrating
residential densities, usually in compact areas adjacent to existing
urbanization and utilities, where outlying areas are 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 permitted in the zone in which they propose to develop.
"Destination resort" means a self-contained development providing visitor-
oriented accommodations and developed recreational facilities in a setting with
high natural amenities. To qualify as a "major destination resort" under Goal 8,
a proposed development must meet the following standards:
1. The resort is located on a site of 160 or more acres.
2. At least 50 percent of the site is dedicated to permanent open space,
excluding yards, streets and parking areas.
3. At least $2,000,000 (in 1984 dollars is spent in the first phase of
improvements for on-site developed recreational facilities and visitor-
oriented accommodations, exclusive of costs for land, sewer and water
facilities, and roads. Not less than one-third of this amount shall be spent
on developed recreational facilities. Developed recreational facilities and
key facilities intended to serve the entire development and visitor-
oriented accommodations must be physically provided or be guaranteed
through surety bonding or substantially equivalent financial assurances
prior to closure of sale of individual lots or units. In phased
developments, developed recreational facilities and other key facilities
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Glossary
intended to serve a particular phase shall be constructed prior to sales in
that phase or guaranteed through surety bonding.
4. Visitor-oriented accommodations are provided, including meeting rooms,
restaurants with seating for 100 persons, and 150 separate rentable
units for overnight lodgings. Accommodations available for residential
use will not exceed two such units for each unit of overnight lodging.
5. Commercial uses limited to those types and levels necessary to meet the
needs of visitors to the development. Industrial uses are not permitted.
"Developed recreation facilities" means with respect to destination resorts,
improvements constructed for the purpose of recreation. These include, but
are not limited to, golf courses, tennis courts, swimming pools, marinas,
equestrian trails and facilities and bicycle paths.
"Dude ranch" means a ranch operated primarily or in part as a resort which
offers horse-related activities as its primary outdoor recreation opportunity and
provides only temporary rental accommodations, serves custom prepared food
and which is intended and suitable only for vacation use by non-residents.
"Easement" means a right afforded a person to make limited use of another's
real property, as a right-of-way.
"Eminent domain" means the right of a government to appropriate 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 condemned property does not become public land. "Inverse
condemnation" is a condition in which the use of political 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.
"Erosion" means to erode is to wear away by or as if by abrasion, dissolution,
transportation, weathering or corrosion. The removal, loosening or dissolution
of earth or rock material from any part of the earth's surface.
"Exception" (also called variance) means the official provision of an exemption
from compliance with the terms of conditions or 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
requirements literally, or if the deviation or exception would not have a
detrimental impact on adjacent properties or affect substantial 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.
"Goals" means in terms of land use planning, the mandatory statewide
planning standards adopted by the Land Conservation and Development
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Commission pursuant to ORS 197.005 to 197.430 and the goals adopted in
this plan.
"Groundwater" means water beneath the earth's surface between saturated
soil and rock that supplies wells and springs.
"Improved land" means 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 describes
vacant land with utilities only.
"In-filling" means the use of undeveloped lands in areas of existing housing
and high densities.
"Interim or study zone" means a zoning technique used to temporarily freeze
development in an area until a permanent classification for it can be decided
upon. It is generally used to preserve the status quo while an area or
community- wide comprehensive plan is prepared to serve as a basis for
permanent zoning.
"Land Use Plan" means 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.
"LCDC" means the Land Conservation and Development Commission of the
State of Oregon.
"Leapfrog development" means land development that occurs well beyond the
existing limits of urban development and thus leaves intervening 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".
"Median" means the middle value in a distribution, above or below which lies
an equal number of values.
"Mobile home" means a factory-built home, equipped with all of the basic
amenities of a conventional home (both, 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 areas. "Double-wides" and "triple-wides" are units connected together to
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form a single structure of size and roof design similar to that of a conventional
home built on a foundation on site. Mobile home parks rent spaces with utility
hookups to mobile home owners; sometimes 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.
"Moratorium" means in planning, a freeze on the approval of all new
development pending the completion and adoption of a comprehensive plan.
In recent years, building moratoriums have also been instituted by water and
sewer agencies when sewage treatment facilities are inadequate or when
water shortages are threatened. They have also been voted into being by
residents of communities whose schools and other public facilities have been
overwhelmed by rapid growth.
"Multiplier effect" means an economic base multiplier is a mathematical device
used to estimate the number of jobs that will be created in service or non-basic
industries which will provide needed goods and services to the new
community residents (such as retail stores, professional services,
entertainment facilities, etc.), because of new employment in basic industries,
such as manufacturing. An example might be as follows:
300 total new jobs
100 new jobs in steel plant
+ 150 new jobs in private services (groceries, etc.)
+ 50 new jobs in public - police, fire, etc.
The Base Multiplier here is 3.0. The Base Ratio is 1:2. So, for every new basic
job there is created two non-basic jobs, or three new jobs totally.
"Non-Goal 5 aggregate resources" means those mineral and aggregate
resources that are not significant aggregate resources as determined under
OAR 660-023-0030(4) and are not included on the County's inventory list of
significant Goal 5 mineral and aggregate resource sites.
"Open land" means is land without tree cover, land which is exposed, land
without cover except grass, brush and sparse or immature trees; lands or
topography which do not reasonably conceal structures, improvements and
personal property.
"Open space" means the part of the countryside which has not been
developed and which is desirable for preservation in its natural state for
ecological or recreational purposes, or in its cultivated state to preserve
agricultural, forest or urban greenbelt areas. More specifically, open space
consists of any land area that would, if preserved and continued in its present
use:
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Gloss
1. Conserve and enhance natural or scenic resources;
2. Protect air or streams of water supply;
3. Promote conservation of soils, wetlands or beaches;
4. Conserve landscaped areas, such as public or private golf courses, that
reduce air pollution and enhance the value of abutting or neighboring
property;
5. Enhance the value to the public of abutting or neighboring parks, forest,
wildlife preserves, natural reservations or sanctuaries or other open
space;
6. Enhance recreation opportunities;
7. Preserve historic sites;
8. Promote orderly urban development.
Open space in destination resorts may include some alteration of the natural
or existing landscape to allow siting of golf course greens and fairways, lakes
and ponds, bike paths and jogging trails and primitive picnic areas (including
picnic tables and park benches).
"Overnight lodgings" with respect to destination resorts, means permanent,
separately rentable accommodations that are not available for residential use.
Overnight lodgings include hotel or motel rooms, cabins and timeshare units.
Individually owned units may be considered overnight lodgings if they are
available for overnight rental use by the general public for at least 45 weeks
per calendar year through a central reservation and check-in service. Tent
sites, recreational vehicle parks, mobile homes, dormitory rooms and similar
accommodations do not qualify as overnight lodgings for the purpose of this
definition.
"Parcel" means a unit of land that is created by a partitioning of land.
"Partition" means either an act of partitioning land or an area or tract of land
partitioned as defined below:
"Partitioned land" means to divide an area or tract 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).
"Performance standards" means zoning regulations providing specific criteria
limiting the operations of certain industries, land uses, and buildings to
acceptable levels of noise, air pollution emissions, 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 specific type, but rather 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 "unrestricted", it establishes measurable technical standards and classifies
the industries in terms of their probable environmental impact. Terms such as
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"limited", "substantial" and "objectionable" determine the overall acceptability
rating of a particular use.
"Planned community" means a fully self-contained complex of residential,
commercial and industrial areas, transportation facilities, utilities, public
facilities and recreational areas.
"Planned Development (PD)" means 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 and
provision of common open space.
"Plat" means a map, diagram, drawing or replat or other material containing all
the descriptions, locations, specifications, dedications, provisions and
information concerning a subdivision.
"Police power" means 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 United States, this power
must relate reasonably to these ends 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.
"Predominant lot size" means the most frequently occurring lot size in a given
area. The arithmetic mode of lot sizes.
"Resort community" means an unincorporated community that was established
primarily for and continues to be used primarily for recreation and resort
purposes. It includes residential and commercial uses and provides for both
temporary and permanent residential occupancy, including overnight lodging
and accommodations.
"Right-of-way" (ROW) means 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 shoreline, 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.
"Riparian:(zone, habitat, or vegetation)" means of or pertaining to the bank of a
river, or of a pond or small lake. Riparian habitat is riverbank vegetative cover
and food for many wildlife species.
"Road types" means:
1. Arterial. Roads designed for through access between major traffic
generators. Arterials provide primarily for the traffic mobility needs.
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2. Collector. Roads which gather the traffic from local roads between
arterials. These roads provide a balance between the needs of land
access and traffic mobility.
3. Local. Roads designed for land access, serving local traffic only.
"Rural lands" means those lands outside recognized urban growth boundaries
which are necessary and suitable for such uses as:
1. Exclusive farm use;
2. General agriculture;
3. Forest;
4. Rural residential;
5. Rural service center;
6. Destination resort, dude ranch, planned community;
7. Landscape management;
8. Special interest;
9. Open space;
10. Fish and wildlife protective area;
11. Recreation;
12. Surface mining.
Industrial, commercial and urban and suburban residential uses are not
generally appropriate on rural lands.
"Rural service center" means an unincorporated convenience-commercial and
residential center of a nature and size only as required to serve the
convenience-commercial needs of the surrounding rural lands. Planning area
boundaries are not the boundaries for rural service centers.
"Scabland" means level and undulating upland plains where blister-like
outcrops of basalt occur. Scabland consists of areas in which the bedrock,
stony shallow soil and soil-forming material predominate. The natural
vegetation consists mainly of big sagebrush, open stands of juniper, rabbit
brush, bunchgrass and annual grasses and associated herbs. Level areas can
be suitable for irrigate pasture.
"Self-contained development" means with respect to destination resorts,
means community sewer, water and recreational facilities provided on site and
limited to meet the needs of the resort or provided by existing public sewer or
water service as long as all costs related to service extensions and any
capacity increase are borne by the development. A "self-contained
development" shall have developed recreational facilities provided on site.
"Septic tank" means 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 solids and must be periodically
pumped out.
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"Sewage system" means a facility designed for the collection, removal,
treatment and disposal of waterborne sewage generated within a given service
area. It usually consists of a collection network of pipelines and a treatment
facility to purify and discharge the treated wastes.
"Shall" means a mandatory, non-discretionary policy or regulation.
"Should" means a non-mandatory, discretionary policy or regulation.
"Silica or siliceous" means a white or colorless crystalline compound, Si02,
occurring abundantly as quartz, sand, flint, agate and many other materials
and used to manufacture a wide variety of materials, notably glass and
concrete.
"Special District" means any unit of local government, other than a city or
county, authorized and regulated by statute, which includes but is not limited
to water control, irrigation, port districts, fire, hospital, mass transit and sanitary
districts, as well as regional air quality control authorities.
"Spot zoning" means the awarding of a use classification to an isolated parcel
of land which is detrimental or incompatible 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 unreasonable and capricious. A general plan or special
circumstances such as historical value, environmental importance, or scenic
value may justify special zoning for a small area.
"Strip zone" means a melange of development, usually commercial, extending
along both sides of a major street leading out of the center of a city. Usually a
strip zone is a mixture of auto-oriented 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 leap-
frogging of unplanned sprawl. Strip development, with its incessant turning
movements in and out of each enterprise's driveway, has so reduced the
traffic-carrying capacity of major highways leading out of urban centers, that
the post-war 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 both sides of a major arterial road.
"Subdivide" means to divide a part or parts of land parcels into at least four
smaller parts or lots. A subdivision is the result of laying out a parcel of raw
land into lots, blocks, streets, and public areas. Its purpose is the
transformation into building sites.
"Urban fringe" means an area at the edge of an urban area usually made up of
mixed agricultural and urban uses. Where leap-frogging or sprawl is the
predominant pattern, this mixture of urban and rural may persist for some time
until the process of urbanization is completed.
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"Urban Growth Boundary" (UGB) means is an established line identifying an
area which contains land lying within and adjacent to an incorporated city and
which is determined to be necessary and suitable for future urban uses
capable of being served by urban facilities and services.
"Urbanized lands" means those lands within the urban growth boundaries
which can be served by urban services and facilities and are necessary and
suitable for future expansion of an urban area.
"Visitor-oriented accommodations" with respect to destination resorts, means
overnight lodging, restaurants and meeting facilities designed to provide for
the needs of visitors rather than residents.
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Deschutes County Comprehensive Plan
Chapter 1: Comprehensive Planning
Table of Contents
Introduction 1-2
Background Data 1-5
Comprehensive Planning Process 1-7
Comprehensive Plan Summary 1-15
Use of this Plan 1-22
Goal Exceptions 1-26
Citizen Involvement 1-33
M
Ell
f
Chapter 1: Comprehensive Planning - Introduction
Introduction
Background
A comprehensive plan contains the general, long range goals and policies that
provide the framework for more specific County land use regulations and
decisions. Deschutes County's first comprehensive plan, Comprehensive Plan
to 1990, was adopted in June of 1970. In response to changes in state
planning law, a new plan was adopted in 1979, Deschutes County Year 2000
Comprehensive Plan (Comprehensive Plan). In 1981, this plan was
acknowledged by the Oregon Land Conservation and Development
Commission as being in compliance with Statewide Planning Goals.
Over time the plan has been amended, with changes initiated by the State,
local policy makers and property owners. Periodic Review, a state initiated
update process, was initiated in 1988 and completed in 2003. Periodic Review
included major additions and amendments to the plan that were intended to
keep the plan current with evolving State planning regulations. In 2000, as part
of periodic review, the plan was codified as Title 23 in the Deschutes County
Code.
As of 2008, the additions, amendments and codification of the plan have led to
a document that is no longer cohesive or user friendly. Much of the information
in the text is outdated and the plan chapters are not uniformly formatted. In
response, the plan is being edited and reformatted for clarity. Note that this
editing will not make any changes to the Plan's goals and policies, which were
written based on a broad public involvement program that included extensive
data collection and analysis. The goals and policies represent the community's
vision for development and conservation in the County and before they can be
amended the County would need to initiate another widespread community
discussion.
The Comprehensive Plan document undergoing format revision is just one
part of the total plan. Also important are the Deschutes County
Comprehensive Plan Resource Element (Resource Element) and the
Deschutes County Comprehensive Plan Map (Map). The Resource Element
was also adopted in 1979 and provides the background information on the
goals and policies. It contains extensive data about the people, places and
natural resources in Deschutes County. The Resource Element has been
amended over time by the addition of separate documents, such as the
Geothermal Element (January 1985) and the Deschutes County/City of Bend
River Study (April 1986), as well as by amendments to the primary document
itself. The Map is the on-the-ground interpretation of the goals and policies
and is the basis for county zoning designations. The Map has also been
amended over time.
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Chapter 1: Comprehensive Planning - Introduction
Purpose
The purpose of the Deschutes County Comprehensive Plan is to provide
general guidance on land use decisions, in order to promote the greatest land
use efficiency and equity. The preparation of this plan responded to a
statewide comprehensive planning initiative that was developed to provide an
open and objective land use decision making process. The plan was intended
to respond to the dramatic growth and change the County was experiencing
that was putting pressure on the land as well as on the economic, social and
governmental structures.
Process
Many State requirements for comprehensive planning originated in Oregon
land use laws passed in the early 1970s. Those laws created the Land
Conservation and Development Commission (LCDC), which was given the
responsibility for regulating Oregon's statewide land use program. That
agency developed a set of Statewide Planning Goals and required all local
jurisdictions to prepare and maintain comprehensive plans and implementing
regulations that were in compliance with those goals.
The comprehensive planning process developed by LCDC provided for the
gathering of information, the prudent review of alternatives and the
development of reasonable policies based on background information and
public input. Consideration of the sociological, economic and environmental
consequences of alternative actions was required.
For Deschutes County, the process of creating a comprehensive plan was
oriented not towards ending growth, but rather toward guiding growth for the
general welfare of the public. The planning process included identifying a land
use plan, but also recognized that planning can include issues beyond the
physical use of land. Factors other than those of a strictly local nature were
considered, because the plan was intended to serve not only as an internal
guide, but also as a way of relating to the larger society.
Community Involvement
In Deschutes County, as well as throughout the State of Oregon, there is a
strong commitment to citizen participation in the planning process. This is
consistent not only with state regulations, but also with standard planning
practice and common sense, because citizen involvement improves the quality
of the plan and ensures greater acceptance of the final document since it is
the direct product of the people's involvement.
When the Comprehensive Plan was written, Deschutes County's citizen
involvement program involved hundreds of participants representing the
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Chapter 1: Comprehensive Planning - Introduction
various geographic areas and range of interests in the county. Thousands of
hours were spent by citizens in the preparation of the plan. Many of the issues
discussed were controversial and remain that way today. Public involvement
continues to be an important tool to ensure the plan meets the needs of the
greater community.
Plan Objective
The 1979 Comprehensive Plan reflects the needs and desires of the people at
the time it was written. Amendments have been made to ensure the plan
continues to reflect community interests. Yet, the basic intent of the plan has
not changed significantly. From the beginning the plan acted to protect the
important resources identified by the community, such as agriculture, wildlife
and forest lands.
A comprehensive plan must be a compromise between the need for protecting
existing resources and the demand to accommodate a growing population.
Intermixed in this process is the complexity of individual rights and public
welfare. This plan attempts to reflect the interests of the community, to guide
growth in the most equitable and efficient manner and to be flexible enough to
accommodate changing circumstances.
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Chapter 1: Comprehensive Planning - Background Data
Background Data
Before a plan can be prepared for a community, background data must be
collected and analyzed. This includes information on the natural and man-
made environments and the trends that are shaping change. Further, it is
important to an understanding of the problems and issues facing the area. The
background data for this plan is, for the most part, located in the Resource
Element. In fact, there has been considerable change in the County since this
plan was written in the late 1970s and the data collected at that time is largely
outdated. The section below includes the one piece of data that has been
officially updated, the population forecast.
Population Growth and Projections:
The population of the County has increased significantly since the adoption of
the comprehensive plan in 1979.
Population Growth in Deschutes County: 1980 to 2000
1980
1990
2000
July I estimates*
62,500
75,600
116,600
April I census counts**
62,142
74,958
115,367
Source: * Population Research Center U.S. Census Bureau
ORS 195.025(1) requires counties to coordinate local plans and population
forecasts. In 1996, Bend, Redmond, Sisters and the County reviewed the most
recent population forecasts from the Portland State University Population
Research Center and U.S. Census, the Department of Transportation, Woods
and Poole, the Bonneville Power Administration and the State Department of
Administrative Services Office of Economic Analysis. After review of these
projections, the cities and Deschutes County agreed on a coordinated
population forecast with the County adopting Ordinance 98-084 in 1998.
The results of the 2000 decennial census and subsequent population
estimates prepared by the Population Research Center (PRC) at Portland
State University revealed that the respective populations of the County and its
incorporated cities were growing faster than contemplated under the 1998
coordinated forecast. The cites and the County engaged in a coordination
process between 2002 and 2004 that culminated with the County adopting a
revised population forecast that projected population for the cities and the
County to the year 2025. The following table displays the 2004 coordinated
population forecast for Deschutes County and the urban growth boundaries of
the cities of Bend, Redmond, and Sisters from 2000 to 2025:
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Chapter 1: Comprehensive Planning - Background Data
20
00-2025 Coordinated Popula
tion Forecast
Year
Bend UGB
Redmond UGB
Sisters UGB
Unincorporated
County
Total County
2000
52,800
15,505
975
47,320
116,600
2005
69,004
19,249
1,768
53,032
143,053
2010
81,155
23,897
2,306
59,127
166,572
2015
91,158
29,667
2,694
65,924
189,443
2020
100,646
36,831
3,166
73,502
214,145
2025
109,389
45,724
3,747
81,951
240,811
Source: Deschutes County Coordinated Population Forecast 2000-2025
The process through which the County and the cities coordinated to develop
the 2000-2025 coordinated forecast is outlined in the report titled "Deschutes
County Coordinated Population Forecast 2000-2025: Findings in Support of
Forecast," dated August 25, 2004 and incorporated herein by reference. The
following table displays the 2004 numbers compared to those adopted with the
1979 Comprehensive Plan and the 1998 coordinated population forecast.
Deschutes County Population Forecasts from 1979, 19
98, and 2004
Year
1979 Forecast*
1998 Forecast**
2004 Forecast***
1980
53,400
-
-
1985
66,600
-
-
1990
82,900
74,958
-
1995
103,400
94,100
-
2000
128,200
113,231
116,600
2005
-
132,239
143,053
2010
-
151,431
166,572
2015
-
167,911
189,443
2020
-
182,353
214,145
2025
-
-
240,811
Source: *Deschutes County 1979 Comprehensive Plan, **1998 coordinated population forecast, ***2004 coordinated population
forecast
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
Comprehensive Planning Process
Citizen Involvement in the Planning Process
To prepare a comprehensive plan, it is necessary to have an organizational
structure which outlines tasks and assigns responsibilities within the bounds
set by the available resources and the applicable State laws. In the
preparation of this plan, Deschutes County chose to develop a structure that
relied upon citizen involvement and initiative.
Citizen participation in land use planning started in Deschutes County in 1968.
This was reinforced by the passage of Senate Bill 100 in 1973, which made
citizen involvement in planning mandatory throughout Oregon. Under that bill,
local governments were required to develop, publicize and adopt a citizen
involvement program containing the following:
• Provision for widespread citizen involvement;
• Assurance of effective two-way communication with citizens;
• Provision of opportunities for citizens to be involved in all phases of the
planning process;
• Assurance that technical information is available in an understandable
form;
• Assurance that citizens will receive a response from policy makers;
• Assurance that there will be funding for the citizen involvement process.
The program must provide for a citizen advisory committee broadly
representative of geographic areas and interests relating to land use. Further,
the law requires that federal, state and local agencies, as well as special
districts, coordinate their planning efforts and make use of existing citizen
involvement programs.
The Deschutes County citizen involvement program experienced a dramatic
expansion during the 1970s. The planning process for preparing this
comprehensive plan was largely based upon citizens participation, agency
involvement and both local and outside professional analysis. The extensive
participation ensured consistency with the State Planning Goals.
1979 Comprehensive Plan Process
The public involvement program began with a well-publicized educational
meeting at a community 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 a slide show on the
statewide planning goals, heard an explanation of the program, filled out an
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
attitude survey (later compiled by college students) and received several
handouts. For a month thereafter, people volunteered for advisory committee
membership and were accepted without restrictions.
The Board of County Commissioners, as the committee evaluating the citizen
involvement program, appointed an Overall Citizens Advisory Committee, as
well as 17 technical and area advisory committees. There were a total of 326
officially appointed members with up to 300 additional persons indirectly
involved.
The Overall Citizens Advisory Committee (OCAC) was the largest committee
and the one most broadly representative of the various interests and areas of
the County. Their primary function was to resolve conflicts between the
recommendations of the different committees. In addition, they also reviewed
committee recommendations to assure they met State goals and guidelines.
The OCAC also initiated many of the recommendations regarding
development in urbanizing and rural areas of the County, thereby tying
together the various elements of the plan. It was their direction to County
planning staff which served as the basis for the preliminary plan.
The technical committees functioned as a panel of experts (often including
federal, state, local and district agency personnel) and interested citizens.
These committees covered the following topics: minerals and aggregates,
agriculture, forest lands, fish and wildlife, historic and cultural, economy,
transportation, public facilities and services, recreation, housing and energy.
The technical committees faced the challenge of an initially weak database as
well as a demanding time schedule for plan completion.
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Each technical committee was given a general work program to collect
information, identify needs and problems and prepare recommendations.
Committees met two to four times per month and 10 to 20 times totally. Each
group prepared a detailed and factual preliminary report which was then
submitted to the Overall Citizens Advisory Committee for comment. Revisions
to each report were made and submitted as a final report to the OCAC and
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
Planning staff. Their detailed reports were often used word for word in the
preparation of the resource element and preliminary plan.
The area committees involved interested citizens from the three major rural
service centers: La Pine, Terrebonne and Tumalo. An attempt was also made
to form a Sunriver committee but little interest was expressed by residents of
that area. The committees addressed each of the LCDC goals and developed
a list of programs, needs and directions for future community growth. Their
reports were reviewed by the OCAC in the same manner as the technical
reports and eventually incorporated in the preparation of the preliminary plan.
There were also three urban area advisory committees appointed to work with
each city planning staff in order to prepare urban area plans for each
municipality and its surrounding urbanizing area. While the Bend Urban Area
Plan was largely completed by the time the OCAC was formed, Redmond and
Sisters planning staff periodically reported to the Overall Citizens Advisory
Committee to assure communication and coordination.
County planning staff also contributed, writing several reports to provide
information to the OCAC covering geology, geomorphology, soils, areas of
special interest, climate, hydrology, history and population. The OCAC also
considered this information in its deliberations.
During the citizens' committee stage of the process, over 200 meetings were
held and in excess of 10,000 hours of time were spent by volunteers working
on the plan. Many steps were taken to provide everyone, whether directly
involved in the process or not, with access to up-to-date information on where
the plan was heading. More than 5,000 newsletters were mailed to interested
citizens and thousands of letters, mailings, posters and flyers were also
distributed. Radio, television and newspaper coverage was extensive with the
largest local newspaper printing an explanatory article on each of the
committees and staff reports.
Once in the preliminary plan stage, the document was brought to the County
Planning Commission for review. The preliminary plan was available to the
community from a variety of sources. A newspaper supplement describing the
major elements of the plan was placed in the major newspaper in Deschutes
County and the local news media were very cooperative in disseminating
information. Copies of the plan were placed in local libraries and made
available to everyone interested. The Planning staff also spoke to various
groups in the community. The Planning Commission held a number of
hearings on the preliminary plan and then provided recommendations to the
Board of County Commissioners.
The County Commissioners also held hearings on the plan. These hearings
generated large turnouts and spirited testimony. Using public testimony (both
written and verbal) and the recommendations of the Planning Commission and
staff, the Board compiled a working draft of the Comprehensive Plan. This
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
working draft was then sent to outside legal and planning consultants for
review and comment. Earlier, the preliminary plan had been given to an
outside reviewer to determine the adequacy of the energy elements of the
plan. All these reports were then delivered to the Board of County
Commissioners. Their determination was that the Planning staff should take
additional time to use these studies to improve the plan where necessary.
A new draft was then taken to the Overall Citizens Advisory Committee and
Planning Commission for comment, before the Board took any final action.
The Board also determined that an additional public hearing would be held to
hear testimony on planned exceptions to be taken to agricultural and forest
land planning goals.
The use of such an extensive citizen involvement program, as well as the
utilization of specific professional assistance, was a complex but extremely
useful combination. The preparation of the plan was not only completed more
rapidly, but the quality of the overall document was significantly improved. It
was expected that this would produce a document that would effectively serve
as a basis upon which to build land use regulations for the people of
Deschutes County.
Future Growth
Choosing a course into the future is a difficult task. In 1979 to assist in
understanding the consequences of the local decisions being made, a number
of different options were considered. First, each of the citizen advisory
committees reviewed and discussed a variety of different policies, each with
varying impacts, and chose the recommendations most likely to achieve the
desired result. After their deliberations, the policies were sent on to the Overall
Citizens' Advisory Committee, where decisions had to be made about tying the
various elements of the plan together into a cohesive document. To tie the
parts of the plan together required shaping a consistent philosophy and
direction for future development in Deschutes County.
In determining a direction for growth, it is important to first understand how
much growth is expected. This can be found through an examination of current
and projected population. The following two tables represent the population
and housing forecasts forecast adopted with the Comprehensive Plan in 1979.
The decision which had to be reached was what population projection to use
in preparing for the future. The Portland State University Center for Population
Research and Census (CPRC, now called the Population Research Center)
prepared a population estimate indicating Deschutes County would grow at an
approximate rate of 2.8 percent annually. A study by the Economic Citizen
Advisory Committee (CAC) indicated the present growth rate (1970-77) was
6.3 percent annually. The committees felt that CPRC's estimate was not
adequate and should not be used since the present growth rate would exceed
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Draft 5-14-08
Chapter 1: Comprehensive Planning - Comprehensive Planning Process
the actual growth because of economic fluctuations and a declining
percentage gain near the end of the planning period (Planning Period = 1979
to the year 2000). The preferred alternative was a 4.5 percent annual growth
rate which would yield 128,200 people in Deschutes County by the year 2000.
-iuiu uescnu
tes county ropuiation Projections
PSU* 2.8%
Present Rate** 6.3%
Preferred Rate*** 4.5%
1980
50,500
56,324
53,400
1985
56,700
76,298
66,600
1990
60,700
103,557
82,900
1995 11
63,900
140,554
103,400
2000
65,700
190,770
128,200
Source: * Portland State University, Economic Citizen Action Committee research Economic Citizen
Action Committee chosen alternative
Recognizing the need for a single target population and in light of the
Economic CAC's research and expertise, the 4.5 percent annual growth was
chosen as the "best guess" option and the one to be used in the preparation of
comprehensive plans in Deschutes County. Ultimately, this resulted in
allocations of population to different parts of the County with the Bend Urban
Area receiving 84,000, the Redmond Urban Area obtaining 23,093, the Sisters
Urban Area having 2,135, and the unincorporated areas of the County
receiving 18,972.
Once the population figure was chosen, it was possible to determine housing
needs to the year 2000 by making some assumptions about household size
and rehabiIitation.(Note: as of 2008 the assumptions behind this table are not
known.)
1979 New Housing Units
1980
3,185
1985
6,339
1990
7,740
1995
9,669
2000
11,753
38,682
The question still remaining was how to allocate this new population and
housing throughout the County. Several different alternatives were directly and
indirectly discussed by members of the OCAC.
Underlying all of the alternatives were a number of basic assumptions:
• LCDC will require some protection and coordination.
• Energy will become increasingly expensive and relatively more scarce.
• Much of the area's growth is tied to amenities.
• Federal agencies will continue to use public lands for multiple uses.
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
Future Growth Alternatives
Alternative One - Current Trends
Land Uses: Continue with the present trends without modification of the
dispersed housing pattern that was developing in Deschutes County.
Anticipate that most people would live in the urban areas but that many would
choose to reside in rural areas. Recognize that much of the agricultural and
forest lands of the County would be lost or replaced by hobby farms. Expect a
less than stringent enforcement of regulations to protect unique historic and
environmental areas.
Environmental: Anticipate the loss of additional scenic and natural amenities.
Recognize that deer winter ranges would likely be developed and the wildlife
lost. Prepare for increasing problems with air and water quality.
Social and Economic: Continue the strong economic growth of the area,
particularly in the service, trade and construction industries. Expect more
cultural amenities. Anticipate increasing social problems such as crime.
Public Services and Facilities: Expect to see an expanding road system and a
growing demand for other public services. Recognize that these services will
continue to lag behind demand, requiring taxes to rise rapidly to provide
necessary services.
Other. While there will be some improvement in land use controls and
increasing city and county cooperation there is likely to be continued state
review and occasional intervention. Ultimately, population increases are
expected to decline as the environmental amenities of the area degrade.
Alternative Two - Unrestricted Development
Land Uses: Greater amount of urban sprawl from all growth centers. In
addition, rural sprawl also occurs in the vicinity of the Rural Service Centers as
they rapidly develop. Some protection is given to the most dramatic and
publicly supported historic and environmental sites. Agriculture ceases to exist
as a viable industry.
Environmental: Moderate to severe pollution problems in parts of the County
ultimately require some areas to be mandated to install expensive centralized
sewer and water facilities. The growing development on private lands
interspersed within the public lands severely reduce the beauty and
usefulness of the public lands.
Social and Economic: Continued high employment, particularly in construction,
for the next 10 to 15 years with the development ultimately resulting in a loss
of amenities which sharply reduce unemployment in the non-manufacturing
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
industries. Cultural amenities increase in conjunction with the population, but
there are serious social dislocations resulting from the inequitable tax burdens
created by the growth and loss of esthetics.
Public Facilities and Services: Serious problems with providing adequate
services, resulting in higher taxes and public dissatisfaction. Recreation
demands continue to grow and demand expands rapidly as the formerly
available outdoor areas become fragmented due to development. Finally an
expensive mass transit system must be constructed to bring people into the
urban centers as gasoline prices continue to climb.
Other. Energy costs locally continue to increase finally leading to some
outward migration. There is little effective coordination or local authority to
control unnecessary subdivision and construction. Increasingly, the State
intercedes in Deschutes County to assure State interests and public welfare
are protected.
Alternative Three - Strict Growth Controls
Land Uses: No further residential, commercial or industrial construction is
permitted in rural areas and ultimately the rural population begins to decline.
Urban areas grow rapidly but the restrictiveness of the regulations result in a
slower growth rate. Historic and environmental sites receive strict protection.
Increasingly, apartments and higher densities are common.
Environmental: Pollution levels rise only slightly and the natural amenities are
protected. Public lands receive heavy use but are protected from the more
serious effects of development.
Social and Economic: Housing and land costs rise rapidly because of the
relative shortage of buildable land. Lower and middle-income families find
themselves effectively excluded from the community. Cultural amenities rise.
Employment suffers to some extent and many of the higher paying
construction jobs are replaced by lower paying service employment. This
situation leads to considerable social and economic dissatisfaction.
Public Facilities and Services: Few new roads are constructed and an
emphasis on alternative transportation methods provides effective transit and
freight movement. Public facilities, such as sewer and water, catch up and
keep pace but may be more expensive due to a reduced tax base.
Other: Energy costs are down. There is considerable concern over
government regulations, such as zoning and environmental controls, as well
as mandated local government coordination.
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Chapter 1: Comprehensive Planning - Comprehensive Planning Process
Alternative Four - The Chosen Alternative
After considering the various alternatives available, the citizens chose a
compromise between current trends and strict growth control. The emphasis
was on restricting sprawl and protecting resources while accommodating new
population in adequately large urban boundaries and Rural Service Centers.
Land Uses: Major growth occurs in urban areas of the County. Rural
development is largely restricted to rural service centers and on existing rural
lots. An active housing program seeks to offset the costs created by the
regulations. Some hobby farming occurs and the existing agriculture and
forest areas are protected.
Environmental: Wildlife and vegetative areas particularly vulnerable to damage
are protected from excessive development. Pollution increases are small.
Public lands continue to be adequate to meet the demand. There is some loss
of visual amenities but it is minimal.
Social and Economic: Taxes increase but not so rapidly as in the other
alternatives because a more efficient growth pattern exists as does a growing
tax base. Jobs continue to increase with some shift from construction to
services. Manufacturing grows, but not as rapidly as the commercial sector.
Cultural amenities continue to increase.
Public Facilities and Services: Few new roads are constructed and a greater
emphasis on transit alternatives reduces automobile use. Energy costs rise
but within the capabilities of area residents. Most public facilities catch up with
the growth and provide adequate services.
Other: Continuing controversy over how much land use control to use, but
general acceptance of local ordinances and minimal state intervention.
Coordination is mandated and controls are strict but oriented to achieving a
specified result rather than being a routine and/or arbitrary mechanism.
The process by which the final alternative was chosen was not a smooth one.
Many meetings were required and the alternatives listed here are more clear
than those discussed by the committees. Yet, as the process continued, it
became increasingly apparent that people generally wanted to see growth
guided but not stopped. The exceptions were where development was
proceeding too rapidly or where important natural or cultural resources needed
protection. People were convinced that the inefficient sprawled pattern of
development needed to be curtailed to restrict additional subdivisions while
permitting existing development. To do that, the philosophy of Alternative Four
was used as the framework for the goals and policies that are contained within
this plan.
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Chapter 1: Comprehensive Planning - Comprehensive Plan Summ
Comprehensive Plan Summary
The plan alternative chosen for Deschutes County was one which emphasized
accommodating anticipated growth primarily in the urban areas, with some
rural development taking place in Rural Service Centers (now unincorporated
communities) and in existing subdivisions. This pattern was intended to
provide greater efficiency in the provision of public services and to foster
energy savings, particularly in transportation. This development model was
also intended to protect scarce resources, while permitting compatible
improvements. The plan goals and policies summarized below were written to
support the chosen development model. These goals and policies must be
read as a whole, since the County will grow as a single unit not in separate
pieces or aspects.
As part of the 2008 Comprehensive Plan tune-up, this section has been
updated. The 1979 summaries have been labeled and retained, while each
chapter has an added section, labeled 2008, that identifies significant changes
to the chapter goals and policies. Additionally, summaries have been added
for the goals and policies in chapters added since this plan was adopted.
These summaries have been structured to match the reorganization of the
plan.
Citizen Involvement
1979: The Citizen Involvement section of this plan shows that planning is a
dynamic process and one that does not stop with its initial adoption. More
study to keep the plan functional and up-to-date will be required. The County's
efforts will continue to be aimed at involving the public, in meaningful ways,
with the preparation of future plans and studies. There is also an emphasis on
explaining land use planning, its purposes and techniques, so that it will be
better understood and more usable by county residents.
2008: No goal or policy changes.
Agriculture
1979: Agriculture has been one of the more controversial resource chapters.
The policies in this plan seek to protect identified agricultural land, while
recognizing that marginal agricultural conditions are present in some areas.
Some hobby farming is permitted in the more marginal areas so as to increase
agricultural productivity, while a program to research local marginal lands and
determine how they may be utilized while agricultural production is preserved,
is mandated for future updates of the plan.
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Chapter 1: Comprehensive Planning - Comprehensive Plan Summary
2008: The policies in this section were changed considerably after a 1992
study of County agriculture that defined 7 agricultural sub-zones representing
distinct agricultural groupings. These subzones use the number of irrigated
acres per farm unit as the principal standard for defining what size of tract
constitutes a commercial farm parcel.
Forest Lands
1979: Forest Land designations seek to protect existing areas with timber
capability, while permitting compatible development on non-productive lands
that foster other aspects of the local economy. The loss of much of La Pine to
development is recognized (see Exceptions Statement) but in those areas
where larger lots exist, small woodlot management is encouraged and
commercial timber is protected where it remains feasible (primarily the national
forest and commercial timber tracts).
2008: In 1992 the County updated this section in response to a Department of
Land Conservation and Development administrative rule setting criteria for
allowed uses, siting conditions and minimum lot sizes in forest zones. The
policies were rewritten to comply with the new rules and the F-3 zone was
subsequently eliminated.
Open Spaces
1979: The local economy and environment are very dependent on the
protection of scenic and natural areas. Because of that, the Open Spaces
chapter identifies the policies required to protect those resources for area
tourism, recreation and quality of life, while recognizing the appropriateness of
flexibility when dealing with individual property owners.
2008: The major policy changes in this chapter are that a landscape
management area study has been completed and additional lands have been
added to the 1979 proposal. Also as proposed in the 1979 plan, development
restrictions were added for rimrocks along streams and waterways.
Fish and Wildlife
1979: Fish and Wildlife seeks to balance wildlife needs of the area against the
needs of a growing population. Important economic and lifestyle qualities are
recognized and irreplaceable wildlife areas protected, while conditions that
permit limited development are identified.
2008: This chapter was updated during periodic review in the early 1990s.
Tables were added listing an existing wildlife inventory. A new goal was added
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Chapter 1: Comprehensive Planning - Comprehensive Plan Summary
promoting the maintenance of wildlife diversity and habitat. Policies were
strengthened and expanded.
Water Resources
1979: Water is the resource without which there will be no future growth in
Deschutes County. Preservation of existing water quality and greater
efficiency in delivering available water supplies is being sought. New and
existing residents will need all the water that is presently identified. Agriculture,
new employment opportunities and maintenance of the tourism/ recreation
industry all require water. This plan seeks to improve coordination and
planning for water resources.
2008: No goal or policy changes.
Energy
1979: The Energy section emphasizes more local independence in providing
energy, protection of future energy resources and better coordination with
energy providers. Information and education about energy and local
opportunities are stressed. As the population continues to grow and because
of the importance of tourism, energy will play an ever more dominate role in
local planning efforts. These policies seek to emphasize the need for greater
efficiency in development patterns and construction, while surveying available
options.
2008: The current plan includes stronger, more detailed policies on the use of
geothermal resources. It also has a policy encouraging the County to
incorporate energy efficiency and the use of renewable resources into all
operations. There has been a change to the recycling policy to reflect the
implementation of a recycling plan that did not exist in 1979. Finally, a policy
has been added that requires the County to encourage conservation
throughout the region.
Surface Mining
1979: The Surface Mining chapter seeks to preserve known mining resource
sites for ultimate mining activity and to permit mining as needed in the County.
There is also recognition of the County's responsibility to protect adjoining
residents (safety and health hazards) and the general public (excessive
construction costs and hazards created by a shortage of building materials as
well as loss of scenic qualities and pollution).
2008: The policies in this chapter are all new and include policies tied to the
Goal 5 analysis process. The current policies echo concerns noted above but
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Chapter 1: Comprehensive Planning - Comprehensive Plan Summary
have stronger environmental protections. A list of existing mineral and
aggregate sites has also been added.
Historic and Cultural
1979: One of the most non-controversial chapters is Historic and Cultural,
which seeks to protect the ever dwindling supply of historic and cultural sites.
2008: No significant goals and policies changes.
Rural Development
1979: This section serves as the basis for the rest of the plan. Basic guidelines
are included to do away with the former inefficient development pattern and to
accommodate the anticipated 7,050 new rural residents. Emphasis is placed
on maintaining the existing rural character of the county, while acknowledging
that Deschutes County is becoming more urban, for example, by concentrating
new rural development in Rural Service Centers. In that way people desiring a
rural lifestyle may do so without unduly increasing the costs to others or
utilizing resource lands. The only exception to this rural pattern is in the La
Pine area where emphasis is placed on the incorporation of the community
and improvements in local services. The La Pine rural area is also likely to
receive many of the over 3,000 new rural homes which will be built, because
so many lots already exist in that area.
2008: A number of minor changes have been made to the Rural Development
goals and policies regarding cluster development. Additionally, new standards
have been defined for locating destination resorts on specified farm lands. A
major change in the Rural Development chapter is that the Rural Service
Center policies (and maps) have all been updated and moved to a new section
on Unincorporated Communities. Finally note that La Pine, previously an
Unincorporated Community, incorporated in November of 2006. As of this
writing they are still using County land use regulations, under an
intergovernmental agreement. This will continue until they are able to write
their own comprehensive plan and zoning codes.
Natural Hazards
1979: The Natural Hazards chapter seeks to guide development away from
identified hazards, such as wildfire, while allowing some use of areas that
need to be protected from development. The protection of the 100-year flood
plain is an example of an area where development shall be prohibited but
wildlife and recreation opportunities will be fostered.
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2008: The current plan includes stronger more detailed policies regarding
flooding, including the completion of a Federal Emergency Management Act
approved Hazard Mitigation Plan.
Public Facilities and Services
1979: To accommodate existing and future populations and land uses the
Public Facilities and Services chapter provides basic guidelines for the
construction of new facilities, while fostering urban rather than rural
development.
2008: No significant goal or policy changes.
Transportation
1979: The Transportation chapter seeks to aid movement of people and goods
between communities, and to improve the ability of the communities to
efficiently deal with new residential, commercial and industrial uses. Greater
public safety is promoted, as is preparation of a shift from automobile
dependence to public transit and other transportation alternatives.
2008: The Transportation and Transportation System Plan chapters in the plan
have been combined into one chapter. The Transportation chapter contains
goals and policies on all facets of transportation planning. The goals and
policies have the aim of moving people and goods effectively and safely.
Economy
1979: The Economy chapter discusses the need to protect existing timber,
agriculture, mining and scenic resources for future prosperity. It also provides
policies to help Deschutes County in its metamorphosis from a rural resource
economy to a regional employment center, providing between 7,700 and
16,000 new manufacturing jobs and 27,000 to 32,000 new non-manufacturing
positions.
2008: No goal or policy changes.
Recreation
1979: Recreation seeks to accommodate both a growing local population and
tourist industry. New facilities and cooperative plans are identified and, while
the County seeks to provide primarily a facilitator function, greater
commitments to recreation and associated activities are made.
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Chapter 1: Comprehensive Planning - Comprehensive Plan Summ
2008: The initial policy recommending a county-wide parks plan has been
dropped. Policies have been strengthened regarding the provision of bicycle
and pedestrian trails between destinations such as schools and shopping, as
well as multi-use recreational trails.
Housing
1979: Housing emphasizes the need for flexibility in housing styles and costs
so as to provide adequate homes for all segments of the community. Also
encouraged are programs to help rehabilitate existing homes and to
accommodate low and moderate-income families through government
programs and reduced development costs.
2008: No goal or policy changes.
Urbanization
1979: The chapter on Urbanization links this plan to those of the three
incorporated communities. It provides parameters for the establishment and
expansion of urban boundaries and provides common guidelines to the cities
to help them accommodate the 71,450 new residents that will need
approximately 35,600 homes and up to 35,000, new jobs. Sufficient land must
be allocated and managed to serve these new residents.
2008: Significant changes were made to the Goals and Policies in 2006 in
conjunction with the adoption of the Sisters urban Growth Boundary, the
Redmond Urban Growth Boundary and the Redmond Urban Reserve Area.
Chapters Added after 1979
1986, Deschutes River Corridor
This chapter provides the County with a role in preserving and revitalizing the
Deschutes River Basin. The various goals and policies are aimed at working
with government agencies and other interested parties to enhance the river
environment for wildlife and recreation.
1992, Destination Resorts
Destination resorts are defined in State Planning Goal 8 as a positive
economic boost for rural communities. The goals and policies in this chapter
encourage the development of destination resorts, in a manner that will be
compatible with the rural environment. The policies outline the basic conditions
a proposed resort must follow.
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Chapter 1: Comprehensive Planning - Comprehensive Plan Summary
1997, Unincorporated Communities
This chapter was added during periodic review to address changes in state
regulations that defined specific types of unincorporated communities. The
new chapter defines four types of unincorporated communities and identifies
where in Deschutes County these can be found. There are no goals in this
section of the plan, but there are distinct policies for each of these
communities to implement the new state rules. The four types and locations
are listed below. This chapter also includes policies for rural commercial and
rural industrial lands.
• Urban Unincorporated Communities: La Pine, Sunriver
• Rural Communities: Terrebonne, Tumalo
• Rural Service Centers: Wickiup Junction, Alfalfa, Brothers, Hampton,
Milliken
• Resort Communities: Black Butte Ranch, Inn of the 7th Mountain/Widgi
Creek
1998, Regional Problem Solving for South Deschutes
County
This chapter was added in response to ground water pollution problems
identified in the La Pine area. The goals and policies are worded to protect the
environment, especially the water quality, through focusing development into
specifically defined areas.
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Chapter 1: Comprehensive Planning - Use of this Plan
Use of this Plan
Implementation
A comprehensive plan provides general guidelines that are implemented
through more specific regulations and other related mechanisms. Zoning and
subdivision ordinances are the most widely recognized tools, but not the only
ones as can be seen from the list below.
Comprehensive Plan Maps: Comprehensive plan maps show generally how
various uses will be allocated throughout the jurisdiction and serve to
implement the goals and policies of the comprehensive plan.
Zoning Ordinances: Zoning Ordinances contain a series of categories (land
use zones) which specify what uses are allowed within those categories. The
uses listed are those felt to be compatible with each other. In addition, a
number of conditional uses are usually also included. These activities are
allowed only by special permit after conditions have been attached which
mitigate the probable impacts associated with the proposed use.
Subdivision Ordinances: In Oregon the process of dividing the land into
smaller parcels is done within three categories. Minor partitions are the
creation of two or three lots, where formerly only one existed, without the
establishment of a street or right-of-way. Major partitions create two or three
lots with a street or right-of-way. Subdivisions create four or more lots with or
without a street or right-of-way. Predictably the requirements become
increasingly stringent, from minor partitions to subdivisions. Subdivision
regulations establish requirements for public facilities to be provided, allow
review of the design to assure the safety and general welfare of the future
residents, and permit the requirement of deed restrictions (protective
covenants) to enable neighborhoods once established to retain their
character. The subdivision ordinance very often will do more to determine the
long term character of an area than will the zoning ordinance.
Planned Developments: Many jurisdictions offer an opportunity for planned
developments (PDs), which allow a less than strict adherence to both zoning
and subdivision regulations. These developments are intended to create better
overall designs which still meet established policies. They most often occur in
places where unusual conditions exist such that a conventional development
would not be able to efficiently utilize the site. This may be true because of
characteristics such as rock outcrops or because the area contains significant
wildlife habitat, agricultural land, unique historical remains, or other resources
that must be protected from development.
Other Ordinances: In some areas local governments do not establish all their
land use restrictions within the zoning ordinance. Floodplain, mobile home,
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Chapter 1: Comprehensive Planning - Use of this Plan
design review and airport ordinances are often created separately and
administered in addition to the requirements of the zoning ordinances. In
Deschutes County these regulations were joined into the zoning ordinance to
provide ease of access and understanding for the public.
Capital Improvements Plans: Capital improvement plans are another method
used to implement a comprehensive plan. Capital improvement plans lay out
for a defined period how and where streets, sewers, and other public facilities
will be constructed. The provision of these services often determines the
feasibility of numerous types of community growth patterns.
Easements: Conservation easements, or other types of land acquisition less
than fee acquisition, are becoming increasingly popular. An easement, lease,
or purchase of a certain right can often be obtained from a property owner and
thereby a specific use may be prohibited or some special resource protected.
The purchase of this easement is less expensive than the purchase of the
property, and for certain uses may even be granted without cost to the public.
Coordination Agreements: Coordination agreements are another common tool
for implementing a plan. Often local governments (cities and counties) have
overlapping interests within certain areas, such as urban growth areas, as well
as overlaps with other public bodies, such as special districts (i.e., school and
irrigation districts) and federal agencies. Establishment of cooperative
arrangements reduces the probability of conflicts and assures that all these
public agencies are working toward common goals, thereby increasing
efficiency and the likelihood of achieving mutual goals.
Tax Incentives: Use of tax incentives to promote appropriate use of land is
also receiving increased attention. Exclusive Farm Use zoning is an example
of this. Land set aside and used for farm use may only be taxed for that farm
value, rather than any potential development value. This enables the farmer to
better afford remaining on the farm.
Land Trading: Another implementation tool is the trading of land. Deschutes
County is fortunate to have available County lands which can be traded with
private individuals and public agencies to better achieve the goals of the plan.
Performance Zoning: Innovative methods are used in some communities
which permit greater flexibility while assuring appropriate standards are met.
Performance zoning is an example of this type of regulation. With this type of
ordinance a zone is established but instead of stating the type of uses that will
be permitted, it sets a number of performance standards that must be
satisfied. These criteria set limits on pollution, traffic generated, noise,
population density, height, etc. The developer is then free to construct any use
as long as the performance standards are met. Should the use not comply it
will have to be modified or be shut down. Unfortunately, performance zoning
requires a relatively large staff using sophisticated equipment if it is be
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Chapter 1: Comprehensive Planning - Use of this Plan
successful, and it is therefore used mostly in larger jurisdictions where
sufficient budgets exist.
Administrative Policies: Not only are there ordinances and plans adopted by
official action of the governing body but administrative decision makers, like
Planning staff, Hearings Officer, or Planning Commission, often establish
criteria for use in reviewing certain applications. These criteria are consistent
with existing regulations, plans and policies. They simply serve as a way for
assuring equitable treatment of all applicants and that all pertinent issues are
addressed.
Implementation Plan for Deschutes County
Deschutes County's implementation program, as specified in this plan, will
include at minimum, a combination of zoning, subdivision and other necessary
ordinances. Other implementation tools will be used as needed. Efforts will be
made to keep planning processes as simple as possible and provide for the
expeditious handling of all applications.
Plan Flexibility and Updating
Flexibility in plan administration and regular updating are two ways
communities seek to assure that their comprehensive plans continue to
accurately reflect local conditions. Flexibility assures that there is some
discretion in the application of the plan, providing guidelines, not detailed
directions. Updating those guidelines ensures that the plan remains relevant
with goals and policies that are current, useful, and reflective of the people's
interests.
There are two questions always asked when a new plan is prepared. First,
how flexible will the plan be after it is adopted? Second, how will changing
conditions be incorporated into the plan?
Flexibility
The answer to the first question is that all land use plans reduce the flexibility
with which land may be used. That is, after all, one of the purposes of
preparing a plan. However, considerable study is conducted during the
preparation of the plan in order to assure that the needs and desires of the
community are considered.
In addition, there may be specific instances when, due to the unique character
of the question at issue, the policies listed under the goals do not apply. As a
result, new regulations may be adopted or exceptions not otherwise granted
may be given. Perhaps most importantly, this evaluation and review will occur
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Chapter 1: Comprehensive Planning - Use of this Plan
in public view and subject to written guidelines so that the process is open and
understandable to all interested persons.
Updating
As for the second question, a comprehensive plan should be updated as
needed to assure that the changing character of the people and the land are
reflected in appropriate goals and policies. Usually these changes are
adjustments to boundaries on the plan map or establishment of new policies.
Since adoption, the Deschutes County Comprehensive Plan has undergone
numerous updates. Some of the updates were site specific, such as changes
to the listed Surface Mining Sites, while others were more extensive. Since
adoption, to address state requirements and local concerns, the County has
added the following chapters:
• Preface (incorporated into the Introduction in 2008)
• Unincorporated Communities (broken into separate sections in 2008)
• Regional Problem Solving for South Deschutes County
• Transportation Svstem Plan
• Destination Resorts
• Deschutes River Corridor
Things Yet to be Done
The completion of a comprehensive plan is never the end of the planning
process, there are always things yet to be done. Not only are there issues
where insufficient time existed for them to be adequately considered, but
entirely new questions are often raised based on an improved understanding
of the community. The 1979 plan included a list of projects for the County to
work on over the years. However, that list is now outdated and no longer
useful in providing future guidance.
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Chapter 1: Comprehensive Planning - Goal Exceptions
Goal Exceptions
Introduction
This section of the Comprehensive Plan identifies lands where Deschutes
County has requested the Oregon Land Conservation and Development
Commission grant an `exception' to meeting the requirements of the statewide
planning goals. The Oregon land use system contains protections for farm and
forest resource lands. The exception process is intended to address situations
where the protection of those resource lands through the application of the
Statewide Planning Goals would not be practical. There are three reasons a
local government can use to take an exception: if the land is physically
developed, if the land is irrevocably committed to other uses or if the land fits a
defined set of `reasons' criteria.
In 1979 the exceptions were for Goal 3 (Agricultural Lands) or Goal 4 (Forest
Land). Cities were not included in the consideration of exception lands
because all of the lands within an urban growth boundary are considered
urban, non-resource lands. However, it was apparent that many of the rural
areas in the County had already received substantial development and were
committed to non-resource uses. Rural Service Centers, for example, provided
services to rural residents. Since this plan was adopted, additional exceptions
have been granted, to Goals 3 and 4 but also to Goal 11 (Public Facilities and
Services) and Goal 14 (Urbanization).
1979 Exceptions Analysis and Plan
The Comprehensive Plan written in 1979 included county-wide goal
exceptions to Goals 3 and 4 as well as an exception for the Bend Airport. The
complete text of these exceptions are incorporated herein by reference (PL 20
pg. 160-179).
To determine where an exception to the State goals was required it was first
necessary to obtain information on the location of the farm and forest resource
lands. To determine which lands were already committed to development,
aerial photography at a scale of 2"=1 mile were obtained and used as a base
map. Areas of concern not covered by the aerial photography were few and in
these instances other maps were obtained.
Land was determined to be committed to residential use, resource use or
uncommitted. La Pine, greater Redmond and Bend areas were analyzed and
a plan for the exception lands completed. The Rural Service Centers were
also analyzed and planned. A total of 41,556 acres were excepted as
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Chapter 1: Comprehensive Planning - Goal Exceptions
residentially developed, committed to development or needed for Rural
Service Centers.
In the 1979 exceptions analysis, Deschutes County did not propose large
areas for rural development, but rather acknowledged existing development
and attempted to seek reasonable ways to deal with those lands. Many areas
which had some development, but not enough to justify identification as
committed lands, were placed in resource zones which will permit non-
resource uses only by conditional use on non-productive sites.
Bend Municipal Airport Exception
An exception to Statewide Planning Goal 3 was taken as part of the 1979
Comprehensive Plan (PL-20) to accommodate the Bend Airport. The Bend
Airport Master Plan, as approved by the Federal Aviation Administration, set
forth the basic policies relating to the Bend Airport. These policies are on
equal footing with other policies within the Deschutes County Comprehensive
Plan, and are to be used by the decision makers as they interpret the plan and
weigh various alternatives.
The Bend Municipal Airport was determined to be a necessary facility for
Deschutes County. Based on the long-standing existence of the Bend airport,
an exception for the Airport was not required. However, the Airport's ability to
expand needed to be provided for, which led the County to take an exception
to Goal 3.
La Pine UUC Boundary
In conjunction with approval of PA 9-7 and ZC 97-4, a plan amendment and
zone change for an area of land zoned exclusive farm use and. physically
developed with the Mid State Electric Co-op, Inc. Facility, exceptions to
Statewide Planning Goal 3, Agricultural Land, Goal 11, Public Facilities and
Services and Goal 14, Urbanization were taken. The goal exceptions allowed
the subject land to be included in the La Pine UUC boundary and planned and
zoned for commercial use. Findings to support the goal exceptions for this
land are set forth in Exhibit "C" to Ordinance 98-001, incorporated herein by
reference.
Spring River Rural Service Center
A reasons exception was taken from Goal 14 to allow for the establishment of
the Spring River Rural Service Center on residential-designated lands for
which an exception had already been taken from Goals 3 and 4. (note: Spring
River as of 2008 is designated Rural Commercial.) The rural service center
was approved because the Board of County Commissioners found that it
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Chapter 1: Comprehensive Planning - Goal Exceptions
would primarily serve the needs of the residents of nearby subdivisions, such
as Deschutes River Recreational Homesites. Findings to support the reasons
exception to Goal 14 were made in Paragraph 7 of the Board of County
Commissioners' decision (attached to Ordinances 90-009 and 90-010) and
those findings are incorporated by reference herein. Findings to support the
reasons exception accompanying Ordinances 96-022 were made on Pages 12
- 18 of the Hearings Officer's findings supporting that decision and those
findings are incorporated herein by reference.
To ensure that uses in the rural service center would be limited in a manner to
comply with a Goal 14 exception, a limited use combining zone was imposed,
by which the allowed uses were limited to a list of specific uses. Those uses
are listed in the Rural Service Center section of Chapter 4 of this
comprehensive plan and also in the zoning ordinance. Additional uses were
added to the Zone by Ordinances 96-022 and 96-045. Findings to support the
reasons exception accompanying Ordinance 96-045 were made on pages 12-
18 of the Hearings Officer's findings supporting that decision and those
findings are incorporated herein by reference.
Burgess Road and Highway 97
In conjunction with approval of CU-94-44, for the construction of a road
improvement project at the intersection of Burgess Road with Highway 97, an
exception to Statewide Planning Goal 4, Forest Lands, was taken to allow for
the subject road improvement on forest land. Reasons justifying why the state
policy embodied in Goal 4 should not apply in this situation are as set forth in
Exhibit C to Ordinance 97-060, which findings are incorporated herein by
reference.
Rural Industrial Zone
In conjunction with approval of PA-98-2/ZC-98-1, an "irrevocably committed"
exception to Statewide Planning Goal 3, Agricultural Lands, and a reasons
exception to Goal 14 was taken to allow for the comprehensive plan and zone
change on agricultural land. The plan amendment and zone change will allow
a Rural Industrial plan and zoning designation with a Limited Use Combining
Zone for the specific use of storage, crushing, processing, sale and distribution
of pumice only. Reasons justifying why the state policy embodied in Goal 3
should not apply in this situation are set forth in Exhibit "D" to Ordinance 98-
081, which findings are incorporated herein.
Prineville Railway
In conjunction with approval of PA 97-9/ZC 97-5, an exception to Statewide
Planning Goal 3, Agricultural Lands, was taken to allow for the subject
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comprehensive plan and zone change on agricultural land. The plan
amendment and zone change will accommodate the relocation of the
Redmond Railway Depot to the subject property and the use of this site for an
historic structure to be utilized in conjunction with the Crooked River Dinner
train operation. Reasons justifying why the state policy embodied in Goal 3
should not apply in this situation are set forth in Exhibit "D" to ordinance 98-
017, which findings are incorporated herein by reference.
Resort Communities
In conjunction with approval of PA-98-5 and TA-98-9, an exception to
Statewide Planning Goal 4, Forest Lands, was taken for the Black Butte
Ranch and The Inn of the Seventh Mountain / Widgi Creek resort
communities. These exceptions were taken at the same time that both resorts
were designated "Resort Communities" under the State rules for
unincorporated communities, OAR 660-022.
A "reasons" exception was taken for Black Butte Ranch (the Ranch) to justify
the addition of 80 acres of land to the resort community boundary. A
"physically developed" exception was taken for The Inn of the Seventh
Mountain/Widgi Creek (the Inn/Widgi) in recognition that this resort is for all
practical purposes fully developed.
The 80-acre addition to the Ranch is now zoned as a Surface Mining /Limited
Use Combining District (38 acres) and a Utility /Limited Use Combining District
(44 acres). The uses allowed are limited to those indicated in the County
Zoning Ordinance, DCC 18. Any additional uses will only be allowed if an
additional plan amendment (including exceptions findings) and text
amendment are approved that justify such uses.
The findings to support these exceptions are set forth in Exhibit "H" to
Ordinance No. 2001-047. These findings are incorporated herein by reference.
The uses allowed in these communities are set forth in Exhibit "B" to
Ordinance No. 2001-048.
Barclay Meadows Business Park
In conjunction with approval of PA-99-4/ZC-99-1, a "reasons" exception to
Statewide Planning Goal 3, Agricultural Lands, was taken to include certain
property within the City of Sisters Urban Growth Boundary (UGB). Reasons
justifying why the state policy embodied in Goal 3 should not apply in this
situation are set forth in Exhibit "C" to Ordinance 2003-010, which findings are
incorporated herein by reference.
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. Chapter 1: Comprehensive Planning - Goal Exceptions
Sisters School District #6
In conjunction with approval of PA-99-5/ZC-99-3, a "reasons" exception to
Statewide Planning Goal 3, Agricultural Lands, was taken to include certain
property within the City of Sisters Urban Growth Boundary (UGB). Reasons
justifying why the state policy embodied in Goal 3 should not apply in this
situation are set forth in Exhibit "C" to Ordinance 2003-013, which findings are
incorporated herein by reference.
Sisters Organization of Activities and Recreation and
Sisters School District #6
In conjunction with approval of PA-01-4/ZC-01-4, a "reasons" exception to
Statewide Planning Goal 4, Forest Lands, was taken to include certain
property within the City of Sisters Urban Growth Boundary (UGB). Reasons
justifying why the state policy embodied in Goal 4 should not apply in this
situation are set forth in Exhibit "C" to Ordinance 2003-016, which findings are
incorporated herein by reference.
Oregon Water Wonderland Unit 2 Sewer District
In conjunction with the Board's approval of County file nos. PA-02-5/ZC-02-3,
a "reasons" exception to Statewide Planning Goals 4, Forest Lands, and 11,
Public Facilities & Services, was taken for certain property. The plan
amendment changed the plan designation to Rural Residential Exception Area
and the zone change changed the zoning to Rural Residential with a Limited
Use Combing Zone to allow only the uses approved through the Board's
decision on PA-02-5/ZC-02-3. Reasons justifying why the state policies
embodied in Goals 4 and 11 should not apply in this situation are set forth in
Exhibit "C" to Ordinance 2003-012, which findings are incorporated herein by
reference.
City of Bend Urban Growth Boundary Amendment
(Juniper Ridge)
In conjunction with approval of PA-04-2, for the amendment of the City of
Bend urban growth boundary to include 513 acres of land for industrial
purposes, an exception to Statewide Planning Goal 3, Agriculture, was taken
to allow for the subject amendment of the city's urban growth boundary.
Reasons justifying why the state policy embodied in Goal 3 should not apply in
this situation are as set forth in Exhibit D to Ordinance 2004-017, which
findings are incorporated herein by reference.
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Joyce Coats Revocable Trust Johnson Road and
Tumalo Reservoir Road Properties
In conjunction with approval of PA-04-4/ZC-04-2, an "irrevocably committed"
exception to Statewide Planning Goal 3, Agricultural Lands was taken to allow
for the rezoning of Surface Mine Sites 306 and 307 from Surface Mining (SM)
to Multiple Use Agriculture (MUA10) and change of comprehensive plan
designation from Surface Mine (SM) to Rural Residential Exception Area
(RREA). Additionally, the County determined that Surface Mine Site 306 is
non-resource land. Reasons justifying why the state policy embodied in Goal 3
should not apply in this situation are set forth in Exhibit "E" to Ordinance 2005-
031, which findings are incorporated herein.
Watson/ Generations Development Inc.
In conjunction with approval of CU-04-97/RC-05-2, an exception to Statewide
Planning Goal 3, Agricultural Lands, was taken to include a portion of a certain
property zoned Exclusive Farm Use Tumalo/Redmond/Bend Subzone (EFU-
TRB). Reason, justifying why the state policy embodied in Goal 3 should not
apply in this situation are set forth in Exhibit "B" to Ordinance 2005-015, which
findings are incorporated herein by reference.
Oregon Department of Transportation
In conjunction with approval of CU-04-113, an exception to Statewide Planning
Goal 3, Agricultural Lands, was taken to include a portion of a certain property
zoned Exclusive Farm Use Tumalo/Redmond/Bend Subzone (EFU-TRB).
Reasons justifying why the state policy embodied in Goal 3 should not apply in
this situation are set forth in Exhibit "B" to Ordinance 2005-019, which findings
are incorporated herein by reference.
Conklin / Eady Property
In conjunction with approval of PA05-3, an exception to Statewide Planning
Goal 3, Agricultural Lands, was taken to include a portion of a certain property
zoned Exclusive Farm Use Sisters-Cloverdale (EFU-S/C). Reasons justifying
why the state policy embodied in Goal 3 should not apply in this situation are
set forth in Exhibit "C" to Ordinance 2005-035, which findings are incorporated
herein by reference.
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Chapter 1: Comprehensive Planning - Goal Exceptions
City of Sisters Property
In conjunction with approval of PA05-3, an exception to Statewide Planning
Goal 4, Forests Lands, was taken to include a portion of a certain property
zoned Forest 1 (F1). Reasons justifying why the state policy embodied in Goal
4 should not apply in this situation are set forth in Exhibit "C" to Ordinance
2005-037, which findings are incorporated herein by reference.
McKenize Meadows Property
In conjunction with approval of PA05-3, an exception to Statewide Planning
Goal 4, Forests Lands, was taken to include a portion of a certain property
zoned Forest 2 (F2). Reasons justifying why the state policy embodied in Goal
4 should not apply in this situation are set forth in Exhibit "C" to Ordinance
2005-039, which findings are incorporated herein by reference.
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Chapter 1: Comprehensive Planning - Citizen Involvement
Citizen Involvement Goals & Policies
Goals
1. To promote and maintain better communication between the
community's various segments (i.e., governmental agencies, business
groups, special districts and the general public).
2. To provide the opportunity for the public to identify issues of concern and
encourage their involvement in planning to address those issues.
3. To serve as a liaison between elected and appointed bodies and citizens
of the county.
4. To provide educational opportunities for the people to learn about
planning and how it may be used to assist their community and
themselves.
Policies
1. To assure that county and appointed officials are aware of citizen needs
and attitudes and to permit effective two-way communication, the County
shall perform the following:
a. Conduct surveys as needed regarding citizen needs, attitudes and
characteristics;
b. Sponsor workshops and presentations by known specialists and
experts;
c. Prepare pamphlets explaining routine planning procedures;
d. Write and distribute information newsletters;
e. Prepare and present slide shows and/or films on such topics as
growth versus conservation, the subdivision process, and the
usefulness of planning; and
f. Make presentations to special groups and school children.
2. The County Planning Commission will be the Citizen Involvement
Committee to review and change the County's Citizen Involvement
Program so as to ensure its continued efficiency and usefulness.
3. Between updates, special committees representative of geographic
areas or possessing special knowledge of specific topic shall be formed
to assist with planning studies.
4. The County Planning Commission shall be kept aware of the activities
and results of the special committees and will be informed of studies and
activities of the County Planning Division which will assist them in the
role as advisors.
5. Primary responsibility for coordination between the County, public, and
other agencies shall be the county local coordinator. It shall also be the
Planning Director's responsibility to assure the Planning Division studies
are provided to members of the County Planning Commission.
Working Draft Deschutes County Comprehensive Plan
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Chapter 1: Comprehensive Planning - Citizen Involvement
6. During each plan update process, a committee broadly representative of
the county's areas and interests shall be formed. The actual make-up of
the committee will be determined by the Board of County Commissioners
based upon a report by the County Planning Director regarding the
issues and concerns needing addressing during the update process. If
during the update process, additional issues are raised, the Board of
County Commissioners may change the composition of the update
committee to assure those new concerns are adequately addressed.
7. The plan update process shall occur at least every five years and be
open to public view and involvement; public hearings to ascertain citizen
views shall be held at the beginning and end of the process.
8. The County may, as required, change its Citizen Involvement Program to
assure public involvement and access to information at all stages of the
planning process and provide for an efficient and effective planning
program.
Working Draft Deschutes County Comprehensive Plan
Page 1-34 Draft 5-14-08
Chapter 1: Comprehensive Planning - Citizen Involvement
Citizen Involvement
Profile
Background
The preparation of a comprehensive plan requires great amounts of time and
involvement by the public if the plan is to be truly reflective of the people's
needs and desires. Deschutes County was fortunate to have had such an
extensive community involvement in the preparation of this plan. However, it is
equally important to have continued public involvement in the updating and
implementing of the comprehensive plan and its attendant ordinances.
Deschutes County needs to continue to productively involve people in the
ongoing planning process.
This Section
implements Statewide
Planning Goal 1:
Citizen Involvement
Working Draft Deschutes County Comprehensive Plan
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Deschutes County Comprehensive Plan
Chapter 2: Resource Management
Table of Contents
Agricultural Lands 2-2
Forest Lands 2-8
Open Spaces, Areas of Special Concern and Environmental Quality..... 2-11
Fish and Wildlife 2-17
Water Resources 2-22
Deschutes River Corridor 2-25
Energy 2-41
Surface Mining 2-50
Historic and Cultural 2-61
Regional Problem Solving for south Deschutes County 2-71
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1~-~ ` 1 +c~-~4 e
_ j *T!r.~-t
Chapter 2: Resource Management - Agricultural Lands
Agricultural lands
Goal
To preserve and maintain agricultural land.
Policies
Goals & :Policies
1. All lands meeting the definition of agricultural lands shall be zoned
Exclusive Farm Use, unless an exception to State goal 3 is obtained so
that the zoning may be Multiple Use Agriculture or Rural Residential.
2. Lands not meeting the agricultural lands definition but having potential
for irrigation according to the Bureau of Reclamation Special Report -
Deschutes Project, Central Division, Oregon, although presently without
water, shall receive exclusive farm use zoning.
3. Public lands meeting the criteria for EFU zoning shall be so zoned unless
some other resource (i.e., forest) or public use exists on the land.
4. No more than 25 percent of a given agricultural subzone shall be
composed of lands not of the same agricultural type. Any agricultural
lands not zoned EFU agriculture shall be identified in the County
Exception Statement. Zoning districts shall be at least 40 acres in size.
5. Zones and minimum parcel sizes shall be established to assure the
preservation of the existing commercial agricultural enterprise of the
area.
6. For purposes of profiling the existing commercial agricultural enterprises
of the County, the County shall consider as one land unit all tracts in
contiguous ownership (including those parcels separated only by a road)
zoned EFU.
7. The County will consider as its pool for profiling the nature of the existing
agricultural enterprises of the area those farms that make the highest
90% contribution to the local agricultural economy.
8. In recognition that irrigated acres per farm unit is the key variable
identifying commercial agricultural enterprises in the County, the County
shall use the median number of irrigated acres per farm unit in the area
or subzone as its principal standard for defining what size of tract
constitutes a farm parcel.
9. Following from the June 1992 Oregon State University(OSU) Extension
Service completion report detailed in the resource element, the County
has identified 7 subzones representing distinct groupings of agricultural
types. The County's EFU zoning shall reflect those identified subzones,
generally described as follows and as more particularly detailed in the
Resource Element of the Comprehensive Plan:
Working Draft Deschutes County Comprehensive Plan
Page 2-2 Draft 5-14-08
Chapter 2: Resource Management - Agricultural Lands
Exclusive Farm Use Subzones
Subzone Name
Pro ale
Lower Bridge
Irrigated field crops, hay and pasture
Sisters/Cloverdale
Irrigated alfalfa, hay and pasture, wooded grazing and
some field crops
Terrebonne
Irrigated hay and pasture
Tumalo/Redmond/Bend
Irrigated pasture and some hay
Alfalfa
Irrigated hay and pasture
La Pine
Riparian meadows, grazing and meadow hay
Horse Ridge East
Rangeland grazing
Source: Deschutes County Resource Element
10. For the purposes of determining relevant characteristics (i.e., farm use
values, multipliers, irrigated acres and assessed farm use values) of
commercial farms, the County will rely on those farms and those
statistics identified in the completion report prepared by the OSU
Extension Service dated June 1992 and set forth in the Resource
Element of the Comprehensive Plan.
11. In order to provide some flexibility in the zoning and to assist farmers
who may need to sell an isolated unproductive piece of land in order to
assure continued operation of the farm, individual isolated partitions
(creation of one or two new nonfarm parcels) establishing parcels less
than the EFU irrigated minimum lot size in EFU areas shall be permitted.
The remaining farm parcel must be at least the irrigated minimum
established by the EFU subzone.
12. In order to provide some flexibility in the zoning, while still maintaining
the rural character of the area and limiting the costs of providing services
to rural residents, the county shall allow non-farm residential divisions on
nonirrigated land, in accordance with state law, with a minimum lot size
of five acres.
13. So that a farmer who has lived on his land for 10 years or more may
retire and sell his property while retaining the use of his existing home, a
homestead exception may be permitted which allows the homesteader to
retain a life estate lease on the home and some of the surrounding land.
The lease will end with the death(s) of the homesteader and spouse.
This exception shall not permit the creation of another residence on the
property in question.
14. A division of land for non-farm uses, except dwellings, may be approved
as long as the parcel for the non-farm use is no larger than the minimum
size necessary for the use. The parcel shall be at least one acre in size.
15. Parcel size exceptions may be granted because of survey errors when
original section lines were established, so that standard section divisions
may be achieved (i.e., 160, 80, 40, 10, etc., acres). Man-made barriers
such as roads or canals, over which the applicant has no control, may
serve as adequate justification for granting a parcel (lot) size variance.
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Chapter 2: Resource Management - Agricultural Lands
16. Normal agricultural practices (i.e., aerial pesticide applications,
machinery dust and noise, etc.) shall not be restricted by non-agricultural
interests in exclusive farm use zones. The County shall consider
requiring noise, dust, fly, etc., easements to be granted to adjoining
farmers where non-agricultural uses are permitted.
17. Coordination between public and private landowners to encourage farm
use shall be encouraged. And projects to increase productivity and to
bring new land into agricultural production shall be fostered.
18. Control of noxious weeds through educational programs should be
continued.
19. Farm and non-farm uses in rural areas shall be consistent with the
conservation of soil and water.
20. Prior to the next periodic review of its comprehensive plan and to the
extent allowed by state law, the County Planning Department shall
initiate a study of EFU-zoned lands to develop a recommendation as to
whether marginal lands or secondary lands would be appropriate.
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Chapter 2: Resource Management - Agricultural Lands
Agricultural lands Profile
Background
In Oregon, Statewide Planning Goal 3 sets farmland protection standards
which must be met by local governments. Oregon Revised Statute 215 and
197 and Oregon Administrative Rule 660, Division 33 set forth the criteria for
compliance. The primary concept is that standards in the Exclusive Farm Use
(EFU) zones must provide protection for the continuation of commercial-scale
agriculture in the County, including farm operations, marketing outlets and the
agricultural support system.
State Statutes define which lands should be considered farm lands and what
uses are permissible on those lands. In Deschutes County, where some lands
have severe limitations for the commercial production of agricultural products,
this has resulted in considerable debate between those who do not wish to
protect what they see as marginal agricultural land and those who are
adamant that agricultural land is a non-renewable resource that must be
preserved.
Commercial agriculture in the County consists primarily of field crops (alfalfa,
other hay, some peppermint, potatoes and seed crops) and livestock
operations. The high elevation (2700-3500 feet) and low rainfall make difficult
conditions for crop farming. A short growing season and the risk of crop
damage from frost or mid-summer hailstorms must be factored into agriculture
investment planning. Without irrigation, little soil is classified better than Soil
Conservation Service (SCS) Soil Capability Class IV. These factors, along with
limited marketing alternatives, often produce a frustrating experience for local
farmers, although some do manage to be successful.
This Section implements
Still, agriculture remains an important economic
element of the County, contributing significantly to
State Planning Goal 3:
the local economy. Agriculture also provides
Agricultural Lands
secondary benefits such as open space and scenic
appearance; benefits which may also pay economic
returns in the form of tourist dollars.
Agricultural Lands 1979
Agricultural land is defined initially through soils classification. When this plan
was written in 1979, detailed soils mapping existed only for a portion of the
County. Consequently it was necessary to develop a more elaborate definition
than that found in the Goal 3. The definition finally agreed to by the County
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Agricultural Lands
used the available information on agricultural lands and allowed for future
additions or deletions as better soils information became available.
Agricultural lands were defined as those lands possessing Soil Conservation
Service Agricultural Capability Class I-VI soils (SCS Land Capabilities
Classification Map) or, where detailed soils information was not available, land
identified by having been listed as on Farm Tax Deferral within the five years
preceding the adoption of the 1979 plan (as indicated on the Existing Land
Use Map compiled from County Assessor's records) and/or by the fact that the
land was indicated on the County Planning Department's Irrigated Lands Map.
Having a definition was only the first step, as it was then necessary to
differentiate between the various types of agriculture to be found locally and to
identify the various areas they characterized. Members of the Planning Staff,
the Agricultural Citizen Advisory Committee and the Overall Citizen Advisory
Committee identified seven types of agriculture and the areas characterized by
such agriculture. These types included:
1. High Desert Sagebrush and Juniper Land: located east of Horse Ridge
and characterized by extensive livestock grazing;
2. Riparian Meadows: located along the Upper Deschutes River, the Little
Deschutes River and in the Sisters area and characterized by sub-
irrigated pasture and meadow hay;
3. Irrigated Commercial Crop Land: located in Lower Bridge and
characterized by field crops;
4. Irrigated Marginally Commercial Land: located in the Alfalfa, Cloverdale
and Terrebonne areas and characterized by pasture and forage;
5. Dry Rangeland: located near Odin Falls and characterized by dry land
grazing;
6. Marginal Farm Land - Undeveloped: located east of Bend and near
Redmond, Tumalo and Sisters and characterized by pasture and forage;
and
7. Marginal Farm Land - Developed: located in the Bend, Plainview and
Tumalo areas and characterized by pasture and forage.
Periodic Review Revisions
As part of periodic review in 1992, the County conducted a study of
commercial agriculture in Deschutes County. The purpose of the study was to
ensure that EFU zone boundaries and standards for farm divisions and
dwellings were consistent with Goal 3 and relevant administrative rules. The
results of the study are detailed in the completion report dated June 1992, and
are incorporated into the Resource Element of the Comprehensive Plan. The
study identified seven agricultural subzones: Lower Bridge, Sisters/Cloverdale,
Tumalo/Redmond/Bend, Terrebonne, Alfalfa, La Pine and Horse Ridge East.
For each subzone, standards were determined for minimum parcel sizes for
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Chapter 2: Resource Management - Agricultural Lands
farm divisions. The standards are designed to protect the commercial
agriculture land base.
One of the primary findings of the study was that in Deschutes County the
controlling variable for defining commercial agriculture was irrigated acres.
Therefore, the standard for defining what constitutes a farm parcel was keyed
to the number of irrigated acres typically found on commercial farms in each
subzone. The study also found that farms in Deschutes County usually
contained a mix of irrigated and nonirrigated land, as well as a mix of soils of
different classes. Since the assessed farm use value was linked to the
productive capability of property, it provided a surrogate for irrigated acres by
acknowledging the presence and role of unirrigated soils in farm operations.
The assessed farm use value could be used in place of the irrigated acreage
figure where the land value was set to equal that of the irrigated land (i.e.,
median irrigated acres in subzone x farm use value of best irrigated land in
subzone = threshold assessed
land value).
Notwithstanding the preceding, the
La Pine Subzone was seen as
somewhat different from the other
subzones, in that farm sales were
less than farm use values. In
general, this was due to
agricultural practices that
depended to a much greater
degree than in the other subzones on livestock grazing on non-irrigated
pasture. To address this situation, median irrigated acreage and median
assessed farm use value were used to set the basic commercial standards.
Following the completion of the 1992 farm study and submission of the
County's periodic review package to the Land Conservation and Development
Commission (LCDC), the Oregon legislative session and LCDC amended the
statutes and rules governing uses in the farm zones. The County's ordinances
and the policies that follow were amended as necessary to conform to those
changes.
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource
Forest Lands
Goal.
To conserve forest lands for forest uses.
Policies.
CG:oals 1. Deschutes County shall designate forest lands on the comprehensive
plan map consistent with Goal 4 and OAR 660, Division 6.
2. Deschutes County shall zone forest lands for uses allowed pursuant to
OAR 660, Division 6. In addition to forest practices and operations and
uses auxiliary to forest practices, as set forth in ORS 527.722,
Deschutes County shall allow in 'the forest environment the following
general types of uses:
a. Uses related to, and in support of, forest operations;
b. Uses to conserve soil, air and water quality and to provide for fish
and wildlife resources, agriculture and recreational opportunities
appropriate in a forest environment;
c. Locationally dependent uses such as communication towers, mineral
and aggregate resources use, etc.;
d. Dwellings authorized by ORS 215.720 to 215.750; and
e. Other dwellings under prescribed conditions.
3. In order to conserve and maintain the unimpacted forest land base for
forest use the County shall identify and zone as F-1 those lands which
have the following characteristics:
a. Consist predominantly of ownerships not developed by residences or
non-forest uses.
b. Consist predominantly of contiguous ownerships of 160 acres or
larger in size.
c. Consist predominantly of ownerships contiguous to other lands
utilized for commercial forest or commercial farm uses.
d. Accessed by arterial roads or roads intended primarily for forest
management.
e. Primarily under forest management.
4. In order to conserve and maintain impacted forest lands for forest use
the County shall identify and zone as F-2 those lands which have the
following characteristics:
f. Consist predominantly of ownerships developed for residential or
other non-forest uses;
g. Consist predominantly of ownerships less than 160 acres in size;
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ment - Forest Lands
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2: Resource Management - Forest Lands
5
6
7.
8.
h. Consist of ownerships generally contiguous to tracts containing less
than 160 acres and residences, or adjacent to acknowledged
exception areas;
i. Provided with a level of public facilities and services, including roads,
intended primarily for direct services to rural residences.
Except as identified in this plan non-forest uses shall be discouraged in
existing forested areas.
Forest management in Deschutes County shall be governed by the
Oregon State Forest Practices Act.
Better coordination and cooperation between the U.S. Forest Service
and Deschutes County shall be fostered, particularly as it relates to
restrictive use of such Forest Service lands as Mt. Bachelor Ski Area and
the Bend Watershed. As a basis for mutual cooperation and
coordination, the Land Management Plan for the Deschutes National
forest shall be used.
Notwithstanding any other quasi-judicial plan or zone change criteria,
lands designated as Forest under the Plan and zoned Forest Use 2
under the zoning ordinance may upon application be redesignated under
the Plan from Forest to Agriculture and rezoned under the zoning
ordinance from Forest Use 2 to Exclusive Farm Use if such lands:
a. Do not qualify under state law for forestland tax deferral,
b. Are not necessary to permit forest operations or practices on
adjoining lands and do not constitute forested lands that maintain
soil, air, water and fish and wildlife resources,
c. Have soils on the property that fall within the definition of agricultural
lands as set forth in Goal 3,
d. Are a tract of land 40 acres or less in size,
e. Do not qualify under state law and the terms of the Forest Use 2
Zone for a dwelling, and;
f. Were purchased by the property owner after January 1, 1985 but
before November 4, 1993. Such changes may be made regardless
of the size of the resulting EFU-Zoning district. Such changes shall
be processed in the same manner as other quasi-judicial plan or
zoning map changes.
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Chapter 2: Resource Management - Forest Lands
Forest Lands CProfile
Background
When this plan was adopted in 1979, much of the beauty, as well as the
employment, in Deschutes County was directly related to the large expanse of
forestland. This resource was of particular importance to the County's two
major industries, timber/wood products and tourism. The great majority of the
timber harvested consisted of Ponderosa and Lodgepole pine.
However, there was an increasing threat to local timber supplies created by
scattered developments occurring in forested areas, especially where fire
protection was unavailable. State Planning Goal 4: Forest Lands, was
intended to address those concerns.
In order to meet the Goal 4 requirement for
an adequate inventory of forest lands site
capability, the County Planning Department
worked with the State Department of
Forestry. The resulting capabilities map is
found in the Resource Element. As shown
on the map, most of the land with high
through moderate capability lies in the
Deschutes National Forest.
Periodic Review Revisions
Subsequent to the acknowledgement of the County's plan in 1981, the
Department of Land Conservation and Development initiated an administrative
rule setting forth allowed uses, siting conditions and minimum lot sizes in
forest zones (forest rule). Previous to that enactment, there was no uniform
criteria embodied in state law other than Goal 4's general policy guidance
regulating forest zones. The rule required that Counties implement its
provisions no later than the time set for periodic review.
In 1992, as part of periodic review of its comprehensive plan and zoning
ordinances, the County proceeded to implement the forest rule by revising its
forest zones. At the same time, the Forest Lands Goals and Policies in the
Comprehensive Plan were reviewed and revised
This Section implements to conform to the forest rule provisions. The
State Planning Goal 4: Forest Goal and Policies, as amended by
Forest Lands Ordinance 92-024 and 94-037, reflect the forest
rule.
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Open Spaces, Areas of Special Concern and
Environmental Quality
Open Spaces, Areas of
Special Concern, and Goals & Policies
Environmental Quality
(see also the Deschutes River Corridor section on page 2-25 for additional
policies)
Goals
1. To conserve open spaces and areas of historic, natural or scenic
resources.
2. To maintain and improve the quality of the air, water and land resources
of Deschutes County.
However, despite general consensus that the environmental quality and
amenities are important to this area's people, as well as to people statewide,
there is also concern that regulation and policies to protect that environment
could become too restrictive. The following policies have been developed with
the intent of reaching the identified goals, but in ways that restrict only as is
necessary and with consideration of the individuals who may be affected by
the needs of the public.
Policies
1. On lands outside urban growth boundaries and rural service centers
along Highway 97, 20 and 126, as well as along Century Drive, South
Century Drive, portions of Three Creeks Lake Road, Fall River Road,
roads from Highway 97 to Smith Rocks, Pine Mountain Road and
roadways for which landscape management is prescribed on the 1990
Comprehensive Plan, a case-by-case site plan review shall be required.
This area is to extend 1/4 mile on either side from the centerline of
roadways, and shall include all areas designated as State and Federal
Wild, Scenic or Recreational Waterways and within 660 feet from either
side of designated rivers and streams as measured from the ordinary
high water level.
2. Deschutes County shall include areas outside of the urban growth
boundaries and rural service centers and within 1/4 mile of the centerline
of the following roads in the Landscape Management Zone.
a. U.S. Highway #97
i. North County Line to Redmond UGB
ii. Redmond UGB to Bend UGB
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Open Spaces, Areas of Special Concern and
Environmental Quality
3.
4.
5.
6.
iii. Bend UGB to South County Line
b. U.S. Highway #20-126: North County Line to Sister UGB
c. U.S. Highway #126: Sisters UGB to Redmond UGB
d. U.S. Highway #20: Sisters UGB to Bend UGB
e. Smith Rock Road: Highway #97 to Smith Rock
f. Sisemore Road: From Cloverdale to Bend UGB
g. Skyliner Road
h. Century Drive: Bend to Mr. Bachelor
i. South Century Drive
j. Cascade Lakes Highway
k. Waldo Lake Road
1. Cultus Lake Road
m. Little Cultus Lake Road
n. Twin Lakes Road
o. Keefer Road (East Crane Prairie Road)
p. East Deschutes Road
q. Deschutes Road
r. Wickiup Road
s. Pringle Falls Loop
t. La Pine Recreation Area Access Road
u. Pauline-East Lake Road
v. Lava Cast Forest Road
w. Highway #20 East to the County Line
x. Pine Mountain Road
y. Ford Road
z. Three Creek Lakes Road
aa. Three Trappers Road
bb. Dillon Falls Road
cc. Matsen Road
dd. State Highway #31
ee. Road to Benham Falls
ff. State Highway 242 McKenzie Highway
Within the Landscape Management Zone, new structures or additions to
existing structures (excluding fences or structures less than $1,000.00 in
total value) shall be subject to landscape management site plan review
by the County prior to issuance of a building permit.
Approval of any such development in the Landscape Management Zone
will be dependent on site screening by existing natural cover and/or
compatibility with the landscape as seen from the river, stream or road.
Outdoor advertising signs should be informational only and oversized
displays discouraged.
The primary purpose of the landscape management site plan review
shall be to obtain a structure as compatible with the site and existing
scenic vistas as is possible, rather than to establish arbitrary standards
for appearance or to otherwise restrict construction of appropriate
structures.
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Chapter 2: Resource Management - Open Spaces, Areas of Special Concern and
Environmental Qualitv
7. Rimrocks, along streams shall receive special review to assure that
visual impacts of structures viewed from rivers or streams are minimized.
A 50-foot setback shall be required from rimrocks on all newly created
lots. Existing lots may receive exceptions to rimrock setbacks subject to
conformance with criteria which individually review the structure, location
and consider impacts in a manner which minimize the visual impact of
the structure when viewed from the river or stream.
8. Public ownership of scenic, open space and historic areas should be
maintained and increased where feasible, and a variety of open space
and recreational sites should be maintained to protect the existing
natural diversity and to serve the varying needs of both tourists and
residents. The natural capabilities of each site should determine its level
of use.
9. The concepts of developmental rights transfer, tax credits and
conservation easements as ways to protect open space should be
studied and encouraged at both local and State levels.
10. As part of subdivision or other development review the County shall
consider the impact of the proposal on the air, water, scenic and natural
resources of the County. Specific criteria for such review should be
developed. Compatibility of the development with those resources shall
be required as deemed appropriate at the time given the importance of
those resources to the County while considering the public need for the
proposed development.
11. Because management of State and Federal lands affects areas under
the County's jurisdiction and vice versa, better coordination of land use
planning between the County, U.S. Forest Service, State Land Board,
Bureau of Land Management and other agencies shall be sought.
12. Zoning should be established to protect areas of special interest such as
eagle nests, endangered species areas or points of geologic interest.
13. Because of their slow growth and usefulness as a visual and noise buffer
and their relationship to air quality, tree removal from utility lines, sewers,
roads and other construction shall be minimized by planning for the
continued maintenance of the streets in the development. All
development proposals will be reviewed for this factor by the County
Planning staff before approval of the applicant's development.
14. Although DEQ has existing environmental standards with which the
County shall coordinate, in instances where such standards are
inadequate or non-applicable because of local conditions, the County
may establish more stringent regulations. Noise regulations are an
example of such program.
15. Deschutes County shall prior to December 21, 1994 complete a Goal 5
review in accordance with OAR 660-16-000 for the "1 B" Areas of Special
Concern identified in the Areas of Special Concern inventory of the
Resource Element, adopted by Ordinance 92-052.
16. The County shall conduct an inventory of outstanding scenic resources
not sufficiently protected by the Landscape Management Zone. The
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Chapter 2: Resource Management - Open Spaces, Areas of Special Concern and
Environmental Quality
inventory shall be conducted in accordance with OAR 660-16.
Comprehensive Plan policies and implementing ordinances to protect
resources identified in the inventory shall be adopted prior to Department
of Land Conservation and Development initiation of the next periodic
review process, pursuant to ORS 197.633(3)(a).
17. The County shall encourage the formation of nonprofit land trusts for the
protection of open space, scenic and natural areas. The County should
provide support and assistance when deemed appropriate by the Board
of County Commissioners.
Working Draft Deschutes County Comprehensive Plan
Page 2-14 Draft 5-14-08
Chapter 2: Resource Management - Open Spaces, Areas of Special Concern and
Environmental Quality
Open Spaces, Areas of
Special Concern and Profile
Environmental Quality
Background
Open Space and Areas of Special Concern
When this plan was adopted in 1979, the scenic and natural environmental
qualities of the County were a major factor driving both population growth and
the local economy. Residents and tourists alike came here for the natural
beauty and high quality of the air and water. Equally appreciated were the
numerous and diverse areas of scenic, geological, archeological and biological
significance. Two major economic sectors, timber and agriculture, were also
connected to a healthy natural environment.
Areas considered open spaces included a wide variety of land uses. Parks,
agricultural and forest lands, natural areas, mining sites and historic areas as
well as scenic waterways and other locations of unique scenic, environmental,
social or cultural character were all counted. The interest in protecting scenic
views from roads, trails and waterways was instrumental in creating policies
that set standards for development along major roadways, rivers and streams.
Private lands suitable for open space designation were and continue to be
eligible for special property tax consideration (ORS 308A.300-330), because
they maintain high quality scenic environments for the benefit of the public.
In recognition that some areas in the County contain special assets, segments
of the Deschutes River in Deschutes
County were designated as a State
Scenic Waterway. Additionally,
a~ segments of the Deschutes River
,o x
w_ and Whychus (Squaw) Creek were
r ' r r f ` R designated as Federal Wild, Scenic
4 1, a _r`s*y x or Recreational River.
Environmental Quality
The Federal Environmental Protection Agency (EPA) and the Oregon
Department of Environmental Quality (DEQ) have existing standards and
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Open Spaces, Areas of Special Concern and
Environmental Quality
programs affecting air and water quality as well as noise levels. DEQ has
historically maintained an air and water quality-sampling program in
Deschutes County, which contributes to our understanding of existing and
changing conditions.
Air quality, when this plan was adopted, was generally good. However there
were a number of identified concerns such as surface inversions, topographic
conditions, certain activities (i.e., slash and field burning), wind-carried soils
and increasing population which were understood to have significant potential
for degrading local air quality without proper
management.
This Section implements
part of State Planning
Goal 5: Open Spaces,
Scenic and Historic
Areas and Natural
Resources and State
Planning Goal 6: Air,
Water and Land
Resources Quality
Some water pollution problems were identified,
specifically in the La Pine core area and in
Terrebonne. These two areas were looking at
developing sanitary sewer systems and treatment
facilities.
Working Draft Deschutes County Comprehensive Plan
Page 2-16 Draft 5-14-08
Chapter 2: Resource Management - Fish and Wildlife
Fish and Wildlife C =11ss Policies
(see also the Deschutes River Corridor section on
page 2-25 for additional goals and- policies)
Goals
1. To conserve and protect existing fish and wildlife areas.
2. To maintain all species at optimum levels to prevent serious depletion of
indigenous species.
3. To develop and manage the lands and waters of this County in a manner
that will enhance, where possible, the production and public enjoyment
of wildlife.
4. To develop and maintain public access to lands and waters and the
wildlife resources thereon.
5. To maintain wildlife diversity and habitats that support the wildlife
diversity in the County.
Policies
1. In light of the need to protect deer winter range and to be consistent with
plan policies restricting rural sprawl, the Metolius, North Paulina, Tumalo
and Grizzly deer winter ranges shall be protected by special zones. The
winter ranges shall be as designated on the Big Game Habitat - Wildlife
Area Combining Zone Map contained in this plan's Resource Element.
Within the winter ranges the minimum lot size shall be 40 acres, except
that in the Rural Residential Zone and the Multiple Use Agricultural Zone
planned or cluster developments are required for new land divisions. In
planned and cluster developments man's activities must be limited to 20
percent of the development's lands with 80 percent left as open space.
The density of planned and cluster developments shall be determined by
the underlying zone.
2. The County shall enforce an animal control ordinance which prohibits
dogs to be at large or not under the complete control of a capable
person.
3. In the Bend/La Pine deer migration corridor identified in the
Comprehensive Plan Resource Element, new land divisions, where the
underlying zone is Rural Residential - 10, shall be cluster developments.
4. Because public access to fish and wildlife areas is so important to the
economic and livability aspects of Deschutes County, walking easements
and periodic boat access points shall be provided in areas where public
river access is limited, as determined appropriate by the County and
State Department of Fish and Wildlife.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-17
Chapter 2: Resource Management - Fish and Wildlife
5. Consistent with Policy 4 and in order to protect the sensitive riparian
areas, as well as to protect people and property from flood damage, the
zoning ordinance shall prohibit development (except floating docks)
within 100 feet of the mean high water mark of a perennial or intermittent
stream or lake. Exceptions may be permitted on lots created prior to
November 1, 1979 where adherence to the 100-foot setback would
cause a hardship.
6. In addition to State and Federal laws, County ordinances shall require all
identified nesting sites for eagles, ospreys, prairie falcons or other
species listed on the Oregon State or Federal threatened or endangered
species list shall be protected.
7. Sensitive bird habitat sites (bald eagle, golden eagle, osprey, great grey
owl, prairie falcon nests, great blue heron rookeries, and sage grouse
leks) and mammal habitat sites (Townsend's big-eared bat hibernating
and nesting caves) identified in the Resource Element of this plan shall
be protected by a Sensitive Bird and Mammal Overlay Zone. A protection
program acceptable to the Oregon Department of Fish and Wildlife for
the nests or sites shall be submitted by the applicant for a development
or land use permit and used implemented during and after construction
of the development.
8. The antelope range and antelope winter range identified on the Big
Game Habitat-Wildlife Area Combining Zone Map included in the
Resource Element of this plan shall be protected by a wildlife area
combining zone. The minimum lot size for new parcels shall be 320
acres. The Rural Service Centers of Brothers, Hampton and Millican
shall be exempt from the provisions of the Wildlife Area Combining Zone.
9. The areas containing land identified as significant elk habitat on the Big
Game Habitat Map - Wildlife Area Combining Zone Map included in the
Resource Element of this plan shall be protected by a wildlife area
combining zone. The minimum lot size for new parcels shall be 160
acres in the combining zone.
10. The County shall notify the Oregon Department of Fish and Wildlife of all
land use applications for lands located in the WA Combining Zone or the
Sensitive Bird and Mammal Overlay Zone.
11. The County shall work with ODFW and the Deschutes Basin Resource
Committee to review existing protection of riparian and wetland area
vegetation and recommend comprehensive plan and ordinance
amendments, if necessary, by December 31, 1993.
12. When site specific information is available to the County on the location,
quality and quantity of threatened and endangered fish and wildlife
species listed by State or Federal wildlife agencies and the Oregon
Department of Fish and Wildlife develops protection criteria for the
species, the County shall proceed with a Goal 5 ESEE analysis in
compliance with OAR 660 Div. 16.
13. The County shall review the La Pine and Bull Flat elk habitat areas and
the Metolius deer migration corridor designated as 1 B" Goal 5 resources
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Fish and Wildlife
during the next periodic review or as additional information on the
location, quality and quantity of the habitat areas becomes available.
14. The County shall maintain an inventory of County-owned property in the
Bend/La Pine deer migration corridor. Prior to sale or exchange of
County owned property in the corridor, the County shall consult the
Oregon Department of Fish and Wildlife to determine the value of the
land for deer migration and make reasonable efforts to consolidate
properties to maintain habitat characteristics important to preserving the
migration corridor.
15. The County shall work with ODFW to identify specific areas where the
County and ODFW shall encourage public retention and acquisition of
land or seek conservation easements for the protection of the deer
migration corridor.
16. The County shall retain and encourage public ownership of significant
fish and wildlife habitat and riparian areas.
17. County-owned land shall be managed to protect and enhance fish and
wildlife habitat except where a conflicting public use outweighs the loss
of habitat.
18. The County shall notify the Oregon Division of State Lands and the
Oregon Department of Fish and Wildlife of any development applications
for land within a wetland identified on the National Wetlands Inventory
maps.
19. The County shall encourage the formation of nonprofit land trusts for the
protection of fish and wildlife habitat, wetland, riparian and natural areas.
The County should provide support and assistance when deemed
appropriate by the Board of County Commissioners.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-19
Chapter 2: Resource Management - Fish and Wildlife
Profile
Fish and Wildlife
Background
When this plan was written in 1979, the protection of fish and wildlife
resources was an on-going controversy in Deschutes County. Both those
committed to the protection of the fish and wildlife and those who wished to
develop in sensitive wildlife areas, pressed their positions, sometimes resulting
in court action to resolve the conflict.
In committee discussions and public testimony, the community expressed
concern that local fish and wildlife resources be protected. It was recognized
that failure to protect fish and wildlife resources would result in loss of habitat,
loss of endangered species, declining tourist expenditures, loss of recreational
opportunities and loss of quality of life. Already, Deschutes County had
witnessed the serious degrading of the cold-water fishery by irrigation
withdrawals, loss of sensitive deer winter rangelands to development and the
disturbance of deer migration corridors due to residential and recreational
construction.
Oregon Department of Fish and Wildlife representatives indicated that their
studies showed significant deer migration from the Deschutes National Forest
west of the Deschutes River, to wintering ranges east of the river, identified as
the North Paulina, Devil's Garden and Hole in the Ground Ranges. They
further noted that rural housing at a density of more than one residence per 40
acres could seriously threaten deer winter survival. Wildlife was also
threatened by dogs owned by rural residents, especially if the dogs were
allowed to roam in packs.
Of particular concern were riparian areas or
wetlands along streams and lakes. These areas
not only served as essential habitat for many
species and as migration corridors for big game,
but were particularly in need of protection
because of their limited nature.
Yet, it was not just the wetter, more forested
areas of the County that provided wildlife habitat.
The dry high plains in the eastern portion of the
Working Draft Deschutes County Comprehensive Plan
Page 2-20
Draft 5-14-08
Chapter 2: Resource Management - Fish and Wildlife
County had large populations of sage grouse and antelope. These wildlife
species were known to be highly dependent on the open, relatively
undeveloped character of this area for their survival.
Periodic Review
This Section implements As part of the County periodic review in the
1990s the goals and policies in this chapter were
part of State Planning reviewed by the public, the Oregon Department
Goal 5; Open Spaces, of Fish and Wildlife, the Planning Commission
Scenic and Historic and the Board of County Commissioners. During
Areas and Natural periodic review the County also updated the fish
Resources and wildlife inventories and completed
economic, social, environmental and energy
analysis of conflicting uses and developed
programs to protect the significant Goal 5 wildlife resources. (see the
Resource Element for details)
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-21
Chapter 2: Resource Management - Water Resources
Water Resources a=ies
(see also the Deschutes River Corridor section on page
2-25 for additional goals and policies)
Goals
1. To maintain existing water supplies at present quality and quantity.
2. To improve the efficiency with which water is supplied to meet the
growing needs of Deschutes County residents.
Policies
In order to achieve the desired results three general policy directions have
been determined, each general topic composed of several specific policies.
Resource Study
To obtain better information than that presently available so as to assure the
safe use of the area's water resources the following policies shall be adopted:
1. Obtain funding to conduct a complete County-wide hydrology study.
Particular emphasis shall be placed on study of urban areas, irrigation
water seepage into local water tables, stream flow and limits to water
availability.
2. The County, in conjunction with appropriate State and Federal agencies,
shall conduct a study on the location and characteristics of local aquifers
and streams, emphasizing the La Pine area first.
3. The County shall conduct a study of the legal, economic and
environmental consequences of the use of irrigation water for non-
agricultural uses.
4. When information is available on the location, quality and quantity of
groundwater resources, the county will determine the significance of the
resource and complete the Goal 5 process for groundwater resources in
accordance with OAR 660-16.
Working Draft Deschutes County Comprehensive Plan
Page 2-22 Draft 5-14-08
Chapter 2: Resource Management - Water Resources
Water Supply
The second general topic is the protection and improvement in efficiency of
local water supplies.
5. The County shall work with local irrigation districts, private and municipal
water suppliers as well as adjacent Counties and the State to assist
water management planning.
6. Consistent with acceptable environmental, social and economic impacts,
the County shall cooperate with State and Federal agencies in irrigation
canal lining, reservoir construction and watershed management.
7. The County shall continue to serve as a sponsor for Federal and State
grants for water system improvements.
Water Quality
The final general policy direction is the protection and improvement of the
area's water quality so that the County's new population can be safely
accommodated without serious public safety, environmental and economic
costs.
8. The County shall work with State and Federal agencies in planning for
water quality (i.e., Sections 208 and 303e) and in the enforcement of
anti-pollution regulations. Also, if found necessary, create and enforce
local anti-pollution ordinances.
9. The County, through educational programs and other similar activities,
should encourage the use of non-toxic, rapidly biodegradable chemicals.
10. Plans, ordinances, cooperative agreements and other legal and
educational tools shall be fostered by the County to protect watersheds,
reduce erosion and inappropriate run-off, and otherwise preserve local
water quality from undesirable building, agriculture or other practices.
11. Any project which would endanger the purity of local ground water shall
be vigorously discouraged.
12. To protect the public's health and safety irrigation ditch water shall not be
an approved domestic water source for subdivisions, partitions or other
developments after adoption of this plan. This will not affect existing legal
subdivisions, partitions or other developments.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-23
Chapter 2: Resource Management - Water Resources
Water Resources Profile
Background
Water in adequate quality and quantity is important to all communities, but in a
semi-arid region such as Deschutes County, it is of particular importance.
Drought is a recurring natural phenomenon which has done much to direct the
County's growth and to determine its economic base.
In 1979 inadequate information existed on water supplies and water quality.
Since that time, the County Environmental Health Division, Oregon Health
Division, Oregon Department of Environmental Quality, and U.S. Geological
Survey have cooperated on studies or ongoing programs to provide a greater
understanding of the area's water resources. Given the expected continued
growth of the area and the existing water quality and quantity problems, the
results of these studies are expected to prove useful in updating this plan and
safely accommodating the new growth while protecting existing industries and
residents.
In 1979 it appeared that little additional water Tor
This Section implements agricultural expansion could be expected locally,
part of State Planning except for some new wells in such areas as Lower
Goal 5: Open Spaces, Bridge and Cloverdale. The use of irrigation water
Scenic and Historic for domestic purposes had not only reduced
Areas and Natural available water supplies for agriculture but also
Resources raised questions about possible health hazards
resulting from people drinking from irrigation
ditches. Some water quality problems were
identified as resulting from domestic effluent and agricultural operations. The
domestic effluent was clearly a more pressing concern than agricultural
activities (because of local soils, climate, topography and farm operations).
The continued use of drill holes for sewage disposal was noted as a subject of
particular concern.
In 1986 a separate, but related, chapter was added to this Comprehensive
Plan to identify specific goals and policies for the Deschutes River Corridor.
Working Draft Deschutes County Comprehensive Plan
Page 2-24
Draft 5-14-08
Chapter 2: Resource Management - Deschutes River Corridor
Deschutes River Corridor Goals & Policies
Note: The goals and policies in this section were written
separately and do not match the formatting of the rest of the
comprehensive plan.
Water Resources Goals and Policies (see also Water
Resources Section page 2-22)
Goal
Stabilize the flow regime of the upper Deschutes River Basin so as to
maintain or enhance a healthy aquatic and riparian environment while
providing for irrigation and recreation needs. The minimum streamflows
recommended by the Oregon Department of Fish and Wildlife should be
considered as target minimum flows for the respective river reaches.
Policy
Deschutes County shall establish a water conservation committee
including, but not limited to, local representatives from the irrigation
districts, Department of Water Resources, Department of Fish and
Wildlife (ODFW), United Stated Forest Service (USFS), Deschutes
County and City of Bend Planning Departments, and Deschutes County
and City of Bend Planning Commissions to provide an ongoing forum
regarding water management on the Deschutes River and its tributaries
and to make recommendations to appropriate agencies. The committee
should:
a. Request assistance through Bonneville Power Administration's
(BPA's) technical assistance program for technical improvements in
methods of irrigation and means of conservation of both water and
energy.
b. Request assistance from the Water Resources Department, Bureau
of Reclamation, and Soil and Conservation Districts to initiate an in-
depth study of, and to set priorities for, actions that should be taken
to improve the irrigation districts' delivery systems.
c. Assist the County and City of Bend in the implementation of the
Deschutes River goals and policies.
Goal
2. Support the designation of instream use of water as a beneficial use.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-25
Chapter 2: Resource Management - Deschutes River Corridor
Policies
1. Deschutes County shall petition the Water Resources Department to
amend the appropriate provisions in the Deschutes River Basin Plan to
reflect the recommendations of the River Study Task Force and the
committee established under Goal 1.
2. Deschutes County shall petition the State Legislature to amend state law
to designate instream use as a beneficial use to ensure that rights
designated to instream use shall not be subject to downstream
appropriation by holder of equal or junior rights, and petition the Water
Resource Department to adopt a uniform, easily-accomplished process
for the transfer of water rights in the Deschutes River Basin to instream
use.
Goal
3. Increase streamflow in the Deschutes River below Wickiup Dam during
the non-irrigation season. Establish a flow release during the irrigation
season that will reduce bank erosion while providing for irrigation,
fisheries, wildlife and recreation needs.
Policies
1. Deschutes County shall petition the Bureau of Reclamation to conduct a
feasibility study on the Monner Reservoir site, including: (a) the non-
irrigation flow required for filling, (b) to what extent gravity feed irrigation
would be possible, and (c) to what extent low flows below Wickiup Dam
could be augmented during the non-irrigation season.
2. Deschutes County shall petition the Bureau of Reclamation, USFS,
United States Geological Survey (USGS), and the Oregon Department of
Environmental Quality (DEQ), to establish a bedload sediment
monitoring program and to determine an appropriate maximum
discharge from Wickiup Dam, which program addresses the effects of
bank erosion on rehabilitation of spawning habitat, riverfront property,
recreation, and scenic values, and accomplishes the determination of
flow regime through interagency cooperation with the affected irrigation
districts.
3. Deschutes County shall petition the Bureau of Reclamation to determine
what the consequences would be to irrigation districts, recreation use,
and the stabilizing of water releases below Wickiup Dam by maintaining
a lower level of water in Crane Prairie Reservoir, and diking off known
high loss areas within the reservoir to minimize excess seepage.
Working Draft Deschutes County Comprehensive Plan
Page 2-26 Draft 5-14-08
Chapter 2: Resource Management - Deschutes River Corridor
Goal
4. Implement and enforce incentives for water conservation.
Policies
1. Deschutes County shall encourage the Water Resources Department,
irrigation districts, and municipalities utilizing diverted waters to enforce
the "without waste" provision in appropriated water rights.
2. Deschutes County shall support efforts by the irrigation districts to
provide financial incentives to conserve water, such as a water use fee
on the minimum amount of water required (commensurate with the
plant/soil requirements determined by the soil and water conservation
districts) and an excess charge for water used over the base amount.
3. Deschutes County and the irrigation districts should explore the
development of an intergovernmental agreement to provide that
developers partitioning land and attendant water rights shall be
responsible for the affected irrigation district's approval before final plat
approval by the County. The irrigation district shall not deliver water to
the subdivision greater than that which would have been due to the
parcel as a whole (i.e., the district shall not replace water lost by
subdivision distribution).
4. Deschutes County shall request the irrigation districts to continue to give
consideration to shortening the summer irrigation season when soil
moisture conditions and cistern reserves allow.
5. Deschutes County shall support efforts by the irrigation districts within
the upper and middle Deschutes River Basin to allow expansion of
irrigated land within a district's boundaries, as part of a means to share
conserved water, for those districts that implement water conservation
and instream flow enhancement programs.
6. Deschutes County shall encourage irrigation districts to discontinue the
policy of winter water runs.
Goal
5. Maintain streamflows in the Little Deschutes River and its tributaries that
will provide for irrigation, fisheries, wildlife and recreation needs.
Policy
1. Deschutes County shall encourage ODFW and Tumalo Irrigation District
to negotiate a minimum release out of Crescent Lake.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-27
Chapter 2: Resource Management - Deschutes River Corridor
Goal
6. Increase instream flow below the North Canal Dam during periods of
water diversion.
Policy
Deschutes County shall encourage examination by irrigation districts and
the Water Resources Department of options for providing additional
flows below the North Canal Dam during the irrigation season. These
additional flows shall not take the place of the current 30 CFS spilled by
agreement with Central Oregon Irrigation District (COID) and North Unit
Irrigation District (NUID). Options that might be considered include
shared conserved water, public participation in irrigation district
improvement, public "buy down" of interest rates on improvement loans,
and public or private purchase/transfer of water rights for instream use.
Goal
7. Increase streamflow below the irrigation diversions on Tumalo Creek
during periods of water diversion.
Policies
1. Deschutes County shall encourage the City of Bend to continue to
implement a water conservation program that emphasizes enforcement,
metering, and other methods to avoid wasting water.
2. Deschutes County shall encourage the City of Bend to continue to
replace the Tumalo water supply pipeline and, when this pipeline is
complete, to install gates at the intake, which would help stabilize
withdrawals from Tumalo Creek,
3. Deschutes County shall encourage the City of Bend and Tumalo
Irrigation District to explore options to improve instream flows in Tumalo
Creek, including apportionment of water draws to maximize the use of
the Tumalo Feed Canal rather than the Columbia Southern Canal, in
order to increase water flows through Shevlin Park and minimize the
excessive water losses that now occur in the Columbia Southern Canal.
4. Deschutes County shall encourage the Tumalo Irrigation District to
explore means to eliminate the Columbia Southern Canal and to revert a
portion of the water saved to instream use to maintain a minimum flow in
Tumalo Creek below the Tumalo Feed Canal diversion.
Working Draft Deschutes County Comprehensive Plan
Page 2-28 Draft 5-14-08
Chapter 2: Resource Management - Deschutes River Corridor
Goal
8. Increase streamflow below the main irrigation diversion on Whychus
(Squaw) Creek during periods of water diversion.
Policies
1. Deschutes County shall encourage the Whychus (Squaw) Creek
Irrigation District and the Water Resources Department to help explore
options for providing additional flow below the irrigation diversions on
Whychus (Squaw) Creek, including shared conserved water, public
participation in irrigation district improvements, public "buy down" of
interest rates on improvement loans, and public or private
purchase/transfer of water rights for instream use.
2. Deschutes County shall request the ODFW to petition the Water
Resources Department to withdraw Whychus (Squaw) Creek from any
further appropriations.
Energy Goal and Policies (see also Energy Section
page 2-41)
Goal
9. Encourage development of hydroelectric resources when they are
consistent with:
a. fish, wildlife, recreation, open space, and scenic resource values,
and
b. state and regional energy plans.
Policies
1. Deschutes County shall continue to strongly support and promote the
conservation of all forms of energy resources through cooperation with
the Northwest Power Planning Council, BPA program, recycling, solar
ordinances, energy-efficient building standards, and appropriate
development of geothermal resources.
2. Hydroelectric projects that are not physically connected to an existing
dam, diversion, or conduit are prohibited.
3. Deschutes County shall develop a program to assure that hydroelectric
projects located within existing man-made transmission systems and
using existing flow regimes, or physically connected to an existing dam,
diversion, or conduit, but not using existing flow regimes, are subject to
the following provisions:
a. Are consistent with federal and state law.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-29
Chapter 2: Resource Management - Deschutes River Corridor
b. Hydroelectric projects shall not increase the maximum surface area
of an impoundment behind an existing dam or diversion.
c. Shall not be located in significant/sensitive fish or wildlife areas
unless it can be demonstrated that the project, if constructed, would
restore significant/sensitive fish or wildlife habitat in the reach
affected by the project.
d. Hydroelectric projects shall stabilize streamflows, restore degraded
trout habitat, and provide public access to as great an extent as
practical.
4. Hydroelectric projects shall avoid adverse impacts if possible. Where not
practicable, impacts shall be minimized, while providing for restoration on
already adversely impacted areas along the river or steam. Restoration
does not necessarily have to be in the immediate project vicinity.
5. Hydroelectric projects shall have no adverse impact to water-related and
water-dependent recreation unless it can be shown that existing water-
related and water-dependent recreation of the same type, quality, and
quantity as that which may be lost can be restored or enhanced in the
project vicinity. Recreation activities include those activities which occur
now and which may reasonably be expected to occur in the future.
6. Hydroelectric projects shall include a river restoration/enhancement plan
documenting both on-site and off-site restoration and enhancement
strategies consistent with adopted goals and policies. The plan shall
identify costs, time schedules, and coordination actions with all affected
parties. The plan shall address, but not be limited to, stabilizing water
flows, trout habitat restoration, and public access. No hydroelectric
project shall be permitted until the plan has been approved through the
public review process.
7. Hydroelectric projects shall post a performance and restoration bond to
ensure implementations of the approved restoration/ enhancement plan.
8. Hydroelectric projects shall be consistent with the provisions of the
Columbia River Fish and Wildlife Program and the Northwest Power Plan
as adopted by the Northwest Power Planning Council.
9. The County shall advise the Northwest Power Planning Council and
Oregon Department of Energy as to the potential hydroelectric resource
in Deschutes County.
Fish Goals and Policies (see also Fish and Wildlife
Section, page 2-17)
Goals
10. Increase the number of wild trout through restoration of degraded
habitat, enhancement of tributary spawning areas, and stabilized flows.
11. Increase public access along rivers and streams for fishing.
12. Increase public awareness of riparian habitat protection.
Working Draft Deschutes County Comprehensive Plan
Page 2-30 Draft 5-14-08
Chapter 2: Resource Management - Deschutes River Corridor
Policies
1. All spawning areas for trout shall be considered significant habitat and
shall be protected.
2. To the extent funds are available, Deschutes County shall retain in public
ownership, after foreclosure, tax delinquent lands located near or
adjacent to rivers and streams.
3. Deschutes County shall support efforts by the ODFW and local trout
clubs to continue spawning habitat enhancement work.
4. Deschutes County shall encourage and assist DEQ in developing a
program to prevent surface water pollution due to inadequate or failing
septic systems along rivers and streams.
5. Deschutes County shall encourage the ODFW to develop a program for
state acquisition of fishing easements along rivers and streams.
6. Deschutes County shall encourage the ODFW and the Parks and
Recreation Division of the Department of Transportation to develop a
joint program for increasing fishing access at and adjacent to Cline Falls,
Tumalo, and La Pine State Parks,
7. Deschutes County shall adopt regulations pertaining to fill-and-removal
of material in waterways and adjacent wetlands.
8. Deschutes County shall support efforts by the ODFW, Bureau of
Reclamation, Warm Springs Indian Tribe, Portland General Electric, and
the USFS to begin efforts to identify ways to assure that steelhead and
salmon juveniles are able to travel downstream over the dams. A pilot
program for steelhead should be initiated on Whychus (Squaw) Creek.
9. Deschutes County shall support efforts by the ODFW to manage
appropriate reaches of rivers and streams for wild (naturally reproducing)
trout.
10. As part of the ODFW's effort to develop a wild trout management plan for
the upper Deschutes River Basin, Deschutes County shall petition the
Bureau of Reclamation to participate in the planning and, if appropriate,
financing of habitat restoration and improvement of those rivers and
streams affected by water facilities designed and/or financed by their
agency, through coordination with the ODFW, USFS, irrigation districts,
and other public and private interests.
11. Deschutes County shall encourage and assist in the education of river
property owners on the State Riparian Tax Incentive Program and other
programs that would benefit fish and wildlife.
12. Deschutes County, in cooperation with the irrigation districts, USFS,
ODFW, and Bureau of Reclamation, should explore means to restore
and stabilize riparian and wetland habitats. Emphasis should be on
stabilizing flows caused by water regulations. Consideration should also
include, but not be limited to, bank erosion control, revegetation
programs, and elimination of inappropriate levels of riparian livestock
grazing along rivers and streams.
Working Draft Deschutes County Comprehensive Plan
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2: Resource Management - Deschutes River Corridor
13. Deschutes County shall request the ODFW to ensure that all irrigation
diversions are properly screened. The irrigation districts should be
encouraged to conduct the studies to monitor screen efficiency and to
make necessary improvements.
14. Deschutes County shall continue to use conservation easements to
protect riparian habitat.
Wildlife Goals and policies (see also Fish and
Wildlife Section, page 2-17)
Goal
13. Ensure the long-term protection and enhancement of wildlife sensitive
riparian habitat, and natural plant and animal communities along the
Deschutes River and its tributaries.
Policies
1. Deschutes County, in cooperation with the ODFW and USFS, shall
modify land use practices and consider acquiring land or development
rights where conflicts arise with any of the following:
a. Sensitive wildlife habitats necessary for feeding, nesting,
reproduction or rearing.
b. Sensitive elk and deer winter range habitat.
c. Sensitive elk and deer migration corridors.
2. Deschutes County, in cooperation with the ODFW and USFS, shall
consider wetlands and riparian areas as sensitive wildlife habitat due to
their scarcity and unique characteristics to serve a wide range of wildlife
species and shall protect them. Modification/ alteration of these areas
may only be permitted in unique situations and after consultation with the
ODFW.
3. Deschutes County shall support periodic or seasonal closures of roads,
trails or areas in sensitive wildlife areas to motorized vehicles. The
County should also request the USFS to continue to support these
closures in order to minimize human disturbance.
4. Deschutes County, in cooperation with the USFS and ODFW, shall
protect and enhance lands containing sensitive wildlife habitat.
5. Deschutes County shall petition the Oregon Fish and Wildlife
Commission to close the Sheep Springs area to hunting during the bald
eagle migration and feeding period.
6. Deschutes County shall promote and support educational programs on
riparian natural history, river maintenance and courtesies, impacts of
habitat alteration and habitat disturbance by domestic animals and
human activities.
Working Draft Deschutes County Comprehensive Plan
Page 2-32
Draft 5-14-08
2: Resource Management - Deschutes River Corridor
7. Deschutes County shall request that the USFS and ODFW adopt a
winter elk management plan for the Benham Falls elk herd. Emphasis
should be given to identification of their sensitive habitat in order to
minimize potential conflict with development and recreation activities.
8. Deschutes County shall support the continued consumptive and non-
consumptive use of wildlife.
9. Deschutes County shall support efforts by local conservation clubs to
develop a waterfowl and wetlands habitat improvement program along
the Deschutes River.
10. Deschutes County shall encourage and assist citizens, the Department
of Forestry, USFS and private landholders in adopting forest
management practices along rivers and streams that consider the needs
of wildlife, such as preserving snags, riparian cover, and other habitat
characteristics that will maintain optimal use by wildlife. Desired changes
in habitat conditions resulting from forest management practices should
concurrently avoid adverse impacts to water quality and visual quality for
the specific reach.
11. Deschutes County shall continue to use conservation easements as a
means to preserve wildlife habitat.
12. Deschutes County shall adopt regulations pertaining to fill-and-removal
of material in waterways and adjacent wetlands.
Open Space Goals and Policies (see also Open Spaces,
Areas of Special Concern, and Environmental Quality
Section, page 2-11)
Goal
Existing goals sufficient.
Policies
1. Deschutes County shall include areas along the Deschutes River, Little
Deschutes River, Crooked River, Spring River, Fall River, Tumalo Creek,
Paulina Creek and Whychus (Squaw) Creek into the Landscape
Management (LM) zone. In these areas, the LM zone may include all
riparian areas, wetlands and canyons.
2. Deschutes County shall support a greenway project whose purpose
would be to identify appropriate segments of river frontage that should be
acquired for public use and benefit.
3. Deschutes County shall encourage the creation and assist in the
operation of a non-profit, private organization to facilitate the acquisition
of river property to further the goals of preserving areas for their scenic,
recreational, fish and wildlife values.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-33
Chapter 2: Resource Management - Deschutes River Corridor
4. Deschutes County may require public access for any land use action
adjacent to the Deschutes River, Little Deschutes River, Crooked River,
Spring River, Fall River, Tumalo Creek, Paulina Creek and Whychus
(Squaw) Creek limited to foot traffic only.
5. Deschutes County shall include in all access easements provisions
addressing safety, security, vandalism, litter and any other maintenance
concerns expressed by the landowner. The cooperation of the State
Police and County Marine Patrol should be sought in working with these
landowners and in maintaining the easement agreement.
6. Deschutes County shall explore the possibility of property tax relief when
public access is required by the County.
7. Deschutes County may accept, by donation, full fee title ownership to
any riparian land for which public access is required. If the County
refuses to accept ownership, any required public access shall be waived.
8. Deschutes County may grant exceptions to the public access
requirement where access would be near the nest sites of protected or
sensitive wildlife species. In such cases, the County shall instead require
a conservation easement to protect the nest sites from harassment and
disturbance, using the assistance of the USFS, ODFW, and citizens
knowledgeable of the nesting requirements of these species prior to
drafting the easement.
9. Deschutes County shall request the Legislature to allow the County
Assessors to recognize public access easements in their assessment
policies.
10. Deschutes County shall cooperate with the Parks and Recreation
Division, USFS, and BLM during the State's Scenic Waterways Study.
11. Deschutes County shall prohibit or restrict development on reaches of
rivers that are being studied or recommended for inclusion in either the
State or Federal Scenic Rivers System unless construction would not
preclude inclusion of the reach in the state or federal system.
12. Deschutes County shall request the USFS to preserve or continue to
preserve appropriate areas within the vicinity for their scientific and
educational value.
13. Deschutes County, in cooperation with the Nature Conservancy, USFS,
and Parks and Recreation Division, shall encourage that appropriate
reaches of the Deschutes River in the vicinity of the La Pine State
Recreational Area are incorporated into the Oregon Natural Heritage
Plan.
Working Draft Deschutes County Comprehensive Plan
Page 2-34 Draft 5-14-08
Chapter 2: Resource Management - Deschutes River Corridor
Recreation Goals and Policies (see also Recreation
Section, page 3-29)
Goals
14. Secure designation of appropriate segments of the Deschutes River, Fall
River, Little Deschutes River and Crooked River under the Federal Wild
and Scenic Rivers Program and the State Scenic Waterways Program.
15. Increase the opportunity for people to enjoy and appreciate undeveloped
river and stream corridors.
16. Maintain, when appropriate, a semi-primitive recreation development
standard along the banks of rivers and streams that are in public
ownership.
Policies
1. Deschutes County shall support the 1) removal of fences from the river,
and 2) donation of the County of portage/walking easements that
increase opportunities by the public to fully enjoy water recreation on
rivers and streams.
2. Deschutes County shall regulate recreation-related land uses and
density levels to accommodate the needs of wildlife where the recreation
activity interferes with sensitive wildlife habitat.
3. Deschutes County shall encourage the BLM and USFS to prohibit the
use of motorized vehicles, including motorbikes, ATVs, and
snowmobiles, adjacent to rivers and streams where they conflict with
non-motorized recreation activities.
4. Deschutes County shall encourage and participate in the USFS planning
process to eliminate specific vehicular access points to and along the
Deschutes River.
5. Deschutes County shall encourage the USFS and Parks and Recreation
Division to acquire private property in the La Pine State Recreation Area
adjacent to the Deschutes River and Fall River.
6. Deschutes County shall encourage the BLM to consolidate ownership of
public lands along the Deschutes River, Little Deschutes River, and
Squaw Creek.
7. Deschutes County shall support the USFS in controlling permitted levels
of commercial whitewater boating.
8. Deschutes County shall support wilderness designation of the Steelhead
Falls Wilderness Study Area on the Deschutes River and lower Wychus
(Squaw) Creek.
9. Deschutes County shall request the BLM to designate Big Falls as an
"Outstanding Natural Area" if a mutually agreeable land exchange
program can be developed.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-35
Chapter 2: Resource Management - Deschutes River Corridor
10. Deschutes County shall advise the State Marine Board of public
concerns regarding safety with respect to the use of motorboats on the
Deschutes River.
11. Deschutes County should recommend that the Transportation
Commission include in the State Scenic Waterways Programs the
Deschutes River from below Wickiup Dam downstream to the first COI
diversion, and from Sawyer Park north to the County line.
12. Deschutes County shall support the designation of appropriate segments
of Fall River, Little Deschutes River, and Crooked River as state and/or
federal scenic waterways.
Archaeological Goal and Policies (see also Historic
and Cultural Section, page 2-63)
Goal
17. Maintain an ongoing program of archaeological inventory, investigation,
interpretation, and education and preservation.
Policies
1. Deschutes County shall request the BLM and USFS to complete
archaeological inventories along the river and stream corridors within or
adjacent to federal land.
2. Deschutes County shall request the BLM and USFS to postpone logging,
campground, trail, and road development along rivers and streams until
archaeological site review and determination of site value has been
made.
3. Deschutes County shall continue to conduct archaeological survey work
and excavation on private lands based on the availability of private/
public contributions and grant funds.
4. Deschutes County may require archaeological site review of any
development activity (including residential development), to be
conducted with the assistance of archaeologists familiar with Central
Oregon archaeology, and with the cooperation of landowners and
developers. Plans for archaeological site review shall be submitted to the
Historical Landmarks Commission for approval.
5. Deschutes County shall support efforts by the Deschutes County
Historical Society, Oregon High Desert Museum, BLM, and USFS to
educate the public on the history and significance of native American
culture.
6. Deschutes County shall encourage and assist law enforcement agencies
in the prevention of vandalism and enforcement of laws designed to
protect archaeological sites on non-federal land.
Working Draft Deschutes County Comprehensive Plan
Page 2-36 Draft 5-14-08
Chapter 2: Resource Management - Deschutes River Corridor
7. Deschutes County shall encourage private landowners to have
significant archaeological sites nominated to the National Register of
Historic Places.
8. Deschutes County shall investigate potential incentives (in addition to
those offered by the National Register program) for private landowners
who would allow scientific and/or educational study of archaeological
sites on their property.
Historic
and
Cultural
Goal and Policies (see also
Historic
and
Cultural
Section, page 2-63)
Goal
Existing goals sufficient.
Policies
1. Deschutes County shall encourage private landowners to have
significant historic and cultural sites nominated to the National Register
of Historic Places.
2. Deschutes County shall encourage and assist the landowner of the
Tetherow Crossing site to preserve this area for its outstanding
archaeologic, historic, and educational value.
3. Deschutes County shall review any excavation work proposed for the
Camp Polk site and shall assist the landowners to work out a means of
preserving this area for its outstanding historic and educational value.
4. Deschutes County shall encourage and assist the landowner in
preserving the Vandevert Homestead for its outstanding historic and
educational value.
5. Deschutes County shall encourage and assist the landowner in
preserving the Shevlin-Nixon Lumber Mill for its outstanding historic and
educational value.
6. Deschutes County shall encourage and assist the USFS in preserving
the Benham Falls site for its outstanding historic and educational value.
7. Deschutes County shall support the creation of a private, non-profit land
trust as a means of helping landowners preserve property of historic and
cultural significance.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-37
Chapter 2: Resource Management - Deschutes River Corridor
Deschutes Basin Resource Committee
Purpose
The purpose of the Deschutes Basin Resource Committee is to recommend to
the Deschutes County Board of Commissioners and the Bend City
Commission the means to accomplish the water resource goals and policies
contained within the River Study and to provide an ongoing forum for direction
and policy for maintaining and enhancing the Deschutes River Basin.
Because many of the goals and policies are beyond the scope of City or
County jurisdiction and require action by state agencies or the Legislature, the
committee's purpose is to review and monitor state laws and to recommend to
the County Planning Commission and the Bend Urban Area Planning
Commission changes in such laws necessary to carry out the goals and
policies contained in the River Study.
Authority
The Water Conservation Committee is an advisory committee charged with
making recommendations to the governing bodies of Deschutes County and
the City of Bend on how to implement the water resources goals and policies
of the River Study and other matters dealing with the Deschutes River and its
tributaries.
Committee Members
The Water Conservation Committee shall be made up of the following
members, to be appointed by the Deschutes County Board of Commissioners
and the Bend City Commission:
1. A representative from each of four irrigation districts.
2. One representative from the Oregon Department of Water Resources.
3. One representative from the Oregon Department of Fish and Wildlife.
4. One representative from the U.S. Forest Service.
5. One representative from the Deschutes County Planning Commission.
6. One representative from the Bend Urban Area Planning Commission.
7. One representative from a non-consumptive water resource user (e.g.,
recreator).
8. One representative from a local environmental organization.
9. Two representatives from the public at large.
10. The County and City shall provide adequate staff and material support
for the committee.
Working Draft Deschutes County Comprehensive Plan
Page 2-38 Draft 5-14-08
2: Resource Management - Deschutes River Corridor
Responsibilities
Consultation: In providing advice to the governing bodies, the Water
Conservation Committee should:
a. Request assistance through Bonneville Power Administration's
(BPA's) technical assistance program for technical improvements in
methods of irrigation and means of conservation of both water and
energy.
b. Request assistance from the Water Resources Department, Bureau
of Reclamation, and the soil and conservation districts, to initiate an
in-depth study and priority of actions that should be taken to improve
the irrigation districts' delivery system.
2. Review and study of state laws.
3. Study and make recommendations consistent with policies of
comprehensive plans related to water resources.
4. Reporting to County/City Planning Commissions at least semi-annually.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-39
Chapter 2: Resource Management - Deschutes River Corridor
Deschutes River Corridor Profile
Background
This section was added to the Comprehensive Plan in 1986 to provide goals
and policies specifically for the Deschutes River Corridor. Many of the goals
and policies in this chapter were recognized to be beyond the scope of county
jurisdiction, requiring action by state agencies or the Legislature. Yet, these
goals were included in the plan because they were deemed to have a crucial
role in the preservation and
revitalization of the Deschutes River L."';
Basin.
There was little text originally included
with this chapter, with the goals and
policies speaking for the County
interest in protecting the river corridor.
Additionally, this chapter was written in
a different format than the original plan.
Instead of a list of goals followed by a
list of policies, generally this chapter has a goal followed by related policies,
followed by another goal and its related policies. It is also a bit confusing since
the goals and policies are broken up into areas such as energy or fish, which
might be a better fit in the Energy and Fish and Wildlife sections of this plan.
During the 2008 Comprehensive Plan clean-up, it was determined that clarity
would be lost if the goals and policies were reformatted to more closely match
the rest of the plan. Additionally assigning parts of this section to other
chapters in the plan, such as moving the water resources goals under the
Water Resources section, was confusing due to the formatting differences.
Consequently, this section has been retained,
This Section implements
part of State Planning
Goal 5: Open Spaces,
Scenic and Historic
Areas and Natural
Resources
and comments have been added to identify
where additional information and goals and
policies may be found.
Working Draft Deschutes County Comprehensive Plan
Page 2-40 Draft 5-14-08
Chapter 2: Resource Management - Energy
Energy Goals & Policies
(see also the Deschutes River Corridor section on page 2-25
for additional goals and policies)
Goals
1. To protect local natural energy sources.
2. To manage land uses to maximize the conservation of all forms of
energy.
3. To assist, as appropriate, in the provision for adequate local energy
supplies.
Policies
General
1. The County shall review and promote the development and use of local
alternative energy sources in order to prepare for future shortages and to
reduce the outflow of local dollars to buy energy.
2. Coordinated planning between local energy providers, particularly
electrical, and the County Planning Department shall be sought. This
planning is to be directed at determining energy needs in all parts of the
County and assisting in the provision of adequate supplies and capital
facilities.
3. Construction of large thermal or nuclear plants locally should be
discouraged unless approved by a public vote.
4. Energy Assessment: During major plan updates, or more often as
necessary, the County shall assess its energy use and the potential for
energy conservation. The County shall use information available from the
state and federal governments and utility companies.
Alternative energy sources - Geothermal resources
5. Public involvement
a. The Planning Division shall ensure that citizens, land owners, and
lease holders are given ample opportunity to be involved in all
phases of geothermal planning and decision-making that occur
under the County's jurisdiction. This involvement program shall
provide for continuity of citizen participation, and for information that
enables citizens to identify and comprehend geothermal issues.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-41
Chapter 2: Resource Management - Energy
b. Federal and state agencies exercising geothermal responsibilities in
the County shall be expected and encouraged to make use of the
County's existing citizen involvement program whenever appropriate.
6. Intergovernmental coordination
a. The County shall encourage the formulation of federal and state land
and resource management policies which are consistent with the
County's geothermal policies. In this regard the County shall
endeavor to become a partner with the federal and state
governments in determining the future of geothermal energy in the
County.
b. In view of the multiplicity of governmental jurisdiction over
geothermal resources, the County shall seek close coordination with
all affected local, state, and federal agencies. In this regard the
Planning Division shall maintain regular communications with federal
and state agencies that are exercising geothermal responsibilities in
the County, and shall keep local officials informed of federal and
state actions accordingly.
7. Resource assessment
a. In order to identify and protect the undefined values of its geothermal
resources, the County shall support continued resource assessment
activities by the public and private sectors. In this regard, the
Planning Division shall monitor such activities and collect additional
resource data wherever possible for inclusion in the Geothermal
Element during updates or amendments.
b. In recognition of the public benefit derived from greater resource
knowledge, the County may undertake its own resource assessment
activities where such work is expected to ultimately benefit the local
economy. The results of County-sponsored resource assessment will
be given the widest possible dissemination in order to facilitate
further geothermal development consistent with County policies.
8. Resource Utilization
a. The County supports utilization of geothermal resources, either with
heat pumps, direct applications, or for purposes of generating power.
However, such support is conditioned on the determination that the
proposed use can be developed in a timely, orderly, and
environmentally-sound manner, and that adequate protection of the
resource is provided so as to ensure its continued availability and
productivity over time. Further, such support is limited to those
resource areas where conflicting uses are not considered
predominant, as identified in Policy 6 of this section.
b. When County facilities are to be renovated or newly constructed,
consideration shall be given to the use of geothermal resources in
these facilities when such use is technically and economically
advantageous. The County shall encourage other local entities to
conduct similar geothermal evaluations during their facility planning
processes.
Working Draft Deschutes County Comprehensive Plan
Page 2-42 Draft 5-14-08
Chapter 2: Resource Management - Energy
9. Economic development
a. The County's support for geothermal development shall be closely
coordinated with its economic development program. The County
believes that its low and moderate-temperature resources may offer
a significant comparative advantage to business and industry, and it
shall support geothermal projects that serve to retain or create
employment opportunities in the County.
10. Land-Use
a. For purposes of compliance with Statewide Planning Goal 5, the
County believes its geothermal resources and the conflicting uses
identified in Section 4 of the Element should be balanced according
to site-specific relative merits. Implementation measures shall
provide protection for conflicting uses by conditionally allowing
geothermal exploration and production, thereby balancing the
benefits to the County from both geothermal resources and
conflicting uses. This policy shall apply to all resource areas
inventoried in Section 2 of the Element, except in those areas where
the conflicting uses listed in Table 4.1 of the Element shall be fully
protected as follows:
i. Exploration and Production Prohibited
• That portion of the Newberry Volcano resource area lying within
the exclusion area boundary shown in Exhibit "B."
• Those areas presently defined by the Deschutes National
Forest Land & Resource Management Plan, incorporated
hereby reference, as ineligible for leasing, specifically:
Wilderness, Research Natural Areas, Experimental Forest,
Bend Municipal Watershed, Developed Recreation Areas, and
Dispersed Recreation Unroaded Winter Areas.
ii. Production Prohibited (Exploration Allowed).
• Those areas presently defined by the Deschutes National
Forest Land & Resource Management Plan, incorporated
hereby by reference, as being limited to no surface occupancy,
specifically: Experimental Forest, Dispersed Recreation
Unroaded Areas, Dispersed Roaded Areas, Developed
Recreation Areas, Protection Management Areas, Special
Management Areas, Potential Research Natural Areas, and
Threatened and Endangered Species Areas. The County has
determined that conflicting uses shall be fully protected in the
foregoing areas because of the greater economic, social, and
environmental benefits that accrue from the conflicting uses. In
researching this determination, the County has relied upon the
discussion of conflicting uses and their consequences contained
in Sections 4 and 5 of the Geothermal Element; the Rural
Development, Economy, and Recreation sections of the Growth
Management Element of the Comprehensive Plan; the Forest
Lands, Open Spaces, Fish & Wildlife, and Historic & Cultural
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-43
Chapter 2: Resource Management - Energy
sections of the Resource Management Element of the
Comprehensive Plan; the Recreation, Fish & Wildlife, Special
Uses, Visual Quality, Economy, Employment, and Forest
Dependent Community Concept sections of the Deschutes
National Forest Land & Resource Management Plan; and the
Oregon Department of Economic Development 1983 Annual
Economic Report for Deschutes County. It is the County's
determination that the conflicting use information contained in
these references constitutes sufficient evidence of the greater
importance of the conflicting uses to the County, thereby
warranting exclusion of geothermal exploration and/ or
production in the areas cited above.
• The County recognizes that if utilization of geothermal energy is
to be optimized, the designation of land-uses for areas overlying
geothermal resources must accommodate those uses to which
the resources can be applied. In this regard, the County shall
incorporate geothermal utilization as a determinant in land-use
planning; and, where appropriate, shall review permitted uses
that can utilize geothermal resources if and when suitable
resources are confirmed in an area. However, geothermal end-
uses shall be permitted only where their compatibility with
surrounding land-uses can be demonstrated with certainty.
11. Environmental protection
a. In all cases the County's support for geothermal development. shall
be conditioned upon satisfactory evidence that sufficient
environmental safeguards are provided. Environmental concerns of
the County shall include, but not be limited to: air quality, water
quality, noise, subsidence, induced seismicity, water consumption,
fish and wildlife, vegetation, historic and cultural resources, visual
and scenic qualities, erosion and earth stability, waste disposal, and
public safety and health.
12. Public facilities and services
a. In addition to Policy 7(a), in all cases the County's support for
geothermal development shall depend on the extent of impacts to
public facilities and services. In this regard, the County's concerns
shall include, but not be limited to: roads, drainage, schools, law
enforcement, fire protection, water supply, sewage disposal, solid
waste disposal, and general administrative services.
b. The Planning Division, in consultation with the Public Works
Department, shall monitor geothermal activities in order to forecast
impacts to public facilities and services; and shall prepare capital
improvement or related plans accordingly so as to support
geothermal development in a timely and orderly manner with a level
of facilities and services appropriate to such development.
13. Fiscal responsibilities
Working Draft Deschutes County Comprehensive Plan
Page 2-44 Draft 5-14-08
Chapter 2: Resource Management - Energy
a. In recognition of specialized administrative demands that may be
placed on the County by geothermal developers, the County shall
require said developers to defray County expenses associated with
processing a geothermal permit request, or conduction related
studies or monitoring programs, directly required by a geothermal
project. This Policy shall also extend to any government agency
engaged in geothermal development.
Alternative energy sources
14. Wind: Because the wind is a non-polluting, renewable energy source,
major wind devices and associated facilities shall be conditional uses in
agricultural, forest and other rural zones. Also, small scale (less than 20
KW) private use of wind generators or pumps shall be encouraged.
15. Wood and slash wood: Given the availability and usefulness of waste
and slash wood the County shall maintain a waste wood dump for
processors where the material shall be made available to the public, and
shall encourage U.S. Forest Service projects which make slash wood
available.
16. Solar: Because it is renewable and in plentiful supply locally the County
shall encourage the use of solar energy by:
a. Promoting the construction of housing with its long axis in the east-
west direction and having solar access three hours before and after
solar noon (variances because of topography, rock outcroppings or
alternative solar access means may be permitted);
b. Providing avenues for establishing solar property rights (see ORS
215.110) by such methods as solar sky space protective covenants
in new developments and creating standard methodology for
adjacent properties to establish solar sky space easements; and,
c. Allowing for future centralized solar generation of electricity in the
large vacant areas in the eastern portions of the County (particularly
on BLM lands).
17. Internal Operations: The County shall, when practicable, make energy
efficiency and the use of renewable resources a regular practice in its
design and operation of buildings, equipment and public facilities and
services.
Recycling
18. Recycling is an effective method of energy conservation. The County has
adopted a County-wide recycling program in compliance with Senate Bill
405. The primary responsibility for this program is through the County
Solid Waste Division. The ongoing recycling program will provide for the
following:
a. Identify projects and methods to achieve the specific goals; and
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-45
Chapter 2: Resource Management - Energy
b. Require and annual review of program status.
19. The County shall consider the designation of a County employee as
Recycling Coordinator who is responsible for:
a. Encouraging recycling throughout the County;
b. Fostering communications about recycling among local
governmental agencies, organizations and the public; and,
c. Providing assistance to the County Solid Waste Advisory Committee
in considering and implementing ways to increase local recycling
activities.
20. The County shall also consider recycling when enacting ordinances,
issuing contracts and franchises and when purchasing supplies.
21. The County shall study the possibility of initiating pilot projects regarding
source separation of recyclables and their collection in existing or new
garbage franchises.
22. The County shall seek funds to provide staff assistance and resources
for developing recycling drop-off and storage centers in the Bend,
Redmond, Sisters and La Pine areas.
Conservation
23. All homes constructed in Deschutes County shall meet State insulation
standards. The County shall consider more stringent standards (both
prescriptive and equivalent performance criteria) and encourage
innovative building design which meets the intent of the prescriptive
standards.
24. To assist the public in understanding energy conservation in their homes
the County will rate the "thermal effectiveness" of new or existing
dwellings, if an owner requests, based on such factors as window
placement, shading, insulation values and thermal mass, and other
factors similar to the City of Davis, California, Community Development
Department Standards.
25. Because multi-family housing and other types of common wall
construction is more energy efficient the County shall encourage such
development in urban areas.
26. Since "leapfrog" and scattered development is wasteful of energy in the
provision of services (school buses, fire protection, utilities and
transportation) these patterns shall not be permitted (see Rural
Development and Urbanization chapters), and future development
should occur in higher densities along existing corridors in urban areas.
27. Public/Private Actions: The County shall encourage local residents and
businesses to conserve energy, to use renewable resources and to
recycle materials. The County shall coordinate its efforts with those of
local organizations, special districts, utility companies and state and
federal agencies.
28. At the time of subdivision review, the County shall see that: Covenants
which prevent energy conservation, such as roofline requirements
Working Draft Deschutes County Comprehensive Plan
Page 2-46
Draft 5-14-08
Chapter 2: Resource Management - Energy
precluding solar panels, bans on clotheslines and prohibitions on street
motorcycles, shall not be established in proposed developments.
29. The County shall account for its 1 % bicycle funds from the State
Highway Funds, and shall provide this accounting to the Bicycle Advisory
Committee on an annual basis. The 1 % funds shall be the minimum
spent to provide bicycle and pedestrian facilities within the County. The
County shall establish methods for funding pedestrian and bicycle
facilities that are not within the public right-of-way and therefore are not
eligible for the 1 % funds.
30. The County shall consider setting aside monies which might otherwise
be used for expanding motorized traffic ways and apply them toward a
non-motorized transportation system which accesses educational,
recreation, employment and shopping areas as well as connects to new
development.
31. Oregon imports 45% of its energy as fuel for motorized vehicles.
Nonmotorized transportation is recognized as an important way to
conserve energy. The County shall provide bicycle and pedestrian
connections between schools, residential areas, parks and other
recreation attractions, shopping centers, and other commercial and
industrial centers. In addition, the County shall encourage nonmotorized
modes through the use of techniques such as designating nonmotorized
areas (pedestrian malls), installing traffic cells and traffic calming
designs, allocating a greater share of street space to nonmotorized
modes, restricting motor vehicle parking, and other pedestrian and
bicycle-oriented land use patterns.
32. As much as possible non-motorized systems should be favored over
motorized transportation systems.
33. New major consumers of energy, such as commerce and industry, shall
be located whenever possible near established energy distribution
centers.
34. The County should set an example by weatherizing its buildings and
considering passive or active solar heat, perhaps with assistance from
retrofit grants.
35. To promote public awareness of the reasons and need for energy
conservation the County shall develop an educational program for use
County-wide.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-47
Chapter 2: Resource Management - Energy
Energy
Background
Profile
In 1979 when this plan was written, Deschutes County was an importer of
energy. The Bonneville Power Administration had stated that after 1983 they
would no longer assure 100 per cent distribution of electrical power. As with
the rest of the nation, Deschutes County anticipated increasingly expensive
gasoline and possibly even shortages. Therefore, it was considered likely that
the County would face serious problems in the near future unless precautions
were taken in time.
Energy Sources
At that time, hydropower generation in the County was limited to two sites
which were operating at capacity, with another potential site at Wickiup Dam.
Another possible energy source was fossil fuel development in the eastern
portion of the County, which while infeasible at the time, was seen as possible
in the future. There was also the prospect for an increase in local natural gas
supplies through the construction of a second
This Section implements and even third natural gas pipeline through
State Planning Goal 13: Central Oregon
Energy Some geothermal investigation was occurring
near Newberry Crater and also near the
Three Sisters Mountains. Environmental impact statements to permit
appropriate exploration in the Cascades had already been prepared. Problems
with objectionable smells from released gases, possible groundwater
contamination, earth subsidence or quakes were all hazards to be considered
in geothermal energy use. Loss of recreational lands and aesthetic qualities
also needed to be considered.
At the time, a State-wide Siting Task Force Report showed few, if any,
appropriate sites for coal or natural gas thermal generation plants in the
County.
The County did see some possibility for other types of energy production.
Wind generation was thought to be feasible if it could be tied to the existing
power grid. Waste wood burning was popular and feasible and one local
manufacturer had constructed a 9000 KW facility, while another had the
possibility of saving 6.9 million cubic feet of natural gas each year using waste
wood. County Pollution Control Bonds were thought to be able to finance
conversion from fossil fuels to wood waste, because that conversion would
Working Draft Deschutes County Comprehensive Plan
Page 2-48 Draft 5-14-08
Chapter 2: Resource Management - Energy
reduce a major solid waste problem, reduce energy costs to local industries
and slow the outflow of local money for imported energy.
Solar energy was another source considered a real possibility for Deschutes
County. Proper siting of housing with a solar orientation was thought to permit
critical sunlight access. Passive solar methods, such as proper window
placement and seasonal shading, were also believed to have significant
impact.
Conservation and Recycling
Energy conservation was seen as another important idea that could reduce
pollution, free existing energy resources for other uses and decrease the
outflow of money for energy. Education was determined to be the most
obvious way to promote conservation and could be achieved through
coordination with the Extension Service and establishing a paid coordinator.
Another conservation method considered was regulation, such as establishing
higher building and subdivision standards. Education and regulation could be
combined to require thermal ratings for new buildings and to promote more
efficient lay-outs. Another idea was to require the heat loss analyses
performed by utility companies to be kept on file for public review.
Recycling was also determined to be an energy saver. For
example, at that time, aluminum when reclaimed took only four
percent of the energy required to process raw ore, including
handling and transportation costs. Recycled copper required
only 11 percent of the energy needed to obtain the metal from
raw ores. Some recycling already existed locally but much
more was thought possible.
Transportation
In 1979 one of the biggest energy issues to face Deschutes County was
transportation. Transportation consumed 36 percent of total Statewide energy
use, and it constituted 56 percent of an average household's energy use. As a
rural area, Deschutes County was heavily dependent on automobiles and
thereby consumed considerable gasoline. The difficulty of reducing motorized
vehicles was understood, but the effect would be lower energy use, pollution
levels and expenses. Just the reduction of road construction and maintenance
(re-sealing, snowplowing, etc.) would save considerable energy.
Geothermal Element
A study of geothermal resources was completed and adopted as part of the
Resource Element in 1985. New Goals and Policies were added to the plan
based on that study.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-49
Chapter 2: Resource Management - Surface Mining
Surface Mining
CG :&P licies
Goal
1. To protect and utilize appropriately, within the framework established by
Statewide Land Use Planning Goal 5 and its implementing administrative
rules, the mineral and aggregate resources of Deschutes County, while
minimizing the adverse impacts of mineral and aggregate extraction and
processing upon the resource impact area.
Policies
General
1. These policies set forth the general guidelines under which the County
will implement the Goal 5 process for mineral and aggregate resources,
and assure compliance with all other applicable statewide land use
planning goals. More specific policies relating to utilization of mineral and
aggregate resources under particular circumstances and at particular
sites may be adopted by and set forth in the County's zoning ordinance
provisions.
2. For purposes of these policies, where applicable, the terms used shall
have the same meaning as those terms in the administrative rules
implementing Statewide Land Use Planning Goal 5.
3. The mineral and aggregate goal and policies outlined in the
comprehensive plan are intended to reflect the requirements of Goal 5
and the implementing administrative rules. Where a policy or
interpretation conflicts with Goal 5 or the rules, the provisions of the Goal
or rules shall control.
Surface Mining Identification and Designation.
4. The County shall encourage resource conservation.
5. The County shall encourage the use of materials which can be
substituted for sand and gravel.
6. Land use decisions of the County shall be based upon balanced
consideration of the location, availability and value of mineral and
aggregate resources, and conflicting resources and uses as designated
in the comprehensive plan.
7. The County shall review, as part of each periodic review process, the
status of mineral and aggregate resources in the County.
Draft Deschutes County Comprehensive Plan
Page 2-50 Draft 7-12-07
2: Resource Management - Surface Mini
8. Sufficient SM (Surface Mining) zoning shall be maintained by the County
to satisfy, at a minimum, the demand for mineral and aggregate
resources of the County as reflected by the data contained in the
comprehensive plan. The County shall not deny SM zoning for any
mineral and aggregate resource site for the sole reason that the demand
of the County for that resource has been satisfied by the SM zoning of
other sites.
9. The County shall retain ownership of County-owned lands which are
zoned SM pursuant to this plan and the Goal 5 process. The County may
permit private operators to mine County-owned resources.
10. A mineral and aggregate resource site not on the current inventory shall
be placed on the inventory and zoned SM when the following conditions
are met:
a. A report is provided verifying the location, type, quantity and quality
of the resource; and
b. The Goal 5 conflict identification and resolution (ESEE) process
results in a determination that the resource is of sufficient importance
relative to conflicting resources and uses, if any, to require
protection.
11. The County shall identify and protect sites for the storage, extraction and
processing of mineral and aggregate resources within the framework of
Goal 5 and its implementing administrative rules.
12. If the Goal 5 process does not identify resources or uses which conflict
with inventoried mineral and aggregate resource sites, such resource
sites, whether or not they are actively being utilized at the time of plan
amendment, shall be zoned SM.
13. If conflicting resources or uses are identified through the Goal 5 process,
a mineral and aggregate resource site shall be zoned SM if it is
determined to be of such importance relative to conflicting resources or
uses as to require protection. Uses which would interfere with the
present or future use of the SM site shall not be allowed, or shall be
limited so as not to preclude use of the SM site, until the mineral and
aggregate resource has been depleted.
14. SM zoning shall be prohibited in critical and sensitive resource areas
(such a fish and wildlife habitats, wetlands and riparian areas, recreation
and open space areas, and archaeological and historic sites) when such
areas and resources have been evaluated in light of all comprehensive
plan goals and policies, and are determined through the Goal 5 process
to conflict with the SM site and to be of such importance relative to an
inventoried mineral and aggregate resource site as to require complete
protection.
15. Although extraction of mineral and aggregate resources is considered by
this plan to be a transitional land use, interim uses (prior to extraction)
and secondary uses (after depletion) compatible with the development of
lands in the impact area of an SM site shall be designated as allowed
uses on SM sites. Such interim and secondary land uses shall be
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-51
Chapter 2: Resource Management - Surface Mining
identified prior to extraction so uses inconsistent with the plan are
avoided.
16. As part of the periodic review, the County will evaluate the economic,
social, environmental and energy (ESEE) consequences of conflicting
resources identified as significant Goal 5 resources in the ESEE analysis
for surface mining sites and will develop programs(s) to achieve the Goal
(OAR 660, Division 16). The ESEE analysis and program(s) for
protecting each 'significant' Goal 5 resource will be consistent with the
ESEE analysis and OAR 660, Division 16. If upon further examination,
the County determines that a resource, described as a conflicting
resource in an ESEE analysis for a 3(b) or 3(c) surface mining site is not
a "significant" Goal 5 resource or that the level of protection is not
consistent with the level of protection for the conflicting resource adopted
under a surface mining ESEE analysis, the County will re-evaluate its
ESEE analysis to be consistent with the new determination for the
conflicting Goal 5 resource. Consistent with OAR 660, Division 16, the
County will reconsider its decisions pursuant to any revised ESEE
analysis for surface mining sites. Where impacts upon a Goal 5 resource
are identified as a social consequence of conflicting residential uses
(e.g., scenic and wildlife amenities or rural lifestyles) and the amenities
are not identified as significant Goal 5 resources conflicting with the
mining site, the evaluation process described above is not required to be
undertaken. The County will document the reason for not conducting the
evaluation described above.
Surface Mining Operations.
17. Uses permitted outright or conditionally in the SM zone shall include:
a. Extraction, processing and storage of mineral and aggregate
resources; and
b. Necessary ancillary activities related to the uses listed in Policy 17(a)
above.
18. If timber or other similar renewable resources are identified in the Goal 5
process as existing on an SM site, the utilization of such other resources
before use of the mineral and aggregate resources shall be encouraged.
19. Extraction and processing of mineral and aggregate resources shall be
conducted in accordance with all applicable County, state and federal
standards.
20. Increased setbacks, insulation, screening and other similar conditions,
required as a result of a site-specific Goal 5 ESEE analysis, shall be
required for approval of any new residential, recreational or other
conflicting development or use on lands in the impact area of SM sites.
21. The County may establish additional standards and procedures to
minimize visual impact, noise, air and water pollution, natural and
operating hazards and other environmental impacts of the extraction and
processing of the impact area, where required as a result of a site-
Working Draft Deschutes County Comprehensive Plan
Page 2-52 Draft 5-14-08
Chapter 2: Resource Management - Surface Mining
specific Goal 5 ESEE analysis. The County shall adopt and apply more
stringent operating standards, if required by a site-specific Goal 5 ESEE
analysis, where lands in the impact area are zoned residential,
landscape management, wildlife or other similar overlay zones, or where
such impact area has particularly sensitive resources or uses identified in
the comprehensive plan, such as wildlife nesting or spawning sites or
intensive recreational uses.
22. Where operating standards and procedures are established for a surface
mining site through a site-specific ESEE analysis, and such site-specific
standards and procedures conflict with standards and procedures in the
surface mining provisions of the County's zoning ordinance, the
standards and procedures in the site-specific ESEE analysis shall
control.
23. Surface mining sites which on the effective date of this Ordinance have a
valid permit or exemption from the State Department of Geology and
Mineral Industries (DOGAMI) and/or the County shall be registered with
the County. Once registered, such sites shall be subject to the standards
and procedures in the site-specific ESEE analysis and/or the surface
mining provisions of the County's zoning ordinance only when the
surface mining activity on such sites is expanded beyond the boundaries
of the area covered by the existing DOGAMI and/or County permit or
exemption.
24. Mineral and aggregate resource sites zoned SM, except those with a
valid DOGAMI permit or exemption and/or County permit on the date that
SM zoning is applied, shall not be operated for extraction or processing
unless a site plan and reclamation plan, including mitigation measures
where required, have been approved in writing by the County and
DOGAMI, respectively. Site plans shall be developed with citizen
participation. Site plans shall, at a minimum, comply with all DOGAMI
reclamation plan requirements, and may include additional requirements.
25. Identified conflicts between mineral and aggregate resource sites and
resources and uses in the impact area where the conflicting resources
and uses have been determined to be of equal importance relative to the
mineral and aggregate resource, shall be minimized by plans developed
under the Goal 5 conflict resolution process and which utilize methods
including, but not limited to:
a. Requiring the surface mining operator to comply with all applicable
requirements of County, state and federal agencies;
b. Planning the development of lands in the impact areas so as to
minimize disruptions in the beneficial use of both the mineral and
aggregate resource and the uses in the impact area.
c. Imposing appropriate conditions on land use permits and approvals.
26. Extraction of mineral and aggregate resources for non-commercial uses
shall conform to the same environmental and regulatory standards as
are applicable to commercial operators, when necessary to protect land
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-53
Chapter 2: Resource Management - Surface Mining
uses adjacent to the resource site. On lands not zoned SM, such non-
commercial extraction may be allowed as a conditional use.
27. The County shall have the authority to enforce conditions of approval
and provisions of the County zoning ordinances, and to the extent
otherwise provided by law, the regulations of other governmental
agencies, relating to the extraction and processing of mineral and
aggregate resources, and the reclamation of surface mining sites, to
prevent violations thereof.
Non-Goal 5 Aggregate Resources.
28. The County shall develop a mineral and aggregate resource list that
includes mineral resource sites exclusive of those intended for protection
under Goal 5.
29. A mineral and aggregate resource site may be placed on the inventory
when the following conditions are met.
a. A report is provided verifying the location, type and quantity of the
resource.
b. The mineral and aggregate resource does not meet the Goal 5
significance criteria listed in OAR 660-023-0180(3) for a significant
mineral and aggregate site.
30. Mineral and aggregate resource sites listed on the non-significant
inventory shall not be operated for extraction unless a conditional use
permit, including mitigation measures where required, has been
approved by the County.
Working Draft Deschutes County Comprehensive Plan
Page 2-54 Draft 5-14-08
Chapter 2: Resource Management - Surface Mining
Surface Mining Profile
Background
In 1979, the mining of mineral and aggregate resources was considered an
important local industry. The removal of non-renewable resources, such as
pumice, cinders, building stone, sand, gravel and crushed rock, provided
employment as well as products important to local economic development.
Yet, the increasing demand for mineral and aggregate resources led mining
operations to come into direct conflict with adjacent land uses, particularly
residential uses. Surface mines are often incompatible with residential areas
because of their environmental impacts. This condition can be aggravated by
delayed or incomplete reclamation of the land.
This Section implements
part of State Planning
Goal 5: Open Spaces,
Scenic and Historic
Areas and Natural
Resources
Both the population and the demand for
resources were expected to grow, leading to
increased conflicts between surface mines
and residential communities. A balance was
needed between allowing the mining of
identified aggregate resources and protecting
residents from its impacts.
Mineral and Aggregate Demand and Inventory
When this plan was adopted a thorough analysis of historic and projected
demand for, and supply of, mineral and aggregate resources was completed.
The demand numbers were updated in the 1990s, based on population
projections at that time. As of 2008 the demand numbers are outdated and of
minimal use.
Unlike the projected demand, the supply inventory of mineral and aggregate
sites has been continuously updated and can be found in the following table.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-55
Chapter 2: Resource Management - Surface Mining
Goal 5 Inventory - Mineral ana Aggreg
ate sites
Site #
Legal
Name
Type
Quantity*
Quality
Access/Location
Description
246
11010-00-00205, 207,
Tewalt
S & G
10,000
Good
Hwy 20
300, 302, 303
248
151012-00-00100
Cyrus
Cinders
30.2 M
Excellent
Cloverdale Road
249
151025-00-
RL Coats
Rock
250,000
ODOT
02502,2505
specs
251
151211-130-
Cherry
S & G
125,000
Good
01400,151214-AO-
00800
252
151200-0-
Thornburgh
Rock
2.5 M
Good
04700,04701
271
151036-00-00800
Deschutes
S & G
2 M
Mixed
Harrington Loop Rd.
Count
273
151117-00-00100
Deschutes
S & G
75,000
Excellent
Fryrear Rd/ Redmond-
County
Sisters
274
151117-00-00700
Deschutes
S & G
Excellent
Fryrear Rd.
Count
275
151100-00-02400
Deschutes
S & G
175,000
Good
Fryrear Landfill
County
277
151011-00-01100
Oregon State
S & G
100,000
ODOT
Hwy
Specs
278
151140-AO-00901,
State of
S & G
18,000
ODOT
151211-DO-01200
Oregon
Specs
282
171000-00-00100
Crown Pacific
Cinders
100,000
Fair
283
171000-00-00100
Crown Pacific
Cinders
50,000
Fair
288
171111-00-00700
Tumalo
S.& G
250,000
Good
Irrigation
292
171112-00-00900
RL Coats
S & G
326,000
ODOT
-
Specs
293
17112-00-00500, 600,
RL Coats
S & -G
3 M
ODOT
700,800
Specs
294
171113-00-00817
Bend
S & G
777,000
Excellent
Klippel Acres/Bend
Aggregate
296
171100-00-02702
Crown Pacific
Cinders
100,000
Excellent
Shelvin Park/Johnson
Rd.
297
171123-00-00100
Crown Pacific
Cinders
60,000
Johnson Rd/Tumalo
303
171207-00-00300
Cascade
Pumice
750,000
Good
Pumice
303
171207-00-00300
Cascade
S& G
10,000
Good
Pumice
313
171433-0-00600
Deschutes
S & G
100,000
Good
Count
313
171433-0-00600, 120
Deschutes
Storage
Dodds Rd./Alfalfa
County
314
171332-00-01100
Deschutes
Dirt
150,000
Good
Count
315
140900-00-02100
Stott
Rock
93,454 tons
ODOT
Hwy. 20
Specs
316
140900-00-00202
Black Butte
S & W
7 M
Good
Ranch
317
140900-00-01300
Willamette
Cinders
1.2 M
Good
Ind
322
141200-00-01801
Fred Gunzner
S & G
1.5 M
Mixed
Lower Bridge
/Terrebonne
Working Draft Deschutes County Comprehensive Plan
Page 2-56
Draft 5-14-08
Chapter 2: Resource Management - Surface Minin
%-7Va~ U uwCnwry - whriera
i ana A►ggre
gaze sites
Site #
Legal
Nance
Type
Quantity*
Quality
Access/Location
Description
322
141200-00-01801
Gunzner
Diatomite
500,000
Good
Lower Bridge
/Terrebonne
324
141200-00-00702
ODVA
S & G
490,000
Good
Lower Bridge
/Terrebonne
326
141236-00-00300, 301
US Bank
S & G
1.5 M
Good
Trust
330
141328-00-00702, 703
Larry Davis
Cinders
50,000
Good
331
141329-00-00100, 103
Ed Moore
Cinders
100,000
Good
332
141329-00-00102
RL Coats
Cinders
2 M
Good
Northwest Way
/Terrebonne
333
141329-00-00104
Robinson
Cinders
2.7 M
Good
335
141333-00-00890
Erwin
Cinders
100,000
Excellent
Pershall Way/Redmond
336
141333-00-00400, 500
US Bank
Cinders
4.5 M
Good
Cinder Butte/Redmond
Trust
339
141132-00-01500
Deschutes
Dirt
200,000
Fill
Goodard Loop/Bend
County
341
161000-00-00106
Young &
S & G
1 M
Good
Morgan
342
220900-00-00203
Crown Pacific
Cinders
200,000
Good
345
161000-00-01000
Crown Pacific
Cinders
50,000
Good
346
161000-00-01000
Crown Pacific
Cinders
50,000
Good
347
161101-00-00300
Deschutes
Dirt
10,000
Good
Count
351
161112-00-01401,
Gisler/Russell
Cinders
150,000
Good
limes Mkt/Innes Butte
1700, 2000
357
161136-130-00100,
Tumalo
Cinders
1 M
Johnson Rd/Tumalo
161100-00-10400,
Irrigation
10300
357
161136-D0-00100,
Tumalo
S & G
500,000
Good
161100-00-10400,
Irrigation
10300
357
161136-DO-00100,
Tumalo
Pumice
500,000
Good
161100-00-10400,
Irrigation
10300
358
161231-DO-01100
Gisler
S & G
100,000
ODOT
Hwy. 20/Tumalo
Specs
361
161222-CO-02800
Oregon State
Cinders
700,000
Good
H
366
161230-00-00000
Oregon State
S & G
40,000
ODOT
H
Specs
368
161220-00-00200
Bend
S & G
570,000
Excellent
Twin Bridges/Tumalo
A e ate
3 70
161231-DO-00400
Bend
Storage
Aggregate
Plant Site
3 79
181100-00-01600
Oregon State
S & G
500,000
ODOT
H
Specs
381
181125-CO-12600,
Pieratt Bros
Cinders
50,000
Good
181126-00-01600
390
181214-00-00500, 100
Deschutes
Dirt
2 M
Landfill
County
Draft 5-14-08
Working Draft Deschutes County Comprehensive Plan
Page 2-57
Chapter 2: Resource Management - Surface Mining
Goal 5 Inventory - miinerai ana Aggreg
ate sites
Site #
Legal
Name
Type
Quantity*
Quality
Access/Location
Description
391
181221-00-00200
Central Or
Cinders
500,000
Good
Pumice
392
181223-00-00300
Rose
Rock
10 M Est
Mixed
392
181223-00-00300
Rose
Dirt
7.5 M
Good
393
181225-00-01400
LT
Cinders
12.5 M
Good
Arnold Mkt Rd/SE of
Contractors
Bend
394
181200-00-04400,
Windlinx
Cinders
270,000
Course
Hwy 97/South of Bend
04411
395
181200-00-04300
Oregon State
Cinders
100,000
Good
H
400
181300-00-04501,
Eric Coats
S & G
2.5 M
ODOT
04502
Specs
404
191400-00-00200
Moon
S & G
1.3 M
Good
404
191400-00-00200
Moon
Rock
800,000-2 M
Good
Hwy 20/East of Bend
405
191400-00-00600
Oregon State
Aggregate
50,000
ODOT
H
Specs
408
191600-00-01500
RL Coats
S & G
3 M
Good
413
201500-00-01400
Deschutes
S & G
30,000
Good/
Hwy 20/ East of Bend
County
-
Excellent
414
201500-00-01500
Deschutes
& G
30,000
Good/
Hwy 20/ East of Bend
County
Excellent
415
201716-00-00700
Deschutes
-S& G
30,000
Good/
Hwy 20/ East of Bend
Count
Excellent
416
201716-00-00200
Deschutes
S & G
30,000
Good/
Hwy 20/ East of Bend
County
Excellent
417
201716-00-00900
Deschutes
S & G
30,000
Good/
Hwy 20/ East of Bend
Count
Excellent
418
201716-00-01000
Deschutes
S & G
30,000
Good/
Hwy 20/ East of Bend
Count
Excellent
419
201716-00-01300
Deschutes
S-& G
30,000
Good/
Hwy 20/ East of Bend
County
Excellent
421
212000-00-00900
RL Coats
S & G
500,000
Excellent
Hwy 20/Tumalo
423
211106-CO-00700
Ray Rothbard
S& G
100,000
Good
426
211100-00-00702
La Pine Redi-
S & G
1 M
Good
Mix
427
211100-00-00701
Bill Bagley
S & G
40,000
Good
431
221100-00-00600
Russell
Cinders/
12 M/1.2 M
Good
Finley Butte
Rock
432
221100-00-00500
State of
Cinders
160,000
Good
Oregon
433
211300-00-00101
La Pine
Lump
10M
Excellent
Pumice
Pumice
441
150903-00-00300
Willamette
S & G
11 M
Good
Ind
442
150909-00-00400
Willamette
S & G
6 M
Good
Ind
443
150917-00-00600
Willamette
Rock
150,000
Fair
Ind
453
161209, 10-00-00600,
Robert
S & G
704,000
ODOT
301
Fullhart
Specs
459
141131-00-05200
Deschutes
Cinders
50,000
Good
Count
Working Draft Deschutes County Comprehensive Plan
Page 2-58
Draft 5-14-08
Chapter 2: Resource Management - Surface Mini
Goal 5 Inventory - Mineral and Aaareaate Sites
Site #
Legal
Name
Type
Quantity*
Quality
Access/Location
Description
461
141300-00-01500,
Nolan
S & G
350,000
Good
1501, 1502, 1503,
1505
461
141200-00-01501,
Franklin
Diatomite
2 M
Good
1502, 1503, 1505,
Nolan
1600
465
141333-00-00900
Oregon State
Cinders
10,000
Good
H
466
141333-00-00600
Fred Elliott
Cinders
5.5. M
Good
467
141333-00-00601
Knorr Rock
Cinders
5 M
Good
Co
469
141131-00-00100
Deschutes
Cinders
2 M
Fair
County
475
151012-00-00600
Deschutes
Cinders
200,0000
Good
Cloverdale Rd
County
482
151300-00-00103
Deschutes
Dirt
2 M
Good
Negus Landfill
County
488
161230-00-00100,
Bend
S & G
400,000
ODOT
600, 2000, 2100
A e ate
Specs
496
191400-00-00500
Taylor
S & G
1.8 M
Mixed
Hwy 20
498
191400-00-02200
Oregon State
S & G
200,000
ODOT
H
Specs
499
191533-00-00200
Oregon State
S & G
50,000
ODOT
H
Specs
500
191500-00-00099
Oregon State
S & G
130,000
ODOT
H
Specs
501
191500-00-01600
Oregon State
S & G
50,000
ODOT
H
Specs
503
191600-00-01300
Oregon State
S & G
200,000
ODOT
H
Specs
505
201600-00-00400
Oregon State
S & G
275,000
ODOT
H
Specs
506
201600-00-00600,
Oregon State
S & G
36,000
ODOT
700,800
H
Specs
508
201700-00-01000
State of
S & G
100,000
ODOT
Oregon
Specs
515
201801-00-00100
Oregon State
S & G
100,000
ODOT
H
Specs
522
211900-00-01000
Oregon State
S & G
300,000
ODOT
H
Specs
524
212000-00-01900
Oregon State
S & G
300,000
ODOT
Hwy
Specs
528
222110-00-00600
Oregon State
S & G
45,000
ODOT
H
Specs
529
221100-00-00300
Oregon State
S & G
31,000
ODOT
H
Specs
533
222100-00-00800
Oregon State
S & G
1 M
ODOT
H
Specs
541
141035-00-02000,
Cyrus
Aggregate
528,000
Good
Inc Portions of TL
2100, 2200, 2300,
1800/1900
2400, 2500, 2600
542
151001-00-02700
Swarens
Aggregate
80,000
Good
543
151013-00-00100
Cyrus
Aggregate
1.1 M
Good
600
191400-00-00700
Robinson
S & G
3.8 M
Good
Hwy 20/East of Bend
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-59
Chapter 2: Resource Management - Surface Mining
Goal 5 Inventory - mineral ana Aggre
gate bites
Site #
Legal
Name
Type
Quantity*
Quality
AccesslLocation
Descri tion
601
211100-00-00700
La Pine Redi
S & G
479,000
DEQ
Paulina Lake Rd
Mix
Specs
* Quantity in cubic yards unless noted
Non-Significant inventory -
Minerai ana Aggregat
e bites
Site #
Legal
Name
Type
Quantity
Comments
Description
100
15-10-13-700
Whychus (Squaw) Creek
Silt, Sand,
200,000 cy
Reservoir size is 80
Irrigation District - Watson
Dirt
acres
Reservoir I
101
15-10-13-700
Whychus (Squaw) Creek
Sand, Dirt
600,000 cy
Reservoir size is 40
Irrigation District - Watson
acres
Reservoir II
102
14-11-33-500
Whychus (Squaw) Creek
Silt, Sand,
100,000 cy
Reservoir size is 12
Irrigation District -
Dirt
acres
McKenzie Reservoir
103
14-11-33-500
Whychus (Squaw) Creek
Sand, Dirt
250,000 to
Reservoir expansion
Irrigation District -
300,000 cy
size is 20 acres
McKenzie Reservoir
Expansion
Working Draft Deschutes County Comprehensive Plan
Page 2-60
Draft 5-14-08
Chapter 2: Resource Management - Historical and Cultural
Historic and Cultural Goals & Policies
(see also the Deschutes River Corridor section on page
2-25 for additional goals and policies)
Goal
1. To preserve and protect historic and cultural resources of Deschutes
County.
To achieve the identified goal a number of policies were developed. These
policies reflect concerns that there be a specific agency responsible for
protecting historic and cultural resources and that the agency's specific
authority and duties needed to be identified. Also, that appropriate means by
which the new agency, the cities and the County could protect the resources
had to be found.
Policies
1. A joint Cities/County Historical Landmarks Commission shall be created
by the incorporated cities and Deschutes County. The joint commission
is meant to assure greater coordination in regard to identifying historical
and cultural resources, protecting those resources, being fully
representative of the various communities, serving in an advisory
capacity to all local governing bodies and their agents, as well as
promoting greater efficiency and better information in protecting the
resources. The duties of the commission would be to:
a. Create a local register and priority value for historic and cultural
resources of the County.
b. Review applications for designation of historical sites.
c. Advise governing bodies on ordinances and permits for demolition or
alteration of historic or archeological sites.
d. Advise and help resolve land use conflicts affecting such resources.
e. Devise standards for historical markers.
2. Preservation of historic and cultural sites of high priority rating or that
have been identified on the Deschutes County Inventory of Historical
Places should take precedence over other developmental uses.
3. Emphasis shall be on preservation of the exterior appearance of historic
buildings. Interior modifications and exterior changes compatible with the
continued maintenance of the historic appearance of the structure shall
be approved upon such findings of compatibility by the Historic
Landmarks Commission.
4. Plans for the protection of an identified historic or cultural site shall be
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-61
Chaoter 2: Resource Management - Historic and Cultural
submitted to the Historic Landmarks Commission for approval with any
application for subdivision or development of such site or area.
5. Incentives should be developed to encourage private preservation and
utilization of historical resources.
6. Redevelopment, Neighborhood Improvement Projects and other similar
mechanisms shall be encouraged for areas of significant historical or
architectural interest.
7. If funding is available, the County shall complete the Goal 5 process
required for the Tumalo Grange, Terrebonne Grange, Central Oregon
Irrigation District (numerous locations) and Rock O' the Range Bridge
sites in accordance with OAR 660-16 by the end of the 1994-95 State
Historic Preservation Office grant period.
Working Draft Deschutes County Comprehensive Plan
Page 2-62 Draft 5-14-08
Chapter 2: Resource Management - Historical and Cultural
Historic and Cultural Profile
Background
Deschutes County's rural area represents a proud heritage of exploration,
settlement and agriculture. Deschutes County's countryside is a rich and
descriptive historical document that tells us how generations of people from
vastly different backgrounds adapted to and exploited a land of lakes and
rivers, mountains and hills, forests and high deserts.
As part of that heritage, buildings teach us valuable lessons. They show us
how and why the area developed and what building materials were available.
The ways in which they were constructed tell us about their functions and the
influence of the land and elements. In addition to buildings, significant
information is provided by rock shelters, cemeteries and individual graves,
ranches, trails, wagon train routes, islands, townsites, mill sites, fish
hatcheries, river crossings, bridges, canals, dams, historic roads and other
unique resources.
In 1979 when this plan was adopted, historic and cultural areas were identified
as lands with sites, structures or objects with local, regional, statewide or
national historical significance or that refer to an area characterized by
evidence of an ethnic, religious or social group with distinctive traits, beliefs or
social forms. At the time, rapid growth and the subsequent loss of such sites
and areas made the protection of the County's important historic and cultural
resources locally significant. The program and policies recommended by the
Historic and Cultural Areas Citizen's Advisory Committee received support and
approval throughout the committee reviews and public hearings and changed
little during the planning process.
As originally adopted, this plan included goals and policies for protection of
historic resources as well as provisions that the County establish a Historical
Landmarks Commission and adopt an ordinance
This Section implements to protect designated historic sites. Approximately
part of State Planning 140 "potential historic sites".were identified and
listed based on information provided by the
Goal 5: Open Spaces, Oregon State Historic Preservation Office and the
Scenic and Historic Deschutes County Historical Society along with
Areas and Natural input provided by the Historic and Cultural Areas
Resources Citizen Advisory Committee.
The Citizen's Advisory Committee wrote a goal
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Draft 5-14-08 Page 2-63
Chapter 2: Resource Management - Historic and Cultural
and set of policies based on the following findings:
1. Public awareness of our history and cultural background has been and
will continue to be an important source of knowledge, pride, education
and enjoyment for this and future generations.
2. Rapid growth and development make it imperative that the County's
historic and cultural resources be identified and protected.
3. Lack of private owner incentive for preservation has led to historic site
deterioration or loss.
4. Inventorying, assessment and recording of historic and cultural
resources are an ongoing process which must be kept current,
particularly in the face of rapid growth and development.
5. Properly preserved and utilized historical or cultural resources enhance
the economy of the area.
6. There exist State and Federal laws which protect cultural resources from
disturbance or distraction and in light of the chosen alternative which
seeks to enhance cultural amenities as well as housing policies
encouraging housing rehabilitation, the citizens committee accepted the
recommended goal.
Subsequent Actions
On September 17, 1980 the Board of County Commissioners adopted
Ordinance PL-21, which established a Historical Landmarks Commission. This
ordinance set forth a designation process and provided for regulation of
additions, exterior alterations and demolitions of designated structures and
landmarks. PL-21 was subsequently amended by Resolution 82-001.
In September 1981 Oregon Administrative Rules, Chapter 660, Division 16,
established the Goal 5 Rule for a wide variety of resources, including historic
and cultural resources. The Rule was later revised, but still regulates historic
and cultural resources.
From 1983 to 1985 the Historical Landmarks Commission systematically
evaluated nearly 300 potential historical sites, approximately half of which
were newly identified sites with little or no previous information. Sites found to
be significant were recommended to the Board of County Commissioners for
historic designation. In this process, potential conflicting uses were identified
through discussions with property owners during site visits and through
testimony in public hearings. The analysis required under Goal 5 was
prepared by staff and decisions regarding how each site was to be protected
were made by the Commission. Certain sites required additional analysis
regarding significance, conflicting uses and other Goal 5 requirements.
Analysis for those sites was postponed to a later date.
In 1988 PL-21 was amended by the Historic Preservation Ordinance -
Ordinance 88-008. This ordinance was developed as the County's Goal 5
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Page 2-64 Draft 5-14-08
Chapter 2: Resource Management - Historical and Cultural
program. The ordinance outlines designation of historic buildings, sites and
districts. It also defines standards and procedures for additions, exterior
alterations and demolitions, reviews of redevelopment and neighborhood
improvement projects, inventory processes and other functions and duties.
Historic designation hearings were to be held before the Historical Landmarks
Commission with final action the Board of County Commissioners approval of
a text amendment to the Comprehensive Plan.
In 1990 the Historical Landmarks Commission initiated another site review,
similar to that done from 1983 to 1985. Over 100 sites in the County and cities
that had been identified between 1983 and 1985 were reviewed. Of 54 sites in
the unincorporated area, three were recommended for historic designation
On December 18, 1991 the Board of County Commissioners held the initial
public hearing to consider designating sites recommended by the Historic
Landmarks Commission under the Goal 5 Rule. On March 18, 1991 the Board
designated as historic those sites found significant that lie within the
unincorporated area and outside of lands managed by the United States
Forest Service and the Bureau of Land Management.
Since 1997, all historic and cultural designations are initiated by the property
owners through the Comprehensive Plan text amendment process. One
property was added in 2005. The following list contains a current inventory of
historic resources.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-65
Chapter 2: Resource Management - Historic and Cultural
Goal 5 Inventory - Historic resources.
1. Alfalfa Grange: Grange building and community center, built in 1930,
located on Willard Road, Alfalfa. 17-14-26 TL 400.
2. Allen Ranch Cemetery: Oldest cemetery in Deschutes County. 30' by 40'
fenced cemetery plot. Situated 100 yards west of South Century Drive,
one-half mile south of Road 42. Two marble gravestones, two wooden
markers. 20-11-7 TL 1300.
3. Fall River Fish Hatchery "Ice House": The hatchery "Ice House" dates
from the beginning of fishery management in Oregon, circa 1920. It is an
18 foot by 18 foot improvement, the only original building remaining on
the property, and the only significant building or structure on the site.
Located at 15055 S. Century Drive, EY2; NE'/; Section 32, Township
20S, Range 10 E, Tax Lot 100. (Ordinance 94-006 §1, 1994).
4. Long Hollow Ranch - Black Butte: Headquarters complex of historic
ranch, located on Holmes Road in Lower Bridge area, including
headquarters house, ranch commissary, equipment shed, barn and
bunkhouse. 14-11-1 TL 101.
5. Swamp Ranch - Black Butte: The present day site of the Black Butte
Ranch was part of the vast holdings of the Black Butte Land and
Livestock Company in 1904. No buildings from the period exist. 14-9-
10A, 10B, 15B, 15C, 16A, 21 A, 21 B, 21 C, 22A, 22B.
6. Brothers School: Only one-room schoolhouse currently in use in
Deschutes County, located on Highway 20 in Brothers. 20-18-00 TL
3200.
7. Bull Creek Dam: The Bull Creek Dam, a component of the Tumalo
Irrigation Project was constructed in 1914 to form a water storage
reservoir to increase the amount of irrigated acreage at Tumalo. It is a
gravity type of overflow dam. Two cut off walls are extended into solid
formation, one at the upper toe and the other at the lower toes of the
concrete dam. The dam proper is about 17 feet high from the foundation,
although the completed structure is about 25 feet. Located on Tumalo
Reservoir-Market Road. 16-11-33 TL 2700 SW-'/; SW
8. Bull Creek Dam Bridge (Tumalo Irrigation Ditch Bridge): Built in 1914, the
bridge, which spans the dam, consists of five continuous filled spandrel,
barrel-type concrete deck arch spans, each 25 feet long. The concrete
piers are keyed into notches in the arch structure. The structure is the
oldest bridge in Deschutes County. On Tumalo Reserve-market Road.
16-11-33 TL 2700/ SW-'/; SW-'/.
9. Camp Abbot Site, Officers' Club: Officers' Club for former military camp,
currently identified as Great Hall in Sunriver and used as a meeting hall.
20-11-5B TL 112.
10. Camp Polk Cemetery: One of the last remaining pioneer cemeteries,
located off Camp Polk Road near Sisters. The site is composed of a tract
of land, including gravestones and memorials, containing 2.112 acres in
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Page 2-66
Draft 5-14-08
Chapter 2: Resource Management - Historical and Cultural
the Southwest Quarter of the Southeast Quarter of Section 27, Township
14 South, Range 10 E.W.M., TL 2100, described as follows: Beginning at
a point North 20 degrees 06'20" West 751 feet from the corner common
to Sections 26, 27, 34 and 35 in Township 14 South Range 10 E.W.M.
and running thence South 88 degrees 30' West 460 feet; thence North 1
degree 30' East 460 feet; thence South 1 degree 30' 200 feet to the point
of beginning.
11. Camp Polk Military Post Site: One of the oldest military sites in
Deschutes County. Located on Camp Polk Cemetery Road. Site includes
entire tax lots, listed as follows 14-10-34 TL 100, 300.
12. Cline Falls Power Plant: Early hydropower site on the Deschutes River,
located off Highway 126 on White Rock Road west of Redmond. Site
includes dam, penstock and powerhouse. 15-12-14 TL 901.
13. Cloverdale School: One-room school building in Cloverdale, located near
68515 George Cyrus Road. First building built in Cloverdale. 15-11-7 TL
600.
14. Eastern Star Grange: Grange hall for earliest grange organized in
Deschutes County, located at 62850 Powell Butte Road. 17-13-19 TL
1900.
15. Enoch Cyrus Homestead Hay Station and Blacksmith Shop: The Enoch
Cyrus Homestead was the original homestead of Oscar Maxwell, built in
1892 and purchased in 190 by Enoch Cyrus. Important stage/store stop
for early travelers. The homestead house, including a back porch and
cistern, and the Blacksmith Shop are designated. 15-11-10 TL 700.
16. Fremont Meadow: A small natural meadow on Tumalo Creek in Section
34, Township 17 South, Range 11 East, lying within Shevlin Park. TL
5900. Campsite for 1843 Fremont expedition. 17-11-34 TL 5900.
17. Harper School: One-room schoolhouse, located west of South Century
Drive, south of Sunriver, moved halfway between the Allen Ranch and
the Vandevert Ranch from the former townsite of Harper. 20-11-17 TL
1900.
18. Improved Order of Redmond Cemetery: Historic cemetery used by
residents of La Pine/Rosland area. Located on Forest Road 4270, east
of Highway 97. A 40-acre parcel described as: The Southwest one-
quarter of the Southeast one-quarter (SW-'/; SE-'/) Section 7, Township
22 south, Range 11, East of the Willamette Meridian, Deschutes County,
Oregon.
19. Laidlaw Bank and Trust: One of the few remaining commercial buildings
from the community of Laidlaw, located at 64697 Cook Avenue, Tumalo.
16-12-31 A TL 2900.
20. La Pine Commercial Club: Building was built in 1912 as a community
center, serving as a regular meeting place for civic organizations and
occasionally served as a church. One of the oldest and continuously
used buildings in La Pine. Located at 51518 Morrison Street, La Pine.
22-10-15AA TL 4600.
21. Lynch and Roberts Store Advertisement: Ad advertising sign painted on
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Historic and Cultural
a soft volcanic ash surface. Only area example of early advertising on
natural material. Lynch and Roberts established mercantile in Redmond
in 1913. Roberts Field near Redmond was named for J. R. Roberts. Site
includes the bluff. 14-12-00 TL 1501.
22. Maston Cemetery: One of the oldest cemeteries in County. Oldest grave
marker is 1901. About one-half mile from site of Maston Sawmill and
Homestead. Site includes the gravestones and memorials and the entire
tax lot, identified as 22-09-00 TL 1800.
23. George Millican Ranch and Mill Site: Ranch established in 1886. Well
dug at or near that date. Remains of vast cattle ranching empire. 19-15-
33 TLs 100, 300.
24. George Millican Townsite: Town established 1913. Site includes store
and garage buildings, which retain none of the architectural integrity from
era. 19-15-33 TL 500.
25. Petersen Rock Gardens: The Petersen Rock Gardens consist of stone
replicas and structures erected by Rasmus Petersen. A residence house
and museum are part of the site. The site has been a tourist attraction for
over 60 years. Located at 7930 SW 77th, Redmond. Site includes entire
tax lot. 16-12-11 TL 400.
26. Pickett's Island: After originally settling in Crook County, Marsh Awbrey
moved to Bend and then homesteaded on this island in the Deschutes
River south of Tumalo. The site was an early ford for pioneers. Located
in Deschutes River near Tumalo State Park. 17-12-6 NE-'/ TL 100.
Portion between Deschutes River and Old Bend Road is designated.
27. Rease (Paulina Prairie) Cemetery: Historic cemetery on Elizabeth
Victoria Castle Rease and Denison Rease's homestead. Earliest known
grave is of their son, George Guy Rease, born in 1879, who was also a
homesteader on Paulina Prairie. George Guy Rease died of smallpox on
the Caldwell Ranch on May 2, 1903. Other known burials are William
Henry Caldwell, 1841-October 15, 1910, died on the Caldwell Ranch of
injuries sustained on a cattle drive; Melvin Raper, 1892-1914, died in a
tent of tuberculosis; Addie Laura Caldwell, 1909-November 16, 1918,
died of the Spanish influenza epidemic; and Emma Nimtz Deedon, 1886-
April 15, 1915, died of complications from a pregnancy. There are
several unmarked graves. The cemetery is a county-owned one-acre
parcel on the north edge of Paulina Prairie, two miles east of Highway
97. 210-11-29, SE-'/; NW TL 99.
28. Terrebonne Ladies Pioneer Club: The Club was organized in 1910. The
building has been a community-meeting place since 1911. Located at
8334 11th Street, Terrebonne. 14-13-16DC TL 700.
29. Tetherow House and Crossing: Site is an excellent example of an early
Deschutes River crossing. Major route from Santiam Wagon Road to
Prineville. Tetherow House was built in 1878. The Tetherows operated a
toll bridge, store and livery stable for travelers. Oldest house in County.
Site includes house and entire tax lot. 14-12-36A TL 4500.
30. Tumalo Creek - Diversion Dam and Headgate of Feed Canal:
Working Draft Deschutes County Comprehensive Plan
Page 2-68 Draft 5-14-08
2: Resource Management - Historical and Cultural
Constructed in 1914, the Feed Canal's purpose was to convey water
from Tumalo Creek to the reservoir. The headworks of the Feed Canal
consist of a low overflow weir dam, 94.2 feet in length. The entire
structure is of reinforced concrete. 17-11-00 TL 5900.
31. Tumalo Community Church: The building is the oldest church in the
County, built in 1905. It stands in the former town of Laidlaw, laid out in
1904. Located at 64671 Bruce Avenue, Tumalo. 16-12-31A TL 3900.
32. Tumalo Project Dam: Concrete core, earth-filled dam 75 feet high. First
project by State of Oregon to use State monies for reclamation project.
On Tumalo Creek. 16-11-29.
33. William P. Vandevert Ranch Homestead House: The Vandevert Ranch
House stands on the east bank of the Little Deschutes River at 17600
Vandevert Road near Sunriver. The homestead was established in 1892,
and has been recently relocated and renovated. Vandevert family history
in the area spans 100 years. 20-11-00 TL 1900.
34. Kathryn Grace Clark Vandevert Grave: Kathryn Grace Vandevert,
daughter of William P. Vandevert, died of influenza during the epidemic
of 1918. Her grave is located across a pasture due south of the
Vandevert House, 50 feet east of the Little Deschutes River. Site
includes gravestone and fenced gravesite measuring is approximately 15
feet by 25 feet. 20-11-00 TL 1900.
35. Young School: Built in 1928, it is an excellent example of a rural "one-
room" school which served homesteaders of the 1920s. Located on
Butler Market Road. 17-13-19 TL 400.
36. Agnes Mae Allen Sottong and Henry J. Sottong House and Barn. House
and barn are constructed with lumber milled on the property in a portable
sawmill run by the Pine Forest Lumber Company in 1911. Henry was
awarded homestead patent 7364 issued at The Dalles on Dec 1, 1904.
Henry was president of the Mountain States Fox Farm. A flume on the
Arnold Irrigation District is named the Sottong Flume. The structures are
also associated with William Kuhn, a president of the Arnold Irrigation
District; Edward and Margaret Uffelman, who were part of the group that
privatized and developed the Hoo Doo Ski Resort; and Frank Rust
Gilchrist, son of the founder of the town of Gilchrist and Gilchrist Mill
and president of the Gilchrist Timber Company from the time of his
father's death in 1956 to 1988. Frank R. Gilchrist served on the Oregon
Board of Forestry under four governors and was appointed by the
governors to serve as a member of the Oregon Parks and Recreation
Advisory Committee. He served on the Oregon State University's Forest
Products Research Lab and was a director and president of the National
Forest Products Association. T18 R12 Section 22, 00 Tax lot 01600.
37. Inventory note: Unless otherwise indicated the inventoried site includes
only the designated structure. No impact areas have been designated for
any inventoried site or structure.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 2-69
Chapter 2: Resource Management - Historic and Cultural
Sites with insufficient information
Central Oregon Irrigation District - numerous locations; Terrebonne Grange -
14-13-16DC TL 700 (south half); Rock O' the Range Bridge- Bowery Land
where it crosses the Swalley Canal; Tumalo Grange - 16-12-31A TL 3900.
Working Draft Deschutes County Comprehensive Plan
Page 2-70 Draft 5-14-08
Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
Regional Problem Solving _
for south Deschutes County Goals & Policies
(see also the Water Resources Section on page 2-22 and
the Deschutes River Corridor section on page 2-25 for
additional goals and policies)
Goals
1. To preserve water and air quality, reduce wildfire hazards and protect
wildlife habitat.
2. To ensure that domestic water derived from groundwater meets safe
drinking water standards.
3. To develop an equitable, market-driven system, that reduces the
potential development of existing lots in floodplains, wetlands, mule deer
migration corridors and areas susceptible to groundwater pollution.
4. To create a new neighborhood, primarily residential in character,
between La Pine and Wickiup Junction, that provides services efficiently,
sustains economic development and reduces adverse impacts to
groundwater quality in South Deschutes County.
5. To explore innovative sewage treatment and disposal methods.
Policies
The County shall continue to work with landowners, citizens, community
organizations and governmental agencies at the local, state and federal
level to:
a. Continue collaborative work on the Regional Problem Solving
project.
b. Develop, review and implement land use policies and development
standards that will ensure that agreed-upon solutions from the RPS
project are enacted to the maximum extent possible.
c. Acquire land from the BLM between La Pine and Wickiup Junction,
west of Highway 97, to develop as a new neighborhood.
d. Conduct feasibility studies regarding development of a new
neighborhood. Such studies may include, but are not limited to: a
master design plan, development costs and funding options, water
and sewer system feasibility, traffic impacts, and zoning codes and
governance issues.
e. Install and monitor innovative on-site sewage treatment and disposal
(septic) systems on privately owned parcels in the RPS project area
as part of the La Pine National Decentralized Wastewater Treatment
Demonstration Project funded by the U.S. Environmental Protection
Working Draft Deschutes County Comprehensive Plan
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
Agency and in cooperation with the Oregon Department of
Environmental Quality.
f. Work cooperatively with the U.S. Geological Survey and Oregon
Water Resources Department during well water sampling and
analysis to advance three-dimensional groundwater and nutrient fate
and transport modeling in the south Deschutes County area.
2. The County shall implement and monitor in accordance with DCC
23.44.030(D), a Transferable Development Credit program as a means
to redirect potential growth away from residential lots in subdivisions
throughout the region into the La Pine Neighborhood Planning Area.
The County shall establish a TDC Review Committee to assist in
analyzing and recommending any changes deemed appropriate to the
TDC program.
3. The County shall continue to evaluate means to reduce nitrate loading
from on-site sewage disposal systems by exploring innovative on-site
sewage treatment and disposal technology, retrofitting of existing
substandard or inappropriately located disposal systems, expansion of
sewer systems, development of standards such as an effective lot area
or variable lot area requirements, or other measures that will accomplish
the goals.
4. New residential subdivisions and partitions in the La Pine Urban
Unincorporated Community shall be connected to a community water
system and either the La Pine Special Sewer District sewage treatment
system or a community waste water treatment facility that meets Oregon
Department of Environmental Quality standards. be processed in the
same manner as other quasi-judicial plan or zoning map changes.
Working Draft Deschutes County Comprehensive Plan
Page 2-72
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
Regional Problem solving for
south Deschutes County Profile
Background
This chapter was added to the Comprehensive Plan in 1998 in response to
potential water quality issues that were identified in south Deschutes County. It
has not been amended as part of the 2008 tune-up of this plan because as of
2008, there was an active and on-going public discussion of these issues.
Overview
In the 1960s and early 1970s, before statewide planning occurred in Oregon,
over 15,000 lots were created in subdivisions platted south of Sunriver. Most
of these parcels are less than two acres in size and use on-site septic systems
to dispose of sewage. Many of them are located in areas where development
is now restricted, such as floodplains, wetlands and areas with a high
groundwater table where septic approval is unlikely.
Since 1989, Deschutes County has been the fastest growing county in the
state on a percentage basis. The rural character, attractive location on or near
the Deschutes and Little Deschutes Rivers, and relatively inexpensive land
prices in South Deschutes County have led to a burgeoning population. The
current estimated population of up to 16,000 residents (over 10,000
permanent) would make this area the second largest city in Oregon east of the
Cascades were it incorporated, exceeded only by the city of Bend. Impacts to
groundwater, the source of drinking water in this area, air quality, wetlands
and mule deer migration and the risks to human life and property from wildfires
have increased significantly over time.
In 1996, Deschutes County and the Department of Land Conservation and
Development recognized that significant consequences could occur from the
pattern of development and began a collaborative project known as Regional
Problem Solving Project for South Deschutes County. The Regional Problem
Solving (RPS) project area encompasses approximately 42 square miles
between Sunriver to the north and La Pine to the south, and includes
thousands of small-subdivided lots, and some larger parcels, throughout
southern Deschutes County. The attached map identifies Study Areas 1, 2 and
3 within the project area.
The RPS project area is a landscape with a geologic history that produced
sediments of volcanic origin that were deposited in a basin over past eons.
These conditions are the result of lava flows from the west (Cascades) and
east (Newberry) that periodically dammed and shifted the course of the
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
Deschutes River, creating the La Pine Basin, where the deposition of
sediments has occurred, sometimes burying older forests. Volcanic eruptions
such as the one at Mt. Mazama (Crater Lake) approximately 6,800 years ago
have contributed significantly to the volume of sediment deposited in the
basin. The Mt. Mazama eruption is the source of volcanic material that has
formed the predominant soil in the area.
At an elevation of 4200 feet, the climate in the region is one of cool nighttime
temperatures with a short frost-free summer that averages less than 100 days
annually and a winter period of five or six months where snow can reside on
the ground at any time. The rivers receive significant input from cool spring fed
waters. The groundwater is mostly derived from snowmelt in the high
Cascades to the west, and is also relatively cool.
The development of thousands of small lots in the RPS project area is
therefore superimposed upon highly permeable, rapidly draining soils and a
high groundwater table with relatively cold-water temperatures. The
overwhelming majority of the lots are served by on-site sewage disposal
systems (septic systems), including standard drain fields, cap and fill systems,
and more recently sand-filter systems. Nitrates, a by-product of septic systems
and an indicator of human pathogens, are poorly retained in the fast draining
soils and do not easily break down due to the cool groundwater temperature.
As a result, loading of nitrates occurs in the shallow groundwater aquifer that
underlies this region. The presence of a high level of nitrates is of great
concern because this same aquifer is the source of drinking water for the
residents in the area.
A recent US Geological Survey study of groundwater in Central Oregon
concludes that groundwater in the area is connected to nearby surface waters,
including the Deschutes and Little Deschutes Rivers. Through the sampling of
numerous wells in the RPS project area the Oregon Department of
Environmental Quality (DEQ) is predicting that nitrate in the groundwater will
approach unsafe levels, principally as a result of the cumulative effect of
sewage disposal with on-site septic systems, in the near future. Levels of
nitrate are elevated in several localized areas within the RPS project area.
However the majority of wells show very low nitrate levels at this time and
surface water contamination has not been documented.
Due to the existing pattern and density of development DEQ is predicting that
nitrate levels will continue to increase over time, even if measures were taken
now to alter the development pattern in the RPS project area. If measures are
delayed much longer, the consequences could become more serious, possibly
resulting in unsafe levels of nitrates in groundwater and drinking water.
More definitive information is expected to be available in the next few years,
regarding the timing of nitrate movement in groundwater and the overall
impact of nitrate from septic systems to groundwater and possible surface
water pollution. The DEQ and Deschutes County will complete additional
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groundwater investigations and testing of innovative sewage treatment and
disposal systems to reduce the impact on groundwater from nitrogen in
household sewage, with grants from the US Environmental Protection Agency.
The results from these studies will not be known for several years. Studying
different approaches to on-site sewage treatment and disposal may lead to
affordable technological advances that can be applied to new and possibly
existing systems. In the meantime, the region will continue to grow and nitrate
loading from on-site systems will continue to increase.
Some measures may need to be implemented in the future to address
groundwater pollution and other impacts that could result from the
development of the thousands of small size subdivided lots in South
Deschutes County. The creation of a new neighborhood between La Pine and
Wickiup Junction as an alternative to building fewer houses on the remaining
vacant small lots appears to hold much promise. A market-driven transferable
development credits program could assist in the redirection of growth from the
existing subdivisions into this new neighborhood.
A development standard or sewage disposal rule that requires an effective lot
area of 1.5 acres for new dwellings served by an on-site septic system may
need to be considered. The acreage requirement would need to be based on
the long-term balance between nitrate loading from septic systems and dilution
from precipitation that infiltrates the land. An effective lot area should include
contiguous or non-contiguous vacant land within a specified distance from the
proposed building site.
For these reasons, Deschutes County has determined that it is appropriate to
adopt comprehensive plan goals and policies to recognize the importance in
protecting groundwater and other resources and the need to continue to work
on the Regional Problem Solving project for South Deschutes County.
Nitrates - Health and groundwater impacts; septic system
impacts and studies
High levels of nitrates in drinking water are a cause of methemoglobinemia
(blue baby syndrome) in infants and have been linked to cancer and
weakening of immune system in the elderly. Recent epidemiologic studies
indicate that chronic long-term exposure to low levels (2.5 mg/L) of nitrates
can increase the risks for certain types of cancers. Nitrate levels are often
used as an indicator for the transmission capabilities of other pathogenic
agents. Surface waters are very sensitive to eutrophication by the addition of
nutrients; nitrate is an indicator of nutrient loading.
A natural background level of nitrates would be less than 1 mg/L. The
Environmental Protection Agency (EPA) has set the safe water drinking
standard (Maximum Contaminant Level or MCL) for nitrate at 10 mg/L. The
DEQ is required to declare a region a Groundwater Management Area if
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
nitrate concentration reaches 7 mg/L. This would require a plan to protect and
restore groundwater quality. Deschutes County Planning and Environmental
Health are only slightly ahead by starting and developing their plans
proactively.
On-site septic systems are the only significant source of nitrates in the La Pine
sub-basin. The La Pine sub-basin has many conditions that allow for little
denitrification of wastewater to occur: rapidly draining soil, shallow, well
oxygenated groundwater, very short growing season, cold temperature, not
much hydraulic gradient. Most of the development has taken place in the very
bottom of the sub-basin over shallow groundwater and on small lots served by
wells from an unconfined aquifer.
In 1980-81 contamination of the aquifer from septic systems had already
occurred in the La Pine core area. (La Pine Aquifer Management Plan,
Century West, 1982). A community sewer system was required to remedy the
situation. A 1995 well monitoring study by DEQ showed that after 11 years of
sewer, the nitrate levels in the La Pine core area had receded but were still at
"unsafe levels." This is an indication that the recovery time for the aquifer is
lengthy.
The 1995 monitoring study also revealed the existence of five areas in the
RPS project area, not including the core area of La Pine, where nitrate levels
are greater than usual background levels. Nitrate levels are as high as 4.8 to
5.9 mg/L in three of these areas and as high as 3 mg/L in the other two.
The 1995 monitoring study was part of a modeling effort by the DEQ to
estimate the impact of septic systems on the groundwater. The initial results of
the model indicate that at existing (1994) development the aquifer would reach
nitrate levels of 7 mg/I by 2005. Since the collection of samples in 1994 there
are approximately 700 additional residences in the RPS project area using on-
site septic systems. The model is limited because it is two-dimensional and
does not account for flow in or out of its boundaries.
A grant from the US Environmental Protection Agency will allow significant
work to begin in 1999 to help with a solution to the problem of high nitrate
levels. The primary purpose of the grant is to study new technologies in on-
site septic systems. Part of the grant will be used to continue increasing the
groundwater monitoring network and complete additional analysis of nitrate
movement in the groundwater using a three dimensional model.
The innovative septic system program was started in 1998 through the RPS
project and DEQ grant funding and is expected to increase significantly with
the new federal grant. The purpose is to try new technologies that appear to
be capable of reducing nitrate levels. Besides nitrate reduction there are many
other aspects of new technology that need to be examined before widespread
applications for the general public can occur.
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Over the past five years the US Geological Survey (USGS) has developed a
groundwater flow model of the entire Upper Deschutes Basin. The model will
be used as the basis for an analysis of the impacts of nitrates from on-site
systems to help answer the following three questions:
1. Where should additional monitoring wells be set up for continuous
monitoring of nitrate plumes from residential development?
2. What density does development need to be set at to minimize impact on
groundwater quality?
3. What variations of impact due to location are there in the La Pine sub-
basin?
The DEQ rules require a minimum of an acre for standard system and a half-
acre for pressure or sand filters in rapidly draining soils. This is a statewide
rule and the authors were probably looking at rainfall amount from a typical
Willamette Valley year to provide dilution.
Mixing wastewater from a typical single-family residence with the recharge
provided by yearly precipitation in Southern Deschutes County, it requires 2.5
acres for a standard system and 1.5 acres for a sand filter to maintain a
recharge concentration at or below 7 mg/I. This estimate is on the
conservative side because it does not account for inflow, outflow, or upflow
from other areas.
Areas such as Fall River Estates, Wild River and Ponderosa Pines do not
require as much acreage to achieve an adequate amount of mixing and
dilution of nitrates because they are located in areas of higher precipitation at
the western edge of the aquifer. Also, the aquifer gradient is steeper resulting
in more dilution due to higher groundwater flow rates. La Pine and portions of
Oregon Water Wonderland and Stage Stop Meadows subdivisions served by
sewer systems are also not contributing to the overall nitrate-loading problem
in the region.
Legislation
In October 1998, Congress passed legislation to assist Deschutes County in
purchasing a 540-acre tract of land from the Bureau of Land Management.
This tract is located between La Pine and Wickiup Junction, west of Highway
97 and east of Huntington Road. A sewer line between the communities of La
Pine and Wickiup Junction runs through the property.
This property is intended to be the site of a new neighborhood that will be
serviced by sewer and water systems, and paved roads. Residential use will
predominate, although community needs such as a senior center, library,
assisted living facility and limited neighborhood commercial uses may be
developed. A design process known as a "charette" occurred in November
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
1998. This design workshop occurred over a three-day period with the
participation of over 80 people from the community.
The initial design encompasses a neighborhood primarily residential in
character with sewer, water and a road network of paved streets and access
roads without curbs. A setback of 300 feet from Highway 97 has been
incorporated into the eastern boundary of the design. A senior center and
assisted living facilities are included in the southern part of the property
adjacent to the community of La Pine. This preliminary design will be
evaluated to determine lot sizes and density, development costs, phasing of
development and the ability to use transferable development credits as a tool
for the overall development of the new neighborhood.
Transferable development credits
A TDC (Transferable Development Credit) Program has been developed to
redirect some of the future development of residential dwellings from lots
served by on-site sewage disposal (septic) systems to the residentially zoned
districts in the Neighborhood Planning Area in the La Pine UUC that will be
connected to water and sewer systems.
A TDC is a severable interest in real property that represents the right to
construct a single-family dwelling and an on-site sewage disposal system. The
TDC program code has been adopted in compliance with the provisions of
ORS 94.531.
The essential elements of the TDC program are to be codified in DCC Title 11,
County Owned Land and Property, of the County Code. The TDC program is
intended to redirect some of the future residential growth from existing
subdivisions in South Deschutes County, also identified as the "sending area"
where TDC's are allocated to eligible lots, into the Neighborhood Planning
Area, also referred to as the "receiving area" where TDC's are required to be
redeemed based on a net developable acreage formula. If successful the TDC
program will reduce the overall impact from development in flood plains,
wetlands, deer migration corridors and areas susceptible to groundwater
pollution from nitrates. It will also help to maintain open space and preserve
the rural character of the area by reducing the overall density of development
that would otherwise exist in the future if a dwelling were built on every legal
lot. In the sending area the TDC program will operate in a voluntary, market-
driven manner. Those property owners who choose to sell their TDC's will
retain ownership of the underlying land on which certain uses, such as
camping, wood cutting, vegetation management, agricultural use and
construction of a small storage structure will be allowed. A Conservation
Easement will be placed on the property that will prohibit the construction of a
single-family dwelling and on-site sewage disposal system on the property.
Property owners who sell their TDC's and enter into a Conservation Easement
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
restricting future uses on their property may elect to sell the deed for the
underlying property to a willing buyer.
Public participation
The RPS project has involved all aspects of the community, including property
owners, interest groups, public agencies and government at the local, state
and federal levels. Over 20 stakeholder meetings and 5 public forums were
held. Eight newsletters and other mailings have been sent out to an extensive
mailing list of property owners and other interested individuals, community
organizations and local governments. The local press has covered this topic
with a number of articles and news reports on several occasions.
According to written surveys the top three priorities for the residents of South
Deschutes County are: 1) to retain open space to maintain the rural character
of the area; 2) to not allow septic systems in areas of high groundwater; and,
3) to allow for experimentation with alternative methods of sewage disposal.
Among the least favored options was extending sewer throughout the region
due to the high cost associated with this expansion. However, several small
sewer systems exist in the region and people commented and testified at
public meetings and hearings that the option of using sewer systems to
dispose of sewage should continue to be explored.
To ensure that public involvement was as great as possible regarding
proposed amendments in 1998 to the comprehensive plan and zoning
ordinance, an additional newsletter was mailed that contained a notice of
public hearings before the Deschutes County Planning Commission and the
Board of County Commissioners. The newsletter also described various
aspects of the RPS program, characterized design elements of the new
neighborhood as a result of the design charette and encouraged people to
attend a community workshop held in early December to learn more about the
amendments. This newsletter was mailed to over 5,000 property owners,
including the owners of all lots in the RPS project area which are zoned RR-10
and less than 2 acres in size, and the stakeholders, interest groups, agencies,
etc., who had previously participated or expressed an interest in the RPS
project.
More detailed information about the RPS project including information on
nitrates, experimental on-site technology, alternative solutions, transferable
development credits and a bibliography of the studies and other sources of
information used to analyze the region's problems and to formulate solutions
was made available at the hearings.
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Chapter 2: Resource Management - Regional Problem Solving for south Deschutes County
LCDC Acknowledgement
In September 2000 the Oregon Land Conservation and Development
Commission (LCDC) conducted a hearing and approved the County's request
to expand the La Pine UUC to include the area formerly recognized as the
Wickiup Junction Rural Service Center and the New Neighborhood area. The
Neighborhood area includes a tract of land the County purchased from the
Bureau of Land Management and a privately owned parcel.
LCDC also approved the County's comprehensive plan designation and
rezoning of the area added to the La Pine UUC from resource lands zoned
exclusive farm use to various planning districts that allow for the creation of a
residential subdivision served by municipal water and sewer systems and
paved roads.
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Deschutes County Comprehensive Plan
Chapter 3: Rural Growth Management
Table of Contents
Rural Development 3-2
Natural Hazards 3-7
Public Facilities and Services 3-12
Transportation System Plan 3-20
Economy 3-59
Recreation 3-69
Destination Resorts 3-73
Housing 3-78
Page 3-1
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Chapter 3: Rural Growth Management - Rural Development
Rural Development
Goals & Policies
Goals
1. To preserve and enhance the open spaces, rural character, scenic
values and natural resources of the County.
2. To guide the location and design of rural development so as to minimize
the public costs of facilities and services, to avoid unnecessary
expansion of service boundaries, and to preserve and enhance the
safety and viability of rural land uses.
3. To provide for the possible long-term expansion of urban areas while
protecting the distinction between urban (urbanizing) land and rural
lands.
Policies
The policies needed to accomplish the identified goals were largely developed
by the Overall Citizen Advisory Committee during its deliberations on the
preliminary plan. It was obvious that some policies were needed to pull the
various resource and management chapters together and to fill in some gaps
so that an integrated and cohesive plan was available.
Rural Development policies are meant to pertain to all non-urban areas (areas
outside urban growth boundaries) and are the basic policies to be followed in
guiding rural growth. Specific resource or management policies from other
chapters shall augment these policies so that the plan must be viewed as an
integrated whole rather than a series of individual chapters.
Residential and recreational development.
Because 91 percent of the new County population will live inside an
urban area, with only 3,039 new rural lots required, and in light of the
17,377 undeveloped rural tracts and lots as well as the energy,
environmental and public service costs, all future rural development will
be stringently reviewed for public need before approval. As a guideline
for review if a study of existing lots within three miles of the proposed
development indicates approximately 50 per cent or more of those lots
have not had structures constructed thereon, then the developer shall
submit adequate testimony justifying additional lots in that area. This will
permit development in areas where such is needed (other policies
considering energy, public facilities, safety and other development
aspects shall also be considered) while restricting future division in areas
where many undeveloped lots already exist.
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Chapter 3: Rural Growth Management - Rural Development
2. To further restrict subdivision outside urban areas the minimum parcel
size shall be 10 acres, except where other policies supersede this
minimum (see Unincorporated Communities, Rural Service Centers,
Agriculture and Forest Lands).
3. Cluster or planned development offers significant savings to the
developer because of reduced roadway, utility and construction costs.
Public costs to serve cluster developments are also usually lower.
Therefore, to encourage cluster and planned developments, rather than
parcelization, the county shall permit smaller lot sizes and the continued
use of special lot size requirements in cluster and planned developments
in rural residential exception areas.
4. Cluster and planned developments shall maintain a minimum of 65 per
cent of the land in open space, forest or agricultural uses compatible with
the surrounding area and the development area. The open space of the
development may be platted as a separate parcel or in common
ownership of some or all of the clustered units; however, the open area
shall not be subject to development unless the whole development is
brought inside an urban growth boundary. Also, service connections
shall be the minimum length necessary and underground where feasible.
Roads may be private roads and shall meet County standards.
5. Destination resorts are important elements of the local economy. These
developments shall not be permitted in exclusive farm use districts
except in EFU-20 and EFU-40 zones pursuant to the County's
Destination Resort Siting Map and Destination Resort Siting Combining
Zone and in forest districts only in the F-2 zone pursuant to the County's
Destination Resort Siting Combining Zone. They may be allowed in the
County's rural areas if compatible with the environmental capabilities of
the site, near existing transportation and utility facilities, consistent with
the rural character of the area, and unlikely to create undue public
service burdens.
6. Other than as outlined in Policy 5 and the Goals and Policies set forth for
Destination Resorts, no further recreational (seasonal) subdivision will be
approved in rural areas.
7. Parcels legally existing at the time of this plan's adoption shall continue
to function as legal lots and will not be unduly affected by the new lot
size.
Commercial and industrial development
8. Within one mile of acknowledged urban growth boundaries, use of the
planned or cluster development concepts shall permit development in
Multiple Use Agriculture or Rural Residential zones (not under a
combining zone which would prevent such) with a minimum lot size or
equivalent density of one unit per five acres.
9. Temporary on-site processing and storage of either mineral and
aggregate materials or agricultural products shall be permitted as
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Chapter 3: Rural Growth Management - Rural Development
appropriate, in order to support the continued productivity of the County's
natural resources.
10. Certain industrial uses, such as research and development facilities
(requiring quiet and open surroundings) and manufacturers of hazardous
materials (requiring long distances between the plant and neighbors) are
more suitably located in rural areas. The County shall consider making
provision for such uses as the need is found to exist (see Tumalo).
11. Certain industrial uses, such as research and development facilities
(requiring quiet and open surroundings), wrecking or salvage yards and
manufacturers of hazardous materials (requiring long distances between
the plant and neighbors) are more suitably located in rural areas. The
County shall consider making provision for such uses as the need is
found to exist (see Tumalo).
a. To ensure that the uses in the Rural Industrial zone on tax lot 16-12-
26C-301 are limited in nature and scope, the Rural Industrial zoning
on the subject parcel shall be subject to a Limited Use Combining
Zone, which will limit the uses to storage, crushing, processing, sale
and distribution of pumice.
12. Because large scale recreation facilities cannot normally be
accommodated in urban areas, uses such as motor cross tracks, rodeo
grounds and livestock arenas shall be conditional uses which may be
approved in rural areas adjacent to existing highways and other public
facilities.
Other
13. Construction on open lands shall be in a manner least intrusive to the
aesthetic and natural character of those lands and neighboring lands
(fences and access roads shall not be considered structures).
14. Because there have been problems in obtaining community centers in
some areas, centers approved on the original subdivision plat or
development plan shall be permitted uses in rural residential zones.
15. Due to the more dispersed pattern of dwellings in rural areas the notice
requirement area for public hearings on quasi-judicial land use actions
shall be larger than in urban areas.
16. More effective dog control program should be considered by the County
to counter existing problems.
17. Pre-existing status shall be granted to subdivisions and partitions with at
least preliminary approval and buildings with at least an issued building
permit at the time of plan adoption by the Board of County
Commissioners.
18. All development in Deschutes County shall comply with all applicable
state and federal rules, regulations and standards.
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Chapter 3: Rural Growth Management - Rural Development
Rural Development Profile
Background
The primary duty of this comprehensive plan is to guide growth and
development in rural Deschutes County. The Rural Development section is
intended to promote an integrated plan by tying together other specific plan
sections that deal with resource lands and growth management. (Urban
growth management is found in the comprehensive plans of Bend, Redmond
and Sisters, in conjunction with the Urban Growth Management chapter of this
plan.)
Growth
When this plan was written in 1979, Deschutes County was the fastest
growing county in Oregon. This provided positive changes, such as improved
social, cultural and economic opportunities. However, there were also negative
changes, such as traffic congestion, loss of scenic views, and rising taxes to
pay for public services.
By the year 2000 the county expected to have about 128,200 residents. The
population was anticipated to be distributed with 84,000 in the Bend Urban
Area, 23,093 in the Redmond Urban Area and 2,135 in the Sisters Urban
Area. La Pine was expected to have incorporated and reached an urban area
population of 3,620. That left a rural population of 15,350 people, up from an
estimated 1979 rural population of 8,300.
To accommodate the new rural population 3,039 lots (assumes 2.32 persons
per household) were determined to be required. As of January 1, 1979, there
were 17,377 undeveloped rural tract and recreational lots in the county. The
majority of those lots were in the La Pine area, so it was understood that new
lots may be needed in other rural locations. Still, the number of existing
undeveloped lots indicated that the County should give serious review to any
proposal for further rural development.
Land use
The predominant rural land uses in 1979 were open spaces, pasture and
limited crop production, livestock production, natural resource utilization and
wildlife cover. There was also residential use and some commercial and
industrial activity in the rural service centers. Unfortunately, the unrestrictive
zoning permitted in the rural service centers allowed incompatible adjacent
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Chapter 3: Rural Growth Management - Rural Development
land uses and did not provide the needed services for the surrounding rural
areas.
In 1979 much of the development that occurred locally was the standard
parcelization of land into small (less than 10 acres) lots. It was noted that this
dispersed pattern was often costly to serve, wasteful of energy, land and
resources, unaesthetic and destructive to rural character. Demand for rural
recreational or residential land was seen as being provided most efficiently
through planned developments.
Resorts such as Black Butte Ranch, or dude ranches, were thought to be
economically and socially desirable land uses, when located and developed
consistent with the capabilities of the land and the abilities of various public
and private agencies to serve that area.
This Section implements Originally, recreational subdivisions were also
seen as a benefit to the County, since the non-
part of State Planning resident landowners would be contributing to
Goal 14: Urbanization the county tax base. This probably resulted in
areas like La Pine subsidizing other portions of
the county. However, by 1979 the recreation subdivisions were filling up with
retirees and younger people seeking less expensive building lots. The result
was a need for services in areas far from existing service facilities and in
subdivisions where roads and other improvements were meant only for
seasonal and limited use. The concern was that the recreational subdivisions
might need to be subsidized by other areas of the county.
Meanwhile, with the exception of La Pine rural service center, residents were
expressing concern that higher levels of development would be incompatible
with the existing rural nature of the area. The residents recognized the need
for limited and controlled growth, but wanted to maintain the rural character of
their communities.
Based on an understanding of the effects of sprawl and the state requirements
to focus growth in urban areas, the Overall Citizen Advisory Committee that
was participating in the writing of this plan, determined that the comprehensive
plan would have to address the issues of containing urban sprawl and
protecting the rural character of the county. Goals and policies were created to
guide development into appropriate patterns.
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Chapter 3: Rural Growth Management - Natural Hazards
Natural Hazards Goals :Poli G
oal
1. To protect life and property from natural disasters and hazards.
In order to accommodate the new population anticipated for Deschutes County
in a safe and beneficial manner, a number of policies have been prepared for
implementation.
Policies
Review
Provision shall be made in County land use regulations to assure
proposed developments will receive a review of potential natural hazards
(stream flooding, flash flooding, landslides, wildfires, etc.) and that
sufficient authority exists to modify or deny applications where such
hazards exist.
Flooding
The flood hazard areas of Deschutes County are subject to periodic inundation
which may result in loss of life and property, health and safety hazards,
disruption of commerce and governmental services, extraordinary public
expenditures for flood protection and relief, and impairment of the tax base, all
of which adversely affect the public health, safety and general welfare.
These flood losses are caused by the cumulative effects of obstructions in
areas of special flood hazards, which increase flood heights and velocities,
and when inadequately floodproofed, elevated or otherwise protected from
flood damage, also contribute to the flood loss.
2. In order to accomplish the purposes of this plan, the Zoning Ordinance
shall provide for:
a. Restricting or prohibiting uses which are dangerous to health, safety
and property due to water or erosion hazards, or which result in
damaging increase in erosion or in flood heights or velocities.
b. Requiring that uses vulnerable to floods, including facilities which
serve such uses, be protected against flood damage at the time of
initial construction.
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Chapter 3: Rural Growth Management - Natural Hazards
c. Controlling the alteration of natural flood plains, stream channels and
natural protective barriers, which help accommodate or channel
floodwaters;
d. Controlling filling, grading, dredging and other development which
may increase flood damage; and
e. Preventing or regulating the construction of flood barriers which will
unnaturally divert floodwaters or may increase flood hazards in other
areas.
3. No structures shall be allowed in areas except areas of shallow flooding.
Fill should be allowed in the flood plain only to the extent that it is
necessary to allow for utility facilities and stream bank stabilization which
cannot be located outside of the flood plain. All uses which could have
any effect upon the hazards set forth above shall be conditional uses and
subject to rigorous review to insure that use of the flood plain is only a
last resort to allow necessary facilities and some beneficial use of pre-
existing lots of record.
4. No new parcels shall be created which would allow the construction of
new dwelling units in the flood plain.
5. Only variances to dimensional standards of a lot or setback restrictions
shall be considered. No use variance or variances to the minimum
standards established by the Federal Emergency Management Agency
shall be allowed.
6. The areas of special flood hazard identified by the Federal Insurance
Administration in a scientific and engineering report entitled "The Flood
Insurance Study for Deschutes County", with accompanying Flood
Insurance Maps, is hereby adopted by reference and declared to be a
part of this Ordinance. The Flood Insurance Study is on file at the
Deschutes County Community Development Department Planning
Division.
7. The Flood Plain Zone shall include all areas designated as "Base Flood"
areas by the Flood Insurance Study for Deschutes County. When Base
Flood data has not been provided in accordance with the Flood
Insurance Study for Deschutes County, the basis for establishing the
Flood Plain Zone shall be based upon any base flood information or
floodway data reasonably available from a federal, state or other source.
Drought
8. Plans (public and private) shall consider and reflect the effect of drought
on the proposed projects.
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3: Rural Growth Management - Natural Hazards
Fire
9. Design public use areas, such as parks, recreation sites and picnic
areas, so that fires starting in them cannot escape to development or to
surrounding wildlife.
10. In timber, rangeland or other appropriate areas subdivisions and other
types of development should plan for fire truck access to within 16 feet of
lakes, ponds, streams or other water sources.
11. For easy resident evacuation and ready access for fire and emergency
equipment all new subdivision or other major land development shall
provide at least two different ingress-egress routes.
12. To accommodate heavy firefighting equipment, cul-de-sacs shall be
limited to 600 feet in length and terminated by a paved turnaround not
less than 38 feet in diameter, unless another equally protective
alternative is provided which is acceptable to the County and fire fighting
agencies responsible for fire control in that area.
13. Bridges shall be constructed to meet the requirements of the appropriate
fire district, as to width and weight standards, so as to assure access for
heavy firefighting equipment.
14. All existing roads shall be maintained by either the appropriate public or
private agency or by the development residents unless an adequate
alternative route is provided so as to not deny access beyond the
subdivision for firefighting equipment.
15. To avoid delays in responding to fire calls all roads, streets, and
buildings shall be designated by name or number clearly visible from the
main travel roadway, before occupants move in. This will include the
installation of street and road signs of durable and permanent materials
at all intersections in the subdivision.
16. The Uniform Building Code provides adequate fire protection for
residential construction but the County should adopt the Uniform Fire
Code to assure adequate fire protection for commercial and industrial
construction and support establishment of fire protection facilities in
accordance with recommendations of the National Board of the Fire
Underwriters in appropriate areas.
17. When subdivision or developments are created in the County, a
minimum width for a fuel break, as determined by the local fire authority,
shall be required by the County to be constructed and maintained around
all buildings or structures, so as to reduce structural exposure to flames
and radiant heat.
18. During preliminary subdivision review, the Planning staff, in coordination
with the fire district and/or other firefighting agencies, shall indicate
whether or not the development plan has adequately provided for fire
protection. Annexation to or contract with a fire district or creation of a
new fire district or private firefighting agency may be required conditions
for development approval.
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Chapter 3: Rural Growth Management - Natural Hazards
19. All development in Deschutes County shall comply with all applicable
state and federal rules, regulations and standards.
Additional standards for firefighting facilities can be found in the Public
Facilities and Services Chapter.
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Chapter 3: Rural Growth Management - Natural Hazards
Natural Hazards Profile
Background
When this plan was writtten, Statewide Planning Goal 7: Natural Hazards, was
seen as an appropriate goal for the County. Natural hazard areas may be
defined as areas subject to natural events that are known to result in death or
to endanger works of man, such as stream flooding, wildfire, ground water,
erosion and deposition, landslides, earthquakes, weak foundation soils and
other hazards unique to local or regional areas.
When this plan was written in 1979 Deschutes County had identified only a
few areas of geologic or topographic hazard. At that time it was noted that the
two most likely hazards in the county were stream flooding and wildfire. Floods
had done significant damage along the Little Deschutes River and Whychus
(Squaw) Creek with similar potential along the Deschutes and Dry Rivers. In
1988 stronger flooding policies were added to address flooding concerns.
in iutu it was noted that the most obvious
This Section implements natural hazard was wildfire. Each year, several
State Planning Goal 7; fires occurred locally. Some were nature-caused
Areas Subject to Natural (lightning) but many were human induced. The
Disasters and Hazards subdivisions scattered throughout the forested
areas of the county, particularly in the Lodgepole
Pine stands, increased the likelihood of fire and
the risk of people being hurt or killed. Inadequate access, inappropriate
building materials, insufficient fire-fighting equipment and personnel and a
naturally dry climate exacerbated wildfire hazards being a serious threat to
residents of Deschutes County.
The major fault which runs through the county (Brothers Fault) was believed
by state geologists to be stable. Landslides were scarce and largely located in
the national forest, although there was some potential in the Hampton Butte
area. Rarely, rockfalls had been noted in rimrock areas. Some potential for
flash flooding existed near Millican and Brothers, however little conflicting
development was anticipated in those areas. Finally, drought was a little
understood hazard. Central Oregon is a semi-arid climate subject to many
years without adequate precipitation. Planning which does not consider the
effects of these dry years could create serious problems.
In this plan, further discussion of water issues can be found in the Water
Resources section (page 2-22) and the Deschutes River Corridor section
(page 2-25).
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Public Facilities and
Services
Goal
Goals & Policies
To plan and develop a timely, orderly and efficient arrangement of public
facilities and services to serve as a framework for urban and rural
development, and thereby a system or plan that coordinates the type,
location and delivery of public facilities and services in a manner that
best supports the existing and proposed land uses.
Policies
General
1. Public facilities and services shall be provided at levels and in areas
appropriate for such uses based upon the carrying capacity of the land,
air and water, as well as the important distinction that must be made
between urban and rural services. In this way public services may guide
development while remaining in concert with the public's needs.
2. While clear distinctions are not always possible between urban and rural
services, those facilities (such as sewage treatment plants, water
systems, schools and fire stations), which are necessary to service
concentrations of people shall be known as key facilities and shall be
located in urban areas or in rural service centers, if necessary, to meet
the needs of existing rural residents. Key facilities shall be built to
encourage urban, rather than increased rural, residential development.
Rural services such as sheriffs patrol, snowplowing, schools and school
busing shall be kept at levels adequate to meet public needs but not in
excess to encourage additional development. Rural Service Centers are
a logical location for future rural key facilities so that services may be
used and constructed in as efficient a manner as possible (see Rural
Development Chapter). Key facilities outside urban areas or Rural
Service Centers shall be discouraged unless the facility is needed to
serve existing development, is at the most efficient and economic
location and is consistent with the capabilities of the land and the
planned growth of the County.
3. Future development shall depend on the availability of adequate local
services in close proximity to the proposed site. Higher densities may
permit the construction of more adequate services than might otherwise
be true. Cluster and planned development shall be encouraged.
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Chapter 3: Rural Growth Management - Public Facilities and Services
4. The County shall prepare a Capital Improvements Plan which considers
the costs and benefits of construction at various sites. Sites which are
less expensive in the long run shall be given priority to less efficient sites.
5. Deschutes County shall encourage the formation of special service
districts to serve rural needs rather than becoming involved with serving
those needs. The County will foster coordination and mutual planning
between the County, special districts, utility companies and service
corporations. This shall include common trenching where appropriate.
6. Deschutes County shall coordinate with the cities and other service
providers in urban areas to assure that all urban services are provided in
an equitable manner and construction phased, based upon the time
required to provide the service, the reliability of the service, the financial
cost, and the levels of service needed. All services shall be provided
consistent with the provisions of all other required services.
7. Because of the increasing cost of development which must be borne by
local residents, the County shall investigate various methods to control or
obtain funds for providing new public service levels. This investigation is
to include review of a Systems Development Charge. The County shall
conduct a review of systems development charges for areas outside the
urban growth boundary by January 1, 1995.
Utilities
8. Utility companies shall be offered an opportunity to comment on their
ability to serve proposed developments.
9. New development shall not be located so as to overload existing or
planned facilities, and developers or purchasers should be made aware
of potentially inadequate power facilities in rural areas.
10. When feasible all utility lines and facilities shall be located on or adjacent
to existing public or private rights-of-way so as to avoid dividing existing
farm units, and transmission lines should be located within existing
corridors as much as possible.
11. Power generation sites shall be landscaped and the site plan reviewed
as part of the conditional use applications.
12. Electrical substations shall be a permitted use in all appropriate zones
with final approval based upon County Planning Department acceptance
of a detailed site plan. Minimum lot sizes shall not apply to substations,
but adequate area for equipment, storage, buffer and potential expansion
shall be required.
13. All new development shall be consistent with adopted sewage plans, and
new community systems in urban areas shall be designed to fit into the
municipal system. Also, in urban areas, where connection to a sewer
system is not appropriate now but will be required in the future, dry
sewer lines may be required for future use (this does not apply in larger
lot subdivisions where no future sewers are anticipated).
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Chapter 3: Rural Growth Management - Public Facilities and Services
14. Mutual agreements between the County and the cities shall assure
sewer and water systems are extended in a planned manner.
15. Sewage treatment plants offer both problems and opportunities. To
decrease the impact of noise and odor a large buffer area shall be
required. The treated sewage (both septic tank sludge and municipal
water) should be used as a resource and drill hole disposal discouraged.
16. Well marked recreational vehicle dump stations are needed locally and
the County shall encourage such facilities in parks, service stations and
other appropriate locations.
17. The capability for County land to be annexed into a city shall depend
upon the availability of adequate services, such as water.
18. Metering of existing and future water systems shall be fostered.
19. Oregon Water Wonderland Unit 2 Sewer District. Through County file
nos. PA-02-5 and ZC-02-3, the Board of County Commissioners
approved a zone change for certain property in Section 25 of Township
20 South, Range 10 E.W.M. to Rural Residential with a Limited Use
Combining Zone. The Board adopted the Limited Use Combining Zone
to limit the uses that could be established on the subject property to
those approved through its written decision dated March 28, 2003 and
listed as follows: a sewage treatment facility, effluent ponds, ground
application of treated effluent, agricultural use, and propagation and
harvesting of a forest product.
Solid Waste
20. Existing solid waste sites should be protected and either expansion
areas or new sites found. The Solid Waste Management Plan shall serve
as the major document for site determinations.
21. In order to discourage open burning and to encourage recycling the
County shall continue to offer a no-cost dump service and to consolidate
dumping.
Law enforcement
22. Because of the difficulty in providing County-wide sheriffs patrol all future
development shall be reviewed for the adequacy of police protection.
23. The County will seek to improve rural police protection, including the
development of sheriffs substations, where feasible.
Schools
24. In light of existing problems with providing school facilities all new
development shall be reviewed for its impact on the schools. Substantial
expansion of school bus routes shall be discouraged, and the County
shall require the dedication of adequate land for new schools required to
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Chapter 3: Rural Growth Management - Public Facilities and Services
meet the needs generated by major new developments. In addition, the
County shall consider designating appropriate County lands for school
sites.
25. Plans for schools shall consider the policies within the Oregon State
Standards.
Oregon State School Standards
Enrollment
Minimum Site (acres)
Elementary Schools
550
10
Intermediate Schools
800
20
Senior High Schools
1300
30
Source: 1979 Deschutes County Comprehensive Plan
26. School districts shall cooperate with other affected agencies for efficient
construction of recreation facilities (i.e., bike paths) and other public
facilities.
27. School district boundaries should be regularly reviewed to best serve
County residents.
Fire
28. Land for a fire station shall be dedicated in large developments.
29. The minimum diameter for water distribution mains on which fire
hydrants are located shall be six inches.
30. Hydrant spacing should not exceed 1000 feet with minimum fire flow of
500 gallons per minute on subdivisions or developments with a
population density of 2 or less single family units per acre; on
subdivisions or developments where population density exceeds two
single family dwellings per acre, hydrant spacing should not exceed 500
feet with a minimum fire flow of 750 gallons per minute. Where structural
considerations warrant, additional requirements should be considered.
Urbanizing area standards shall be those of the incorporated city. In rural
fire protection districts final determination of standards will be made after
discussion with the R.F.P.D.
31. Water source or storage shall have a capacity to support the required fire
flow for a period of two hours in addition to maximum daily flow
requirements for other consumer uses. Refer to "Water Supply Systems
for Rural Fire Protection" NFPA Pamphlet #1231, 1975.
32. Fire protection and law enforcement agencies should strictly enforce
solid waste disposal ordinances.
33. Fire stations should be built in an architectural style that will blend into
the area of location.
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Chapter 3: Rural Growth Management - Public Facilities and Services
Health
34. Assured health care for Deschutes County residents is an important
public and private service. The County shall encourage and support
public health programs for low income families and regular school health
programs, as well as services like Home Health Care, and services to
the elderly, disabled, blind and juveniles such as day care and foster
homes. County support may be in the form of allocations from the
County budget, political support, appropriate zoning or other useful
action.
35. Adequate hospital and medical facilities shall be encouraged and County
plans will consider the effect of incompatible land uses, noise and
pollutants, as well as transportation and other factors, on these services.
36. Provisions for adequate cemetery sites shall be made, and alternative
designs which conserve lands shall be encouraged.
Other
37. Adequate access to good public library service is important to many
residents of Deschutes County and actions to assure such access shall
be fostered.
38. Any major irrigation waterway within 100 feet of a proposed development
shall be placed in a pipe at the developer's cost to protect young children
from the hazard, subject to engineering feasibility and approval by the
irrigation district.
39. All development in Deschutes County shall comply with all applicable
state and federal rules, regulations and standards.
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Chapter 3: Rural Growth Management - Public Facilities and Services
Public Facilities and Profile
Services
Background
When this plan was written in 1979, the high growth rate made the provision of
public services a major issue. Adequate services at the right locations result
from planning, hard work and money. Yet, the growth rate at that time made it
difficult to keep up with the demand. This was aggravated by a growing
reluctance to pay the higher taxes necessary to obtain public services. In
addition, the scattered low-density development that had occurred in some
areas was inefficient in supplying services, which meant that the needed
facilities were excessively expensive or could not be provided.
Utilities
In 1979 it was noted that utility services could be provided most easily and
least expensively when development occurred in and around areas with
existing utility lines. The plan also discussed large lots, which required long
lines and higher costs. Large lots were also seen as often discouraging later
re-division into smaller lots.
Of all public facilities (aside from roads) the extension of sewer and water
service was considered the most important to planning in 1979. Decisions as
to where and when services would be provided could significantly reduce the
costs of these, and other, services.
Small community sewage systems were seen as having problems because of
isolated peak use, which resulted in a discontinuity of waste. Often these
systems were not properly operated or maintained. Once a breakdown
occurred, correction of the problem was difficult or uncertain. However, places
such as Black Butte, Sunriver and Juniper Utilities were working well because
many homesites were served and the expense was acceptable to the families
involved.
This Section implements
State Planning Goal 11:
Public Facilities and
Services
Water is crucial to public health and safety and
must be protected from contamination by waste
discharge, poor well construction and high
concentration of septic tank systems. When this
plan was written this protection had not always
been in place. Additionally, small water systems
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Chapter 3: Rural Growth Management - Public Facilities and Services
were thought to have difficulty with maintenance and operation. One proposal
which was discussed was the idea of metering water to reduce use and costs.
Law enforcement
In 1979 there were frequent complaints about inadequate police protection
and a check of national averages indicated that in 1978 the County was eight
officers short of equaling the national average of 1 officer per 1,000 citizens. At
the rate of growth being experienced, and especially in the light of the
construction of such facilities as shopping centers, many additional officers
and support personnel were thought to be needed. In 1977 alone all types of
crimes increased 12 percent for the County Sheriffs Department. Increases in
the cities were even higher. Yet, levies to obtain more Sheriffs officers were
rejected by the voters.
Schools
One of the basic problems with larger amounts of residential development is
that it rarely pays in property taxes for the services that must be provided. This
is particularly true for the most expensive public facility--schools. Additional
permanent residences require more facilities and teachers. When this plan
was written, much of the new development had been provided for seasonal
recreation and was therefore not likely to require schools. However, the
County was realizing that much of the seasonal development was becoming
full-time residences. This forced the school districts to seek additional funds
for new buildings and more teachers. In addition, costs rose because many of
the new residences were in rural areas and required ever more expensive
busing.
Fire (Also see Natural Hazards Section page 3-7)
In many areas of the County in 1979 no fire agency was responsible for fires.
To solve this problem fire districts were often formed in rural areas or fire
protection contracts signed with fire protection agencies. However, even when
fire districts existed, the annexation of new developments could take over a
year and the Bend Fire District had at times been forced to put a moratorium
on any new annexations because of facility shortages.
Many people assumed fire protection was available from Federal or State
agencies, but these offices have no authority or responsibility on private lands.
Usually they are not trained to fight structural fires, and in the winter their
firefighting equipment is drained and stored away.
The lack of proper controls to reduce fires in subdivisions, the inadequacy of
firefighting equipment and training, and the need for more cooperation and
mutual aid agreements between the various agencies was an increasing
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Chapter 3: Rural Growth Management - Public Facilities and Services
concern to firefighting agencies. Proper planning and subdivision control was
seen as critical in dealing with the situation.
Health
County health departments have important impacts on local development.
Concern about water quality and available health facilities, as well as needs
generated by different types of development, were seen to bring the health
and planning functions together. To maintain timely approvals, new employees
were required. Sometimes people can be substituted for facilities as when
Home Health nurses provide older people an opportunity to stay at home
rather than requiring the construction of new hospital or nursing home units.
When this plan was approved, there was a sufficient supply of local nursing
home units.
Hospitals were also being affected by new community growth, such as the
traffic impact on St. Charles Hospital emergency operations from Mountain
View High School. In 1979, each of the County's hospitals were preparing
master plans to guide growth.
Solid Waste
In 1992 the County added text to this plan related to solid waste. Historically,
the County had six landfills. Three of the landfills (Alfalfa, La Pine and Fryrear)
were closed in 1988, 1989 and 1990 and replaced with transfer and recycling
stations. A fourth landfill, Negus, was slated to be closed in 1992 and replaced
with a transfer recycling station. The two remaining landfills, Knott and
Demolition, were intended to remain open and were expected to have a useful
life until approximately 2010.
The Knott landfill receives the transfer and recycling waste from the four
transfer stations. The Demolition landfill receives wood and demolition
material. According to the Public Works Department's 1992 calculations, 24
percent of the waste stream was being diverted from burial at the landfills
through composting at the landfill site, the bottle bill, and the recycling of tires,
cardboard, aluminum, oil, glass, newsprint, appliances, office and computer
paper and plastic milk jugs.
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Chapter 3: Rural Growth Management - Transportation
Transportation
CG oa=&P ies
Note: The goals and policies in this section were written separately and do not
match the formatting of the rest of the comprehensive plan. The goals here are
numbered sequentially and the policies are sequential under each goal.
Coordination and Implementation of the
Transportation System Plan (TSP)
Goals
1. Achieve an efficient, safe, convenient and economically viable
transportation and communication system. This system includes roads,
rail lines, public transit, air, pipeline, pedestrian and bicycle facilities. The
Deschutes County transportation system shall be designed to serve the
existing and projected needs of the unincorporated communities and
rural areas within the County. The system shall provide connections
between different modes of transportation to reduce reliance on the
single-occupancy vehicle.
2. Have an ongoing transportation planning process and maintain a
transportation plan that meets the needs of the County and its residents.
The transportation plan and facilities of Deschutes County shall be
coordinated with the plans and facilities of incorporated cities within
Deschutes County, adjacent counties and the State of Oregon.
Policies
1. Deschutes County shall:
a. Identify local, regional and state transportation needs;
b. Develop a transportation plan that shall address those needs;
c. Review and update the plan every three to five years;
d. Continue to coordinate transportation planning with local, regional
and state plans by reviewing any changes to Deschutes County local
transportation plans, regional transportation plans, the Oregon
Transportation Plan and ODOT's State Transportation Improvement
Plan (STIP); and
e. Continue public and interagency involvement in the transportation
planning process.
2. Deschutes County shall notify ODOT concerning:
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Chapter 3: Rural Growth Management - Transportation
a. All land use proposals or actions that would create access onto a
state highway or add >100 ADT to any County road intersection with
a state highway;
b. Any proposed land use or development within 500 feet of a state
highway or public use airport within the County; and
c. Required ODOT road approach permits.
3. Deschutes County shall protect approved or proposed transportation
project sites through:
a. Access control measures;
b. Review of future large development and transportation projects that
significantly affect the County's transportation system; and
c. The imposition of conditions of approval on developments and
transportation projects that have a significant effect on the County's
transportation system.
4. Deschutes County shall coordinate local plans and land use decisions
with state transportation plans, including the Oregon Transportation Plan,
modal plans and corridor plans. These plans provide ODOT policies and
performance standards for statewide highways within Deschutes County.
The statewide plans also provide the framework for access management
on state facilities to protect the capacity and function of the highways.
5. The lead agency for transportation project review in Deschutes County
shall be:
a. Deschutes County for projects outside UGBs;
b. The affected city for projects within the UGBs; and
c. The State of Oregon, Deschutes County and affected cities on
projects involving state-owned facilities.
The County shall have a list of transportation projects, adopted by the Board of
County Commissioners in accordance with the policies set forth below.
6. The initial Transportation Project List shall be set forth in Table 5.1131
of the Transportation System Plan adopted as part of the Resource
Element of the Comprehensive Plan. The Board shall update the
Transportation Project List periodically by resolution adopted by the
Board, without need of a formal amendment to the TSP.
7. New transportation projects shall be included on the County's
Transportation Project List. A transportation project proposed for addition
to the list shall be subject to an individual land use review only if
applicable administrative rules or land use regulations require such
review.
8. Transportation or development projects that require a plan text
amendment or a conditional use permit may be required to fulfill
conditions or implement mitigation measures before approval is granted.
Mitigation and conditions may include, but are not limited to:
a. Improvement of surrounding roads;
b. Limits on level of development;
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Chapter 3: Rural Growth Management - Transportation
c. Revision of development placement;
d. Addition or redesign of access;
e. Addition of traffic management devices such as traffic signals,
medians, turn lanes or signage; and/or
f. Improvements that reduce transportation impacts.
9. Deschutes County acknowledges that land use designations have a
significant impact on the overall transportation system and any
alterations shall be completed with consideration to traffic impacts on the
County road system.
10. The findings of compliance with applicable statewide planning goals,
acknowledged comprehensive plan policies and land use regulations,
shall be coordinated with the preparation of any Environmental Impact
Statement (EIS) required for a proposed transportation facility that is
identified on the Deschutes County Transportation System Plan.
Arterial and Collector Roads - General
Goal
3. Establish a transportation system, supportive of a geographically
distributed and diversified industrial base, while also providing a safe,
efficient network for residential mobility and tourism.
Policies
1. Deschutes County shall:
a. Consider the road network to be the most important and valuable
component of the transportation system; and
b. Consider the preservation and maintenance and repair of the County
road network to be vital to the continued and future utility of the
County's transportation system.
2. Deschutes County shall not add any miles of new road to the system
unless the following issues are satisfied:
a. The need for the road can be clearly demonstrated;
b. The County can financially absorb the additional maintenance
requirements;
c. The condition of the road proposed for acceptance into the County
system must meet County road standards;
d. An accrued benefit can be shown to the County's economic growth;
and
e. An overall increase in efficiency in the County road network can be
demonstrated.
3. Deschutes County shall make transportation decisions with consideration
of land use impacts, including but not limited to, adjacent land use
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Chapter 3: Rural Growth Management - Transportation
patterns, both existing and planned, and their designated uses and
densities.
4. Deschutes County shall consider roadway function, classification and
capacity as criteria for plan map amendments and zone changes to
assure that proposed land uses do not exceed the planned capacity of
the transportation system.
5. Roads in Deschutes County shall be located, designed and constructed
to meet their planned function and provide space for motor vehicle travel
and bike and pedestrian facilities where required.
6. Deschutes County shall manage the development process to obtain
adequate street right-of-way and improvements commensurate with the
level and impact of development. New development shall provide traffic
impact analysis to assess these impacts and to help determine
transportation system needs. The guidelines for traffic impact analysis
shall be located within the Deschutes County Road Standards and
Specifications document upon its adoption.
7. Transportation system improvements in Deschutes County shall comply
with the Americans with Disabilities Act.
8. Transportation safety in Deschutes County shall improve for all modes
through approved design practice and sound engineering principles.
9. Deschutes County shall acquire the necessary right-of-way through the
development process to correct street intersections, substandard road
geometry or other problems in order to improve the safety of a road
alignment, consistent with constitutional limitations.
10. Deschutes County shall support efforts to educate the public regarding
hazards related to travel on the transportation system.
11. Deschutes County shall support public and private efforts to acquire
right-of-way for new secondary access roads to isolated subdivisions.
Arterial and Collector Roads - Access Management
Goal
4. Establish an access management system adequate to protect the quality
and function of the arterial and collector street system.
Policies
1. Deschutes County shall designate access and land uses appropriate to
the function of a given road.
2. Deschutes County shall require new development to minimize direct
access points onto arterials and collectors by encouraging the utilization
of common driveways.
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Chapter 3: Rural Growth Management - Transportation
3. Wherever practical, access to state highways shall be provided via
frontage roads, alternative local roads or other means, rather than direct
access to the highway.
4. A non-traversable median on state highways shall be installed by ODOT
when operational or safety issues warrant installation. Directional breaks
in the median shall be provided as needed to allow safe traffic operation.
5. Access requests onto Deschutes County arterials and collectors for new
partitions, subdivisions and commercial and industrial development shall
be processed with the following access management classification
system in mind:
a. Public road access spaced at no less than every 500 feet on arterials
and 300 feet on collectors.
b. If either safety or environmental factors, or the unavailability of
adequate distance between access points requires placing access
points at lesser intervals, then access will be denied or the best
alternative placement will be chosen. On road segments that are
already severely impacted by numerous access points or on road
segments which abut exception areas, adherence to the above
standards may be either unreasonable or counterproductive to infill
of exception areas. In such cases, these standards may be relaxed
by the County Road Department Director to accommodate the
aforementioned special conditions.
Arterial and Collector Roads - Functional
Classification
Goal
5. Designate access and land uses appropriate to the function of a given
road.
Policies
1. Deschutes County shall coordinate the County Transportation System
Plan with the transportation system plans of the cities of Bend, Redmond
and Sisters. The County shall emphasize continuity in the classification
of roads and appropriate design standards for roads that link urban areas
with rural areas outside the urban growth boundaries. Prior to the
finalization of any UGB amendment, the County and affected city shall
agree on the functional classification and design standards of County
roads within the proposed UGB area.
2. Deschutes County shall request the transfer, or an agreement to transfer
with specific timelines and milestones, jurisdiction of County roadways
within the urban growth boundaries to their respective cities at the time of
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Chapter 3: Rural Growth Management - Transportation
annexation. County policy also directs that any developer of property
who proposes annexation and who has frontage on a road that does not
meet city standards shall have the primary responsibility for upgrading
the road to applicable city specifications. Roads shall be upgraded prior
to or at the time of annexation, or the developer shall sign an agreement
with the city to upgrade the road, at the time of development. Transfer of
road jurisdiction shall require the approval of both the County and
affected city in accordance with the provisions in ORS 373.270.
Arterial and Collector Roads - Road and Street
Standards
Goals
6. Develop and adopt a document or chapter of Road Standards and
Specifications that shall control all aspects of construction related to
roads, pedestrian walkways and bicycle facilities occurring outside
designated urban growth boundaries in Deschutes County.
7. Develop and adopt criteria for the requirement of various levels of traffic
analysis for each new rural development. The traffic analysis
requirements shall be located in the Road Standards document.
Policies
1. After County adoption of the Deschutes County Road Standards and
Specifications document, all new Deschutes County rural roads and
reconstructed rural roads shall be built to those identified standards. In
the interim, rural road dimensions outside of the unincorporated
communities of Terrebonne and Tumalo shall match the requirements
set forth in Table 5.231, which replaces current Table "A" located in Title
17 of the Deschutes County Code. The City of Sisters Road
Development Standards shall apply within the Sisters Urban Area. The
Road requirements for the unincorporated communities of Tumalo and
Terrebonne are governed by the previously adopted tables included in
Appendix G of the Transportation System Plan located in the Resource
Element.
2. Road, pedestrian and bicycle projects occurring in unincorporated areas
within urban growth boundaries shall be governed by the respective
city's road and street standards. Those requirements shall be
coordinated between the city, the County and the applicant during the
land use process according to procedures to be identified in the
Deschutes County Road Standards and Specifications document.
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Chapter 3: Rural Growth Management - Transportation
Arterial and Collector Roads - Road Management
System
Goal
8. Maintain the County road network pavement in good to excellent
condition.
Policies
1. Deschutes County shall continue to maintain and preserve the County
road network through its pavement management system which guides a
program of paving, repairing, reconstruction, drainage clearance and
vegetation control.
2. After safety-related issues, the highest volume road segments shall be
the next priority for County road maintenance and repair.
3. If and when gravel or dirt roads are paved by the County, the main
controlling criteria shall be: density of surrounding development, traffic
volumes, road classification, gap filling, potential school bus routing
efficiency and emergency evacuation potential.
Arterial and Collector Roads - Level of Service
Goal
9. Maintain a level of service of "D" or better during the peak hour
throughout the County arterial and collector road system over the next 20
years.
Policy
Deschutes County shall continue to monitor road volumes on the County
arterial and collector network. The County Road Department shall
continue to be the department responsible for monitoring volumes and
shall strive to count each arterial and collector at least once every four
years. The Road Department shall periodically examine the traffic
volumes to identify level of service deterioration.
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Arterial and Collector Roads - ODOT State Highways
Goal
10. Maintain the current arterial and collector system in the County and
prevent degradation of the capacity of the system.
Policies
1. Deschutes County shall monitor County arterials and collectors to help in
the determination of when road improvement projects are necessary.
2. Deschutes County shall continue to work with the ODOT and the Cities
of Bend, Redmond and Sisters to coordinate solutions to highway and
non-highway road issues that cross over jurisdictional boundaries.
3. The County shall establish requirements and adopt standards for
secondary access roads to isolated rural subdivisions.
Arterial and Collector Roads - Bridges
Goal
11. Maintain a safe and efficient network of bridges on County roadways.
Policy
Deschutes County shall monitor the condition of County bridges on a
regular basis, and perform routine maintenance and repair when
necessary. The County shall also explore additional funding sources
when major reconstruction or replacement of bridges is necessary
Arterial and Collector Roads - Truck Routes
Goal
12. Develop a plan of designated truck routes.
Policy
Deschutes County shall require that long-haul, through trucks be limited
to operating on Principal Arterial and Rural Minor Arterial roads as
designated in the County transportation network, except in emergency
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situations and when no reasonable alternative arterial road is available
for access to commercial or industrial uses.
Arterial and Collector Roads - Hazardous Material
Routes
Goal
13. Develop a plan of designated hazardous materials (NRHM) routes.
Policy
1. Deschutes County shall work with ODOT to determine the feasibility of
designating NHRM route(s) through Deschutes County.
Arterial and Collector Roads - Facility Safety
Improvement
Goal
14. Maintain a safe and efficient network of roadways.
Policy
1. Deschutes County shall maintain a prioritized inventory of safety-
deficient facilities on the County road network and give highest priority to
correcting safety issues.
Public Transportation - Special Transit Services
Goals
15. Enhance the opportunity for intermodal connections throughout the
County transportation system.
16. Increase the existing level of special services provided.
17. Establish rural transit service for Deschutes County residents.
18. Decrease barriers to the use of existing services.
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Policies
1. Deschutes County shall work with ODOT, the cities of Bend, Redmond
and Sisters, and transit service providers to study countywide rideshare
facility needs, and investigate public transit possibilities including
potential transit stops for a regional or commuter-based transit system.
Those possibilities shall include bus and rail, and if economically
feasible, the County shall seek such services as are found to be safe,
efficient, and convenient in serving the transportation needs of the
residents of Deschutes County.
2. Deschutes County shall continue to work with special service providers,
ODOT, and the cities of Bend, Redmond and Sisters to secure additional
funding as well as increase promotion of those special transit services
that may be underutilized.
3. Deschutes County shall monitor the needs of the transportation
disadvantaged and attempt to fill those needs.
Bikeways and Pedestrian - General
Goals
19. Adopt a Countywide system plan for bike and pedestrian facilities which
provide access to various destinations within unincorporated
communities and between urban areas and unincorporated communities.
20. Provide and maintain a safe, convenient and pleasing countywide bicycle
and pedestrian system that is integrated with other transportation
systems.
21. Establish bicycle safety, education and enforcement programs for all
ages, improve riding skills, achieve observances of traffic laws,
increased awareness of cyclist's and pedestrian rights, and monitor and
analyze bicycle accident data to determine safety problem areas.
Policies
1. Deschutes County shall coordinate local plans for pedestrian and bicycle
facilities with the 1995 Oregon Bicycle and Pedestrian Plan. The
statewide plan provides a framework for a local bicycle and pedestrian
system and design standards.
2. Deschutes County shall require bike facilities at locations that provide
access within and between residential subdivisions, schools, shopping
centers, industrial parks, and other activity centers when financially
feasible.
3. Deschutes County shall:
a. Balance the plan with a variety of facilities to meet the needs of
different cyclists;
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b. Plan for bicycle access between the County's urban and rural areas;
c. Develop a bikeway system, to be updated yearly and including a
map for the public that describes the opportunities for bicycling in
Deschutes County;
d. Establish priorities for facility construction and maintenance based
on need and resource availability;
e. Evaluate the plan regularly to monitor how well the facilities meet the
goals of the Plan;
f. Upgrade rural road shoulder widths to County standards during road
modernization or maintenance projects involving overlays as funding
allows;
g. Require bicycle and pedestrian facilities to satisfy the recreational
and utilitarian needs of the citizens of Deschutes County;
h. Make potential use, safety and the cost of bikeway construction, the
primary considerations when designing specific bikeways;
i. Emphasize the designation of on-road bikeways, where conditions
warrant due to safety reasons and the cost of construction and
maintenance of separate bike paths;
j. Expend resources for the maintenance of existing bikeways and to
keep pace with the development of new bikeways;
k. Designate that the Deschutes County Bicycle and Pedestrian
Advisory Committee facilitate the coordination of all bicycle and
pedestrian planning in the County to assure compatibility;
1. Designate that the Deschutes County Bicycle and Pedestrian
Advisory Committee assure that the Plan remains up-to-date and
that implementation proceeds according to the Plan;
m. Work with affected jurisdictions to acquire, develop and maintain a
series of trails along the Deschutes River, Tumalo Creek, and the
major irrigation canals so that these features can be retained as a
community asset; and
n. Adopt standards for trail system right-of-ways and trail improvements
that are based on the type of planned trail use and reflect the
standards of the 1995 Oregon Bicycle and Pedestrian Plan.
Bikeways and Pedestrian - On-Road Route Selection
Goal
22. Coordinate on-road County bikeways with known existing and proposed
state and city bikeways.
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Policies
1. New public and private land developments in Deschutes County shall
accommodate and tie into the bicycle system, and shall provide their
residents and employees with appropriate bicycle facilities.
2. County arterials and collectors may use shoulder bikeways or shared
roadways. These bikeways shall be upgraded to bike lanes when
highway reconstruction occurs and the traffic volumes warrant lanes.
3. Deschutes County shall facilitate safe and direct bicycle and pedestrian
crossings of arterial roads.
4. On-road bikeways shall be constructed in accordance with the
specifications set forth in the 1995 Oregon Bicycle and Pedestrian Plan.
Bikeways and Pedestrian - Off-Road Route Selection
Goal
23. Identify a system of off-road paved multiple use paths to be included in
the County transportation system.
Policies
1. Developers in Deschutes County are encouraged to design paths that
connect to the countywide bikeway system and that provide a direct
route for commuters. In some cases, it may be appropriate to relax a
requirement, such as for a sidewalk on one side of a residential street, in
favor of a comparable bike path in the development. However, the use of
a bike path shall not change the on-road bikeway requirement for
arterials and collectors.
2. Deschutes County shall facilitate mountain bike routes and the creation
of paved off-road multiple-use paths. The County shall identify routes
and incorporate them into its transportation system where appropriate.
Particular attention shall be given to obtaining and keeping rights-of-way
for uninterrupted routes linking areas within the County. Natural corridors
such as rivers, irrigation canals, ridges and abandoned roadway and rail
lines shall receive special attention. Proposed developments may be
required to provide such identified rights-of-way as part of their
transportation scheme in order to maintain the integrity and continuity of
the countywide system.
3. The County shall work with local agencies and jurisdictions to acquire,
develop and maintain those sections of trail that are located outside of
UGBs, but are part of a trail plan or map that has been adopted by the
local jurisdiction and the County.
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4. Off-road paved multiple use paths shall be constructed in accordance
with the specifications set forth in the 1995 Oregon Bicycle and
Pedestrian Plan.
Bikeways and Pedestrian - Facility Requirements
Goal
24. Maintain the existing development requirements for bicycle facilities in
Deschutes County.
Policy
Deschutes County shall maintain and update as necessary the existing
ordinance requirements for bicycle facilities found in Title 18.116.031, or
such other location that it may be moved to within the Deschutes County
Development Code.
Airports
Goal
25. Protect the function and economic viability of the existing public-use
airports, while ensuring public safety and compatibility between the
airport uses and surrounding land uses for public use airports and for
private airports with three or more based aircraft.
Policies
Deschutes County shall protect public-use airports through the
development of airport land use regulations. Efforts shall be made to
regulate the land uses in designated areas surrounding the Redmond,
Bend, Sunriver and Sisters (Eagle Air) airports based upon adopted
airport master plans or evidence of each airports specific level of risk and
usage. The purpose of these regulations shall be to prevent the
installation of airspace obstructions, additional airport hazards, and
ensure the safety of the public and guide compatible land use. For the
safety of those on the ground, only limited uses shall be allowed in
specific noise impacted and crash hazard areas that have been identified
for each specific airport. Protecting the privately owned, private-use
airports, with three or more based aircraft, will be accomplished by
development of specific land use regulations for these types of airports.
The function and economic vitality of privately owned, private-use
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airports with two or fewer based aircraft will also be accomplished
through land use planning. Each airport's specific level of risk and usage
shall be used to guide the continued safe aeronautical access to and
from these airports considering the type of aircraft approved to use the
airfield.
2. Deschutes County shall:
a. Continue to recognize the Redmond (Roberts Field) Airport as the
major commercial/passenger aviation facility in Deschutes County
and an airport of regional significance. Its operation, free from
conflicting land uses, is in the best interests of the citizens of
Deschutes County. Incompatible land uses shall be prohibited on the
County lands adjacent to the airport;
b. Cooperate with the cities of Bend, Redmond and Sisters in
establishing uniform zoning standards, which will prevent the
development of hazardous structures and incompatible land uses
around airports;
c. Through adoption of appropriate zoning restrictions, take steps to
ensure that any proposed uses shall not impact airborne aircraft
because of height of structures, smoke, glare, lights which shine
upward, radio interference from transmissions or any water
impoundment's or sanitary landfills which would create potential
hazards from waterfowl to airborne aircraft;
d. Through adoption of appropriate zoning restrictions, allow land uses
around public-use airports that will not be adversely affected by
noise and safety problems and will be compatible with the airports
and their operations;
e. Work with, and encourage airport sponsors to work with the Federal
Aviation Administration (FAA) to enforce FAA-registered flight
patterns and FAA flight behavior regulations to protect the interests
of County residents living near airports.
f. Adopt zoning restrictions to ensure that developments in the airport
approach areas will not be visually distracting, create electrical
interference or cause other safety problems for aircraft or persons on
the ground. In addition, efforts shall be made to minimize population
densities and prohibit places of public assembly in the approach
areas;
g. Continue efforts to prevent additional residential encroachment
within critical noise contours or safety areas without informed
consent;
h. Specifically designate any proposed airport facility relocations or
expansions within County jurisdiction on an airport master plan or
airport layout plan map, as amended, and establish the appropriate
airport zoning designation to assure a compatible association of
airport growth with surrounding urban or rural development;
L Maintain geographic information system (GIS) mapping of the Airport
Safety Combining Zones and provide timely updates;
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j. For those airports in Deschutes County without adopted master
plans, the County shall, as a minimum, base any land use decisions
involving airports on LCDC airport regulations, upon adoption of
those regulations by LCDC, which implement HB 2605;
k. Participate in and encourage the County-adoption of airport master
plans for all public use airports and at least an airport layout plan for
the remaining ODOT-recognized airfields in Deschutes County;
1. Encourage appropriate federal, state and local funding for airport
improvements at public-owned airports; and
m. Discourage future development of private landing fields when they
are in proximity to one another, near other public airports and
potential airspace conflicts have been determined to exist by the
Federal Aviation administration (FAA) or ODOT Aeronautics.
Railroads
Goals
26. Maintain the existing levels of freight rail activity throughout the County
while also encouraging expanded usage by commercial and industrial
companies.
27. Increase the safety of existing at-grade crossings and work towards the
eventual replacement of all at-grade crossings with gate-protected or
grade-separated crossings.
Policies
1. Work cooperatively with affected local jurisdictions and railroad operators
to reduce land use conflicts and increase safety at all at-grade crossings;
2. Encourage efforts to improve the condition of rail lines throughout the
County in order to retain the effectiveness and competitiveness of freight
rail;
3. Not endorse the abandonment of any rail lines unless they are to be
converted to trail use through the federal "Rails to Trails" program. Once
converted, the trails will be incorporated into the County Bikeway/Trail
System;
4. Not endorse any activities that would diminish existing rail service; and
5. Work cooperatively with affected local jurisdictions, businesses and
railroad operators to protect all rail spurs that currently serve businesses
or have the potential to serve freight rail uses from abandonment or
incompatible zoning.
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Chapter 3: Rural Growth Management - Transportation
Transportation System Management (TSM)
Goal
28. In order to optimize the carrying capacity of the County road system,
provide cost effective transportation improvements and implement
strategies that shall improve the efficiency and function of existing roads.
Policies
1. Deschutes County shall adopt land use regulations to limit the location
and number of driveways and access points on all collector and arterial
roads.
2. Deschutes County shall ensure that land use actions support the access
management policies of the Oregon Department of Transportation
(ODOT) along state highways.
3. Deschutes County shall implement transportation system management
measures to increase safety and reduce traffic congestion on arterial and
collector streets, and protect the function of all travel modes.
4. Deschutes County shall promote safety and uninterrupted traffic flow
along arterials via the following planning considerations:
a. Clustering of all types of development and provisions for an internal
traffic circulation pattern with limited arterial access shall be
encouraged;
b. A minimum setback of 50 feet from arterial rights-of-way shall be
required;
c. Recommendations on speed limits shall be forwarded to the State
Speed Control Board.
Transportation Demand Management (TDM)
Goal
29. Reduce peak hour traffic volumes on County roads and diminish the
exclusive use of single-occupant vehicles
Policies
Deschutes County shall:
1. Encourage businesses to participate in transportation demand
management efforts through the development of incentives and/or
disincentives. These programs shall be designed to reduce peak hour
traffic volumes by encouraging ridesharing, cycling, walking,
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Chapter 3: Rural Growth Management - Transportation
telecommuting, alternative/flexible work schedules and transit use when
it becomes available;
2. Work with business groups, large employers and school districts to
develop and implement transportation demand management programs;
3. Continue to support the work of non-profit agencies working towards the
same TDM goals as Deschutes County;
4. Encourage programs such as van or carpooling (rideshare) to increase
vehicle occupancy and reduce unnecessary single-occupant vehicle
travel;
5. Continue to pursue the development of park and ride facilities and
consider the siting of a rideshare facility, based on identified needs,
when realigning County roadways, considering the sale of surplus
property, or reviewing land use applications for developments that could
benefit from such a facility;
6. Pursue the development and utilization of telecommunication
technologies that facilitate the movement of information and data;
7. Support efforts to educate the public regarding the actual costs related to
travel on the transportation system and encourage transportation
demand management alternatives; and
8. Establish and make available a transportation demand management
program to County employees, to serve as a role model for the
community.
Deschutes County Transportation Project List
Goal
30. Have an annual review of the Transportation Project List for the
purposes of prioritizing, adding or deleting projects.
Policies
1. The Deschutes County Board of Commissioners shall review the
Transportation Project List annually to add, delete, and/or reprioritize
projects, and may do so by adoption of a resolution.
2. The County Board of Commissioners has the authority to add projects to
the list at any time if whole or partial private sector (developer) funding
becomes available through the land use process, and the potential
financial benefit to the County can be demonstrated to the satisfaction of
the Board.
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Transportation
Profile
Background
The State of Oregon requires cities and counties to prepare 20 year plans for
their transportation facilities. These Transportation System Plans (TSPs)
assess existing conditions, forecast future traffic volumes, identify deficiencies
and propose and prioritize mitigations or projects. These plans cover all
modes: air, automobile, bicycle, pedestrian, pipelines, rail, etc.
In 1998 a new TSP was adopted and summarized in this comprehensive plan.
The complete TSP, including background documentation, facility inventory and
forecast data as well as a list of prioritized short and long-term projects, can be
found in the Resource Element.
Based on the TSP, the Deschutes County Comprehensive Plan Transportation
section identifies through goals and policies how best to efficiently move
people and goods throughout the County. It is meant to provide a
transportation system that meets the needs of Deschutes County residents,
while also considering regional and state needs. This section also reflects
existing land use plans, policies and regulations that affect the transportation
system.
Transportation needs within the Urban Growth Boundaries of each
incorporated city are addressed by those cities respective comprehensive plan
transportation chapters.
In 2008 the County initiated a project to update the County's Transportation
System Plan, intended to coordinate with the Comprehensive Plan update.
Transportation System Plan
In late 1994, the County initiated work on a long-range transportation system
plan (TSP), which was a requirement of OAR 660-12, the Transportation
Planning Rule (TPR or Rule). The State of Oregon approved the Rule in 1991.
The purpose of the Transportation System Plan is to guide the development of
a safe, convenient and efficient transportation system that promotes economic
prosperity and livability for all County residents.
As required by the TPR, Deschutes County developed the standards and
policies in the Transportation System Plan (TSP) that comply with the
requirements to provide a multi-modal approach to solving transportation
issues. The Rule identifies the specific actions required of jurisdictions based
on their population. For most urban areas, the Rule requires an alternatives
analysis to compare various new project options versus an alternative that
proposes to build only existing funded and committed projects. Many of the
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Chapter 3: Rural Growth Management - Trans
alternatives have goals such as an increase in mode split share and reduced
vehicle miles traveled (VMT). These goals are measurable in many urban
areas or areas with a Metropolitan Planning Organization (MPO), but not in
rural Deschutes County. The logical alternative choices in the County were to:
1. Pursue an alternative that programs only the identified projects in the
current County Major Roads Capital Improvement Plan (MRCIP) and
gradually shifts funding from new capital projects to more preservation
and maintenance. Over time, capital improvements to address traffic and
safety problem areas will proceed on a prioritized basis. The long-term
effect is that preservation and maintenance of the existing system
becomes a higher priority than relieving congestion and solving safety
issues. This is often referred to as the "no build" alternative.
2. Adopt a "build" alternative, which tries to keep pace with anticipated
growth by focusing funding on building capacity-enhancing and safety
oriented projects, while also attempting to maintain the existing road
network.
3. Adopt a combination alternative, as recommended in the Deschutes
County Transportation System Plan (TSP, located in the transportation
chapter of the Resource Element), which includes a mixture of new
projects to enhance roadway capacity, improve safety while also
maximizing preservation and maintenance. The alternative also shifts
emphasis to non-auto modes as much, as is practical to meet the intent
of the Transportation Planning Rule (TPR).
This Plan balances the need to reduce the reliance on single occupant
vehicles given the County's needs, geography and demographics, with the
need to solve safety and operational problems. At the same time, the system
needs a significant effort in maintenance over the next twenty years to
preserve the investment already made by the community. Additionally, the
Plan encourages ridesharing, telecommuting and eventually fixed-route transit.
The TSP makes recommendations regarding short-term and long-term
transportation projects on state and County facilities that will be needed over
the next 20 years.
The project list was based on:
1. Evaluating the capacity of the County road system and the state highway
network within Deschutes County
2. The results of state accident database analysis
3. Input from the County Road Department
4. Efforts to enhance alternative modes of transportation through
compliance with the Transportation Planning Rule
5. The input received from the citizen review committee (County Planning
Commission) and the public outreach process in general
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The identified projects were prioritized based on the following criteria:
1. Most Important: Solving safety problems
2. Important: Maximizing the use of pedestrian and bicycle facilities;
Location of schools and fire stations; Project cost per average daily trip;
Anticipated traffic volumes (2016)
Based on the requirements of the Transportation Planning Rule (TPR),
Deschutes County has established an ongoing procedure to periodically
analyze, prepare and plan for the transportation needs of Deschutes County
residents and visitors. Goals and policies (see above section for Goals and
Policies) are intended to implement the Deschutes County Transportation
System Plan, and thereby meet the requirements of the TPR.
Arterial and Collector Roads
County Road Network
The findings in the TSP conclude that the County road network currently in
place, except for several specific road segments, should be adequate to serve
the County needs over the next twenty years. Given the rural nature of
Deschutes County and the fact that the majority of new development will take
place on existing lots with existing access, few additional roads are
anticipated. New road corridors to isolated subdivisions and new roads linking
urban and rural areas are the main exceptions. Any new roads that will be
created most likely will be the result of new developments and would therefore
be part of land use development review or would be for secondary access or
emergency ingress/egress to isolated subdivisions. Unforeseen large
developments such as destination resorts normally have a private road system
but their impacts to the County road network would be assessed at the time of
land use approval.
The majority of road-related projects will consist of safety-related or other
upgrades, maintenance and repair. Upgrades, maintenance and repair should
be actively pursued to maintain the integrity of the system and not jeopardize
the current conditions. Pedestrian, bicycle and transit modes of transportation
require wider, smoother roadways. These improvements also benefit
automobile and truck traffic by making the roads safer and more efficient. The
main purpose of the County-owned road network is to move people and goods
as efficiently as possible between and to the incorporated cities in the County,
not as a means of increasing urban scale developments in the unincorporated
communities of the County. The County recognizes the importance of having a
natural and seamless transition of jurisdiction for County roads within urban
growth boundaries to their respective city jurisdictions as the cities continue to
grow.
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State Highways
Each of the Access Oregon Highways (AOH) in Deschutes County has a
specific role in the statewide transportation network, as well as the County
system. The 1991 Oregon Highway Plan specifies the design, access
management and level of service requirements that need to be applied to
these highways. Deschutes County supports ODOT policy to develop
highways through a "four-phased" approach. The four phases of development
take place incrementally as the traffic volumes increase and the level of
service decreases. Beginning with a standard two-lane rural highway, the
improvement phases are as follows:
1. Addition of passing or climbing lanes
2. Widening to a four-lane section
3. Adding grade-separated interchanges and raised medians
4. Develop full grade-separated interchanges and frontage roads
Through a coordinated analysis effort between ODOT and County staff, the
probable locations of future passing and climbing lanes on the state highways
in Deschutes County were identified. Also identified were the four-lane
extension to Highway 97 from La Pine south to Highway 31, along with the
probable locations of future grade-separated interchanges. The projected
conceptual highway lane additions and interchanges are shown on Figures
5.2.F1 and 5.212 in the Transportation chapter of the Resource Element.
Actual locations and design would be the result of detailed engineering work
occurring during project development. No signals are appropriate on state
highways outside of UGBs, Terrebonne or La Pine. Instead, as intersections
develop safety or operational problems, they shall be grade-separated,
restricted or closed (where there is alternative access).
The following descriptions identify the roles the state highways are expected to
play in Deschutes County over the next twenty years.
US Highway 97
Congestion on Highway 97 has been mostly a problem within the communities
of Bend and Redmond, due to the increasing volumes of truck traffic combined
with local traffic generated by the rapid growth experienced in recent years.
The Highway 97 Strategy (Appendix D of the Transportation chapter of the
Resource Element) contains the goals and policies that govern the future
development of the Highway 97 corridor. Outside of urban areas, the highway
is characterized by two, three, and four-lane sections. The ultimate plan is for
a continuous four-lane section to be built throughout the corridor, except for
the sections through unincorporated communities such as Terrebonne. In
those communities, traffic calming and pedestrian safety are more important
than through traffic movement. In most cases, the time delay to drivers
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passing through the small rural communities is insignificant compared to the
overall travel time along the corridor.
Highway 97 is considered a Category 2 access management facility outside of
urban areas, except for the specific sections through the communities of
Terrebonne, Wickiup Junction and La Pine which are Category 4 (definitions
can be found on page 17). The Category 4 section in Terrebonne extends
from Lower Bridge Way south to 11th Street. The section in Wickiup Junction
extends from Drafter Road south to Burgess Road. The La Pine section
extends south from 1 st Street to 6th Street. The Terrebonne section has
already been redesigned to be pedestrian-friendly by the eventual inclusion of
sidewalks, landscaped strips, bulbed intersection corners and a center
median. The La Pine section will be studied in 1998 as part of an approved
state Transportation and Growth Management (TGM) grant. The La Pine
section will be challenging due to the existing four-lane section through the
community. Issues regarding Highway 97 in Deschutes County include:
1. The increasing traffic volumes north of Terrebonne, especially at Lower
Bridge Way
2. Traffic calming through Terrebonne, Wickiup Junction and La Pine
3. Local road and direct driveway access onto the highway
4. North and south connections to the Redmond "bypass"
5. The needed grade-separated interchange at South Century Drive
(Sunriver)
6. The excessive speeds through the rural communities
7. The possible grade separation between Yew Avenue and Deschutes
Junction
8. The opportunity to enhance the parallel local road network to redistribute
local trips that would otherwise need to use the highway (such as paving
FS Rd. #41 between Sunriver and Bend)
US Highway 20
The ODOT Highway 20 corridor planning process is currently underway, and
not expected to be completed before this TSP is adopted. However, policy
direction and identified projects resulting from the corridor work can be added
to the County's adopted TSP when completed.
The Tumalo section was studied (with Terrebonne) in 1997 as part of an
approved state Transportation and Growth Management (TGM) grant. The
community focused on the need to reduce accidents and ease the burden of
crossing three lanes of high-speed traffic on Highway 20. The high volume of
truck trips in the Tumalo area is seen as a contributor to the overall problem,
and is not anticipated to diminish during the next twenty years.
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Highway 20 is considered a Category 3 access management facility west of
the Sister's UGB, Category 4 within Sisters (similar to Terrebonne), Category
2 between Sisters and the Bend UGB, and Category 4 east of the Bend UGB.
The critical areas of the corridor are:
1. The increasing traffic volumes west of Sisters that may necessitate
additional passing lanes
2. The intersection of Cook Avenue in Tumalo which will require an
eventual grade separation
3. Safety problems at the intersection of the Old Redmond-Bend Highway,
which will also require an eventual grade separation
4. Local road and direct driveway access onto the highway between Sisters
and Bend
5. Improvements to the Powell Butte Highway intersection if land uses
intensify at the Bend Airport and/or accelerated growth occurs in Crook
County
Oregon Highway 126 (OR 126)
With the completion of the Cline Falls interchange in 1997, there are few
transportation issues remaining or anticipated on this facility. No new
interchanges or medians are proposed. The primary issues are related to the
highway as it passes through the City of Redmond. Areas outside of the
Redmond UGB that could develop problems include:
1. The intersection of Helmholtz Way if rapid development in and around
Redmond continues
2. Access to a possible new state park expansion at Cline Falls
3. Local road and direct driveway access onto the highway between Sisters
and Redmond
4. The substandard section east of Redmond
5. The connection of 74th Street to the Cline Falls interchange
Other Oregon Highways (OR 27, OR 31, OR 370 & OR 372).
The remaining highways in the County are not considered AOH facilities, and
as such, do not warrant the same priority for projects nor are they anticipated
to carry significant traffic volumes. Each of these highways, except for OR 27,
is currently considered a Category 4 facility. None has identified high accident
rates or safety problems. With the exception of OR 370 (O'Neil Highway),
none has much direct private access or potential for intensified land use.
There are no plans to pave OR 27 which is considered a Category 6 facility.
Deschutes County recognizes that Crook County is incrementally paving a
new road extending south from their industrial area towards Deschutes
County. Ultimately this new road may connect to Highway 20 west of OR 27
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near Millican. When and if this new road connects to Highway 20, ODOT may
choose to designate this new route as OR 27.
Access Management
Roads accommodate two types of travel: local travel and through traffic.
Arterial streets are intended for through movement of traffic while local roads
are designed to give direct access to the abutting properties. Collector roads
provide a link between the local and arterial roads, balancing accessibility and
function. Historically, the state and local governments corrected many
congestion problems by constructing new bypasses, grade separations or
major street improvements. However, such solutions are expensive and are
fast becoming infeasible under current funding levels.
Arterial roads without access management can over time become overused
for short distance trips and local access to property. Land use changes along
these overburdened arterials results in increased trip generation and traffic
conflicts, as businesses normally desire to locate on high traffic arterials. The
lack of adequate access management and insufficient coordination of land use
development, property division and access review can contribute to the
deterioration of both the arterial and collector road network. Traffic signals,
new road approaches and driveways can decrease speed and capacity, and
increase both congestion and hazards. Access management includes the
control of vehicular access to major roadways. Partial access control, which is
often found on major arterials and highways, is provided by limiting or
prohibiting driveway access, left turn movements and cross traffic at
intersections. These limitations increase the capacity of an arterial to carry
through traffic at the desired speeds without requiring the addition of more
travel lanes. Coordination, planning and proper policies can help avoid these
problems and costly solutions.
Functional Classification
Functional classification describes how the public road system should operate.
Roads are grouped by their similar characteristics in providing mobility and/or
land access. Within the County, there are six rural road classifications and
nine urban classifications. Further coordination is needed between the County
and cities in Deschutes County regarding the functional classification of
County roads within city limits and urban growth boundaries. Currently, the
County maintains approximately 123 miles of roadway within city limits and
urban growth boundaries. The County lacks funds to upgrade these roads to
city urban standards. Strengthening and revising Urban Growth Management
agreements with cities may be an effective way to pursue tight coordination on
this important issue and reduce the long-term financial burden to the County.
As an example, the County and the City of Bend have agreed that as of July 1,
1998, all roads within the Bend UGB will become the responsibility of the City
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of Bend. This shift reduces the County's urban road mileage by approximately
70%.
The following changes to functional classification are identified on the
Deschutes County Transportation Plan Map, designated as Exhibit "A" to
Ordinance No. 98-044, and also identified on the more detailed maps located
in the Transportation System Plan which is part of the Resource Element of
the Comprehensive Plan.
Bend TSP - The draft Bend Transportation System Plan is proposing only one
change in functional classification to a County road within the UGB. However,
with the recent management agreement, this road will become the jurisdiction
of the City of Bend. The functional classification of all other roads that cross
the Bend UGB between the City and the County have been coordinated.
Yeoman Road from 18th street east to the outer (ultimate) urban growth
boundary is currently classified as either a future or current arterial depending
on segment. It is proposed to change to a corresponding future and current
collector.
Redmond TSP - The draft Redmond Transportation System Plan proposes
several classification changes to County roads within and around the UGB.
The Redmond TSP also splits the existing arterial classification into two new
categories, "major arterial" replaces "principal arterial" and "minor arterial"
replaces "arterial". The collector category is also changed by creating a
"Major" and "Minor" classification. The difference is that bike lanes are not
required on "Minor" collectors. The designation of County roads outside of
UGBs shall remain consistent with the County functional classes of Rural
Arterial and Rural Collector. The County shall require at least a four-foot
shoulder bikeway along those sections of road within the County that are
extensions of designated Minor Arterials and Major Collectors on the
Redmond Plan.
1. Rural Arterial to Rural Collector
a. Hemholtz Way (43rd) between Maple Avenue and Obsidian Avenue.
b. Northwest Way north of Maple Avenue
c. Maple Avenue between Hemholtz Way (43rd) and Northwest Way
(27th)
2. Rural Collector to Rural Arterial
a. 27th Street between Maple Avenue and Hemlock Avenue
3. Other Changes
a. 9th Street classification as future arterial north of Maple Avenue /
Negus Way is eliminated
County Roads - Several roads within the rural areas of the County road
network are in need of reclassification. The reclassification of these roads is
warranted based on either their current and projected average daily traffic
(ADT), or planned functional role in the transportation network. In most cases,
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Chapter 3: Rural Growth Management - Transportation
a projected level of service "D" or worse triggered the change from collector to
arterial. One exception to this is the reclassification of Forest Service Road
#45. This road is expected to have high peak seasonal use between Sunriver
and Mt. Bachelor, and should therefore be reconstructed to a rural arterial
standard.
Several roads currently classified as arterial are recommended to revert to
collector status because they don't have a projected level of service of "D" or
worse, and serve as a parallel route to a state highway. The original
Transportation Element of the County Comprehensive Plan made several
recommendations as to reclassifications at that time. As time has passed,
some of these roads have not experienced the anticipated traffic while others
are playing larger roles than originally planned due to accelerated
development pressure. The County emphasis is for County roads to remain
rural, have lower traffic speeds, and reduced cost to upgrade, repair and
maintain.
New local roads for secondary access to rural isolated subdivisions have been
identified as part of the Regional Problem Solving Project. In some cases,
there is an existing dirt road across private or government land, but no
dedicated right-of-way. Figures 5.2.F3a and 5.2.F3b of the Transportation
chapter of the Resource Element identify proposed new roads as "corridors",
subject to future engineering and design, rather than specific alignments. The
Sunriver Business Park is also in need of a future secondary access or
intersection treatment such as a roundabout. With increasing development of
commercial uses in the Park along with the increasing traffic volumes on
South Century Drive, the single entrance/exit onto South Century Drive will
become inadequate. Any solution may be problematic due to the established
development pattern, the electric substation location, the forest-zoned land,
and the Harper town site to the south. Figure 5.2.F3c in the Transportation
chapter of the Resource Element identifies possible solutions to the problem
by establishing a new access to Huntington Road. In the interim, an upgrade
project to South Century Drive is identified in the Project List in the
Transportation chapter of the Resource Element. The project would add a
continuous two-way center turn lane from the entrance at Sunriver to the
intersection at Spring River Road.
Roads classified as "future" in Figures 5.2.F4a-5.2.F4e of the Transportation
chapter of the Resource Element are currently in need of either dedicated
right-of-way, paving to County standard or both. The County makes the
following changes in functional classification based on the current and
projected traffic volumes, as well as the need for coordination between
jurisdictions:
Upgrade Functional Class - Rural Collector to Rural Arterial
a. Baker Road from US 97 to Brookswood Blvd
b. Burgess Road from US 97 to Day Road
c. South Century Drive from US 97 to Spring River Road
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d. Cline Falls Highway from OR 126 to Second St. (Tumalo)
e. Spring River Road from South Century Drive to FS Road #45
f. Forest Service Road #45 from Spring River Road to Century Drive
2. Upgrade Functional Class - Rural Local to Rural Collector
a. Stevens Road from Bend UGB to Ward Road
b. Nelson Road from Waugh Rd. to Powell Butte Highway
c. Billadeau Road from Ward Rd. to Arnold Market Rd
d. Reed Road from US 97 to Darlene Way (edge of La Pine
Community)
e. Hunnell Rd. from Tumalo Rd. to Bend UGB
f. Rogers Rd. from Old Redmond-Bend Hwy. to Hunnell Rd
3. Upgrade Functional Class - Rural Local to Future Rural Collector
a. Lazy River Drive to Tamarack Drive
b. Tamarack Drive from Lazy River Dr. to 4th Street
c. 4th Street to Whittier Drive
d. Whittier Drive to La Pine State Recreation Road
e. Solar Drive to Milky Way
f. Upland Road from Milky Way to Savage Drive
g. Savage Drive from Upland Road to Winchester Drive
h. Winchester Drive From Savage Drive to Browning Drive
i. Browning Drive from Winchester Drive to Stagestop Drive
j. Stagestop Drive from Browning Drive to Bonanza Lane
k. Bonanza Lane from Stagestop Drive to South Century Drive
1. Sunrise Blvd. from Day Rd. to Burgess Rd
4. Downgrade Functional Class - Rural Arterial to Rural Collector
a. Holmes Road from OR126 to Lower Bridge Way
b. OB Riley Road from Bend UGB to Johnson Market Road
c. Lower Bridge Way from Holmes Road to 43rd Street
d. Deschutes Market Road from US 97 to Bend UGB
5. Downgrade Functional Class - Rural Collector to Rural Local
a. Horse Butte Road from Knott Road to end
b. Arnold Market Road from Rickard Rd. to Billadeau Road
Road and Street Standards
Historically, County road and street standards and specifications have been
located in various places throughout the County Zoning and Subdivision
Ordinances, making it a difficult task to implement standards uniformly and
update them as needed. The County pledges to create a separate standards
and specifications document, which will enable the County to periodically
update or change specifications or road project procedures without a
Comprehensive Plan amendment. The likely location for the new document or
chapter will be in Title 12 (Road Department) of the Deschutes County Code.
The new document will reflect the County's desire to no longer have urban
road standards, only rural road standards, including specific standards for the
unincorporated communities of La Pine, Terrebonne and Tumalo.
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Chapter 3: Rural Growth Management - Transportation
Road Management System
Road management is an orderly scheduling of pavement preservation,
maintenance, repairs and improvements to meet serviceability goals and
provide safe, comfortable and economical transportation while striving to
achieve the best possible value from available funds. Routine maintenance
activities are carried out on a daily basis. Road sections requiring more
extensive work are prioritized and then selected for improvements based on
an evaluation of pavement condition.
Local road standards need to evolve over time as a given road experiences
more traffic. A dirt or aggregate surfaced road may be adequate for access to
individual properties. However, as additional properties begin to use that road
for access, it may no longer be adequate. At a certain point, the owners of
property using the road for access will need to join together and participate in
the improvement of the road through the formation of a special road district or
local improvement district.
Level of service
Levels of service (LOS) describe the service quality on two lane roads or
highways as determined by average travel speed, percent of time delay due to
the inability to pass, roadway capacity utilization, or intersection delay. LOS
ratings generally apply to collector and arterial streets only.
LOS is defined by a range of designations from "A" to "F". LOS "A" is
completely unimpeded traffic flow while "F" is highly congested. Table 5.232
in the Transportation chapter of the Resource Element identifies the
relationship between two-way average daily traffic (ADT) volumes, level of
service and the percentage of daily traffic that occurs during the peak travel
hours of the day (K factor) on two-lane highways. While several road
segments are expected to reach LOS "E" over the next 20 years, most County
roads will be at LOS "D" or better as long as population growth does not
exceed the projections. ODOT highway policies dictate that anything over LOS
"C" outside of urban areas is unacceptable. For rural highway segments in
Deschutes County, ODOT projects several to exceed LOS "D" over the next
20 years.
Maximum Average Daily Traffic Allowed for Various Levels of Service
K Factor I Level of Service
IA IB IC ID IE
Average Daily Traffic Volume (ideal conditions, i.e., level terrain,
etc.
10% 12,400 4,800 7,900, 13,500 22,900
Source: Deschutes County Resource Element
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Chapter 3: Rural Growth Management - Transportation
Capacity
County Roads
Traffic volumes on County roads were estimated using a combination of
trending analyses and the Potential Development Impact Analysis work done
by ODOT for Deschutes County. It was assumed that any road segment with
fewer than 9,600-projected ADT in 2016 would operate at an LOS of "D" or
better, and that LOS "D" is acceptable for County arterial and collector roads.
Of all the County roads, only Baker Road (LOS "E") leading into Deschutes
River Woods is projected to operate at worse than LOS "D" in 2016. Additional
roads approaching LOS "E" are located in the South County and include:
1. Burgess Road west of Huntington Road in La Pine
2. South Century Drive near Sunriver
These two road segments shall be monitored by the County Road Department
and counted at least every two years instead of the usual 4-year cycle.
ODOT State Highways
ODOT provides yearly traffic counts on all the state highways running through
Deschutes County. ODOT used historical growth rates based on the last
twenty years of traffic volume data. The yearly growth ranged from 0.0 to 11.4
percent.
It was also assumed that the number of access points remained constant.
Whereas the County road analysis related LOS directly to ADT levels, several
highway segments may have high ADT levels but a correspondingly low LOS
because of the presence of multilane and passing lane sections. Therefore,
the most important analysis tool for highway sections becomes the LOS value
rather than ADT. For multilane sections in the County, the forecasted traffic
volumes are well within the capacity limits through the year 2016. However,
several sections of the state highways will be reaching capacity thresholds for
two-lane sections. The sections projected to approach capacity and operate at
level of service (LOS) "D" or worse are:
1. Highway 126 through downtown Sisters and on either side of the City of
Redmond
2. Most of Highway 20/126 between the Jefferson County line, through
Sisters and Bend to Powell Butte Highway
3. Highway 97 from the Jefferson County line through Terrebonne and
Cottonwood Drive south to La Pine
4. Highway 372 from Bend to Dillon Falls Road on the way to Mt Bachelor
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Bridges
Deschutes County owns and manages approximately 120 bridges throughout
the County. The County Road Department performs routine maintenance and
repairs as necessary. Several of the bridges are signed for weight limitations
in the five to fifteen-ton range because they are structurally deficient. Five
bridges on higher volume roads are signed with 25-ton weight limits. Since the
recent replacement of the Fall River Bridge in 1995, no significant bridge
problems have been identified for correction or reconstruction.
Truck Routes
Currently Deschutes County has no designated truck routes or hazardous
materials routes on County roads. However, several roads are signed to not
allow trucks over a certain weight due to bridge limitations. Oregon is one of
the few states that currently allow oversized tractor-trailer vehicles referred to
as Longer Combination Vehicles (LCV's) on certain highways. Two types of
Luvs, triple trailers and heavier double trailers (105,000-lb weight limit) are
allowed to operate in Oregon without a special permit. Truck traffic is generally
confined to industrial, commercial and surface mining areas. State highways
serve the majority of truck traffic and are most suitable for truck use. The
County shall continue to designate state highways as the desired through
truck routes in the County. The draft 1998 Oregon Highway Plan proposes to
designate U.S. 97 as a State Trucking Route. This designation could mean
that additional funds would be available for improvements to U.S. 97. Outside
of the state highway system, trucks should be limited to travel only on arterial
roads.
Hazardous Material Routes
The transport of non-radioactive hazardous materials (NRHM) is guided by
Part 397 of the Federal Motor Carrier Safety Regulations. The Federal
Department of Transportation defines hazardous materials (HAZMAT) and
regulates their packaging and shipping. ODOT designates the NRHM routes in
Oregon. Currently, there are no designated NRHM routes in Central Oregon,
which means HAZMAT can be transported through Deschutes County without
any restrictions. In order to establish a new NHRM route, the County would
need to work with ODOT to make findings on various federal criteria such as
population density and proximity to hospitals and schools. The creation of
NRHM routes requires a deeper understanding of the movement of these
shipments than is currently available, therefore no routes shall be designated
in this Plan. However, the County shall work with ODOT to determine if any
Deschutes County highways should be candidates for designation as NRHM
routes.
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Facility/Safety Improvements
In 1996, the grant-funded Deschutes County Safe Communities program was
initiated in an effort to reduce transportation-related injuries of all types.
Program staff used the state accident database, from the Accident Data Unit
at ODOT, to evaluate accident data for the period 1991- April 1995. During this
time period there were a total of 2,518 crashes reported on County roads and
highways outside of urban areas. Of the total number of accidents, 70 were
fatal, 1,073 involved injury (170 serious), and 1,375 were property damage
only accidents. Safe Communities staff has also identified the difference in
accident rates between the County in general and the rural areas.
Countywide, fatal accidents accounted for 1.2 percent of the total number of
accidents, while fatal accidents just in the rural area accounted for 2.8 percent
of the total. Injury accidents made up 4.4 percent of the County total, while in
just the rural areas; they accounted for 6.8 percent of the total. The Safe
Communities Group identified the process of reengineering high incident
areas, where the greatest number of accidents occur, as the most important
issue that should be addressed within the first year of the program. However, it
could also be argued that the number of accidents alone is not the only
indicator of need for corrective measures. A location with very high traffic
volumes and a high accident rate may be safer than a location with low
volumes but a high accident per average daily trip (ADT) rate. The "high
priority" projects in the Project List section of the Transportation chapter of the
Resource Element include improvement projects recommended to improve
safety.
Public Transportation
Special Transit Services
Fixed Route Transit
There is currently no traditional fixed-route local transit service in Deschutes
County. However, the Mt. Bachelor Ski Resort Super Shuttle does operate
during the winter months on a fixed-route and schedule. The County shall
continue to work with service providers such as Mt. Bachelor to secure
additional funding as well as increase promotion of their services.
Future Fixed-Route Transportation Options
In 1997, ODOT funded a study to address the issue of a fixed-route, commuter
shuttle transit system between Bend and Redmond. The Study includes a
commuter survey, information regarding potential ridership and costs. The
results indicated that the most feasible operation would be a 3-van system
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with reasonably direct routing and few stops. The travel time between Bend
and Redmond would average 30 minutes. The capital costs would be
approximately $150,000, with annual operating costs of $200,000. Average
daily ridership could average 100 if fares were $3.00 or less. Further study
would be required prior to implementation.
If the County were to establish a rural transit "district" to include a Bend-
Redmond shuttle, another potential transit route could be from La Pine to
Bend. Although no formal study has been done on this, similar results as the
Bend-Redmond Study would be expected. A major difference in a La Pine-
Bend shuttle would be the limited number of stops in La Pine and Wickiup
Junction, and a probable diversion to serve Deschutes River Woods.
To achieve its potential, a commuter shuttle service needs good connections
to sidewalks, bikeways, fixed-route transit and rideshare lots. Currently, there
is no fixed-route transit in Bend or Redmond. The sidewalk and bicycle
networks are generally fragmented and there are few rideshare lots. Because
of these limitations, a shuttle service should attempt point-to-point travel as
much as possible, which means working with larger employers to encourage
the service. Figure 5.3.F1 in the Transportation chapter of the Resource
Element identifies the potential routes and stops for a County rural transit
system.
The need for a public transit center has been identified and shall be supported
by Deschutes County. The center would include adequate parking and
restroom facilities, and provide the opportunity to transfer between multiple
intercity and local service providers. The most likely transit center location is in
Bend, but additional locations in Redmond and possibly La Pine/Wickiup
Junction may also be established. The County shall cooperate with ODOT and
local jurisdictions in establishing future transit facilities as needed.
Local Demand-Responsive Transportation
Deschutes County has a network of special transportation providers who serve
the elderly and disabled population. In most cases, the general public does not
have access to these special transportation services. There are several
providers of special transportation services in the County, ranging from public
to private, both profit and non-profit. The following are the existing service
providers in the County:
• City of Bend Dial-A-Ride
• Central Oregon Council On Aging (COCOA) Dial-A-Ride
• Opportunity Foundation of Central Oregon
• Residential Assistance Program (RAP)
• Disabled American Veterans
• Volunteer Services
• Central Oregon Resources for Independent Living
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Access Express
With limited funding options, no significant expansions in these demand
responsive programs are planned. Short-term capital needs have been
identified for several dial-a-ride service providers and are included in the
Project List.
Intercity Bus and Passenger Rail
The following intercity bus services are planned to continue as the primary
(and only) public transit options in the County.
• Greyhound
• CAC Transportation
• The People Mover
• Porter Stage Lines
• Valley Retriever
The focus is to maximize the efficiency of these services as land use changes
occur. The County realizes it has no control over the market driven forces that
allow private transit providers to thrive or just survive. Increased emphasis
shall be placed on the transit/rideshare connections possible in the South
County as the population increases. The County will continue to work with the
cities of Bend and Redmond as they investigate the possibility of fixed-route
local transit systems. Without a local transit system to distribute trips, a
commuter system linking the rural and urban areas of the County is less likely
to succeed.
The Oregon Transportation Commission in November 1992 adopted the
Oregon Rail Passenger Policy and Plan. It provides a comprehensive long-
range plan for railroad passenger service in Oregon in coordination with the
Oregon Transportation Plan. Unfortunately, passenger rail service for Central
Oregon was ruled out as not being cost-effective. However, as conditions
change and the population of Deschutes County continues to increase, the
County will monitor the feasibility for future passenger rail service and work
with ODOT and the community on future transit/rail options.
Bikeways and pedestrians
In March 1992, the County adopted a Bicycle Master Plan as a resource
element of the Deschutes County Year 2000 Comprehensive Plan. The
Bicycle Master Plan provides recommendations for policies, classifications of
bike facilities, location of bike facilities, bicycle parking and other transportation
issues related to bike facilities. Many of the goals and objectives of that Plan
have been implemented and/or are still valid. With the adoption of the latest
version of the Oregon Bicycle and Pedestrian Plan by the Oregon
Transportation Commission on June 14, 1995, portions of the 1992 County
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Bicycle Master Plan are no longer relevant. The new state Plan contains
several changes from earlier versions, which will have an effect on the
Deschutes County Bicycle Master Plan. The most significant change is the
new emphasis on pedestrian facilities, which were not addressed in the
previous Plan.
Based on need and road characteristics, all roads open for public use should
be considered for the potential to improve bicycling and walking. Facilities
should safely accommodate the majority of users. Roads designed to
accommodate cyclists with moderate skills will meet the needs of most riders;
special consideration should be given close to school areas, where facilities
designed specifically for children should be provided. Roads designed to
accommodate young, elderly and disabled pedestrians serve all users well.
Rural Bikeways
On most rural roadways, shoulder bikeways are appropriate, accommodating
cyclists with few conflicts with motor vehicles. In general, the minimum
shoulder widths recommended by Oregon Bicycle and Pedestrian Plan for
rural highways are adequate for bicycle travel. These standards take into
account traffic volumes and other considerations.
Shared roadways are adequate on low-volume rural roads, where motor
vehicle drivers can safely pass bicyclists due to the low likelihood of
encountering on-coming traffic. Shoulder bikeways can be added to roads with
high bicycle use, such as in semi-rural residential areas or close to urban
areas. It may be appropriate to stripe and mark shoulders as bike lanes near
schools or other areas of high use. Even adding minimal-width shoulders can
improve conditions for bicyclists on roads with moderate traffic volumes. On
roads with high use, it may be necessary to add full-width shoulders in areas
of poor visibility due to topography.
Rural Walkways
In sparsely populated areas, the shoulders of rural roads usually
accommodate pedestrians. There are, however, roadways outside urban
areas where the developing urban character creates a need for sidewalks,
such as on highly developed commercial strips or in residential clusters along
county roads or state highways.
How and where pedestrians cross arterial roads is potentially more important
that pedestrian travel along roads. Road volumes will dictate at what locations
special pedestrian treatments may be warranted. It is anticipated that much of
the focus will be on the state highways as they travel through rural
communities. These locations have the highest concentrations of pedestrians
and activity centers. Pedestrian treatments will be analyzed in concert with
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traffic calming strategies on the highways. Where sidewalks are not provided,
paved shoulders should be wide enough to accommodate both pedestrians
and bicyclists. Paved multi-use paths provided on one or both sides of a
roadway in a rural community may be appropriate for providing access to
schools. These paths will also serve the needs of young bicycle riders.
Through the site plan review process, the County will continue to monitor
pedestrian facility design, and require appropriate facility designs to comply
with provisions of the Americans with Disabilities Act (ADA).
The TSP identifies policies, bike and pedestrian facility classifications, design
standards and construction and maintenance guidelines. Many of the design
standards apply to urban rather than rural areas. However, they are in this
plan because they may apply to specific projects, new neighborhoods, or
urban unincorporated communities. This TSP contains a list of suggested
improvements on the Deschutes County Road System to accommodate bike
and pedestrian facilities. Completion of these projects will considerably
enhance the network of bike and pedestrian facilities throughout the County.
The TSP recommends standards and design guidelines for bicycle and
pedestrian facilities set by the 1995 Oregon Bicycle and Pedestrian Plan. All
traffic devices used in conjunction with bikeways are required to meet the
standards set forth in the national Manual on Uniform Traffic Control Devices
(MUTCD).
On-Road Route Selection
The integrity and usefulness of the bicycle system mandates that future
development is designed with bicycling in mind.
Off-Road Route Selection
On-road bike facilities are generally preferred due to their lower cost and
easier maintenance. However, paved and unpaved off-road bike paths could
cater more to the recreational and fitness riders, and also offer an automobile-
free route for inexperienced and younger cyclists. Well-placed paths could
also serve commuting traffic. A paved multi-use path should be of sufficient
width to accommodate multiple user groups such as jogging strollers and
rollerbladers. The opportunity exists in Deschutes County to create off-road,
separate multiple-use paths in some circumstances:
1. Along maintenance "ditchrider" roads adjacent to main irrigation canals
2. Major utility easements
3. Short connector routes between adjoining subdivisions, and between
subdivisions and adjoining schools and parks
4. Abandoned roadways
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5. Additional bicycle paths within destination resorts and new recreational
communities now in the planning stage
6. Heavily impacted forest trails
Facility Requirements
The TPR has various requirements relating to bicycle facilities such as bike
parking amounts and areas, and employee considerations such as shower
and changing facilities. Most of these requirements have already been
implemented through Deschutes County ordinances, but are reinforced here
with goals and policies.
Airports
The continued operation and vitality of airports registered, licensed or
otherwise recognized by the Department of Transportation is a matter of State
and County concern. There are currently 18 registered airports in Deschutes
County. Four of these are public use airports; two of which, Bend Municipal
and Redmond Municipal-Roberts Field are publicly owned while Sisters Eagle
Air and Sunriver airports are privately owned. These airports have improved
(paved) runways, and offer a range of services, from the availability of
commercial passenger flights arriving and departing daily at Redmond
Municipal Airport, to the Sisters (Eagle Air) Airport which offers no services or
runway navigational aids.
The Redmond Airport, which is located completely within the City limits of
Redmond, is owned and controlled by the City of Redmond. It has a master
plan, which was updated in 1998 and adopted by the City. The Plan guides
the future land use(s) at the airport. The Master Plan includes an inventory of
existing facilities, land uses, aviation forecasts, a demand/capacity analysis,
airport layout plan and a development program.
Unlike the Redmond Airport, the Bend Municipal Airport is located outside the
Bend City limits and UGB, therefore the County has land use jurisdiction over
it. In order to guide airport land uses, the County adopted and utilizes the 1994
Bend Municipal Airport Master Plan, as amended in 2002 the "Supplement to
1994 Airport Master Plan" incorporated by reference herein. This is the guiding
document for airport planning and development. This document incorporates a
range of facility improvements for the Bend Municipal Airport over the 20-year
planning horizon (2021), including short, intermediate, and long-term projects
to improve safety and function at the airport.
Currently, LCDC has administrative regulations (OAR 660-13) which were
adopted in 1996. These regulations apply to airports that, in 1994, were the
base for three or more aircraft. However, with the passage of HB 2605, the
regulations were revised by the 1997 Oregon Legislature, which will require
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Chapter 3: Rural Growth Management - Transportation
DLCD to update the rules to incorporate the changes made by the Legislature.
For purposes of this TSP, the County will not alter current land use regulations
in response to the current regulations (OAR 660-13) which have been revised
by the Oregon Legislature. While the content of the new regulations is not yet
known, the County policy shall be to develop ordinances to comply with the
new regulations once they are adopted by DLCD.
Railroads
See Goals and Policies
Waterways
A water-borne transportation plan is not applicable in Deschutes County.
Pipelines
Many miles of pipeline in Deschutes County currently carry power
transmission lines, cable television, telephone, natural gas, water and sewage.
The County encourages the continued use of pipelines to carry goods across
County boundaries and for distribution within the County.
Transportation System Management (TSM) and
Transportation Demand Management (TDM)
Although not urban, Deschutes County still has the potential to use several
TSM and TDM strategies in order to help preserve the function of major
County roads and state highways.
Transportation System Management (TSM)
TSM improvements focus on optimizing the carrying capacity of roads by
alleviating congestion and reducing accidents. Examples of TSM strategies
include:
1. Minimizing the number of access points
2. Channelization of turning movements
3. Creation of continuous turning and merging lanes
4. Raised medians
5. Signalization
An important aspect of TSM is that public agencies work closely with affected
businesses to fully evaluate impacts from changes to access. In addition, TSM
must account equally for the needs of all modes of travel, particularly that bike,
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Chapter 3: Rural Growth Management - Transportation
pedestrian and transit movements and safety are not compromised in
exchange for improving roadway capacity.
Transportation Demand Management (TDM)
Unlike TSM strategies, which focus on physical changes, TDM targets driver
behavior, mode choice and employers to lower the traffic demands on the
roads, especially during the peak travel times of the day. Examples of TDM
strategies include:
1. Alternative or flexible work schedules
2. Ridesharing/carpooling
3. Transit use
4. Bicycling/walking
5. Parking management
6. Working at home/telecommuting (teleworking)
TDM strategies often involve and education and promotion effort to encourage
changes in single occupant driving behavior. Therefore, TDM strategies
require a concerted community and/or employer effort and commitment to
realize the greatest results. A "tool box" of TDM strategies suitable for Central
Oregon is included in Appendix M of the Transportation chapter of the
Resource Element. Also significant is that, of all the different strategies used to
relieve congestion, TDM efforts in Bend, Redmond, Sisters, Prineville, and
Madras can all affect the County and each city because of the employee
commute patterns throughout the tri-county area.
Deschutes County Transportation Project List
The list of expected transportation projects needed over the next twenty years
is provided in the Transportation chapter of the Resource Element. The
projects chosen were a result of:
1. Analysis of County roadway accident data provided by the state
2. Using capacity analysis on County roads based on the forecasted growth
3. Knowledge and experience of the County Road Department
4. Public input
5. Efforts to enhance non-auto modes of transportation to conform to
requirements of the State Transportation Planning Rule (OAR 660-12)
The project list is broken down into two categories:
1. A list of previously-committed projects, which in most cases, the County
has an obligation to fund and/or construct
2. A prioritized detailed project list of the remaining needs in Table 5.1131
of the Transportation chapter of the Resource Element
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Chapter 3: Rural Growth Management - Transportation
The method used to prioritize the projects involved a criteria-ranking system.
The complete ranking matrix is located in Appendix J of the Transportation
chapter of the Resource Element. Categories were created then divided up by
level of importance as follows:
1. Most Important: Solving safety problems
2. Other Important Criteria Included: Maximizing the use of pedestrian and
bicycle facilities; Location of schools, parks and fire stations; Project
cost, cost per average daily trip (ADT); Pavement condition index;
Anticipated traffic volumes (2016).
Safety related issues were automatically placed at the top of the list, then were
ranked by cost and future traffic volumes within their category. Projects that
add or enhance bicycle and pedestrian facilities and/or have access to
schools, parks or fire stations, received extra credit. The rankings for each
category were added together to result in a numerical score or "rank total".
The lower the "rank total" number was, the higher the project was rated. The
rankings for bike and pedestrian projects within the communities of
Terrebonne and Tumalo were defined by a community planning process that
took place in 1996-'97, and were to be used as general guidelines.
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Chapter 3: Rural Growth Management - Economy
Economy
CG & Policies
Goals
1. To diversify and improve the economy of the area.
2. To enhance and maintain the existing natural resource, commercial and
industrial segments of the local economy.
Policies
Tourism
1. The importance of tourism to the local economy is well known, but there
also exists considerable potential for strengthening and improving this
segment of the economy. The County shall assist in the development of
a long-range plan to encourage tourism (including destination resorts)
and recreation locally (see Recreation Chapter for additional
information). This study will include consideration of the impacts likely to
be created by increasingly expensive gasoline.
2. Private commercial activities consistent with other County policies which
enhance tourism shall be encouraged by the County.
3. The County shall encourage the development of a convention center and
multi-purpose civic auditorium in Bend to further encourage additional
tourism. The County's support may include providing County-owned land
should that be determined to be appropriate and legal.
4. Consistent with policies in the Recreation and Open Space chapters,
cooperation with Federal and State agencies shall be sought by the
County in preserving and developing, as appropriate, scenic and
recreational resources.
5. Improved transportation to winter recreation areas shall be encouraged
by better snow removal on roads to such areas, as well as by seeking
programs providing alternative transportation methods.
Natural resources
6. The County shall protect agricultural land to assure continued agricultural
production and the benefits to tourism (see Agricultural chapter).
7. Where consistent with other County policies on open spaces and tourism
Deschutes County shall support Deschutes National Forest land use
alternatives which stabilize or increase the annual allowable cut.
Reforestation of the national forest is of particular importance. The
County will continue to support the concept of multiple use.
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Chapter 3: Rural Growth Management - Economy
8. Deschutes County shall support additional Wilderness Area only if there
is no significant reduction to the annual allowable harvest, or when it can
be shown that the added Wilderness Area will result in local economic
benefits equal or greater than those available from the harvesting of the
timber.
9. The County shall encourage the development of alternative additional
uses for non-metallic minerals (non-aggregate materials only - see
Surface Mining chapter).
Land
10. Adequate lands for commercial and industrial requirements shall be set
aside (see Rural Development and Urbanization chapters).
11. In order that local residents have adequate employment the County shall
encourage programs that appropriately increase employment
opportunities and assist, where feasible, public plans and programs to
develop industrial land.
12. While medium and heavy industry which meets State and Federal
pollution standards shall be accommodated, the County shall seek and
encourage only non-polluting (most likely light industry) manufacturers
which are compatible with existing air and water quality.
13. Deschutes County and the City of Bend will explore the feasibility of
using the BLM land adjacent to the northern boundary of the original
Bend Urban Growth Boundary, and fronting on the east side of Highway
97, as future industrial land. The County shall work with the BLM to
protect this land for possible industrial use until a final land use
determination is made.
14. Publicly owned land is a community resource that should be used as
trading stock and otherwise to implement this plan thereby assisting and
meeting the community's future needs.
15. Where there is a demonstrated public need for conversion of public land
to private use, the County should continue to sell such land at public
auction.
16. Deschutes County shall cooperate with other local agencies in the
preparation of a County-wide economic development plan and as an
interim plan shall adopt as part of this plan the Deschutes County Overall
Economic Development Plan.
17. Deschutes County recognizes that the City of Redmond may need
additional land for future industrial use. Thus, the 909 acres within
County jurisdiction immediately to the south of the Redmond Airport,
located outside of the Urban Growth Boundary, and further described as
the southern half of Sections 27 and 28, and that portion which lies to the
west of the COI North Unit Canal in the southern half of Section 26, all in
Township 15 South, Range 13 East, shall be considered for future
industrial use. The County will take the necessary steps to preserve this
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Chapter 3: Rural Growth Management - Economy
area and preclude development which would be incompatible with
industrial development.
Rural Commercial
18. Land use regulations shall ensure that the uses allowed are less
intensive than those allowed for unincorporated communities in OAR
660, Division 22 or any successor.
19. Rural Commercial zoning shall be applied to Deschutes Junction,
Deschutes River Woods Store, Pine Forest, Rosland and Spring River.
20. In Spring River, there shall be a Limited Use Combining zone.
21. County Comprehensive Plan policies and land use regulations shall
ensure that new uses authorized within the Deschutes Junction,
Deschutes River Woods Store, Pine Forest, Rosland and Spring River
areas do not adversely affect agricultural and forest uses in the
surrounding areas.
22. Zoning in the area shall ensure that the uses allowed are rural as
required by Goal 14, Urbanization, and less intensive than those allowed
for unincorporated communities as defined in OAR 660-022. New
commercial uses shall be limited to those that are intended to serve the
surrounding rural area or the travel needs of people passing through the
area.
23. New commercial uses shall be limited in size to 2500 square feet, or
3500 square feet, if for an agricultural or forest-related use.
24. A lawful use existing on or before November 5, 2002, not otherwise
allowed in a Rural Commercial zone, may continue to exist subject to the
county's nonconforming use regulations.
25. An existing lawful use may expand up to 25 percent of the total floor area
existing on November 5, 2002.
26. The Rural Commercial zoning regulations shall allow a mixed use of
residential or rural commercial uses.
27. Residential and commercial uses shall be served by DEQ approved on-
site sewage disposal systems.
28. Residential and commercial uses shall be served by on site wells or
public water systems.
29. Community sewer systems, motels, hotels and industrial uses shall not
be allowed.
30. Recreational vehicle or trailer parks and other uses catering to travelers
shall be permitted.
Rural Industrial
31. To assure that urban uses are not permitted on rural industrial lands,
land use regulations in the Rural Industrial zones shall ensure that the
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Chapter 3: Rural Growth Management - Economy
uses allowed are less intensive than those allowed for unincorporated
communities in OAR 660, Division 22 or any successor.
32. Limited Use Combining zones shall be applied to the Redmond Military
(Tax lot 1513000000116), Deschutes Junction (Tax lot 1612260000301),
and Wickiup Junction (Tax lot 2110360000104) to ensure that permitted
uses are compatible with surrounding farm and forest lands.
33. Land use regulations shall ensure that new uses authorized within the
Rural Industrial sites do not adversely affect agricultural and forest uses
in the surrounding areas.
34. New industrial uses shall be limited in size to a maximum floor area of
7,500 square feet per use within a building, except for the primary
processing or raw materials produced in rural areas, for which there is no
floor area per use limitation.
35. A lawfully established use that existed on or before February 2, 2003, not
otherwise allowed in a Rural Industrial zone, may continue to exist
subject to the county's nonconforming use regulations
36. A lawfully established use that existed on or before February 2, 2003
may be expanded to occupy a maximum of 10,000 square feet of floor
area or an additional 25 percent of the floor area currently occupied by
the existing use whichever is greater.
37. Residential and industrial uses shall be served by DEQ approved on-site
sewage disposal systems.
38. Residential and industrial uses shall be served by on-site wells or public
water systems.
39. Community sewer systems shall not be allowed in Rural Industrial zones.
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Chapter 3: Rural Growth Management - Economy
Economy
Background
C Punderstanding of the local economy is a basic step in the preparation of a
comprehensive plan. Economic analysis can aid in the understanding of
demographic trends, point out underutilized resources and ensure the
allocation of adequate amounts of land for various purposes at the correct
locations.
When this plan was written in 1979 much of the information in this section
came from the Deschutes County Overall Economic Development Plan. At
that time, Deschutes County's economy was typical of a rural County
experiencing rapid growth and changing to a more urban economy. Resource
activities such as farming, timber and mining were diminishing. Agricultural
employment was down, although production was stable and gross farm
income was actually up. Timber and wood processing was still an important
economic element, although it was expected to decline in relative importance
as the character of the economy changed. Mining's importance was declining
and employment in that sector was seen as likely to remain fairly constant.
Besides resource uses, tourism and recreation were important industries in
rural Oregon, ranked second to timber as an income producer for the County.
The magnificent scenery, natural environment and numerous and varied
recreation sites made Deschutes County a popular vacation area. Much of the
initial and ongoing commercial investment was related to serving tourists.
This Section implements Doubts were raised about the future of local
tourism due to questions about gasoline
State Planning Goal 9: availability, the loss of scenic attractiveness due
Economy of the State to development and the desirability of an
industry with relatively low wage rates.
Nevertheless, there was still an interest in attracting more tourism, especially
conventions.
The most dramatic changes occurring in Deschutes County's economic picture
were seen as related to local growth; contract construction plus the service
sector had grown dramatically. Wholesale and retail sales, as well as finance-
insurance-real estate, were also growing significantly. The only service
industry not increasing its relative importance was government, which was
declining as a percentage of those employed.
Manufacturing was growing in the County but at a slower rate than non-
manufacturing, partly due to the relative isolation of the area from major
markets. This was seen as something that might change as Redmond's
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Chapter 3: Rural Growth Management - Economy
industrial park was completed. Manufacturing was determined to provide
significant improvements in local incomes, although the resulting rise in the
cost of living could adversely effect those on low or fixed income.
In 1979 Bend was already the major service center in Central Oregon. The
increasing number of new shopping centers was expected to somewhat
enlarge Bend's market area and improve the community's position as a
regional trade center.
Both population and employment in Deschutes County were expected to
continue growing. A table of scenarios for future employment was provided in
the 1979 plan but has been removed from this update because it projected
employment to the year 2000 and as of the 2008 tune-up of this plan, the table
is no longer useful.
Rural
Commercial -
Deschutes Junction,
Deschutes
River
Woods Store,
Pine Forest, Rosland
and Spring
River
The Rural Commercial plan designation is applicable to residential and
commercial lands located outside unincorporated communities and urban
growth boundaries. The rural commercial uses and services in these areas are
limited in size and scope and are intended to serve the immediate rural area
and travelers passing through the area. Plan policies and zoning standards
restrict new commercial uses to those that are less intensive than those
authorized in unincorporated communities. The uses and densities are limited
by the zoning, thereby maintaining these areas as rural lands.
No new exceptions to Goals 3 or 4 or new non-resource lands were taken as a
result of the change in designation to Rural Commercial. The Rural
Commercial designation was only applied to acknowledged exception areas.
Periodic Review
As a part of Periodic Review (OAR 660-25), Deschutes County applied a new
comprehensive plan designation of Rural Commercial to Deschutes Junction,
Deschutes River Woods Store and Spring River.
The 1979 Comprehensive Plan designated the areas of Deschutes Junction,
Deschutes River Woods Store and Spring River as Rural Service Centers.
However, the new Unincorporated Communities Rule (OAR 660-022) has
defined "rural service centers" in such a way that these areas no longer qualify
as rural service centers. OAR 660-022 defines several types of unincorporated
communities and provides limitations on the types and sizes of uses permitted,
generally restricting uses that are inappropriate considering available water,
sewer, and transportation service, or uses that would tend to undermine the
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Chapter 3: Rural Growth Management - Economy
viability of nearby urban areas. During its review of lands identified as rural
service centers, the County determined that Deschutes Junction, Deschutes
River Woods Store and Spring River do not qualify as any of the four types of
unincorporated communities identified under OAR 660-022.
As part of Periodic Review, Deschutes County reviewed and updated the
County comprehensive plan and land use regulations for those areas.
Additionally, the Comprehensive Plan and zoning map boundaries for all of the
Rural Commercial areas were amended to comply with the requirements of
the administrative rules and to reconcile historic mapping inconsistencies
between the plan and the zoning maps.
The Rural Commercial plan designation and zoning brings each of these three
areas into compliance with state rules by adopting zoning to ensure that they
remain rural and that the uses allowed are less intensive than those allowed in
unincorporated communities as defined in OAR 660-022.
Post-Acknowledgment Plan Amendments
The County has also applied the new Rural Commercial plan designation to
the Pine Forest and Rosland commercial centers which have historically been
committed to commercial type uses and have served the area as such since
prior to the adoption of zoning regulations.
The owner of the Rosland commercial center sought approval of a post-
acknowledgment plan amendment in 2002. The amendment was sought to
confirm her right to continue to operate the commercial center as it has been
operated since 1973. The prior rural residential zoning failed to recognize the
commercial nature of this property. The center was recognized because it is
small and rural in character and would qualify for a goal exception as the land
is physically developed with rural commercial uses.
The owners of the Pine Forest commercial center sought approval of a post-
acknowledgment plan amendment in 2006 and the property was rezoned in
2007. The amendment was sought to confirm their right to continue to operate
the commercial center as it has been operated since 1970. The prior rural
residential zoning failed to recognize the commercial nature of this property.
The center was recognized because it is small and rural in character and
would qualify for a goal exception as the land is physically developed with a
rural commercial use and is needed for infrastructure to support the existing
commercial use.
Rural Commercial Designated Area Descriptions
The Deschutes Junction Rural Commercial boundary includes 1.77 acres,
bounded by Tumalo Road on the South, Highway on the East, with the
remainder surrounded by agricultural lands (EFU).
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Chapter 3: Rural Growth Management - Econom
The Deschutes River Woods Store Rural Commercial boundary includes 4.99
acres bounded by Baker Road on the North, Highway 97 on the East, railroad
tracks and Cheyenne Road on the West and Morningstar Christian School on
the South. The surrounding land is zoned Rural Residential (RR-10). The
Deschutes River Woods residential subdivision is adjacent to this property.
The Pine Forest Rural Commercial boundary includes approximately 2.0 acres
bounded by Pine Forest Drive and Burgess Road. The remainder is
surrounded by exceptions land zoned RR-10.
The Rosland Rural Commercial boundary includes approximately 4.5 acres
near the intersection of Burgess and River Pine Roads. The remainder is
surrounded by exceptions land zoned RR-10.
The Spring River Rural Commercial boundary includes 9.16 acres bounded by
Spring River Road on the North, Lunar Drive on the East and additional
commercial and residential uses on the South and West. The surrounding land
is zoned Rural Residential (RR-10).
Land Use Planning
The existing land uses in all of the Rural Commercial areas are primarily
commercial with a few residences existing in conjunction with businesses. The
surrounding zoning is agricultural, forest, and Rural Residential.
The Deschutes County Comprehensive Plan designates Deschutes Junction,
Deschutes River Woods Store, Pine Forest, Rosland and Spring River as
Rural Commercial.
Rural Industrial
The purpose of the Rural Industrial designation is to recognize existing
industrial uses in rural areas of the county and to allow the appropriate
development of additional industrial uses that are consistent with the rural
character, facilities and services. The Rural Industrial plan designation is
applicable to industrial lands located outside unincorporated communities and
urban growth boundaries.
Periodic Review
In order to comply with state rules for Periodic Review (OAR 660-025),
Deschutes county has reviewed and updated the county comprehensive plan
and land use regulations for the rural industrial sites of: Redmond Military,
Deschutes Junction, Bend Auto Recyclers and Wickiup Junction. OAR 660-
022, the State Unincorporated Communities Rule, defines the types of
unincorporated communities and specifies that industrial uses be limited to
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Chapter 3: Rural Growth Management - Econo
buildings containing no more than 10,000 square feet of floor space. Rural
industrial uses outside of unincorporated communities must be less intense
than those allowed within an incorporated community.
Rural Industrial Designated Area Descriptions
The Redmond Military site consists of tax lot 1513000000116 and is 35.42
acres, bounded by the Redmond Urban Growth Boundary to the west and
Exclusive Farm Use lands surrounding the remainder of the property.
The Deschutes Junction site consists of the following tax lots:
1612260000102 (15.61 acres), bounded by 1612260000111 (6.23 acres)
and 1612260000301 (6.12 acres). These tax lots are bounded by Deschutes
Market Road to the north and east and Highway 97 to the west, tax lot
1612260000106 is bounded by Deschutes Market Road to the north, and
other rural industrial lands to the east, south and west. Tax lot
1612260000107 is bounded by Deschutes Market Road to the north, EFU
land to the west, and other rural industrial lands to the east and south.
Bend Auto Recyclers consists of tax lot 1712030000111 and is 13.41 acres,
bounded by Highway 97 to the west, and Multiple Use Agricultural lands to
east, north and south.
Wickiup Junction consists of tax lot 2110360000104 and is 12.67 acres,
bounded by Rosland Road on the southwest with forest lands surrounding the
remainder of the property.
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Chapter 3: Rural Growth Management - Recreation
Recreation
Goals
s
:Go =&Policii
To satisfy the recreational needs of the residents of and visitors to
1.
Deschutes County.
2. To maximize utilization of economic and personnel resources through
increasing intergovernmental and public-private cooperation in the
provision of recreation facilities and services.
3. To provide, concomitant with growth, sufficient uniformly distributed land
and facilities for park purposes throughout the County.
Policies
Coordination
1. Developmental cooperation and coordination should be maximized. On
significant projects, the originating agency should communicate in the
spirit of cooperation with other agencies regarding planning, acquisition,
development and operation of programs and facilities. The private sector
should be included to the greatest extent possible and should, whenever
possible, be responsible for the acquisition, development, operation and
maintenance of recreational facilities.
2. Rehabilitation, facility improvement or expansion and recreational
program from the State and Federal agencies shall be encouraged. A
County Recreation Committee with both private and public
representation should be the coordinator of such activities. Input from
groups with special needs should be encouraged so as to develop
appropriate programs, with tolerable impact to resources and
surrounding residents and wildlife. Park rehabilitation, replacement,
minor betterment, repair and ordinary maintenance activities which do
not significantly impact land uses will be allowed outright.
3. In order to obtain greater efficiency in providing services, local input to
State and Federal agencies on land management policies should
emphasize appropriate multi-use utilization.
4. The Oregon State Parks System Plan and Master Plans shall serve as
the State Parks guide for improvements locally, and act as the basis for
coordination and cooperation between State Parks and local recreation
agencies.
5. The County will continue to coordinate the various recreational needs for
the County and urban areas with the U. S. Forest Service, Bureau of
Land Management, State Parks Divisions, Bend Metro Parks and
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Chapter 3: Rural Growth Management - Recreation
Recreation District, the Central Oregon Parks and Recreation District
and other recreation providers.
6. The County shall work with private and public agencies to develop a plan
to provide needed warming, restroom and parking facilities for existing
winter sports areas, as well as encouraging the designation of additional
areas. The plan should seek to combine cross-county skiing and snow
play areas, while separating these uses from snow mobiling areas.
Private and public provisions for additional downhill skiing areas
compatible with the environment should be sought and adequate
transportation to ski areas, utilizing methods other than automobiles,
should be developed.
7. The County shall assist State and Federal efforts to protect Oregon
Natural Areas and the U.S.F.S. Research and Experimental Areas.
Facilities
8. The following guidelines for assessing the adequacy of available parks
shall be established:
• Park Passive Areas and Neighborhood Parks = 2.5 acres per 1000
population
• Community Parks = 2.5 acres per 1000 population
• Regional Parks = 5.0 acres per 1000 population
9. The County shall require the dedication of land or fees for park purposes,
consistent with the preceding standards, as a condition of subdivision
approval. Developments with private recreation areas may be credited
against any dedication requirements, if public park standards are met
(including facilities under control of a legally established homeowners
association).
10. The most critical need for new parks occurs in urbanizing areas.
Acquisition and development of urban recreational areas consistent with
community growth shall be the responsibility of the local park districts
and cities. However, the County shall cooperate with recreation providers
in establishing zoning to protect existing parks from incompatible
adjacent uses, setting aside or acquiring suitable public land for park
purposes, and encouraging annexation into a park district of lands added
to an urban growth boundary.
11. Park districts and the cities, where no park district exists, shall seek to
acquire centrally located park areas, especially in high-density
neighborhoods. Joint use of the land for park use and such facilities as
schools or fire stations shall be encouraged.
12. Recognizing that streams, rivers, and irrigation canals are natural
attractors for recreation, the County shall encourage the development of
public multi-use trails along these features, in areas where conflicts with
natural resources would not result. Trails should be designed to
accommodate pedestrians, bicyclists, and equestrians, as appropriate to
the area.
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Chapter 3: Rural Growth Management - Recreation
13. While some flexibility is required, once a park plan has been prepared
and adopted by local regulatory agencies, it shall remain as the
controlling document for guiding development of that park.
14. Depending on the determination of each community, the County shall
support local efforts for a public pool for each County-incorporated
community.
15. Unincorporated communities shall be encouraged to assess their
recreational needs and to identify lands required to serve those needs.
The County shall encourage civic organizations and public agencies
attempting to meet those identified needs.
16. The County shall provide the bicycle and pedestrian connections
between schools, residential areas, parks and other recreation
attractions, shopping centers, and other commercial and industrial
centers.
17. Because it is recognized that the over-use of the motor vehicle has
detrimental effects on the County, the use of bicycling, and walking, and
mass transit, carpooling, shall be encouraged as a means of accessing
recreation areas.
18. The State Parks Department shall be encouraged to include trailer
dumps and sanitary facilities in their development of the Juniper
Waysides between Bend and Redmond.
19. Recognizing the needs of recreational bicycling, the County shall
maintain or improve the quality of rural routes.
20. Public outdoor recreation facilities such as outdoor theaters are needed
to accommodate gatherings and other uses in each of the County's
major population centers.
21. To facilitate learning about and experiencing outdoor activities an
outdoor education camp is needed, and a sportsman's park (rifle,
archery, off-road vehicles, etc.) shall be designated near Bend.
22. The Oregon High Desert Museum is an example of the type of outdoor
education project that the County shall encourage.
23. Other specific needs to be met by public and private recreation providers
that have been identified are:
a. Additional camping and/or picnic sites at Sparks, Elk, Lava and
Cultus Lakes, as well as at Crane Prairie and Wickiup Reservoirs;
b. A group camping area at La Pine State Park;
c. A hiker's camp at Tumalo State Park;
d. More water sport opportunities;
e. Additional wilderness areas (as demand warrants and consistent
with the local economy and protection of fragile areas);
f. Maintenance of existing and identification of additional off-road
vehicle areas.
24. All development in Deschutes County shall comply with all applicable
state and federal rules, regulations and standards.
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3: Rural Growth Management - Recreation
Recreation
Background
Profile
Recreation is important to people in Deschutes County due to both the
economic benefits of tourism and its contribution to local quality of life. When
this plan was written in 1979 the demand for recreation was anticipated to
increase along with the population. Planning was seen as a way to protect
recreational resources, accommodate more people and protect livability and
tourist dollars.
At that time, duplication or conflicting developments by governmental agencies
and private groups had resulted in fragmentation and inefficiency in the
recreational system. With ever growing funding problems, it was becoming
increasingly important that a well defined and coordinated recreation system
was needed. This section of the Comprehensive Plan was not meant to be
that detailed plan, but was meant to serve as an analysis of local needs and to
set into motion activities aimed at fulfilling those needs and protecting required
resources.
Urban and urbanizing areas were seen as particularly in need of parks and
planning ahead was a way to provide better parks at a lower cost. Also, it was
thought that combining parks with other public facilities, such as schools and
fire stations, would permit even greater savings in land, personnel and
maintenance.
To provide a common basis of understanding, the following park definitions
were developed by the Recreation Citizen Advisory Committee:
• Park Passive Areas = 1 - 3 acres
• Neighborhood Parks = 1 - 5 acres
• Community Parks = 5 - 25 acres
• Regional Parks = 25 + acres
In 1979, both state parks and federal recreation areas were receiving
increasing use from both the local population and tourists. Most state parks in
the county were in need of some form of rehabilitation. The desire to expand
existing roads and play areas raised particular concern over retaining solitude-
dependent recreation and wildlife in the following areas; (a) Wilderness Areas,
where popular lakes and trails were beginning to show the effects of heavy
use; (b) Campgrounds and Picnic Areas, where facilities were inadequate for
demands; (c) Fishing Areas, because access to more remote locations was
being requested; (d) Skiing Facilities, where demand of such uses as
Working Draft Deschutes County Comprehensive Plan
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3: Rural Growth Management - Recreation
restrooms and warming facilities was exceeding capacities; and (e) Off-Road
Vehicle Activity.
Other often identified needs were bicycle-pedestrian-equestrian trails and
planned recreation activities, including educational programs. Coordination
between public and private facilities was determined to provide more
recreational opportunities, and promote tourism.
Recreational needs in rural areas were thought
This Section implements to be different than urban areas. While the
part of State Planning urbanizing areas required more athletic and pool
Goal 8; Recreation facilities, the rural areas needed more Natural
Areas and Research Natural Areas (selected by
well- defined scientific criteria) to maintain and improve our knowledge of the
environment.
One type of recreation which deserved special recognition was winter sport
activities of the area. Known for its skiing, Deschutes County attracted many
thousands of visitors each winter. Facilities for these people were rapidly
becoming inadequate and new areas and services were thought to be needed
in the future.
When this plan was written, the County was not involved with providing
recreation facilities. No change in that situation was anticipated; however, the
County's help in obtaining land dedications for parks, in regulating off-road
vehicles (recognizing the considerable damage when used inappropriately
east of Horse Ridge), and in other ways, was believed to assist existing
recreation providers to meet anticipated needs.
Page 3-72
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08
Chapter 3: Rural Growth Management - Destination Resorts
Destination Resorts Goals & PolNC~es
Goals
To provide for development of destination resorts in the County
consistent with Statewide Planning Goal 8 in a manner that will be
compatible with farm and forest uses, existing rural development, and in
a manner that will maintain important natural features, such as habitat of
threatened or endangered species, streams, rivers and significant
wetlands.
Policies
Mapping for destination resort siting.
1. To assure that resort development does not conflict with the objectives of
other Statewide Planning Goals, destination resorts shall pursuant to
Goal 8 not be sited in Deschutes County in the following areas:
a. On a site with 50 or more contiguous acres of unique or prime farm
land identified and mapped by the Soil Conservation Service or
within three miles of farm land within a High-Value Crop Area;
b. On predominantly Cubic Foot Site Class 1 or 2 forest lands which
are not subject to an approved Goal exception;
c. On areas protected as Goal 5 resources in an acknowledged
comprehensive plan protected in spite of identified conflicting uses
("3A" sites designated pursuant to OAR 660-16-010(1));
d. Especially sensitive big game habitat, as generally mapped by the
Oregon Department of Fish and Wildlife in July 1984 and as further
refined through development of comprehensive plan provisions
implementing this requirement.
2. In addition, destination resorts shall not be located in areas zoned EFU-
320, EFU-80, OS&C and F-1 (as designated pursuant to the
implementation of the forest rule by Ordinance 92-026) or on resource
lands within one mile outside of urban growth boundaries.
3. Federal lands not otherwise excluded under these policies shall not be
mapped with the DR overlay zone. Federal land not otherwise excluded
that becomes privately owned through land exchanges or other federal
disposition can be considered for destination resort siting consistent with
these policies and mapped as available for destination resort
development.
4. The County shall adopt a map showing where destination resorts can be
located in the County. Such map shall become part of the
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Chapter 3: Rural Growth Management - Destination Resorts
Comprehensive Plan and Zoning Ordinance and shall be an overlay
zone designated Destination Resort (DR).
Ordinance provisions
5. The County shall ensure that destination resorts are compatible with the
site and adjacent land uses through enactment of land use regulations
that, at a minimum, provide for the following:
a. Maintenance of important natural features, including habitat of
threatened or endangered species, streams, rivers, and significant
wetlands; maintenance of riparian vegetation within 100 feet of
streams, rivers and significant wetlands; and
b. Location and design of improvements and activities in a manner that
will avoid or minimize adverse effects of the resort on uses on
surrounding lands, particularly effects on intensive farming
operations in the area.
c. Such regulations may allow for alterations to important natural
features, including placement of structures, provided that the overall
values of the feature are maintained.
6. Minimum measures to assure that design and placement of
improvements and activities will avoid or minimize the adverse effects
noted in Policy 5(b) shall include:
a. The establishment and maintenance of buffers between the resort
and adjacent land uses, including natural vegetation and where
appropriate, fenced, berms, landscaped areas, and other similar
types of buffers.
b. Setbacks of structures and other improvements from adjacent land
uses.
7. The County may adopt additional land use restrictions to ensure that
proposed destination resorts are compatible with the environmental
capabilities of the site and surrounding land uses.
8. Uses in destination resorts shall be limited to visitor-oriented
accommodations, overnight lodgings, developed recreational facilities,
commercial uses limited to types and levels necessary to meet the needs
of visitors to the resort, and uses consistent with preservation and
maintenance of open space.
9. The zoning ordinance shall include measure that assure that developed
recreational facilities, visitor-oriented accommodations and key facilities
intended to serve the entire development are physically provided or are
guaranteed through surety bonding or substantially equivalent financial
assurances prior to closure of sale of individual lots or units. In phased
developments, developed recreational facilities and other key facilitated
intended to serve a particular phase shall be constructed prior to sales in
that phase or guaranteed through surety bonding.
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Page 3-74 Draft 5-14-08
Chapter 3: Rural Growth Management - Destination Resorts
Phased implementation
10. The County shall implement Goal 8 in a phased sequence as follows:
a. The County shall adopt a zoning ordinance including all provisions
required by Goal 8.
b. The County shall identify countywide any lands excluded by Goal 8
from destination resort siting. Based on Alliance for Responsible
Land Use in Oregon v. Deschutes County, 23 Or LUBA 476,
affirmed, 15 Or App 621 (1992), land within three miles of the county
border shall be excluded under Goal 8 countywide at this time. The
exclusion will be reconsidered when land located in adjoining
counties and within three miles of Deschutes County has been
inventoried to determine whether any of that land constitutes high
value crop areas in a manner adequate to determine whether any
land in Deschutes County is within three miles of a high value crop
area located in a neighboring county.
c. The County shall map lands available for destination resort siting in a
phased sequence. The County shall first consider unirrigated EFU
lands and irrigated EFU lands having fewer than 40 acres of
contiguous irrigated land or 60 acres of non-contiguous land in the
same ownership where such lands are not otherwise excluded from
destination resort siting under these policies and Goal 8. Next, as the
county proceeds to implement the Goal 4 forest land rule as part of
periodic review, the County shall consider to what extent destination
resorts may be sited on lands presently zoned for forest uses.
Finally, after the County has completed a farm study pursuant to
periodic review, the County shall consider to what extent destination
resorts may be sited on EFU lands not considered during the first
phase of implementation of Goal 8. As to those lands not considered
in this first phase of destination resort mapping and not otherwise
excluded by Goal 8 and Policies 2 and 3 herein, nothing in these
policies shall affect the County's consideration in the future as to
whether such lands should be made available for destination resort
siting. The County shall complete consideration of forest lands and
remaining EFU lands for destination resort siting in conjunction with
periodic review. As successive phases of the destination resort
process are taken up by the County, the county may make
amendments to the comprehensive plan and zoning maps to add
additional areas to the destination resort map.
d. Until the Goal 8 mapping process is complete, no application for
quasi-judicial plan map changes and zone changes to apply to DR
zone to areas not designated under the Goal 8 process shall be
accepted, unless such applications are filed through the Goal 2
exceptions process.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 3-75
Chapter 3: Rural Growth Management - Destination Resorts
Profile
Destination Resorts
Background
When this plan was written in 1979, the development of resorts was seen as
an important element to diversify the economic base of the County. Under the
1979 plan and implementing ordinances, resorts were allowed as conditional
uses in the F-2, F-3, OS&C, MUA-10 and RR-10 zones. Three resorts existed
in the County at that time: Sunriver, Inn of the Seventh Mountain and Black
Butte Ranch.
Subsequently, the State Land Conservation and Development Commission
(LCDC) and the State Legislature adopted regulations promoting and setting
criteria for a newly defined type of development they called destination resorts.
First, Statewide Planning Goal 8: Recreation, was amended to specify a
process for locating destination resorts on rural land without taking an
exception to Goals 3, 4, 11 and 14, which govern development on rural
resource lands. This was followed by legislation incorporating Goal 8 into
Oregon's land use statutes. By these actions, the State of Oregon recognized
destination resorts as a legitimate rural land use. Under these changes,
destination resorts could be sited in EFU zones. The Forest Rule, adopted by
LCDC in March 1990 allows destination resorts to be sited on specified forest
lands.
Implementation of destination resort siting under Goal 8 is optional. Deschutes
County initially added code language regarding state defined destination
resorts in 1992 at the request of the owners of Eagle Crest Resort. The Eagle
Crest owners wished to expand their existing resort onto adjacent lands and
wished to do so without going through the goal exceptions process.
In 1992, destination resorts were seen to have beneficial impacts, especially
as tourism grew as a segment of the local economy. The County experiences
with resorts had been very positive and it was understood that the siting of
destination resorts would be severely limited if such developments were not
allowed in certain farm and forest zones.
Implementation
Goal 8 requires that the County adopt a map showing which lands in the
County are available for destination resort development. The purpose of the
map is to provide greater certainty concerning destination resort siting than is
available under the exceptions process. To protect forest and farm resources,
Goal 8 prescribes that certain classes of lands are off limits to destination
resort development. The final map must reflect exclusion of such areas. A
Page 3-76
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Chapter 3: Rural Growth Management - Destination Resorts
detailed description of the mapping process adopted by the County is found in
the Resource Element.
Goal 8 and the state statute also recognize that destination resorts can have
negative impacts on neighborhoods and rural quality of life. These impacts can
be substantially mitigated, however. The County recognized the importance of
balancing protection mechanisms for resource lands and rural land uses with
the economic benefits provided by destination resorts. The County further
recognized that this balance could be struck by the manner in which areas
were designated as being available for destination resort development and by
developing balanced siting criteria.
The County recognized that it had the option to be more restrictive than state
law in the areas it chose to exclude from destination resort siting through the
mapping process.
The Board of County Commissioners decided to implement Goal 8 in a
phased fashion, because as part of periodic review the County needed to
study current farm uses in the County and to implement the forest rule.
Accordingly, the County first considered siting destination resorts on the
following EFU lands not excluded by Goal 8: (1) unirrigated EFU land, (2)
irrigated EFU lands in contiguous ownership having fewer than 40 acres of
contiguous irrigation, and (3) irrigated EFU lands having 60 or more acres of
non-contiguous land in the same ownership. Second, following the County's
implementation of the forest rule, the County will consider development of
destination resorts on forest lands. Third, following a review of the County's
farm lands as part of the periodic review process, the farm lands not
considered for destination resorts in the first stage will be considered.
This Section implements Notwithstanding the phased approach to
destination resort zoning, it was seen as
part of State Planning appropriate to develop siting standards for
Goal 8: Recreation destination resorts generally. If further
Needs refinements were needed when forest lands
L and farm lands not considered in the first
mapping phase were considered, such refinements could be made at the time.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 3-77
Chapter 3: Rural Growth Management - Housing
Housing
Goals
Goals & Policies
1. To provide adequate number of housing units at price ranges and rent
levels commensurate with the financial capabilities of local households.
2. To allow flexibility of housing location, type and density in Deschutes
County.
Policies
Because housing is one of the most important issues with which a
comprehensive plan deals, many of the other chapters (i.e., rural
development, urbanization, energy, public facilities) also directly or indirectly
affect housing. ,
The preparation of the policies in this chapter were generally accepted
throughout the process and changed little. The only exception was mobile
homes. Repeatedly the issue of whether to permit doublewide mobile homes
as permitted uses anywhere in the County was debated. Several differing
conclusions were reached by various groups, usually depending on how that
group balanced the need for lower priced housing against esthetic values and
neighborhood objections. The Board of County Commissioners was finally
able to reach a compromise which is to be found below.
1. Doublewide mobile homes (960 square feet or larger) with roof pitches,
overhangs and siding comparable to site- built homes shall be outright
uses outside urban growth boundaries, unless proposed in one of the
four areas of the County where mobile homes were prohibited prior to
the adoption of this plan or where protective covenants exclude such
housing.
2. Singlewide mobile homes shall be permitted in selected residential
areas, and as part of mobile home parks or planned developments;
however, singlewide mobile homes should not be permitted on individual
lots in urban density residential areas which have already substantially
developed with conventional housing, unless singlewide mobile homes
were part of the original development plan.
3. In order to keep housing costs as low as possible the procedural and
application processes in the County Planning, Sanitation and Building
Departments shall be reviewed and streamlined as much as possible.
4. To enable and encourage later in-filling of large lot subdivisions in
urbanizing areas the subdivisions should be preplanned for later division
into smaller lots at the time of the original platting.
Page 3-78
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Chapter 3: Rural Growth Management - Housing
5. In order that the most efficient housing pattern may be obtained the
County shall encourage the in-filling of existing subdivisions before
additional land division occurs.
6. Subdivision approval shall be dependent upon adequate provision of
public facilities and services, which may require phased construction of
the development; and to further reduce costs and provide amenities such
as open space and esthetics the clustering of housing is to be
encouraged.
7. To reduce costs and to encourage variety in design, County standards
shall permit a variety of housing styles and setbacks, as well as
appropriate reductions in road widths and other requirements.
8. Because clustering development can minimize the cost of land and
services, as well as provide more amenities, clustered housing for all
income brackets shall be encouraged.
9. In order to reduce costs for initial construction, as well as for
maintenance, new construction of low-income housing shall be located in
urban areas or rural service centers.
10. To develop adequate amounts of low income housing the regional
housing authority shall be responsible for coordinating and implementing
housing assistance programs in Deschutes County. The County shall
maintain an on-going study of all income levels of housing in order to
provide information on local housing needs.
11. Because of the relatively high need for housing rehabilitation locally the
County shall study local and State programs to assist housing
rehabilitation, and in conjunction with other local governments, take
appropriate action to encourage necessary rehabilitation.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 3-79
Chapter 3: Rural Growth Management - Hous
Housing
C Profile
Background
When this plan was written in 1979 a study by the Central Oregon
Intergovernmental Council revealed that approximately 10 percent of the
County housing supply was comprised of second homes. These second home
owners were usually not Deschutes County residents. Given the assumed
dominance of recreation locally this 10 percent figure was thought to be
somewhat low.
Using 1977 numbers, there were 19,022 housing units in Deschutes County,
of which about 13 percent (2,547 units) were considered substandard. This
was considered an unexpectedly high number of substandard housing units.
In that same year, the median family income did not match the costs of
purchasing a home, highlighting the need for more median and low-income
family housing. Additionally, data from the Oregon State Housing Division
indicated that as of December 1976 the vacancy rates for single family homes
and apartments were under 5%, which was generally considered to indicate
an inadequate housing supply, with limited choice of type or price range. Only
mobile homes did not show a housing shortage.
Given that the population was expected to grow to 128,200 by the year 2000,
and in light of the continuing trend toward smaller households, it appeared that
an additional 38,682 housing units would be needed in the next 20 years.
- Given the likelihood of few major shifts in
This Section implements housing preference in coming years this
State Planning Goal 10: indicated a need for 25,492 new single family
Housing homes, 5,682 new multi-family units, and 7,508
new mobile homes. It was thought that
increasing fuel costs and governmental incentives for higher densities could
increase the multi-family unit needs while lowering single-family home
requirements. Sufficient flexibility in County plans and zoning might be
necessary to accommodate such a shift.
Working Draft Deschutes County Comprehensive Plan
Page 3-80 Draft 5-14-08
Deschutes County Comprehensive Plan
Chapter 4: Urban Growth Management
Table of Contents
Urbanization 4-2
Unincorporated Community Overview 4-11
Urban Unincorporated Communities 4-14
Sunriver 4-14
Rural Communities 4-28
Terrebonne 4-28
Tumalo 4-52
Resort Communities 4-65
Black Butte Ranch 4-65
Inn of the Seventh Mountain 4-71
Rural Service Centers 4-75
Alfalfa, Brothers, Hampton, Millican, Whistlestop, Wildhunt
Chapter 4: Urban Growth Management - Urbanization
Urbanization Goals & Policies
Goals
1. To provide for an orderly and efficient transition from rural to urban lands.
2. To assure that planning and implementation of plans in the urban areas
are consistent with the best interest of both urban and urbanizing area
residents.
3. To retain and enhance the character and quality of the urban areas as
growth occurs. To recognize and respect the unusual natural beauty and
character of the area.
4. To provide a sound basis for urbanization by establishing proper
relationships between residential, commercial, industrial and open land
uses; fostering intergovernmental cooperation; and providing an efficient
transportation system.
5. To retain and enhance desirable existing areas and to revitalize,
rehabilitate and 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.
6. To recognize the City of Redmond Comprehensive Plan as the policy
document that provides the basis for implementing land use plans and
ordinances in Redmond's Urban Growth Boundary. The general purpose
is to provide for one principal means of implementing the Redmond
Comprehensive Plan.
Policies
Urban Growth Boundary Policies
Urbanization
Urbanization policies refer to an unincorporated urban growth areas within an
urban growth boundary but outside the boundaries of a city, and are intended
to assist in the decision making about the conversion of rural to urban uses,
and to help in the development of consistent urban area plan. More detailed
policies for the urban areas of Bend, Redmond and Sisters are specified in the
urban area plans and they shall be the primary documents for coordination
and land use decisions in their respective areas.
Urban growth boundaries identify and separate urbanizable land from
rural land. Conversion of urbanizable land to urban uses shall be based
on consideration of:
a. Orderly and economic provision for public facilities and services;
Working Draft Deschutes County Comprehensive Plan
Page 4-2 Draft 5-14-08
Chapter 4: Urban Growth Management - Urbanization
b. Availability of sufficient land for the various uses to insure choices in
the marketplace; and
c. Encouragement of development within urban areas before
conversion of urbanizable areas.
2. Urban growth boundaries shall be established or expanded based upon
the following:
a. Demonstrated need to accommodate long-range urban population
growth requirements consistent with LCDC goals;
b. Need for housing, employment opportunities and livability;
c. Orderly and economic provision for public facilities and services;
d. Maximum efficiency of land uses within and on the fringe of the
existing urban area;
e. Environmental, energy, economic and social consequences;
f. Retention of agricultural land as defined, with Class I being the
highest priority for retention and Class VI the lowest priority; and,
g. Compatibility of the proposed urban uses with nearby agricultural
activities.
Coordination
I Within an urban growth boundary City and County land use regulations
and standards shall be mutually supportive, jointly proposed and
adopted, administered and enforced, and plans to integrate the type,
timing and location of development of public facilities and services in a
manner to accommodate demand as urbanizable lands become more
urbanized, and to guide the community's growth.
4. Urban development shall be permitted in areas where services are
available or can be provided in a manner which will minimize costs
related to necessary urban services such as schools, parks, highways,
police, garbage disposal, fire protection, libraries and other facilities and
services.
5. Deschutes County adopts by reference the goals, policies, programs,
elements, and statements of intent of the Redmond Comprehensive
Plan, the officially adopted comprehensive plan for the City of Redmond
and its surrounding Urban Growth Boundary.
Residential development
6. Residential developments should be located so that they are convenient
to places of employment and shopping facilities, and they should be
developed in ways which are consistent with the character of the
topography and soils on the site. Residential areas should offer a wide
variety of housing densities in locations best suited to each.
7. Residential densities indicated on general plans should be respected and
reflected in City and County codes, ordinances and development
policies.
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Chapter 4: Urban Growth Management - Urbanization
8. In residential areas, development should be encouraged which have side
yards or rear yards along arterial streets as a means of reducing
congestion through turning movements in and out of driveways.
9. Higher density residential areas should be concentrated near commercial
services and public open space.
Commercial
10. Commercial facilities should be allocated in a reasonable amount and in
a planned relationship to the people they will serve. Any future expansion
of commercial uses should be developed as centers rather than strips
and very carefully considered so that they do not cause unnecessary
traffic congestion and do not detract from the appearance of the
community.
11. Neighborhood commercial shopping areas, parks, school and public
uses may be located within residential districts and should have
development standards which recognize the residential area.
Development standards should be established for those commercial
uses which will provide off-street parking, landscaping, access control,
sign regulations and design review.
12. Strip commercial developments along highways should not be extended.
Commercial uses along major streets and highways shall be subject to
special development standards relating to landscaping, setbacks, signs
and median strips. No further commercial development outside urban
growth boundaries, rural service centers, planned developments, or
destination resorts shall be permitted.
13. All commercial shopping centers shall be subject to special development
standards relating to setbacks, landscaping, physical buffers, screening,
access, signs, building heights and design review. Care shall be taken to
control the size of any new commercial developments that may be
required as growth occurs. Sites shall not be oversized to a point where
additional uses which would generate traffic from outside the intended
service area are necessary to make the development an economic
success.
Industrial
14. Community efforts should be directed toward preserving prime industrial
lands for industrial purposes. Industrial areas shall be protected from
incompatible commercial and residential uses.
15. Industrial areas of the community shall be located where necessary
services can be provided and with good access to transportation
facilities.
16. Community efforts should be directed toward improving the general
appearance of commercial and industrial areas so that they make a
positive contribution to the environment of the community.
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Chapter 4: Urban Growth Management - Urbanization
17. Industrial areas shall provide for new industry in a park-like setting.
18. All industrial centers shall be subject to special development standards
relating to setbacks, landscaping physical buffers, screening, access,
signs, building heights and design review.
Community appearance
19. Because of slow natural growth and their effective use as a visual and
noise buffer, and their relationship to air quality, trees or stands of trees
shall be protected whenever feasible in industrial, commercial, residential
and other urban developments.
20. Community appearance shall continue to be a major concern.
Landscaping, sign regulations and building design review shall contribute
to an improved environment. Major natural features such as rock
outcrops, stream banks, canyons, or stands of trees should be preserved
as a community asset as the area develops.
21. Attempts by each community to identify those characteristics which give
the community its individual identity and to preserve and expand those
characteristics as growth occurs shall be encouraged by the County.
22. Sign regulations shall be adopted which limit the size, location and
number of signs in commercial and industrial areas and have
amortization provisions to remove existing signs which do not conform
with the regulations within a reasonable period of time.
Urban transportation
23. Expressways and arterial streets should have landscaped median strips
wherever possible together with left-turn refuge lanes. Public
transportation routes should be encouraged throughout the area and, if
necessary, special provisions made in street design to accommodate
ways.
24. Streets and highways should be located and constructed in a manner
which will accommodate both current and future traffic needs.
Implementation of arterial and collector road systems should be joint
County and City effort with strict time schedules and priorities.
25. Interurban transportation facilities should be located in or near the central
business district or main highway. Special consideration will be needed
to evaluate public transportation needs and possibilities within the urban
area.
26. Except for major arterial and collector streets, street patterns in
residential areas should be designed to provide convenient access to
each living unit but not encourage through-traffic. Major and collector
streets should be secured and developed under a strict time frame so
that a reasonable circulation pattern will result.
27. Provisions should be considered which will permit mass transit vehicles
on arterial and collector streets within residential areas in the future.
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Chapter 4: Urban Growth Management - Urbanization
Facilities and services
28. Efforts should be made over a sustained period of time to place utility
lines underground in existing and new residential areas.
29. Parks should be located within walking distance of every dwelling unit in
the community. Parks should be centrally located and easily accessible
to the areas they are intended to serve (see Recreation).
30. Certain private recreational uses such as golf courses or riding stables
can be successfully integrated into residential areas provided the
location, design and operation are compatible with surrounding
residential developments.
31. Fire protection in the planning area should be considered as a common
problem by the City, County, water district and the fire protection district,
and equipment should reflect the character of land uses in the
community.
32. Efforts should be made to encourage Federal and State agencies to
locate in urban areas.
33. Efforts should be made to group public offices in a more or less common
location as a convenience to the public.
Other
34. In many cases, home occupations are a legitimate use within residential
areas and should be permitted provided that the use displays no outward
manifestations of business other an a small business sign attached to
the wall of the house.
35. Recreation vehicle storage should be permitted in planned residential
areas and these facilities shall be landscaped and otherwise screened
from adjacent residential uses.
36. Consistent with policies in the Historic and Cultural chapter rehabilitation
and/or redevelopment of older residential areas shall be encouraged.
37. All development in Deschutes County shall comply with all applicable
state and federal rules, regulations and standards.
Urban Reserve Area Policies
Redmond Urban Reserve Area
The following policies apply to the division and development of land in the area
designated Redmond Urban Reserve on the County Comprehensive Plan
map.
38. The Redmond Urban Reserve Area (RURA) shall be designated with an
urban reserve boundary located on the County's Comprehensive Plan
Map.
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Chapter 4: Urban Growth Management - Urbanization
39. The County shall implement the Urban Reserve Area designation
through the application of a RURA Combining Zone. The text of this
combining zone shall be added and maintained in Title 18, County
Zoning, of the Deschutes County Code.
40. Until included in the Redmond Urban Growth Boundary, lands zoned
Multiple Use Agricultural, Surface Mining, Rural Residential, or EFU in
the RURA shall continue to be planned and zoned for rural uses, but in a
manner that ensures a range of opportunities for the orderly, economic
and efficient provision of urban services when these lands are included
in the urban growth boundary.
41. The County, by designating a RURA, shall adopt and implement land
use regulations that ensure development and division of land in the
Multiple Use Agricultural, Surface Mining or Rural Residential zoning
districts, will not hinder the efficient transition to urban land uses and the
orderly and efficient provision of urban services.
42. These land use regulations shall include:
a. Prohibition on the creation of new parcels less than ten acres;
b. Regulations that prohibit zone changes or plan amendments allowing
more intensive uses, including higher residential density, than
permitted by the acknowledged zoning in effect as of the date of
establishment of the urban reserve area. Such regulations shall
remain in effect until such time as the land is included in the
Redmond Urban Growth Boundary.
43. Partitions of land zoned Exclusive Farm Use shall be allowed according
to state law and the County Zoning Ordinance.
44. The City of Redmond and Deschutes County shall adopt a RURA
Agreement consistent with their respective comprehensive plans and the
requirements of OAR 660-021-0050.
45. New arterial and collector right-of-way established in the RURA shall
meet the right-of-way standards of Deschutes County or the City of
Redmond, whichever is greater.
46. The siting of new development shall be regulated along existing and
future arterial and collector right-of-way, designated on the County's
Transportation System Plan, for the purpose of ensuring the opportunity
for future urban development and public facilities.
47. The siting of a single family dwelling on a legal parcel is permissible if the
single family dwelling would otherwise have been allowed under law,
existing prior to the designation of the parcel as part of the Redmond
Urban Reserve Area.
48. City of Redmond shall collaborate with Deschutes County to assure that
the County owned 1800 acres in the RURA is master planned before it is
incorporated into Redmond's urban growth boundary.
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Draft 5-14-08 Page 4-7
Chapter 4: Urban Growth Management - Urbanization
Urbanization Profile
Background
A major emphasis of Oregon's land use planning program is directing new
development in urban areas. The rural areas are primarily for natural resource
utilization. Lying between incorporated cities and the rural areas are
urbanizing areas. Usually under the jurisdiction of the County, this
unincorporated urban area is within an urban growth boundary but outside city
limits. Targeted for urbanization over a twenty year period, these lands are
anticipated for annexation and urban facilities and services to the meet the
needs of a future population.
Deschutes County has four incorporated cities. Bend, Redmond and Sisters
were incorporated before this plan was written in 1979. The City of La Pine
incorporated on November 7, 2006. All four cities have been given the
authority by the County to prepare plans for their respective urban areas.
Bend, Redmond and Sisters have plans that are coordinated with the County
and have certain elements adopted into the County Comprehensive Plan. In
addition to a plan, the cities and the County maintain urban growth area
zoning ordinances and cooperative agreements for mutually administering the
unincorporated urban areas. As of 2008, La Pine is using the County
Comprehensive Plan and land use regulations established prior to
incorporation through a joint management agreement. In the near future La
Pine will draft its own comprehensive plan and land use regulations and
initiate a legislative process to adopt land use ordinances.
At the time this plan was adopted, in 1979, the then three incorporated cities
were growing rapidly. Deschutes County estimated urban area populations of
33,000 for Bend, 7,500 for Redmond, and 900 for Sisters. All of the cities
were expected to continue their growth to the year 2000. The 2000 Census
results for Bend, Redmond, and Sisters were 52,029, 13,481, and 959,
respectively. In 2000, 58 percent of the County's population lived in urban
areas. By the year 2025, the County's population is forecasted to reach
240,811 people. This forecast includes 109,389 people in Bend, 45,724
people in Redmond, and 3,747 people in Sisters. If population growth occurs
as forecasted, 66 percent of the County's population will reside in urban areas
by 2025.
Such growth will undoubtedly require strategically managing the provision of
public services and maintaining adequate amounts of residential, commercial
and industrial lands. Growth pressures will also require programmatic
approaches to maintain open spaces, natural resources, and functional
ecosystems that help define the qualities of Central Oregon.
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Chapter 4: Urban Growth Management - Urbanization
Cities in Deschutes County are located in one of the most beautiful and livable
environments in the state. All of the communities have within their authority the
power to guide community growth for the public's benefit. Collaborative efforts
between the cities, special districts and the County could create urban
environments that continue to not only function efficiently but are attractive and
desirable places to live.
The purposes of the urbanization goals and
This Section implements policies are to provide the link between the
part of State Planning urban and rural areas, and to provide some
Goal 14: Urbanization basic parameters within which the urban areas
of Deschutes County can develop, although the
specific comprehensive plan for each community
shall be the prevailing document for guiding growth in its respective area.
These policies will permit the County to review each comprehensive plan
against common criteria and assure consistency County-wide.
By 2025
Nonurban,
34% Bend, 45%
(Sisters, 2%
Redmond,
19%
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Chapter 4: Urban Growth Management -Unincorporated Communities Overview
Unincorporated Communities
Overview
Besides the four incorporated cities in Deschutes County, there are a number
of unincorporated communities. These consist of areas developed with urban
uses in rural areas. Generally, the unincorporated communities were
developed prior to the Oregon planning system and called rural service
centers in the 1979 version of this plan. Subsequently, to contain their growth,
the State initiated unincorporated community classifications and regulations to
define allowable uses.
The 1979 comprehensive plan designated the following rural service centers
(RSC): Alfalfa, Brothers, Hampton, Millican, La Pine, Whistle Stop, Wickiup
Junction, Terrebonne, Wild Hunt and Tumalo. Deschutes Junction and
Deschutes River Woods were also mentioned. These areas were designated
in that plan as exception areas from Goals 3, Agricultural Lands and 4, Forest
Lands. Zoning under the Comprehensive Plan allowed for a mix of residential
and commercial uses to support nearby residential developments. The scope
of those uses, until the early 1990s, was never much of an issue since there
was little development pressure.
In 1994, LCDC adopted a new administrative rule, OAR 660 Division 22 to
clarify what uses could be allowed in "unincorporated communities" without
violating Statewide Planning Goals 11 and 14 relating to public facilities and
urban uses. The rule identifies four different kinds of rural communities: Urban
Unincorporated Community (UUC), Rural Community, Resort Community and
Rural Service Center (RSC). In addition to the RSCs listed above the following
developments were identified as communities that Deschutes County has
been required to review for compliance with the rule: Black Butte Ranch and
Inn of the Seventh Mountain/Widgi Creek resorts, Deschutes Junction RSC,
Spring River RSC, lands zoned for Rural Industrial development and the
Deschutes River Woods Country Store development. The latter four areas
were rezoned in 2002 for Rural Commercial or Rural Industrial uses because
they do not meet the criteria of any of the four types of unincorporated
communities referenced above.
The 2001 Deschutes County Comprehensive Plan designates Black Butte
Ranch and the Inn of the Seventh Mountain/Widgi Creek as Resort
Communities.
On November 7, 2006 the residents of the La Pine Urban Unincorporated
Community voted to incorporate. As of this tune-up in 2007, the new City of La
Pine is working on a budget with the goal of initiating a comprehensive plan
process of their own. Until their plan and associated zoning is completed, La
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Chapter 4: Urban Growth Management - Unincorporated Communities Overview
Pine's land use program will be administered by the County using its existing
comprehensive plan and zoning code.
The following table lists the plan designation for each area is unincorporated
community, and defines the type of community and the year when review for
compliance with OAR 660 Division 22 was completed. All the communities
listed below are designated Unincorporated Communities in this plan.
Deschutes County Unincorporated Communities 2008
Community
T e
Approval Date
Sunriver
Urban Unincorporated Community
1997
Terrebonne
Rural Community
1997
Tumalo
Rural Community
1997
Black Butte Ranch
Resort Community
2001
Inn of the 7t Mountain
Widgi Creek
Resort Community
2001
Alfalfa
Rural Service Center
2002
Brothers
Rural Service Center
2002
Hampton
Rural Service Center
2002
Millican
Rural Service Center
2002
Whistlestop
Rural Service Center
2002
Wildhunt
Rural Service Center
2002
Deschutes County Fiannntg Division
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
S u n ri ve r Urban Goals & Policies
Unincorporated Community
Sunriver Goals
No goals have been defined for the Sunriver Urban Unincorporated
Community
Sunriver Policies
Land use policies
General Land Use Policies
1. Land use regulations shall conform to the requirements of OAR 660
Division 22 or any successor.
2. County comprehensive plan policies and land use regulations shall
ensure that new uses authorized within the Sunriver Urban
Unincorporated Community do not adversely affect forest uses in the
surrounding Forest Use Zones.
3. To protect scenic views and riparian habitat within the community,
appropriate setbacks shall be required for all structures built on
properties with frontage along the Deschutes River.
4. Open space and common area shall remain undeveloped except for
community amenities such as bike and pedestrian paths, and parks and
picnic areas.
5. Public access to the Deschutes River shall be preserved.
6. The County supports the design review standards administered by the
Sunriver Owners Association.
Residential District Policies
7. Areas designated residential on the comprehensive plan map shall be
developed with single family or multiple family residential housing.
Commercial District Policies
8. Small-scale, low-impact commercial uses shall be developed in
conformance with the requirements of OAR Chapter 660, Division 22.
Larger, more intense commercial uses shall be permitted if they are
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Commu
intended to serve the community, the surrounding rural area and the
travel needs of people passing through the area.
9. Development standards in the commercial district should encourage new
development that is compatible with the existing pedestrian mall style of
development that serves as the commercial core of the Sunriver Urban
Unincorporated Community.
10. No additional land shall be designated Commercial until the next periodic
review.
11. Multiple-family residences and residential units in commercial buildings
shall be permitted in the commercial area for the purpose of providing
housing which is adjacent to places of employment. Single-family
residences shall not be permitted in commercial areas.
12. Approval standards for conditional uses in the commercial district shall
take into consideration the impact of the proposed use on the nearby
residential and commercial uses and the capacity of the transportation
system and public facilities and services to serve the proposed use.
Resort district policies
13. Areas designated resort on the comprehensive plan map shall be
designated resort, resort marina, resort golf course, resort equestrian or
resort nature center district on the zoning map to reflect a development
pattern which is consistent with resort uses and activities.
Business park district policies
14. A variety of commercial uses which support the needs of the community
and surrounding rural area, and not uses solely intended to attract resort
visitors, should be encouraged.
15. Allow small-scale, low-impact commercial uses in conformance with the
requirements of OAR Chapter 660, Division 22. Larger more intense
commercial uses shall be permitted if they are intended to serve the
community, the surrounding rural area and the travel needs of people
passing through the area.
16. Small-scale, low-impact industrial uses should be allowed in
conformance with the requirements of OAR Chapter 660, Division 22. No
more intensive industrial uses shall be allowed.
Community district policies
17. Areas designated community on the comprehensive plan map shall be
designated community general, community recreation, community limited
or community neighborhood district on the zoning map to reflect a
development pattern which is consistent community uses and activities.
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
18. Lands designated community shall be developed with uses which
support all facets of community needs, be they those of year round
residents or part time residents and tourists.
19. Development shall take into consideration the unique physical features of
the community and be sensitive to the residential development within
which the community areas are interspersed.
Airport district policies
20. Future development shall not result in structures or uses which, due to
extreme height or attraction of birds, would pose a hazard to the
operation of aircraft.
21. Future development should not allow uses which would result in large
concentrations or gatherings of people in a single location.
Utility district policies
22. Lands designated utility shall allow for development of administrative
offices, substations, storage/repair yards, distribution lines and similar
amenities for services such as water, sewer, telephone, cable television
and wireless telecommunications.
Forest district policies
23. Uses and development on property designated forest that are within the
Sunriver Urban Unincorporated Community boundary shall be consistent
with uses and development of other lands outside of the community
boundary which are also designated forest on the Deschutes County
comprehensive plan map.
24. Forest district property shall be used primarily for effluent storage ponds,
spray irrigation of effluent, biosolids application and ancillary facilities
necessary to meet Oregon Department of Environmental Quality sewage
disposal regulations.
25. The development of resort, residential or non-forest commercial activities
on Forest district lands shall be prohibited unless an exception to Goal
14 is taken.
Public facility policies
General public facility planning policies
26. Residential minimum lot sizes and densities shall be determined by the
capacity of the water and sewer facilities to accommodate existing and
future development and growth.
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
27. New uses or expansion of existing uses within the Sunriver Urban
Unincorporated Community which require land use approval shall be
approved only upon confirmation from the Sunriver Utility Company that
water and sewer service for such uses can be provided.
Water Facility Policies
28. Water service shall continue to be provided by the Sunriver Utilities
Company.
Sewer Facility Policies
29. Sewer service shall continue to be provided by the Sunriver Utilities
Company.
Transportation policies
Transportation system maintenance policies
30. Privately-maintained roads within the Sunriver Urban Unincorporated
Community boundary shall continue to be maintained by the Sunriver
Owners Association.
31. The bicycle/pedestrian path system shall continue to be maintained by
the Sunriver Owners Association.
32. The County will encourage the future expansion of bicycle/pedestrian
paths within the Sunriver Urban Unincorporated Community boundary in
an effort to provide an alternative to vehicular travel.
33. All public roads maintained by the County shall continue to be
maintained by the County. Improvements to County maintained public
roads shall occur as described the County Transportation System Plan.
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
Sunriver Urban
Unincorporated
Community
Profile
Sunriver Background
Under OAR 660, Division 22, Unincorporated Communities, Sunriver meets
the definition for both an "Urban Unincorporated Community" and a "Resort
Community." With the help of a stakeholder advisory committee comprised of
key members of the community who represent a multitude of property owners
and development interests, the decision was made to proceed with the
planning process for Sunriver as an Urban Unincorporated Community. It was
the consensus of the committee that the provisions allotted for Urban
Unincorporated Communities under the rule offered the greatest practical
degree of flexibility for future growth and development in Sunriver. Subsection
OAR 660.22.010(8) defines "Urban Unincorporated Community" as;
"[a]n unincorporated community which has the following characteristics:
1. Includes at least 150 Permanent dwelling units including manufactured
homes;
2. Contains a mixture of land uses, including three or more public,
commercial or industrial land uses;
3. Includes areas served by a community sewer system; and,
4. Includes areas served by a community water system.
Findings - General
Historical background
Sunriver is located in the central portion of Deschutes County, approximately
15 miles south of the city limits of Bend. Sunriver lies in the Upper Deschutes
River Basin, with the Deschutes River generally forming the western boundary
of the community. Sunriver includes approximately 3,374 acres which are
bounded by the Deschutes National Forest on the east, west and north sides.
Small lot residential subdivision development is the predominant land use to
the south of the community boundary. However, Crosswater, a private
residential/resort community has also recently been developed in the area
immediately south of Sunriver.
Development of Sunriver began in 1967 and the first subdivision plat within
Sunriver was filed in 1968. Development in Sunriver began during a period of
time when the unincorporated areas of Deschutes County were not zoned. In
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
1972, when the County first adopted a zoning ordinance (PL-5) and
Comprehensive Plan, the area identified as Sunriver was zoned A-1-T and
designated "planned development" on the Comprehensive Plan map. In 1973,
a zone change to planned development (PD) was applied for and granted. As
part of the zone change application, a "Master Plan" was developed. The
Master Plan consisted of a map showing the proposed development of
Sunriver. The original area of Sunriver encompassed approximately 5,500
acres. Development occurred in accordance with the PD Zone of PL-5 and the
density of development was determined to be 1.5 units per acre overall.
In 1977, approximately 2,200 acres of property originally contemplated for
development as part of Sunriver were sold to the U.S. Forest Service.
Following the sale, a revised Master Plan for Sunriver Phase II was prepared
for the undeveloped portion of Sunriver. In October 1978, the County
approved the revised Sunriver Phase II Master Plan with the same PD Zoning
designation.
In 1980, after a land use application submitted for development within Sunriver
generated controversy, the viability of the Sunriver Master Plan was called into
question. This was compounded by the fact that PL-15, the County Zoning
Ordinance adopted in 1979 to replace PL-5, did not include any provisions for
"planned communities." As a result, the developer of Sunriver agreed to
develop a Planned Community (PC) zoning ordinance text and new Master
Plan for Sunriver subject to County review and approval. In November 1982,
the County adopted an ordinance amending PL-15 to add a section providing
for the Planned Community (PC) Zone and approving a new Sunriver Master
Plan. Since 1982, the PC Zoning Ordinance Text and Master Plan remained
relatively unchanged and were the guiding documents for the majority of
existing development in Sunriver.
The PC zone adopted in 1982 included seven (7) separate district
designations within the community. The districts included the following:
1. Single Family Residential District -RS
2. Multiple Family Residential District -RM
3. Commercial District - C
4. Resort District - R
5. Industrial District - 1
6. Community Property -CP
7. Airport District -A
Approximately 80 percent of the area within the Sunriver community boundary
has already been developed. Past development has included a mixture of
single family and multi-family residences, commercial businesses, resort and
recreational amenities and public service buildings.
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
Population and growth
The current population of Sunriver is difficult to ascertain. This is due to the
large number of vacation and second homes within the community that are
occupied for only part of the year. According to statistics compiled by the
Sunriver Owners Association, the number of full time, year round residents of
Sunriver is estimated to be 1,654 persons. During the peak tourist season, the
population of Sunriver, including guests who do not own property but are
renting residences within the community, is estimated to be 12,664 persons.
While the number of residential lots (both single family and multi-family) within
the community and the density of development can be determined with a great
degree of accuracy, the rate of future population growth in Sunriver is difficult
to estimate due to the large number of residences that serve as second and/or
vacation homes. Approximately 80 percent of the existing dwellings are vacant
for large periods of time throughout the year. However, during the peak tourist
seasons, the majority of the dwellings are occupied. Thus, Sunriver typically
experiences a fluctuating population comprised of both year round and part
time residents.
At the end of 1996, Sunriver had an 80 percent build-out of single-family
residential lots with 2,575 single-family homes and a 95 percent build-out of
townhomes and condominiums comprised of 896 residences. When adding
these together, there are a total of 3,428 single-family residences in Sunriver.
When using the 1990 Census figure which estimates an average of 2.54
persons per household, the population figure is approximately 8,707 persons.
Upon total build-out of the residential lots in Sunriver, the estimated population
could be expected to total 10,455 persons. This does not take into account the
resort/vacation component of Sunriver and the fact that many dwellings are
not occupied full time. Based on information compiled by the Sunriver Owners
Association, approximately 19 percent of the single family residences existing
as of 1996 are occupied on a year round basis. Thus, a more accurate
estimate of full time residents is 1,654 persons. If the percentage of full time
residents holds relatively constant as it has in the past, the population of full
time residents could be expected to be 1,906 persons upon build-out of all
residential lots. After build-out, it is expected that the population growth will
become substantially stagnant since there are no plans for expanding the
community boundaries at this time.
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
Periodic review
In the fall of 1994, the Oregon Land Conservation and Development
Commission adopted a new administrative rule, OAR 660.22, Unincorporated
Communities, which required counties to update land use plans and
regulations for such communities. As part of Periodic Review, the County
updated the Comprehensive Plan and implementing regulations for Sunriver to
comply with the rule.
"Urban Unincorporated Community"
Sunriver meets the definition because it has historically included land
developed with a mixture of residential, commercial and industrial uses.
Sunriver utilities operate both a community sewer and water system which are
in place and serve the existing development. Sunriver is served by its own fire
and police departments and also has essential services such as a school. The
Comprehensive Plan designates Sunriver as an Urban Unincorporated
Community and provides for future growth and development accordingly.
Sunriver Urban Unincorporated Community Boundary
Since 1977, Sunriver has included approximately 3,374 acres of land. Within
this area, there are 4,700 total tax lots, including common areas. The
community boundary is generally formed by the Deschutes River on the west,
Spring River Road/South Century Drive on the south and the Deschutes
National Forest on the north and east. This boundary has remained
unchanged since 1977.
During the 1997 update, the Sunriver Urban Unincorporated Community
boundary has been amended in the following way: 366-acres were added to
the Sunriver Urban Unincorporated Community along the east boundary to be
used for sewage effluent storage and disposal. This area, once part of the
Deschutes National Forest, was changed from a plan designation of Forest to
Urban Unincorporated Community - Forest. It was added per Oregon
Department of Environmental Quality requirements. The effluent and storage
capabilities of the existing sewage system are at or near capacity seasonally.
Thus, this expansion of the community boundary was necessary to provide
adequate sewage disposal services to the existing community at build-out.
This area is not intended to provide additional sewer capacity to serve areas
outside of the historic community boundaries.
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
Land use planning
Existing land uses
The predominant land use in Sunriver is residential, the majority of which is
single-family residential development. However, since Sunriver was originally
developed as a planned community, a number of other uses exist, making it
somewhat self-reliant. Uses which support the residential components include
a commercial core which contains a variety of retail businesses developed in a
pedestrian mall setting, as well as a business park. A large component of
development in Sunriver includes resort related amenities such as golf
courses, a lodge, convention facilities and overnight accommodations. A fire
station, police station and public works facility have also been developed to
support these uses.
Land bordering Sunriver on the north, east and west is zoned Forest Use (F-1)
and is within the Deschutes National Forest. The National Forest land remains
undeveloped and is primarily used for recreational purposes such as hiking,
hunting, fishing, snowmobiling, etc. The forest lands and the recreational
opportunities that they offer enhance the resort component of Sunriver. Land
to the south of Sunriver includes primarily private property which is zoned
Rural Residential (RR-10). The majority of the RR-10 properties include small
lot (one-half to one acre parcels) subdivisions which were created prior to any
zoning laws.
Comprehensive Plan Designations
The 1997 Deschutes County Comprehensive Plan for the Sunriver Urban
Unincorporated Community has eight comprehensive plan designations,
shown on the comprehensive plan map attached as Map "A" at the end of this
chapter and described as follows:
1. Residential District. The Residential District designation on the
Comprehensive Plan Map includes the Single Family Residential and
Multiple Family Residential Districts as shown on the Zoning Map for the
Sunriver Urban Unincorporated Community. This plan designation
includes all properties which were previously designated for residential
development under the previous Planned Community designation. No
change to residential boundaries have been made.
2. Commercial District. The majority of the land designated Commercial
includes the commercial core of Sunriver which is commonly referred to
as the Sunriver Village Mall. An additional Commercial District is located
at the north end of the community and is developed with a grocery store
and gas station. The Village Mall is developed as an outdoor pedestrian
mall and includes a variety of commercial uses. Many of the existing
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4: Urban Growth Management - Sunriver Urban Unincorporated Community
commercial uses support the tourist component of the community and
residents living within the boundaries of Sunriver. This plan designation
includes all areas formerly designated for commercial use.
3. Resort District. In general, the Resort plan designation includes
properties which are developed with amenities such as the Sunriver
Lodge and Great Hall, golf courses, the equestrian and marina facilities
and the nature center. These amenities have been developed to foster
the recreation and tourist component of Sunriver. For the most part, this
designation includes the properties which are owned and managed by
Sunriver Resort.
4. Business Park District. The Sunriver Business Park lies at the southern
end of the community boundary and is physically separated from the
remainder of the community by Spring River Road. This plan designation
was originally created to accommodate light industrial development to
support the employment needs of the community and surrounding area.
Since the inception of zoning ordinance regulations for this area,
development has been primarily commercial in nature rather than
industrial. The zoning ordinance has been modified to reflect the existing
businesses and the trend for commercial development while still allowing
for industrial uses to develop.
5. Community District. The Community plan designation includes properties
which are primarily developed with public service uses which support all
facets of the community. Development includes the fire station, school,
community center, corporation/public works facility. Properties with this
designation are primarily owned and administered by the Sunriver
Owners Association.
6. Airport District. The Airport plan designation includes areas which are
currently developed with airport related amenities, such as runways,
hangars, fueling stations and maintenance facilities. This district also
includes areas surrounding the actual airport development which are
considered to be in the sphere of influence of the airport and in which
airport related impacts and risks are associated. Development in the
airport district shall be limited with respect to heights of structures, public
gathering places and other potential risks to persons or property related
to airport uses.
7. Utility District. This plan designation includes properties which are
currently developed with amenities such as sewage pump stations, water
treatment facilities, water distribution facilities and associated utility
improvements. The utility plan designation is intended to provide for the
development and expansion of necessary utility facilities on properties
which are already devoted to such uses.
8. Forest District. The previous boundary for Sunriver was expanded by
approximately 366-acres to include land along the eastern boundary that
has historically been zoned for forest uses and within the Deschutes
National Forest. A recent decision by the U.S. Forest Service to permit
an effluent storage pond and effluent irrigation site on approximately 50
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
acres and a potential land transfer to the Sunriver Utilities Company
prompted inclusion of this area within the community boundary. By
including this area, future expansion of the sewage disposal system
would permit the application of biosolids with the effluent irrigation site
and storage pond. This will enable Sunriver to meet Oregon Department
of Environmental Quality regulations for treated wastewater storage and
disposal stemming from build-out of all 4,600 lots within the community.
An exception to Goal 4 was not taken because the only uses allowed in
the expansion area are permitted in the Forest zone.
Public Facility Planning
Utilities
Water and sewer service within the Sunriver Urban Unincorporated
Community is provided by the Sunriver Utilities Company (SRUC). SRUC is
under the jurisdiction of the Public Utility Commission of Oregon. The SRUC
was established as a private water and wastewater company and has
provided water and sewer services within the community boundary since
1969. SRUC is the largest private water/wastewater company in the State of
Oregon.
Water: SRUC currently operates three main wells which are capable of
pumping over 7.5 million gallons of water each day. In addition, reservoir
capacity for water storage is 2 million gallons per day. This volume of water
production and storage exceeds the needs of the community within the
boundaries of Sunriver.
As of 1997, SRUC serves a total 3603 water customers. This total includes the
following types of service connections: 2630 residential; 753 condominiums;
125 commercial; and, 95 for irrigation purposes. All service connections are
metered to measure the amount of water that is being used. The meter service
sizes range from typical 3/4" residential lines to 6" lines for irrigation,
commercial and industrial uses.
Sewer: Sunriver's wastewater facility is under the jurisdiction of the Oregon
Department of Environmental Quality (DEQ). Sewage treatment facilities are
capable of handling/treating 2 million gallons of wastewater per day. This
includes the 1997 expansion of effluent storage ponds on a U.S. Forest
Service parcel along the eastern boundary of Sunriver. The design and flow
accommodations will facilitate build out of all 4,600 lots within the community.
Public Services
Police: Sunriver's police department is responsible for law enforcement within
the boundary of the Sunriver Urban Unincorporated Community. In special
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
circumstances, at the request of the Deschutes County Sheriff, the department
will assist with law enforcement outside of the community boundary.
Fire: All areas within the boundary of the Sunriver Urban Unincorporated
Community, except for the Business Park, are served by the Sunriver Fire
Department. The Business Park is provided with fire protection by the La Pine
Rural Fire Protection District.
The Sunriver Fire Department provides fire protection and ambulance service
within the Sunriver community boundary, north of South Century Drive.
Additionally, the department provides these same services to areas outside of
the community boundary to the east, west and north. The department has a
mutual agreement with the La Pine Rural Fire Protection District to provide
secondary services within each other's service boundaries on an as needed
basis.
The La Pine Rural Fire Protection District provides fire protection and
ambulance service to the portion of the Sunriver community known as the
Business Park. The La Pine Rural Fire Protection District has a new station
located along South Century Drive approximately 1 '/2 miles south of the
community boundary.
Schools: Three Rivers Elementary School, which is under the direction of the
Bend-La Pine School District, is currently the only school within the boundary
of the Sunriver Urban Unincorporated Community. Three Rivers Elementary
offers schooling from kindergarten through 5th grade and has an enrollment of
approximately 270 students. The school accepts pupils from both inside and
outside the boundary of the Sunriver Unincorporated Community.
Other
Sunriver Owners Association: The Sunriver Owners Association has the day-
to-day responsibility of overseeing the majority of the community operations.
The association is governed by a Board of Directors and a General Manager.
The services and departments operated by the Sunriver Owners Association,
as well as the primary function of each, include:
1. Public Works and Fleet Services - Maintenance of roads, recreational
paths and recreational amenities under the direction of the Sunriver
Owners Association.
2. Design and Compliance Department- Design review for new structures,
aesthetic quality of new development and compliance with development
standards.
3. Environmental Services - Administration of fire and fuels regulations as
well as any other environmental issues of the community.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 4-23
Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
4. Fire and Police Services - The Sunriver Fire Department and Police
Department described above, operate under the direction of the Sunriver
Owners Association.
5. Administration - The administrative offices oversee the day-to-day
functions of each component of the association.
The Sunriver Owners Association publishes a monthly newspaper distributed
to members of the association and the public.
Transportation planning
Background/Existing Transportation Facilities in Sunriver: The Sunriver Urban
Unincorporated Community is accessed via public roadways. These include:
South Century Drive and Cottonwood Road. Both of these roadways lie within
public right-of-way and are maintained by Deschutes County. South Century
Drive and Cottonwood Road connect to Highway 97 which is the primary
corridor for vehicular travel throughout Central Oregon. South Century Drive
enters Sunriver near the southern community boundary and extends to the
residentially developed areas to the south and west. Cottonwood Road enters
Sunriver near the northern Sunriver boundary and ends within the community.
Internal roads within Sunriver, except within the Business Park, are private
which are open to the public, and are maintained by the Sunriver Owners
Association. These roads are paved and are generally 20 feet in width. Roads
within the Business Park are public which are maintained by the County. The
internal roadway network was developed as part of the original design and
master plan for Sunriver. The network consists of a series of internal traffic
circles or roundabouts, from which spur roads lead to various areas within the
community. All areas within the community boundary are currently accessed
by privately maintained roadways.
A bicycle/pedestrian path system has been developed and integrated
throughout the community. Aside from the recreational opportunities provided
by the path system, the paths serve as an alternative to vehicular travel as
they connect the residential, commercial, school and recreation areas of the
community. The paths are paved, maintained in good condition by the
Sunriver Owners Association and are used extensively.
Future Transportation Needs: The existing privately maintained roads and
bicycle/pedestrian paths adequately serve the travel needs of the residents
and visitors of Sunriver. The existing roads and pathways provide access to all
platted and developed areas within the community. There is no projected need
from South Century Drive to the Business Park. Future development within the
Business Park may warrant an additional entrance from South Century Drive
or improvements to the existing.
Working Draft Deschutes County Comprehensive Plan
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Chapter 4: Urban Growth Management - Sunriver Urban Unincorporated Community
South Century Drive and Cottonwood Road are both operating at levels below
their vehicular capacity and acceptable levels of service. In the area between
the entrance to the Sunriver Village Mall and the Business Park, the 1996
average daily traffic figures for South Century Drive were approximately 3,380
trips per day. This figure is below the general capacity of 7,000 trips per day.
Many of the vehicles traveling this roadway are passing through the
community, not necessarily to Sunriver, as this road provides a direct link from
Highway 97 to the surrounding rural subdivisions. Cottonwood Road, which
only extends between Highway 97 and the community boundary, is not subject
to the same volume of pass through traffic that occurs on South Century Drive.
Thus, the traffic figures for this roadway are much lower at approximately
2,600 trips per day.
Road widening improvements were completed in
This Section implements 1996 by the County for the segment of South
part of State Planning Century Drive between Highway 97 and the
Goal 14: Urbanization entrance to the Sunriver Business Park.
Improvements to the entrance of the Business
Park itself were also completed. The
improvements were done to improve the safety and longevity of the roadway.
Future improvements to County roads outside of Sunriver, including the
intersection of South Century Drive and Highway 97 are addressed in the
County Transportation System Plan.
Working Draft Deschutes County Comprehensive Plan
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Chapter 4: Urban Growth Ma
Rural Communities
Terrebonne Goals
Community Transportation Goals
:Goals The livability of the Terrebonne community depends on the ability of the
transportation network to provide safe and convenient access from residential
areas to the commercial areas and to the school. It is important that the state
highway be integrated into the community and that it function efficiently to
transport travelers and freight through the community.
Local road network.
1. Maintain the existing roads.
2. Provide sidewalks only where they are warranted for safety.
3. Protect utility trenches located in the public right of way from damage by
tree roots.
Appropriate local road standards
4. Provide transportation facilities that are practical and cost effective to
construct, use and maintain and in character with the rural community.
Highway 97 corridor
5. Slow traffic on Highway 97.
6. Provide safe, convenient pedestrian crossings on the highway near the
school.
7. Reduce misuse of the center turn lane.
8. Redesign Highway 97 intersections to balance the needs of truck and
pedestrian traffic, particularly at the "B" Avenue and "C" Avenue and the
11 th Street intersections.
Terrebonne Policies
Land use Policies
General land use policies
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ent - Rural Communities
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Chapter 4: Urban Growth Management - Rural Communities
1. Land use regulations shall conform to the requirements of OAR Chapter
660, Division 22 or its successor.
2. County plans and land use regulations shall ensure that new uses
authorized within the Terrebonne Rural Community do not adversely
affect agricultural uses in the surrounding Exclusive Farm Use (EFU)
zones. Zoning regulations shall require any new structure on land
contiguous to EFU-zoned land which is received special assessment for
farm use to set back 100 feet from the common property line.
3. All zoning districts in the Terrebonne community shall allow residential
uses.
4. The County shall encourage the preservation of historical structures in
the Terrebonne Rural Community, such as the Ladies Pioneer Club
(1911), the Grange Hall (1925) and the Oregon Trunk Railroad Depot
(1911).
Residential area policies
5. Areas designated residential on the comprehensive plan map shall be
designated a corresponding residential district on the zoning map.
6. The County shall plan and zone for a diversity of housing types and
densities suited to the capacity of the land to accommodate water and
sewer facilities.
7. The land designated Residential-5-Acre minimum is intended to
maintain the rural character of the community by retaining large lots
where community water and sewer are not available.
8. Lands designated Residential-5-Acre minimum shall not be
redesignated and rezoned to accommodate higher densities until public
water is provided.
9. Livestock shall be permitted in both residential districts subject to use
limitations.
Commercial area policies
10. Allow small-scale, low-impact commercial and industrial uses in
conformance with the requirements of OAR Chapter 660, Division 22,
and larger commercial uses, if such uses are intended to serve the
community and the surrounding rural area or the travel needs of people
passing through the area.
11. The commercial district shall limit the size of all industrial buildings and
the type of industrial uses to assure that the industrial uses are small-
scale, low-impact and do not dominate the character of the commercial
district.
12. Design standards in the commercial districts should encourage new
development that is compatible with the rural character of the
community.
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Chapter 4: Urban Growth Management - Rural Communities
13. Where there is a choice to use a road other than Highway 97 for access,
access shall not be taken from Highway 97.
14. Approval standards for conditional uses in the Commercial-Rural
District shall take into account the impact of proposed uses on the
nearby residential and commercial uses and on the capacity of the
transportation and other public facilities and services to serve the
proposed use.
15. The land designated Commercial-Rural shall not be considered for
expansion into the surrounding land designated Residential or
Commercial, except at next periodic review.
16. Stand-alone residential uses or residences in conjunction with uses listed
in the commercial districts shall be allowed, but they are not intended to
predominate or set the development standards for other uses in the area.
17. Land divisions or replatting for residential purposes shall not be allowed
in the commercial districts.
18. Livestock shall not be permitted in the commercial districts.
Commercial expansion area policies
19. The Commercial or Commercial Rural plan designations shall not
expand on the west side of Highway 97.
20. The area designated Commercial shall only expand to the designated
Commercial Expansion Area on the Terrebonne comprehensive plan
map (See Map 131). No expansion of the Commercial Expansion Area
shall be considered until next periodic review.
21. Rezoning the Commercial Expansion Area from Residential District to
Commercial District shall be allowed only if no land currently zoned
Commercial District can reasonably accommodate the proposed use.
22. Rezoning the Commercial Expansion from Residential District to
Commercial District may be done without a Plan Amendment and shall
be allowed only if the Terrebonne Domestic Water District facilities
provide, or will provide, adequate water quantity and pressure for
commercial or domestic use to serve the area being rezoned; and the
road rights of way serving the area being rezoned have been, or will be,
improved to applicable County right of way standards for the Terrebonne
Rural Community. An applicant for a zone change must be able to
demonstrate that:
a. Road right of way improvements and public water facilities to the
property are in place or will be in place when the development
occurs; or
b. Road right of way improvements and public water facilities to the
property are under construction when a permit is issued; or
c. Road right of way improvements and public water facilities to the
property have been in a local government or special district budget.
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Chapter 4: Urban Growth Management - Rural Communities
23. These standards shall apply in place of the County standards for
rezoning contained in Title 18, section 18.36.020 of the Deschutes
County Code..
Public facility policies
General public facility planning policies
24. Residential minimum lot sizes shall be determined by the capacity of the
land to accommodate available water and sewer facilities, in order to
protect and promote public health and safety and to provide efficient
public facilities and services.
25. The County shall encourage early planning and acquisition of sites
needed for public facilities (e.g., school, roads and water facilities).
Water facility policies
26. The Terrebonne Domestic Water District 1995 Water System Master
Plan shall serve as the public facility plan for water supply in Terrebonne.
27. The County shall support improvement of the community water system to
meet health and safety needs.
28. Deschutes County and the Terrebonne Domestic Water District shall
enter a coordination agreement, consistent with ORS Chapter 195, as
required by OAR 660-22-050(2)(c).
29. New uses or expansion of existing uses requiring land use approval in
the Terrebonne Domestic Water District service area shall be approved
only upon confirmation from the District that the District can provide
water for domestic or commercial uses to the property.
30. Deschutes County shall encourage all development in the District service
area to connect to the Terrebonne Domestic Water District water system.
Sewer facility policies
31. Only uses and densities that can be served by a DEQ approved on-site
sewage disposal system shall be allowed in the Terrebonne Rural
Community until such time as a community sewer system is available.
32. Zoning regulations shall set minimum lot sizes adequate to ensure the
on-site systems do not exceed the capacity of the land until such a time
as a community sewer system is available.
33. The County shall support replatting of lots in the Hillman Plat to create
lots large enough to accommodate a DEQ approved on-site sewage
disposal system.
34. The County shall attempt to obtain funding for a sewer feasibility study.
35. The County shall facilitate the development of a community sewer
system if needed to protect public health.
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Chapter 4: Urban Growth Management - Rural Communities
36. If a sewer system is proposed, the County will review the Terrebonne
comprehensive plan policies related to public services.
Transportation policies
Road network policies
37. Provide a transportation network that can accommodate local traffic,
commuter traffic and regional interstate traffic without detracting from the
livability and rural character of the community.
38. Provide a transportation network that will improve transportation
efficiency, convenience and safety, as well as increase transportation
choices and decrease conflicts between modes of transportation.
39. Preserve alignments for transportation corridors depicted on Map D2 for
future transportation purposes. The precise alignments will be
determined after further study and engineering analysis or during the
development of vacant properties.
40. New roads shall take advantage of existing public rights of way, where
they exist.
41. Existing road rights of way shall be preserved.
42. Roads shall be classified as arterial, collector and local roads in
accordance with Table D1 and Map D2.
43. The County shall implement measures, based on weight limits, to
prohibit or limit heavy truck on 11 th Street and Smith Rock Way in the
Terrebonne Rural Community.
44. Commercial uses that general more than 20 vehicle trips to and from the
premises, including automobiles, truck-trailers and other heavy
equipment, during the peak hour of the day, shall demonstrate that the
affected roads are adequate to serve the proposed use, considering the
function, capacity and level of service of those roads.
Sidewalks and bicycle facility policies
45. Provide functional, cost effective sidewalks that are in keeping with the
rural character of the community.
46. Provide sidewalks where they are warranted for pedestrian safety, as set
forth in Map D3.
47. Where sidewalks are specified along County public roads, they shall be
constructed without curbs and gutters, set back from the road surface
behind a drainage swale at a distance from property lines to allow room
for utilities.
48. Sidewalks identified on Map D3 shall be constructed either at the time of
development, subject to site plan review, or later through formation of a
local improvement district (LID). Applicants for conditional use permits or
site plan approval electing to defer constructing sidewalks, shall be
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Chapter 4: Urban Growth Management - Rural Communities
required to submit and have recorded in the County Clerk's office a
waiver of remonstrance, signed by the land owner. The waiver shall
waive the landowner's right to have his/her objection count against the
formation of an LID.
49. The utility trenches located in the public right of way should be protected
from damage by tree roots. Street trees should not be planted in the
public right of way where they will conflict with existing or planned utility
trenches.
50. On local roads where traffic volumes and speeds are low, bicycles shall
share the road with automobiles. Bicycles shall be accommodated on
paved shoulder bikeways on Lower Bridge Way and Smith Rock Way,
which are County arterial roads, and on County collector roads that carry
high traffic volumes.
Road development standards policies
51. The County shall provide transportation facilities that are practical and
cost effective to construct, use and maintain and in keeping with the rural
character of the community.
52. The County shall implement road development standards for the
Terrebonne community that minimize pavement width and are consistent
with the operational needs of the transportation facility.
53. Specific road, bicycle and pedestrian facility improvement projects for the
Terrebonne community are listed in Tables D2, D3 and D4 respectively.
The projects are ranked high, medium and low priority based on
perceived need. These priorities shall be flexible to take advantage of
development opportunities and funding.
Highway 97 corridor policies
54. The County shall work with ODOT to increase safety on Highway 97 in
Terrebonne by using a combination of enforcement and traffic calming
techniques to slow traffic to posted speeds, to safely handle local traffic
and to improve pedestrian crossings.
55. The County shall work with ODOT to provide safe, convenient sidewalks
and bikeways on both sides of Highway 97 in the Terrebonne
community, between Central Avenue and the south 11th Street
intersection, particularly in the vicinity of the school.
56. Sidewalks on Highway 97 may have curbs and gutters and shall be
buffered behind a planting strip to calm traffic and provide pedestrian
safety. Curbed sidewalks would require drainage system improvements.
57. The County shall work with ODOT to provide improved pedestrian
crossings places on Highway 97, between Central Avenue and the south
11 th Street intersection, particularly at the "B" Avenue and "C" Avenue
intersections, to increase pedestrian safety in the vicinity of the school.
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Chapter 4: Urban Growth Management - Rural Communities
58. The County shall work with ODOT to adopt means to enhance 11th
Street parallel to the highway, to safely handle local business traffic, in
particular, enhance the intersections and pedestrian crossings and
access, to make better use of 11 th Street as the main local commercial
road.
59. The County shall support limiting Highway 97 to no more than three
lanes between the Central Avenue and south 11th Street intersections,
to protect the livability of the community, to address pedestrian safety
and the need to reduce traffic speeds on the highway in Terrebonne.
60. Large trucks shall be accommodated with wide turning radius corners
where necessary, as determined by truck routes established by the
Deschutes County Transportation System Plan, thereby minimizing
corner radii at all other intersections. Other design features such as
rolled curbs or medians shall be used as necessary to minimally
accommodate large trucks in the Terrebonne community.
61. The County shall support improvements to Highway 97 primarily in
conjunction with highway rehabilitation or reconstruction projects.
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Chapter 4: Urban Growth Management - Rural Communities
Rural Communities Profile
Terrebonne Background
Terrebonne is located in northeastern Deschutes County, about 6 miles north
of Redmond and 22 miles north of Bend. Smith Rock State Park, located on
the Crooked River, is about 2.5 miles northeast of Terrebonne.
Located on the Oregon Trunk Railroad, Terrebonne was originally called
Hillman, named after James Hill and E. H. Harriman, famed railroad builders.
The Terrebonne Rural Community today includes the original Hillman
townsite, platted in 1909. As news of the Hillman Plan spread across the
United States, people purchased property sight unseen. A few individuals
never actually claimed their lots, while others came to find the promises of
fertile land were embellished.
One story that persists regarding the original townsite is about a developer
who reportedly sold the same lots to several different buyers and that some of
the lots were not buildable. When disgruntled buyers caught up with him, he
was run out of town. As news of this land fraud spread across the country, the
residents of Hillman decided to change the name of their townsite, in order to
improve its reputation. They held a meeting and selected the name
"Terrebonne," which means "good earth."
As the original townsite grew and developed, Hillman/Terrebonne boasted at
one time a hotel, a newspaper, a livery stable, two general stores, two barber
shops, a bank, a blacksmith shop, a meat market, a realty company, various
feed stores, a school, churches and a grange hall.
The 1990 US Census classified Terrebonne as a "designated place" with a
reported total population of 1,083 persons. The estimated population growth
was about 3 percent annually in 1991-1992. In 1995 the population of
Terrebonne Rural Service Center was estimated at 1,250 persons, with 2.57
residents per dwelling. Terrebonne's median household income in 1990 was
$21,029, below the poverty level established by Farmers Home Administration
(FMHA) for rural communities in Oregon. Historical population data for
Terrebonne have not been collected. However, Terrebonne Domestic Water
District staff have noticed an influx of younger couples with children replacing
retirees who have moved out of the area. This type of change creates an
increase in population without evidence of growth such as new residential
construction. The Terrebonne elementary school is the fastest growing in the
Redmond school district.
The rate of future population growth in Terrebonne is difficult to estimate
because growth is limited until community sewer facilities allow desired growth
Working Draft Deschutes County Comprehensive Plan
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Chapter 4: Urban Growth Management - Rural Communities
to occur. Deschutes County projects a countywide growth rate of 4.5 percent
until the year 2000.
The 1979 Deschutes County Comprehensive Plan designated Terrebonne a
Rural Service Center (RSC), a Goal 3 and 4 exception area, comprising 667
acres and 577 tax lots. The 1979 Terrebonne RSC boundary included the
Hillman Plat, except that portion east of the Oregon Trunk Railroad tracks. It
included the area south of the Hillman Plat known as the Circle "C" Acres
subdivision which occupies land west of the highway, east of 19th Street and
north of Davidson Way. The 1979 Terrebonne RSC boundary also included
the land in the north one-quarter of section 16, T1 4S, R1 3E, north of the
Hillman Plat.
In the fall of 1994, the Land Conservation and Development Commission
adopted a new administrative rule, OAR 660-22, Unincorporated
Communities. In 1997, as part of periodic review, the County updated the
Deschutes County Comprehensive Plan and implementing regulations for the
Terrebonne community to comply with the rule. The description and the
policies in this section of the plan reflect the outcome of that planning process.
Terrebonne meets the definition of a Rural Community because it is primarily a
residential community, which also has a school, churches, a grange hall, a
post office and a handful of local businesses that serve the community, the
surrounding rural area or persons traveling through the area. The
comprehensive plan designates Terrebonne a Rural Community and provides
for its growth and development accordingly.
OAR 660-22-020(3)(a) states that land which has been acknowledged as an
exception area and historically considered part of the community may be
included in an unincorporated community boundary. As part of periodic review
the Terrebonne community boundary has been amended in the following two
ways to include a total of 631 acres and 551 tax lots (See Map Al):
1. The boundary has been expanded to include the portion of the old
Hillman Plat east of the railroad tracks. This land has been
acknowledged as an exception area and historically considered part of
the community.
2. At the request of Circle "C" residents, the community boundary has been
moved to the north, to Odem Avenue to exclude the entire Circle "C"
Acres subdivision. This land has been designated Rural Residential
Exception Area on the Deschutes County Comprehensive Plan map.
The comprehensive plan designation applied to the land south of Terrebonne
Rural Community known as part of the Circle "C" Acres Subdivision. It is
bounded on the north by Odem Way, south by Davidson Way, east by West
19th Street and west by Highway 97. This area has been changed from Rural
Service Center to Rural Residential Exception Area to provide an opportunity
to understand the area's water resources. Given the expected continued
Working Draft Deschutes County Comprehensive Plan
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Chapter 4: Urban Growth Management - Rural Communities
growth of the area and the existence of water quality and quantity problems,
the results of these studies are expected to prove useful in updating this plan
and safely accommodating new growth while protecting existing industries and
residents.
Land Use
The predominant land use in Terrebonne is single-family residences, including
a manufactured home park with 26 single-family units. Commercial land uses
include supermarkets, a gas station, trucking companies, farm equipment
sales and service, restaurants, a hardware store, a veterinarian and various
other small-scale retail businesses located along Highway 97. There is a
grange hall, a post office and an elementary school. There are also several
churches. A significant recent development in Terrebonne is a large new
supermarket.
Land bordering Terrebonne is zoned Exclusive Farm Use Terrebonne
Subzone (EFU-TR), Multiple Use Agriculture (MUA-10 acre minimum lot size),
and Rural Residential (RR-10 acre minimum lot size). The Deschutes County
Comprehensive Plan designates EFU land for agriculture uses and MUA-10
and RR-10 land for rural residential uses. The EFU land around Terrebonne is
employed in a range of small-to large-scale irrigated agricultural uses, while
the MUA-10 and RR-10 land is parcelized and developed with rural residences
and small-scale agricultural uses. According to a County land use inventory
conducted in 1994 and the availability of community water service, the
estimated maximum number of potential new lots in Terrebonne was 1,233. A
land use inventory compiled in 1997 using the County Assessor's database is
shown in Table B1 below.
i e
rreoonne Lan
a use inventory
Assessors Property Class
Total Tax Lots
Developed Tax Lots
Vacant Tax Lots
Miscellaneous
19
0
19
Commercial
43
35
8
Tract
445
319
126
Farm
16
8
8
Exempt
28
12
16
Total Tax Lots
551
374
177
Zoning District
Total Tax Lots
Developed Tax Lots
Vacant Tax Lots
TeC
50
41
9
TeCR
18
11
7
TeR
445
290
155
TeR5
38
32
6
Total Tax Lots
551
374
177
Source: Deschutes County Assessors Database, 1/24/97 & Deschutes County PW GIS Parcel Basemap, 11/15/96.
Working Draft Deschutes County Comprehensive Plan
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Chapter 4: Urban Growth Management - Rural Communities
Comprehensive Plan Designations
The Deschutes County Comprehensive Plan for the Terrebonne Rural
Community has the following five comprehensive plan designations (See Map
131 and Table B2 and B3 on the next two pages):
Residential. The land designated Residential on the Terrebonne
comprehensive plan map includes the highest density area of Terrebonne,
corresponding with the boundary of the old Hillman Plat. It is intended to
accommodate higher density residential uses, served by community water.
Residential 5 -Acre Minimum. The land designated Residential-5 Acre
Minimum includes the larger parcels of land in Terrebonne located to the north
and south of the Hillman Plat. The Residential-5 Acre Minimum designation is
intended to maintain the rural character of the community by retaining large
lots where community water is not available.
Commercial. The Commercial plan designation was created to accommodate
existing non-conforming commercial uses on the east side of Highway 97 and
to in-fill between commercial uses on both sides of 11th Street. The
Commercial designation is intended to encourage development of a
pedestrian-friendly commercial center on both sides of 11th Street and to
discourage highway strip-commercial development.
Commercial Expansion Area. The Commercial Expansion Area designates the
only area for future expansion of the Commercial plan designation and
Commercial zoning district. The Commercial Expansion Area is intended for
future expansion of the Terrebonne commercial center with a connected road
network and good pedestrian access, directed away from the highway to
discourage highway strip-commercial development.
Commercial-Rural. The Commercial-Rural plan designation was created to
accommodate existing non-conforming, small-scale, low-impact truck and
heavy equipment uses, not generally compatible
This Section implements with a pedestrian friendly commercial center.
part of State Planning The businesses listed below in Table B3 were
not required to go through a conditional use
Goal 14: Urbanization permit process or site plan review when the
Commercial-Rural zone was applied to the
properties. The business owners provided some
specific information about the operating characteristics of each business on a
questionnaire, recorded in County File No. TA-96-13 and in the County
address file for each primary property. Applying the Commercial-Rural zone to
these properties did not validate them as legal uses. The new zone gives the
existing uses an opportunity that did not exist before to apply for and receive
site plan and conditional use permit approval for a listed use. If these uses
change or expand, they will be subject to site plan review and conditional use
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Chapter 4: Urban Growth Management - Rural Communities
permit requirements and to the provisions of Title 18, chapter 18.66 of the
Deschutes County Code.
Terrebonne Comprehensive Plan and Zoning Designations
Comprehensive Plan Designation
Corresponding Zoning Districts
Residential
Residential District -TeR
Residential - 5 acre minimum
Residential - 5 acre minimum - TeR5
Commercial
Commercial District - TeC
Commercial Expansion Area
Residential District -TeR
Commercial Rural
Commercial Rural District - TeCR
Source: Deschutes County Planning Division
r%....__I- JAAw -
vGCeffiuer 1996 - Businesses in ine Loommerci
ai Kesiaentiai uistrict
Company Name
Tax Map
Primary Property
C.B. Foss Trucking, Inc.
14-13-16AC 400
8805 11t Street
14-13-16DC 300
Central Oregon Trucking,
14-13-16AC 500
8888 l It Street
Co.
14-13-16AC 502
14-13-16AC202
Deschutes Valley
14-13-16DB 113
710 F Avenue
Equipment
14-13-16DB 114
Riemenschnieder RL
14-13-16DB 100
736 F Avenue
Enterprises
14-13-16DB 106
Source: Deschutes County Planning Division
Public Facilities Planning
Terrebonne Rural Community is served by the following special districts: (1)
Terrebonne Domestic Water District (see Map Cl); (2) Deschutes County
Rural Fire Protection District #1 (see Map C2); (3) Redmond School District
#2J (see Map C3); (4) Central Oregon Irrigation District.
Water: The area identified in the 1979 Plan as the Terrebonne Rural Service
Center (RSC) had two community water systems:
1. The Terrebonne Domestic Water District serving the area identified as
the old Hillman Plat, the south 3/ of Section 16 T1 4S R1 3E; and
2. A separate water district serving the Circle "C" Acres subdivision located
in the south portion of Terrebonne RSC.
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Chapter 4: Urban Growth Management - Rural Communities
As part of period review, the Terrebonne community boundary was amended,
at the request of residents of Circle "C" Acres Subdivision, to exclude the
subdivision. Today, the Terrebonne Domestic Water District is the only
community water system in the Terrebonne Rural Community.
The District, whose boundary coincides with the extent of the old Hillman Plat,
serves the most densely populated area of Terrebonne. The District's Board of
Directors recognized the need to improve the antiquated water system both for
fire protection and for household use. In July of 1994, the Board of Directors
and Deschutes County authorized H.G.E. Engineers & Planners to prepare an
updated Water System Master Plan for the Terrebonne Domestic Water
District. The Water System Master Plan, with a 25-year planning horizon, was
published in January 1995. In May 1997, Deschutes County received a
federal-state, grant-loan package for constructing priority improvements to the
District's water system.
OAR Chapter 660-22, Unincorporated Communities, requires the County to
enter a coordination agreement with the Terrebonne Domestic Water District
for coordinated review and administration of the land use in the District's
service area.
The Oregon Department of Water Resources reported there is an abundant
supply of potable water in a deep aquifer under Terrebonne. The department
has not identified the Terrebonne Rural Community as a groundwater limited
or groundwater critical area. The Terrebonne Domestic Water District currently
depends on two groundwater wells. The District's groundwater source does
not exceed current EPA maximum contaminant limits. No treatment is
performed; none has been required by the state Health Division. The area in
the Terrebonne Rural Community that is outside the District service area
boundary relies on individual wells for drinking water. The Water Resources
Department routinely approves new groundwater wells in the areas of the
Terrebonne community not served by community water.
Sewer: Terrebonne does not have a community sewer system or a sewer
facility plan. Land uses in the community rely on on-site sewage disposal
systems of all ages and descriptions, ranging from new sand-filter systems to
old drill holes. In some cases on-site systems are insufficient for current
needs. Much of the area defined by the Hillman Plat is on a rocky plateau. The
soils are shallow - most no deeper than 18 inches - such that a standard
septic system is not feasible on smaller lots. It is often necessary to install a
relatively expensive sand-filter system in order to obtain development permits
for new development or for alterations to existing development. There are a
few tax lots that cannot be developed or redeveloped because they are too
small to accommodate any approved one-site sewage disposal system.
The County has not conducted a sewer feasibility study for the Terrebonne
Rural Community. The community has not reached consensus about the need
for a sewer system. However, a group of concerned citizens recognize that a
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Chapter 4: Urban Growth Management - Rural Communities
sewer system is needed; both to protect water quality and to allow
development at desired densities.
The County plan and zoning regulations restrict the type and intensity of
allowed uses to those that can be served by DEQ approved on-site sewage
disposal systems. In addition, County zoning regulations set minimum lot sizes
adequate to ensure that on-site systems do not exceed the capacity of the
land. These provisions are consistent for all zoning districts in Terrebonne.
Transportation
The transportation plan will play a role in addressing long-standing
transportation issues and in maintaining the rural character of Terrebonne.
This plan meets the requirements of the OAR Chapter 660, Division 12,
Transportation Planning, by designating a network of local roads, sidewalks
and bikeways. In addition, it establishes appropriate right-of-way development
standards for County roads in Terrebonne and makes recommendations for
increasing safety for local pedestrian and vehicle traffic on the highway.
The 1990 US Census shows that compared to the population of the state,
Terrebonne is a community of relatively young families. About 21 percent of
the people in Terrebonne are five to 15 years old, too young to drive. About 14
percent of the community is over 64. This age group will likely increase after
2010 due to national demographic trends. Both of these user: groups would
benefit from sidewalks separated from vehicle traffic in key locations to
increase pedestrian safety and convenience.
Terrebonne is a bedroom community for surrounding cities in Central Oregon.
US Census data for 1990 showed that out of 454 workers (42% of the
population), 355 (78%) drove alone to work, 66 (15%) carpooled, 14 (3%)
worked at home and 19 (4%) reported other means of transportation to work.
No workers reported walking or bicycling to work. The commute time (for those
who did not work at home) was less than 10 minutes for 11 % and less than 20
minutes for 69% of the population.
Highway 97 collision data
The State of Oregon recorded 29 collisions on Highway 97 in Terrebonne from
1991 to 1995. Seventeen crashes caused 28 injuries and one crash resulted
in two deaths. Nineteen of the collisions occurred at intersections, mostly from
Central Avenue south to 11th Street. There were ten mid-block collisions. Mosi
of the collisions occurred in daylight, but two involved pedestrians after dark.
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Constraints of the transportation system
1. Topographical Features. Topography and irrigation canals limit
opportunities to connect the existing discontinuous road network. A large
area of Terrebonne is located on a rocky plateau characterized by steep
rimrock outcrops on the north, east and west. Roads constructed through
the rimrock have up to 10 percent grades. Many right-of-way mapped on
the rimrock cannot be developed except possibly as stairways. Some
roads end against rimrock. In addition, two irrigation canals, the lateral H
and the lateral H-1, divide the public right-of-way in many places.
2. Transportation Features. Highway 97 and the Oregon Trunk Railroad
tracks restrict east-west road connections. In the central, developed area
of Terrebonne, there are four highway crossings and two railroad
crossings.
3. Vacation. Many segments of public right-of-way, originally dedicated as
part of the Hillman Plat, have been vacated, resulting in a fragmented
network of undeveloped right of way.
Inventory of existing transportation facilities
This section contains an inventory of the existing public roads, pedestrian and
bicycle facilities in Terrebonne. The data were gathered primarily from existing
sources supplemented by site visits and aerial photographs:
Terrebonne has good transportation access. Highway 97, the north-south
state highway east of the Cascade Range, bisects the community. Highway 97
in Terrebonne has three lanes, a travel lane in each direction and a
continuous center turn lane. The traffic count on Highway 97 at "A" Avenue in
Terrebonne in 1994 was 12,500 Average Daily Traffic (ADT). The posted
speed through the community is 45 mph. Interstate truck traffic comprises a
significant percentage of the traffic mix passing through Terrebonne.
Highway 97 is intersected in Terrebonne by Lower Bridge Way and Smith
Rock Way, which function as County arterial roads. County collector roads in
Terrebonne are West 19th Street and East 1 st Street (numbered as part of the
Redmond grid) and Odem Avenue. These collectors define the west, east and
south boundaries of the Terrebonne community. "C" Avenue and 11th Street
function as collector roads in the community. Totaled, there are about 13.5
miles of roads in the community. Table D1: "Inventory of Existing Public
Roads," is organized by road functional classification, then by road name in
numerical and alphabetical order. It lists the available ADT counts provided by
the state for Highway 97 and by the County. There is additional inventory
information contained in Map D1: "Inventory of Existing Public Roads." (See
Table D1.)
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The public roads in Terrebonne (see Map D1) range in width from 20 feet to
32 feet. Some are in poor condition due to cracking, spalling, pot holes and
raveling. Lack of adequate crown and roadway drainage result in puddling.
Most of the unpaved roads need to be graded and graveled.
Pedestrian facilities
Until recently, pedestrian facilities were not provided in Terrebonne.
Terrebonne has one new sidewalk, a 700-foot, curb-tight sidewalk in the public
right-of-way on the south side of "B" Avenue west of Highway 97. The
sidewalk is curbed but lacks ramps at the three crosswalks that link it to the
north side of "B" Avenue near the school.
There is a crosswalk on "C" Avenue at 7th Street on the north side of the
school. Another crosswalk spans the highway from the north side of "B"
Avenue. All roads with crosswalks have school crossing signs. The highway
has an overhead sign with a flashing light at the "B" Avenue intersection.
All other pedestrian travel is on shared roadways with narrow or no shoulders.
The primary pedestrian destinations are the school, post office, grocery stores
and other businesses in the commercial area.
Bicycle facilities
Highway 97 south of Lower Bridge Way has a four-foot paved shoulder
bikeway. All other bike travel is on shared roadways. There are bike racks at
the Terrebonne Market and at the school.
Future transportation needs.
A bedroom community such as Terrebonne, located along a major highway,
requires a transportation network that can accommodate local traffic,
commuter traffic and regional interstate traffic without detracting from the
livability and rural character of the community. Accomplishing this goal
requires a combination of approaches and techniques, which are summarized
below in the following order:
1. A transportation network plan with roads, pedestrian and bicycle
facilities;
2. Road development standards for the Terrebonne community; and
3. Highway 97 corridor recommendations for increasing safety for local
pedestrian and vehicle traffic.
The Terrebonne transportation plan is based on conventional road functional
classifications-arterial, collector and local roads. It establishes development
standards appropriate to each type of road. The design of arterial and collector
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roads gives priority to through traffic rather than access to adjacent land uses.
On local roads the emphasis is on access to adjacent land uses.
The transportation network plan for Terrebonne identifies where new roads will
be needed and where pedestrian and bicycle facilities are warranted. The
network plan has three components: (1) Roads, (2) Sidewalks and (3)
Bikeways.
Roads. Map D2: "Planned Roads," depicts the general alignments of
transportation corridors needed in the future to complete the local road
network. The precise road alignments will be determined after further study
and engineering analysis and during the development of vacant properties.
The transportation corridors depicted on Map D2 take advantage of existing
public right-of-way, where they exist. It will be important to preserve the
existing road right-of-way. Where there are gaps in the existing network of
public right-of-way, the County will need to secure 60-foot right-of-way along
the future transportation corridors.
Sidewalks. Map D3: "Planned Pedestrian Improvements," shows where
sidewalks are needed for safety and where there are opportunities for trails.
Sidewalks provide a smooth hard surface, a safe place for pedestrians,
separated from the road. In Terrebonne, sidewalks are warranted on 11th
Street and "C" Avenue which function as collectors. Sidewalks are also
warranted on some local roads to provide access to the school. They are also
warranted in the Commercial District to provide safe places for people to walk
as the commercial area develops and redevelops. Sidewalks are warranted on
Highway 97 from Central Avenue south to 11th Street for pedestrian safety
and convenience.
Sidewalks are usually separated from the roadway by a curb and gutter, which
function as part of a storm drain system. However, Terrebonne does not have
a storm drain system. Curbs are not necessary for drainage control until
densities reach four units per acre. The highest density in Terrebonne is
approximately three units per acre. Sidewalks in Terrebonne should be
constructed without curbs and gutters, set back from the road surface behind a
drainage swale. This type of sidewalk is adequate, less costly and has a more
rural appearance. On the highway, sidewalks may have curbs and gutters and
would be buffered to help calm traffic. They may require drainage system
improvements.
A drainage swale is a broad, man-made depression running parallel to the
right-of-way, between the roadway and the sidewalk, where water can drain
into the ground. The swale also provides room for signs, mailboxes and snow
storage, leaving the sidewalk free from obstructions.
Street trees should not be planted in a drainage swale when they will conflict
with the Terrebonne Domestic Water District's existing or planned utility
trenches. These trenches are dug, often cut through rock, and lined with sand.
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In Terrebonne, where soils are shallow over bedrock, tree roots seek out the
utility trenches, both damaging pipes and conduits and complicating repair
work.
Bikeways. The network plan specifies where shoulder bikeways are needed
for bicycles to safely use arterial roads. On local roads where traffic volumes
and speeds are low, bicycles share the roadway with motor vehicles. On
arterial and collector roads that carry high traffic volumes at higher speeds,
bicycles need paved shoulders to use the roads safely.
Projects to complete the transportation network plan are grouped into three
categories listed in Table D2: "Road Projects;" Table D3: "Shoulder Projects;"
and Table D4: "Sidewalk & Trail Projects." These tables list and rank the
projects, high, medium and low priority. The priorities are based on perceived
need; they are intended to be flexible to development opportunities and grant
funding.
Road development standards
In previous years, the County required urban road development standards in
unincorporated communities in the rural County. The urban standards required
36 feet of pavement, with curb-tight sidewalks, curbs and gutters. It became
evident that this standard was not practical or necessary in Terrebonne. Few
of the existing roads in Terrebonne meet this standard. The cost per lineal foot
to build to this standard prohibited local residents from forming Local
Improvement Districts (LIDs) to improve local roads. In addition, people
resisted the urban road profile because it did not fit with the community's
preference for a rural appearance.
There are sound traffic engineering principles that support reduced road
standards. The State Transportation Planning Rule (OAR 660-12-045(7))
directs local governments to establish standards for local roads that minimize
pavement width and total right-of-way consistent with the operational needs of
the facility. Excessive standards increase the costs of construction, use up
available land and encourage inappropriate traffic volumes and speeds. In
Terrebonne, full urban road standards are not needed because the traffic
volumes and speeds on community roads are low compared to city streets.
Many roads serve only a few residences. However, the road development
standards applied in the rural County are not adequate to serve the densities
and variety of uses found in Terrebonne. Businesses, a school, a post office
and other uses generate many local trips, more than generally found in the
rural County.
Road improvement standards applicable in Terrebonne Rural Community
were developed in coordination with the community planning process, the
Oregon Department of Transportation (ODOT) Region 4, the state Bicycle and
Pedestrian Program and with the Deschutes County Planning Division and
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Chapter 4: Urban Growth Management - Rural Communities
Public Works Department. These road development standards, based on
conventional road classifications, are recognized by ODOT and the American
Association of State Highway Traffic Officials (AASHTO) for rural communities.
They apply to public right-of-way other than the state highway which is under
state jurisdiction.
Highway 97 corridor
The Terrebonne transportation plan accounts for the need to coordinate with
ODOT to assure that improvements to Highway 97 address community goals.
Highway 97 Corridor Strategy. The Deschutes County Board of
Commissioners adopted a resolution supporting the Oregon Department of
Transportation's Highway 97 Corridor Strategy (Strategy) on October 11,
1995. The Strategy guides improvements to the highway in Terrebonne. It
states that most rural sections of the highway will need to be expanded to four
lanes. However, it also states that in small rural communities, such as
Terrebonne, La Pine, Chemult and Crescent, the focus will be on slowing
traffic to posted speeds using a combination of enforcement and traffic
calming techniques.
The Strategy contains objectives relevant to balancing the needs of local traffic
and through traffic on Highway 97. State objectives seek to maintain the
function of the state highway to efficiently transport regional and interstate
travelers and freight, but also recognize that a community needs to safely and
conveniently use the highway. To protect the function of a major highway, it is
often necessary to limit access and control turning movements. When carefully
implemented, these measures combined with traffic calming, can improve
safety for local traffic, particularly pedestrians, because they slow traffic, guide
turning movements and improve pedestrian crossing areas. However, these
techniques can make accessing local businesses from the highway more
difficult.
The Strategy encourages local land use and transportation plans to orient
commercial development and access on to parallel local road, such as 11th
Street in Terrebonne, as an alternative to using the highway as the main
commercial road. This objective addresses the difficulty of maintaining the
function of a major highway and at the same time making it a safe, convenient
community main street. The Strategy objectives, if met, may help reduce the
need to add travel lanes to the highway in Terrebonne and encourage
improvements to alternative commercial roads in the community.
Design for Highway 97 in Terrebonne. The existing three-lane highway with a
center turning lane, splits the community in half and is dangerous to cross.
The Deschutes County Comprehensive Plan for Terrebonne directs
commercial development to the east side of the highway and designates and
zones the land on both sides of 11 th Street for commercial uses. There is
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widespread community support for improved pedestrian crossing places on
Highway 97, particularly at the "B" and "C" Avenue intersections and for
slowing traffic on the highway to posted speeds. A feasible design for Highway
97 in Terrebonne is illustrated on Map D3: "Planned Pedestrian
Improvements" and Figure D1: "Highway 97 Cross-Section." The estimated
cost for a typical facility built in Oregon includes engineering, installation,
minor contingencies, striping and signing. The cost does not include
administration, special grading and fill operations, unusual construction (e.g.
bridges and tunnels) or land acquisition. Estimated costs are particularly useful
for comparing projects.
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Chapter 4: Urban Growth M
Rural Communities
Tumalo Goals
Transportation Goals
ment - Rural Communities
Goals & Policies
The livability of the Tumalo community depends on the ability of the
transportation network to provide safe and convenient access in the residential
and commercial areas and to the Tumalo elementary school. The community
reached consensus on the following transportation goals.
1. Improve the access from Cook Avenue to and across Highway 20
2. Reduce truck traffic through the community
3. Provide safe pedestrian walkways in the commercial core and to the
school
4. Provide road standards that are practical and cost effective to construct
and maintain
5. Provide shoulders on county roads
Tumalo Policies
Land use policies
General land use policies
1. Land use regulations shall conform to the requirements of OAR 660
Division 22 or any successor.
2. County plans and land use regulations shall ensure that new uses
authorized within the Tumalo Rural Community do not adversely affect
agricultural uses in the surrounding exclusive farm use zones. Zoning
regulations shall require any new structure on land contiguous to EFU-
zoned land which is receiving special assessment for farm use to be set
back 100 feet from the common property line.
3. To protect scenic views visible from the community, adequate setbacks
shall be required for homes built along the rim forming the Deschutes
River Canyon and Laidlaw Butte.
4. Uses such as parks and open space shall be encouraged, and where
feasible, the County should acquire those lands as open space.
5. Public access to the river shall be preserved.
6. Publicly owned lands along the river should remain as open space.
7. The County shall encourage the preservation of historical structures such
as the Laidlaw Bank and Trust (1910), and the Tumalo Community
Church (1907).
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Residential District policies
8. Areas designated residential on the comprehensive plan map shall be
designated a corresponding residential district on the zoning map.
9. Lands designated Residential shall be in proximity to the commercial
area, while the lands designated Residential 5 acre will be on the
perimeter of the community. The higher density lands designated
Residential shall remain in the bowl formed by the Deschutes River
canyon.
10. Livestock shall be permitted in the residential districts subject to use
limitations.
11. The County shall plan and zone for a diversity of housing types and
densities suited to the capacity of the land to accommodate water and
sewage requirements.
Commercial District policies
12. Allow small-scale commercial uses in conformance with the
requirements of OAR Chapter 660, Division 22, and larger more intense
commercial uses if they are intended to serve the community, the
surrounding rural area and the travel needs of people passing through
the area.
13. Allow small-scale industrial uses in conformance with the requirements
of OAR Chapter 660, Division 22.
14. Where there is a choice to use a road other than Highway 20 for access,
access shall not be taken from Highway 20.
15. Design standards in the commercial district should encourage new
development that is compatible with the rural character of the community
and to reduce negative impacts on adjacent residential districts.
16. Livestock shall not be permitted in the commercial districts.
17. No additional lands shall be designated Commercial shall until the next
periodic review.
18. Residential uses or residences in conjunction with uses listed in the
commercial districts shall be allowed, but they are not intended to
predominate or set development standards for others uses in the
commercial district.
19. Approval standards for conditional uses in the commercial district shall
take into account the impact of the proposed use on the nearby
residential and commercial uses and on the capacity of the
transportation and other public facilities and services to serve the
proposed use.
20. Replatting for residential purposes shall not be allowed in the commercial
district.
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Chapter 4: Urban Growth Management- Rural Communities
Industrial District policies
21. Only the following new or expanded industrial uses shall be allowed in
unincorporated communities:
a. Uses authorized under Goals 3 and 4; [Farm and forest uses]
b. Expansion of a use existing on the date of this rule;
c. Small-scale, low impact uses;
d. Uses that require proximity to rural resource, as defined in OAR 660-
004-0022(3)(x);
e. New uses that will not exceed the capacity of water and sewer
service available to the site on the effective date of this rule, or, if
such services are not available to the site, the capacity of the site
itself to provide water and absorb sewage;
f. New uses more intensive than those allowed under subsection (a)
through (e) of this section, provided an analysis set forth in the
comprehensive plan demonstrates, and land use regulations ensure:
i. That such uses are necessary to provide employment that does
not exceed the total projected work force within the community
and the surrounding rural area;
ii. That such uses would not rely upon a work force employed by
uses within urban growth boundaries; and
iii. That the determination of the work force of the community and
surrounding rural area considers the total industrial and
commercial employment in the community and is coordinated
with employment projections for nearby urban growth
boundaries.
Public facility planning policies
22. Residential minimum lot sizes shall be determined by the capacity of the
land to accommodate available water and sewer facilities, in order to
protect and promote public health and safety and to provide the efficient
public facilities and services.
23. The County shall encourage quality fire protection in the rural community
of Tumalo.
24. The County shall encourage early planning and acquisition of sites
needed for public facilities (e.g. school, roads, water supply facility).
25. The County shall encourage all development within the Laidlaw Water
District to connect to the system.
26. The County shall support replatting of lots in the area comprising the
Laidlaw Plat and outside the lands designated commercial to create lots
large enough to accommodate a DEQ approved on-site sewage disposal
system.
27. The County shall support the protection of the Tumalo Town Ditch
easement and its distribution system.
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28. The County shall support the development and management of the
domestic water system for the Tumalo community so that cumulative
development will not result in public health hazards of adverse
environmental impacts that violate state or federal water quality
regulations.
Transportation policies
Road Network Policies
29. The County shall adopt a Transportation System Plan for Deschutes
County that incorporates adopted policies and standards for the Tumalo
Rural Community.
30. The County shall explore the potential for alternate truck routes to reduce
the impacts of traffic through the Tumalo Rural Community.
Road and sidewalk development policies
31. The County shall implement road development standards for the Tumalo
Community that minimize pavement width and are consistent with the
rural character of the community.
32. Specific street segments in the Tumalo Rural Community have been
identified as priorities for improvement projects listed in Table D2. These
priorities shall be flexible in order to take advantage of land development
and grant funding opportunities.
33. Provide functional, cost effective sidewalks that are consistent with the
rural character of the community.
34. Provide sidewalks where they are needed for safety, as set forth in Map
D2.
35. Where sidewalks are specified on community roads, they shall be
constructed without curbs and gutters, set back from the road surface
behind a drainage swale at a distance from property lines to allow room
for utilities.
Highway 20 policies
36. The County shall support the Oregon Department of Transportation
efforts to implement both short and long-term improvements to solve the
Cook Avenue/Highway 20 intersection safety and access problems.
37. The County shall consider the realignment of O.B. Riley Road through
the Bend Aggregate site and coordinate with the Oregon Department of
Transportation at its intersection with Highway 20.
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Rural Communities Profile
Tumalo Background
Historical
Tumalo is located in the north central portion of Deschutes County, less than 3
miles northwest of the city limits of Bend. Situated at an altitude of
approximately 3,200 feet, the community of Tumalo lies in the middle portion
of the Upper Deschutes River Basin (river mile 157). The commercial core of
Tumalo lies on the alluvial bowl bounded by the Laidlaw Butte on the west and
the bluff of the Deschutes River canyon on the east. The Deschutes River
bisects the community.
Originally named Laidlaw, Tumalo was platted by the Laidlaw Townsite
Company in 1904. The development of Tumalo began in 1899 with
incorporation of the Three Sisters Irrigation Company. Under the Carey Act,
they made plans to divert water from Tumalo Creek and the Deschutes River
in order to irrigate 60,000 plus acres of desert land. Town founder, A.W.
Laidlaw of Portland, and his investors believed that Tumalo would become the
heart of Central Oregon. There was reason to be optimistic due to the fact the
railroad was coming north up the Deschutes River Canyon, which would
undoubtedly follow the river into their newly platted town, and the proposed
railroad to be built up the North Santiam River and across the mountains
would surely guarantee the town's success. Neither of these projects came to
fruition.
Out of nearly 900 lots platted, a third were sold by 1907. In those early days,
Tumalo had a weekly newspaper, a barbershop, a two-story hotel, two lawyer
offices, a wallpaper company, a bakery, two feed stores and a bank. As the
town grew, it became its own voting precinct with 65 registered voters to
Bend's 66 in 1906. By 1909, Laidlaw, being called Tumalo on occasion, still
had hopes of being the junction of the two railroads, the new "metropolis" of
Central Oregon. However, at the time the Columbia Southern Railroad still
ended in Shaniko, and the Corvallis and Eastern rails were still stalled at the
foothills on the western side of the Cascades, where they had been for
approximately 15 years. With the announcement that the railroad was coming
to Bend not Laidlaw, Bend moved ahead in population by 1910. As a result,
the population in Laidlaw decreased to 250 people and many businesses
moved to Bend. The small town was known as Laidlaw for only six years when
the Laidlaw post office was closed in 1913. The post office eventually
reopened in 1923 as the Tumalo post office and thus the name of the town
was forever changed.
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Community profile
Tumalo is a rural community near Bend with a mix of residential, commercial,
and nearby employment, including gravel quarries and a high tech research
company. It functions as a bedroom community for Bend. Historical population
data have not been compiled. The 1990 US Census for the Tumalo area totals
approximated 325 persons. County Assessors data show 172 dwellings within
the Tumalo community boundary. According to the Deschutes County Land
Use Inventory (October 1995) Tumalo had 155 lots. Using the 1990 Census
data of 2.54 persons per household, the population figure ranges from
approximately 393 to 436. According to the Redmond School District, the
Tumalo Elementary School has experienced an influx of younger children in
recent years. Although figures indicating the demographic mix for the Tumalo
area are not available, the population appears to be a mix of families and
retirees, with an average or above number of children (non-drivers).
Population and growth
The population for Tumalo has been extrapolated from four sources: the 1990
Census, the Deschutes County Unincorporated Land Use Inventory (October
1995), and the Residential/Vacant Lands map generated by the Deschutes
County GIS data. The fourth source is a refinement of the 1995 Land Use
Inventory projection for Tumalo contained in the Deschutes County Non-Urban
Population Capacity Projection (November 8, 1996).
In review of the 1990 US Census for Tumalo area, the population totaled
approximately 325 persons. Historical population data for Tumalo has not
been collected. However, the Tumalo Elementary School has experienced an
influx of younger couples with children replacing retirees who have moved out
of the area. The Tumalo elementary school has approximately 301 students at
the present time with a capacity of approximately 400 serving grades K
through 5th. According to the Deschutes County Land Use Inventory (October
1995) Tumalo had 155 developed lots. Using 1990 Census data of 2.54
persons per household, the population figure would be 393. Again, this does
not take into account percentages of retirement population and second homes
in the Tumalo area. According to the GIS Parcel basemap (Assessors data),
the developed lots in Tumalo equal 172. Using the 1990 Census figure of 2.54
persons per household, this population figure is approximately 436.
The rate of future population growth in Tumalo is difficult to estimate because
growth is limited due to the substandard platted lots of the Laidlaw Platt as
well as the difficulty in extrapolating data for the specific boundary of Tumalo.
Deschutes County projects a countywide growth rate of 4.5 percent until the
year 2000. Recent estimates for all unincorporated areas of Deschutes County
(excluding unincorporated urban growth boundary lands of Sisters, Redmond
and Bend) indicate a growth rate of 4.8% annual growth between 1990-1995.
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Chapter 4: Urban Growth Management - Rural Communities
Periodic review
In the fall of 1994, the Land Conservation and Development Commission
adopted a new administrative rule, OAR 660.22, Unincorporated Communities.
As part of 1996-97 periodic review, the County updated the Comprehensive
Plan and implementing regulations for Tumalo to comply with the rule.
Rural Community
Tumalo meets the definition of a Rural Community because it is primarily a
residential community, which also has a school, church, and a handful of local
businesses that serve the community, the surrounding rural area or persons
traveling through the area. The comprehensive plan designates Tumalo as a
Rural Community and provides for its growth and development accordingly.
Tumalo Rural Community boundary.
The 1979 Deschutes County Comprehensive Plan designated Tumalo a Rural
Service Center, a Goal 3 and 4 exception area, consisting of 491 acres and
288 tax lots. The 1979 Tumalo Rural Service Center boundary included the
Laidlaw Plat, the southeast flank of Laidlaw Butte north of Bailey Road, the
area east of the Deschutes River on the north and south sides of Tumalo
Road, six lots of the Winston Ranch subdivision on the east bluff of the
Deschutes River canyon and seven parcels located north of Putnam Lane.
During the 1997 update, the Tumalo Rural Community boundary was
amended in the following ways to include 504.11 acres and 321 tax lots (See
Map A).
1. A parcel comprising ten acres was the subject of a zone change, plan
amendment and minor partition in 1980, File #ZC-PA/80-1. This parcel is
located approximately'/ mile north of the existing boundary on the
between Cline Falls Highway and the west bank of the Deschutes River.
The plan designation for this area was changed from Rural Service
Center to Rural Residential Exception Area.
2. An area consisting of 33 lots of the Deschutes River Homesites
subdivision was changed from a plan designation of Rural Residential
Exception Area to Rural Community- Residential 5 acre. In addition, the
strip of land that is located between Cline Falls Highway and the
Deschutes River that links the previous Tumalo Rural Community
boundary to the lots adjacent to Beaver Lane was included within the
boundary and designated Residential 5 acre.
3. One tax lot north of Putnam Lane, on the west side of Hopper Road
which comprises the northern lot of the Rockwood Subdivision, was not
included with the other seven lots located within the boundary. The plan
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designation for this area was changed from Rural Residential Exception
Area to Residential 5 acre.
4. The community boundary was refined to coincide with parcel lines along
the east rim of the Deschutes River canyon and along the eastern
channel of the Deschutes River. The plan designations for these
adjustments were changed from "Residential-5 acre" to Rural Residential
Exception Area and Agriculture. The southern boundary of the
community was refined to coincide with the southern extension of the
TuR5 and TuR zoning and a floodplain designation
In 1999, the boundary of the community was revised to exclude tax lots 2301,
2300 and 2600 that were inadvertently excluded from the mining processing
operations conducted by Bend Aggregate and Paving for many years. These
parcels were mistakenly included in the community boundary in 1997. The
community boundary without these tax lots, now includes a total of 318 tax
lots. Each of the community maps in the comprehensive plan was revised in
1999 to reflect this boundary change.
Land use planning.
Existing land uses.
The predominant land use in Tumalo is single-family residences. Commercial
land uses include a market, restaurants, real estate offices, a small
commercial/retail complex, and various other small-scale retail businesses
located in the core of the community along Cook Avenue. There is a fire
station, an irrigation district office, a church and an elementary school.
Land bordering Tumalo is zoned Exclusive Farm Use (EFUTRB)
Tumalo/Redmond/Bend Subzone, Multiple Use Agriculture (MUA10 - 10 acre
minimum lot size), Floodplain (FP) and Surface Mine (SM). The Deschutes
County Comprehensive Plan designates EFU land for Agriculture uses and
MUA10 and RR10 land for Rural Residential uses. The EFU land surrounding
Tumalo is employed in large-lot, irrigated agricultural uses, whereas the
MUA10 land is parcelized and developed with rural residences and small-
scale agricultural uses.
A land use inventory using the County Assessor's data (GIS parcel basemap)
is shown in Table B.
Land
Use Inventory Tumalo Rural Commun
ity
Assessors Property
Class
Total Tax Lots
Developed Tax Lots
Vacant Tax Lots
Miscellaneous
15
2
13
Commercial
63
26
37
Industrial
I
1
0
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Tract
181
138
43
Exempt
28
5
23
Total Tax Lots
288
172
116
Source: Deschutes County Planning Division
Zoni
ng Inventory Tumal
o Rural Communit
y
Zoning District
Total Tax Lots
Developed Tax Lots
Vacant Tax Lots
RD
2
1
1
RSC
48
32
16
RSRM
190
113
77
RSRS
48
26
22
Total Tax Lots
288
172
116
Source: Deschutes County Assessors Database, March 19, 1997 & Deschutes County PW GI5 Parcel t3asemap, March i 9,
1996
Comprehensive Plan designations
The Deschutes County Comprehensive Plan for the Tumalo Rural Community
has the following six comprehensive plan designations (See Map B).
1. Residential District. At the time of adoption, the boundary of the
Residential district coincided with the boundary of the old Laidlaw Plat
including the Deschutes River Homesites plats between Riverview
Avenue and the Deschutes River. It also includes the area surrounding
the Bend Aggregate site south of Highway 20. It is intended to
accommodate higher density residential uses
2. Residential 5-Acre District. The lands designated Residential-5 acre
minimum included the larger parcels of land to the east across the
Deschutes River and to the west on the slope of Laidlaw Butte. This plan
designation is intended to remain in large parcels to maintain the rural
character of the community.
3. Commercial District. In general, the Commercial plan designation
extends north from the intersection of Cook Avenue and Highway 20 to
3rd Street between Wood and Wharton Avenues. The Commercial lands
also comprise a portion of land west of Highway 20 between 5th and 8th
Streets. The commercial plan designation was intended to accommodate
a mixture of small-scale commercial and limited industrial uses that serve
the rural community of Tumalo. The core commercial area was intended
to focus on the area adjacent to Cook Avenue north of Highway 20. The
Commercial Land designation was expanded to accommodate a section
of land between Cook Avenue and Wharton Avenue that extends south
to Highway 20. This area includes the "Tumalo Mall", an existing
commercial/retail complex. The use of this building has been authorized
as a nonconforming use (1986), and subsequent site plan alteration in
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1987/88. The purpose of the commercial lands expanding to include this
parcel is to bring the uses specified in the previous land use decisions
into compliance with the uses allowed in the commercial zone. This
complex contains one existing business which occupies 2/3 of the
building.
4. Research Development District (RD). This plan designation contains two
parcels in one ownership located on the southeast slope of Laidlaw Butte
to the west of Tumalo. This plan designation was originally created to
accommodate a research and development site, its associated uses
predating the county 1979-zoning ordinance and its compatibility with the
rural character of the area.
5. Floodplain District (FP). This plan designation contains the previous
Floodplain designation that follows the channel of the Deschutes River
that bisects the Tumalo Rural Community. The Floodplain Zone is
identified by the Federal Insurance Administration as areas of special
flood hazard in the report entitled "The Flood Insurance Study for
Deschutes County, Oregon and Incorporated Areas," dated August 16,
1988.
6. Industrial District Jul). The Tul plan designation was established to
recognize nonconforming industrial uses related to surface mining
activities located outside of the Surface Mining zone in the Tumalo Rural
Community.
Public facility planning
Tumalo Rural Community is served by the following special districts.
1. Laidlaw Water District
2. Deschutes County Rural Fire Protection District #2
3. Redmond School District #2J
4. Tumalo Irrigation District
5. Tumalo Town Ditch
Water
The area previously identified as the Tumalo Rural Service Center (RSC) has
two water sources.
The Laidlaw Water District serves the area identified as the old Laidlaw Plat,
and the area described as T16S R12E section 29 (W1/2 SW1/4), section 30
(E1/2 SW 1/4), (SW 1/4 SE 1/4), section 31(NE1/4, N1/2 SE1/4).
The Tumalo Town Ditch is the original source of water which has water rights
dating back to 1924 and 1938. The system consists of 3 miles of ditch that
begins near the bridge at Tumalo State Park, and runs along the river as a
ditch crossing Bailey Road at the Tumalo Feed Company Restaurant,
continuing under Highway 20 to the commercial district of the Tumalo
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Chapter 4: Urban Growth Management - Rural Communities
community. The Tumalo Town ditch is used for irrigation purposes only,
serving approximately 35 customers.
During the 1997 plan update, the Oregon Department of Water Resources
commented that there is an abundant supply of potable water in multiple water
bearing zones based upon a report prepared by a geologist for the Oregon
Department of Geology and Mineral Industries, "Geology and Mineral
Resources Map of the Tumalo Dam Quadrangle". Limitations are imposed by
the lack of capacity of domestic pumps, not the capacity of the aquifer. The
department has not identified Tumalo Rural Community as a groundwater
limited or groundwater critical area. The Laidlaw Domestic Water District
currently depends on two groundwater wells. The District's groundwater
source does not exceed current EPA maximum contaminant limits. No
treatment is performed; none has been required by the state Health Division. A
proposed EPA groundwater disinfection rule would require continuous
disinfection of the water supply. The area in the Tumalo Rural Community that
is outside the District's boundary relies on individual wells for drinking water.
The Water Resources Department routinely approves new groundwater wells
in this area of the Tumalo Rural Community.
Sewer
Tumalo does not have a community sewer system or a sewer facility plan.
Land uses in the Tumalo Rural Community rely on on-site sewage disposal
systems of all ages and descriptions, ranging from newer sand-filter systems
to old drainfields. In some cases on-site systems are insufficient for current
needs. According to the Environmental Health Division, past experience has
indicated most of the soils in the area would fall under the category of rapidly
draining soils. Based upon the most restrictive parameter of on-site
administrative rules require a minimum lot size of one-half acre per single-
family dwelling. This standard is based upon a projected sewage rate not to
exceed 450 gallons per day. This is the loading rate pursuant to OAR 340-71-
290(3)(c) and 340-71-275(3). A standard septic system is not feasible on
smaller lots because of the alluvial soil profile (rapidly draining soils). It is often
necessary to install a relatively expensive sand-filter system in order to obtain
development permits for new development or for alterations to existing
buildings. There are a few tax lots that cannot be developed or redeveloped
because they are too small to accommodate any approved on-site sewage
disposal system.
The County plan and zoning regulations restrict the type and intensity of
allowed uses to those which can be served by a DEQ approved on-site
sewage disposal systems. The County does not allow uses or densities that
are unable to obtain a permit for a DEQ approved on-site system. In addition,
County-zoning regulations set minimum lot sizes to ensure the on-site systems
do not exceed the soils' capacity of treating wastewater effluent. Accordingly,
the Environmental Health Division has stated its adherence to the minimum
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Chapter 4: Urban Growth Management - Rural Communities
loading rates addressed in the DEQ on-site rules and the minimum lot size
requirements in the zoning ordinance. Due to these provisions, a public facility
plan is not necessary.
Other
During the 1997 update, local residents' expressed strong support for retaining
the existing fire station in the rural community of Tumalo. The Planning
Commission recommended a policy encouraging the continued presence of
the fire station in Tumalo. However, the Board of County Commissioners
understands that such a specific policy would be beyond its jurisdiction and
control. The Board has addressed the community's concerns about fire
protection in Tumalo by adopting a more general policy statement. Inclusion of
this policy statement in the county's comprehensive plan should not be
misconstrued as an endorsement for or against a fire station in the community
but a mere finding that at this point in time, a large number of Tumalo
residents believe that a fire station presence is necessary.
Transportation in Tumalo
The Transportation plan addresses the transportation concerns of the Tumalo
community. The plan meets the requirements of the state Transportation
Planning Rule - OAR Chapter 660, Division 12, by designating a network of
local roads, sidewalks and bikeways with associated road development
standards.
Community transportation goals
The livability of the Tumalo community depends on the ability of the
transportation network to provide safe and convenient access in the residential
and commercial areas and to the Tumalo elementary school. The community
reached consensus on the following transportation goals.
Collision data
There were 38 reported collisions on Highway 20 near Tumalo during the 10
year period from 1986 to 1995. There were 42 injuries and 1 fatality. Of the 38
crashes, 17 occurred at intersections, with seven at Cook Avenue and eight at
7th Street. The majority of crashes (27) were during daylight. Eight incidents
involved a wet surface and 10 involved trucks; no pedestrians or bicyclists
were involved. These numbers place this segment of Highway 20 below the
state average for accident rates.
Constraints on the transportation system
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Chapter 4: Urban Growth Management - Rural Communities
Topographic Features: Tumalo is located on the valley floor of the Deschutes
River canyon, bounded by rimrock on the west and east. Laidlaw Butte forms
the other significant topographic feature to the west of Tumalo. The rimrock
and river limit the opportunities for a network of continuous streets.
Transportation Features: Highway 20 runs north northwest through Tumalo
and limits east west street connections. There are 3 accesses to the highway:
5th Street, 7th Street/Bailey Road, and Cook Avenue/O.B. Riley Road.
Drainage: Pavement runoff is handled by direct absorption into the soil since
there is no community storm drain or sewer system. This affects street design
especially the use of curbs, paved surfaces, and landscaping. Special
attention must be given to drainage needs and runoff into the Deschutes
River.
Inventory of existing transportation facilities
This section contains an inventory of the existing public roads and pedestrian
and bicycle facilities in Tumalo. These data were gathered primarily from the
County Department of Public Works database supplemented by site visits and
aerial photographs.
Roads
The essential component of the region's transportation system is U.S.
Highway 20 which runs diagonally through the community. Highway 20 has
three lanes, a travel lane in each direction and a continuous two-way center
left-turn lane. The traffic count at the intersection of Highway 20 and Cook
Avenue in 1996 was 7600 average daily traffic (ADT). The posted speed on
Highway 20 through Tumalo is 55 mph. Intrastate truck traffic and local truck
traffic serving nearby mining operations comprise a significant percentage of
the traffic mix.
O.B. Riley Road, which is outside the community boundary, is a rural arterial
which intersects Highway 20 from the south directly across from Cook Avenue.
This road bisects the gravel mining operation that abuts Highway 20.
County collector roads include Bailey, Cline Falls, Cook, and Tumalo which all
intersect Highway 20 in the central portion of Tumalo. Cline Falls feeds into
Tumalo from the north, Tumalo Road from the east, and Bailey Road feed into
the community from the south. There are approximately 4.7 miles of roads in
Tumalo.
Table D1 (Inventory of Existing Roads), is organized by functional
classification, road name and alphabetical order. The available (ADT) counts
provided by the county and state are listed.
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The public roads in Tumalo (see Map D1) range in pavement width from 20
feet to 24 feet. Some streets (e.g., Riverview Ave.) are in poor condition (i.e.
cracking and pot holes). Most unpaved roads need grading and a fresh layer
of gravel.
Pedestrian facilities
There are no sidewalks or trails in Tumalo. The bridge on Tumalo Road has a
walkway on its north side. There are two designated crosswalks, one on Cline
Falls Road on the north side of the Tumalo Road intersection and the other on
Cook Avenue on the north side of the 4th Street intersection. Cline Falls Road
is signed for 20 mph if children are present because of the nearby elementary
school (the normal speed limit is 35 mph). All other pedestrian travel is on
roadways with narrow or no shoulders.
Except for the school grounds, Tumalo lacks public space such as a park,
square or commons to which pedestrians could use. There is undeveloped
public access to the river from Tumalo Road. The primary trip attractors are
the school, a church and the small commercial area (gas station, market, and
restaurant). There is also a restaurant on the west side of Highway 20.
Bicycle facilities
Highway 20 has a four-foot paved bikeway shoulder. All other bicycle travel is
on shared roadways. Cline Falls Road and Cook Avenue are popular
recreational routes. There are bicycle racks at the school.
Future transportation needs
A rural community such as Tumalo, located on a major highway, requires a
transportation network that can accommodate local, commuter, regional, and
interstate traffic without detracting from the community's livability and rural
character. Accomplishing this goal requires integrated street, bicycle and
pedestrian networks, appropriate street standards, and safe access to the
Highway 20 corridor.
The Tumalo transportation plan is based on conventional road functional
classifications: arterial, collector and local roads. It establishes the roles and
development standards appropriate to each type or road. The design of
arterial and collector roads gives priority to through traffic over access to
adjacent land uses. On local roads the emphasis is on access to adjacent land
uses.
Transportation network plan
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The transportation network plan for Tumalo identifies where the roads need to
be improved and where pedestrian and bicycle facilities are warranted. The
network plan has three components: roads, sidewalks and bikeways.
Roads. Central Tumalo is a relatively compact area without need for additional
public streets; infill will access existing road networks. For the roads depicted
on Map D2, planned improvements take advantage of existing public right-of-
way, where it exists. Lands in the low density areas are served by existing
public right-of-way which are unpaved, non-maintained public roads (Beaver
Lane, Putnam Lane and Hopper Road) and private drives (Research Road,
Winston Loop Road). Map D2 also depicts the roads that need improvement to
serve the local road network and through traffic corridors.
Sidewalks. Map D2 shows where sidewalks are needed for safety and
identifies a potential opportunity for a trail extending south along the west side
of Deschutes River. In Tumalo, a sidewalk network is needed along Cook
Avenue, 4th, 5th, 7th and 8th streets to access the school and provide safe
places for people to walk in the commercial area as it develops. Sidewalks
are usually separated from the road by a curb and gutter, which function as
part of the storm drain system. Tumalo does not have a storm drain system.
As an alternative, sidewalks in Tumalo shall be constructed without curbs and
gutters and set back from the road surface behind a drainage swale. This type
of sidewalk design is adequate, less costly and is consistent with the rural
character of Tumalo. A drainage swale is a broad, man-made depression
running parallel to the right-of-way between the roadway and the sidewalk,
where water can drain into the ground. The swale also provides room for
signs, mailboxes, and snow storage, leaving the sidewalk free of obstructions.
Bikeways: Two types of bikeways are appropriate in rural areas: A shared
roadway for local roads with low traffic volumes and speeds, and a paved
shoulder bikeway for collectors and arterials suitable to accommodate higher
volumes and speeds or significant truck traffic. In Tumalo, paved shoulder
bikeways are needed on Cline Falls Highway/Cook Avenue, Tumalo Road and
Bailey Road which are County collector roads. A bicycle connection from O.B.
Riley south to Tumalo State Park is also needed (see Map D2).
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Highway 20
The intersection of the Highway 20 and Cook Avenue has been identified by
the community as a traffic safety hazard. The Oregon Department of
Transportation (ODOT) will have the lead authority to develop a solution to the
realignment of this intersection. Preliminary designs have been presented to
the Tumalo community. The County will work with ODOT to provide a solution
to this intersection and to the connecting network of County roads which
includes the realignment of O.B. Riley Road through the existing mining
operation on the south side of Highway 20.
Projects to complete the transportation network plan are listed in Table D2.
The tables list the type of improvement and the associated cost. The priorities
are based upon perceived need while being flexible to grant funding or
development opportunities.
Road development standards
In recent years, urban street development standards were required in
unincorporated communities within the county. The urban standards required
36 feet of pavement, with curb tight sidewalks, curbs and gutters. It became
evident that this standard was not practical or necessary in Tumalo. None of
the existing roads in Tumalo meet this standard. The cost to build to this
standard prohibited local residents from forming Local Improvement Districts
(LIDs). In addition, people resisted the urban street profile because it did not fit
with the community's preference for a rural appearance.
There are sound traffic engineering principles that support reduced street
standards. The State Transportation Planning Rule (OAR 660.12.045(7))
directs local governments to establish standards for local streets that minimize
pavement width and total right-of-way consistent with the operational needs of
the facility.
Excessive standards increase the costs of construction, use up valuable land,
encourage inappropriate traffic volumes and speeds and create a problem
channeling storm water runoff. In Tumalo, full urban road standards are not
needed because the traffic volumes and speeds, on roads in the community
are low compared to city streets. Many roads serve only a few residences.
However, existing County rural road standards are not adequate to serve the
densities and variety of uses found in Tumalo. Local businesses and the
elementary school generate more local trips than normally found in the rural
county.
Instead, Tumalo's road standards are intended to decrease the cost of road
improvements and to remove barriers to the formation of LIDs. The Tumalo
Rural Community road development standards were developed in coordination
with the community planning process, the Oregon Department of
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Chapter 4: Urban Growth Management - Rural Communities
Transportation (ODOT) Region 4, the state Bicycle and Pedestrian Program
and with the County Planning Division and Public Works Department. These
road standards are consistent with ODOT and the American Association of
State Highway Traffic Officials (AASHTO) standards for rural communities.
They apply to public right-of-way other than the state highway which is under
state jurisdiction.
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Chapter 4: Urban Growth Management - Rural Communities
Resort Communities
Black Butte Ranch Goals
No goals have been defined for the Black Butte Ranch Resort Community
Black Butte Ranch Policies
General resort community policies
1. Land use regulations shall conform to the requirements of OAR 660
Division 22 or any successor.
2. County comprehensive plan policies and land use regulations shall
ensure that new uses authorized within the Black Butte Ranch Resort
Community do not adversely affect forest uses in the surrounding Forest
Use Zones.
3. Designated open space and common area shall remain undeveloped
except for community recreation uses. Areas developed as golf courses
shall remain available for that purpose or for open space/recreation uses.
4. The provisions of the Landscape Management Overlay Zone shall apply
in Resort Communities where the zone exists along Century Drive,
Highway 26 and the Deschutes River.
5. Residential minimum lot sizes and densities shall be determined by the
capacity of the water and sewer facilities to accommodate existing and
future development and growth.
6. The resort facility and resort recreation uses permitted in the zoning for
Black Butte Ranch and the Inn of the Seventh Mountain/Widgi Creek
shall serve the resort community.
Black Butte Ranch policies
7. The County supports the design review standards administered by the
Architectural Review Committee.
8. Residential, resort and utility uses shall continue to be developed in
accordance with the Master Design for Black Butte Ranch and the
respective Section Declarations.
9. Industrial activities, including surface mining, shall only occur in the area
zoned Black Butte Ranch Surface Mining, Limited Use Combining
District (Black Butte Ranch SM/LU) located in the northwest corner of
Black Butte Ranch.
10. Employee housing shall be located in the area zoned Black Butte Ranch-
Utility/Limited Use Combining District (Black Butte Ranch-U/LU).
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11. Any amendment to the allowable use(s) in either the Resort Community
District or the Limited Use Combining District shall require an exception
in accordance with applicable statewide planning goal(s), OAR 660-04-
018/022 and DCC 18.112 or any successor.
12. The westerly 38-acres zoned Black Butte Ranch Surface Mining, Limited
Use Combining District (Black Butte Ranch SM/LU) shall be used for the
mining and storage of aggregate resources. Uses that do not prevent the
future mining of these resources, such as disposal of reclaimed effluent
and woody debris disposal from thinning and other forest practices ma
be allowed concurrently. Other resort maintenance, operational and
utility uses, such as a solid waste transfer station, maintenance facility or
equipment storage may be allowed only after mining and reclamation
have occurred.
13. The 18.5 acres zoned Black Butte Ranch-Utility/Limited Use Combining
District (Black Butte Ranch-U/LU) may be used for the disposal of
reclaimed sludge.
14. The area west of McCallister Road and east of the area zoned Black
Butte Ranch may be used for large equipment storage, general storage,
maintenance uses, RV storage, telephone communications,
administration offices, housekeeping facilities and employee housing.
15. Employee housing shall be set back at least 250 feet from the eastern
boundary of the area zoned Black Butte Ranch Surface Mining, Limited
Use Combining District (Black Butte Ranch SM/LU).
Surface mining within the Black Butte Ranch community
boundary shall adhere to the following Goal 5 ESEE
"Program to Meet Goal" requirements:
16. Only the western most 38 acres of the site shall continue to be mined.
17. Setbacks shall be required for potential conflicting residential and other
development. A minimum 50-foot setback shall be maintained from the
perimeter of tax lot 202 for all surface mining activity.
18. Noise impact shall be mitigated by buffering and screening.
19. Hours of operation shall be limited to between 7:00 a.m. and 6:00 p.m.
weekdays. No operations shall be allowed on weekends and holidays.
20. Processing shall be limited to 45 days in any one year, to be negotiated
with Deschutes County in the site plan process in consultation with the
Oregon Department of Fish and Wildlife (ODFW).
21. The conditions set forth in the August 10, 1989, letter of ODFW shall be
adhered to.
22. Extraction at the site shall be limited to five acres at a time with on-going
incremental reclamation (subject to DOGAMI review and approval).
23. Mining operations, siting of equipment, and trucking of product shall be
conducted in such a manner that applicable DEQ standards are met and
minimizes noise and dust.
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24. DOGAMI requirements for a permit once mining affects more than five
acres outside the 8.6-acre exemption are shall be met.
25. A conditional use permit shall be obtained from Deschutes County, under
the provisions of section 18.128.280. Surface mining of resources
exclusively for on-site personal, farm or forest use or maintenance of
irrigation canals, before mining activity affects more than five acres
outside the 8.6-acre exempt area.
Public Facilities
26. Police protection services for both communities shall be provided under
contract with the Deschutes County Sheriff.
27. The Black Butte Ranch Water Distribution Company and the Black Butte
Ranch Corporation shall confirm the water and sewer service,
respectively, can be provided for new uses or expansion of existing uses
that require land use approval.
28. The Black Butte Ranch Water Distribution Company shall provide water
service for the Black Butte Ranch Resort Community.
29. The Black Butte Ranch Corporation shall provide sewer service for Black
Butte Ranch.
30. The Black Butte Ranch Fire Protection District shall provide fire
protection services for Black Butte Ranch.
31. The roads and the bicycle/pedestrian path system within the Black Butte
Ranch Resort Community boundary shall be maintained by the Black
Butte Ranch Owners Association.
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Resort Communities Profile
Black Butte Ranch Background
A Resort Community is characterized as an unincorporated community that is
established primarily for, and continues to be used primarily for recreation and
resort purposes (OAR 660-022-0010)(6)). It includes residential and
commercial uses and provides for both temporary and permanent residential
occupancy, including overnight lodging and accommodations.
Black Butte Ranch is located in the northwestern portion of Deschutes County,
8 miles west of the city limits of Sisters. Black Butte Ranch is in the Indian
Ford Creek watershed, a tributary to Whychus Creek, itself a tributary to the
Deschutes River, and is surrounded by lands within Deschutes National
Forest. Since the late 1800's Black Butte Ranch has been a cattle ranch.
Cattle operations continue today.
Black Butte Ranch includes 1,830 acres developed in the early 1970s as a
planned residential development with both permanent and vacation homes on
1,252 lots and three separate condominium areas. Recreation amenities
include two 18-hole golf courses, four swimming pools, 23 tennis courts, horse
stables, a sports field, basketball courts and trails for bicycling, jogging and
cross country skiing. Conference rooms, a restaurant, lounge and property
sales in the Main Lodge, a general store and pro shops at both golf courses
provide additional amenities for residents, guests and visitors.
Black Butte Ranch allows public access to its restaurant, golf courses and
horse stables, but is primarily oriented to its year-round residents and
seasonal guests. Black Butte Ranch is considered by many people to be a
"destination resort", however development at Black Butte Ranch precedes the
adoption of statewide Goal 8 and the County's mapping of lands for the siting
of destination resorts. Approximately 96 percent of the area within Black Butte
Ranch community boundary has already been developed.
Development of Black Butte Ranch began in 1970 and the first subdivision plat
within Black Butte Ranch was filed in 1970. In 1972, when the County first
adopted a zoning ordinance (PL-5) and comprehensive plan, the area
identified as Black Butte Ranch, although smaller than today, was zoned
"Planned Development" and designated as a "Destination Resort" on the
comprehensive plan map. In 1979 the County adopted revised zoning and
comprehensive plan maps. In 1992 Black Butte Ranch was designated as a
rural residential exception area on the comprehensive plan map Black Butte
Ranch, in its current configuration, is zoned Rural Residential, RR-10, and is
designated "Destination Resort" on the comprehensive plan map.
Working Draft Deschutes County Comprehensive Plan
Page 4-66 Draft 5-14-08
Chapter 4: Urban Growth Management - Rural Communities
The population of Black Butte Ranch is difficult to ascertain due to the large
number of vacation and second homes within the community that are occupied
for only part of the year. In 2001, the Black Butte Ranch Association estimated
the number of full time, year round residents at 337 persons. During the peak
tourist season, the population, including guests who do not own property but
are renting residences within the community, is estimated to rise to 5,000
persons.
In the fall of 1994, the Oregon Land Conservation and Development
Commission adopted a new administrative rule, OAR 660, Division 22, entitled
Unincorporated Communities. The rule requires counties to update land use
plans and regulations for such communities. Deschutes County has updated
land use plans and regulations for such communities. Deschutes County has
updated the Comprehensive Plan and implementing zone regulations for Black
Butte Ranch and the Inn/Widgi Creek to comply with the rule as part of
periodic review.
Black Butte Ranch meets the definition of "resort community" because it has
historically developed with a mixture of residential and recreation or resort
amenities. Commercial-type uses also exist, such as the restaurant and
stables. Other retail operations, such as the golf pro shops and retail sales at
the tennis shop are associated with specific recreation activities and are not
designed as sand alone retail operations intended by themselves to attract the
traveling public to Black Butte Ranch.
Black Butte Ranch operates both a community sewer and water system that
are in place and serve the existing development. Black Butte Ranch is served
by its own fire and police departments. The Comprehensive Plan designates
Black Butte Ranch as a Resort Community and provides for future growth and
development accordingly. The Black Butte Ranch community boundary
includes a total of 1,912 acres consisting of: 1) 1,830 acres including the main
resort development, the resort's recreational amenities, and the residential
areas, and 2) 82 acres located contiguous to the northwest corner of the other
land within the resort community used for industrial uses in support of Ranch
operations. The community boundary abuts Highway 20 on the northeast.
National Forest Service lands and private landholders bound it on the south
and west.
The predominant land use in Black Butte Ranch is residential, the majority of
which is single-family residential development. However, since Black Butte
Ranch was originally developed as a planned community, a number of other
uses exist which make Black Butte Ranch a community that is somewhat self-
reliant. Uses that support the residential components include a commercial
core, which contains a variety of retail businesses developed in a pedestrian
mall setting, as well as a business park. A significant component of
development in Black Butte Ranch includes recreation amenities such as golf
courses, and resort facilities, such as a lodge, meeting facilities and a
restaurant. A fire station and public works facilities for sewage treatment and
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 4-67
Chapter 4: Urban Growth Management - Rural Communities
water delivery have also been developed in support of all uses. The Black
Butte Fire Department serves all areas within the boundary of Black Butte
Ranch. Utility services will continue to be provided in the current manner.
Working Draft Deschutes County Comprehensive Plan
Page 4-68 Draft 5-14-08
Chapter 4: Urban Growth Management - Resort Communities
Resort Communities
Inn of the 7th Mountain/Widgi Creek Goals
No goals have been defined for the Inn of the 7th Mountain/Widgi Creek Resort
Community
Inn of the 7th Mountain/ Widgi Creek Policies
General resort community policies
1. Land use regulations shall conform to the requirements of OAR 660
Division 22 or any successor.
2. County comprehensive plan policies and land use regulations shall
ensure that new uses authorized within the Black Butte Ranch Resort
Community do not adversely affect forest uses in the surrounding Forest
Use Zones.
3. Designated open space and common area shall remain undeveloped
except for community recreation uses. Areas developed as golf courses
shall remain available for that purpose or for open space/recreation uses.
4. The provisions of the Landscape Management Overlay Zone shall apply
in Resort Communities where the zone exists along Century Drive,
Highway 26 and the Deschutes River.
5. Residential minimum lot sizes and densities shall be determined by the
capacity of the water and sewer facilities to accommodate existing and
future development and growth.
6. The resort facility and resort recreation uses permitted in the zoning for
Black Butte Ranch and the Inn of the Seventh Mountain/Widgi Creek
shall serve the resort community.
Inn of the 7th Mountain/Widgi Creek Policies
7. Any amendment to the allowable uses(s) in either the Resort Community
District or the Widgi Creek Residential District shall require an exception
in accordance with applicable statewide planning goal(s), OAR 660-04-
018/022 or any successor, and DCC 18.112 or any successor.
Public Facilities
8. Police protection services for both communities shall be provided under
contract with the Deschutes County Sheriff.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 4-69
4: Urban Growth Management - Resort Communities
9. Water service shall be supplied by on-site wells for the Inn/Widgi Resort
Community.
10. New uses or expansion of existing uses that require land use approval
shall be approved only upon confirmation from the City of Bend that
sewer service can be provided.
11. Fire protection services for the Inn/Widgi shall be provided through a
contract with the City of Bend until such time as Inn/Widgi develops
another plan to provide adequate fire protection.
12. The Resort Community, not Deschutes County, shall maintain roads in
the community.
13. The bicycle/pedestrian path system shall be maintained by the Inn/Widgi
Owners Association.
14. Emergency access between Widgi Creek and the Inn of the Seventh
Mountain shall be provided in accordance with the approved
development plan for the Elkai Woods town homes. The respective
resort property owners shall maintain emergency access between the
Inn and Widgi Creek.
Working Draft Deschutes County Comprehensive Plan
Page 4-70 Draft 5-14-08
Chapter 4: Urban Growth Management - Resort Communities
Resort Communities Profile
Inn of the 7th Mountain/ Widgi Creek Background
A Resort Community is characterized as an unincorporated community that
was established primarily for, and continues to be used primarily for recreation
and resort purposes (OAR 660-022-0010)(6)). It includes residential and
commercial uses and provides for both temporary and permanent residential
occupancy, including overnight lodging and accommodations.
In the fall of 1994, the Oregon Land Conservation and Development
Commission adopted a new administrative rule, OAR 660, Division 22, entitled
Unincorporated Communities. The rule requires counties to update land use
plans and regulations for such communities. Deschutes County has updated
land use plans and regulations for such communities. Deschutes County has
updated the Comprehensive Plan and implementing zone regulations for
Inn/Widgi Creek to comply with the rule as part of periodic review.
The Inn of the Seventh Mountain and Widgi Creek Golf community are located
approximately 5 miles southwest of the Bend Urban Growth Boundary on
Century Drive and bounded by the Deschutes River on the south. The site for
Inn of the Seventh Mountain (Inn) has been developed since the late 1960s
and has historically been considered to be a stand-alone resort community
with overnight lodging and recreation facilities for tourists. It currently has 230
condominium units, spread among 22 buildings. The initial boundary was
established in 1972 and encompasses 22.65 acres. The Inn includes horse
stables, tennis courts, golf course, skating rink, swimming pools and other
recreation amenities, and a restaurant, meeting rooms and multi-story lodging
units for resort guests. Many of the dwelling units at Inn are occupied
seasonally but some residences are occupied year round. Commercial uses
open to overnight guests and the public include the restaurant, skating rink
and golf course, guided raft trips on the Deschutes River and a retail/rental
sport shop.
Widgi Creek was approved in 1983 as a 237-acre expansion to the Inn and
includes a golf course with surrounding residential lots consisting of 107 lots
for single-family dwellings and 103 lots for condominium units. The use of the
site as a destination resort was initiated previous to implementation of the
statewide planning goals in Deschutes County. Upon implementation of the
statewide planning goals, the property was designated as "forest" in
compliance with Goal 4, and the use continued to be permitted as a
"destination resort". However, in 1993 HB 3661 prohibited destination resorts
as a use in the forest zone except as allowed under Goal 8. This property was
not approved as a destination resort pursuant to Goal 8 until the year 2001
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 4-71
Chapter 4: Urban Growth Management - Resort Communities
when a "built and committed" exception was taken for the entire Inn/Widgi
community.
Almost all of the residential uses at the Inn of the Seventh Mountain cater to
tourist accommodations. During the peak tourist season, the population,
including guests who do not own property but are renting residences within the
community is estimated to be approximately 500 people. In 2001, the number
of full time and part time residents at Widgi Creek is approximately 120,
consisting of 80 single-family residents and 39 condo residents. Since there
are only 4 condo units available for rental, there is no significant increase in
the population during the peak tourist season. As currently planned, when the
development is fully built out, the population will increase to a total of 200 full
time and part time residents distributed in 107 single family homes and 46
condominium units
The Inn of the Seventh Mountain/Widgi Creek met the definition of "resort
community" because it has historically developed with a mixture of residential
and recreation or resort amenities. Other retail operations, such as the golf pro
shops and retail sales at the tennis shop are associated with specific
recreation activities and are not designed as stand alone retail operations
intended by themselves to attract the traveling public to the Inn/Widgi.
The Inn/Widgi sewer service (except approved on-site septic systems) and fire
protection is provided by the City of Bend. Water is provided by on-site wells,
security service is provided by the Inn/Widgi Resort Community and
Deschutes County Sheriff provides police services. The Inn of the Seventh
Mountain/Widgi Creek community boundary includes 260 acres (23 for the Inn
and 237 for Widgi Creek). The property is used for the recreational amenities,
rental and residential units. The western boundary is Century Drive. The south
boundary is generally the Deschutes River canyon. The entire resort
community is bordered by the Deschutes National Forest.
The predominant land use at the Inn is resort use with overnight lodging and
recreation facilities for tourists, in addition to a restaurant, meeting rooms and
a retail/rental sport shop. The predominant land use for Widgi Creek is
residential, with single-family residential
This Section implements development and condominium units, in addition to
part of State Planning a golf course.
Goal 14: Urbanization
Working Draft Deschutes County Comprehensive Plan
Page 4-72
Draft 5-14-08
Chapter 4: Urban Growth Management - Rural Service Centers
Rural Service Centers Goals & Policies
Goals
No goals have been defined for Rural Service Centers
Policies
1. Land use regulations shall conform to the requirements of OAR 660,
Division 22 or any successor.
2. Rural Service Center zoning shall be applied to Alfalfa and Brothers and
shall consist of three districts: Commercial/Mixed Use; Residential; and
Open Space.
3. Rural Service Center zoning shall be applied to Hampton, Whistlestop
and Wildhunt and shall consist of a single Commercial/Mixed Use
District.
4. The area in the Brothers Rural Service Center Boundary that is north of
Highway 20 and east of Camp Creek Road shall be zoned as Rural
Service Center - Open Space District (RSC-OS).
5. In April 2002, Alfalfa area residents expressed a desire to keep the
community "the way it is" and to limit commercial activity to 2-acres south
of Willard Road that is the site of the Alfalfa Community Store and the
community water system. These two acres are designated as a mixed
used commercial district in the Comprehensive Plan and shall be zoned
mixed use commercial. The remaining 20 acres of the Rural Service
Center will continue to be zoned Rural Service Center - Residential
District, with a 5-acre minimum lot size. Since the Board of County
Commissioners finds it may be necessary to accommodate the need for
future commercial expansion 2 acres north of Willard Road are being
designated on the Comprehensive Plan for future commercial uses. A
zone change to mixed use commercial can be considered only for a
specific use and upon findings that the existing commercial area is fully
developed.
6. County Comprehensive Plan policies and land use regulations shall
ensure that new uses authorized within the Alfalfa, Brothers, Hampton,
Millican, Whistlestop and Wildhunt Rural Service Centers do not
adversely affect agricultural and forest uses in the surrounding areas.
7. Zoning in the area shall promote the maintenance of the area's rural
character. New commercial uses shall be limited to small-scale, low
impact uses that are intended to serve the community and surrounding
rural area or the travel needs of people passing through the area. The
Commercial/Mixed use zoning regulations shall allow a mixed use of
residential or small-scale commercial uses.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 4-73
Chapter 4: Urban Growth Management - Rural Service Centers
8. Residential and commercial uses shall be served by DEQ approved on-
site sewage disposal systems.
9. Residential and commercial uses shall be served by on site wells or
public water systems.
10. Community water systems, motels, hotels and industrial uses shall not
be allowed.
11. Recreational vehicle or trailer parks and other uses catering to travelers
shall be permitted.
12. The County shall consider ways to improve services in the area
consistent with the level of population to be served.
Working Draft Deschutes County Comprehensive Plan
Page 4-74 Draft 5-14-08
Chapter 4: Urban Growth Management - Rural Service Centers
Rural Service Centers
Draft 5-14-08
Working Draft Deschutes County Comprehensive Plan
Page 4-75
Chapter 4: Urban Growth Management - Rural Service Centers
Background Profile
A Rural Service Center is characterized as an unincorporated
community consisting primarily of commercial or industrial uses
Working Draft Deschutes County Comprehensive Plan
Page 4-76
Draft 5-14-08
Chapter 4: Urban Growth Management - Rural Service Centers
providing goods and services to the surrounding rural area or to persons
traveling through the area, but which also includes some permanent
residential dwellings.
Introduction.
The predominant land use in the Rural Service Center surrounding the Alfalfa,
Brothers, Hampton and Millican is farming and ranching. The predominant
land use in the areas surrounding Whistlestop and Wildhunt is forest, ranching
and rural residential. The unincorporated rural service centers serve the needs
of the surrounding rural areas as well as the needs of the traveling public.
Three of the communities are located on Highway 20 east of Bend. Millican is
26 miles, Brothers 42 miles and Hampton 64 miles east of Bend. Alfalfa is
located approximately 11 miles east of Bend on Willard Road. Whistlestop is
located approximately 30 miles southwest of Bend on burgess Road. Wildhunt
is located approximately 26 miles south of Bend at the junction of Highway 97
and Highway 31.
The communities of Alfalfa, Brothers and Hampton have approved public
water systems that serve the school and combination store/cafe/post office in
Brothers and the stores in Alfalfa and Hampton. The Central Oregon Irrigation
District provides water for agricultural uses surrounding Alfalfa. Large ranches
and BLM land surround Millican, Brothers and Hampton. Most of the land is
used for dry land grazing. Well water provides irrigation for land adjacent to
Hampton. Millican, Brothers and Hampton are surrounded by land that is
designated as antelope habitat. The area surrounding these communities is
sparsely populated. Each community has a few residences within its
boundary.
Periodic Review
In order to comply with OAR 660-022, Deschutes County updated the
Comprehensive Plan and implementing zoning regulations in 2002 for the
communities of Alfalfa, Brothers, Hampton, Millican, Whistlestop and Wildhunt.
The Comprehensive Plan and zoning map boundaries for all of the Rural
Service Centers were amended to comply with the requirements of the
administrative rule and to reconcile historic mapping inconsistencies between
the plan designation and zoning and inconsistencies between community
boundaries and historic development patterns.
Community Boundary
The Alfalfa Rural Service Center boundary includes 21.83 acres, with Willard
Road as the predominant northern boundary and the remainder surrounded by
agricultural lands zoned Exclusive Farm Use.
Working Draft Deschutes County Comprehensive Plan
Draft 5-14-08 Page 4-77
Chapter 4: Urban Growth Management - Rural Service Centers
The Brothers Rural Service Center boundary includes 48.95 acres. Highway
20 bisects the community from east to west, while Camp Creek Road enters
from the north and connects with the highway. The entire community is
surrounded by agricultural land zoned Exclusive Farm Use.
The Hampton Rural Service Center boundary includes 35.37 acres. Highway
20 forms the southern boundary with the remainder surrounded by agricultural
lands zoned Exclusive Farm Use.
The Millican Rural Service Center boundary includes 29.55 acres. Highway 20
forms the northern boundary with the remainder surrounded by agricultural
lands zoned Exclusive Farm Use.
The Whistlestop Rural Service Center boundary includes 7.93 acres. Burgess
Road runs east/west and dissects the community from north to south with
forest and rural residential uses to the north and east. The Wildhunt Rural
Service Center boundary includes 11.29 acres. Highway 97 forms the western
boundary. Highway 31 forms the southern boundary, with forest and rural
residential uses to the north and east.
Land Use Planning
The existing land uses in the eastern Rural Service Centers of Alfalfa,
Brothers, Hampton and Millican are commercial and residential surrounded by
agricultural. In addition to a few residences each of the communities includes
commercial development. Alfalfa has a store/gas station and a
church/community hall. Brothers includes a school, a combination
market/cafe/post office/gas station, a state highway maintenance field office,
and a highway rest area. Hampton has a cafe and recreational vehicle park.
Millican has a market/gas station.
This Section implements.
part of State Planning The existing land uses in the rural Service
Goal 14: Urbanization Centers of Whistlestop and Wildhunt is
commercial and residential surrounded by forest.
Working Draft Deschutes County Comprehensive Plan
Page 4-78 Draft 5-14-08
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