2011-3054-Minutes for Meeting September 19,2011 Recorded 10/21/2011DESCHUTES CLERKS ~+y iQ~~
NANCY -3054
COMMISSIONERS' JOURNAL 10/21/201108:10:23 AM
Do not remove this page from original document.
Deschutes County Clerk
Certificate Page
Deschutes County Board of Commissioners
1300 NW Wall St., Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org
MINUTES OF BUSINESS MEETING
DESCHUTES COUNTY BOARD OF COMMISSIONERS
MONDAY, SEPTEMBER 19, 2011
Commissioners' Hearing Room - Administration Building - 1300 NW Wall St., Bend
Present were Commissioners Tammy Baney, Alan Unger and Anthony DeBone.
Also present were Erik Kropp, Deputy County Administrator; Laurie Craghead,
County Counsel; Tom Anderson, Nick Lelack and Peter Gutowsky, Community
Development; media representative Hillary Borrud of The Bulletin; and four other
citizens.
Chair Baney opened the meeting at 10:00 a. m.
1. PLEDGE OF ALLEGIANCE
2. CITIZEN INPUT
None was offered.
3. Before the Board was a Public Hearing (continued from May 23 and June
27) and Consideration of First Reading of Ordinances No. 2011-001 and
2011-002, Modifying the Comprehensive Plan Map and Zoning Map
regarding Areas Eligible for the Destination Resort Overlay.
Peter Gutowsky brought the item up to date since the last public hearing. A
transportation impact analysis was provided by Oregon Department of State
Lands as an addition. Over 91,000 acres would be removed from the map.
There was an appeal to LUBA, which was affirmed in favor of the County, and
later appealed to a higher court, which was also affirmed in favor of the County.
Minutes of Board of Commissioners' Business Meeting Monday, September 19, 2011
Page 1 of 5 Pages
17,506 acres are still eligible, and 31,087 are grandfathered at the request of
property owners, although the properties may not be eligible. A few sites were
added. The 1984 map showing areas of sensitive big game habitat was
submitted into the record as well.
Mr. Gutowsky suggested that if anyone opposes the map amendment and
wishes to speak today, the individual should be very specific so this can be
addressed by staff at the local level. Laurie Craghead added that very specific
information needs to be given if anyone challenges the Ordinances, to help the
Board make the appropriate decision.
Steve Holtberg from Ball Janik Attorneys came before the Board. He wanted to
be sure an additional piece, the transportation plan and two exhibits, are
included. He urged the Board to move this forward.
Paul Dewey, representing Central Oregon Landwatch, asked that he be able to
review the information that was just submitted. He spoke about the ownership
of Thornburgh, and wanted to refresh everyone's memory on that issue. He
asked for a week or two to be able to review new information and respond to it.
Commissioner Unger asked what timeframe staff has anticipated on this item.
Mr. Gutowsky stated that no information has been received since June until
today, so other than the new submission, there has been a lot of time for Mr.
Dewey and others to review the previous information.
Steve Holtburg said that the information submitted included two traffic reports
from other properties as a supplement to the transportation plan that is already
in the record. This is just supporting evidence that has been a part of other land
use issues.
Mr. Gutowsky said there is no recommendation from staff and is up to the
Board to decide when to proceed.
Commissioner Unger said he would support waiting a week to allow everyone
to review the new information.
Chair Baney said that she is open to comments on the new information but not
on what is already in the record as of June. Mr. Gutowsky stated the report is
from Kittleston and the transportation planning rule, plus the 1984 map of
sensitive wildlife areas.
The written record was kept open until Friday, September 23, 2011 at 5:00, and
the hearing was continued until Monday, September 26, 2011.
Minutes of Board of Commissioners' Business Meeting Monday, September 19, 2011
Page 2 of 5 Pages
Before the Board was Consideration of Approval of the Consent Agenda.
Commissioner DeBone wanted to clarify the work session minutes with an
addition.
DEBONE: Move approval of the Consent Agenda with the exception of the
minutes of the September 14 work session.
UNGER: Second.
VOTE: UNGER: Yes.
DEBONE: Yes.
BANEY: Chair votes yes.
Consent Agenda Items
4. Approval of a Business Development Forgivable Loan to Geo-Spatial
Solutions, Inc. for $20,000
5. Approval of Minutes:
• Board Meeting of September 14, 2011
• Work Sessions of September 14, 2011
CONVENED AS THE GOVERNING BODY OF THE 9-1-1 COUNTY
SERVICE DISTRICT
6. Before the Board was Consideration of Approval of Weekly Accounts Payable
Vouchers for the 9-1-1 County Service District in the Amount of $27,884.24.
DEBONE: Move approval, subject to review.
UNGER: Second.
VOTE: UNGER: Yes.
DEBONE: Yes.
BANEY: Chair votes yes.
CONVENED AS THE GOVERNING BODY OF THE EXTENSION AND 4-H
COUNTY SERVICE DISTRICT
7. Before the Board was Consideration of Approval of Weekly Accounts Payable
Vouchers for the Extension/4-11 County Service District in the Amount of
$520.90.
Minutes of Board of Commissioners' Business Meeting Monday, September 19, 2011
Page 3 of 5 Pages
DEBONE: Move approval, subject to review.
UNGER: Second.
VOTE: UNGER: Yes.
DEBONE: Yes.
BANEY: Chair votes yes.
RECONVENED AS THE DESCHUTES COUNTY BOARD OF
COMMISSIONERS
8. Before the Board was Consideration of Approval of Weekly Accounts Payable
Vouchers for Deschutes County of $751,204.15.
DEBONE: Move approval, subject to review.
UNGER: Second.
VOTE: UNGER: Yes.
DEBONE: Yes.
BANEY: Chair votes yes.
9. ADDITIONS TO THE AGENDA
Erik Kropp said there is a meeting on Octoberl4 regarding the: loss of County timber
payments; he wanted to find out if the Board is going or if some County
representatives should attend.
Commissioner Unger feels this is a fact-finding attempt by the State. Commissioner
DeBone is not available that day. It is likely one Commissioner will attend.
A brief discussion took place regarding the recruitment process for County
Administrator. Chair Baney has a few comments and changes to discuss at this
afternoon's work session. Commissioner Unger will be unable to attend the afternoon
meeting.
The Commissioners discussed their upcoming calendars.
Being no further items to come before the Board, the meeting adjourned at
10:25 a. m.
Minutes of Board of Commissioners' Business Meeting Monday, September 19, 2011
Page 4 of 5 Pages
DATED this ~ Day of (5&vAA'I- - 2011 for the
Deschutes County Board of Commissioners.
Tammy Bane-`y, Chair
Anthony DeBone, Vice Chair
ATTEST: Cd ci,
Alan Unger, Commissioner
Recording Secretary
Minutes of Board of Commissioners' Business Meeting Monday, September 19, 2011
Page 5 of 5 Pages
Deschutes County Board of Commissioners
1300 NW Wall St., Bend, OR 97701-1960
(541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org
BUSINESS MEETING AGENDA
DESCHUTES COUNTY BOARD OF COMMISSIONERS
10:00 A.M., MONDAY, SEPTEMBER 19, 2011
Commissioners' Hearing Room - Administration Building - 1300 NW Wall St., Bend
1. PLEDGE OF ALLEGIANCE
2. 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.
3. A PUBLIC HEARING (continued from May 23 and June 27) and
Consideration of First Reading of Ordinances No. 2011-001 and 2011-002,
Modifying the Comprehensive Plan Map and Zoning Map regarding Areas
Eligible for the Destination Resort Overlay
Suggestion Motion: After hearing, move first reading by title only of
Ordinance No. 2011-001; and
Move first reading by title only of Ordinance No. 2011-002.
CONSENT AGENDA
4. Approval of a Business Development Forgivable Loan to Geo-Spatial
Solutions, Inc. for $20,000
5. Approval of Minutes:
Board Meeting of September 14, 2011
Work Sessions of September 14, 2011
Board of Commissioners' Business Meeting Agenda Monday, September 19, 2011
Page 1 of 4 Pages
CONVENE AS THE GOVERNING BODY OF THE 9-1-1 COUNTY
SERVICE DISTRICT
6. CONSIDERATION of Approval of Weekly Accounts Payable Vouchers for
the 9-1-1 County Service District
CONVENE AS THE GOVERNING BODY OF THE EXTENSION AND 4-H
COUNTY SERVICE DISTRICT
7. CONSIDERATION of Approval of Weekly Accounts Payable Vouchers for
the Extension/4-H County Service District
RECONVENE AS THE DESCHUTES COUNTY BOARD OF
COMMISSIONERS
8. CONSIDERATION of Approval of Weekly Accounts Payable Vouchers for
Deschutes County
9. ADDITIONS TO THE AGENDA
PLEASE NOTE: At any time during this meeting, an executive session could be called to address
issues relating to ORS 192.660(2) (e), real property negotiations; ORS 192.660(2) (h), litigation;
ORS 192.660(2)(d), labor negotiations; or ORS 192.660(2) (b), personnel issues.
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.
Board of Commissioners' Business Meeting Agenda Monday, September 19, 2011
Page 2 of 4 Pages
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.)
Monday, September 19
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, September 26
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesdav, September 28
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, October 3
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, October 5
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Thursday, October 6
8:00 a.m. Joint Meeting with the Sisters City Council, (Sisters City Hall)
Monday, October 10
All Day Association of Oregon Counties' Legislative Committee Meetings (Salem)
Board of Commissioners' Business Meeting Agenda Monday, September 19, 2011
Page 3 of 4 Pages
Wednesday, October 12
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, October 17
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, October 24
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, October 26
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Monday, October 31
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
Wednesday, November 2
10:00 a.m. Board of Commissioners' Meeting
1:30 p.m. Administrative Work Session - could include executive session(s)
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.
Board of Commissioners' Business Meeting Agenda Monday, September 19, 2011
Page 4 of 4 Pages
v~v-ces co`
BOARD OF COMMISSIONERS' MEETING
a ~
REQUEST TO SPEAK
Agenda Item of Interest: 1 Date:
Name S cAddress 15 ~ c')6Pj:)0
-7
Phone #s
E-mail address
In Favor Neutral/Undecided ❑ Opposed
Submitting written documents as part of testimony? F-] Yes F-] No
If so, please give a copy to the Recording Secretary for the record.
v~J-ces co`
o Z{ BOARD OF COMMISSIONERS' MEETING
REQUEST TO SPEAK
Agenda Item of Interest: Date: ~l► y 1 I t
Name i~gUL_ 7C-WEN
Address 15 3c, t~v'_r V< <4
Phone #s 1q9_3
E-mail address ~2d5W6y 20- bF~aQ G~ ts.
1-1 In Favor 0 Neutral/Undecided 3 Opposed
Submitting written documents as part of testimony? [71 Yes ❑ No
If so, please give a copy to the Recording Secretary for the record.
Peter Gutowsky
From: PARKER Douglas <douglas.parker@state.or.us>
Sent: Thursday, September 08, 20112:10 PM
To: Peter Gutowsky
Cc: PARKER Douglas; RUSSELL John; kameron@bendcable.com
Subject: FW: DSL Properties
Attachments: 11844Figure01.pdf, 11844Draft.doc
Peter,
Please accept this e-mail as the official submittal of a traffic analysis and map in support of the Destination Resort
Overlay Map Amendment proposal which includes the DSL Cline Buttes property which is currently leased by
Thornburgh proponents.
Please do not hesitate to contact me if you have any questions.
Thanks, Doug
Doug Parker
Asset Planner
Oregon Dept. of State Lands
775 Summer St. NE, Suite 100
Salem, OR 97301
503. 986-5246 - office
douglas. parkerCcb.state.or. us
From: Joe Bessman [mailto:jbessman@kittelson.com]
Sent: Monday, August 29, 20114:39 PM
To: shultberg@balljanik.com
Cc: PARKER Douglas
Subject: DSL Properties
Good afternoon Steve,
Attached is a draft memorandum for the DSL parcels adjacent to the Thornburg resort. Let me know if you have any
thoughts or suggestions to further strengthen our arguments, thanks!
Take care,
Joe
Joe Bessman, PE, PTOE
Senior Engineer
Kittelson & Associates, Inc.
Transportation Engineering/ Planning
354 SW Upper Terrace Dr, Suite 101
Bend, Oregon 97702
541.312.8300
(503) 997-4473 (cell)
Streetwise Twitter Fa-ebook
IVA' KITTELSON & ASSOCIATES, INC.
M TRANSPORTATION ENGINEERING / PLANNING
KITTELSON & ASSOCIATES, INC.
TRANSPORTATION ENGINEERING / PLANNING
354 SW Upper Terrace Drive, Suite 101, Bend, Oregon 97702 P541.312.8300 l= 541.312.4585
DRAFT MEMORANDUM
Date: August 29, 2011 Project 11844.0
To: Doug Parker, Department of State Lands
From: Joe Bessman, PE, PTOE & Julia Kuhn, PE
Subject: Destination Resort Mapping TPR Compliance
This memorandum addresses the requirements of OAR 660-12-0060 (TPR) as part of the
proposed Deschutes County Destination Resort Overlay (DRO) Mapping process for the
Department of State Lands (DSL) Cline Buttes properties located near Eagle Crest Resort. The
parcels are currently zoned Exclusive Farm Use - Sisters/Cloverdale and comprise nearly 364
total acres between five parcels. Figure 1 illustrates the general location of the parcels.
Project Literature Review
A variety of studies have been conducted in the vicinity of the four DSL parcels. The following
subsections provide an overview of these studies and how each relates to this Destination Resort
Mapping TPR Compliance effort.
Thornburgh Resort Transportation Impact Analysis (TIA)
The Thornburgh Resort TIA was conducted by Group Mackenzie and completed in December
2004. This study focused on the transportation related impacts of the proposed 1,900 acre
Thornburgh site by evaluating existing conditions (2004), 2009 Pre- and Post-Development, and
2015 Pre- and Post-Development scenarios. At the time of the analysis, full build out of the site
was expected by 2015. However, no construction has occurred on the Thornburgh site to date.
For analysis purposes, the development of the Thornburgh site was split into two phases. Below
is a summary of the identified improvements necessary to mitigate potential project impacts.
• Phase 1 (Assumed complete in 2009):
o Pay a fair share contribution towards the installation of a traffic signal at the US
20/Cline Falls Highway (Cook Avenue) intersection. In 2004, this contribution was
deemed to be 23 percent. This intersection was previously identified as exceeding
ODOT mobility standards under existing conditions by the Eagle Crest III study.
FILENAME: C: \DOCUMENTS AND SETTINGS\PETERG\LOCAL SETTINGS\TEMPORARY INTERNET
FILES\CONTENT.OUTLOOK\AV4C3DP7\11844DRAFT. DOC
Destination Resort Mapping TPR Compliance Project 11844.0
August 29, 2011 Page 2
Figure 1: Site Vicinity Map
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
August 29, 2011 Page 3
o Construct a northbound left-turn storage lane and a southbound right-turn
deceleration lane on Cline Falls Highway at the Cline Falls Highway/Southeast
Site Access intersection.
• Phase 2 (Assumed complete in 2015):
o Improvements may be required at the US 20/Cline Falls Highway (Cook Avenue)
intersection at project build out. This would depend on the ultimate design of the
proposed signalized intersection at this location.
o Construct a westbound left-turn lane at the Eagle Crest Boulevard/OR 126
intersection. However, it should be noted that this improvement was included as
a condition of approval for the Eagle Crest III proposal. As such, the Thornburgh
TIA assumes this improvement is already constructed.
City of Redmond Transportation System Plan (TSP)
The current City of Redmond TSP was adopted in 2008. While this document does not explicitly
evaluate the impacts of specific destination resorts, an emphasis was placed on creating a
transportation system that could accommodate growth that is expected to occur outside city
limits, including growth of destination resorts. The future travel demand models used for TSP
forecasting efforts are noted to account for assumed growth in other communities and
destination resort development, though the magnitude of the growth assumed is not stated.
The City's TSP identified numerous transportation improvements that would be required on the
west side of the City, such as improvements to Helmholtz Way to provide a five-lane north-
south west side arterial from Maple Avenue to Elkhorn Avenue. Also, the plan noted needed
improvements along the OR 126 corridor at Helmholtz Way, 351h Street, 27th Street, and Rimrock
Road, representing the first major intersections within the urban area when traveling from the
west towards the city center.
Cascades Academy of Central Oregon
The Cascades Academy of Central Oregon (CACO) was recently approved by Deschutes County.
At the request of the County, the Transportation Impact Analysis prepared for the site assessed
the US 20/Cook Avenue intersection and found that it continued to exceed ODOT mobility
standards under current year 2010 conditions.
Summary of Previous Studies
The City of Redmond TSP, the Thornburgh Resort TIA and the CACO TIA provided a long-term
assessment of transportation system needs within the vicinity of the DSL Lands as well as within
the City of Redmond. Per the previous studies, the following intersections within proximity of
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
August 29, 2011 Page 4
the DSL lands will require improvements to meet applicable standards within the next twenty
years:
• US 20/Cline Falls Highway (Cook Avenue)
• Eagle Crest Boulevard/OR 126
• OR 126/Helmholtz Way
• OR 126/35th Street
• OR 126/27th Street
• OR 126/Rimrock Road
IMPACT OF PROPOSED MAPPING ON TRIP GENERATION POTENTIAL
Existing EFU Zoning
The existing zoning for the DSL properties is Exclusive Farm Use Sisters/Cloverdale (EFU-SC),
which is intended for farmland preservation and allows a minimum lot size of 63 acres for
irrigated land and 80 acres for non-irrigated parcels. Deschutes County Code 18.16 describes
allowable uses within the EFU zoning. Of the outright allowable uses, the most intense land uses
include farming uses or rural fire stations. Because of the low intensity uses allowed, the trip
generation potential for this zoning is considered minimal and for TPR purposes was
conservatively assumed to be zero.
Proposed Destination Resort Zoning
The intent of the destination resort zoning is to preserve open space and enhance and diversify
recreational opportunities. As such, it was assumed that an overall density of up to 1.5 units per
acre could be developed, allowing 546 residential units throughout the 364 acres of the Cline
Butte site. To quantify the impacts of this level of development, traffic engineers and local and
state review agencies commonly rely upon information contained in the Institute of Traffic
Engineers (ITE) Trip Generation (Reference 1) for estimating trip generation rates. However, the
data contained in Trip Generation it is based on a collection of national studies that may not
represent specific developments or local conditions.
Within Trip Generation, the data related to resorts is fairly limited and dated. The most similar
land use category to the proposed development, Recreational Homes, contains data from two
studies, one in Oregon conducted in 1977 and another in New York conducted in 1985. Neither
of these studies reflect current destination resort land use requirements or amenities.
Supplemental local data is also limited because prior to 2003, resort data was not collected in
Central Oregon due to the limited number of fully built resorts. However, as part of land use
applications submitted within the past five years, a database of local trip generation
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
August 29, 2011 Page 5
characteristics has been created for Central Oregon resorts. Based on this data', the anticipated
trip generation is 0.32 p.m. peak hour trips per residential unit. The resultant trip generation
potential is summarized in Table 1.
Table 1
Estimated Trip Generation Potential
T
i
G
ti
Weekday PM Peak Hour
Land Use
Units
r
p
enera
on
Rate
Total
In
Out
Destination Resort
546
0.32 trips/unit'
175
87
88
I Trip rate based on Eagle Crest Resort Trip Generation Study.
For comparison, the Thornburgh Resort TIA (which relied on non-local trip generation data)
assumed that Phase 1 and Phase 2 of the 1,200 acre project (with 1,270 resort units and other
amenities) could generate 655 external p.m. peak hour trips. While the study parcels are expected
to generate significantly less external trips during the p.m. peak hour than the overall resort, the
intersection of US 20/Cline Falls Highway was previously identified as exceeding mobility
standards under existing conditions. As such, the addition of any measurable amount of trips
associated with development of the DSL parcels would result in a significant impact at that
location, per the TPR.
EFFECT ON DESCHUTES COUNTY TRANSPORTATION SYSTEM PLAN
The Deschutes County Transportation System Plan is currently in the process of being updated
and will identify transportation system needs for the year 2030. The currently adopted TSP
assesses year 2020 system needs, which is beyond the assessment completed for the Thornburg
resort as the original study had only assessed through year 2015. For the purposes of TPR
compliance any assessment of the DRO mapping should be consistent with the adopted TSP
horizon year of 2020.
As highlighted above, there are several improvement needs identified in the previous studies
within the vicinity of the subject parcels that have not been constructed yet. At this point, the
County has not identified any financing mechanisms to ensure construction of these
improvements by the year 2020. As the impacts of additional development of the DSL properties
1 As part of previous land use applications in Central Oregon, trip generation was collected at two local resorts, Black Butte Ranch and Eagle Crest
Resort. These resorts included typical amenities, contained a mix of primary and secondary residences, and have been in operation for at least ten
years. To identify the trip generation potential of the resorts, twenty-four hour tube counts were collected on three consecutive weekdays at each
ingress/egress route serving the resorts in order to measure daily resort trip rates and changes in resort trip generation over the course of a day.
Additionally, peak period turning movement counts were conducted on three consecutive days between 3:00 p.m. and 7:00 p.m. at each
ingress/egress route to measure trip rates during the weekday p.m. commute period. Review of this data identified that Eagle Crest contained higher
trip rates than Black Butte Ranch, with 0.32 weekday p.m. peak hour trips/residential unit.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance
August 29, 2011
Project 11844.0
Page 6
will further degrade already deficient intersections a significant effect will occur if the resort
were to be constructed without some type of mitigating measures.
A listing of significantly affected intersections, those that have previously been identified as
deficient, relevant improvement/mitigation plans, and potential improvement options are
summarized below in Table 3.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
August 29, 2011 Page 7
Table 3
Summary of Svstem Needs
Previously
Identified as
Previous
Intersection
Deficient?
Mitigation Options
OR 12Crest Blvd
Eagle
Yes'
Construct a westbound left-turn lane
US 20/
Yes' Z
Signalization'
Co k Avenue
OR 126/
Yes3
Widen OR 126 to three lanes, signalize and add
Helmholtz Avenue
turn lanes
O 126/
35th Seet
Yes3
Widen OR 126 to five lanes
OR 126/
27 See
Yes3
Widen OR 126 to five lanes
OR 126k Road
Rimroc
Yes3
Widen OR 126 to five lanes, add turn lanes
'As identified in the Thornburg Transportation Impact Analysis.
2 As identified in the CACO Transportation Impact Analysis.
3 As identified in the City of Redmond Transportation System Plan.
As summarized in Table 3, the previously completed transportation studies and plans highlight
the need for additional transportation system improvements to ensure acceptable operations on
the surrounding system.
TRANSPORTATION PLANNING RULE COMPLIANCE
As previously documented, development of the DSL parcels as a destination resort could create a
significant effect on the transportation system. Mitigation measures at the US 20/Cook Avenue
and additional intersections along the OR 126 corridor entering Redmond would be required.
These measures have no guarantee of construction by the relevant plan year. Per the TPR, the
mapping of these properties to accommodate destination resort uses can be considered an
amendment to a comprehensive plan that would significantly affect an existing or planned
transportation facility. Under the TPR, local governments are required to put in place measures
to assure that allowed uses are consistent with the identified function, capacity, and performance
standards (e.g., level of service, volume to capacity ratio, etc.). To enable the mapping to occur,
Deschutes County will have to utilize one or more measures set forth in OAR 660-12-0060(2) to
assure proper function of transportation facilities.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance
August 29, 2011
OAR 660-12-0060(2)(a)-(e) provides as follows:
Project 11844.0
Page 8
Where a local government determines that there would be a significant effect, compliance with
section (1) shall be accomplished through one or a combination of the following:
(a) Adopting measures that demonstrate allowed land uses are consistent with the planned
function, capacity, and performance standards of the transportation facility.
(b) Amending the TSP or comprehensive plan to provide transportation facilities,
improvements or services adequate to support the proposed land uses consistent with the
requirements of this division; such amendments shall include a funding plan or
mechanism consistent with section (4) or include an amendment to the transportation
finance plan so that the facility, improvement, or service will be provided by the end of the
planning period.
(c) Altering land use designations, densities, or design requirements to reduce demand for
automobile travel and meet travel needs through other modes.
(d) Amending the TSP to modify the planned function, capacity or performance standards
of the transportation facility.
(e) Providing other measures as a condition of development or through a development
agreement or similar funding method, including transportation system management
measures, demand management or minor transportation improvements. Local
governments shall as part of the amendment specify when measures or improvements
provided pursuant to this subsection will be provided.
In the absence of improvements at the OR 126 intersections entering Redmond and the US
20/Cook Avenue intersection in Tumalo, the significant effect associated with the DRO mapping
of the DSL Parcels can be mitigated by prohibiting future development until such time that a
comprehensive transportation study is completed and financing mechanisms are in-place to
ensure completion of the identified improvements. Because it is impossible to predict at the
present time when, and to what extent, the property may develop as a destination resort, and
because it is unclear where additional development in the region may occur or whether
additional transportation improvements may be made, this condition of approval would require
additional TPR-level transportation improvements at such time as a resort is developed. We note
that SB 1031 (2010) imposes such a requirement.
A future application to permit a destination resort within these parcels will be required to
include a traffic study that analyzes the impacts of the specific proposal and its planned density
on affected transportation facilities. As a destination resort is a conditional use within the EFU
zoning per Deschutes County Code Section 18.16.035, this process will allow the destination
resort overlay mapping to be implemented while specific transportation details are addressed at
the time of master plan application.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
August 29, 2011 Page 9
This process will require that the applicant bear the burden of proof and costs associated with
mitigation for their specific proposal. Further, it will allow the planning of supporting
transportation system infrastructure at a time when specific information about the location,
proposed vehicular access, and resort size are known.
Please call us at (541) 312-8300 if you have any questions.
Sincerely,
KITTELSON & ASSOCIATES, INC.
Joe Bessman, PE, PTOE Julia Kuhn, PE
Senior Engineer Principal Engineer
Attachments:
1) Thornburgh Resort TIA
2) Cascades Academy of Central Oregon TIA
3) City of Redmond TSP Excerpts
Kittelson & Associates, Inc.
Bend, Oregon
Thornburgh
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Continued from Al
Loyal Land did not obtain
water rights to the property, the
attorney said, and without them,
development as a destination re-
sort would not be possible under
county rules.
Attorneys for Loyal Land can-
not discuss the case, according
to a person answering the phone
Wednesday at the Portland of-
fice of Perkins Coie.
Wednesday's sale was the latest
action in Kameron DeLashmutt's
efforts to develop his grandfa-
ther's land near Cline Buttes into
a resort featuring 950 homes, 475
overnight lodging units and three
golf courses.
DeLashmutt, Thornburgh's
general manager, filed a master
plan for the proposed resort in
February 2005. Deschutes County
approved a preliminary plan, and
opponents appealed it all the way
to the state Supreme Court, which
declined to hear the case, accord-
ing to The Bulletin's archives.
In October 2010, a notice of
default was filed with the Des-
chutes County Clerk's Office,
stating $12.1 million was owed
on the property in principal, in-
terest, late charges and advanc-
es, according to the notice.
The 1,350 acres covered by the
notice was scheduled for auction
several times, but Thornburgh
filed for bankruptcy in March,
stopping the foreclosure sale and
placing the property under the
jurisdiction of the bankruptcy
court.
InJune, U.S. Bankruptcy Judge
Trish Brown removed the court's
protection, allowing the land to
be sold after Aug. 9, according to
court records. Thornburgh ap-
pealed the ruling to the U.S. Dis-
trict Court, where it's pending.
After the bankruptcy judge's
ruling, however, Thornburgh and
Loyal Land, which court records
say is solely owned by Pennsyl-
vania resident Terrence Larsen,
began to negotiate, Scharff said.
They need each other to eventu-
ally develop the destination re-
sort, the attorney said, although
it would not be anytime soon.
Plenty of destination resort
property remains on the market
now, he said, but if Thornburgh
and Loyal Land can develop a
relationship, they could work
together on the project after the
market recovers.
"It's an attractive property,"
Scharff said. "We know the time
will come. People come from
all over the world to Central
Oregon:"
L, awat-'^
ex 1n: tc
MEMORANDUM
TO: Deschutes County Board of County Commissioners
FROM: Steven Hultberg
DATE: June 22, 2011
RE: Deschutes County Destination Resort Mapping--Transportation
Planning Rule Findings
1. Introduction
The Oregon Transportation Planning Rule ("TPR"), OAR 660-012-0060, requires local
governments to determine whether amendments to their acknowledged comprehensive plan
will "significantly affect" existing or planned transportation facilities. If a "significant effect"
is found, then local governments are obligated to put in place one or more measures to
assure that allowed land uses are consistent with the identified function, capacity, and
performance standards of the facility. There has been a considerable amount of litigation
regarding the proper application of the TPR, most recently in Klamath County, where LUBA
remanded the county's new destination resort map, in part, based on the county's failure to
properly comply with the TPR. Root v. Klamath County, _ Or LUBA_ (LUBA No. 2010-
078, April 19, 2011).
The following findings address the TPR in light of the Klamath County case, and the
Oregon Court of Appeals decision in Willamette Oaks v. City of Eugene, 232 Or App 29, 220
P3d 445 (2009).
2. Requirements of the TPR
A. Step One
In the Willamette Oaks decision, the Court of Appeals held that the City of Eugene
was required to determine whether a zone change would significantly affect transportation
facilities prior to the approval of the zone change. In other words, the court held that the
city could not defer a finding of significant effect until a later date, presumably in connection
with development of the underlying property. The TPR is essentially a two-step process.
The first step is to determine whether there is a significant effect, while step-two identifies
the various measures local governments may take to assure that allowed land uses are
consistent with the identified function, capacity, and performance standards (e.g. level of
service, volume to capacity ratio) of the facility. Willamette Oaks dealt only with step one
of the TPR. The court expressly held that LUBA erred in holding that the city could
permissibly grant the zone change without first evaluating, pursuant to OAR 660-012-
0060(1), whether the change would significantly affect transportation facilities.
OAR 660-012-0060(1) provides:
Where an amendment to a functional plan, an acknowledged
comprehensive plan, or a land use regulation would significantly
affect an existing or planned transportation facility, the local
government shall put in place measures as provided in section
::ODMA\PCDOCS\PORTLAND\766291\2
(2) of this rule to assure that allowed land uses are consistent
with the identified function, capacity, and performance
standards (e.g. level of service, volume to capacity ratio, etc.)
of the facility. A plan or land use regulation amendment
significantly affects a transportation facility if it would:
(a) Change the functional classification of an existing or
planned transportation facility (exclusive of correction of
map errors in an adopted plan);
(b) Change standards implementing a functional
classification system; or
(c) As measured at the end of the planning period
identified in the adopted transportation system plan:
(A) Allow land uses or levels of development that
would result in types or levels of travel or access
that are inconsistent with the functional
classification of an existing or planned
transportation facility;
(B) Reduce the performance of an existing or
planned transportation facility below the
minimum acceptable performance standard
identified in the TSP or comprehensive plan; or
(C) Worsen the performance of an existing or
planned transportation facility that is otherwise
projected to perform below the minimum
acceptable performance standard identified in the
TSP or comprehensive plan.
To satisfy step one of the TPR, the county must make a specific finding, based on
substantial evidence in the record, whether the comprehensive plan map amendment will
"significantly affect" a transportation facility.
The record in this case includes a Memorandum from Kittelson & Associates, Inc.
(the "Traffic Analysis," Exhibit A) which concludes that the proposed amendments will
significantly affect transportation facilities. In particular, the Traffic Analysis concluded that
the amendments adding the Pine Forest and Belveron properties (referred to in the Traffic
Analysis as the "Forest Service" parcel) would reduce the performance of the South Century
Drive/Spring River Road and US 97/Vandervert intersections below the minimum acceptable
performance standard identified in the TSP or comprehensive plan. This conclusion results
in a finding of significant affect under OAR 660-012-0060(1)(c)(B).
In the Root case in Klamath County, LUBA held that the county's cursory findings
regarding significant effects under OAR 660-012-0060(1) were insufficient, primarily
because the county's adopted findings
did not attempt to analyze or evaluate how destination resorts
allowed under the plan amendment would significantly affect
any transportation facilities in any of the ways set out in OAR
O D MA\PC DOCS\PO RTLAN D\766291 \2
5a ri.
660-012-0060(1); it simply assumed that there would be a
significant effect on unspecified transportation facilities if some
unspecified portion of the 90,000 acres were developed with an
unspecified number of destination resorts of an unspecified size
at unspecified locations.
Root, _ Or LUBA -(Slip Op at 24). Here, in contrast, the Traffic Analysis has evaluated
how destination resorts will significantly affect transportation facilities. In particular, the
Traffic Analysis developed a reasonable worst case development scenario for the Pine Forest
and Belveron parcels proposed to be added to the Destination Resort map. Based on
applicable destination resort development standards, the Traffic Analysis determined the
maximum number of units which could be permitted on each property at full development,
assumed that the resorts would be built, and then assigned a trip generation amount based
on the trip factor for destination resorts set forth in the county's adopted Transportation
SDC Study, SDC Calculation. The Traffic Analysis then identified potentially affected
transportation facilities, applied the potential trip generation from the subject properties and
concluded that at full development one or more transportation facilities would be
significantly affected by resort development. In other words, the Traffic Analysis concluded
that the County's remapping would "significantly affect" one or more transportation facilities
under OAR 660-012-0060(1).
B. Step Two
Upon concluding that an amendment to an acknowledged comprehensive plan or
land use regulation would significantly affect a transportation facility, the local government
must put into place measures to assure that allowed land uses are consistent with the
identified function, capacity, and performance standards of the facility. In particular,
OAR 660-012-0060(2) provides:
Where a local government determines that there would be a
significant effect, compliance with section (1) shall be
accomplished through one or a combination of the following:
(a) Adopting measures that demonstrate allowed land
uses are consistent with the planned function, capacity,
and performance standards of the transportation facility.
(b) Amending the TSP or comprehensive plan to provide
transportation facilities, improvements or services
adequate to support the proposed land uses consistent
with the requirements of this division; such amendments
shall include a funding plan or mechanism consistent
with section (4) or include an amendment to the
transportation finance plan so that the facility,
improvement, or service will be provided by the end of
the planning period.
(c) Altering land use designations, densities, or design
requirements to reduce demand for automobile travel
and meet travel needs through other modes.
::ODMA\PCDOCS\PORTLAN D\766291 \2
(d) Amending the TSP to modify the planned function,
capacity or performance standards of the transportation
facility.
(e) Providing other measures as a condition of
development or through a development agreement or
similar funding method, including transportation system
management measures, demand management or minor
transportation improvements. Local governments shall
as part of the amendment specify when measures or
improvements provided pursuant to this subsection will
be provided.
C. Data Gaps
The County's map amendment does not permit any resort development and, at the
current time, no resort is proposed for any of the subject properties. Absent specific resort
proposals, it is impossible to perform detailed traffic analysis at this juncture. Indeed, many
required components of traffic studies which would be required at the time of development
are unknown at the present time. Consequently, the Traffic Analysis made certain
assumptions for each property (e.g., density, trip generation), and based the significant
affect and mitigation on these assumptions. A more detailed transportation analysis is
simply not possible at this point. For example, under ODOT's 2005 Development Review
Guidelines (Exhibit B), the following components are required for a traffic impact study,
none of which are known at the present time:
• Traffic volumes in the year of opening without resort development
• Traffic operations in the year of opening without resort development
• Traffic volumes in the year of opening with the resort development
• Traffic operations in the year of opening with the resort development
• Traffic volumes at the end of planning period without resort development
• Traffic operations at the end of the planning period without resort development
• Traffic volumes at the end of the planning period with resort development
• Traffic operations at the end of the planning period with resort development.
Because these factors are unknown-primarily because it is impossible to predict at
the present time the size of any particular resort, when it is planned to open, or whether
there will be intervening development which would affect the transportation analysis-it is
impossible to specifically identify the precise measures which would be required at the time
of resort development to assure that resort development is consistent with the identified
function, capacity, and performance standards of all potentially affected transportation
facilities, as required under OAR 660-012-0060(1). The mitigation identified in the Traffic
Analysis would be sufficient to remedy the identified significant effects if the subject
properties were developed today with resorts generating the traffic identified in the Traffic
Analysis. Because, however, it is impossible to know at the present time whether, when
and to what extent the subject properties will be developed for resorts, it is appropriate to
::ODMA\PCDOCS\PORTLAND\766291\2 4
impose certain conditions of approval to ensure that when and if resorts are developed, they
are developed consistent with the planned function, capacity, and performance standards of
affected transportation facilities.
D. Conditions of Approval
Because the Traffic Analysis concluded that the proposed map amendments would
significantly affect several identified transportation facilities, under Step Two, the county
must impose one or more measures identified in OAR 660-012-0060(2) to assure that
allowed land uses are consistent with the identified function, capacity and performance
standards of the affected facility. Pine Forest recommends that the county impose the
following condition of approval pursuant to OAR 660-012-0060(2)(a) and (e):
1. Development Prohibition. The Belveron, Pine Forest and DSL properties'
may not be developed with a destination resort until a traffic impact study
is performed which fulfills OAR 660 Division 12 Transportation Planning
Rule requirements. If the traffic impact study required by this condition of
approval demonstrates that the resort will significantly affect an existing
or planned transportation facility, resort development may not proceed
until measures are in place as described in OAR 660-012-0060(2) to
assure that resort development is consistent with the identified function,
capacity, and performance standards of affected transportation facilities.
E. Condition Analysis
This condition does not defer TPR compliance in violation of the Willamette Oaks
decision. As set forth above, the County has completed the TPR analysis for each of the
newly mapped sites as part of the present amendments to the Destination Resort maps.
There is substantial evidence in the record which demonstrates that, at full build out, each
of the properties would significantly affect transportation facilities. In response to that
finding, the County has identified specific mitigation which would alleviate any significant
affect. Given that it is impossible to accurately determine the specific impacts of resort
development given the uncertainty of timing and scope of any particular proposal, this
condition is essentially a back-up condition which will prohibit resort development (and
therefore any affect on transportation facilities) until such time as a more detailed and
focused transportation analysis is completed. It may be possible that a specific resort has
fewer impacts than identified in the Traffic Study. The opposite may also be true. This
condition recognizes each possibility, and prohibits resort development on the subject
properties until such time as a resort is proposed. While any resort applicant will be
required to proceed through a new TPR-level transportation study at the time of resort
development, a second TPR-level study does not equate to deferral of the TPR in violation of
Willamette Oaks.
Moreover, under SB 1031 (2010), any resort proposal will be required to provide a
traffic impact analysis which includes mitigation measures to either avoid or mitigate a
proportionate share of adverse effects of transportation on state highways and other
transportation facilities affected by the proposed development. In large part, this condition
of approval merely restates the requirements of SB 1031. By imposing this condition of
approval, which prevents the addition of any resort-related trips to the transportation
1 The DSL property is the subject of a second transportation analysis. This condition is equally applicable to the
DSL property.
OD MA\PCDOCS\PORTLAN D\766291 \2 5
.J. I{i
system-thereby ensuring that transportation facilities operate consistent with their planned
function-the County has complied with the TPR and the requirements of Willamette Oaks.
ODMA\PCDOCS\PORTLAN D\766291\2 6
KITTELSON & ASSOCIATES, INC.
T R A N S P O R T A T I O N E N G I N E E R I N G / P L A N N I N G
354 SW Upper Terrace Drive, Suite 101, Bend, Oregon 97702 P 541.312.8300 - 541.312.4585
MEMORANDUM
Date: June 22, 2011 Project 11844.0
T'a: Steve Runner
Pram; Joe Bessman, PE, PTOE & Julia Kuhn, PE
Subject: Destination Resort Mapping TPR Compliance
The purpose of this memorandum is to address the requirements of OAR 660-12-0060 (TPR) as
part of the proposed Deschutes County Destination Resort Overlay (DRO) Mapping process for
the Pine Forest Property and Forest Service Parcels "A" and "B" (Forest Service Parcels). As
shown in Figure 1, the subject parcels are located south of Sunriver resort on Deschutes County
lands currently zoned Forest Use (F2). The subject parcels encompass approximately 904 acres in
total.
PRIOR STUDIES
Development of these parcels has been previously considered in both the December 2004
approved Caldera Resort Transportation Impact Analysis (TIA) and an ODOT study of the
Century Drive interchange. A summary of relevant highlights from each of these studies is
provided below.
US 97 at South Century Drive
As part of the environmental assessment prepared in 2003, ODOT analyzed year 2027
transportation conditions related to a variety of alternatives considered for a potential
interchange at the US 97/Century Drive intersection (Traffic Analysis Narrative as prepared by
ODOT Transportation Planning and Analysis Unit, October 2003).
FILENAME: H: \PROJFILE\11844 -PINE FOREST DESTINATION RESORT\REPORnFINAL\SUNRIVERDRO.DOC
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DESCHUTES COUNTY, OREGON
K KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNING / TRAFFIC ENGINEERING
Destination Resort Mapping TPR Compliance Project 11844.0
June 22, 2011 Page 3
The ODOT analysis assumed that the subject properties would develop with 360 single family
homes (not second homes), 170 acres of golf course, 10 acres of business park and a 300-room
hotel within the "land swap area" plus an additional 20 single family homes in the adjacent
properties. This level of growth was more intense than assumed in the Caldera Resort
application and equated to a total of 789 p.m. peak hour trips generated by the subject parcels in
the year 2027 (see ODOT study Table D2, zones 8 and 9). These growth assumptions result in
annual growth rates of 4.7 percent at the S Century Drivf!/Abbott Drive intersection and 9.1
percent at the Spring River Road/S Century Drive intersection through the year 2027.
To accommodate year 2027 conditions, the following transportation improvement needs were
considered in the proximity of the subject parcels within this study:
• Construction of a single lane roundabout at the South Century Drive/Abbott Drive
intersection. The future roundabout should be designed to accommodate a westbound
right-turn bypass lane. A roundabout has subsequently been constructed at this
intersection and is in operation today.
• Spring River Road/South Century Drive should be constructed as a single-lane
roundabout. It was projected to operate near-capacity as a single-lane roundabout with
no development of the Forest Service lands and over-capacity if the Forest Service
property is developed. The assessment recommended the ability to widen the
roundabout to accommodate a multi-lane design long-term. A roundabout has not been
constructed at this intersection.
• US 97/Vandervert - an eastbound left-turn lane should be constructed at this intersection
to address failing conditions anticipated by year 2007. This improvement has not been
completed.
• Vandervert/South Century Drive - this intersection was forecast to operate at level-of-
service "E" in the year 2027. A signal is not warranted and no mitigation measures were
identified.
Caldera Resort Transportation Impact Analysis (December 2004)
A transportation impact analysis was prepared for the Caldera Resort property by Kittelson &
Associates, Inc. in 2004. The study assessed year 2004 and year 2020 transportation needs to
accommodate build-out of a 500 unit destination resort with a 9-hole golf course, a 5,000-square
foot restaurant, and a 15,000 square foot recreational facility. The Caldera Resort TIA buildout
assumptions resulted in 310 weekday p.m. peak hour trips at buildout. This is less than half of
the trip generation used in the ODOT study.
In addition to year 2020 conditions, the study also analyzed year 2027 conditions to ensure that
any recommendations were consistent with the long-term needs of the facilities. These 2027
conditions were based on traffic volume forecasts developed by ODOT for the US 97 at South
Century Drive study and included development on the Pine Forest lands.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
June 22, 2011 Page 4
To accommodate growth in the year 2020 and year 2027, the following recommendations were
included in this study:
• S Century Drive/US 97: "this intersection will be reconstructed as a diamond
interchange. According to the Oregon Department of Transportation (ODOT)
Statewide Transportation Improvement Program (STIP) and the interchange
Memorandum of Understanding, this improvement is funded and scheduled to begin
in 2005." An interchange has been constructed at this location and is in operation
today.
• Abbot Drive/S Century Drive: "this intersection needs to be constructed as a single
lane roundabout within the next 1 - 2 years. The roundabout should be designed to
allow the flexibility of adding a westbound slip lane in the future. This slip lane is not
necessary to accommodate buildout of the planned resort but is necessary to
accommodate the year 2027 traffic volume projections developed by ODOT." A
roundabout has been constructed at this location and is in operation today. The
roundabout has been designed to enable the addition of a slip-lane in the future,
when warranted.
• Spring River Road/S Century Drive: "a northbound left-turn lane is needed at this
intersection to facilitate buildout of the resort. This improvement should be made
prior to 75 percent buildout of the resort (estimated at year 2016). Over the longer
term (beyond buildout of the proposed resort), the intersection will warrant the
installation of a roundabout in accordance with year 2027 traffic volume projections
developed by ODOT." The northbound turn :lane has been constructed at this
intersection. The roundabout has not been constructed.
The Vandervert/South Century Drive intersection was shown to operate at a level-of-service "D"
in the year 2020. No mitigation measures were identified to be needed at this intersection.
Summary of Previous Studies
Both the ODOT and the Caldera studies provided a long-term assessment of transportation
system needs within the vicinity of the Pine Forest Lands. Both studies evaluated year 2027
conditions assuming an intense level of development on the subject parcels. In the year 2027, this
equated to a weekday p.m. peak hour trip generation rate of 789 trips. The Caldera Resort was
assumed to build out by the year 2020 and result in only 310 weekday p.m. peak hour trips.
Both studies identified that the transportation system is forecast to operate unacceptably per
ODOT and Deschutes County standards in the future if additional improvements are not made.
Since the completion of the studies, some of the improvements identified have been completed.
Those that remain to be complete include:
• Spring River Road/South Century Drive - construction of a single-lane roundabout that
can ultimately be expanded to a double-lane roundabout.
• US 97Nandervert - construction of an eastbound left-turn lane.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
June 22, 2011 Page 5
IMPACT OF PROPOSED MAPPING ON TRIP GENERATION POTENTIAL
Existing F2 Zoning
The existing zoning for the Pine Forest and Forest Service properties is Forest Use Zone (F2),
which is intended for forestland preservation. Based on review of Deschutes County Code 18.40,
the trip generation potential of the existing F2 zoning outright allowable uses is minimal.
Accordingly, the trip generation potential for Transportation Planning Rule (TPR) analysis
purposes was assumed to be zero.
Proposed Destination Resort Mapping
If the Forest Service and Pine Forest properties were developed as destination resorts, a range of
densities could be provided. As the intent of the destination resort zoning is to preserve open
space and enhance and diversity recreational opportunities it was assumed that an overall
density of up to 1.5 units per acre could be developed, allowing 1,356 resort homes throughout
the 904 acres of the Pine Forest and Forest Service Parcels. Although this density is higher than
assumed in either the Caldera Resort or US 97 at South Century Drive studies, the resultant trip
generation is lower than the ODOT study, as discussed below.
To quantify the impacts of this level of development, traffic engineers and local and state review
agencies commonly rely upon information contained in the Institute of Traffic Engineers (ITE)
Trip Generation (Reference 1) for estimating trip generation rates. Although the ITE data is
typically used as a standard reference for trip generation, it is based on a collection of national
studies that may not represent specific developments or local conditions.
Within Trip Generation, the data related to resorts is fairly limited and dated. The most similar
land use category to the proposed development, Recreational Homes, contains data from two
studies, one in Oregon conducted in 1977 and another in New York conducted in 1985. Neither
of these studies reflects current destination resort land use requirements or amenities.
Supplemental local data is also limited because prior to 2003, local resort data was not collected
in Central Oregon due to the limited number of fully built resorts in the area. However, as part
of land use applications submitted within the past five years, a database of local trip generation
characteristics has been created for Central Oregon resorts. Based on this data', the anticipated
1 As part of previous land use applications in Central Oregon, trip generation was collected at two local resorts, Black Butte Ranch and Eagle Crest
Resort. These resorts included typical amenities, contained a mix of primary and secondary residences, and have been in operation for at least ten
years. To identify the trip generation potential of the resorts, twenty-four hour tube counts were collected on three consecutive weekdays at each
ingress/egress route serving the resorts in order to measure daily resort trip rates and changes in resort trip generation over the course of a day.
Additionally, peak period turning movement counts were conducted on three consecutive days between 3:00 p.m. and 7:00 p.m. at each
ingress/egress route to measure trip rates during the weekday p.m. commute period. Review of this data identified that Eagle Crest contained higher
trip rates than Black Butte Ranch, with 0.32 weekday p.m. peak hour trips/residential unit.
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
June 22, 2011 Page 6
trip generation is 0.32 p.m. peak hour trips per residential unit. This value is consistent with the
approach taken by the Deschutes County SDC ordinances for destination resorts. The resultant
trip generation potential is summarized in Table 1.
Table 1
Estimated Trip Generation Potential
Trip Generation
Weekda PM Peak Hour
Land Use
Units
Rate
Total
In
Out
Destination Resort
1,356
0.32 trips/unit'
434
217
217
Note: 'Assumed based on Eagle Crest Resort Trip Generation Study
As discussed above, the ODOT study applied a trip generation of 789 weekday p.m. peak hour
trips in the assessment of the transportation system needs. The Caldera Study used a trip
generation rate of 310 pm peak hour trips. The assignment of these trips on to the transportation
system is expected to follow similar patterns to that assumed in both of the previous studies.
The ODOT and Caldera studies highlighted the need for additional transportation system
improvements to ensure acceptable operations. Given that the development of the properties
consistent with the destination resort mapping is anticipated to yield similar trip generation and
assignment to that used in both of the past studies, it can be reasonably concluded that the
development of the subject parcels as a destination resort would require the same level of
improvements identified in these previous studies.
AFFECT ON DESCHUTES COUNTY TRANSPORTATION SYSTEM PLAN
The Deschutes County Transportation System Plan is currently in the process of being updated
and will identify transportation system needs for the year 2030. The currently adopted plan
assesses year 2020 system needs, consistent with the analysis year of the Caldera Resort
Transportation Impact Analysis. For the purposes of TPR compliance any assessment of the DRO
mapping should be consistent with the adopted TSP horizon year of 2020.
As highlighted above, there are two improvements identified in the previous studies within the
vicinity of the subject parcels that have not been constructed yet. At this point, the County has
not identified any financing mechanisms to ensure construction of these improvements by the
year 2020. We anticipate that the County will re-evaluate the timing of these improvements as
part of the TSP update.
TRANSPORTATION PLANNING RULE COMPLIANCE
As previously documented, development of the Pine Forest Resort and Forest Service Parcels as
a destination resort would create a significant affect on the transportation system. Improvement
measures at the US 97Nandervert and Spring River Road/South Century Drive are necessary to
meet applicable performance standards. These measures have no guarantee of construction by
the year 2020. Per the TPR, the mapping of these properties to accommodate destination resort
uses can be considered an amendment to a comprehensive plan that would significantly affect an
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance Project 11844.0
June 22, 2011 Page 7
existing or planned transportation facility. Under the TPR, local governments are required to put
in place measures to assure that allowed uses are consistent with the identified function,
capacity, and performance standards (e.g., level of service, volume to capacity ratio, etc.). To
enable the mapping to occur, Deschutes County will have to utilize one or more measures set
forth in OAR 660-12-0060(2) to assure proper function of transportation facilities.
OAR 660-12-0060(2)(a)-(e) provides as follows:
Where a local government determines that there would be a significant effect, compliance with
section (1) shall be accomplished through one or a combination of the following:
(a) Adopting measures that demonstrate allowed land uses are consistent with the planned
function, capacity, and performance standards of the transportation facility.
(b) Amending the TSP or comprehensive plan to provide transportation facilities,
improvements or services adequate to support the proposed land uses consistent with the
requirements of this division; such amendments shall include a funding plan or
mechanism consistent with section (4) or include an amendment to the transportation
finance plan so that the facility, improvement, or service will be provided by the end of the
planning period.
(c) Altering land use designations, densities, or design requirements to reduce demand for
automobile travel and meet travel needs through other modes.
(d) Amending the TSP to modify the planned function, capacity or performance standards
of the transportation facility.
(e) Providing other measures as a condition of development or through a development
agreement or similar funding method, including transportation system management
measures, demand management or minor transportation improvements. Local
governments shall as part of the amendment specify when measures or improvements
provided pursuant to this subsection will be provided.
In the absence of improvements at the South Century Drive/Spring River Road and US
97Nandervert intersections, the significant effect associated with the DRO mapping of the Pine
Forest and Forest Service Parcels can be mitigated by prohibiting future development until such
time that a comprehensive transportation study is completed and financing mechanisms are in-
place to ensure completion of the identified improvements. Because it is impossible to predict at
the present time when, and to what extent, either property may develop as a destination resort,
and because it is unclear where additional development in the region may occur or whether
additional transportation improvements may be made, this condition of approval would require
additional TPR-level transportation improvements at such time as a resort is developed. We
note that SB 1031 (2010) imposes such a requirement.
A future application to permit a destination resort within. these parcels will be required to
include a traffic study that analyzes the impacts of the specific proposal and its planned density
on affected transportation facilities. As a destination resort is a conditional use within the F2
Kittelson & Associates, Inc. Bend, Oregon
Destination Resort Mapping TPR Compliance
June 22, 2011
Project 11844.0
Page 8
zoning per Deschutes County Code Section 18.40.030, this process will allow the destination
resort overlay mapping to be implemented while specific transportation details are addressed at
the time of master plan application.
This process will require that the applicant bear the burden of proof and costs associated with
mitigation for their specific proposal. Further, it will allow the planning of supporting
transportation system infrastructure at a time when specific information about the location,
proposed vehicular access, and resort size are known.
Please call us at (541) 312-8300 if you have any questions.
Sincerely,
KITTELSON & ASSOCIATES, INC.
tIt
e Bessman, PE, PTOE
enior Engineer
Attachments:
J is Kuhn, PE
rincipal Engineer
1) 2004 Caldera Resort Transportation Impact Analysis
Kittelson & Associates, Inc. Bend, Oregon
+r.
EXHIBIT B
2005 .Develo ment..Revie _ Guidelines.
Whichever is Greater
Plan Year of Planning
Amendments Horizon for
and Zone Transportation System
Changes Plan or 15 Years,
Whichever is Greater'
'This is policy: see OHP Action 1F.2
3.3.05 Components of Traffic Impact Studies
Whichever is Greater
Year of Planning Horizon
for Transportation
System Plan or 15
Years, Whichever is
Greater'
The APM should be consulted for guidance on technical procedures that are
common to planning and project analysis as well as analysis for a TIS. The general
outline of a TIS document will include most or all of the following elements:
1
2
3
4.
5.
6.
7.
8.
Executive Summary
Introduction
Existing Area Conditions
a. Traffic Volumes - Year of Opening without the Development
b. Traffic Operations - Year of Opening without the Development
c. Roadway characteristics
Site Trip Generation, Distribution and Assignment
a. Traffic Volumes - Year of Opening with the Development
b. Traffic Operations - Year of Opening with the Development
c. Traffic Volumes - Future Year without the Development
d. Traffic Operations - Future Year without the Development
e. Traffic Volumes - Future Year with the Development
f. Traffic Operations - Future Year with the Development
Technical Analysis
a. Capacity Analysis
b. Peak Hour Factors and Design Hour Factor
c. Signalized Intersections
d. Unsignalized Intersections
e. Roundabouts
f. Capacity Analysis Documentation Requirements
g. Queue Length Analysis
h. Intersection Sight Distance
i. Right/Left Turn Lane Warrants
j. Transportation Demand Management
k. Turning Conflict Analysis
1. Access Management
Mitigation Alternatives
Conclusions and Recommendations
Appendices including all data sheets
861 Page
Traffic Impact Analysis
Proposed
Deschutes County
Resort
Deschutes County, Oregon
December 2004
EXHIBIT
Traffic Impact Analysis
Proposed Deschutes
County Resort
Deschutes County, Oregon
Prepared For:
Sunriver Resort LP
P.O. Box 3589
Sunriver, OR 97707
(541) 593-4682
Prepared By:
Kitteison & Associates, Inc.
610 SW Alder, Suite 700
Portland, OR 97205
(503) 228-5230
Project Manager: Julia Kuhn, P.E.
Project No. 6717
December 2004
K
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December 2004
Proposed Deschutes County Resort Table of Contents
Table of Contents
va°.~tivu 1
Ta'ule ^.f
...1
Section 2
Executive Summary
5
Section 3
Introduction
8
Section 4
Existing Conditions
11
Section 5
Traffic Impact Analysis
17
Section 6
Conclusions and Recommendations
26
Appendix A
Traffic Count Data
Appendix B
2004 Existing Conditions Level-of-Service Worksheets
Appendix C
Year 2020 Background Traffic Level-of-Service Worksheets
Appendix D
Year 2020 Total Traffic Level-of-Service Worksheets
Kittelson & Associates, Inc. i
t
December 2004
Proposed Deschutes County Resort Table of Contents
List of Figures
Figure 1 Site Vicinity Map 9
Figure 2 Existing Lane Configurations and Traffic Control Devices ............................................12
Figure 3 2004 Existing Traffic Conditions, Weekday PM Peak Hour ..........................................14
Figure 4 Year 2020 Background Traffic Volumes and LOS ..........................................................19
Figure 5 Estimated Trip Distribution 23
Figure 6 2020 Site-Generated Traffic and Total Traffic Conditions, Weekday
PM Peak Hour 24
Kittelson & Associates, Inc. ii
December2004
proposed Deschutes County Resort Table of Contents
List of Tables
lli
J
A avie 1 LA1Jung TrLt1lJpVr{r6Jtt1Vi1 ~a~ivi~itiw Q.nr~ RnµMl~i~µv Tl~qirmatinnc 11
Table 2 Intersection Crash Rate Summary (1999-2003) ..................................................................15
Table 3 Estimated Trip Generation 20
Kittelson & Associates, Inc.
Section 1
Executive Summary
Proposed Deschutes County Resort
December 2004
Executive Summary
Sunriver Resort LP is proposing to develop a destination resort to the south of Sunriver and east of
Crosswater Resort in Deschutes County, Oregon. The proposed resort may include up to 500 residential
units, a 9-hole golf course, an approximately 5,000 square foot restaurant, and a variety of recreational
and retail uses that will only be primarily open to resort owners and guests. Primary access to the resort
will be provided via South Century Drive to the south of the Spring River Road intersection. Secondary
access to the resort will be provided into the Sunriver Business Park near the recycling station.
A summary of the needed intersection improvements is provided below.
S Century Drive/US 97: this intersection will be reconstructed as a diamond interchange.
According to the Oregon Department of Transportation (ODOT) Statewide Transportation
Improvement Program (STIP) and the interchange Memorandum of Understanding, this
improvement is funded and scheduled to begin in 2005.
• Abbot Drive/S Century Drive: this intersection needs to be constructed as a single lane
roundabout within the next 1 - 2 years. The roundabout should be designed to allow the
flexibility of adding a westbound slip lane in the future. This slip lane is not necessary to
accommodate buildout of the planned resort but is necessary to accommodate the year 2027
traffic volume projections developed by ODOT.
• Spring River Road/S Century Drive: a northbound left-turn lane is needed at this intersection
to facilitate buildout of the resort. This improvement should be made prior to 75 percent
buildout of the resort (estimated at year 2016). Over the longer term (beyond buildout of the
proposed resort), the intersection will warrant the installation of a roundabout in accordance
with year 2027 traffic volume projections developed by ODOT.
No additional intersection mitigation measures are anticipated as part of the resort development.
Over the long-term, S Century Drive will operate acceptably with the Venture Lane traffic signal and
roundabouts constructed at the Spring River and Abbot Drive intersections. This configuration is
consistent with guidelines and practices contained in the Federal Highway Administration (FHWA)'s
Roundabouts: An Informational Guide.
In addition to the intersection improvements at Spring River Road and Abbot Drive, the following
measures are recommended to facilitate buildout of the proposed resort:
• A southbound left-turn lane on S Century Drive should be provided at the resort access.
• All minor street approaches intersecting with the principle roadways in the resort should be
stop sign controlled.
• Advisory speed signs of 25 miles per hour should be posted alongside the principle on-site
streets, as per a residential neighborhood.
• A comprehensive bicycle and pedestrian pathway system should be developed as part of the
resort.
KITTELSON & ASSOCIATES, INC. Executive Summary 5
NA TRANSPORTATION PLANNING TRAFFIC ENGINEERII
Section 2
Introduction
Proposed Deschutes County Resort
Introduction
PROJECT DESCRIPTION
December 2004
Sunriver Resort LP is proposing to build a destination resort in Deschutes County. The resort will
include a mixture of permanent and secondary homes, a golf course, a restaurant, and a variety of
recreational/retail amenities. Figure 1 provides a map of the site vicinity.
SCOPE OF THE REPORT
This report outlines the transportation-related impacts associated with the development of the proposed
resort. The affected study area was identified through a review of the local transportation system and
per direction provided by the Oregon Department of Transportation (ODOT) and Deschutes County
staff. Per the jurisdictions' staff, the study includes an analysis of year 2004 and projected year 2020
traffic operations at the following intersections:
• Abbot Drive/S Century Drive
• Venture Lane/S Century Drive
• Spring River Road/S Century Drive
• Vandervert Road/S Century Drive
• US 97/S Century Drive
• Future Resort access point/S Century Drive
This report addresses the following transportation issues:
• Year 2004 existing transportation system conditions within the site vicinity for the 30`h
highest hour;
• Planned developments and transportation improvements in the study area;
• Forecast year 2020 background traffic conditions;
• Trip generation and distribution estimates for the proposed development; and
• Forecast year 2020 total traffic conditions with full build-out of the resort.
In accordance with Deschutes County standards, this report analyzes transportation conditions
anticipated at buildout of the proposed resort development (year 2020). As part of the US 97/S Century
Drive interchange construction project, ODOT has developed year 2027 traffic volumes for the study
intersections. Two sets of projections were prepared and both include buildout of the subject resort
property. One projection assumes that the adjacent Forest Service lands will remain undeveloped; the
other assumes a land transaction will occur that would enable a future resort development on the Forest
Service lands. The second scenario would require land use approvals from Deschutes County. An
analysis is presented in this traffic impact study to demonstrate that the mitigation measures proposed as
part of resort development are consistent with and supportive of the longer term needs of S Century
Drive.
IFWAA' KITTELSON & ASSOCIATES, INC. Introduction 7
1LXJ TRANSPORTATION PLANNING/TRAFFIC ENG INEERII
Deschutes County Resort
December 2004
e
(NO SCALE)i
SITE VICINITY MAP
DESCHUTES COUNTY, OREGON
KNICI KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNING / TRAFFIC ENGINEERING
Section 3
Existing Conditions
proposed Deschutes County Resort
Existing Conditions
December 2004
The existing conditions analysis identifies site conditions and the current operational and geometric
characteristics of roadways within the study area. The purpose of this section is to set the stage for a
basis of comparison to future conditions.
The site and vicinity of the proposed Deschutes County resort were visited and inventoried in September
2004. At that time, information was collected regarding existing traffic operations and transportation
facilities in the study area.
SITE CONDITIONS AND ADJACENT LAND USES
The proposed site is currently vacant and has destination resort overlay zoning, as stipulated by the
Deschutes County Destination Resort Ordinance.
TRANSPORTATION FACILITIES
Roadway Facilities
As indicated in Figure 1, the site is provided with regional access via US 97. Access to the Mount
Bachelor recreational area is provided via Spring River Road. Within the direct vicinity of the site,
access to the resort will be provided via S Century Drive.
Table 1 provides a summary of the facilities included in this analysis and Figure 2 identifies the existing
lane configurations and traffic control devices at the study intersections.
Table 1
Existing Transportation Facilities and Roadway Designations
Roadway
Classification
Cross
Section
Speed
Limit
Side-
walks
Bicycle
Lanes
On-Street
Parking
US 97
Principal Arterial
2 - 3 lanes
55
No
No
No
S Century Drive
Rural Collector
2 - 3 lanes
45 - 55
Path
No
No
Abbot Drive
Local Street
2 lanes
25
Path
No
No
Spring River Road
Rural Collector
2 lanes
45
No
No
No
Venture Lane
Local Street
2 lanes
20
Path
No
No
Vandervert Road
Rural Collector
2 lanes
NP
No
No
No
NP = not posted
179011 KITTELSON & ASSOCIATES INC. Existing Cond1dons 10
1, TRANSPORTATION PLANNINGrrRAFFIC ENGINEERII
0
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December2004
Deschutes County Resort
- STOP SIGN
- TRAFFIC SIGNAL
KICE KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNING I TRAFFIC ENGINEERING
(NO SCALE)
4, 11,
'q C.STFOR~SrRo
EXISTING LANE CONFIGURATION
AND TRAFFIC CONTROL DEVICES
DESCHUTES COUNTY, OREGON
Proposed Deschutes County Resort
Pedestrian and Bicycle Facilities
December2004
The Sunriver community has an extensive system of trails for pedestrians and bicyclists. This system
provides convenient access between residential, commercial and recreational areas. As a result,
significant pedestrian and bicycle travel occurs ftn-oughout the year.
The new resort is also planned to include a comprehensive system of bicycle and pedestrian trails.
Transit Facilities
Currently, there is no regularly scheduled public transit service within the study area. Commensurate
with the Sunriver Resort, on-demand shuttle service to major destinations in the area, such as the airport,
may be provided in the future. The trip generation estimates included in this report do not include any
reduction for this type of service.
TRAFFIC VOLUMES AND PEAK HOUR OPERATIONS
As part of the environmental work recently completed for the US 97/S Century Drive interchange,
ODOT measured year 2002 weekday pm peak hour (i.e., 30th highest hour) volumes at each of the study
intersections (US 97 at South Century Drive, ODOT Transportation Planning Analysis Unit (TPAU),
October 2003). To ensure consistency with this study, these volumes were factored by three percent per
year to reflect year 2004 volumes for analysis for the Deschutes County resort. Figure 3 shows the
resultant weekday evening peak hour traffic volumes at the study intersections. Appendix "A" contains
the 30th Highest Hour Volumes from the ODOT study.
Current Levels of Service
All level-of-service analyses described in this report were performed in accordance with the procedures
stated in the 2000 Highway Capacity Manual. Figure 3 summarizes the level of service results for the
study intersections during the 3Wh highest hour. As shown in the figure, the study intersections are
currently operating acceptably, with the exception of the US 97/S Century Drive intersection. In
addition, the Abbott Drive/S Century Drive intersection is operating close to capacity today. The
construction of a single lane roundabout at this location will be needed within the next two years.
Appendix "B" includes the year 2004 existing conditions level-of-service worksheets.
IKI~ KITTELSON & ASSOCIATES, INC. Existing Conditions j 12
TRANSPORTATION PLANNING/TRAFFIC ENGINEERII
L,
Deschutes County Resort
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I
ember2004
(NO SCALER
2004 EXISTING TRAFFIC CONDITIONS
WEEKDAY PM PEAK HOUR
DESCHUTES COUNTY, OREGON
Proposed Deschutes County Resort
December2004
Traffic Safety
The crash histories of the respective study intersections were reviewed in an effort to identify potential
intersection safety issues. Crash records were obtained from the Oregon Department of Transportation
for the five-year period from January 1, 1999 through December 31, 2003. OD01 did not have any
records available for the period after December 31, 2003. A summary of the crash history at the study
intersections is summarized in Table 2.
Table 2
Intersection Crash Rate Summary (1999-2003)
Intersection
# of
Crashes
Crashes/
Year
Z7
MEVZ
Crashes/
MEV
Abbot Drive/S Century Drive
_
No Crashes Reported in ODOT's database
Venture Lane/S Century Drive
2
<1
10,970
20.0
0.10
Spring River Road/S Century Drive
3
1
7,950
14.5
0.21
Vandervert Road/S Century Drive
No Crashes Reported in ODOT's database
US 97/S Century Drive
15
I
3
20,110
L
36.7
0.41
1. TEV - Total Entering Vehicles (per day)
2. MEV - Million Entering Vehicles (per intersection over five years)
As shown in Table 2, all of the intersections experienced a low frequency of crashes (relative to other
locations throughout the state) during the five-year period that was analyzed. Over time, a number of
crashes have occurred at the US 97/S Century Drive intersection during inclement weather. This
intersection is scheduled for reconstruction as a grade-separated interchange to mitigate existing safety
and operational deficiencies. No additional safety-related mitigation measures are needed at the study
intersections.
GZAA KITTELSON & ASSOCIATES, INC. Existing Conditions 1 14
ININ TRANSPORTATION PLANNING/TRAFFIC ENGINEERII
Section 4
Traffic Impact Analysis
Proposed Deschutes County Resort December2004
Traffic Impact Analysis
Per the Deschutes County Code, this section of the report identifies how the study area's transportation
system is forecast to operate in year 2020, which is when the resort is likely to be fully built out and
operational. Per state and county requirements, the transportation-related impacts of the proposed resort
were analyzed according to the methodology outlined below.
• Planned developments and transportation improvements in the site vicinity were identified
and reviewed.
• Background weekday p.m. peak hour traffic conditions for the year 2020 were analyzed. An
annual growth rate of three percent was applied to existing traffic volumes to account for
regional growth in the site vicinity.
• Future evening peak hour site-generated trips were estimated for resort build-out.
• A trip distribution pattern was derived through a review of existing traffic volumes, local
transportation facilities, the anticipated market area of the proposed resort, and direction
provided by jurisdiction staff.
• Predicted site-generated traffic from the destination resort was added to the background
traffic volumes to evaluate total traffic operations at the study intersections during the
weekday p.m. peak hour.
2020 BACKGROUND TRAFFIC CONDITIONS
The resort will likely take 10 - 15 years to be completely built and operational. For this reason, year
2020 conditions were analyzed to comply with Deschutes County Code. A background traffic analysis
was conducted to evaluate how the affected transportation system is anticipated to operate in year 2020
without buildout of the resort. This background analysis accounts for regional growth in the study area
as well as previously approved, but not yet constructed developments.
To account for regional growth in the site vicinity, a three percent annual growth rate was applied to the
existing traffic volumes at the study area intersections. This growth rate has been used in other
Deschutes County land use applications and was approved by jurisdiction staff.
The US 97/S Century Drive intersection will be reconstructed as a grade-separated diamond interchange.
The construction of this project is scheduled for year 2005, according to the ODOT Statewide
Transportation Improvement Program (STEP). This construction will commence prior to any
development at the resort. For this reason, the improvement was included in the year 2020 analyses.
According to the STEP, there is a portion of the construction funding that will be obtained from the
County, the Federal Forest Highway Program, and existing private developments in the area, such as
Sunriver. The Memorandum of Understanding (MOU) to allocate funding responsibilities for the
interchange improvement is currently being finalized between the affected parties. According to
discussions with County and ODOT staff and the MOU, construction will begin in 2005 as specified in
the STIP. This construction is scheduled prior to the construction of the resort. For this reason, the
improvements will be in-place to adequately support buildout of the resort.
IZAA KITTELSON & ASSOCIATES, INC. Traffic Impact Analysis 16
MIN TRANSPORTATION PLANNINGITRAFFIC ENGINEERII
Proposed Deschutes County Resort
December2004
Assuming a three percent annual growth rate and the construction of the S Century Drive/US 97
interchange, Figure 4 illustrates the forecast year 2020 background traffic volumes and resultant level-
of-service. Appendix "C" contains the year 2020 background level-of-service worksheets.
As shown in Figure 4, all of the intersections are anticipated to operate acceptably in year 2020 without
development of the resort, with the exception of Abbot Drive/S Century Drive. To restore operations at
this location, a single lane roundabout should be constructed at this location.
PROPOSED DEVELOPMENT PLAN
The key elements of the resort development are still being finalized and will include a variety of
housing, lodging, open space amenities, recreational amenities, and an eating establishment. To ensure a
conservative analysis, the resort is assumed to include 500 residential units, a 9-hole golf course and an
extensive trail system, a 5,000 square foot restaurant, and a recreational center. The restaurant will likely
be open to the public. The golf course may be limited and the recreational and retail amenities will only
be open to resort visitors and guests and potentially to guests of the Sunriver Resort (only the Resort not
the overall Sunriver community). Given the private nature of these amenities, the trip generation
estimates assume that 80 percent of the recreational center trips will be "internal" to the resort.
Primary access to the resort will be provided at a location on S Century Drive opposite the entrance to
Crosswater. Secondary access to the resort will be provided via the Sunriver Business Park.
TRIP GENERATION
Trip generation estimates for the proposed resort were derived from empirical observations at other
similar facilities throughout the United States. These observations are summarized in the standard
reference manual, Trip Generation,, 7`s Edition, published by the Institute of Transportation Engineers,
2003. Table 3 summarizes the proposed land uses and daily and weekday p.m. peak hour trip generation
estimates for the proposed resort. For the purposes of this analysis, the following assumptions were
made about the resort:
• The 75 cottages with lock-off rooms will total 150 "recreational homes"
• The 350 single family homes will be modeled as 42 percent permanent residents and 58
percent secondary homes. This allocation is based on current estimates of home ownership in
Sunriver. This equates to 147 single family homes and 203 recreational homes.
• The recreational/retail activities are only open to resort members and guests (likely to include
Sunriver Resort guests, owners and their guests, and members) and therefore are assumed to
include 80 percent "internal" trips. It was assumed that these activities would constitute up to
15,000 square feet of building space. The Health/Fitness Club category within the ITE
Manual was used to approximately the trips associated with this use. This category accounts
for facilities with fitness facilities, pools, racquetball and tennis courts, retail, recreational
classes, etc.
• It is likely that the golf course will also only be open to resort members and guests (as
described above) although no internalization rate was applied to the golf course uses at this
time.
Table 3 shows the resultant trip generation.
I, K KITTELSON & ASSOCIATES, INC. Traffic /mpactAna/ysis 1 17
TRANSPORTATION PLANNINGITRAFFIC ENGINEERII
Proposed Deschutes County Resort
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December 2004
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(NO SCALE)
YEAR 2020 BACKGROUND TRAFFIC
VOLUMES AND LOS
DESCHUTES COUNTY, OREGON
KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNING / TRAFFIC ENGINEERING
Proposed Deschutes County Resort December2004
Table 3
Estimated Trip Generation
Weekday PM Peak Hour
Land Use
Size
Total
In
Out
Single Family Homes
147 homes
150
95
55
Recreational Homes
353 homes
90
35
55
Golf Course
9 holes
25
10
15
Quality Restaurant
5,000 sq ft
35
25
10
Recreational Facility
(less 80 percent intemal trips)
15,000 sq ft
60
(50)
30
(25)
30
(25)
Total Trips
310
170
140
TRIP DISTRIBUTION
The distribution of site-generated trips onto the roadway system within the study area was estimated
based on the existing traffic patterns at study intersections, direction provided by jurisdiction staff, and
the location of major trip destinations within the area, such as Mount Bachelor (via Spring River Road),
the Sunriver Business Park and Village, and the Bend area. The estimated trip distribution is illustrated
in Figure 5. Based on the estimated trip distribution pattern, Figure 6 shows the anticipated site-
generated traffic at each of the study area intersections.
2020 TOTAL TRAFFIC CONDITIONS
The site-generated traffic volumes shown in Figure 6 were added to the background volumes shown in
Figure 4 to estimate year 2020 total traffic volumes during the weekday p.m. peak hour. The resultant
volumes and intersection levels-of-service are shown in Figure 6. Appendix "E" contains the 2020 total
traffic level-of-service worksheets.
As shown in Figure 6, the following intersection improvements are needed to facilitate buildout of the
resort:
S Century Drive/Abbot: a roundabout should be constructed at this intersection. This
improvement is needed within the next two years and should include provisions for a future
westbound right-turn slip lane. Without the slip lane, the volume-to-capacity ratio is
estimated at 0.77; with the slip lane, it is estimated at 0.69.
As shown in Figure 6, the proposed resort represents 8.5 percent of the total entering vehicles
at this location in year 2020.
• S Century Drive/Spring River Road: a northbound left-turn lane should be constructed at this
location as an interim improvement. This improvement is estimated to be needed in 2016 (or
at 75 percent buildout of the site). In year 2020, this improvement would result in a volume-
to-capacity ratio of 0.79 for the northbound left-turn movement.
All roundabout analyses described in this report were performed using the Federal Highway
Administration (FHWA) methodology rather than the analyses methodologies contained in the SIDRA
K KITTELSON & ASSOCIATES, INC._ Traffic /mpactAnalysis 19
TRANSPORTATION PLANNINGlTRAFFIO ENGINEERII
Proposed Deschutes County Resort December2004
software. The FHWA procedure yields more conservative results and recent national research has found
that it more accurately reflects conditions being observed at recently constructed roundabouts in the U.S.
LONG-TERM OPERATIONS
An additional analysis was conducted to confine that the Abbot Drive, Spring River Road and Venture
Lane intersections operate acceptably through the year 2027. This analysis is not required according to
Deschutes County requirements but was completed to ensure that the improvements identified in this
report are consistent with the longer teen needs of the facilities.
To complete this analysis, year 2027 conditions (per the volumes contained in the study conducted by
ODOT) were analyzed assuming the construction of roundabouts at Spring River Road and Abbot
Drive. These conditions assume an aggressive buildout scenario of south Deschutes County and include
a 9.1 percent annual growth rate at the Spring River Road/S Century Drive intersection and 4.7 percent
growth rate at the Abbot Drive/S Century Drive intersection.
Volumes projections for two 2027 scenarios were prepared by ODOT staff. The first assumed that the
Forest Service lands remain undeveloped but assume an aggressive buildout of south Deschutes County.
The second scenario assumes that a "land swap" will occur that will enable resort development on the
Forest. Service lands. This second scenario would require land use approvals from Deschutes County.
Both ODOT scenarios assume that the proposed Deschutes County resort (i.e., Harper) is developed at a
higher density than is proposed as part of this land use application.
The results of the 2027 analysis are summarized below.
Spring River Road/S Century Drive: a single-lane roundabout is forecast to operate at a
volume-to-capacity ratio of 0.95 if the land-swap area is not included and overcapacity if the
land-swap is included. For this reason, it would be advisable to construct the roundabout in a
single lane configuration with the flexibility to convert to a double-lane roundabout when
needed. With a double-lane roundabout, the intersection is forecast to operate at a volume-to-
capacity ratio of 0.68 with the land-swap and 0.58 without the land-swap.
The construction of a northbound left-turn lane, as proposed by the resort developers, is an
appropriate interim solution for this intersection prior to construction of a roundabout. As
discussed previously, a roundabout is not needed to accommodate resort buildout.
• Abbot Drive/S Century Drive: a single lane roundabout with a westbound right-turn slip lane
is forecast to operate at a volume-to-capacity ratio of 0.88 if the land-swap area is included
and 0.78 if the land-swap area is not included. For this reason, it is recommended that
Sunriver Resort LP construct a single lane roundabout with the provisions to add the
westbound right-turn slip lane in the future.
e Venture Lane/S Century Drive: the existing signalized intersection will operate at a volume-
to-capacity ratio of 0.77 with the land swap and 0.72 without the land swap. Therefore, no
improvements are required at this location over the longer term.
• S Century Drive will operate acceptably with the Venture Lane traffic signal and
roundabouts constructed at the Spring River and Abbot Drive intersections. This
IZAA KITTELSON & ASSOCIATES, INC. Traffic impact Ana/ysis 20
INN TRANSPORTATION PLANNING/TRAFFIC ENGINEERII
Proposed Deschutes County Resort
December2004
configuration is consistent with guidelines and practices contained in FHWA's Roundabouts:
An Informational Guide.
As discussed above, all of the intersections will function acceptably through the year 2027. For this
reason, no additional mitigation measures are needed to accommodate long-term travel patterns within
the vicinity of the site.
Specifically, the "dog-leg" option investigated by MOT is not necessary to meet future capacity needs
of the area. Under this option, a new roadway would be extended from Spring River Road from its
intersection with S Century Drive, through the property, over the railroad tracks to a new intersection on
S Century Drive to the west of the US 97 interchange. This roadway would travel across the subject
property and would be constructed partially on rural lands.
This dog-leg option was originally included in the US 97/S Century Drive Environmental Assessment
(EA) but has been dropped from consideration within the EA. This potential roadway is also not
included in the County's Transportation System Plan and would require a goal exception by the County
and the state given the need to traverse rural lands. The burden of proof required to support the goal
exception would need to demonstrate that no feasible options are available to constructing a new
roadway on rural lands. As described above, with the identified improvements, the intersections along S
Century Drive are forecast to operate acceptably without the dog-leg and therefore it would be very
difficult to demonstrate that a goal exception is needed.
ACCESS OPERATIONS
For safety reasons, it is recommended that a southbound left-turn lane be constructed on S Century
Drive at the site access. In addition, the site access roadway should include a westbound left-turn lane
and a right-turn lane at the intersection with S Century Drive. As shown in Figure 6, this configuration
will ensure adequate access operations for the resort.
INTERNAL VEHICULAR, PEDESTRIAN AND BICYCLE CIRCULATION
It is recommended that all of the roadways within the proposed resort be constructed to meet applicable
Deschutes County minimum standards for private streets. In addition, the following recommendations
should be implemented, to ensure that appropriate operations and safety are maintained within the site.
• All minor street approaches intersecting with the principle roadways in the resort should be
stop sign controlled.
• Advisory speed signs of 25 miles per hour should be posted along side the principle streets,
as per a residential neighborhood.
• A comprehensive bicycle and pedestrian pathway system should be developed as part of the
resort.
SIGHT DISTANCE
An analysis of sight distance at the proposed accesses is addressed within the Burden of Proof for the
Land Use Application, as prepared by W&H Pacific.
Traffic lmpactAnaiysis 1 21
K KITTELSON & ASSOCIATES, INC.
TRANSPORTATION PLANNINGITRAFFIO ENGINEERII
Deschutes County Resort
December2004
13
(NO SCALE)
o\°
qe O
rs~ O,9OT S CENTURY DR
Cgs TFORF
SPRING RIVER RD Z- `STRO
30% > 10%
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ESTIMATED TRIP DISTRIBUTION PATTERN
DESCHUTES COUNTY, OREGON
KITTELSON & ASSOCIATES, INC.
K ' r'
TRANSPORTATION PLANNING / TRAFFIC ENGINEERING
Proposed Deschutes County Resort
ADDED TRAFFIC TOTAL
ADDED TRAFFIC
TOTAL TRAFFIC
y
O
O
n
,1
N
.1 L
M=SBRT
CC
55 1• i-~ <5
345 -D LOS=B 75
Del
=
15.0
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/C
=
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20 r465-$ CM=SBLT 55 7D Del->50 4-415
V/C=>1.0
55 340 J CM-NBLT 10
LOS=C
15 Dei=212 10
R V/C=026
*N Ix
In o W
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Ln o oq S CENTURY D
L o LO It R
a
SPRING RIVER RD 1- J
10 LOS=B 185
6
0
_ 160
t1
SITE
CM=NB
270--0- LOS=F
Del=>60
-4-320
0
50 75
90
V/C=>1.0
390
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5
v ID n
~
N
~
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110
CM=E
B
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3
a
59
AL MOVEMENT (UNSIGNALIZED)
SECTION LEVEL OF SERVICE
LIZED)/CRITICAL MOVEMENT LEVEL
7
RVICE (UNSIGNALIZED)
ECTION AVERAGE CONTROL DELAY
LIZEDuCRITICAL MOVEMENT CONTROL
(UNSIGNALIZED)
VOLUME-TO-CAPACITY RATIO
V/C=CRITICAL
Q
vA~v~R~ERT ~4MeFR),/qNq
Rv Ro
ADDED TRAFFK
10
December2004
0
(NO SCALE
V4 `,qST FOREST
'AL TRAFFIC
N Q
a~*
CM=WB 10~ 50
LOS=D
Del=28.7 225
V/C=0.67 ~
m
\ N
SITE-GENERATED AND TOTAL TRAFFIC CONDITIONS,
YEAR 2020 WEEKDAY PM PEAK HOUR
DESCHUTES COUNTY, OREGON
IVA KITTELSON & ASSOCIATES, INC.
IXIN TRANSPORTATION PLANNING /TRAFFIC ENGINEERING
Section 5
Conclusions and
Recommendations
Proposed Deschutes County Resort December 2004
Conclusions and Recommendations
Based on the results of this traffic impact analysis, the proposed resort can be developed while
maintaining acceptable levels of service at the affected intersections. The primary findings and
recommendations included in this study are summarized below.
FINDINGS
• Under existing conditions, all of the study area intersections operate acceptably, with the
exception of the S Century Drive/US 97 intersection. Construction of a grade-separated
interchange on US 97 will begin in year 2005. This improvement will enable the interchange
to function acceptably throughout the planning horizon.
• The Abbot Drive/S Century Drive intersection will require improvements in the short-term,
even if the resort is not developed. A single lane roundabout should be constructed at this
location within the next two years. Further, it is recommended that the roundabout be
designed to allow for a westbound right-turn slip lane in the future. The roundabout will
enable the intersection to function acceptably past the year 2027.
• A northbound left-turn lane needs to be constructed at the Spring River/S Century Drive
intersection prior to 75 percent buildout of the resort (estimated at year 2016). Over the
longer term (beyond year 2020), a roundabout should be constructed at this intersection.
• S Century Drive will operate acceptably with the Venture Lane traffic signal and
roundabouts constructed at the Spring River and Abbot Drive intersections. This
configuration is consistent with guidelines and practices contained in the FHWA Roundabout
manual.
RECOMMENDATIONS
• A single lane roundabout should be constructed at the Abbot Drive/S Century Drive
intersection in the next two years.
• A northbound left-turn lane should be constructed at the Spring River Road/S Century Drive
intersection prior to 75 percent buildout of the resort.
• A southbound left-turn lane should be constructed on S Century Drive at the proposed resort
access upon resort buildout.
• All minor street approaches intersecting with the principle roadways in the resort should be
stop sign controlled.
• Advisory speed signs of 25 miles per hour should be posted along side the principle streets,
as per a residential neighborhood.
• A comprehensive bicycle and pedestrian pathway system should be developed as part of the
resort.
KITTELSON & ASSOCIATES, INC. Conclusions and Recommendations 25
K1 TRANSPORTATION PLANNINGFrRAFFIC ENGINEER11
Appendix A
Traffic Count Data
I 111
NO SCALE. j
NOTE: The counts that were taken in August
fail in the peak month of the year, so no
seasonal adjustments are needed. System
Peak Hour is between 5:00-6:00 PM
- 160
285
T <
235 20
20
<5
9 CO~rOn
Rd
160
200
O
255
190
290
f- 85
,o
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235
220
160 °Dtd
h
220 S. Cennery Dr
140 P
Fo~S
170 d a v° _ lava Cl
or ~Rd
pang River Rd
20 340 g
215 - 215 780 <
c•a+^r,ur 30 185
210 <5
Resod -J+ <5
140 <5 470
130 60
25 45 <5
20 140 3
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150 ~ <5 .
` ► 25 lad 690 <5
190 20 Ad 6g <5
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145 10 450
110 , o~ 15 <5
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55
a
OREGON DEPARTMENT OF TRANSPORTATION TPSU TMNSPORTATIONlUN.1MCANALYSIS°NIT
FILE : 5. Ceu~ey Or
US 97 AT SOUTH CENTURY DRIVE NOBUIL Prepared By: T. N. NGUYEN
FIGURE Al
Rerfewed By. P.Sehuytama,
2002 Balanced 30th Highest Hour Volumes DATE: !0/61!03 Pe.
h
1
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F
i
i
1
A2
US 97 AT SOUTH CENTURY DRIVE NOB
2027 Balanced 30th Highest Hour Volumes
I FILE : i ceoay Ur III Prepared By: T. N. NGUI N
FIGURE A3
Reviewed By: P. Sahuytema,
DATE : IU/OllUJ PE.
A4
OREGON DEPARTMENT OF TRANSPORTATION
1V(1RTN 335
~ ~ N 5 np`
NO SCALE t4 a a 320 40
~ 65
e
~ 5 ~1d'
320
~
~I
_ 180 v
1
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890
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175
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680 150 195 eft 240 85
~ 840 5
380 1t~
5
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5
540
635 SS ~ 5 5
405
780
450 100
445
~bbtd 85 5
r
160 S. century
1 320 c ova f--
F
Spring River Rd RE
brO
crosses.ter NOTE: The proposed development (Harper
55 Resod Project) on the west side of South Century Dr
510 will add/drop traffic between Spring River
Rd and Vandevert Rd. The volumes between
60 these intersections on South Century Dr will
lt
d
as a resu
.
not balance
15 385
1 v WITHOUT LANDSWAP
AREA
~`►115
5
355 70 R Rd 250
vide 1135 5
245 85 5
225 5 5
75 100 780
65 5
OREGON DEPARTMENT OF TRANSPORTATION 1rAV TR&MOKUTIONPLANNRIOANALTSMUNU
Fax : S. Cmlm I Prtpond by: T. N. NGUYEN
US 97 AT SOUTH CENTURY DRIVE at-&dTrae' FIGURE 2
11 1 2027 Balanced 30th Highest Hour Volumes DATE. ~.``..aaer r.srna.
Dais wva I PL
n
c•
a
ct
i
1
US97 AT SOUTH
CENTURY DRIVE
BEND, OREGON
DESCHUTES COUNTY
The Dalles-California Highway No. 4
Mile Point 151.00 to 156.00
OCTOBER 2003
Transportation Planning Analysis Unit
Transportation Development Branch, Salem, Oregon
US97 AT SOUTH CENTURY DRIVE
TRAFFIC ANALYSIS NARRATIVE
Oregon Department of Transportation
Transportation Planning Analysis Unit
55513' Street NE, Suite 2
Salem, Oregon 97301-4178
IN~
48243PE
OREGON
A~`w(Y9, 20j
EXPIRES: 4dro n"~
Prepared by: Thanh N. Nguyen f F
Peter Schuytema, P.E.
TABLE OF CONTENTS
EXECUTIVE SUMMARY 8
BACKGROUND INFORMATION 9
'NO-BUILD ANALYSIS
13
Crash Analysis 13
30th Highest Hour Volume Development
13
No-build Analysis Results 13
Queue Analysis 16
BUILD ALTERNATIVES
18
Build Alternative Analysis Results . 20
ALTERNATIVE SUMMARY
25
RECOMMENDATION
25
APPENDIX A Al
No-build Lane Configurations & Design Hour Volumes
APPENDIX B 131
Alternative 2b Lane Configurations & Design Hour Volumes
APPENDIX C C1
Alternatives Considered But Dismissed
APPENDIX D ..........................................................................................D1
Traffic Development
APPENDIX E E1
Analysis Methodology
APPENDIX F Fl
EIS Data
APPENDIX G G1
Crash Data
Transportation Planning Analysis Unit i October 2003
US97 at South Century Drive
TABLE OF FIGURES
Figure 1 Vicinity Map 11
Figure 2 Study Area 12
Figure 3 Build Alternative 2b ..................................................................19
Figure Al No-build 2002 Balanced 30tb Highest Hour Volumes A2
Figure A2 No-build 2007 Balanced 30tb Highest Hour Volumes A3
Figure A3
No-build 2027 Balanced 30tb Highest Hour Volumes
A4
Figure B1
Alternative-2b (Option 1) 2007 Balanced 30th Highest Hour Volumes
B2
Figure B2
Alternative-2b (Option 1) 2027 Balanced Design Hour Volumes............
B3
Figure B3
Alternative-2b (Option 2) 2007 Balanced 30th Highest Hour Volumes
B4
Figure B4
Alternative-2b (Option 2) 2027 Balanced Design Hour Volumes
B5
Figure B5
Alternative-2b (Option 3) 2007 Balanced 30th Highest Hour Volumes
B6
Figure B6
Alternative-2b (Option 3) 2027 Balanced Design Hour Volumes
'B7
Figure C I
AlternativeI (Option 1) 2007 Balanced 30`h Highest Hour Volumes
C8
Figure C2
Alternative 1 (Option 1) 2027 Balanced Design Hour Volumes
C9
Figure C3
AlternativeI (Option 2) 2007 Balanced 30th Highest Hour Volumes
C10
Figure C4
Alternative 1 (Option 2) 2027 Balanced Design Hour Volumes
C11
Figure C5
Alternative 1 (Option 3) 2007 Balanced 30th Highest Hour Volumes
C12
Figure C6
Alternative I (Option 3) 2027 Balanced Design Hour Volumes
C13
Figure C7
Alternative-2a (Option 1) 2007 Balanced 30th Highest Hour Volumes
C17
Figure C8
Alternative-2a (Option 1) 2027 Balanced Design Hour Volumes
C18
Figure C9
Alternative-2a (Option 2) 2007 Balanced 30th Highest Hour Volumes .......C19
R
Transportation Planning Analysis Unit ii October 2003
US97 at South Century Drive
TAKE OF FIGURES
Figure C 10 Alternative-2a (Option 2) 2027 Balanced Design Hour Volumes C20
Figure C11 Alternative-2a (Option 3) 2007 Balanced 301h Highest Hour Volumes .......C21
Figure C12 Alternative-2a (Option 3) 2027 Balanced Design Hour Volumes C22
Figure C13 Alternative-2c & 3 (Option 1) 2007 Balanced 30th
Highest Hour Volumes C26
Figure C14 Alternative-2c & 3 (Option 1) 2027 Balanced
Design Hour Volumes ...............................................................C27
Figure C15 Alternative-2c & 3 (Option 2) 2007 Balanced 30th
Highest Hour Volumes C28
Figure C16 Altemative-2c & 3 (Option 2) 2027 Balanced
Design Hour Volumes ...............................................................C29
Figure C17 Alternative 4 (Option 1) 2007 Balanced 30th Highest Hour Volumes........ C3 5
Figure C18 Alternative 4 (Option 1) 2027 Balanced Design Hour Volumes C36
Figure C19 Alternative 4 (Option 2) 2007 Balanced 30`h Highest Hour Volumes ........C37
Figure C20 Alternative 4 (Option 2) 2027 Balanced Design Hour Volumes C38
Figure C21 Alternative 4 (Option 3) 2007 Balanced 30th Highest Hour Volumes C39
Figure C22 Alternative 4 (Option 3) 2027 Balanced Design Hour Volumes C40
Figure D1 Zones Around The Study Area D4
Figure D2 Study Area Raw Manual Counts D7
Figure D3 Project Peak Hour (5 - 6 PM) Manual Counts D8
Figure F1 No-build EIS Section Numbers F2
Figure F2 2007 Build EIS Section Numbers F5
Figure F3 2027 Build EIS Section Numbers ................................................F8
Transportation Planning Analysis Unit iii October 2003
US97 at South Century Drive
TABLE OF TAR ES
Table 1
1999-2001 Crash Summary
13
No-build
Table 2
No-build Preliminary Signal Warrants Met
14
Table 3
No-build Mainline Intersection v/c Ratios
15
Table 4
No-build Sunriver Intersection Level Of Service
15
Table 5
No-build Mainline v/c & Percent Time Spent Following (PTSF)
15
Table 6
No-build Cottonwood Road Interchange v/c
16
Table 7
No-build Queue Length (Feet)
16
Table 8
No-build Access Management Spacing
17
Build Alternative
Table 9
Alternative 2b Preliminary Signal Warrants
20
Table 10
US 97 Interchange/Intersection v/c
21
Table 11
South Century Drive Merge/Diverge v/c for One Lane
In Each Direction on US 97
22
Table 12
South Century Drive Merge/Diverge v/c for Two Lanes
In Each Direction on US 97
22
Table 13
2027 Mainline Queue Length
22
Table 14
Build Access Management Spacing
23
Table 15
Alternative 2b LOS and v/c
23
Table 16
Alternative 2b Queue Lengths
24
Appendix C
Alternatives Considered But Dismissed
Table C-1
Alternative 1 Preliminary Signal Warrants Met
C3
Table C-2
Cottonwood Road Interchange v/c
C3
Table C-3
Cottonwood Road Interchange Merge/Diverge
V/C for Two Lanes in Each Direction on US 97
C4
Table C-4
Intersection v/c Ratios
C4
Table C-5
2027 Queue Length in Feet
CS
Table C-6
Alternative 1 Off-system Network LOS & v/c
C5
Table C-7
Alternative 1 Off-system Network 2027
Queue Length in Feet
C6
Transportation Planning Analysis Unit iv October 2003
US97 at South Century Drive
TABLE OF TABLES
Table C-8 Alternative 2a Preliminary Signal Warrants C14
Table C-9 Alternative 2a LOS and v/c
C15
Table C-10 Alternative 2a Queue Length C16
Table C-11 Alternative 2c Preliminary Signal Warrants C23
Table C-12 Alternative 2c LOS and v/c
C24
Table C-13
Alternative 2c Queue Length in Feet C24
Table C-14
Alternative 4 Preliminary Signal Warrants
C31
Table C-15
Cottonwood Road Interchange v/c
C31
Table C-16
Vandevert Road Ramp Termini v/c
C32
Table C-17
Vandevert Road Merge/Diverge v/c
For One Lane in Each Direction on US 97
C32
Table C-18
Vandevert Road Merge/Diverge v/c
For Two Lanes in Each Direction on US 97
C32
Table C-19
2027 Queue Length in Feet .........................................................C32
Table C-20
Alternative 4 Off-system Network LOS & v/c
C33
Table C-21
Alternative 4 Off-system Network 2027
Queue Length in Feet
C34
Appendix D
Traffic Development
Table D-1
Manual Count Locations
D
2
Table D-2
Zonal Trip Generation (PM Peak Hour)
D5
Transportation Planning Analysis Unit V October 2003
US97 at South Century Drive
EXECUTIVE = ARY
The US 97 at South Century Drive project is in Deschutes County, about ten miles south of Bend,
Oregon. The study area is bordered by Cottonwood Road on the north, Vandevert Road on the
south, US 97 on the east and the Deschutes River on the west (Figures 1 & 2). South' Century
Drive is the primary access to residential and recreational areas in southern Deschutes County.
The purpose of the US 97 at South Century Drive project is to provide safe access to US 97 from
the Sunriver area and other recreational areas in southern Deschutes County.
The US 97 at South Century Drive intersection has a high crash rate, especially in the winter
because of its location in a heavy snow zone. The major safety issue is with the east to north
turning movement, from South Century Drive to US 97, which is difficult because of the high
volumes on US 97. The limited opportunity to enter the highway from South Century Drive
tempts drivers to enter US 97 even with insufficient gaps in traffic. With the anticipated growth in
southern Deschutes County and increase in through traffic on US 97, intersection operation will
continue to deteriorate.
The existing study area roadway network has numerous capacity and safety issues that occur now
or before the project design year (2027).
• The intersection of South Century Drive with US 97 currently fails to meet the 1999
Oregon Highway Plan (OHP) mobility standards.
• The intersection of Vandevert Road with US 97 will fail to meet the 1999 OHP
mobility standards in 2007.
• The current queue on Vandevert Road waiting to turn onto US 97 extends over the
Burlington Northern Santa Fe railroad crossing creating a serious safety problem.
• The through lanes on US 97 are over or near capacity through the study area.
• The southbound Cottonwood Road interchange on-ramp is controlled by a stop sign
which will exceed capacity by 2027.
• By 2027, all county road- intersections in the study area will fail to meet the Deschutes
County Level of Service (LOS) standard.
Five interchange alternatives, including a no-build, were evaluated. Alternative 2 was selected as
the preferred alternative by the Stakeholders, the Project Team, and the Steering Team
Committee. Alternative 2 builds a diamond interchange at or near the existing South Century
Drive/US 97 intersection with some minor realignment of South Century Drive in Phase 1. Phase
2 of the project adds a bypass to move through traffic away from the locally congested Sunriver
commercial area (Figure 3). The current project budget limits the improvements to the South
Century Drive / US 97 intersection. Improvements at Cottonwood Road, Vandevert Road, US 97
through lanes, and other study area county road intersections will need to be funded as separate
proj ects.
Transportation Planning Analysis Unit 1 October 2003
US97 at South Century Drive
BACKGROUND s INFORMATION
The US 97 at South Century Drive project is in Deschutes County located about ten miles south
of Bend, Oregon. US 97 is designated as a Statewide Highway (NHS) Freight Route and is the
main north-south corridor in central Oregon. In 2000, the Oregon Transportation Commission
(OTC) made the decision to designate US 97 between Madras and the California state line as an
expressway, with breaks in some urban areas. Conversion to an expressway-type facility would
require eventual elimination of all direct at-grade access and the development of an interchange
and frontage road system. South Century Drive serves as the primary access to the Sunriver and
other recreational areas in southern Deschutes County.
Currently, South Century Drive experiences poor operating conditions at the intersection with US
97. With the anticipated growth of southern Deschutes County and through traffic on US 97, the
operating conditions will worsen. There has been a high crash rate at this intersection because of
the conflicting turn movements and insufficient gaps for left turns from South Century Drive onto
US 97.
The project is needed to correct the existing and future traffic safety and operational problems at
the US 97 at South Century Drive intersection. The project involves construction of a solution that
creates a safe environment for vehicles entering and leaving US 97 at South Century Drive, the
primary access point off US 97 to Sunriver. Five alternatives, including a no-build, were
considered and compared to the project goals and objectives, which are to:
• Reduce congestion and safety conflicts.
• Coordinate project timing and mutual goals in order to minimize cumulative traffic
and environmental impacts resulting from multiple projects proposed within the
project area.
• Ensure effective use of public and private funds within budget limits.
• Ensure effective emergency access and exits routes within the project area.
• Minimize wildlife/vehicle collisions and adverse impacts to deer and wildlife
migration within the project area.
• Minimize impacts to public lands (National Forest land) and private land.
• Minimize direct, adverse impacts to recreational and economic resources and improve
access to these resources where possible.
• Provide for needs of pedestrians and bicyclists on adjacent roadways.
• Minimize adverse impacts to visual resources and to the National Monument.
• Address issues pertaining to all US 97 traffic, including freight traffic.
• Ensure consistency and compatibility with the Oregon Highway Plan, applicable
objectives of ODOT's US 97 Highway strategy, and the Expressway Designation of
US 97.
• Ensure project compatibility with long-term land use plans east and west of US 97.
• Provide positive aesthetic value.
This traffic narrative includes an evaluation of the traffic related goals and objectives.
The 1999 Oregon Highway Plan (OHP) volume-to-capacity (v/c) ratio for a Statewide (NHS)
Freight Route Highway for the existing and future No-build conditions is 0.70. The Highway
Transportation Planning Analysis Unit 2 October 2003
US97 at South Century Drive
r
Design Manual (HDM) We ratio for the same highway segment is 0.60 for the build alternatives.
All county roads are covered by Deschutes County's Level of Service (LOS) standard, which is
LOS D for both the no-build and build conditions.
Transportation Planning Analysis Unit 3 October 2003
US97 at South Century Drive
_ Y
NO SCALE
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OREGON DEPARTMENT OF TRANSPORTATION Tpgv TRAWSPOWATION PLANNING ANALYSIS UNIT
US 97 AT SOUTH CENTURY DRIVE
FILE : S. Ce.tm Dr
PnDe edB : T. N. NGUYEN
VICINITY MAP
DATE : w w,
RMewed By: P. ScAnytema,
PE.
FIGURE 1
°
NO SCALE v
e o
IU l
0
o
~ p Colro w
4 a7
0-
~ J ° o
q
ob,
~ ~
r
S. Century Dr
o ~
r. t' q o 1aVa C
) Y 4 ~ ast porgy R
t- Spring River Rd ~ d ,moo` a r d
i
Crosswater
Resort
I ~ ~l
t r a
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X, ~R
i -
L - L in
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OREGON DEPARTMENT OF TRANSPORTATION TpgU TRANSPORTATION PLANNING ANALYSIS UNIT
US 97 AT SOUTH CENTURY DRIVE
FILE : S. C...o, Dr
prepared $y: T. N. NGUYEN
FI
STUDY AREA
1
~
Reviewed By: P. Schayuma.
1 PE.
GURE 2
-
NO -BUILD ANALYSIS
Crash Analysis
The three-year crash history (1999 - 2001) shows a total of 50 crashes in this five-mile section of
state highway (Table 1). With an annual average daily volume (AADT) of 15,000, the highway
segment between MY 151 and MY 153.08 (South Century Drive) has a crash rate of 0.88 crashes
per million-vehicle miles (30 crashes). This is slightly above the five-year average of comparable
rates for rural, primary, non-freeway roads (0.87). The highway segment between MY 153.09 and
MY 156 has crash rate of 0.63 crashes per million-vehicle miles (20 crashes) with a 10,000
AADT. This is below the five-year average of comparable rates for rural, primary, non-freeway
roads (0.87). The crash severity has about 54% of the crashes involving property damage only.
One-fifth of the total crashes are at MY 153.08 (South Century Drive) because of vehicles turning
right too fast onto South Century Drive in icy conditions. The right turn vehicles have to be
separated out of the high-speed traffic stream and slowed down to an appropriate speed before
approaching to the intersection to address the crash problem.
Table 1. 1999-2001 Crash Summary (The Dalles-California Hwy No. 4, MP 151.0-156.0)
'r
, sl~.tw
s '
r r ~1 ri1>~s
rt
1999
0
7
9
16
2000
0
9
13
22
2001
0
7
5
12
Total
0
23
27
50
30th Highest Hour Volume Development
The 30th highest hour volume was developed based on the traffic counts, the Transportation
Volume Tables, ODOT's permanent recorder stations, and a cumulative analysis. The traffic
counts indicated that the project peak period was between 5 - 6 PM. The traffic counts were taken
when the 30th highest hour occurs, so no seasonal adjustment was needed. The future traffic
volumes were developed using the cumulative analysis method which uses the existing traffic
volumes, historic growth patterns, and planned land uses to predict future development growth.
Appendix A shows the existing and future no-build volumes. Appendix D details the development
of the existing and future traffic volumes.
No-build Analysis Results
Often time, traffic signals are proposed at high crash location. Preliminary Signal Warrants were
checked for all existing unsignalized intersections within the study area (See Table 2). Meeting
preliminary signal warrants does not guarantee that a signal will be installed. Before any signals
are installed on the state system, Region 4 needs to perform a field warrant analysis. If the actual
traffic signal warrants are met, the State Traffic Engineer can consider an approval of the signals
along with other factors. The approval must be obtained before a signal may be installed. If the
proposed signal were on the local system, a complete warrant analysis needs to be completed and
approvals done by the appropriate officials.
Transportation Planning Analysis Unit 6 October 2003
US97 at South Century Drive
Table 2 shows that all intersections meet preliminary signal warrants in 2027. The US97 / South
Century Drive intersection currently meets preliminary signal warrants while the US97 /
Vandevert Road intersection will meet them around year 2010. Signals are strongly discouraged
on rural highways, so signals should not be placed on this section of US 97. The Deschutes
County intersections of South Century Drive with Vandevert Road, Spring River Road, and
Abbott Drive will meet preliminary signal warrants within 10 years.
Table 2. No-build Preliminary Signal Warrants Met" 2
Location
2002 '
2007 -202.7
US97/South Century Drive
Cottonwood Rd/US97 NB on/off-ram
No
No No
Cottonwood Rd/US97 SB on/off-ram
No
No No
US97/Vandevert Road
No
No
South Century Drive/Vandevert Road
No
No
South Century Drive/Spring River Road
No
No
South Century Drive/Abbott Road
No
71.) percent of stanaara warrants because or speeo in excess of 4u mpn or an rsotatea area unaer t u,wu popwanon.
Meeting preliminary signal warrants does not guarantee that a signal will be installed. Before a signal can be installed a traffic investigation must
be conducted or reviewed by the Region Traffic Manager. Traffic signal warrants must be met and the State Traffic Engineer's approval obtained
before a traffic signal can be installed on a state highway.
All of the intersections in the study area are unsignalized except at the South Century
Drive/Venture Lane intersection. This signal controls the traffic in and out of the Sunriver
Business Park. See Figures A4 - A6 in Appendix A for the lane configurations and 30th highest
hour volumes.
Table 3 shows that the South Century Drive left/through movement at the US 97 intersection is
currently over capacity with a v/c ratio exceeding 2.0. V/c ratios in excess of 2.0 mean that
vehicles may take unacceptable gaps to turn into traffic and increases the potential for crashes.
The Vandevert Road eastbound approach at the US 97 intersection exceeds the 1999 Oregon
Highway Plan (OHP) v/c standard in 2007 and will be over capacity in the future. The US 97
/Cottonwood southbound connection exceeds the OHP v/c standard in 2019 and is over capacity
by 2027 because the through lanes of US 97 will also be over capacity. The capacity constraints
on US 97 will limit the ability of the Cottonwood interchange to provide safe highway access in
the future.
Table 3. No-build Mainline Intersection v/c Ratios
4rt`_.'
tio
Nolbin~;
~~i, y Yer1HP.
o
n
fir;emit
aede`d .
L ~_/c eox
US97/South Century Drive
EB Left
1 2002
US97/Vandevert Road
EB Left
0.57 2007
Cottonwood Road/US97 NB on/oiTram
EB Left
0.16 0.18 0.19 N/A
US97/Cottonwood SB connection
EB Right
0.13 0.28 2019
'Gray shaded cells indicate that the OHP mobility standard is exceeded. Black shaded cells indicate that the v/c is over 1.0 and the
potential for crashes is highly increased.
Transportation Planning Analysis Unit 7 October 2003
US97 at South Century Drive
Table 4 shows the LOS of controlling movements on the county road system. The Abbot Drive
intersection with South Century Drive currently exceeds the county LOS standard. All county
road intersections in the study area fail by 2027 except for the Crosswater Resort access.
Table 4. No-build Sunriver Intersection Level of Service
#ti
L
Con
ollin
`M'tiv
men
y
ocs
ol
r
g
e
Oo
4o7;
South Century DriveNandevert Road
WB Left
B
C
South Century Drive/Crosswater Resort
EB Left
B
B D
South Century Drive/Spring River Road
NB left
B
C
South Century Drive/Venture Lane
Signalized
B
B
South Century Drive/Abbott Road
SB Left
Black shaded cells indicate that the Deschutes County mobility standard is exceeded.
Table 5 shows the mainline segment v/c. US 97 in the study area was broken into four sections
due to different lane configurations. North of Cottonwood Road, US 97 has two northbound lanes
and one southbound lane. The v/c ratio of the southbound single-lane section currently exceeds
the 1999 OHP v/c mobility standard. The Cottonwood Road to South Century Drive section has a
single lane in each direction. The South Century Drive to Vandevert Road section, the northbound
direction has a climbing lane in addition to the travel lane while the southbound direction only has
a single lane. The southbound direction is very near to the 1999 OHP v/c standard in 2007. South
of Vandevert Road, US 97 has a single lane in each direction and will meet the 1999 OHP
standard in 2025.
Table 5. No-build Mainline v/ci
Yt 1s yt V 1
1 t
{r 'r.+..
r 97
k
6
H.
a~
h. ~ k C
1
, 1
1
V
.V+Y► 1
I
,
North of Cottonwood
NB
0.27 0.31 0.49
SB
Cottonwood to South Century
NB & SB
0.62
NB
0
36 0
42 0
59
V
th C
t
t
d
t
S
.
.
.
ou
en
ury
o
ever
an
SB
0.59 0.68
South of Vandevert
NB & SB
0.41 0.48
'Gray shaded cells indicate that the OHP mobility standard is exceeded. Black shaded cells indicate that the v/c is over 1.0
Table 6 shows the v/c of the Cottonwood Road interchange. Its ramp terminal intersections will
function acceptably through the design year except the eastbound right turn (US97/Cottonwood
southbound connection) which will exceed the 1999 Oregon Highway Plan (OHP) v/c standard in
2019 and exceed capacity in 2027.
Transportation Planning Analysis Unit S October 2003
US97 at South Century Drive
Table 6. No-build Cottonwood Road Interchange Wee
f'Location X2002` ''2007Q7
US97 NB Diverge 0.4 0.47
US97 NB Add Lane 0.39 0.46
US97 SB Diverge
EB
0.13 ( 0.17 1 0.19
Gray shaded cells indicate that the OHP
Queue Analysis
ity standard is exceeded. Black shaded cells indicate that the v/c is over 1.0
Table 7 shows the queue lengths of the controlled movements at unsignalized and signalized
intersections in the study area. The existing distance between the US97 / Vandevert Road
intersection and the railroad is 141 feet which is currently less than the estimated queue for the
Vandevert Road eastbound approach. This is a serious safety problem at this location because the
queue extends, over the railroad crossing. Queues at the South Century Drive intersections with
Abbott Drive, Venture Lane, and Spring River Road currently exceed the available turn lane
storage and will back into the through lanes. The short spacing on Venture Lane between South
Century Drive and the business park loop road is currently exceeded, so that queues are impeding
traffic movement around the business park.
Table 7. No-build Queue Length'
f ,
N M1S I ft ~ini
r z r
1, °I1lotiiem~nt
Evisfing
:Store
S(}
` t
11
? 07 ,
t
[20 27
(ft
US 97 / S. Century Drive
EB Left/Through
N/A
375
475
1150
US 97 / Vandevert Road
EB Left/thru/right
141
4
S. Century Drive / Vandevert Road
WB Left/right
NIA
350
425
700
S. Century Drive / Crosswater Resort
Access
EB Left/right
N/A
75
150
150
S. Century Drive / Spring River
WB Left
135
Road
NB Left/right
N/A
325
450
1275
S. Century Drive / Venture
SB Left
180
75
75
125
Lane
WB Left
69
S. Century Drive / Abbott Drive
NB Left
130
SB Left
115
SB On-Ram
Right
N/A
50
100
100
Cottonwood Road / NB Off-ram
Left
N/A
50
75
100
'Gray shaded cells indicate that available storage has been exceeded.
2 The distance between US97 and the railroad track.
Table 8 shows a comparison with the existing intersection / interchange spacing with the 1999
OHP spacing standards. The section between the US 97/Cottonwood southbound interchange
connection and South Century Drive currently does not meet the OHP spacing standards.
Transportation Planning Analysis Unit 9 October 2003
US97 at South Century Drive
Table S. No-build Access Management Spacing
fiectIon r~
F~aeiistm tS` acid'
P g
acing, g ~ t>a a s
p
:
mi es
US 97/Cottonwood SB connection - South Century
Drive
1.69
2.0
South Century Drive - Vandevert Road
2.42
1.0
BUILD ALTERNATIVES
Four conceptual alternatives were developed for the US 97 at South Century Drive project and
presented to the Steering Committee, the Project Team, the Stakeholders Committee, and the
general public. The traffic pattern is not much different for the Sunriver off-system network
between the four alternatives. The evaluation criterion used to evaluate the initial alternatives
were:
• Highway Design Manual (HDM) and Deschutes County LOS Standards. The HDM
mobility standards set a maximum v/c ratio of 0.60 for US 97. The Deschutes County
LOS standards are LOS D.
1999 Oregon Highway Plan (OHP) and Division 51 Spacing Criteria. The OHP and
Division 51 require three miles between interchanges for all rural expressways (NHS)
on Statewide, Non-Freight Route Highways. The reason for three mile spacing is to
provide the desirable long term operational safety. The spacing distances given in the
OHP ensure that both adequate acceleration and deceleration ramps are constructed
and that vehicles entering and leaving the roadway have the distance to complete
weaving maneuvers safely.
Design constraints such as geometry of the highway and the structures.
Although all of the alternatives have the potential to meet the purpose and need of this project,
Alternatives 1, 3, and 4 fail to meet many of the goals and objectives set forth by the Stakeholders
and Steering Committee, and have been dropped from further consideration. The decision to drop
these alternatives is based on input received between May 2002 and January 2003 from the
Steering Committee, the Project Team, the Stakeholders Committee, and the general public. The
specific reasons for not advancing these alternatives is provided in Appendix C.
Transportation Planning Analysis Unit 10 October 2003
US97 at South Century Drive
NO SCALE 5 e ;
'
°r
v 1... w C
~ d o1p / ~ d,t b 9 ~ tO~1
~ L I `°OOIRa
I
y
on
J
0
I ~ ' qb I ~e 1
r'' t5°~O tU
I ~
S. Centu Dr
f o r_
Ca
sr p
or~t
Rd
~ 4
^
~ ~
- Spring River R
a
Cro -ur
_yj_ Retort
11{l ~ ~
i f
_ / - t V anae
OREGON DEPARTMENT OF TRANSPORTATION wpAIT TRANSPORTATIONPI.ANNINC.ANM.YSISUNIT
US 97 AT SOUTH CENTURY DRIVE
FILE : S C<stny Ur
Prepertd By: T. N. NCUYEN
FIGUR
ALTERNATIVE 2b
DATE : 10101103
Reviewed By: P. Sehuytema,
PE.
E 3
Alternative 2 is the preferred alternative for US 97 at South Century Drive intersection. This
alternative will be advanced for analysis in the Environmental Assessment (EA). Alternative 2
would be built in two phases. Phase I builds a new interchange at South Century Drive. In Phase
11, improvements would be made to the Deschutes County network. Alternatives 2a, 2b, 2c differ
in the routing of traffic from the interchange on US 97 to Sunriver area, Spring River Road, and
South Century Drive (South of Spring River Road). Alternative 2a keeps the existing
configuration of county roads and Alternative 2b builds a bypass of the Sunriver area connecting
South Century Drive with Spring River Road, while Alternative 2c is a modification of
Alternative 2b by removing South Century Drive east of Abbot Drive to new alignment.
Although all three of the alternatives have the potential to meet the purpose and need of the off-
system network, Alternatives 2a, and 2c have been dropped from further consideration by the
Project Team. Alternatives 2a, 2b, and 2c have the same lane configurations and traffic control at
the ramp termini, the US 97Nandevert Road intersection, and on US 97 (See Appendix Q. These
three alternatives also have the same operations on US 97. Appendix B shows Alternative 2b
traffic volumes and lane configurations.
Alternative 2b builds a new interchange at South Century Drive and a bypass of the Sunriver area
by connecting South Century Drive to Spring River Road (See Figure 3). Three options were
considered, they differed based on the traffic control at the various intersections. Option I
(Figures BI -B2) has stop control at Abbott Drive and the bypass, and a signal at Spring River
Road. Option 2 (Figures B3 - B4) had all Sunriver intersections signalized while Option 3
(Figures B5 - B6) has roundabouts at these same intersections.
Adding a left turn lane eastbound at US 97Nandevert Road adds capacity by separating all left
turns out to prevent blocking the right turns which need shorter gaps to turn.
Build Alternative Analysis Results
Table 9 shows preliminary signal warrants for Alternative 2b's intersections in the build year
(2007) and the design year (2027). Only South Century Drive intersections at Spring River Road
and at Bypass meet the preliminary signal warrants in 2027.
Table 9. Alternative 2b Preliminary Signal Warrants" 2
v a f4
k ~ M
US97Nandevert Road
No
No
Cottonwood Rd/US97 NB on/off-ram
No
No
Cottonwood Rd/US97 SB on/off-ramp
No
No
South Century Dr/ US97 NB on/off-ramp
No
No
South Century Dr/ US97 SB on/off-ramp
No
No
South Century Dr at Abbott Dr
No
No
South Century Dr at Spring River Rd
No
South Century Drive at Vandevert Rd
No
No
South Century Dr at Bypass
No
70 percent of standard warrants because of speed in excess of 40 mph or an isolated area under 10,000 population.
: Meeting preliminary signal warrants does not guarantee that a signal will be installed. Before a signal can be installed a traffic investigation must
be conducted or reviewed by the Region Traffic Manager. Traffic signal warrants must be met and the state Traffic Engineer's approval obtained
before a traffic signal can be installed on a state highway.
Transportation Planning Analysis Unit 12 October 2003
US97 at South Century Drive
Mainline Network (US97)
The US 97 operational analysis includes US 97 from the Cottonwood Road interchange to the
Vandevert Road intersection. Table 10 shows the interchange and intersection v/c ratios on US
97. The traffic operation at US 97/Cottonwood Road interchange does not change over the no-
build since no major improvement occurs at this location. The US 97 /Cottonwood southbound
connection fails in 2027 and exceeds mobility standards in 2016. All diverge and add lane points
have v/c ratios that exceed the HDM v/c standard in the year 2027.
The Vandevert Road intersection with US 97 exceeds capacity before 2027 with a v/c ratio over
2.0. Volume to capacity ratios in excess of 2.0 mean that vehicles may take unacceptable gaps to
turn into traffic, increasing the crash potential.
At the US 97/South Century Drive interchange, US 97 operation depends on the operation of the
merge and diverge influence areas. The interchange has the northbound off-ramp and southbound
on-ramp on a grade; the northbound off-ramp is in the middle of the climbing lane, and the ramp
termini have stop-controls. The South Century Dr/US 97 northbound ramp terminal operates
within the HDM v/c standards through the year 2027. The South Century Dr /US 97 southbound
ramp terminal has a "free right", meaning that the right turn vehicles will merge into the South
Century Drive westbound traffic flow rather than being part of the stop-controlled intersection.
The v/c of the merge influence area of South Century Dr and the "free right" of the South Century
Dr /US 97 southbound ramp terminal is at the HDM mobility standard in 2027.
Table 10. US 97 Interchange/Intersection v/ct
5
h
ns
Loc
1
a
u
a
Z007
US97 NB Diverge (At Cottonwood interchange)
0.47
US97 NB Add Lane At Cottonwood interchange)
0.46
US97 SB Diverge At Cottonwood interchange)
Cottonwood EB Merge At Cottonwood interchange)
0.17 0.19
South Century Dr /US 97 northbound ram terminal
0.15 0.53
South Cen Dr /US 97 southbound ram terminal "Free right" merge
0.29
US97/Vandevert Road
0.39 1
Cottonwood Road/US97 NB on/off-ram
0.18 0.19.
US97/Cottonwood SB connection
0.28
' Gray shaded cells indicate that the HDM mobility standard is exceeded. Black shaded cells indicate that the We is over 1.0 and
the potential for crashes is highly increased.
The no-build analysis showed that the existing US 97 exceeds the capacity of two lanes. For the
build alternative, US 97 would need to be widened to four lanes in year 2002. The project budget
prevents widening US 97 and building the interchange simultaneously, so the widening will need
to be phased.
If the interchange at South Century Drive has only two lanes on US 97, Table 11 shows the US 97
southbound diverge We exceeds the HDM v/c standard and the US 97 southbound merge v/c is at
the HDM v/c standard in year 2007. However, the US 97 northbound diverge/merge v/c's are
within the HDM We standard in year 2007. In year 2027, the US 97 all merge/diverge points are
Transportation Planning Analysis Unit 13 October 2003
US97 at South Century Drive
over the HDM v/c standard except for the northbound diverge. The US 97 northbound diverge v/c
depends on the distance between the merge point of the climbing lane back into one travel lane
and the US 97 northbound diverge influence area. The northbound climbing lane will end within
the interchange area. This merge point will create a bottleneck that generates a shock wave in the
traffic stream back into the northbound diverge influence area.
Table 11. South Century Drive Merge/Diverge v/c for One Lane in Each Direction on US971
=location
2007 2027
US97 NB Diverge
0.20 0.28
US97 NB Merge
US97 SB Diverge
0.49
US97 SB Merge
0.60
Gray-shaded cells indicate that the
HDM mobilitv standard is exce
eded. Black shaded cells indicate that the v/c is over 1.0
If the interchange at South Century Drive has four lanes on US 97, all of the merge/diverges
operate acceptably through year 2027 except for the southbound diverge. The US 97 southbound
diverge v/c exceeds the HDM v/c standard in year 2024. In this scenario, the four lanes will taper
back into the existing lane configuration, and the Highway Design Manual indicates the merge-
merge distance is about 1500 feet. The four-lane portion in advance of the interchange
northbound and southbound needs to be about 1500 feet. Table 12 shows Merge/Diverge v/cs of
the interchange for this scenario.
Table 12. South Century Drive Merge/Diverge v/c for Two Lanes in Each Direction on
US97'
dcation
2007
2027
US97 NB Diverge
0.20
0.28
US97 NB Merge
0.23
0.39
US97 SB Diverge
0.39
US97 SB Merge
0.28
0.40
Gray shaded cells indicate that the HDM mobility standard is exceeded. Black shaded cells indicate that.the v/c is over 1.0
Table 13 shows the queue lengths of the controlled movements at unsignalized intersections in the
study area mainline network. The major left and minor approach queue lengths at unsignalized
intersections were estimated based on the AASHTO "Two-Minute Rule". The existing distance
between the US97 / Vandevert Road intersection and the railroad is 141 feet which is greater than
the current estimated queue for the Vandevert Road eastbound left.
Transportation Planning Analysis Unit 14 October 2003
US97 at South Century Drive
Table 13. 2027 Mainline Queue Lengths
OPTION I
Intersections
Movement
2027. Queue
(ft)
US97 NB off-ramp/South Century Dr
US97 NB Off-ramp
50
US97Nandevert Rd
EB Left
75
Table 14 shows a comparison of OHP spacing standards with the build alternative. The spacing
between Cottonwood Road interchange and South Century Drive interchange still does not meet
the OHP spacing standards.
Table 14. Build Access Management Spacing
cis t
r fi aids:
r
'1
Cottonwood Road Interchange - South Century Drive
1.69
3
0
Interchange
.
South Century Drive Interchange - Vandevert Road
2.3
2.0
Deschutes County Network Analvsis Results
Table 15 shows the LOS and v/c ratios for Alternative 2b's three options. Option 1 is
unacceptable because of the failing LOS and v/c ratios. Option 3 meets the LOS D standard in
2027, but exceeds the 0.80 v/c requirement for good roundabout operation at the Spring
River/South Century intersection. Option 2 is the best option for this alternative even though the
South Century DrNandevert Rd intersection still exceeds the County's LOS standard in 2027.
Transportation Planning Analysis Unit 15 October 2003
US97 at South Century Drive
Table 15. Alternative 2b LOS and v/ct
One-lane roundabout with two approach lanes (LOS R and 0.39 for v/c from aaSIDRA).
Two-lane roundabout with two approach lanes (LOS B and 0.40 for We from aaSIDRA).
The roundabout option works well with superior operation (lower LOS and v/c and shorter queues
when compared to signalized options) except for the Spring River Road intersection with South
Century Drive.
Table 16 shows the 2027 queue lengths of critical movements at each intersection in Alternative
2b. In these options, no queues blocked adjacent intersections. Generally, the roundabouts in
Option 3 have the shortest queues except at the Spring River /South Century intersection while
the signals in Option 2 have the longest queues.
Transportation Planning Analysis Unit 16 October 2003
US97 at South Century Drive
1 Level of Service is based on aaSIDRA
7 V/C ratio is between aaSIDRA and German G2 Method
In the above table, the Option 3 analysis assumed a single lane roundabout with single approach lanes. The Spring River Road
intersection with South Century Drive works well with:
Table 16. Alternative 2b Queue Lengths
OPTIO
N'S
OPTIO
NI
OPTION
3 ;
lnterseet ons :
Moveme;at
2oZ7
Move " t
Movemek .
2027 ,
ft
ft
t't
South Century
WB Left
125
WB Left
125
WB Left
125
DrNandevert Rd
SB Left
75
SB Left
75
SB Left
75
East
East
East
Approach
375
Approach
725
A roach
525
West
West
West
Spring River Rd/South
Approach
200
Approach
375
Approach
325
Century Drt
South
South
South
200
300
250
Approach
Approach
Approach
North
225
North
200
North
575
Approach
Approach
Approach
East
East
East
Approach
125
Approach
125
Approach
75
South Century
South
South
South
DrNenture Lane
Approach
150
Approach
175
Approach
75
North
North
North
100
100
75
Approach
Approach
Approach
South
South
Approach
150
Ap roach
75
NB L
ft
225
South Century Dr/Abbot
e
North
North
Rd
A roach
350
Approach
75
SB Left
225
ast
p
125
r
75
A
ro
ach
A p
oach
West
West
__Approach
125
A roach
100
South Century Dr/Bypass
EB
125
East
175
East
150
Left/Right
Approach
Approach
South
South
Approach
200
Approach
75
' In Option 3, the queues at the Spring River Road intersection with South Century Drive are based on a single lane roundabout
with single approach lanes analysis. Following are queues in feet for north, south, east.. west approaches respectively-
0 100, 75, 100, 75 based on one-lane roundabout with two approach lanes analysis.
• 50, 50, 75, 75 based on rwo-lane roundabout with two approach lanes analysis.
ALTERNATIVE SUMMARY
The mainline analysis of Alternative 2b indicates that:
• The Cottonwood Road interchange ramp terminal intersections will function acceptably
through the design year except the eastbound right turn which will exceed the HDM v/c
standard in 2016 and fail in 2027. US 97 will be over capacity and will limit the ability of
the Cottonwood interchange to provide safe access to the highway in the fixture.
Transportation Planning Analysis Unit I % October 2003
US97 at South C'enturv DTI rC
• The South Century Dr /US 97 northbound ramp terminal operates within the 0.60 v/c
standard through 2027. The interchange at South Century Drive will operate better with
four lanes on US 97. The South Century Dr !US 97 southbound ramp terminal has a ""tee
right" onto South Century Drive.
• The Vandevert Road intersections with US 97 and South Century Drive will still exceed
the HDM v/c standard and the Deschutes County LOS standard, respectively, in 2027.
Alternative 2b with the bypass, adds one more intersection to the road system. The through traffic
between US 97 and Spring River Road and southern South Century Drive diverts to the bypass.
Local trips use the old South Century Drive alignment. Adding the bypass potentially increases
safety for pedestrians and bicyclists using or crossing South Century Drive between Sunriver and
the Business Park by removing the through traffic.
Alternative 2b, Option 2 (signalized intersections) works acceptably through year 2027. Option 2
also has the longest queues of any of the Alternative 2b options. However, adding signals at all
the intersections changes the old South Century Drive alignment to a urban feel which may be a
detriment to the character of the area that may not mesh well with the Sunriver community vision.
Alternative 2b, Option 3 works well as a single lane roundabout with two approach lanes or a
two-lane roundabout with two approach lanes at the Spring River Road intersection with South
Century Drive. Roundabouts are much safer than the standard unsignaiized or signalized
intersection and would fit well in the Sunriver area as Sunriver does have a number of semi-
roundabouts that drivers are familiar with. Roundabouts do take up more right-of-way and adding
more lanes will increase the footprint.
'RECOMMENDATION
As above summary, Alternative 2b, Option 3 with a two-lane roundabout at Spring River
Road/South Century Drive intersection is superior to Option 2. Option 3 has lower level of
service, We ratios and queuing and has been recommended as the best option. Option 2 would also
work if roundabouts are not desired
Transportation Planning Analysis Unit 18
October 2003
US97 at South Century Drive
APPENDIX C
Alternatives Considered But Dismissed
Transportation Planning Analysis Unit CI October, 2003
US97 at South Ccnturv Drive
Alternative I
Alternative I improves the interchange at Cottonwood Road, builds a backage road on the west
side of US 97 to connect South Century Drive to Cottonwood Road, and disconnects South
Century Drive to US 97 but allows a right in-right out for Lava Cast Forest Road. This alternative
was dropped from further consideration because it:
• Poorly handles future volumes at the interchange and may have no viable off-system
options.
• Would not provide effective access for long-term land use plans in the project area
and therefore, does not ensure effective use of public and private funds
• Would not improve direct access to Forest Service lands and recreational lands
• Would not reduce (and may increase) congestion in the Sunriver area
• Would result in out-of-direction travel for local residents and tourists
• Would not provide effective emergency access and exit routes within the project area
• Would not improve access to recreational resources in the project vicinity
• Requires a new 2-mile long frontage road on public land that:
• Would result in loss of trees and would convert huge acres of Forest Service land into
transportation corridor.
• May result in increased wildlife/vehicle collisions and adverse impacts to deer and
local wildlife
• Would require additional funds for maintenance and snow removal.
• Would be visible from Cava Butte and therefore, does not minimize adverse impacts to
visual resources and to the National Monument
• Would adversely impact recreational opportunities between Cottonwood Road and
South Century Drive (many locals use the forest service roads in this area for mountain
biking).
Analvsis Results
Alternative 1 is analyzed without a bypass around the Business Park in the Sunriver area. If this
alternative is analyzed with a bypass, the traffic operation is the same as Alternative 2b that is
described in the main body of the narrative. The intersections of Abbot Drive and Spring River
Road with South Century Drive are stop-controlled (Option 1), signal controlled (Option 2), or
roundabout controlled (Option 3) See Figures Cl through C6.
Table Cl shows preliminary signal warrants for Alternative 1's intersections in the build year
(2007) and the design year (2027).
Transportation Planning Analvas Umt C2 October 2003
US97 at South t entuiy Dnvc
T
680 f
NO SCALE 0
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OREGON DEPARTMENT OF TRANSPORTATION Z`p►gU TRANSPORTATION PLANNING ANALYSIS UNIT
FILE :
US 97 AT SOUTH CENTURY DRIVE (Alt. # 1) s. Ccmury Dr 11 prepared By: T. N. NGUYEN FIGURE C1
2007 Balanced 30th Highest Hour Volumes DATE1010h Reviewed By: PE. P. chuytema,
C8
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40
OREGON DEPARTMENT OF TRANSPORTATION Tplklu TRANSPORTATION PLANNING ANALYSIS UNIT
US 97 AT SOUTH CENTURY DRIVE (Alt. # 2a)
FILE : S. C.-, Dr 11
prepared By: T. N. NGUYEN
F
G
2007 Balanced 30th Highest Hour Volumes
DATE: 10101/03
Reviewed Ry: PEchuyicma,
I
URE C7
C17
OREGON DEPARTMENT OF TRANSPORTATION Tpgv TRANSPORTATION PLAWMNG ANALYSIS UNIT
AILS : S. Century Dr Prepared By: T. N. NGl1YEN
US 97 AT SOUTH CENTURY DRIVE (Alts. # 2c & 3) _ FIGURE C13
- 11 2007 Balanced 30th Highest Hour Volumes HATE: 10/01/0 Reviewed By: PE5ehuytema,
C26
tf
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OREGON DEPARTMENT OF TRANSPORTATION Tpgv TRANSPORTATION PLANNING ANALYSIS UNIT
US 97 AT SOUTH CENTURY DRIVE (Alt
# 4)
FILE : S.
Cem.ry Dr 1
.1'.IN I IV~•-IUYEN
Pre artd B Y'
1 P
F
G
.
I
1
I
URE C17
1 11
2007 Balanced 30th Highest Hour Volumes
DATE a0l01t01
1
Reviewed By: P. Schuyttma,
1
P£.
C35
APPENDIX D
Traffic Development
Transportation Planning Analysis Unit DI October 2003
US97 at South Century Drive
TRAFFIC DEVELOPMENT
Base and future year traffic data used for the transportation analysis was developed from the
following:
• Traffic Counts
• Transportation Volume Tables
• ODOT's Permanent Recorder Stations
• Cumulative Analysis
Traffic Counts
Manual traffic counts, which include 15-minute interval data and full federal classification
breakdowns, were taken by ODOT staff in August, 2002 at the locations in Table D1 and shown
in Figure D2.
Table D1. Manual Count Locations
Location
Date '
Duration
US 97 / South Century Drive
08/08-09/2002
14 hour
US 97 / Vandevert Road
08/22-23/2002
14 hour
South Century Drive / Vandevert Road
08/22-23/2002
14 hour
South Century Drive / Spring River Road
08/22-23/2002
14 hour
South Century Drive / Venture Lane
08/15-16/2002
14 hour
South Century Drive / Abbott Drive
08/01-02/2002
14 hour
South Century Drive / Crosswater Resort Access
08/08/2002
3 hour
The US 97 / Cottonwood Road interchange ramps were counted using hose tubes. The traffic
counts indicated that the project peak period was determined to be between 5 PM - 6 PM (See
Figure D3).
Transportation Volume Tables
ODOT's Transportation Volume Tables contain tabulation listings of ADT values for state
highways. Information from these tables provide information on current ADT values and historic
growth trends.
The future traffic volumes were developed using the cumulative analysis method. The cumulative
analysis method uses existing traffic volumes, historic growth patterns, and planned land uses to
predict future development growth and to forecast the traffic generated from that development.
The existing and future developments were based on information obtained from Deschutes
County's GIS database.
ODOT's Permanent Recorder Stations
Data available at the 120 Automatic Traffic Recorder Stations on the state system includes
Average Daily Traffic (ADT), Maximum Day, Maximum Hour, l oth, 20th, 30th Highest Hour
shown as a percentage of ADT, Historical Annual Average Daily Traffic (AADT) by year.
Transportation Planning Analysis Unit D2 October 2003
US97 at South Century Drive
directional traffic splits, and seasonal variations in traffic. General seasonal adjustments were
derived from an average of ATR's that have operational characteristics similar to the studied area.
The counts were taken during the time when the 30th highest hour occurs, so no seasonal
adjustments are needed.
Cumulative Analysis
A cumulative analysis was performed to obtain the 2007 and 2027 no-build volumes. From the
review of land use patterns, locations, densities and types of development, staff is able to analyze
the future travel patterns in the study area and the transportation needs of the residents. A key
element in this analysis is the identification of all vacant developable land and currently platted
parcels in the study area. Developable land in the study area occurs in several different land-use
categories that the cumulative analysis was applied to predict development growth and the
resulting generated trips.
The study area was divided into 12 zones (See Figure D1.) where substantial numbers of vacant
lots exist. Following is general zone descriptions:
• Zone 1 - Sunriver (all - map cuts off top half) ;as confined by the railroad, USFS lands,
the river, and South Century Drive
• Zone 2 - Spring River; generally bordered by USFS on the west and Deschutes River on
the east
• Zone 3 - Lower Bridge; bordered by USFS on the west and Deschutes River on the east,
south of Spring River development
• Zone 4 - South Century; bordered on south by South Century Drive, on north and west by
the Deschutes River, and on the east by Crosswater Resort and the Little Deschutes River.
• Zone S - Lower South Century; bordered on north by South Century Drive, south by
USFS, west and east by the Deschutes and Little Deschutes Rivers
• Zone 6 - Huntington West; bordered on west by the Little Deschutes River, on east by
Huntington Road, on north by South Century Drive, on south by LaPine State Park
Recreation Road.
• Zone 7 - Huntington East; bordered on the west by Huntington Road, on east by the
railroad, on south by LaPine State Park Recreation Road.
• Zone 8 - Vandevert; bordered on west by South Century Drive and Little Deschutes
River, on east by the railroad, on the north by Vandevert Road
• Zone 9 - Crosswater East; bordered on west by South Century Drive, on east by the
railroad, on the south by Vandevert Road
• Zone 10 - Sunriver Business Park; bordered on north and west by South Century Drive,
on east by the railroad
• Zone 11 - Railroad; bordered by the railroad on the west, US97 on the east, Vandevert
Road on the north and LaPine St. Park Rec. Road on the south.
• Zone 12 - Crosswater; bordered by South Century Drive on the east, Spring River Road
on the north, and Zone 4/Deschutes River on the west
Transportation Planning Analysis Unit D3 October 2003
US97 at South Century Drive
The study area includes Sunriver which is an unincorporated area, which has developed and
remained as local-serving commercial uses, providing goods and services geared specially for the
surrounding rural residential and farming uses. All vacant parcels of land that, once developed,
could impact the study area were identified and grouped using Deschutes County's GIS data. The
number of lots is based on current building trends and is the number of lots likely developed in
the next 25 years.
Table D2 summarizes the zonal estimated current vacant lots, estimated building rates, and trip
generation. Average trip generation rates are from the Sixth Edition of Trip Generation from the
Institute of Transportation Engineers (ITE). All vacant lots were assumed single family detached
housing lots (ITE Code 210) except Zone 9 is a land-swap between USFS and private developers.
Zone 9 is a resort area and was assumed to be built out in year 2022 with 360 houses (ITE Code is
Transportation Planning Analysis Unit Da October 2003
US97 at South Century Drive
210), 170 acres golf course (ITE Code 430), 10 acres Business Park (ITE Code 770), and a 300-
room hotel (ITE Code 310).
Table D2. Zonal Trip Generation (PM Peak Hour)
$
„3
EStj ted
« `
al ted
'"es
2007
&u tlt
2027 x
ut1
20 7 dotal
„
. mf ° on
=7'~'ofal
G
at (
a
Y x 4L` }
4
!
A)_1 ty
~JQ~
Qty' _
T
e
oq
)Sit r...
? @nteTlel ?7:
5}
`
1
537
80
400
537
404 (260/144)
542 349/193)
2
984
30
150
750
152(98/54)
758 (488/270
3
167
17
N/A*
167
N/A
169 (109/60)
4
640
35
N/A
640
N/A
646 416/230)
5
411
17
N/A
411
N/A
415 (267/148)
6
38
3
N/A
38
N/A
38(25/14)
7
43
3
N/A
43
N/A
43(28/15)
8
23
3
15
23
15(10/5)
23(15/8)
360 houses, 170
9
Land-Swap,
Area ~
acrs golf course, 10
N/`~'
Built
N/A
766 (381/386)
acrs Business Park,
out
351.68 Acres
300-roam Hotel
10
52
3
15
52
15(10/5)
53(34/19)
11
24
3
15
24
15 10/5
24(16/9)
12
61
10
50
61
51(33/18)
62(40/22)
* Assumed not available by year 2007
Future through (external-external) trips were estimated using the 20-year historical growth rates
on US 97 and on the county roads. It was assumed that the only true external-external trips were
on US 97 as the highway has smallest travel time of all routes in the study area. All other external
trips were assumed to be traveling to or from internal destinations in the study area.
The trip generation for new residential and commercial trips was applied to each zone as
appropriate. The new trips (internal-external and external-internal) were distributed in a matrix
among the external stations based on the relative size of each zone and the total amount of trips at
each external station. The external stations are located on:
• US 97 (North of Cottonwood Road interchange)
• US 97 (South of Vandevert Road)
• Spring River Road (West of South century Drive)
• South Century Drive (South of Vandevert Road)
The total amount of external-internal and internal-external trips was summed and compared to the
original total trip generation for each zone. The difference was the total amount of internal-
internal trips for each zone. It was assumed that the majority of the internal trips were traveling
between residential and commercial areas. The internal trips were distributed among the six zones
based on the relative size of the origin or destination zone depending on whether the trip was
inbound or outbound.
Transportation Planning Analysis Unit D5 October 2003
US97 at South Century Drive
The four trip types were assigned to the roadway network based on the smallest travel time
between the origin and destination. Combinations of routes were used if travel times were similar.
The assignments were reduced to turn movements and became the future no-build volumes. After
all trips had been assigned except for the internal-internal trips, capacities were checked.
Transportation Planning Analysis Unit D6 October 2003
US97 at South Century Drive