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2025-429-Minutes Recorded 12/18/2025'��3T E S COG2< BOARD OF COMMISSIONERS 1300 NW Wall Street, Bend, Oregon (541) 388-6570 1:00 PM Recorded in Deschutes County C.J2025-429 Steve Dennison, County Clerk Commissioners' Journal 12/18/2025 3:03:20 PM 2025-429 BOCC MEETING MINUTES MONDAY December 1, 2025 Allen Room Live Streamed Video Present were Commissioners Anthony DeBone, Patti Adair and Phil Chang. Also present were County Administrator Nick Lelack; Deputy County Administrator Erik Kropp; Deputy County Administrator Whitney Hale; Senior Assistant Legal Counsel Kim Riley; and BOCC Executive Assistant Brenda Fritsvold. This meeting was audio and video recorded and can be accessed at the Deschutes County Meeting Portal: www.deschutes.org/meetings. CALL TO ORDER: Chair DeBone called the meeting to order at 1:00 pm. CITIZEN INPUT: Roger Sabbadini said the proposed map that would separate the County into five districts for the election of County Commissioners is highly partisan and undemocratic. Reminding that the voters decided in 2023 to have the BOCC positions be non -partisan, he addressed the possibility that the proposed map may next be approved by a very narrow partisan vote of two to one. He said because many issues facing the BOCC are countywide in nature, they should not be approached according to which area someone lives in —these include health and safety matters, homelessness, air pollution, commercial development, and water resources, among others. Emily Brown pointed to the cancellation of the DMAC's final meeting and said the process to draft a BOCC district map has not been democratic. She further questioned the reason for proceeding with putting the proposed map on the next - available ballot. BOCC MEETING DECEMBER 1, 2025 PAGE 1 OF 8 Vikkie Hickmann said all BOCC positions should be selected at large. She asked how voter choice can be ensured and citizen representation improved, and said more time should be taken to assess the situation and consider other governance models such as the one used by Missoula County in Montana. Mary Fleischmann said the BOCC positions should be at -large and the process to draft a district map was rushed. She wondered if having districts will increase election costs. COMMISSIONER ANNOUNCEMENTS: None AGENDA ITEMS: 1. Consideration of termination of the Solid Waste Franchises for the collection of solid waste in the unincorporated areas of Deschutes County Tim Brownell, Director of the Solid Waste Department, reviewed the County's waste hauling franchise structure, which dates to 1972, and how business ownership changes and mergers since that time have resulted in two companies having franchises to haul waste in the County. He spoke to the need to update the terms of these franchises, especially in view of the large potential investment of developing a new landfill and associated facilities. Saying that the franchise agreements must specify where waste is hauled and not leave that up to the haulers to determine, he recommended that the Board authorize the issuance of franchise termination notices that would allow the existing haulers to continue operating under the current franchise terms for six years while the County works to develop modern agreements to address performance standards, financial transparency, destination controls for materials, and reporting requirements. Commissioner Adair differentiated between the two haulers which currently operate under the franchises, saying that Cascade Disposal has well -served the community for many years. Commissioner Chang said moving to a modern franchise agreement would ensure financial transparency and allow for addressing performance issues. He stressed the need to be able to define waste and recycling streams, particularly as the County looks to invest in a new landfill, the successful operation of which would be based on the economics of volume. Commissioner. DeBone said while the current franchise operators are providing great service, he wanted to be sure that the County is doing what it can to steward major County investments and align agreements across jurisdictions. He supported issuing the notice of franchise termination as recommended. BOCC MEETING DECEMBER 1, 2025 PAGE 2 OF 8 Saying that he also supported issuing the notice of franchise termination, Commissioner Chang said the County must be able to direct the flow of materials and ensure contractor performance. He viewed this change as something that the County owed to customers and ratepayers and said it would serve as a safeguard for the community. Commissioner Adair said Cascade Disposal provides excellent service whereas the other hauler has had performance issues. She did not want to punish Cascade and was concerned that the proposed changes could result in punitive damages with the County afforded broad discretion. She desired to recognize and reward good performance and questioned if efforts to modernize the franchise agreements would return good results. Commissioner Chang said if franchise haulers provide good service in compliance with the proposed franchise agreement then liquidated damages provision would not be triggered. Noting that Cascade is now a subsidiary of a much larger company —Waste Connections —he said that as a customer of Cascade himself, he had no complaints about the service he has received from them. Commissioner DeBone spoke to the County's 50-year history of partnering with private companies and the very positive relationships which have resulted. He did not view moving to a new agreement as punitive but rather as simply the next step which he supported due to the huge investment that would be made in a new landfill. CHANG: Move to authorize the Solid Waste Department Director to issue a Notice of Termination to all solid waste collection franchise holders operating under existing Board Orders in the unincorporated areas of Deschutes County, initiating the six -year wind down provided for under the current "evergreen" structure DEBONE: Second VOTE: ADAIR: No CHANG: Yes DEBONE: Chair votes yes. Motion Carried 2 - 1 CHANG: Move to authorize the Solid Waste Department Director to lead a coordinated, countywide process —aligned with the Cities of Bend, Redmond, Sisters, and La Pine —to design and competitively procure a contemporary franchise framework via a Request for Proposals (RFP), with agreements targeted for a defined term of ten to 15 years DEBONE: Second BOCC MEETING DECEMBER 1, 2025 PAGE 3 OF 8 VOTE: ADAI R: Yes CHANG: Yes DEBONE: Chair votes yes. Motion Carried 3 - 0 2. Presentation: Oregon Department of Transportation (ODOT) US 97 / Baker Road Interchange Area Management Plan Tarik Rawlings, Senior Transportation Planner, introduced a presentation from ODOT on the US 97 / Baker Road Interchange Area Management Plan. Don Morehouse, ODOT Senior Transportation Planner, said the State has been working to develop options for improvements at this interchange for five years, and a preferred alternative is now available. Kayla Fleskes-Lane from DKS explained that the purpose of the project is to improve safety at this interchange. She reviewed work completed to date and said the public outreach conducted thus far has included two online open houses. She described two alternatives for moving forward and said the first option has been selected as the preferred alternative at an estimated total cost of $38 million, split into two phases. Continuing, Fleskes-Lane summarized the access management plan and listed the proposed improvements to facilitate shared -use and multi -use paths to accommodate pedestrian and bicycle traffic. She noted that this TAMP is already a component of the County's Transportation System Plan. Commissioner DeBone asked how the bridge widening across Highway 97 will be accomplished. Fleskes-Lane said the plan assumes adding cantilevered access to the bridge to allow for expanded bicycle and pedestrian access. In response to Commissioner DeBone, ODOT Principal Planner Ken Shonkwiler said every few years, ODOT evaluates the access from China Hat Road onto Highway 97 as well as the ingress and egress to and from Ponderosa to monitor safety considerations and inform possible changes to those access points. Responding to questions, ODOT Operations and Maintenance District Manager Jim Scholtes said some of Region 4's seasonal maintenance positions remain unfilled at this time, although he expected to have more staff this winter than last winter. Scholtes added that in line with the last four years, the State has asked ODOT to continue to hold 10% of positions open. BOCC MEETING DECEMBER 1, 2025 PAGE 4 OF 8 Commissioner Chang commented on efforts being made to gather signatures to place a measure repealing HB 3191 on the ballot. He noted that prior to the passage of HB 3191, ODOT had planned for substantial workforce reductions. Scholtes spoke to the funds approved for maintenance in the next biennium and shared that the average cost of equipment, materials and personnel for one winter season totals about $2.1 to $2.2 million. He addressed how budget constraints could impact levels of service, reducing incident responses and debris clearance, and explained which corridors would be prioritized for service to best support freight, commerce and community travel. 3. Discussion of possible appointment to the Deschutes County Budget Committee Commissioner Chang acknowledged the strong pool of applicants considered for this position and stated his support for appointing Angelique Loscar. Commissioners Adair and DeBone stated their preference for appointing either David Cosper or Asa Watts. Commissioner Chang responded that he would support appointing David Cosper. ADAIR: Move to appoint David Cosper to the Deschutes County Budget Committee CHANG: Second VOTE: ADAI R: Yes CHANG: Yes DEBONE: Chair votes yes. Motion Carried 3 - 0 Commissioner DeBone expressed appreciation to all of the applicants for their willingness to serve the community in this important way. 4. Work Session - Consideration of Document No. 2025-935 - Improvement Agreement for Phase E1 of the Caldera Springs Destination Resort Haleigh King, Senior Planner, said the improvement agreement for Phase E1 of the Caldera Springs Destination Resort is ready for the Board's consideration and will be brought forward for action this Wednesday. Noting that the agreement includes a cost estimate for the necessary road and utility construction, King said the County will retain a bond until the required improvements are completed. In response to questions, King said at full buildout, the development will have 340 single-family dwellings and 150 overnight lodging units, with Phase E1 poised to add 40 single-family dwellings and 9 overnight lodging units. BOCC MEETING DECEMBER 1, 2025 PAGE 5 OF 8 S. Role, Purpose and Oversight of the Deschutes County Office of Internal Audit Nick Lelack, County Administrator, introduced the discussion on the role, purpose and oversight of the County's Office of Internal Audit, noting prior Board direction to schedule a review of Deschutes County Code Chapter 2.14 which governs the internal audit function after hearing public comment by the County Clerk on October 29, 2025. Lelack noted the presence of Internal Auditor Elizabeth Pape and Audit Committee Chair Daryl Parrish. Commissioner DeBone stated his support for the internal audit program, referred to the change from a longtime auditor to a different one, and said an email sent to the Board earlier today from one of the members of the Audit Committee was out of bounds. He supported looking for opportunities for improvement. Commissioner Chang recounted recent conflicts between the audit office and offices headed up by elected officials, which he viewed as parallel situations. While he appreciated that the Internal Auditor is asking very important questions, he said there are different ways of answering such questions when direct access or the necessary records are not disclosable to the Internal Auditor —for example, the Sheriff's Office might allow another law enforcement office to review its body cam data instead of provide that to the Internal Auditor, which the DCSO says is not a legally appropriate entity to review such data. Because it's critical that the County's election systems be secure, perhaps the same could be done with certain information from the Clerk's Office. Commissioner Chang said changing the process for such audits would allow them to be conducted more as peer reviews with the Auditor helping to frame the investigations. Stressing her support for adhering to professional standards, Commissioner Adair noted that the Audit Committee had judged the audit of the Clerk's Office to be very good. Daryl Parrish, Audit Committee Chair, said in his opinion, the audit done of the Clerk's Office did not question the integrity of the County's elections process. Commissioner Chang responded that the audit done on the Clerk's Office had cast suspicion on the office and sent a message that the auditor was prevented from seeing something. BOCC MEETING DECEMBER 1, 2025 PAGE 6 OF 8 Commissioner DeBone agreed that the language in that audit which had stated that "access was not provided" could lead some readers to assume that wrongdoing was being hidden from the auditor. Elizabeth Pape, Internal Auditor, spoke to the audit on the DCSO's body camera system, released earlier today, saying that DCSO holds that body cam footage can only be accessed for a law enforcement purpose with no other type of review allowed under State law. Pape understood this to mean that no law enforcement agency would be able to review this data for audit purposes. Saying that as a high-level professional organization, the County wants to continue to undertake process improvement, Commissioner DeBone noted that the position of Internal Auditor is not elected but instead exists due to a choice by the Board. He did not want to encourage "gotcha" scenarios. Pape said the decision was made to conduct these particular audits before she was hired. Commissioner DeBone stressed that he did not want to tie the Auditor's hands or for her to be compromised. At the same time, he did not want light shed on matters which are not deterministic. Pape said County Code allows her access to information she needs in order to conduct audits. She noted the option of writing a confidential report when the results contain privileged information and cannot be made public. Commissioner Chang suggested that the Audit Committee could take the reins on issues that are highly sensitive and/or politically complicated. Commissioner DeBone concurred that County Code could be changed to better define the process and how the scope of audits are decided. Pape said management should not be allowed to determine the scope of an audit. Commissioner Chang said the County has real and severe budgetary and staff resource constraints, and many departments are performing above industry standards. He did not want the Audit function to draw resources away from the delivery of programs and services. Commissioner DeBone added that unlike some other counties, Deschutes County has an audit program by choice. BOCC MEETING DECEMBER 1, 2025 PAGE 7 OF 8 Commissioner Adair offered to relinquish her seat on the Audit Committee to Commissioner Chang or Commissioner DeBone so they can come to better understand the work of the Audit Office and more closely witness the diligence of the work performed. Commissioner Chang said the BOCC should clearly define the role of the Audit Committee via Code revisions. Saying he was unready to proceed with such changes at the current time, Commissioner DeBone stressed that he wants the County to have an empowered Auditor and a process which other department directors are comfortable with. OTHER ITEMS: None EXECUTIVE SESSION: None ADJOURN: Being no further items to come before the Board, the meeting was adjourned at 3:40 pm. DATED this � day of C 2025 for the Deschutes County Board of Commissioners. ATTEST: 14�� ph' ?�(� RECORDING SECRETARY ANTHONY• PATTI ADAIR, VICE CHAIR PHIL CHANG, COMMISSIONER BOCC MEETING DECEMBER 1, 2025 PAGE 8 OF 8 �Jres o O BOARD OF COMMISSIONERS' MEETING REQUEST TO SPEAK Citizen Input or Testimony Subject: ! I - Date: ( 1 lo if Name Address /Cl'l% U I-TtC? c? Phone #s E-mail address In Favor Neutral/UndecidedOpposed Submitting written documents as part of testimony? Yes No If so, please give a copy to the Recording Secretary for the record. SUBMIT COMPLETED REQUEST TO RECORDING SECRETARY BEFORE MEETING BEGINS \31 Es o0G2� BOARD OF COMMISSIONERS MEETING DATE: December 1, 2025 SUBJECT: Consideration of termination of the Solid Waste Franchises for the collection of Solid Waste in the unincorporated areas of Deschutes County RECOMMENDED MOTION: Move to authorize the Solid Waste Department Director to: 1. Issue a Notice of Termination to all solid waste collection franchise holders operating under existing Board Orders in the unincorporated areas of Deschutes County, initiating the six -year wind down provided for under the current "evergreen" structure. 2. Lead a coordinated, countywide process -aligned with the Cities of Bend, Redmond, Sisters, and La Pine —to design and competitively procure a contemporary franchise framework via a Request for Proposals (RFP), with agreements targeted for a defined 10-15 year term. BACKGROUND AND POLICY IMPLICATIONS: In 1972 the Board of County Commissioners (BOCC) through Board Orders granted four (4) separate franchises in Deschutes County for solid waste collection as provided under the Solid Waste Collections and Disposal Ordinance. Each of these franchises have defined legal boundaries outlining the areas for the exclusive rights of service for each franchise as granted. Over the last 20 years these franchises, along with an additional franchise for the transfer of solid waste and other waste materials and a recycling and composting lease agreement have been purchased and consolidated to be held by two national waste companies. Waste Connections purchased Cascade Disposal, a franchise originally granted to R.A. Brownrigg. Republic Services purchased the remaining franchises and lease agreements providing services to the county. While these franchises have provided essential services to County residents, these franchises reflect the policies and conditions of the early 1970s. The Deschutes County Code (DCC) framework governing these orders does not adequately address performance standards, customer service, financial transparency of reporting, facility designation, or default language and/or performance assurance mechanisms to address the expanded population and the current levels of services provided throughout the County. Since the original orders were established, County population has increased approximately eight -fold, curbside recycling and organics services have expanded, and processing of recyclables remains outside County jurisdiction -leaving the costs of those services unregulated. The current franchise grants along with the DCC do not adequately address: • Performance standards (e.g., customer service metrics, equipment standards, and compliance monitoring). o Need to define measurable performance standards and enforce them. o Establish robust customer service and complaint resolution protocols with enforceable consequences for service failures or problems. o Specify clear default remedies, performance improvement plans and/or liquidated damages. • Facility designations (e.g., landfill and transfer station use consistent with the County's Solid Waste Management Plan). o Create long-term certainty regarding designated facilities to protect County infrastructure, particularly in that DCC only applies to unincorporated portions of the County. Cities could utilize facilities not under County authorized designation. • Financial transparency and reporting (e.g., audited financial statements, tonnage reporting, fee reconciliation). o Require financial transparency and reporting sufficient for rate -setting. • DEQ program and state reporting requirements (e.g. customer outreach, required recycling program elements, contamination standards) o Establish reporting expectations to meet DEQ Opportunity To Recycle and Recycling Modernization Act statute requirements for program elements and reporting requirements. • Recycling processing costs, set outside County oversight and approval, contribute to rate instability for customers. The lack of modern provisions limits the County's ability to ensure consistent delivery of service, protect public health and safety, and maintain proper fiscal oversight for the ratepayer. The cities of Bend, Redmond, Sisters and LaPine have also granted exclusive franchises within their jurisdictions. Over the past two and a half years, Solid Waste department staff has been working in cooperation with the cities of Bend and Redmond to assess the current situation of our collective franchises. The County had been asked to take the lead in the development of a new agreement that could be used as a universal template for all jurisdictions in the county and could be administered by County staff under an Intergovernmental Agreement (IGA). As Staff has presented to the BOCC at several meetings over that time, we were looking to develop and negotiate an agreement that would protect County investments, provide residents with services standards that they could rely on and that the franchisees were accountable to, along with financial reporting that was robust and transparent enough to ensure rates were appropriate and justified. In consideration for voluntarily entering into a new Franchise Agreement, Staff was willing to continue the current contractual term of annual renewals with a seven (7) year termination notification clause, otherwise known as an "Evergreen" agreement. If a Notice of Termination is provided to the Franchise Haulers, the termination takes effect six (6) years from the date of notification. In August the County agreed to review any revisions to the agreement that Cascade Disposal wanted to propose. While waiting for those revisions, on September 2" d Cascade Disposal notified the County that they were no longer interested in moving forward with any further discussions regarding a new franchise agreement and prefer to operate under the existing system. They were only willing to discuss potential revisions to Deschutes County Code. Throughout this process Republic Services voluntarily participated, while Cascade Disposal has largely not engaged in the process or discussions. The City of Redmond and County staff were largely in agreement on terms regarding a new agreement with Republic Services (their sole service provider) with a few remaining items pending. However, Republic Services performance in many areas has been concerning over the past few years, to the point that the City of Redmond provided Notice of Termination at the end of 2023. The City of Bend is also close to agreement with Republic, but not with Cascade Disposal. Both of these cities are interested in how the County is going to move forward as they consider their options. Without both franchisees being amenable to a new agreement Staff does not feel that it is prudent or efficient to move forward with one party under a new Franchise Agreement and have the other operate under current County Code. Staff opinion is that updating the franchise agreement is necessary to align with industry standards and best practices. A new agreement will: l . Enhance Accountability — Establish clear performance expectations and provide enforcement tools to ensure compliance. 2. Improve Service Integration — Specify designated facilities for disposal and processing to ensure alignment with the County's adopted Solid Waste Management Plan as well as current and future County infrastructure investments. 3. Strengthen Financial Oversight — Require transparent and timely financial reporting, including revenue and expense audits tied to franchise fees and insure rate payer protections. 4. Provide Legal and Operational Clarity — Eliminate ambiguities in the 1972 agreement and incorporate up-to-date legal protections for both the County and the franchisee. Additionally, in 2019 the BOCC accepted and approved a new Solid Waste Management Plan (SWMP) that outlined the priorities of the Solid Waste department for the next 20+ years. This plan outlined recommendations that included the siting and development of a new in -county Municipal Solid Waste (MSW) landfill as well as the redevelopment of several of the transfer stations serving the needs of the county residents and franchise haulers. It also directs the development of programs and potential new facilities for Construction and Demolition (C&D) debris recovery and Organic Waste Composting in order to improve the diversion rate of waste out of the landfill from the current rate (below 30%) to 45% or greater. Staff has been working since 2021 on the landfill siting process to establish the technical criteria by which to evaluate sites, identify potential locations/properties that could meet those criteria and provide capacity to serve a growing Deschutes County for a minimum of one hundred (100) years, and to fully technically assess the most qualified sites in order to make a final recommendation to the BOCC for approval. Current projections for the investment necessary to develop a new MSW Landfill are anticipated to exceed $50 million, with a desired opening in 2031. In 2024 the County completed the redevelopment of the Negus Transfer Sation outside of the City of Redmond and anticipates doing the same for the Southwest Transfer Station outside of the City of LaPine. Staff has also been working on the design and financial modeling of the development of both a C&D debris recycling facility and an expansion of the composting facility at the Knott Landfill campus. Each of these facilities would be designed to handle the current overall waste stream of the County, along with the expected growth over the next 30+ years. If the potential path forward to meet our disposal needs and diversion goals includes all or part of these infrastructure improvements, the guaranteed flow of all waste materials to those facilities will be required. Currently, under the County's franchised hauler arrangements, the County controls approximately 30% of the overall waste stream. The cities, under their franchise agreements, have the authority to direct the balance of the waste stream collected within their jurisdictions. STAFF RECOMMENDATION The various infrastructure initiatives that the Solid Waste department staff has been working on depend on flow of all materials collected in the county to be delivered to all Deschutes County operating facilities. This situation requires that the County and the Cities work together to establish agreements and arrangements that will ensure the flow of materials to any new facilities developed by the County in order to issue and fund any Bond or other debt instruments that we may consider. The cities of Bend and Redmond have been committed to moving forward with new franchise agreements as well. They prefer the County to take the lead in this process, and are agreeable to having the same terms, conditions, and requirements that would allow the County to administer significant aspects of the agreements other than rate setting. This could include moving away from the current "evergreen" contract structure to a regularly bid contract (10-15-year term) that would regularly assess fair market cost of services while also allowing for innovation in collection services to be accessed by the County and local jurisdictions. Why Act Now • A six -year wind -down balances continuity of service with the time required to evaluate options, continue negotiations with existing haulers, update code, procure competitively, and transition operations. • Coordinated action with cities enables a unified franchise template that reduces administrative burden, harmonizes service levels, and stabilizes rates countywide. • Establishing facility designation now safeguards County investments and provides the tonnage commitments necessary for long-term financing and system planning. • This six -year wind -down also aligns with the anticipated closure of Knott Landfill and in the time framework that new diversion facilities would be established, allowing for all those elements to fall into consideration during the procurement process. Benefits of Terminating the Evergreen Agreements and Procuring via RFP • Competitive pricing and innovation: Market competition for clearly defined service outcomes and risk allocation. • Defined term (10-15 years): For potential service providers interested in participating in a procurement process it provides for predictability for capital planning. It also provides for a formal review as to the effectiveness of the franchise agreement and re -procurement at end of term, rather than perpetual renewal. • Stronger accountability: Agreements would include measurable Key Performance indicators (KPIs), audits, and enforceable remedies (e.g., performance improvement plans, liquidated damages, cure timelines, performance bonds). • Financial transparency: New agreements would potentially include open -book cost -of - service, standardized reporting, independent audits, and a clear, public rate -setting methodology. • Customer service excellence: Would establish standardized complaint handling, response times, call center metrics, and service credits for missed service. In -county customer service representative requirements will be considered as well. • System control: Lawful facility designation to County -authorized facilities for MSW landfilling, Mixed recyclable and C&D processing, Organic material composting that align with infrastructure development plans. Environmental performance: Contamination reduction plans, education/outreach, and emission -reduction requirements for fleets and facilities. Equity and access: Consistent service standards in rural and urban areas, language access, and affordability programs as adopted by the Board. Key Elements to Embed in the New Franchise and RFP • Scope of services: MSW, recycling, organics, bulky, on -call, drop-box/roll-off, and C&D collections as applicable. • Service areas and route density: Optimize for collection service efficiency and safety. • Performance standards (examples): o Missed -collection thresholds and make -good timelines. o Call answer times and first -contact resolution. o Contamination targets and outreach delivery. o Cart/container maintenance and safety metrics. • Reporting and data: Monthly tonnage, route productivity, customer service metrics, ESG indicators, and audited financials. • Rate -setting: Transparent cost -of -service, indexation protocols, extraordinary cost pass -through rules, and periodic full rate reviews. • Enforcement: Graduated remedies, liquidated damages schedule, cure rights, performance security, and tennination for cause. • Facility designation: Direct materials to County -authorized facilities to support system performance and financing. • Resilience: Business continuity, disaster debris response, and mutual -aid requirements. • Workforce: Safety programs, training, and transition/retention provisions to ensure service continuity at contract start. • Term: 10-15 years, with optional extensions only by Board approval based on performance. Risks and Mitigations Service disruption risk: If one or more new service providers are successful in a new procurement process, the transition will need to be well planned and coordinated. Six -year transition plan would require detailed transition plans, that would include performance bonds, and the potential of labor retention requirements to reduce risk of service interruptions during the introduction of a possible new service provider. Rate volatility during transition: To reduce the risk of rate increase in the lead -up to the new franchise agreements, the County and cities would use current rate oversight tools available to enhance transparency while legacy agreements wind down. Regional misalignment: Early and ongoing coordination with cities; shared template agreement and synchronized timelines. Regional Coordination and Governance Options (Years 1-3) During the first three years after Notice of Termination is provided, Staff will work with the BOCC along with the cities of Bend, Redmond, Sisters, and La Pine to determine the most effective structure for administering consistent franchise terms countywide. The primary options for consideration that could be examined: " a4)e I Options Description Advanta es Considerations Common Franchise Each jurisdiction holds its own Local control retained; Agreement Template with franchise(s) using a shared , "onsistent standards and Requires durable IGAs; Intergovernmental template; administration delivered eporting; administrative still multiple contracts to greement (IGA) GCounty Solid Waste staff via efficiencies. manage. single district manages additional franchising and system planning Unified governance, formatRequires steps; Establish a Solid Waste cross jurisdictions. Each jurisdiction single point of governance with potential Management District would have appointed accountability, cost -sharing and rate epresentation in District maximum consistency. setting agreements needed. Governance. _ Reinstate existing franchise hauler Requires coordination of Amend Deschutes County arrangements along with Removes service modifications to both City Code and Reinstate modifications to DCC and City interruption risks during and County Codes to align Existing Franchises odes as needed to remedy the a service transition. with desired outcomes. shortcomings of existing system. Staff would provide the Board with a recommended governance model and draft IGAs as they are developed. Proposed Six -Year Timeline (Illustrative) Months 0-6: Board action; issue termination notices; initiate regional workgroup. Develop and issue RFP for consultants for system design discussions, regional meeting coordination, technical assessment assistance, and collection services RFP procurement, evaluation, and implementation. Months 6-18: Technical assessments; stakeholder engagement; draft franchise template; draft DCC updates for performance, enforcement, and facility designation. ■ Draft governance recommendation (IGA's or District), • Proposed DCC amendments, and ■ Outline of the RFP for the procurement of services, evaluation criteria, and schedule. • Months 18-24: Board adoption of DCC updates; release Request for Information (RFI) to test market. • Months 24-36: Issue RFP; evaluate proposals; negotiate terms; conditional awards. • Months 36-54: Transition planning; rate filings and reviews; customer education; facility commissioning sequencing. • Months 54-72: Go -live under new franchise(s); closeout of legacy agreements. BUDGET IMPACTS: Adoption of a modernized franchise agreement will improve revenue accountability through updated fee structures and reporting requirements. While no immediate fiscal impact results from issuing the termination notice, long-term impacts include increased accuracy in franchise fee collection and better alignment of costs with service delivery for the residents of Deschutes County. 0 Near -term: Minimal direct cost to issue termination notices and commence planning. Mid-term: Consulting support for technical, legal, and financial analysis; funded from Solid Waste enterprise resources. Long-term: Improved rate stability and value through competitive procurement; clearer nexus between rates, service levels, and capital financing. Infrastructure alignment: Flow control and facility designation will underpin financing and utilization of the new landfill, transfer stations, C&D facility, and composting facility. ATTENDANCE: Tim Brownell, Director of Solid Waste T E S COG BOARD OF �•,�, COMMISSIONERS MEETING DATE: December 1, 2025 SUBJECT: Presentation: Oregon Department of Transportation (ODOT) US 97 / Baker Road Interchange Area Management Plan BACKGROUND AND POLICY IMPLICATIONS: ODOT has prepared the US 97 / Baker Road Interchange Area Management Plan (TAMP) to establish an agreement with local governments about transportation solutions and actions for the interchange area. The final version of the IAMP was presented to ODOT's agency partners in May 2025 at the end of a multi -year coordination process. Solutions outlined within the TAMP are incorporated into the current 2020-2040 Deschutes County Transportation System Plan; the purpose of this presentation is to provide an overview of the final version of the TAMP. BUDGET IMPACTS: None ATTENDANCE: Kayla Fleskes-Lane, DKS Associates Don Morehouse, ODOT Tarik Rawlings, Deschutes County Senior Transportation Planner ES-410 �®G DEVELOPMENTCOMMUNITY MEMORANDUM TO: Deschutes County Board of County Commissioners FROM: Tarik Rawlings, Senior Transportation Planner DATE: December 1, 2025 SUBJECT: Informational Update - US 97 / Baker Road Interchange Area Management Plan (TAMP) (ODOT) On December 1, 2025, staff from the Oregon Department of Transportation (ODOT) will deliver an informational update to the Planning Commission regarding the May 2025 US 97 / Baker Road Interchange Area Management Plan ([AMP). This update follows a similar update before the Planning Commission that was held on October 9, 2025. The final version of the IAMP represents over four years of dedicated collaboration between Deschutes County staff and ODOT. Solutions outlined within the IAMP are incorporated into the existing 2020-2040 Deschutes County Transportation System Plan (TSP) as project S-12 (ODOT Intersections Changes and Associated Cost Estimates). The TSP, adopted through Deschutes County Ordinance 2023-017, also reflects comprehensive public outreach, interagency coordination, and acknowledgement from the Department of Land Conservation and Development (DLCD). I. BACKGROUND As defined in OAR 734-051-1070, an interchange refers to "...a system of interconnecting roadways in conjunction with one or more grade separations that provides for the movement of traffic between two or more roadways or highways on different levels."' The primary objective of an IAMP is to set forth an agreement with local governments regarding necessary transportation solutions, including land use actions and policies required to enact these solutions. This agreement ensures the preservation of interchange functionality while maximizing the benefits of new transportation infrastructure investments. Constructed in the early 1990s, the Baker Road / US 97 interchange initially intended to serve the rural areas south of Bend and to facilitate truck freight traffic between Highway 97, to the south, and Highway 20, to the east via Knott Road and SE 271h Street. ODOT, supported by its consultants from DKS, initiated comprehensive regional coordination for the IAMP in early 2021. During the formative phases, Deschutes County staff provided input on anticipated 1 ODOT TAMP Guidelines (2013) — pg.2 impacts concerning County transportation infrastructure within the designated IAMP study area. Significant elements of the study area addressed by Deschutes County transportation planning and engineering staff include: • Current commercial developments (e.g., Riverwoods Country Store and newly approved storage facilities) • Anticipated traffic pattern changes due to recommended mitigations, which involve a BNSF railway crossing and roundabout intersection treatments • Enhancements in connectivity to County roadways, including a proposed Cascades East Transit (CET) public transit stop • Strategic access management along Knott Road The final [AMP version, compiled in May 2025, integrates feedback from public consultations and agency dialogues, encapsulating Deschutes County's provided insights throughout the planning phase of the project. II. ODOT PRESENTATION AND OVERVIEW The presentation provided by ODOT representatives will provide an overview of: • The IAMPs purpose • Project timeline • Public outreach • Organization of the IAMP report • Project recommendation • Access management • Implementation III. QUESTIONS AND DISCUSSION County staff, DKS staff, and ODOT representatives are available for any questions Attachments: • US 97 Baker Road Interchange Area Management Plan (TAMP) (May2025) • ODOT/DKS Presentation -2- TV i FIN / ro 41 0 LU 0 4- N m fu -0 I M" WE- 0 13 11 m a m � m d � � o U � � o "O W m c7 a rn U) ON k a o ceo '; 10 ro CO Y C m (ti L N O O ZV ai c N co Q L 00 Q o m W - a o (E Q m CDo o L S r L � b N -a`s Z C a m U o Q0 v m o = Q 0 o �V S o cl 00 N J 4-0 uj Ir ® CL CL w C'J ko 4-j @ 0 \ E n n � m E / 0 n _ °-17 x .g / 5 3 0 E u \ '\ 4-1 o � � m 4 u E m LA 2 Co & E bn G= U i e -Uo E c .. � . \� 'x i = O @ � m @ LU u U ) • . �. w75 • .� �._ �. .. i .. �.,- .. a i 1 . • i .,.. � _. i • i • Y * w w t CY)�. .• • • • • c_. 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CJ C N ai E o E H m w d E O L^ v vN E c E- E w ¢ Z) o o C a in S tL- '°o z N U 2> u FA R OPON Ln cu tR ki I fl_ V � 0 � a 0 J •3 . Y p � 3 p c a S m E v .°u' v v o o ° m o aEi n �$o'Y =E c c rn va v CJ N y C E Q E c L m ° a�Q 41 p .0 N v_i a 8 O' C: c ° E ° : a ~ E O v v 0 m cc kA PREPARED FOR: Oregon Department of Transportation 77[rDorepartegon ment of Transportation Oregon Department of Transportation Don Morehouse DKS Associates John Bosket, PE Kayla Fleskes-Lane, PE Aaron Berger, PE Melissa Abadie HDR Inc. Andrew Johnson, PE Camille Alexander Stacy Thomas Will Hume, PE MIG Darci Rudzinski I® US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN > I!AY 2025 H ODOT wishes to acknowledge and sincerely thank the members of the Project Advisory Committee (comprised of the Community Advisory Committee and Technical Advisory Committee) whose guidance and feedback was critical to the development of this plan. COMMUNITY ADVISORY COMMITTEE • Greg Bryant, Deschutes River Woods Representative • Mike Tiller, Bend -La Pine School District • Henry Stroud, Bend Park and Recreation District • Bill Gregoricus, Central Oregon Coalition for Access • Greg Sublett, Abilitree TECHNICAL ADVISORY COMMITTEE • Peter Russell, Deschutes County • Andrea Napoli, Bend MPO • Damian Syrnyk, City of Bend • David Abbas, City of Bend • Scott Edelman, DLCD • Marcos Romero, US Forest Service • Rachel Zakem, Cascades East Transit • Andrea Breault, Cascades East Transit • Sgt. Nathan Garibay, Deschutes County Emergency Services Manager • Bill Boos, Bend Fire and Rescue • Chris Cheng, ODOT Active Transportation • David Roth, Deschutes County Bike/Pedestrian Advisory Committee • Court Priday, Riverwoods County Store • Rich Priday, Riverwoods Country Store • Rory Priday, Riverwoods Country Store • Ben Miller, Morning Star Christian School • Colin Wills, Arnold Irrigation District • Jim Cook, Homeless Leadership Coalition • David Hirsch, ODOT Traffic • David Warrick, ODOT Interchange Design • Jim Scholtes, ODOT District 10 • Jenn Cline, ODOT Roadway • Wade Coatney, ODOT Roadway • Bob Stolle, ODOT Rail • Theresa Conley, ODOT Transit • Dejan Dudich, ODOT Traffic Analysis • David Amiton, ODOT Planning • David Knitowski, ODOT Access Management © US 97 BAKER ROAC, AI�.FA hiF'. 'G_-v1EnF PLAIN - MAY 2025 M EXECUTIVESUMMARY .....................................................................................................................I................... 1 PHASE 1 - WEST SIDE IMPROVEMENTS - $14.8 million....................................................................................... 2 PHASE 2 - BRIDGE AND EAST SIDE IMPROVEMENTS - $23.2 Million..................................................................... 2 CHAPTER1. INTRODUCTION............................................................................................................................... 5 PROJECT PROBLEM AND PURPOSE............................................................................... 5 DEFINITION OF PROJECT AREA.................................................................................. 6 INTERCHANGEFUNCTION......................................................................................... 9 PROJECT AREA BACKGROUND INFORMATION............................................................... 10 LandUse.....................................................................................................................................................10 Demographicinformation...............................................................................................................................12 Environmental..............................................................................................................................................14 GOALS, OBJECTIVES, AND EVALUATION CRITERIA........................................................ 14 CHAPTER2. PROJECT PROCESS........................................................................................................................ 19 ADVISORY AND DECISION -MAKING GROUPS................................................................ 19 COMMUNITYENGAGEMENT...................................................................................... 20 CHAPTER 3. EXISTING AND FUTURE NEEDS.- .................. I ....... I ..... .................................................................. 21 SAFETY............................................................................................................. 21 WALKING AND BIKING........................................................................................... 24 ENTERING AND EXITING THE PARKWAY...................................................................... 28 FREIGHTOPERATIONS........................................................................................... 28 FUTURE LAND USE GROWTH AND BASELINE TRANSPORTATION ASSUMPTIONS ...................... 29 INTERSECTION OPERATIONS AND VEHICLE QUEUEING ................................................... 32 US97 Mainline Operations.............................................................................................................................32 IntersectionOperations.................................................................................................................................33 VehicleQueuing Analysis...............................................................................................................................35 CHAPTER 4. RECOMMENDED INTERCHANGE IMPROVEMENTS........................................................................... 38 PROCESS FOR DEVELOPING AND EVALUATING ALTERNATIVE CONCEPTS ............................. 38 PREFERRED ALTERNATIVE CONCEPT.......................................................................... 39 Preferred Concept Active Transportation Improvements.....................................................................................44 Transportation System Management Improvements...........................................................................................45 PHASING........................................................................................................... 45 Future Alternative 3 Improvements.................................................................................................................49 MHUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN E MAY 2025 iv ACCESS MANAGEMENT PLAN................................................................................... 52 AccessSpacing Standards..............................................................................................................................52 ExistingAccess Inventory...............................................................................................................................55 Access Management Key Principles and Methodology.........................................................................................63 AccessManagement Actions...........................................................................................................................65 TRANSPORTATION SYSTEM MANAGEMENT STRATEGIES ................................................... 68 •0 %J ZONING AND LAND DIVISION ORDINANCES................................................................ 71 FUNDINGSTRATEGIES........................................................................................... 71 MMUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN @ MAY 2025 V IFVWN�elTl A FIGURE 1: PREFERRED ALTERNATIVE FOR THE US 97 BAKER ROAD INTERCHANGE .................. 3 FIGURE2: STUDY AREA......................................................................................... 7 FIGURE 3: AREA OF POTENTIAL IMPACT AND AREA OF SOCIAL IMPACT ............................... 8 FIGURE 4: EVACUATION ROUTE SIGN ON BAKER ROAD ................................................... 9 FIGURE 5: COMPREHENSIVE PLAN DESIGNATIONS IN THE STUDY AREA ............................. 11 FIGURE 6: CENSUS BLOCK GROUPS IN AREA OF SOCIAL IMPACT ..................................... 13 FIGURE 7: VEHICLE STOPPING IN -LANE ON BAKER ROAD TO TURN LEFT ONTO US97 NORTHBOUND........................................................................................... 21 FIGURE 8: CRASHES WITHIN THE AREA OF POTENTIAL IMPACT (2014-2018) ...................... 23 FIGURE 9. PEDESTRIAN LEVEL OF TRAFFIC STRESS ..................................................... 26 FIGURE 10. BICYCLE LEVEL OF TRAFFIC STRESS......................................................... 27 FIGURE 11: PROJECTED HOUSING GROWTH (2014-2040) IN BEND ................................... 30 FIGURE 12: PROJECTED EMPLOYMENT GROWTH (2014-2040) IN BEND .............................. 31 FIGURE 13: FUTURE 2040 PM PEAK HOUR BASELINE (NO -BUILD) VEHICLE QUEUEING ........... 37 FIGURE 14: PREFERRED ALTERNATIVE CONCEPT......................................................... 40 FIGURE 15: CROSS SECTION OF THE BAKER ROAD OVERCROSSING OF US 97, FACING WEST (ASSUMES A ROUNDABOUT IS CONSTRUCTED AT THE NORTHBOUND RAMPS) .... 44 FIGURE 16: PREFERRED ALTERNATIVE RECOMMENDED PHASING ...................................... 47 FIGURE 17: PREFERRED ALTERNATIVE LONG-TERM OPTION ............................................ 50 FIGURE 18: US 97 BAKER ROAD IAMP ACCESS MANAGEMENT AREAS ................................ 56 FIGURE 19: EXISTING ACCESSES TO BAKER ROAD WEST OF US 97.................................. 57 FIGURE 20: EXISTING ACCESSES TO KNOTT ROAD EAST OF US 97.................................. 58 FIGURE 21: EXISTING ACCESSES TO US 97 NORTH OF BAKER ROAD ................................ 59 FIGURE 22: EXISTING ACCESSES TO US 97 SOUTH OF BAKER ROAD ................................ 60 Im US 97 BAKER ROAD INTcRCHANGE AREA MA^IAGEMEN f PlJAN MAY 2025 vi TABLE l: DEMOGRAPHIC INFORMATION WITHIN THE AREA OF SOCIAL IMPACT .................... 12 TABLE 2: US 97 BAKER ROAD IAMP GOALS, OBJECTIVES, AND EVALUATION CRITERIA .......... 15 TABLE 3: US 97 BAKER RD INTERCHANGE RAMP ACCELERATION AND DECELERATION LANE LENGTHS.............................................................................. 28 TABLE 4: CITY OF BEND POPULATION AND EMPLOYMENT FORECASTS ................................ 29 TABLE 5: FUTURE LAND USE ASSUMPTIONS FROM THE BEND TSP.................................... 32 TABLE 6: EXISTING (2017) AND FUTURE (2040) DESIGN HOUR BASELINE TRAFFIC OPERATIONS AT STUDY INTERSECTIONS....................................................... 34 TABLE 7: EXISTING (2017) AND FUTURE (2040) BASELINE INTERSECTION VEHICLEQUEUING.............................................................................................. 35 TABLE 8: RECOMMENDED INTERSECTION CONTROL AND LANE CONFIGURATION ................... 39 TABLE 9: PREFERRED ALTERNATIVE (ALTERNATIVE 1) FUTURE 2040 DESIGN HOUR TRAFFIC OPERATIONS.................................................................................. 43 TABLE 10: US 97 BAKER IAMP PREFERRED ALTERNATIVE PHASING RECOMMENDATIONS......... 48 TABLE 11: PREFERRED ALTERNATIVE LONG-TERM OPTION (ALTERNATIE 3) FUTURE 2040 DESIGN HOUR TRAFFIC OPERATIONS...................................................... 51 TABLE 12: INTERCHANGE AREA EXISTING ACCESS INVENTORY ....................................... 61 TABLE 13: ACCESS MANAGEMENT KEY PRINCIPLES AND METHODOLOGY ............................ 63 MEUS 97 BAKER ROAD INTERCHRNG P.'2FA MANAGEMENT FLA!" ;n2: vii The Oregon Department of Transportation (ODOT) prepared this Interchange Area Management Plan (IAMP) for the US 97 Baker Road interchange, located in Deschutes County approximately 1/2- mile south of the southern urban growth boundary (UGB) of Bend, Oregon. The purpose of IAMPs is to establish an agreement with local governments about what transportation solutions or land use/policy actions are needed in an interchange area and how to best implement those in a way that protects the intended function of the interchange and extends the life of significant investments in new transportation infrastructure. The US 97 Baker Road interchange was constructed in the early 1990s. At that time, its intended function was to serve the sparsely developed rural lands south of Bend and accommodate truck freight traffic passing between US 97 to the south and US 20 to the east via Knott Road and SE 27t" Street. The City of Bend's population is now nearly four times greater than it was when this interchange was constructed and the UGB has not only become much closer to the interchange, but is anticipated to abut it within the next 20 years. Over time, this increasing urban growth has resulted in congestion and safety problems in the US 97 Baker Road interchange area. The unsignalized ramp terminals on Baker Road and Knott Road experience excessive delays during peak travel periods. This congestion can get much worse when the nearby railroad crossing is closed for a passing train, with queues of vehicles observed backing down the ramps and into the highway. The closely spaced intersections of the southbound ramp terminal, Baker Court, and Cinder Butte Road, which surround the railroad crossing, create confusion and conflicts that have contributed to a high number of crashes. Additional safety problems have arisen from high-speed traffic approaching the interchange from Knott Road and limited accommodations for people walking or biking through the area. These problems are only anticipated to worsen in the future as housing and employment growth in Bend approaches the interchange over the next 20 years. In light of these problems, the purposes of the US 97 Baker Road IAMP are to: • Ensure the safe and efficient operation of the interchange area for all modes of travel through the 20-year planning horizon. • Identify transportation improvements, management strategies, and land use/policy actions needed to support planned development. The US 97 Baker Road IAMP was conducted over an approximately three-year period. It began by engaging affected parties to understand interchange needs followed by the development of goals, objectives, and evaluation criteria that align with the project purpose. The goals and objectives guided the development and evaluation of interchange alternative concepts before a preferred alternative was recommended for the interchange based on the feedback received from the public and direction from the Bend MPO Policy Board. The preferred alternative focuses on enhancing the existing ramp terminals to address the operational deficiencies along Baker Road, reducing the potential for queue spillback onto US 97, MM US 97 BAKER ;GOAD INTERCHANGE ANEA MANAGEI9ENT PLAN ® MAY 2025 eliminating turning conflicts between closely spaced intersections, and providing low -stress active transportation facilities to connect regional trails and support multimodal travel in an urbanizing area. The preferred alternative (described in more detail in Chapter 4 of this IAMP and shown in Figure 1 below) includes the following improvements totaling $38 million dollars' which are recommended to be implemented in two phases: PHASE 1 — WEST SIDE IMPROVEMENTS - $14.8 MILLION • US 97 southbound rates realignment and traffic signal and railroad crossing improvements: Realign the US 97 southbound ramp with Baker Court and signalize the intersection. This includes reconstruction of the BNSF railroad crossing and coordinating the railroad crossing with the new traffic signal. • US 97 acceleration and deceleration lanes: Lengthen the existing US 97 southbound on -ramp acceleration lane and US 97 southbound off -ramp deceleration lane. • Cinder Butte Road realignment and turn lanes: Realign Cinder Butte Road slightly to the west, construct westbound and eastbound left turn lanes and a northbound right turn lane (side -by - side left turn lanes on Baker Road between Cinder Butte Road and Baker Court). Improvements on Baker Road west of Cinder Butte Road would be to County standards. • Baker Road/Cinder Butte Road signalization: Construct a traffic signal and coordinate it with the railroad crossing and the new US 97 southbound ramp terminal signal. • Confirm intersection control for US 97 northbound ramp terminal: Confirm the intersection control for the US 97 ramp terminal through the affected parties engagement process for approval outlined in ODOT Highway Directive DES 02. The intersection control at the northbound ramp terminal will influence the design of Phase 1 elements. PHASE 2 — BRIDGE AND EAST SIDE IMPROVEMENTS - $23.2 MILLION • Baker Road bridge widening: Widen the existing Baker Road/Knott Road bridge over US 97 to accommodate the preferred concept (and added lanes if a signal is selected as the appropriate intersection control at the northbound ramps). Consider visual or physical gateway elements as part of the bridge design. • US 97 northbound roundabout ramp terminal: Install a roundabout at the US 97 northbound ramp terminal (assuming a roundabout is confirmed as the appropriate traffic control for this intersection) and the associated multi -use path undercrossings. • Multi -use path connections: Complete the multi -use path network, connecting the US 97 Bend to Lava Butte and Arnold Canal facilities. Realign Scale House Road: Realign Scale House Road to the east. While the preferred alternative is projected to function well through the 20-year planning horizon, it was agreed that the ability to implement a longer -term option (shown in Figure 17 on page 50) should be retained if growth exceeds expectations and sufficient funding becomes available. The longer -term option includes flyover ramps for US 97 southbound traffic so that all traffic to/from US 97 is served at a roundabout on the east side of the highway. 1 Based on 2021 dollars reflecting a 2029 year of expenditure. US 97 BAKER ROAC; I !IEi:CN 1;t, AREA MAN AGE 'AF I - PiAN - I,iF:v 101, In addition to the physical infrastructure improvements, several management actions are recommended in this IAMP to help preserve the function of the interchange and meet the goals and objectives of the IAMP. This includes transportation system management strategies (such as managing evacuation routes or reducing the posted speed limit) and an Access Management Plan, which sets a framework for managing existing private accesses and public streets and provides guidance for future development/redevelopment on area properties to ensure that the access on US 97, Baker Road, and Knott Road aligns with the access management Key Principles and Methodology (see page 52). This IAMP is organized into six chapters: • Chapter i — Introduction: This chapter defines the project problem and purpose, project area, interchange function and summarizes relevant background land use, demographic and environmental information within the project area. This chapter also documents the project goals, objectives, and evaluation criteria that were developed with input from key affected parties. • Chapter 2 — Project Process: This chapter lists the advisory and decision -making groups for the IAMP and documents how the input from these groups were used to help evaluate and refine the alternatives before selecting the preferred alternative. The process for broader community engagement and communication with affected parties is also documented in this chapter. • Chapter 3 — Existing and Future Needs: This chapter summarizes the existing and future deficiencies in the transportation system that influenced the development and evaluation of improvement concepts for the interchange. • Chapter 4 — Recommended Interchange Improvements: This chapter summarizes the process for developing and evaluating alternative concepts along with the preferred alternative for the US 97 Baker Road interchange. • Chapter 5 — Access Management Plan and Management Strategies: This chapter includes a collection of strategies to supplement the preferred alternative improvements that will help protect the public's investment and ensure the transportation system in the interchange area functions as intended through the planning horizon. • Chapter 6 — IAMP Implementation and Adoption: This chapter documents the steps needed for IAMP implementation and adoption. MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 2025 4 CHAPTER 1 XNTRQDUCTI0111 The Oregon Department of Transportation (ODOT) prepared this Interchange Area Management Plan (IAMP) for the US 97 Baker Road interchange, located in Deschutes County 1/2-mile south of the southern urban growth boundary (UGB) of Bend, Oregon. The purpose of IAMPs is to establish an agreement with local governments about what transportation solutions or land use/policy actions are needed in an interchange area and how to best implement those in a way that protects the intended function of the interchange and extends the life of significant investments in new transportation infrastructure. This chapter in the IAMP focuses on: • defining the project problem and purpose, • defining the project area, • describing the interchange function, • summarizing relevant background land use, demographic and environmental information within the project area, and • documenting the project goals, objectives, and evaluation criteria. The US 97 Baker Road interchange was constructed in the early 1990s. At that time, its intended function was to serve the sparsely developed rural lands south of Bend and accommodate truck freight traffic passing between US 97 to the south and US 20 to the east via Knott Road and SE 27th Street. The City of Bend's population is now nearly four times greater than it was when this interchange was constructed and the UGB has not only become much closer to the interchange but is anticipated to abut it within the next 20 years. Over time, this increasing urban growth has resulted in congestion and safety problems in the US 97 Baker Road interchange area. The unsignalized ramp terminals on Baker Road and Knott Road experience excessive delays during peak travel periods. This congestion can get much worse when the nearby railroad crossing is closed for a passing train, with queues of vehicles observed backing down the ramps and into the highway. The closely spaced intersections of the southbound ramp terminal, Baker Court, and Cinder Butte Road, which surround the railroad crossing, create confusion and conflicts that have contributed to a high number of crashes. Additional safety problems have arisen from high-speed traffic approaching the interchange from Knott Road and there are limited accommodations for people walking or biking through the area. These problems are only anticipated to worsen in the future as housing and employment growth in Bend approaches the interchange over the next 20 years. MEU5 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN - MA',' 202E .a In light of these problems, the purposes of the US 97 Baker Road IAMP are to: • Ensure the safe and efficient operation of the interchange area for all modes of travel through the 20-year planning horizon. • Identify transportation improvements, management strategies, and land use/policy actions needed to support planned development. DEFINITION OF PROJECT AREA There are three different types of "project areas" defined for the US 97 Baker IAMP, each with a different purpose. The Study Area is defined as the area within which changes in land use would have measurable effects on traffic volumes at the US 97 Baker Road interchange. A map of the Study Area is provided in Figure 2. The Study Area is much larger than the other project areas described below, as the boundaries were influenced by the proximity of the interchange to areas where significant future housing and employment growth are expected, the locations of likely origins and destinations for trips associated with those areas, and the street network available to serve them. Future growth immediately to the northeast and further east out to SE 27t" Street is expected to have the greatest impact. The Area of Potential Impact (API), shown in Figure 3, is defined as the area within which transportation improvements proposed through the IAMP are located. This could include a reconfigured interchange or new streets in the surrounding area to improve connectivity such that local east -west trips would not have to drive through the interchange. The Area of Social Impact (ASI), also shown in Figure 3, is defined as the area within which live the people who will be most affected by transportation improvements and management strategies proposed through the IAMP. Demographics of the people within this area are further described later in this chapter. Twelve Study Intersections, also shown in Figure 3, were evaluated to help understand existing and future transportation needs within the API. MaUS 97 BAKER RiiAD ir!rt_fr At L,'a MA �AGI_P9FP i!�":� '�):';: 6 FIGURE 2: STUDY AREA MMUS 97 BAKER ROAD INTERCHANG= AREA MANAGEMENT PLAN! - MAY 2025 DKS INTERCHANGE FUNCTION Through the interchange area, US 97 is classified by ODOT as a Statewide Highway and is further designated as an expressway, state freight route, reduction review route, and high clearance route. Therefore, the primary functions of US 97 are to provide safe and efficient, high-speed and high -volume traffic movement, inter -urban and inter -regional mobility, connections to larger urban areas and major recreation areas not directly served by an Interstate Highway, facilitate efficient and reliable interstate, intrastate, and regional truck movement, and provide adequate vertical clearance for oversize loads. Baker Road and Knott Road are classified as Rural Arterials by Deschutes County (Knott Road is also classified as a minor arterial by Bend within the UGB). The intended function of Rural Arterials is to provide FIGURE 4: EVACUATION ROUTE links to cities and other major traffic generators, as SIGN ON BAKER ROAD well as interregional and intercounty service. Rural arterials serve the more important intra-county travel corridors, and are secondary routes for the movement of goods and services. Baker Road is also identified as a Project Wildfire Evacuation Route (see Figure 4) and serves as one of the few routes out of the Deschutes River Woods neighborhood. The US 97 Baker Road interchange was designed to serve a rural environment but is increasingly serving urban land uses. Most of the area surrounding the interchange is zoned by Deschutes County as Rural Residential (RR10). There is a small area in the southwest quadrant of the interchange zoned Rural Commercial (RC), which is developed with the Riverwoods Country Store and includes a convenience store, gas station, espresso stand, and restaurants. Just south of this commercial development, but also accessed via Baker Court, is Morning Star Christian School. However, the Bend UGB is less than a mile north of the interchange and the City anticipates a significant amount of future residential, industrial, and commercial growth over the next 20 years. Currently, the US 97 Baker Road interchange provides the only crossing of US 97 for about two miles (Murphy Road provides the next crossing to the north). Considering the residential development to the west and the mix of existing and future land uses to the east, another important function of this interchange is to provide east -west connectivity for the surrounding area. MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN - MA'( <OJ_ 9 PROJECT AREA BACKGROUND INFORMATION To help identify interchange needs, adjacent land use, environmental, and demographic data was collected. The following summarizes existing data. LAND USE Technical Memorandum #2A: Land Use Existing Conditions in Volume 2 documents existing land use and comprehensive plan designations within the Study Area. As shown in Figure 2, the Study Area is located along the border of the City of Bend and Deschutes County and includes areas within the Bend Urban Growth Boundary (UGB), and within Bend city limits. The City manages land located outside city limits but inside the UGB pursuant to an intergovernmental agreement with Deschutes County. All land located outside the UGB is subject to Deschutes County land use and development regulations. City of Bend Comprehensive Plan As shown in Figure 5, the western portion of the Study Area subject to the City's land use regulations is primarily designated as Standard Density Residential (RS), which provides for housing types compatible with single-family homes, and Low -Density Residential (RL), which provides for low -density residential development with a maximum of approximately four dwellings per acre. The area located immediately west of US 97 and north of the project interchange is designated a mix of General Commercial (CG), Mixed Employment (ME), Public Facilities (PF), Mixed Neighborhood (MN), High -Density Residential (RH), Medium Density Residential (RM), and Low - Density Residential (RL) designations. The area east of US 97 and south of China Hat Road is a mix of CG, ME, CC, Industrial Light (IL), and RS designations. The area east of US 97 and north of China Hat Road is primarily designated RS, though the large area between US 97 and Country Club Drive mostly consists of the Lost Tracks Golf Course today. Some areas to the north and south of this central portion are designated RL. The 2016 decision to expand Bend's UGB included designating ten expansion areas, four of which are in the Study Area: • The Southwest Expansion Area south of the city limits and west of US 97. This area is expected to provide 240 future housing units and 80 future jobsz, largely with RS, RM, RH, and Mixed -Use Neighborhood (MN) and Commercial Limited (CL) designations. • The "Thumb" Expansion Area south of city limits and east of US 97 (between Knott Road, China Hat Road, and US 97). This area is projected to supply 266 future housing units and 1,573 future jobsz. The planned designations in this area include CG, CC, IL, ME, RS, RM, and RH. Z Bend Urban Growth Boundary Implementation Return on Investment Analysis, Table 2 http://bend.granicus.com/MetaViewer.php?view id=9&clip id=424&meta id=23134 US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 2025 10 The Southeast Expansion Area (previously referred to as the "Elbow") in the southeast corner of the UGB south of Ferguson Road and east of SE 15th Street. This area is projected to include 1,230 new housing units and 2,800 future jobs3 with RM, RH, CG, ME and IL designations. The Stevens Road Tract and Stevens Ranch Master Plan Areas south of Reed Market Road and east of SE 27th Street and south of Stevens Road. The currently vacant area is anticipated to provide for 1,001 future housing units and 880 future jobs'. Planned destinations here include IG, RS, RH, RM, CL, and CG. Baker Rd. IAMP: Comprehensive Plan Designationso Bend City Limits i..�. ,'-j Commercial Llmitxd (CL) Nbhe Nti itics (PF) Deschutes County Deli jnaUOn j UGB Industr al General (IG) Res. High Densty (RM) Agncultuie (AG) i Industral 'Light (IL) Res. Low Density (0.L) Forest [Study A(Ed S Mixed Fmpinynwnt(MF) Res. Mednim-)mfty(RM) Rural Commefcial (RC) Bend Designation Mixed Neighbo-hood (MN) I Res. Standard Densty (IRS) _ Rums Res. Exception Area (RREA) Commercial Convenlence (CC) i Mixed Riverfront (MR) Surface Minig (SM) Commen ial Ge ral (CG) =Mixed Urban (MU) ""` Urban Reserve Area (URA; FIGURE 5: COMPREHENSIVE PLAN DESIGNATIONS IN THE STUDY AREA s Bend Southeast Area Plan Summary Report, February 2021, pg. ES-2: https://www,bendoregon.gov/home/showpublisheddocument/48999/638144923125930000 � Miles N 3 Source: City of Bend and Deschutes County GIS Data MMUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT P1AN - 20,25 11 DEMOGRAPHIC INFORMATION Table 1 presents the data related to the population in the Census block groups partially included in the area of social impact (shown in Figure 6), as well as data for Deschutes County and the State of Oregon for comparison. The Environmental Protection Agency's (EPA) Promising Practices for EJ Methodologies in NEPA4 notes that when the percentage of low-income or minority populations in a selected geographic unit (i.e., Census block group) exceeds that of a reference community (e.g., state or county) by a reasonable subjective threshold, it constitutes a "meaningfully greater" low-income or minority population for purposes of environmental justice assessments. In this assessment, the county is used as the reference population and the "meaningfully greater" threshold is 150% of the reference population. As shown in Table 1, several block groups have a meaningfully greater proportion of low-income and elderly population. As some of the study area's block groups have higher proportions of low-income and elderly populations, it is important to consider the equity impacts of this project on these populations. TABLE 1: DEMOGRAPHIC INFORMATION WITHIN THE AREA OF SOCIAL IMPACT BLOCK GROUP BLOCK GROUP BLOCK GROUP DESCHUTES STATE OF 410170004011 410170020001 410170021004 COUNTY OREGON (2013-2017 ACS ESTIMATES) (2019 ACS ESTIMATE) POPULATION 3,254 995 1,831 175,321 4,217,737 SIZE (SQ MILES) 41.44 1.84 1.62 3,054 98,466 MINORITY 11% 5% 3% 13% 25% LOW-INCOME 30% 11% 31% 9% 34% OVER 65 9% 43% 16% 21% 18% Source: EISCREEN online tool https://ejscreen.epa.gov/mapper/ and U.S. Census Quick Facts https://www.census,govlquickfactsldeschutescountyoregon Transit serves a small portion of the area of social impact. Cascades East Transit's Bend -La Pine intercity bus Route 30 has a stop at Riverwoods Country Store at the intersection of Baker Court and Baker Roads. This limited transit service, which only serves the study area's stop three times per day, leaves area residents with few transit options. 4 https://www.epa.gov/sites/default/files/2016-08/documents/nepa_promising_practices_document 2016.pdf 5 https://cascadeseasttransit.com/ride/la-pine,-Lend-route-30/ MUS 97 BAKER ROAD A t_A ;,. ;,`MENT PLAN a MAY C,?5 12 FIGURE 6: CENSUS BLOCK GROUPS IN AREA OF SOCIAL IMPACT Mm U5 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT F'LAPi , M,+Y 2025 13 ENVIRONMENTAL Oregon's Statewide Planning Goal 5 (OAR 660-015-000(5)) is intended to protect natural resources and conserve scenic and historic areas and open spaces. An inventory of environmental resources within the API was conducted based on the six resource categories identified in Goal 5. There are no landscape management rivers or streams in the API or other areas of open space and scenic views identified in the Goal 5 inventory. There are no Goal 5 inventoried wilderness areas, ecologically and scientifically significant natural areas, or recreation trails within the API. The API does not include any of the cultural and historic resources identified in the Goal 5 inventory. The API includes several wetlands, including a National Wetland Inventory (NWI)-mapped wetland (the Arnold Canal), which derives water from the Deschutes River to support agriculture6. This wetland is described as an intermittent, seasonally flooded, riverine wetland. There are no mapped riparian areas adjacent to the canal. The other wetlands in the API, are mapped in the Oregon Local Wetland Inventory (LWI)7. They appear as open water ponds in online aerial photos and are listed as "non -significant wetlands." Based on a review of the US Fish and Wildlife Information for Planning and Consultation database$, no designated critical habitat of any species listed as threatened or endangered under the Endangered Species Act is present in the API. However, the southern end of the API overlaps the federally threatened Oregon Spotted Frog's range9, so care should be taken during any construction work affecting wetlands in the area. Furthermore, US 97 through Bend is designated a hotspot for deer collisions, averaging 5 to 10 per year. US 97 within the API has had reports of 28 deer collisions between 2010 and 2020, which averages to fewer than three per year. Topography of the API is gently sloped, rising from elevations of approximately 3,860 feet at the northern end of the API to 3,940 feet near the southern end of the API. There are no steep or unstable slopes in the API. GOALS, OBJECTIVES, AND EVALUATION CRITERIA The project goals, objectives, and evaluation criteria are provided in Table 2. A goal is an overarching principle or a broad statement of intent that informs the range of possible transportation solutions and guides decision -making. Objectives are more specific and relevant steps that are taken to meet the goal, while the evaluation criteria assess how well those objectives would be met by the alternatives considered. 6 https://fwsprimary.wim.usgs.gov/wetlands/apps/wetlands-mapper/ 7 https://www.oregon.gov/dsl/ww/Pages/Inventories.aspx ° https://Ipac.ecosphere.fws.gov/ 9 https://ecos.fws.gov/ecp/species/6633 Us 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT FLAN - MAY 2025 14 The goals, objectives, and evaluation criteria were developed with consideration to the project problem, purpose, and interchange function previously described, as well as the goals, objectives, and evaluation criteria from other similar projects in the area such as the US 97 Parkway Plan and the US 97 Bend North Interchange Study. They were refined through discussions with the Project Advisory Committee (made up of the Technical Advisory Committee and Community Advisory Committee) and Executive Steering Committee. The resulting goals, objectives, and evaluation criteria for the US 97 Baker Road IAMP guided the development of solutions for the interchange area and were used to demonstrate how well improvement alternatives would meet the purpose of the project and the values of affected parties. The goals and objectives have been numbered to facilitate referencing, but no weighting has been applied and the order is not an indication of relative importance. TABLE 2: US 97 BAKER ROAD IAMP GOALS, OBJECTIVES, AND EVALUATION CRITERIA GOALS/ OBJECTIVES EVALUATION CRITERIA GOAL 1. PROVIDEits EFFICIENT TRAVEL THROUGH INTERCHANGE RBASED ON PLANNED LAND USES IN THE AREA. Objective A. Provide for efficient travel for regional through traffic along US 97. Meets ODOT's adopted mobility standards for US 97 through the planning horizon. Meets ODOT's adopted mobility standards at the US 97 ramp terminals with Baker Road and Knott Road through the planning horizon. Objective B. Provide for efficient travel on the local Meets Deschutes County and City of Bend mobility roadway system in the interchange area. standards for local system study intersections through the planning horizon. GOAL 2. IMPROVES SAFETY FOR ALL MODES OF TRAVEL. Objective A. Reduce the frequency and severity of crashes for all modes with an emphasis on severe and fatal injuries. Objective B. Move in the direction of meeting ODOT's adopted access spacing standards along US 97, Baker Road, and Knott Road, or meet the standards where feasible. Reduces the frequency and severity of crashes, as assessed through analysis of crash data and use of Crash Modification Factors. Minimizes conflicts and risk factors that could lead to crashes. Enhances safety for vehicular and non -motorized modes of transportation at rail crossings. Meets or improves access spacing pursuant to ODOT's adopted access spacing standards. EmU5 97 BAKER ROAD INTERCHANGE AREA, WNAGEMENT PI -AN s MAY 2025 15 GOALS/ OBJECTIVES EVALUATION CRITERIA GOAL 3. SUPPORT REGIONAL AND LOCAL ECONOMIC DEVELOPMENT. Objective A. Maintain access to properties along Maintains accessibility to properties consistent with the baker road and Knott Road in a manner that documented needs of existing land uses and supports the economic development objectives of anticipated potential needs of future uses based on Comprehensive Plan designations. existing and future businesses consistent with the Deschutes County and Bend Comprehensive Plans. Objective B. Develop an interchange design that Proposed interchange geometry, such as curves, facilitates truck freight movement along US 97 and clearances, and grades, accommodates trucks and to and from destinations to the east. oversize vehicles. Objective C. Allow for safe and uninterrupted Based on qualitative criteria, reduces potential service on the Burlington Northern Santa Fe conflicts with the rail crossing on Baker Road. railroad. GOAL 4. FACILITATE THE USE OF MULTIMODAL TRAVEL OPTIONS. Objective A. Provide low -stress walking and biking Based on qualitative criteria, enhances the quality of facilities that create east -west connectivity walking and biking facilities. through the interchange area. Reduces the level of traffic stress for people walking and biking. Increases the number of grade -separated US 97 crossings provided in the Area of Potential Impact for people walking and biking. Objective B. Identify where planned trails in the Based on qualitative criteria, enhances trail system interchange area can be safely connected and completeness and quality of connections. accessed. Objective C. Accommodate long-term connectivity Incorporates the alignment of the proposed US 97: to the south. Baker/Knott Road to Lava Butte Multi -Use Path and connects it to the walking and biking network in the interchange area. Objective D. Support future enhancements to Can accommodate planned transit service Cascades East Transit service. improvements and expansions. Provides safe walking and biking access to transit. GOAL S. DEVELOP THE PROJECT TO SUPPORT THE COMMUNITY'S VALUE OF EQUITY. Objective A. Provide an equitable decision -making Historically underrepresented community members process that encourages participation by all. within the Area of Social Impact were invited to participate in the project. (This will be used to evaluate the project process, but not individual alternatives.) Im US 97 BAKER ROAD INTERCHANGE AREA MANAGEME4T. i-i.F,r! - Iv'."+l "_G I6, GOALS/ OBJECTIVES EVALUATION CRITERIA Feedback from historically underrepresented community members indicates they were able to participate in the process. (This will be used to evaluate the project process, but not individual alternatives.) Objective B. Achieve a just allocation of burdens Impacts to properties owned, used by, or accessed by and benefits among community members. historically underrepresented community members are proportionate to those of other populations. GOAL 6. PRACTICE GOOD STEWARDSHIP OF THE ENVIRONMENT. Objective A. Reduce vehicle emissions through Assessment of reductions in vehicular delay and reduction of vehicular delay, improved connections vehicle -miles traveled, as well as improvements in the local system, and the use of alternative supporting walking, biking, and use of transit. travel modes. Objective B. Minimize impacts on resource lands. Minimizes impacts on land designated for natural resources, scenic and historic areas, and open spaces. Objective C. Minimize adverse impacts on wildlife. Recommendations minimize or avoid impacts to wildlife habitat and safety. GOAL 7. DEVELOP SOLUTIONS THAT ARE CONSISTENT WITH THE ESTABLISHED SHARED CORRIDOR VISION AND ADOPTED STATE AND LOCAL PLANS. Objective A. Create a US 97 corridor that is Recommendations are compatible with those from the compatible with the recommendations from the US US 97 Parkway Plan and Bend to Lava Butte 97 Parkway Plan and Bend to Lava Butte Refinement Plan. Refinement Plan. Objective B. Ensure compatibility with future Traffic forecasts and connectivity improvements in the planned growth in Bend's opportunity areas and Area of Potential Impact account for the impact of housing and employment growth in Bend's opportunity expansion areas. areas and expansion areas. Objective C. Consider the visual sequence of Can accommodate or does not compete with visual project elements as an entry/exit node to the city and physical gateway elements to south Bend. of bend. Objective D. Support the action plan in the greater Recommendations maintain or enhance access and bend community wildfire protection plan to evacuation routes for the Southwest and Southeast enhance community safety. Communities. GOAL B. DEVELOP IMPLEMENTABLE SOLUTIONS FOR THE INTERCHANGE AREA. Objective A. Minimize impacts on resource lands. Minimizes impacts on land designated for natural resources, scenic and historic areas, and open spaces. amUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT ?LAN ® MAY 2Q211 17 GOALS/ OBJECTIVES EVALUATION CRITERIA Objective B. Ensure public funds are invested efficiently and effectively, and solutions are fiscally responsible. Based on qualitative criteria, solutions are effective at addressing goals and objectives compared to costs and would reasonably fit within funding expectations for project partners. Objective C. Develop solutions that can be Solutions can be implemented incrementally in implemented in phases. functional phases. Objective D. Develop a design that is constructable and could be reasonably maintained Minimizes the number of potential design exceptions. Is easily constructable with regard to rail impacts and ability to maintain traffic. Does not create maintenance challenges. smUS 97 BAKER ROAD I N i f R1 1 -�NGE ARi=A ILIA j 'IEr� Z I F PL.iAN o MP, _CZ 18 Ct�APTER �PR07��T PROG�SS The US 97 Baker Road IAMP was conducted over an approximately three-year period. It began by engaging affected parties to understand interchange needs followed by the development of goals, objectives, and evaluation criteria that align with the project purpose. The goals and objectives guided the development and evaluation of interchange alternative concepts before a preferred alternative was recommended for the interchange. The following sections describe the advisory and decision -making groups that were utilized for this project as well as the broader community engagement activities that were undertaken. Chapter 4 describes the process for developing and evaluating alternatives in more detail. The planning process for this IAMP included two advisory bodies which made up the Project Advisory Committee (PAC): the Technical Advisory Committee (TAC) and Community Advisory Committee (CAC). The PAC consisted of members that represented the following groups: Abilitree • Arnold Irrigation District • Bend -La Pine School District • Bend Parks & Recreation District • Bend Community Development Department • Bend Metropolitan Planning Organization • Bend Transportation and Mobility Department • Bend Fire & Rescue • Cascades East Transit • Central Oregon Coalition for Access Department of Land Conservation and Development • Deschutes County Community Development • Deschutes River Woods • Deschutes County Emergency Services • Deschutes County Bike/Pedestrian Advisory Committee • Homeless Leadership Coalition • Morning Star Christian School • Oregon Department of Transportation • Riverwoods Country Store • US Forest Service The PAC was an advisory body that provided recommendations throughout the IAMP process. The Bend MPO Policy Board acted as the project Executive Steering Committee (ESC), which had ultimate decision -making authority and provided direction at key milestones. The Bend MPO Policy Bord is comprised of members representing Bend City Council, Deschutes County Board of Commissioners, and the Oregon Department of Transportation. MEUS 97 BAKER ROAD INTERCHANGE AREA iM/S,!,;AGE1\1ENT PLAN ® MAY 202'i 19 COMMUNITY ENGAGEMENT In addition to the advisory and decision -making groups, input was sought from other community members through two online open houses and two virtual public meetings. The first round of outreach was conducted in June 2021, and focused on receiving input on the project goals and objectives, issues needing to be addressed, and preliminary interchange concepts. The second round of outreach was conducted in November 2021, and focused on receiving feedback on the top three alternatives for interchange improvements. The project received a total of 497 unique visitors to the two online open houses and 46 survey responses. At the two virtual public meetings, a total of 42 people participated with 10 public meeting comments/questions received. Other public engagement consisted of a regularly updated project website, interested party emails and media releases sent via GovDelivery to over 6,700 recipients, and 7,315 postcards mailed to project area neighbors announcing both the online open house and online meetings. Both online open houses were also covered by local news stations. In addition to the outreach listed above, the access management Key Principles and Methodology were shared with local property owners (in accordance with OAR 734-051-7010). MEUS 97 BAKER ROAD INTERCfiANGE AREA 1,11,VAGCMENT ! L/xf,� - 11!1;Y 202E 2a CHApTER 3 EX�STIN,G ,AIyD SUTURE NEEDS �: Technical Memorandum #2B: Existing Transportation System Inventory and Technical Memorandum #3: Current Transportation System Operations in Volume 2 document the detailed analysis of existing conditions and transportation deficiencies. Technical Memorandum #4: Future Baseline (No -Build) Conditions in Volume 2 documents the detailed analysis of conditions expected in the year 2040 if no improvements are made in the interchange area. This chapter summarizes the existing and future needs that influenced the development and evaluation of improvement concepts for the interchange. The main needs relate to safety, walking and biking level of traffic stress, ability to safely enter and exit the Parkway, freight operations, future land use growth, intersection operations, and vehicle queuing. SAFETY Safety concerns within the API were identified through an examination of risk factors and historical crash data. Risk factors include characteristics of the transportation system that may contribute to the increased likelihood of a crash occurring. Several risk factors identified include: • Closely spaced intersections: intersections near the US 97/Baker Road southbound ramp terminal, including Baker Court and Cinder Butte Road, which surround the railroad crossing and create confusion and conflicts. • Railroad crossing: vehicles have been observed to queue back along the US 97/Baker Road southbound ramp and onto the highway when the railroad crossing is closed. • Lack of dedicated left turn lanes: when a driver stops to wait for an acceptable gap to make a left turn off Baker Road/Knott Road, all traffic following the driver must stop as well (as shown in Figure 7), increasing the likelihood of both rear -end crashes and turning/angle crashes. FIGURE 7: VEHICLE STOPPING IN -LANE ON BAKER ROAD TO TURN LEFT ONTO US 97 NORTHBOUND • High speeds: High speeds approaching the interchange from Knott Road increase the stopping sight distance required after a driver perceives a danger and may increase the degree of crash severity. • Lack of separation from traffic for people walking and biking: the existing walking and biking facilities are next to high-speed traffic and, while shoulders are available in some areas, there is a lack of dedicated sidewalks and bike lanes. I® US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN a MAY 2025 2 Crash data from the most recent five-year period available (2014 to 2018) was obtained from ODOT's Crash Analysis and Reporting unit for the ten study intersections within the API. Over the five-year period analyzed, there were 108 crashes. Of those crashes, 75 were flagged as intersection crashes. Along the segment portion of US 97, there were 25 crashes. The remaining eight crashes were located along the segment portions of Baker Road, Knott Road, and China Hat Road. Crashes within the API are mapped in Figure 8. Most crashes reported were rear -end crashes caused by drivers failing to avoid the driver ahead and following too closely, turning movement crashes caused by drivers failing to yield the right-of- way, and fixed object crashes caused by drivers driving too fast. It should be noted that there was one pedestrian crash located at the intersection of US 97/Ponderosa Street/China Hat Road that resulted in a minor/possible injury. There were no crashes resulting in fatalities reported from 2014 to 2018. However, there were crashes resulting in serious injury. One was located along the segment portion of US 97 just south of the Baker Road/Knott Road interchange, one was located at the intersection of US 97/Ponderosa Street/China Hat Road, and one was located at the intersection of China Hat Road/Knott Road. Two of the serious injuries were caused by rear -end crashes and the third was caused by a driver hitting a fixed object. Crash rate analysis was completed for study intersections and roadway segments within the API, with the results compared to rates observed for similar facilities to identify where the frequency of crashes occurring may be higher than should be expected. Intersections and segments were flagged as safety focus areas if observed crash rates surpassed the accepted rates. Six intersections were flagged as safety focus areas. These intersections include: • Baker Road/Apache Road — While this intersection was flagged as a potential safety focus area based on the crash rate analysis, there were only three reported crashes between 2014 and 2018. This included two rear -end crashes and one turning crash on Baker Road with no apparent pattern. • Baker Road/Cinder Butte Road — There were nine reported crashes at this intersection with the majority of the crashes involving rear -end (three) or turning (three) collisions. Most crashes occurred along Baker Road, but a few did occur on the side streets of Cinder Butte Road and Pocahontas Lane. There were no consistent trends or contributing factors for crashes at this intersection, but some turning movement and rear -end crashes may be caused by the lack of exclusive left turn lanes on Baker Road. • Baker Road/Baker Court — There were 13 crashes reported at this intersection, with eight of those involving turns out of Baker Court (six with left turns from Baker Court and two with right turns from Baker Court). Four of the remaining five crashes involved rear -end collisions on Baker Road. Contributing factors for many of these crashes could be closely spaced intersections causing confusion, long delays when exiting Baker Court encouraging drivers to accept smaller gaps in traffic, and lack of an exclusive left turn lane on Baker Road. MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMI:Nl PLAN d MAY �925 22 FIGURE 8: CRASHES WITHIN THE AREA OF POTENTIAL IMPACT (2014-2018) BEUS 97 BAKER ROAD INTERLNANGIE AREA MANAGEMENT PLAN ® MAY -,*O 5 23 Baker Road/Knott Road/US 97 Southbound Ramps — There were 11 reported crashes at this intersection, including four eastbound rear -end crashes on Baker Road, three southbound rear -end crashes on the US 97 off -ramp, two turning crashes involving left and right turns from the off -ramp, and two other crashes of various types. Contributing factors for many of these crashes could be closely spaced intersections causing confusion, long delays when turning from the off -ramp encouraging drivers to accept smaller gaps in traffic, and lack of an exclusive left turn lane on Baker Road. Knott Road/US 97 Northbound Ramps — There were 13 reported crashes at this intersection, including six rear -end crashes (three on eastbound Knott Road, two on the northbound off -ramp, and one on westbound Knott Road), five turning crashes (all left turns coming from the off -ramp), and two crashes into the guardrail. Contributing factors for many of these crashes could be the lack of an exclusive eastbound left turn lane on Knott Road, long delays when turning from the off -ramp encouraging drivers to accept smaller gaps in traffic, and high speeds. Knott Road/China Hat Road — Most of the reported 11 crashes were classified as turning movement and angle crashes caused by drivers failing to yield the right-of-way. The long delays experienced on stop -controlled approaches may be increasing the likelihood of these types of crashes. Furthermore, there is a horizontal curve in Knott Road to the east that limits sight distance from the southern stopped approach to approximately 375-400 feet. By comparison, the desired intersection sight distance for safe operation is 500 feet (assuming a design speed of 45 mph) and the minimum distance needed for an oncoming vehicle on Knott Road to safely stop is 360 feet10. Therefore, this horizontal curve and limited sight distance could be another contributing factor in the crashes occurring at this location. In addition to individual intersections, crash rates for segments of the US 97 study corridor were analyzed to identify potential problem areas. However, while crashes have occurred, the rate of crashes was well below the statewide average rate of crashes for similar facilities and there were no locations with notable Safety Priority Index System (SPIS) ratings. WALKING AND BIKING While common for rural areas, there are currently no sidewalks or bike lanes on any of the roads near the interchange and many of the shoulders are narrow and/or unpaved. There are no marked crosswalks or ADA accessible facilities near the interchange. Within the rest of the API, there are limited sidewalks and bike lanes along China Hat Road, but no other pedestrian or bicycle facilities. For roadways that are uncurbed with vehicle speeds greater than 25 miles per hour, Deschutes County standards" indicate a shoulder bikeway should be at least four feet in width. Deschutes County does not require sidewalks outside of the unincorporated communities of Terrebonne and Tuma1012. 10A Policy on Geometric Design of Highway and Streets, 7th Edition, American Association of State Highway and Transportation Officials (AASHTO), 2018. " Deschutes County Code 17.48.140 12 Deschutes County Transportation System Plan I® US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 2025 24 Since much of the API is sparsely developed today, trip origins and destinations are far apart, making walking and biking trips less feasible. In addition, US 97 and the railroad act as barriers to east -west travel for people walking and biking. However, the Baker Road interchange provides one of the few grade -separated crossings of US 97 for people walking and biking and is identified as a County Bikeway by the Deschutes County TSP. When development of the "thumb" area occurs, use of Baker Road as a grade -separated crossing of US 97 will continue to increase for people walking and biking. The Level of Traffic Stress (LTS) was analyzed for pedestrian and bicycle facilities in the API using the methodology from the ODOT Analysis and Procedures Manual13. This methodology breaks road segments into four classifications to qualitatively rate the effects of traffic -based stress on people walking and biking. The measure of traffic stress quantifies the perceived safety issues stemming from physical distance to traffic and traffic speed. The four levels of stress are described below: • LTS 1 (lowest): Represents little traffic stress and requires less attention, so is suitable for bicycling for all ages and abilities. • LTS 2 (low): Represents little traffic stress but requires more attention than young children can handle, so is suitable for teens and adults bicycling with adequate bike handling skills. Traffic speeds are slightly higher, but speed differentials are still low, and roadways can be up to three lanes wide in total for both directions. LTS 3 (medium): Represents moderate stress and is suitable for most observant adult bicycling. Traffic speeds are moderate but can be on roadways up to five lanes wide. LTS 4 (high): Represents high stress and is suitable only for experienced and skilled people on bicycles. Traffic speeds are moderate to high and can be on roadways from two to over five lanes wide. Intersections can be complex, wide, and or high volume/speed and can be perceived as unsafe or difficult to cross by adults. For this analysis, the mainline of the US 97 corridor, Baker Road, Knott Road, and China Hat Road within the study area were analyzed, as well as key crossing locations. The results of the LTS analysis for people walking and biking are illustrated in Figure 9 and Figure 10. The speed of the adjacent traffic is a major factor in this analysis, so corridors with lower posted speeds tend to have more favorable ratings, while corridors with higher posted speeds (over 35 mph) tend to have less favorable ratings. Along US 97 and Baker Road, the LTS is high due to the lack of sidewalks and bicycle lanes. The LTS analyses also consider the difficulty of crossing streets (at intersections between collectors and arterials only). As shown in Figure 9 and Figure 10, all intersections have high levels of stress for people walking and biking except for the intersection of China Hat Road and Parrell Road, which exhibits medium traffic stress due to the lower motor vehicle volume entering the intersection. 13 https://www.oregon.gov/odot/Planning/Pages/APM.aspx US 97 BAKER ROAD INTERCHANGE AREA MANAGFMFhlf PLAN w VA'; r 25 FIGURE 9. PEDESTRIAN LEVEL OF TRAFFIC STRESS mmUS 97 BAKER ROAD INTEkC,;ANGE. AREA MAN.",i EMENT PLAN o MAY 20%'S 26 FIGURE 10. BICYCLE LEVEL OF TRAFFIC STRESS meUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN MAY ?07.5 27 ENTERING AND EXITING THE PARKWAY ODOT's Highway Design Manual (HDM) provides standard lengths for acceleration and deceleration lanes at interchange rampS14. The southbound off -ramp and northbound on -ramp deceleration and acceleration lane lengths are longer than the minimum lengths required as shown in Table 3. However, the northbound off -ramp deceleration lane length is 30 feet shy of meeting the minimum standard length, and the southbound on -ramp, which is a loop ramp with a much lower ramp speed than the northbound on -ramp, has an acceleration lane that is 400 feet shorter than the minimum length. Ramps significantly shorter than recommended lengths, such as the southbound on -ramp, could contribute to safety concerns within the area. TABLE 3: US 97 BAKER RD INTERCHANGE RAMP ACCELERATION AND DECELERATION LANE LENGTHS POSTED POSTED HDM MINIMUM EXISTING ACCEL./ RAMP TYPE MAINLINE RAMP ACCEL./ DECEL. LANE DECEL. LANE LENGTH SPEED SPEED LENGTH (FT) (FT) (MPH) (MPH) US 97 SB TO Off -Ramp 65 45 340' 420' BAKER RD BAKER RD TO On -Ramp 65 25 1350' 950, US 97 SB US 97 NBTOOff-Ramp 65 45 340' 310' KNOTKNOTT RD TO On -Ramp 65 55 580' 735' US 97 NB Bold and Red indicates existing acceleration/deceleration lengths are shorter than ODOT Highway Design Manual standards. FREIGHT OPERATIONS US 97 is a state freight route, reduction review route, Tier 1 lifeline route, high clearance route, and part of a Critical Route Pair with I-5 (needed as an alternative to I-5 if I-5 were to be temporarily restricted). Therefore, the ability to accommodate large and over -dimension vehicles is essential. According to data obtained from an Automatic Traffic Recorder (09-003) near Rocking Horse Court, this segment of US 97 carries approximately 2,000 to 2,800 heavy vehicles per day, which is about 11 percent of the traffic served15 14 Highway Design Manual, Oregon Department of Transportation, Section 605, 2024. is ODOT Transgis: https://gis.odot.state.or.us/transgis/ US 97 BAKER ROAD INTERCHANGE AREA. MANAGEMENT PLAN - MAY 2025 28 Furthermore, Knott Road and SE 271h Street are commonly used by truck traffic driving between US 97 to the south and US 20 to the east to bypass congestion on US 97 north of the interchange and on US 20 through Bend. The interchange also serves truck traffic making deliveries to southeast Bend. Truck traffic on the interchange ramps ranges from approximately 200 to 400 heavy vehicles per day. In addition, the "thumb" area is planned to include industrial land uses and could be developed by large distributors with heavy freight usage. Such development would further incentivize freight vehicles to exit US 97 at the Baker Road interchange to travel to the "thumb" before continuing to US 20 along Knott Road. Approximately 1.5 miles to the southwest of the interchange on Cinder Butte Road is an area zoned as surface mining (an existing quarry and paving contractor), which is another generator of truck traffic within the API. FUTURE LAND USE GROWTH AND BASELINE TRANSPORTATION ASSUMPTIONS The City of Bend is expected to see substantial population and employment growth by 2040, as summarized in Table 4. TABLE 4: CITY OF BEND POPULATION AND EMPLOYMENT FORECASTS YEAR 2019 YEAR 2040 GROWTH POPULATION FORECAST 91,353 153,700 62,347 (+68%) HOUSEHOLDS 38,064 63,444 25,230 (+67) EMPLOYMENT 56,690 84,934 28,244 (+50%) Source: City of Bend Transportation System Plan, https://www. bendoregon. gov/homelshowpublisheddocumentl477641637381859539770000 Figure 11 and Figure 12 indicate that high levels of housing and employment growth are projected in the "thumb" area near the US 97 Baker Road interchange. This growth (listed in Table 5) will drive increased transportation demand and was incorporated into the future baseline ("No -Build") traffic analysis to help understand the impact of future growth on the interchange area. MEUS 97 BAKER ROAD INTERCHANGE ;REA MANAGEMENT PLAN e MAY 2025 29 Irm CM Prior UG8 E= Area Imkidod in 2W land tJso. AS%jr.liption.5 MOPpoMirrily Areas 1-lausing Gwwth 2024. ZW 1-4 Most Gmy-th Least Growth Ong FIGURE 11: PROJECTED HOUSING GROWTH (2014-2040) IN BEND Source: City of Bend Transportation System Plan (2020), https://www,bendoregon.govlhomelshowpublisheddocumentl477641637381859539770000 Core Mixed Use Opportunity Areas Send Central District contral Wertside KorPirre (-4) East Do,. mown inner HighNvay 20) Greenwood Ave RMERMARKLY MEUS 97 BAKER PC)A;, TNTEPCt--NFL APEA MANA(-,EMENT 30 FIGURE 12: PROJECTED EMPLOYMENT GROWTH (2014-2040) IN BEND Source: City of Bend Transportation System Plan (2020), https://www. bendoregon. gov/home/showpublisheddocumentl477641637381859539770000 U5 97 BAKER. ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY '_5 31 TABLE 5: FUTURE LAND USE ASSUMPTIONS FROM THE BEND TSP HOUSEHOLDS EMPLOYEES TRANSPORTATION ANALYSIS GROWTH AREA ZONE 2010-2040 2010-2040 516 Thumb +600 (100%) +3,900 (100%) 1550, 487, 560, 1549, 486, 485, SE Area +1650 (100%) +3,600 (100%) 559 556, 557, 558, 474 DSL +2125 (100%) +1,725 (100%) In the "thumb" area, in particular, approximately 600 households and 3,900 jobs are assumed by 2040, leading to nearly 1,300 trips exiting and 975 trips entering the area during the 2040 weekday p.m. peak hour. The majority of the trips entering and exiting the "thumb" utilize the US 97/Baker Road interchange or China Hat Road. To accommodate this large growth in transportation demand, the following financially constrained transportation projects were included in the future baseline (No -Build) travel demand modeling assumptions for this project: • US 97/Murphy Road northbound on -ramp and southbound off -ramp • Closure of at -grade US 97 right -on, right -off access at China Hat Road/Ponderosa Street and Rocking Horse Court • China Hat Road overcrossing of US 97 (including a realignment of Parrell Road at China Hat Road to accommodate the overcrossing) • China Hat Road/Knott Road roundabout Twelve study intersections and the US 97 mainline within the API were evaluated under existing and future baseline ("No -Build") conditions. As documented in Technical Memorandum #4: Future Baseline (No -Build) Conditions, future year 2040 design hour traffic volumes were forecast at each of the study intersections to understand how future growth in traffic would impact operations at the interchange. Performance measures used for this analysis include volume -to -capacity (V/C) ratios, seconds of control delay, levels of service (LOS), and vehicle queuing. US 97 MAINLINE OPERATIONS US 97 highway operations were analyzed for both northbound and southbound directions in the API. This included an evaluation of the levels of congestion occurring at the ramp connections where merging and diverging movements happen. All ramp connections currently operate well and are expected to operate well in the future, complying with adopted mobility targets. MSUS 97 BAKER RCU,D JNTERC_kANGE AREA MANAGEMENT FLAN - MAY 2o_.. 32 INTERSECTION OPERATIONS The results of the intersection analysis at the 12 study intersections are shown in Table 6 below. Key highlights of this evaluation include: Existing (2017) Intersection Operations Analysis • The two US 97 ramp terminals at the Baker Road interchange fail to meet the adopted mobility target under existing conditions, with stop -controlled ramp movements operating at volume -to - capacity (v/c) ratios much greater than 0.85. In fact, the southbound ramp terminal is approaching capacity and the northbound ramp terminal is operating far over capacity. This suggests that as a result of long delays during peak times, drivers turning from the northbound off -ramp are likely accepting shorter gaps in traffic than would normally be expected, indicating a potential safety concern. Further discussion of crash patterns at this intersection is included in the Safety Analysis section below. • The intersections on Baker Road with Baker Court and Cinder Butte Road are operating within County mobility standards under existing conditions, which consider the average intersection delay. However, the stop -controlled minor street approaches are operating at LOS F and are experiencing long delays. Future (2040) Intersection Operations Analysis • The most significant change in traffic operations seen by 2040 occurs at the US 97 Baker Road interchange ramp terminals as a result of new development to the east. Both intersections failed to meet ODOT's adopted mobility targets under existing conditions and will continue to do so in 2040, but with substantially more delay. • Congestion will be severe at the US 97 northbound ramp terminal in the future. This is largely due to significant growth in demand to travel to and from the east and the lack of a separate eastbound left -turn lane that eventually blocks traffic on eastbound Knott Road and consequently limits the ability to make a left turn from the northbound off -ramp. • The southbound ramp terminal also experiences a significant increase in delay (220 seconds in 2040 vs. 46 seconds under existing conditions), mostly resulting from growing demand to make the southbound left turn to reach destinations to the east. The remaining intersections meet the adopted mobility targets in the future, although the stop - controlled approaches at Baker Court/Baker Road and Cinder Butte Road/Baker Road continue to operate at LOS F in the future and experience significant delay. I® US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 2025 33 r s v; C m v C Ova z n x 7. z O X z v x z v C w mD x w D x w D m w D x a O O x 2 D A O A O A O W A O A O A O A O p N p y N D x n m z D A[ v VV) 0 m v > m z m O A 2 S z A n A m 3 m A w y w C y A (7 Z Ul 0 3 a Q "' r ry5 to D n o o O O N O w H A z ,p m G o a „ n _ cxo 3 0 o n o n n n n n n n y mz0 D T m n m a �\ �r 0 3 C N 0 0 0 O 0 0 0 0 0 0 r9 0 N O O `G `G J O O J J J o O f � O o on n A < < < n n 0 0 a IA < n IA n o IA IA 3 1A o IA 0 w o 0 0< < r 00 o i° O IA a �o r a n n n a o In o o w w w p 0 Z D z D z D 0 A V o p V1 o o 01 N 0 W m c O O O o O N O O O O n 0 N co V N w w w w voi lO71 m M -I O a D ➢ D D D D D D � D D N H o ° n n m m m T m m m m v m m A m 3 in r 0 r m Vl D D D A N i-+ r f+ w w V V w O A m n < m 3 0 0 0 O 0 0 0 0 0 0 a W V o D N V W r N � z D z D W _ O W N o T C io � y C A m D Cl D D D D r0 0 n D D l m m n T T T W m G < o A m w ° n C r O 4 c J z z z D N \ ° r < < m 0 D D m ol $ O th m VEHICLE QUEUING ANALYSIS Vehicle queue lengths on intersection approaches in the API were simulated using SimTraffic analysis software. Table 7 lists key approach queuing at the study intersections and notes where specific movement queues were either negatively impacted by downstream queuing, or positively impacted by upstream queues that limited conflicting traffic. The text below describes key findings from the queuing analysis for existing and future conditions. TABLE 7: EXISTING (2017) AND FUTURE (2040) BASELINE INTERSECTION VEHICLE QUEUING 95TH PERCENTILE QUEUE (FT) APPROXIMATE ID STUDY INTERSECTION MOVEMENT EXISTING FUTURE AVAILABLE STORAGE (FT) " (2017) (2040) NB 225 >400 * 250 BAKER RD/ CINDER 2 BUTTE RD W B 175 150 B 100 SBL 425 c >1,500 * 275 4 BAKER RD/ KNOTT RD/ SBR 1,000 >1,500 * 725 D US 97 SB RAMPS EB 75 >1,300 * 75 NBL 100 >1,200 * 150 5 KNOTT RD/US 97 NB NBR 50 >1,200 * 375 RAMPS EBL 175 >775 * 700 Bold and red queue exceeds approximate available storage. *= Queuing significantly exceeds storage due to downstream queue spillback queues "Available storage reported as approximate turn bay length or approximate distance to nearest intersection/railroad crossing. B Upstream congestion is metering the flow of arriving traffic, resulting in shorter queues. c Turn bay frequently blocked by southbound right queue. Distance represents distance to allow vehicles leaving the highway mainline to safely come to a stop. 820 feet is needed from the gore point for safe stopping distance, assuming a 75-mph design speed, based on AASHTO A Policy on Geometric Design of Highways and Streets. Existing (2017) Conditions Under existing conditions, the greatest queueing occurs at the US 97 southbound off -ramp. Given the high volume of southbound right turns and the proximity of vehicles stopping in the westbound lane to make a left turn at Baker Court, the 95th percentile queue extends nearly 1,000 feet down the off -ramp. This length is shorter than the total 1,500-foot ramp length, but beyond the available queue storage area and extends into the segment of the off -ramp needed to allow vehicles leaving the highway mainline to safely come to a stop. Affected parties have reported that these ramp MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN I'AAV 2025 3 _- queues can extend down onto the highway mainline when the railroad crossing gates are down, which occurs about eight times per day for a duration of just under two minutes each time. Vehicles queued waiting to make an eastbound left onto the US 97 southbound on -ramp nearly block the Baker Court intersection. This situation results from the short spacing between the intersections. At Baker Road/Cinder Butte Road, northbound vehicles queue almost to the intersection of Cinder Butte Road/Cheyenne Road. Due to stopped vehicles waiting to turn left from Baker Road, westbound 95t" percentile queues at Baker Road/Cinder Butte Road extend just beyond the railroad tracks, posing a potential safety hazard. There is no separate westbound left turn lane on Baker Road but given the wide section of pavement near the intersection, it is likely that vehicles traveling westbound drive around vehicles stopped to make a left turn. At the remaining intersections, including the US 97 northbound ramps, there was limited queueing. While queuing analysis was conducted for the weekday p.m. peak hour, affected parties have reported that during the a.m. peak hour, queues from the Morning Star Christian School at Baker Court can extend back to the interchange as well as back towards Brookswood Boulevard. Future (2040) Conditions Under future conditions, with traffic forecasts indicating over -capacity conditions, the two-way stop -controlled ramp terminal intersections generate queues that back up along Baker Road/Knott Road and onto the US 97 mainline. In particular, the eastbound left turn from Knott Road to US 97 northbound causes extensive eastbound queueing on Knott Road/Baker Road, causing the ramp and side street approaches to queue extensively. Figure 13 describes the key bottlenecks in the interchange area and illustrates how they impact each other, resulting in substantial congestion and unsafe conditions. MM US 97 BAKER MA'N,"1GEM ._.N_- _LP : - Ny. 'u<5 36 0 �3� 3 �F F,7 IC,N Ca 0 U- rD 2 o CC Cn " o ®R 0 r- U, cc �p 'D 0 0- 9- R m z ET . 6- F < n o 0 5 o Cc) 0- a', cc iF Do, sz !-D 0 0 a o S 3 7 0 1 0 5 Q, 0- < 0 =r '<' -0 a — CC 0 r)- (D 1 0 -Z M a_n o ou n a 0 a c O� < 0 0 < (D (D o o a_ C , , C67 cc p,, 68- 3D 0- wy 0 c S E 0- Cc a 0) n 0 M vi so '69 0 X o C: 0 'D �7 CL 0 9 l ID 0 n, ID n 0 a, :3 C7 ID c 0 0 CO < 0 < n 0 'D r- R (D 'D ::I p -- cr E! :T 3 181 o:, 0 0 F, 0 Q7 P' 1 71 nr D- c) 5 "j M 3 (D LO c o 0 ID ID -0 0- '7 cs- 0 ox V. ET 5 9, to 0 n, 0 5 (D (D 0 CL ID 8- n 3 3 ., y K C�IgPT�R,� RECpMMENDED INTERCHA�4GE IMPROV�M�NtS ' This chapter summarizes the process for developing and evaluating alternative interchange improvement concepts and the selection of the preferred alternative for the US 97 Baker Road interchange. PROCESS FOR DEVELOPING AND EVALUATING ALTERNATIVE CONCEPTS Eight initial concepts were screened and discussed during a concept evaluation workshop with the Technical Advisory Committee JAC). Based on direction received during the concept evaluation workshop, the following top three alternative concepts were selected for further refinement and evaluated against the goals and evaluation criteria from Technical Memorandum #1: • Alternative 1 - Enhance Existing Ramp Terminals • Alternative 2 - Tight Urban Diamond Interchange (with roundabouts) Alternative 316 - Southbound On- and Off -Ramp Flyovers with Roundabout Intersection The assessment of the three refined alternative concepts (described in Technical Memorandum #5: Concept Development and Evaluation) helped guide the discussion of the key opportunities and tradeoffs associated with each alternative to ultimately select a preferred concept. The refined alternative concepts were discussed with the project TAC and Community Advisory Committee (CAC) and were presented at an online open house and virtual public meeting for additional public input. The following themes were seen in much of the feedback on the refined alternatives: • Roundabouts are generally preferred over traffic signals. • The ability to accommodate evacuation needs is essential. • There is a desire to get improvements soon and recognition that project costs will impact this. • There is concern about the need to serve more traffic than anticipated due to the amount of future growth expected. • Would like more focus on improving Baker Court accessibility. • There is interest in phasing the improvements to get construction underway sooner. Based on the feedback received and direction from the Bend MPO Policy Board, Alternative 1 was selected as the preferred alternative concept for additional refinement and inclusion in the Interchange Area Management Plan. While Alternative 1 is projected to function well through the 20-year planning horizon, it was agreed that the ability to implement Alternative 3 should be retained if growth exceeds expectations and sufficient funding becomes available. Therefore, the design and construction of Alternative 1 should consider forward compatibility with Alternative 3. 16 Previously referred to as Alternative 4 but was renamed after the initial screening process. go US 97 BAKER ROAD INTERCHANGE, AREt�, PLAN � MAY 2025 38 The preferred alternative concept focuses on enhancing the existing ramp terminals to address the operational deficiencies along Baker Road, reduce the potential for queue spillback onto US 97, and eliminate turning conflicts between closely spaced intersections. The key feature that differentiates this alternative from the others is the realignment of the southbound ramp terminal opposite Baker Court and the installation of a traffic signal, as shown in Figure 14. While ODOT access spacing standards related to the separation between ramp terminal intersections and access points on interchange crossroads are not met in this alternative, realigning the US 97 southbound ramp opposite Baker Court eliminates the existing problem with the offset intersections. In addition, the US 97 southbound off -ramp is lengthened to prevent queue spillbacks onto the US 97 mainline and the US 97 southbound on -ramp is lengthened to meet current ODOT standards and improve the ability to accelerate to merging speeds. Table 8 summarizes the lane configurations and intersection controls shown in Figure 14 for the preferred alternative concept, which differs slightly if a roundabout or a traffic signal is implemented at the northbound ramp terminal. Note that while shown as back-to-back left turn lanes in Figure 14, it is likely that given the close intersection spacing, side -by -side left turn lanes will be needed between Cinder Butte Road and Baker Court to accommodate vehicle queue storage. In addition, it is recommended that a center turn lane on Knott Road be extended between the northbound ramp terminal and Scale House Road to allow trucks to make a two -stage left turn from Scale House Road. TABLE 8: RECOMMENDED INTERSECTION CONTROL AND LANE CONFIGURATION INTERSECTION WITH ROUNDABOUT AT NB RAMPS WITH TRAFFIC SIGNAL AT NB RAMPS Intersection Control Lane Configuration Intersection Control Lane Configuration WBL, WBT, WBR WBL, WBT, WBR US 97 SB RAMPS/ NBL, NBTR NBL, NBTR BAKER CT/ Traffic Signal EBL, EBTR Traffic Signal EBL, EBT, EBTR BAKER RD SBL, SBT, SBR SBL, SBT, SBR US 97 NB Single -lane EBL, EBT RAMPS/ Roundabout roundabout with a Traffic Signal Dual WBT, WBR KNOTT RD WBR turn slip lane NBLT, NBR WBL, WBTR CINDER BUTTE NBLT, NBR ROAD/ Traffic Signal (same as shown at left) BAKER RD EBL, EBTR SBLTR Note: WB = Westbound; EB = Eastbound; NB = Northbound; SB = Southbound; R = Right; T = Through; L = Left MMUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 10,1_5 39 u N .p a A m p T m A p O A o �^ _ o a � r A 1 n m A n Z z D m '� �' m n n 3 0 D $ n n ci y 3 i ti D 2 To increase motor vehicle capacity at the northbound ramp terminal, a single -lane roundabout with a westbound right turn slip lane is recommended. A roundabout at the US 97 ramp terminal would be subject to the affected parties engagement process for approval outlined in ODOT Highway Directive DES 02. If during that engagement process it is determined a roundabout would be infeasible at the US 97 ramp terminal, a traffic signal would be necessary instead. A traffic signal would require additional lanes to achieve a similar level of mobility as a roundabout, and a signal would require two additional lanes across the US 97 bridge. This change could increase the cost by an additional $3-5 million dollars. The new signalized intersection on Baker Road at Baker Court/US 97 southbound ramps would be coordinated with a widened and improved railroad crossing and a new traffic signal at Cinder Butte Road. While this intersection would operate well under this configuration (volume -to -capacity ratio of 0.81 in 2040), adding a second eastbound through lane would help the intersection nearly meet ODOT's mobility standard in the Highway Design Manual (volume -to -capacity ratio of 0.76 compared to the standard of 0.75). However, since this extra eastbound lane is not needed at the northbound ramp terminal roundabout, it would likely be dropped before the overcrossing to avoid costly bridge widening. The resulting second eastbound through lane would then only extend about 300 feet past the southbound ramp terminal intersection. Since many motorists would choose not to use that lane to avoid the downstream merge, the actual capacity benefit would be diminished. Adding this lane would be more beneficial if the northbound ramp terminal were improved with a traffic signal since the signalized northbound ramp terminal intersection needs two eastbound approach lanes (a left and a through). Therefore, the second eastbound through lane from the southbound ramp terminal could be carried to the northbound ramp terminal and dropped as the left turn lane. This would significantly improve the available capacity at the ramp terminals but would add cost to the project to widen the overcrossing even more. Signalization is recommended at the intersection on Baker Road at Cinder Butte Road, primarily to manage vehicle queues along Baker Road due to the proximity of the railroad and the proposed signal at the southbound ramps/Baker Court. While shown as back-to-back left turn lanes in Figure 14, it is likely that given the close intersection spacing, side -by -side left turn lanes will be needed between Cinder Butte Road and Baker Court to accommodate vehicle queue storage. The signal timing at these closely spaced signals will need to be carefully coordinated to avoid queue spillback between intersections. Furthermore, the intersection improvements at Baker Road and Cinder Butte Road must be closely coordinated with Deschutes County and their planned improvements to signalize the intersection. Because of the proximity of the intersections and railroad crossing on Baker Road between Cinder Butte Road and the southbound ramps/Baker Court, careful consideration must be given to design and operational parameters to ensure improvements function safely and efficiently. This should involve a cooperative effort between ODOT and Deschutes County to evaluate factors such as potential access conflicts, signal phasing and timing, intersection layout, and synchronization with railroad signal operations. To improve the spacing between intersections and busy interchange ramp terminals, Scale House Road will be relocated further to the east (see the access management plan). This relocation must MM US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT P-AN ;,tA`r" 202.5 41 include an evaluation of safe intersection sight distance to ensure the horizontal and vertical curves do not obstruct needed sight lines. It is recommended that a center turn lane on Knott Road be extended between the northbound ramp terminal and Scale House Road to allow trucks to make a two -stage left turn from Scale House Road. The anticipated operations at key intersections through the interchange area in the year 2040 with the preferred alternative in place (with a roundabout or traffic signal at the northbound ramp terminal) are shown in Table 9. As shown, in many cases ODOT's Highway Design Manual mobility standards would not be met. While this would require approval of design exceptions, the difference between the mobility standards and expected operations is relatively small. Furthermore, the mobility targets in the Oregon Highway Plan would be met. The results shown in Table 9 below are also dependent on a full buildout of the "thumb" expansion area. If that buildout were to occur on a longer time horizon, the preferred alternative would operate acceptably for a longer period of time than the results below indicate. MEUS 97 BAKER ROAD TN!! Ei'CHANCF 'kQ'1S '^,, ;'AGFMENT PLA;,i Mia" 2025 42 D W A a SL -p C Z V) a a a a a� H a O `® 3 W m °c 3 m m m m w a oCLP X X � -1 %0 -c U'l n O rn m m Z T 0 fD a � (A.q rn ® rn \ { rn X q V) o W m O- c m W Z u: m rn v o n n= X a v p A a rt� 3 m N r 0 0 3 M Z rri N (D rt K m flI P Z 0 N 7 ((D fl rr O_ 7 M < (n 0 CD 3 a D D m IA In y r- La Lri (0 pp Z 0 3 In In uwi m Ll cD N p m 0 rt Q' 0 o m C m aw X Z .D rr V Ul V (n n n(D 0 n) < rn S CL .. p. (_n r^n CD a. in aj p) (D Z a T to (Da (D a T C c O C_ CL 0 p7 N C: a7 m P Or A p p (D m T H Z RI. rn U) rt x 'A O a) 3 O O o 'a AG A ° tD A mA r CD OD° > a o Z - m „m ul CD a n D N C ZD Z ? CD �> m O c 0 ° �p W v W W N 1 � , m r O C -1 X o .�. , •c a _. N T rt O- T V) A n v) (1) in a D n. `o z O x LO v to D v a M,o X j m `. n a r D o _0 can m o T Z m -I v o O o < �+ a 7o O _ A Z m Z 0 V ' cn N m a (� m ul 01 � a La < 0 m A Z X -4 a N m < I n n D Vl --4 Z Lo a m o Z O v v rn r s 0 N w W 0) rn r ' y> PREFERRED CONCEPT ACTIVE TRANSPORTATION IMPROVEMENTS The active transportation improvements included as part of the preferred concept provide low - stress facilities along Baker Road for traveling through the interchange area, as well as connections to proposed regional trails. A key element of the low -stress facilities along Baker Road is a 15-foot multi -use path for walking and biking along the south side of the road between the two ramp terminal intersections. On the north side of Baker Road, a nine -foot buffered bike lane and six-foot sidewalk would be provided. Figure 15 provides a concept drawing of the proposed bridge cross-section of Baker Road as it crosses over US 97.17 Multi -Use Path Buffe EBTravel lane 15' 2' 12' Medbn/Buffer WBTravel Lane Buffers Bike Lane Sidew T 1Y 3' FIGURE 15: CROSS SECTION OF THE BAKER ROAD OVERCROSSING OF US 97, FACING WEST (ASSUMES A ROUNDABOUT IS CONSTRUCTED AT THE NORTHBOUND RAMPS) Further refinements that could be considered during project design include: • Adding a vertical barrier/rail between the multi -use path and eastbound travel lane. While this would comply with ODOT's current standards, it could be challenging for maintenance and in particular, snow storage and removal. • Replacing the sidewalk and bike lane on the north side with another 15-foot multi -use path to match the south side. o Including another 15-foot multi -use path on the north side could be done by narrowing the median/buffer and shifting the westbound lane to the south by two feet. • Delineating between people walking and biking on the multi -use path. • Designing the widened bridge to include visual or physical gateway elements as people enter/exit Bend. 17 Note that this cross section assumes a roundabout would be constructed at the northbound ramps. If a traffic signal is constructed instead, the median/buffer could be narrowed but as many as two additional travel lanes may be needed. MM Us 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 2025 44 • Considering additional pavement width (curb to curb width) over the bridge to further enhance the ability to accommodate emergency evacuation needs. On the west end of the interchange, the multi -use path would connect to Baker Court, providing access to Riverwoods Country Store and Morning Star Christian School. The local transit stop was recently relocated to be closer to the interchange, near the Riverwoods Country Store. Between Baker Court and Cinder Butte Road, sidewalks and buffered bike lanes would be provided, transitioning to only bike lanes west of Cinder Butte Road per County standards. A protected intersection design could be considered at the US 97 southbound ramp terminal to enhance safety for people biking, particularly for westbound cyclists that conflict with the westbound right turn onto US 97 southbound. On the east end of the interchange, the multi -use path tunnels under the US 97 northbound off - ramp and Knott Road. Grade separation will improve safety for people walking and biking by eliminating conflicts with motor vehicles when crossing these roads. Crossing the multi -use path under Knott Road to the north allows the path to connect to the future Arnold Canal Trail. An optional path on the north side of the interchange is shown under US 97 along the Arnold Canal. This path could be constructed if clearance under US 97 can be obtained. The Bend to Lava Butte Multi -Use Path project, which would construct a path from Lava Lands Visitor Center to Baker Road, is still in the planning phase. The alignment of the path and location of an associated trailhead have not yet been determined and could be on the west or east side of US 97. The path and trailhead locations shown in Figure 14 are for illustrative purposes only. It is anticipated that the improvements associated with the preferred alternative will be compatible with path, trailhead, and transit stop locations on either side of US 97. TRANSPORTATION SYSTEM MANAGEMENT IMPROVEMENTS In addition to the infrastructure improvements listed above, several transportation system management strategies are listed in Chapter 5: Access Management Plan and Management Strategies, including a discussion of trail wayfinding signs, evacuation routes, reducing the posted speed limit, managing traffic signal timing, transit access and property access. These strategies are an important part to ensuring the long-term function of the preferred alternative. Given that the preferred alternative addresses many existing needs and deficiencies in the area (rather than just future deficiencies or needs), all the improvements identified in the preferred concept should be implemented as soon as funding becomes available. However, it is possible that given the total cost of interchange improvements, available funding will only cover a portion of the identified projects. Therefore, based on the needs of the area, constructability constraints, and likely timing of additional development or projects in the area, a recommendation for phasing improvements is proposed. Table 10 and Figure 16 summarize the recommended phasing, although the improvements could be phased in a different way based on available funding or timing of development. The MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN © MAY 2025 45 recommended costs shown in Table 10 were based on 2021 construction costs but projected out to an assumed year of expenditure of 2029. Detailed cost estimate worksheets are included in Technical Memorandum #6; Preferred Alternative Concept in Volume 2. Many of the existing and future needs in the Baker Road interchange area are driven by conflicts on the west side of the interchange. The southbound ramp experiences significant delay and queueing and there are existing challenges with the close spacing of Baker Court, the railroad, and Cinder Butte Road. Therefore, it is recommended that the west side be improved first. Also, moving the southbound ramps further to the west will give the contractor more space to work when widening the overcrossing in the next phase. Many of the identified improvements on the west side of the interchange will influence one another and could be challenging to phase separately. For example, realigning Cinder Butte Road, adding turn lanes on Baker Road, or realigning the US 97 southbound ramps would likely all trigger the requirement for a railroad crossing order. Additionally, realigning the US 97 southbound ramp terminal with Baker Court will modify the on and off -ramp alignments, which may involve reconstruction of the merging and diverging connections to the highway. It is also important to note that while the Phase 1 improvements would address the majority of the deficiencies in this area, the lack of an eastbound left turn lane at the northbound ramp terminal could represent a downstream bottleneck until Phase 2 improvements can be constructed. US 97 BAKER ROAD INTERCHANGE AREA MANAGENIIFN-1 FLAN.' - 1,, V ?C: 46 A O D O 1 () 2 D P A D TABLE 10: US 97 BAKER IAMP PREFERRED ALTERNATIVE PHASING RECOMMENDATIONS PHASE ELEMENTS DESCRIPTION ESTIMATED COST Realign Cinder Butte Road slightly to the west, construct westbound and eastbound left turn lanes and a Cinder Butte Road northbound right turn lane (with side - by -side left turn lanes between Cinder realignment and Butte Road and Baker Court). turn lanes Improvements on Baker Road west of Cinder Butte Road would be to County standards, with six-foot bike lanes and no sidewalks. PHASE 1 US 97 SB ramps Realign the US 97 southbound ramp WEST SIDE realignment, traffic with Baker Court and signalize the $14.8 million IMPROVEMENTS signal, and RR intersection. This includes reconstruction crossing of the BNSF railroad crossing and improvements coordination with the new traffic signal. US 97 acceleration Lengthen the existing US 97 southbound and deceleration on -ramp acceleration lane and US 97 lanes southbound off -ramp deceleration lane. Baker Road/ Cinder Construct a traffic signal and coordinate Butte Road it with the railroad crossing and the new signalization US 97 southbound ramp terminal signal. Widen the existing Baker Road/Knott Road bridge over US 97 to Baker Road bridge accommodate the preferred concept widening (and added lanes if a signal is constructed at the northbound ramps). PHASE 2 - US 97 NB ramps Install a roundabout at the US 97 NB BRIDGE AND roundabout ramp terminal and the associated multi- $23.2 million EAST SIDE use path undercrossings. IMPROVEMENTS Complete the multi -use path network, Multi -use path connecting the US 97 Bend to Lava connections Butte and Arnold Canal facilities. Realign Scale House Realign Scale House Road to the east. Road Total Estimated Cost (2029 year of expenditure) $38 million US 97 BAKER ROAD 1N RC, HANC-E ,^,1 :'\ CE r'„ ' id; �LA. J ., fl; tpZS 48 After addressing the safety, access, and capacity issues on the west side of the interchange, Phase 2 will complete the active transportation network and relieve congestion at the northbound ramp terminal. To provide a connected network for people walking and biking through the interchange area, the US 97 northbound ramp improvements (including tunnels) should be constructed at the same time as the bridge widening. However, that work could be deferred if needed, by using temporary at -grade path crossings. FUTURE ALTERNATIVE 3 IMPROVEMENTS While the preferred alternative (Alternative 1) is projected to function well though the 20-year planning horizon, it was agreed that the ability to implement the preferred alternative long-term option (Alternative 3) shown in Figure 17 should be retained if growth exceeds expectations and sufficient funding becomes available (estimated cost likely greater than $35 million). Specifically, the design and construction of any improvements in Phase 2 should consider the ability for future southbound flyover ramps to be connected to the US 97 northbound ramp terminal. The anticipated operations at key intersections through the interchange area in the year 2040 with long-term option in place (with a roundabout or traffic signal at the northbound ramp terminal) are shown in Table 11. As shown, the combined US 97 ramp terminal intersection on Baker Road is not expected to meet ODOT's Highway Design Manual mobility standard. While this would require approval of a design exception, the difference between the mobility standard and expected operations is very small. Furthermore, the mobility targets in the Oregon Highway Plan would be met. US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN < MA`.' "_0>5 49 7 V ®_ D rt Nn� W � 00, W D X W D x W D x _ D W°rtn rn m m 3 r < (D 3 X m D m lA r O) rt n ° c�D 3 (n — CL (o m ��NOr -o (!9 D N rt m ry m m n 1 C V rn ® m m N� N m rn 0 ° 3 m cr z R® C Z �► m G p m3Q n ° 0) 3 ? U �q O n D z rt� rtC W m H °rt n (D ° r° n w D 3 Z m rn X 2 rt N rt ® T m Z D z ((DD(Dv (A m(D Nr O D M ° < D —'0 Ol m A m i 7 A (D D D D r b 3 a � In m In � 3 O 0p3 wn, uiw DW Z z Q = ° o. ° In (n Lo (n La M D rr' (D n m rto LA v n(0 ET (D ET '� X rt rt� 3 O a n �C M �43 O _Qtn CL � d rt Q Ln a W W< r (n 7 Q d CD 70 D < o g o C� rr N c g O r r c n c rn ° (Art 3 Q (D v m X z o 3 O1 o V w Z 'C s'v <� a A Q� w� �D a n 03 m m w m n rt j c W m0 ° L D r N m CI a W D N; :, O ° n a Z C 0 C -i < m 0) (D CD CD� n0 17 N rt m O 0 3 O = w -~P w CAA r y DCL ,p O CD D� 0 tn m3( u Ln• m (D .. ° rt rt `nO° x CL M rt � m (D ClLO O Z Z o (D Cl -0 � o � � a � � x � O C ° n x r .. O X J n z ° n `D m rD A D 70 O O < "n rm �DD (Dw O 1-4( ~ul n n 03 O , S � � D n -- n u°i ((D Fr Cf m 0 m 'a O M (D o x D C z M p ° n D 0 r %.v O Z D �a N (D Q d w D 1 M Ort -0o O ° v (D � (Do ^ z a)�� mrn O rt o a N uj 01 r v D o (D D '� This chapter describes a collection of strategies to supplement the preferred alternative improvements that will help protect the public's investment and ensure the transportation system in the interchange area functions as intended through the planning horizon. Access management is the term used to describe a broad set of techniques that balance the need to provide safe, efficient, and timely travel with the ability to allow access to individual properties. On facilities such as expressways and arterials, there is generally an emphasis on facilitating the through movement of traffic, with direct property access being a secondary objective. However, for streets of lower functional classification, such as collectors and local streets, the emphasis shifts to prioritize direct property access. Where streets act as interchange crossroads, limited access is emphasized to protect the function of the interchanges and to minimize the need for major improvements. Most commonly, access management involves decisions about the location and design of vehicular access points to roadways. On streets of higher functional classifications (e.g., expressways and arterials) that are serving higher volumes and speeds of traffic, closely spaced or poorly designed access points can create confusion and introduce conflicts between vehicle paths that result in congestion and crashes. The closely spaced intersections on Baker Road with the US 97 southbound ramps and Baker Court are an example of this problem and is one of the key deficiencies being addressed by the recommended interchange improvements. The purpose of this access management plan (AMP) is to provide direction for the management of access points within the interchange area in a manner that will protect the function of the interchange and promote safety while accommodating future development or redevelopment. The AMP provides direction and decision -making criteria, referred to as the Key Principles and Methodology, but actual changes to individual property access points will occur through future land use applications and future project design phases. ACCESS SPACING STANDARDS This section describes the adopted access spacing requirements of each agency as they relate to roadways in the interchange area. Within the project area, US 97 and the interchange between the ramp terminals are under the jurisdiction of ODOT. US 97 is classified by ODOT as a statewide highway, and further designated as an expressway, urban/rural other principal arterial highway, state freight route, reduction review route, and high clearance route. US 97 serves approximately 19,100 to 26,700 average annual daily vehicles through the interchange area and has a posted speed of 65 miles per hour (mph). Outside of the interchange, Baker Road and Knott Road are under the jurisdiction of Deschutes County and are classified as rural arterials. This corridor serves approximately 8,800 to 11,500 average annual daily vehicles and has a posted speed of 35 mph west of Scale House Road and 50 mph east of Scale House Road. MMUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 202E 52 For further context, Deschutes County designates most of the area surrounding the interchange area as rural residential (RR10) with a small pocket of rural commercial (RC) southwest of the interchange. While this area is zoned as rural today, the City of Bend's urban growth boundary (UGB) is located less than a mile north of the interchange area, and the City expects significant commercial, residential, and industrial growth over the next 20 years that has potential to make its way to Baker Road/Knott Road within the interchange area. State Access Spacing Standards The Oregon Highway Plan (OHP) addresses the importance of access management and outlines access spacing standards for state highways.l$ More detailed requirements for access management are also specified in Division 51 of Chapter 734 of the Oregon Administrative Rules (OARs). The goal of an AMP is to set in place provisions by which access within the project limits can be fully compliant with OAR 734-051. However, there are often instances where requirements cannot be met due to physical, environmental, or other limitations. In these cases, the goal is to move in the direction of meeting the applicable standards as much as is feasible. ODOT has adopted interchange and access management spacing standards that specify the minimum separation required between interchange crossroads, adjacent interchange ramp tapers, and access points along crossroads. There are different standards for urban and rural areas. While the US 97/Baker Road interchange is currently outside of the existing UGB, it is likely that in the future the UGB will be expanded to be immediately adjacent to the interchange. Spacing between interchanges ODOT's interchange spacing standards require a minimum of 1.9 miles between interchange crossroads in urban areas and 3 miles in rural areas.19 For this interchange, the 1.9-mile spacing standard would be applied to the north and the 3-mile spacing standard would be applied to the south. The proposed interchange improvements will not change the location of the existing Baker Road overcrossing. The Murphy Road interchange is the nearest interchange to the north at 1.88 miles away, effectively meeting the urban spacing standard. There are no interchanges within 3 miles to the south. Spacing between adjacent interchange ramp tapers and access points along US 97 ODOT's spacing standards for the distance between adjacent ramp tapers on a freeway (US 97 is not technically a freeway, but functions similarly to one) requires 1 mile in an urban area and 2 miles in a rural area .20 Between the existing US 97/Baker Road and Murphy 18 1999 Oregon Highway Plan, as amended May 2015, Oregon Department of Transportation, Appendix C. 19 1999 Oregon Highway Plan, as amended May 2015, Oregon Department of Transportation, Appendix C, Table 12. 20 1999 Oregon Highway Plan, as amended May 2015, Oregon Department of Transportation, Appendix C, Tables 17 and 18. MSUS 97 BAKER ROA1, IN i"E1,,CHAN ;E AREA MANAGEMENT FLAN H 2(125 53 Road interchanges, there is approximately 1.2 miles between tapers northbound and 1.1 miles between tapers southbound. The recommended improvements would move the southbound exit ramp taper about 400 feet further north, but the spacing between that ramp and the Murphy Road ramp would still be just over 1 mile. The location of the northbound entrance ramp is not anticipated to change significantly. Therefore, the spacing standard for interchange ramp tapers to the north would be met for urban areas but not for rural areas. While direct access to an expressway is generally discouraged, ODOT also has access spacing standards for access points along a Statewide Highway and Expressway that require a minimum of 1/2-mile between at -grade intersections in urban areas and 1 mile in rural areas.21 However, where interchanges are present, there must be at least 1 mile between the end of a ramp taper and the nearest at -grade intersection in urban areas and 2 miles in rural areas.22 Individual existing accesses directly to US 97 are inventoried in the following section. Spacing along interchange crossroads OHP standards also indicate that a minimum of 1,320 feet (0.25 miles) be provided between the ramp terminals and the first intersection on the crossroad, regardless of whether all movements are provided or restricted to right -in and right -out only (note that County cooperation would be needed to apply these standards as Baker Road and Knott Road are not under state jurisdiction).23 This standard is not met under existing conditions. On the west side of the interchange, the Baker Court intersection which serves as access to the Riverwoods Country Store and the Morning Star Christian School is only 110 feet from the southbound ramp terminal. Further to the west, public street access is provided at Cinder Butte Road/Pocahontas Lane (425 feet away) and Apache Road (1,335 feet away). In addition, there are 14 driveways to single-family homes between Cinder Butte Road/Pocahontas Lane and Apache Road. On the east side of the interchange there are two access points within 1,320 feet of the northbound ramp terminal: one at Scale House Road (525 feet away) and a gated driveway farther to the east (970 feet away). Individual existing accesses directly to Baker Road and Knott Road are inventoried in the following section. 21 1999 Oregon Highway Plan, as amended May 2015, Oregon Department of Transportation, Appendix C, Table 14. 22 1.999 Oregon Highway Plan, as amended May 2015, Oregon Department of Transportation, Appendix C, Table 19. 23 1999 Oregon Highway Plan, as amended May 2015, Oregon Department of Transportation, Appendix C, Table 19. US 97 BAKER ROAD INTERCHANGE ARFA MANAGEMENT PLAN ® MAY 2025 54 County Access Spacing Standards Deschutes County access spacing requirements are provided in Deschutes County Code." Requirements related to access spacing that are relevant to the interchange area include: a. Intersecting streets, including driveways to commercial and industrial properties, shall be separated by at least 500 feet on arterials and 300 feet on collectors. b. The creation of access onto arterials and collectors is prohibited unless there is no other possible means of accessing the parcel. In any event, residential access onto arterials and collectors shall not be permitted within 100 feet of an intersection or the maximum distance obtainable on the parcel, whichever is less. EXISTING ACCESS INVENTORY Access inventory data along US 97, Baker Road, and Knott Road within the limits of ODOT's access spacing standards for interchange areas was obtained from aerial imagery and field verified. Figure 18 through Figure 22 show all the existing accesses, divided into seven Access Management Areas used to group adjacent properties with similar access constraints and land uses. Details regarding access type, exact location, and land use being served for the accesses are included in Table 12. Within the 1,320-foot spacing standard for interchange ramp terminals, there are four public street accesses (Baker Court, Cinder Butte Road, Pocahontas Lane, and Apache Road) and 15 private accesses west of the US 97 southbound ramp terminal (Figure 19). To the east of the US 97 northbound ramp terminal there are only two private accesses within the 1,320-foot spacing standard (Figure 20). Additionally, there are three public accesses on US 97 within the one -mile spacing standard to the north of the interchange. These include the intersections with Rocking Horse Road, Ponderosa Street, and China Hat Road, which are all restricted to allow only right -on and right -off movements (Figure 21). However, these accesses are all planned to be closed in the future, with the Ponderosa Street and China Hat Road accesses replaced by an overcrossing.25 To the south on US 97, there are two gated accesses (one emergency access and one forest service road) and one private access to the High Desert Museum that are within the two-mile spacing standard of the interchange (Figure 22). However, the gated accesses are anticipated to have very limited use and serve as emergency access only. 24 Deschutes County Code 17.48.090 and 17.48.210. 25 US 97 Parkway Plan Please 2, Oregon Department of Transportation, February 26, 2021, Table 9, p. 44. ffmUS 97 BAKER. R1>AD 1Nli-RCHANGE AREA MANAGCMENT �r.P,ii P'AY 2025 55 DKS FIGURE 19: EXISTING ACCESSES TO BAKER ROAD WEST OF US 97 US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT I_F.I'd ® MAY 2025 57 DKS FIGURE 21: EXISTING ACCESSES TO US 97 NORTH OF BAKER ROAD maUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN @ MAY 2021, 59 FIGURE 22: EXISTING ACCESSES TO US 97 SOUTH OF BAKER ROAD US 97 BAKER ROAD AREA -.N':C LkT PLAN - I t "_'1, . 60 TABLE 12: INTERCHANGE AREA EXISTING ACCESS INVENTORY ID TAX LOT PUBLIC OR PRIVATE/TYPE SITE USE SIDE OF ROADWAY (WEST TO EAST, SOUTH TO NORTH) DISTANCE TO NEAREST ACCESS (FT) 1 181219CC01800 Private/Residence Single Family Residence LT 60 2 181219CC01900 Private/Residence Single Family Residence LT 55 3 181219CC01900 Private/Residence Single Family Residence LT 50 4 181219CCO2000 Private/Residence Single Family Residence LT 50 5 181219CCO2000 Private/Residence Single Family Residence LT 50 6 181219CCO2100 Private/Residence Single Family Residence LT 50 7 181219CCO2200 Private/Residence Single Family Residence LT 50 8 181219CCO2200 Private/Residence Single Family Residence LT 40 9 181219CD02300 Private/Residence Single Family Residence LT 105 10 181219CD02200 Private/Residence Single Family Residence LT 105 it 181219CD02100 Private/Residence Single Family Residence LT 105 12 N/A Public/Street Pocahontas Lane LT 260 13 N/A Public/Street Apache Road RT 155 14 181219CCO2400 Private/Residence Single Family Residence RT 110 15 181219CCO2300 Private/Residence Single Family Residence RT 120 16 181219CCO2300 Private/Residence Single Family Residence RT 65 17 181230BB03000 Private/Residence Single Family Residence RT 65 18 N/A Public/Street Cinder Butte Road RT 300 AREA 2 No existing access points to US 97, Baker Road, or Knott Road in this Area. EMUS 97 BAKER ROAD MT RCNANGE AREA +MANAGEMENT FLAN @ Ni, Y ? 61 SIDE OF PUBLIC OR ROADWAY DISTANCE ID TAX LOT PRIVATE/TYPE SITE USE (WEST TO TO NEAREST EAST, SOUTH ACCESS (FT) TO NORTH) • �.�"'^F a Y �sa. 1 vt3- �s ,��r �, �a�,:� •lic/Street '`<�*- „"....a5yi�n%\f�'"";a � ��.� � ��'�a:. �F� -�� Baker Court41 '3y�;?�i��'� "�� s 2 N �"Z- rti�� °'Y :�i Y� Sf��r• � `�Mpi ,. ,� �..."�✓ 'cc�v1 ,x.�w A� `��,- A. �� 'ium;v%z"'�� v^' ��{ �..:, cF C l,. `.ii��h�.�.z�.� �.":'. -�y�r.;,��l,,Y',.c��.£.:i",�Xj �„»`'��rf r��a� �YQ��?ra3'r.NxN..'N` �S 0 .� ��ww�&ti5a,�w�uii0^c.>�?^,+�`ae:^�5;3'i54.vi.,� v�1�.:."T�G��a.:�Y�.:�3 �,�w�+4�.s. v��.JS, sra.✓.k� 2w>�c".5.a..n�').a�d:��xl l�,$. �FJ Zl �E2::E �.c�Lra..,.� ��JJ,x�+�m. �d5��:;:4"`".�v).1..:...�x�aa:...y „?,m'SY,�-. No existingaccesspoints to US •BakerRoad, or • Road in thisArea. Private/Street Scale House Road RT 450 20 1812300000100 21 1812300000100 Private/Vacant 450 co 1 Public/Street Rocking Horse Road 22 23 1Public/StreetPonderosa Street 1,200 24 1 Public/Street Road Ow im Public/Emergency 25 1 Access• • • • 1811000001900 Institutional • Desert• 1,025 27 1911000000100 Government - • Forest Road Note: ID numbers correspond to the ID numbers used in Figures 19 through 22. MEUS 97 BAKER RG U 'iTERCHANGE AREA P ,.^NAGEMEN r._ -C2.5 62 ACCESS MANAGEMENT KEY PRINCIPLES AND METHODOLOGY OAR 734-051 establishes procedures, standards, and approval criteria that govern highway access management and approach permitting. Key Principles for access management address how properties abutting a state highway (and in this case, the interchange crossroad) will be evaluated to retain or obtain access to the state highway during and after plan implementation. The Methodology for access management provides the ability to assess how the Key Principles are being applied to access decisions. While the Key Principles and Methodology provide direction and decision -making criteria, actual changes to individual property access points will occur through future land use applications and future project design phases. The access management Key Principles and Methodology for the US 97 Baker Road IAMP are shown in Table 13. These Key Principles and Methodology were developed according to the process outlined in OAR 734-051-7010 and described in more detail in Technical Memorandum #7: Access Management Plan in Volume 2. TABLE 13: ACCESS MANAGEMENT KEY PRINCIPLES AND METHODOLOGY KEY PRINCIPLES METHODOLOGY a. Meet ODOT's adopted access spacing standards along US 97 to the north and south of the US 97/Baker Road interchange or move in the direction of meeting the standards as much as 1. Provide for efficient travel feasible given physical and environmental constraints. through the interchange area b. Meet ODOT's adopted access spacing standards for interchange based on existing and planned crossroads along Baker Road and Knott Road or move in the land uses in the area direction of meeting the standards as much as feasible given physical and environmental constraints. c. Limit access to streets with the lowest functional classification where feasible. a. Reduce the number of potential conflict points within the functional area26 of public street intersections. b. Align approaches on opposite sides of the roadway, where feasible, to reduce turning conflicts. 2. Improve safety for all c. Seek opportunities to consolidate access points or establish modes of travel shared access points to reduce the overall number of accesses on the interchange crossroad. d. Implement actions to provide minimum required safe sight distance for drivers exiting properties. e. Consider the ability to accommodate safe and unobstructed ingress to properties. 26 The functional area of an intersection is the area of the physical intersection plus the area upstream and downstream of the intersection that is needed for decision and maneuvering distance, plus any required vehicle storage length needs. MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN - MAY 2025 63 KEY PRINCIPLES METHODOLOGY f. Consider the relationship between accesses and historical crash records and mitigate accesses where it would resolve a recurring crash pattern. g. Define the width of undefined existing accesses using guidance from the Oregon Highway Design Manual or Deschutes County design standards, as applicable, to a width that will serve the existing and planned uses of the property. a. Ensure that all properties are provided reasonable access to the public street network in accordance with existing property access rights. b. Consider the level of direct access to Baker Road and Knott Road that is appropriate for the type of development that exists and would be allowed according to the Comprehensive Plan. 3. Support regional and local c. Maintain the ability for businesses to receive freight/deliveries. economic development d. Ensure no access points conflict with safe and uninterrupted service on the Burlington Northern Santa Fe railroad. e. Locate and design accesses to adequately serve the volume and type of traffic reasonably anticipated to enter and exit the property, based on existing and planned uses. f. Consider the potential impacts on site circulation and parking resulting from proposed approach modifications or closures. 4. Facilitate the use of a. Modify or relocate approaches as necessary to allow for the multimodal travel options construction of ADA-compliant pedestrian facilities. b. Minimize the number of vehicle crossings on regional trails. 5. Develop the project to a. Achieve a just allocation of burdens and benefits among support the community's value community members. of equity 6. Practice good stewardship a. Consider the impacts of access modifications and closures on of the environment resource lands and wildlife. 7. Develop solutions that are a. Provide public street connectivity consistent with Deschutes consistent with the established County and Bend Comprehensive Plans. shared corridor vision and the adopted state and local plans 8. Develop implementable a. Consider the compatibility of access decisions with future solutions for the interchange phases of interchange improvements. area WU5 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN ® MAY 2025 64 ACCESS MANAGEMENT ACTIONS The AMP provides direction for the management of access points within the interchange area in a manner that will protect the function of the interchange and promote safety while accommodating future development or redevelopment. Accomplishing the desired outcomes will require cooperation from agencies and property owners to work towards the vision for safe and efficient access management in the interchange area. ODOT, Deschutes County, the City of Bend, and the MPO must cooperatively implement the access management plan recommendations, though most changes are anticipated on roadways under the jurisdiction of ODOT and the County. Access management actions for the seven Access Management Areas, corresponding to Figure 18 on page 56, are shown below in Table 14. TABLE 14: ACCESS MANAGEMENT ACTIONS EXISTING CONDITIONS: ACTIONS: Area 1 includes properties along This area is fully developed and there are no known plans Baker Road between the BNSF to rezone the land or construct new public streets in the railroad and a point that is vicinity. Properties that are unable to access alternative approximately 1,320 feet west of the public streets are anticipated to continue to have access future intersection of the US 97 directly to Baker Road. southbound ramps/Baker Court. Properties in this area are generally The public street intersection on Baker Road with Cinder developed with single-family homes, Butte Road and Pocahontas Lane is proposed to be consistent with Rural Residential improved with turn lanes and a traffic signal. No changes (RR10) zoning. Many properties only are proposed to the intersection with Apache Road. have access to Baker Road and must As opportunities arise, such as through development and rely on it for access, though some redevelopment of properties, access directly to Baker Road also abut Apache Road, Cinder Butte should be removed to properties that abut other public Road, or Pocahontas Lane. streets with lower functional classifications (i.e., Apache Road, Cinder Butte Road, or Pocahontas Lane) where access to those other streets is feasible and safe to construct. For properties without access to an alternative public street, no more than one direct access to Baker Road should be provided where feasible. EXISTING CONDITIONS: ACTIONS: Area 2 is located north of Baker Road No rights remain for properties in this Area to access the between the BNSF railroad and US state highway and providing direct access to interchange 97. This area is currently ramps and expressways in the vicinity of interchanges undeveloped. would create a safety hazard. Consistent with the existing access rights of these properties, no access should be provided to US 97 or to Baker Road, as any access to Baker Road would be very close to the US 97 southbound ramps intersection and would create a safety hazard. MEUS 97 BAKER ROAD INTERCHANGE AREA MANAGEMEN i -`LF,N - MIA,' ,' '" ti 65 TABLE 14: ACCESS MANAGEMENT ACTIONS (CONTINUED) EXISTING CONDITIONS: ACTIONS: Area 3 is located south of Baker Road The public street intersection on Baker Road with Baker between the BNSF railroad and US Court is proposed to be improved with turn lanes and a 97. This area includes one parcel traffic signal, which will include alignment with the US 97 zoned Rural Commercial (RC) that is southbound ramp terminal. All access to Area 3 should developed with a store. Other parcels continue to be taken from Baker Court. When designing include a school and undeveloped improvements for the Baker Court approach, consideration land. All access to this area is should be given to ensuring unobstructed ingress can occur currently taken from Baker Court. and that outbound vehicle queues and access points in the vicinity do not create unsafe backups into the Baker Road intersection. While a reservation of access to US 97 is present near the south end of Area 3, no direct access to US 97 should be provided, though consideration could be given to a gated access for emergency use only. Other than the one reservation of access noted, access control is present and should be retained along the remainder of US 97 and Baker Road. EXISTING CONDITIONS: ACTIONS: Area 4 includes properties in the There are no existing access points directly to US 97 or northeast quadrant of the Knott Road and access control is present along US 97 and interchange, bound by US 97, Knott along Knott Road between US 97 and a point that is Road, China Hat Road, and the BNSF approximately opposite the existing Scale House Road railroad. All properties in this area are intersection. No direct access to US 97 should be provided currently under common ownership. and no direct access to Knott Road should be provided While the land is undeveloped today, within 1,320 feet of the future US 97 northbound ramp significant urban development is terminal. Purchase of access control along Knott Road anticipated in the future. between US 97 and a point 1,320 feet from the future US 97 northbound ramp terminal should be considered when IAMP improvements are funded for project development and delivery. Future development access should be provided along China Hat Road and the new collector roadways identified in the City of Bend's Transportation System Plan as much as feasible to reduce reliance on Knott Road for access. MMUS 97 RAK R ROAD !NTERCh-)NCIF At EF A 1,..— t jI rp_,AfY iu.Y 202_`i 66 TABLE 14: ACCESS MANAGEMENT ACTIONS (CONTINUED) EXISTING CONDITIONS Area 5 includes properties in the southeast quadrant of the interchange, bordered by US 97 and Knott Road. There are many tax lots under common ownership in this Area, extending to approximately 1.5 miles south of the interchange. This Area is largely undeveloped and is outside of the Bend urban growth boundary. The land abutting Knott Road is zoned Rural Residential Exception Area (RREA) with some areas zoned Surface Mining (SM). This Area primarily takes access to Knott Road via Scale House Road (private), although another gated access is present about 400 feet further east. ACTIONS: Scale House Road should be relocated further to the east on Knott Road to provide a minimum of 1,320 feet of separation from the US 97 northbound ramp terminal if feasible given any physical or environmental constraints. Also, the ability to achieve adequate sight distance along Knott Road from the new access location must be verified. Purchase of access control along Knott Road between US 97 and the relocated Scale House Road access should be considered when IAMP improvements are funded for project development and delivery. Additionally, the existing gated access (identified as approach number 21) should either be consolidated with the relocated Scale House Road intersection or relocated east of the relocated Scale House Road intersection, with the minimum separation to be determined by Deschutes County. While a reservation of access to US 97 is present near the south end of Area 5, no direct access to US 97 should be provided, though consideration could be given to a gated access for emergency use only. Other than the one reservation of access noted, access control is present and should be retained along the remainder of US 97. EXISTING CONDITIONS: ACTIONS: Area 6 includes properties abutting US 97 north of the BNSF railroad overcrossing to a point approximately one mile north of the interchange ramp tapers. There are three existing public accesses on US 97 (Ponderosa Street, China Hat Road, and Rocking Horse Road) and no private accesses. The Area is largely undeveloped but does include several single-family homes. The land on the east side is zoned Industrial Light (IL) and Commercial General (CG) and the land on the west side is zoned for a variety of residential uses and limited commercial. Close all three of the public accesses as planned in both the City of Bend Transportation System Plan and the US 97 Parkway Plan, with the Ponderosa Street and China Hat Road intersections replaced by an overcrossing. Access control along US 97 is present in this Area, but three reservations of access exist on the west side and two exist on the east side. No direct access to US 97 should be provided to this Area on either side of US 97. US 97 BAKER ROAD !NIFRCHANGE AREA MANA.rLMEN;" FLAN o-.iP..'v' 7'`?1; 67 TABLE 14: ACCESS MANAGEMENT ACTIONS (CONTINUED) EXISTING CONDITIONS: ACTIONS: Area 7 includes properties abutting US 97 to the south of Areas 3 and 5 to a point approximately two miles from the interchange ramp tapers. There are three existing accesses, including a gated emergency access to the Deschutes River Woods neighborhood, an access to the High Desert Museum, and a gated access to a US Forest Service road. All three accesses will remain. The gated accesses must continue to be gated when not in use. A future interchange that would replace the existing access to the High Desert Museum has been discussed in the past but is not included in an adopted plan at this time. Transportation System Management (TSM) generally includes strategies that enhance travel efficiency and safety without significant infrastructure expansion. The preferred alternative concept includes reconstruction and expansion projects that will address capacity and safety needs through 2040. However, the supporting strategies described below for managing the transportation system after the improvements are constructed may help ensure the interchange area functions as intended and that the life of the investment made is extended. Consider reducing the posted speed along Baker Road and Knott Road after the improvements are constructed. The speed limit on Baker Road is currently 35 miles per hour through the interchange area, but a lower speed limit could improve safety, create a more comfortable environment for people walking and biking, and may be appropriate as the environment becomes more urbanized. To initiate this process, Deschutes County must request that a speed zone investigation be performed by ODOT. Given the proximity of the future city limits, a letter of support from the City of Bend is recommended as well. The request must be submitted to the ODOT Traffic -Roadway Section and must ultimately be approved by the State Traffic - Roadway Engineer. A speed zone investigation should be conducted after installation of the interchange improvements or as the area becomes more urbanized to allow the surrounding environment to influence people to drive more slowly. In addition, high travel speeds on Knott Road approaching the northbound ramps have been expressed as an existing safety hazard. The interchange improvements, including the construction of a roundabout (or traffic signal) at the northbound ramps, may naturally result in lower travel speeds approaching this area. However, if the problem persists, other speed reduction measures, such as radar speed feedback signs, should be considered. MEUS 97 BAKER ROAD IN' i f PCHI/I AR -A M,".11JAGEMENT PLAN - M/vr 202' 68 • Maintain and enhance evacuation routes for southwest and southeast communities. Baker Road is currently identified as a Project Wildfire Evacuation Route and serves as one of the few routes out of the Deschutes River Woods neighborhood. The function of the interchange as an evacuation route must be protected in the future, particularly during construction of the proposed improvements. • Add wayfinding signage when regional trails and trailheads are constructed. A network of off-street trails are proposed in the IAMP area. These regional trails are expected to be used by visitors that may not be familiar with the area. Good wayfinding signage will help guide people walking and biking through the interchange area while taking full advantage of the low -stress features such as the separated paths, undercrossings at the northbound ramps, and signalized crossings at the southbound ramps. Wayfinding signage within the interchange area should be designed, implemented, and maintained by ODOT unless another agreement is made. • Manage the new interconnected traffic signals on Baker Road at the US 97 southbound ramps and Cinder Butte Road to prioritize safety. Decisions about appropriate signal timing may involve trade-offs where some delay may be incurred in an effort to provide safe travel. This could involve issues such as safely clearing vehicle queues on the southbound exit ramp or from the railroad crossing, providing safe access for people walking and biking to the transit stop and multi -use paths, and implementing special timing to accommodate evacuation needs as they arise. When making signal timing decisions, the primary objective will be to provide for safe operation, with a secondary objective of minimizing delay. While the signalized intersections include both State and County facilities, it is anticipated that ODOT will have authority over signal operations and will have maintenance responsibilities. This strategy would also be applicable to the US 97 northbound ramp if a signal was desired at that intersection. • Maintain the ability to safely and conveniently accommodate transit access. The current cul-de-sac at the end of Baker Court provides for the ability to turn buses around when arriving at the bus stop adjacent to the County Store property. Should any future development occur on the property south of the store, or should any other changes occur that would alter the use and design of the cul-de-sac, the ability of buses to safely and conveniently access the bus stop must be accommodated. As the road authority, Deschutes County will make decisions involving the design and management of Baker Court. In addition, if a future trailhead was constructed on the east side of the interchange, consideration should be given to transit access and to accommodate a transit stop and the ability for transit vehicles to turn around at the trailhead. In addition to the management strategies described above, the potential influence of future City and County streets on traffic circulation through the interchange was considered to determine if a specific plan for phasing such improvements should be implemented. City of Bend's Transportation System Plan identifies several local street improvements near the area that could influence the US 97/Baker Road interchange. Two of the major projects include the China Hat Road Overcrossing project and the US 97/China Hat Road/Ponderosa Street right -on, right -off closure project. There are also several new roadway connections proposed in the "thumb" (area between US 97, Knott Road, and China Hat Road) and SE Area (area between 15th Street, Knott Road, 27th Street and Ferguson Road) to help accommodate planned growth in the area. RM US 97 BAKER ROAD) INTERCHANGE AREA MANAGEMFNT PLAN , MAY 2025 69 Technical Memorandum #4: Future Baseline (No -Build) Operational Conditions documents a sensitivity analysis indicating that the China Hat Road Overcrossing Project is critical to serving future demand in the "thumb" area by limiting traffic increases on Parrell Road and reducing traffic impacts to the US 97/Baker Road interchange. The sensitivity tests indicate that while keeping the right -on, right -off access at US 97/China Hat Road/Ponderosa Street open does relieve some traffic stress from the US 97/Baker Road interchange (particularly the northbound on -ramp), the minor benefits at the US 97/Baker Road interchange would not offset the negative operational impacts to China Hat Road and US 97 under full development conditions in the "thumb." Based on the sensitivity analysis, there is no critical link between the timing of the need for interchange improvements and the need for local street network improvements at US 97/China Hat Road/Ponderosa Street. Therefore, local street improvements can occur either before or after the US 97/Baker Road interchange improvements. I® US 97 BAKER ROAD INTERCHANGE AREA MANAGEMENT PLAN u Pif,Y 2G;' F9� To implement the IAMP, Technical Memorandum #8: Potential Management Actions in Volume 2 documents potential "management actions/strategies and implementing agencies. The following sections summarize the key implementation steps that are needed related to zoning and land division ordinances and funding strategies. y • The US 97 Baker Road IAMP is considered a refinement to Deschutes County's adopted TSP. It provides background documentation and the preferred improvements within the study area to meet the identified existing and future needs for travelers going through and heading to the area. Once adopted, the IAMP will serve as a refinement to the TSP, identifying the needed local roadway enhancements in the study area that will guide future planning decisions. • The IAMP recommendations may be reflected in the updated TSP, but the County and ODOT will rely on the IAMP document as the policy foundation for and guidance on future actions related to funding, design, and construction of needed transportation improvements. In recognition of this role, the IAMP will be adopted by the County as a legislative amendment to the adopted Comprehensive Plan.27 • Similarly, ODOT will adopt the IAMP as a refinement to the Oregon Highway Plan. • Note that no modifications to the Deschutes County Development Procedures are necessary to implement the IAMP. • Due to the location of the IAMP study area within the Bend Metro Planning Organization (MPO) boundaries and its proximity to Bend's Urban Growth Boundary and areas expected to urbanize in the next 20 years, the Bend Metropolitan Transportation Plan (MTP) also needs to be consistent with IAMP recommendations. Updates to the MTP were recently adopted in September 2024, which included new project descriptions for Phases 1 and 2 of the US 97 Baker Road interchange improvements consistent with those documented in this IAMP. Therefore, no further action is required. The US 97/Baker Road interchange area has significant safety and operational deficiencies under existing conditions that will be exacerbated as substantial future growth occurs to the east. A US 97 interchange improvement at Baker Road is included in the current Bend MTP aspirational project list but no funding has been currently identified for the improvements. Therefore, ODOT, Deschutes County, and the City of Bend should consider cooperative funding strategies that will allow for the construction of improvements in a manner that is timely for supporting future development. 77 Note that the timing of IAMP adoption may precede, coincide with, or succeed the County's adoption of the updated TSP, also a legislative action. If IAMP adoption occurs after the County's adoption of the updated TSP, ODOT must submit a land use application for a plan amendment and carry the plan forward through public hearings before the Planning Commission and Bcard of County Commissioners. US 97 BAKER ROAD INTERCHANGE AREA MANAGEMEiiNT PLAN ® MAY 2025 71 While this IAMP does not include funding commitments from any party, recognizing that approximately two-thirds of the weekday p.m. peak hour trips through the interchange in the horizon year of 2040 will be from new growth, consideration should be given to implementing funding strategies that recover costs from development such as a proportionate share improvement district or a supplemental system development charge. MEUS 97 BAKER ROAD JN7�-.C!1AIV1'I= .-',REA MANAC .MLidI "F".i`a (;/a ?�.?`? 72 MEETING DATE: December 1, 2025 SUBJECT: Work Session - Consideration of Document No. 2025-935 - Improvement Agreement for Phase E1 of the Caldera Springs Destination Resort ( RECOMMENDED MOTION: N/A --work session in preparation of Board signature on Document No. 2025-935. This item is scheduled as a Consent Item for December 3, 2025. BACKGROUND AND POLICY IMPLICATIONS: Please see attached staff memo. BUDGET IMPACTS: None. ATTENDANCE: Haleigh King - Senior Planner E S COG2� o BOARD OF COMMISSIONERS MEETING DATE: December 1, 2025 SUBJECT: Role, Purpose and Oversight of the Deschutes County Office of Internal Audit RECOMMENDED MOTION: To be determined based on Board direction, if any. BACKGROUND AND POLICY IMPLICATIONS: At the October 29, 2025 Board meeting, County Clerk Steve Dennison addressed the Board under "citizen input." County Clerk Dennison provided his response to the 2025 Elections Audit (attached) completed by the County Internal Auditor. Later in the meeting, under "Other Items," Commissioners discussed the Internal Audit program. The Board requested that staff schedule a Board work session to discuss the Audit Code, which outlines the authority and scope of audits. The Audit Code is Deschutes County Code Chapter 2.14 (attached). Deschutes County Internal Auditor Elizabeth Pape submitted a staff memorandum with this agenda item. BUDGET IMPACTS: None ATTENDANCE: Nick Lelack, County Administrator David Doyle, County Legal Counsel Erik Kropp, Deputy County Administrator Whitney Hale, Deputy County Administrator Elizabeth Pape, County Internal Auditor Daryl Parrish, Audit Committee Chair OFFICE OF INTERNAL AUDIT Memo To: Board of County Commissioners From: Elizabeth Pape, Deschutes County Internal Auditor Date: November 26, 2025 Re: Role, Purpose, and Oversight of the Deschutes County Office of Internal Audit The Deschutes County Office of Internal Audit has a 23-year history of providing reliable, independent, and actionable reports to the Deschutes County Board of Commissioners and community. Early in its third decade, perhaps it's a helpful time to review the Office's purpose and function. This memo outlines answers to questions such as • Why do we have an audit function? • What is an audit? • What roles do auditors perform? • What key elements are necessary for an effective audit function? • Who oversees the auditor? The conventional wisdom is that government cannot be effective in the absence of public trust. Government auditors play a central role in fostering such trust, and have even been referred to as guardians of public trust. Without them, citizens would lack credible insight into the soundness of the many inner workings ofgovernment. Richard Chambers, former Institute of Internal Auditors President I've also provided a document, The Role of Auditing in the Public Sector, published by the Institute of Internal Auditors that provides more information. Role, Purpose, and Oversight of the Deschutes County Office of Internal Audit Page 1 of 5 Whv do we have an audit function? Accountability and transparency are key to maintaining a legitimate relationship between government and citizens. Government's not -for -profit nature, operation in the political sphere, and compulsory powers (police, taxation, and regulation) drive the need to know whether management uses authority appropriately, achieves goals, and provides services effectively, efficiently, economically, and equitably. What is an audit? The Government Accountability Office defines government auditing as an objective analysis to help management improve program performance, reduce costs, initiate corrective action, and contribute to public accountability. A performance audit starts with clear questions and a plan for gathering evidence to support actionable conclusions. Auditors assess risk, choose suitable criteria, and design methods to gather reliable evidence to answer audit objectives. Fieldwork then tests and analyzes that evidence, with work papers documenting every step taken and the reasons why. Finally, the report tells a complete, concise story: including objectives, scope, and methods; findings and conclusions; practical recommendations; and management's views. The through line is rigor and transparency: plan well, test and validate, document thoroughly, and report clearly. What roles do auditors perform? Auditors provide • Insight. Auditors can provide insight by identifying which programs are working and which are not, sharing best practices, innovations, and benchmarking results. • Foresight. Auditors conduct trend analysis to identify emerging challenges before they become crises. • Validation. Auditors can validate financial and performance reporting generated by management. • Oversight. They help to answer questions about whether staff are doing what they are supposed to do. • Detection. Audits can be used to identify behavior that is inappropriate, inefficient, illegal, or fraudulent. Role, Purpose, and Oversight of the Deschutes County Office of Internal Audit Page 2 of 5 • Deterrence. Auditors can assess controls and risks to prevent problems before they happen. Simply having an audit function can act as a deterrence. People are less likely to commit wrongdoing when they know someone is watching. What key elements are necessary for an effective audit function? Effective audit functions don't come naturally. Organizations must be intentional when establishing governance structures to protect auditor independence, access to information, and the ability to scope and report on audit objectives. Without these protections in place, management can intentionally or unintentionally influence audit outcomes, lessening the value that comes from providing reliable and unbiased information. Many of these protections are already established in Deschutes County Code section 2.14. Essential elements include: • A formal mandate. DCC 2.14.001 creates a mandate for the Office of County Internal Audit, stating that the Office's purpose is to "provide independent objective assurance and consulting services designed to add value and improve Deschutes County's operations through improved performance and enhanced control environment thereby providing greater accountability to its residents." • Organizational independence. DCC 2.14.025 establishes an independent reporting structure for the County Internal Auditor whereby the Auditor reports functionally to the County Audit Committee and administratively to the County Administrator. • Adherence to standards. Government Auditing Standards provide a nationally recognized framework to conduct high -quality audits with competence, integrity, objectivity, and independence. DCC 2.14.025(B) requires that the County Internal Auditor adhere to these standards when overseeing the Office and reporting. • Determine scope and objectives. Auditors must be able to independently select audit objectives and scope based on risk without allowing management to cherry pick well performing programs for review or to avoid areas they know are problematic. DCC 2.14.030 outlines areas the Auditor may include in an audit scope. DCC 2.14.040 describes the process for selecting audit topics. The Auditor proposes topics for inclusion on the audit plan which is approved by the Audit Committee. Role, Purpose, and Oversight of the Deschutes County Office of Internal Audit Page 3 of 5 • Access to information. Auditors can't draw conclusions without access to information. DCC 2.14.060 gives the Office unrestricted access to employees, information, and records (including electronic data). • Communication. Auditors must have the ability to report objectives and conclusions regardless of whether they are favorable or unfavorable. DCC 2.14.070 requires that each initiated audit conclude with a report to the Board of County Commissioners and Audit Committee that includes relevant background information, findings, and conclusions. Who oversees the auditor? The work session today was requested to answer questions about oversight of the Office of Internal Audit. The Office reporting structure is unique in the County where most employees either report to the County Administrator or to an elected official with management responsibilities (such as the Sheriff). The County Administrator, County Counsel, and the County Internal Auditor are the only positions the Board of County Commissioners oversee directly. The Auditor's unique position is by design. Though internal auditors can add significant value through familiarity with an organization's operations and environment, stakeholder trust is impeded if independence is not protected. Unlike the County Administrator and County Counsel, the Code balances independence by requiring additional oversight for the County Internal Auditor. Administrative Reporting. The Internal Auditor reports administratively to the County Administrator. The County Administrator directly oversees conformance with County administrative rules including time recording, procurement and contracting, hiring and human resources management, and information technology security. Functional Reporting. The Audit Committee oversees other aspects of the County Internal Auditor's performance. Though the Board of County Commissioners has the ultimate authority to hire or dismiss the County Internal Auditor, the Board also consults with the Audit Committee. Additionally, the Audit Committee performs the County Internal Auditor's annual employee performance review and approves the annual audit work plan. Role, Purpose, and Oversight of the Deschutes County Office of Internal Audit Page 4 of 5 • Outside Quality Review. DCC 2.14.090 requires outside quality assurance reviews of the Office of Internal Audit to include compliance with Government Auditing Standards including o general standards such as competence, professional judgment, and quality assurance o fieldwork standards such as planning, supervision, and evidence o reporting standards such as report content, timeliness and distribution. The Association of Local Government Auditors conducts these reviews every three years and results are presented to the Board of County Commissioners, the Audit Committee, and posted publicly on the Office website. Although the Office's reporting structure is unique in the County, these three additional oversight requirements ensure that the Office of Internal Audit and the Internal Auditor operate according to standards that support reliable and objective reporting. Role, Purpose, and Oversight of the Deschutes County Office of Internal Audit Page 5 of 5 To: Elizabeth Pape, County Internal Auditor From: Steve Dennison, Deschutes County Clerk Date: October 29, 2025 Subject: Management's Response to 2025 Elections Audit Report 2025 Elections Audit Response Executive Summary County Clerk In light of this audit's findings, it is imperative to address the report's inaccuracies and emphasize the importance of factual integrity, especially during a time when elections face unprecedented challenges. Such challenges include reductions in federal funding, widespread false narratives and misinformation, threats to election workers and increasingly sophisticated cybersecurity risks. Discrepancies within audit processes that remain uncorrected and misleading only intensify these challenges. Accurate information is vital to uphold public trust in the electoral system, particularly when scrutiny is heightened. While some components of the report were seen as positives by audit committee members, this perception overlooks the harmful impact of the misinformation and false narratives this report contains. The refusal of the Internal Auditor to correct these inaccuracies before releasing the final report underscores the need for auditing reforms to ensure accountability and fairness in county publications. Unedited statements could unnecessarily harm the county's reputation and similarly impact other counties across the state. Amidst these numerous external challenges, the dedicated staff of the County Clerk's Office work tirelessly to ensure transparent and secure elections. Their dedication to these values underscores their commitment to serving the public with integrity and honesty. The following responses address the audit report's inaccuracies, findings, and recommendations. Despite the widespread inaccuracies identified in this report, as detailed in the responses below, the County Clerk's Office acknowledges the risks associated with the Internal County Auditor's recommendations. This recognition arises not from the Auditor's identification of these items, but from the fact that the recommendations already align with the office's ongoing commitment to excellence in the work that is the subject of this audit. Request from Clerk's Office to Conduct this Audit Following the 2020 Presidential Election, the County Clerk's Office requested an audit from the County Internal Auditor, then David Givans, to address the increase in misinformation and disinformation relating to elections. The County Clerk's Office, committed to transparency and integrity, sought to educate the public about the electoral process. This effort aimed to address concerns and misconceptions regarding critical components such as voter registration, ballot creation, vote tabulation, election results, and audits. David Givans understood the scope and significance of the Clerk's audit request, recognizing it as a proactive measure to demonstrate how the County safeguards democracy and voter integrity, rather than as a reactionary audit focused on performance or compliance issues. David Givans retired before the audit was initiated, possibly taking with him an understanding of the original intent and objectives of the elections audit. 1 300 NW Wall Sweet Suite 2N 1 PC) Box 6005 Bono, orngol') 9770 -600S (",541)388-6547t electior)s,@Je chutescounty.gov 1 (541) :388 6549 - recc,�c>in�C�ciescYu�tesc�)unty.gev ,�,��,r, i •.,��.�'-i gar ��.;1; ,: Page 1 of 9 Reputation The Deschutes County Clerk's Office has a strong history of excellence in fulfilling its diverse responsibilities. The office maintains essential responsibilities such as overseeing elections, maintaining voter registrations, recording of real property records, issuing marriage licenses, processing passport applications, running the County Archives and Records Center and facilitating the Property Value Appeals Board, all while ensuring compliance with relevant regulations and laws. In 1999, the Deschutes County Clerk's Office demonstrated its commitment to innovation by becoming the first county in Oregon to offer online access to public records. In August 2017, it led the state again by allowing couples to apply for marriage licenses online, enabling them to apply from anywhere in the world before visiting the office to complete the purchase. In his effort to meet with staff and observe operations for each county throughout the state, on April 15, 2025 Oregon Secretary of State, Tobias Reed visited the Deschutes County Clerk's Office. As a testament to the positive reputation the office maintains, one month later, on May 14, Secretary Reed chose to return to Deschutes County for his first ride -along to ballot drop boxes to observe the ballot collection processes during the May 20, 2025 Special District Election. Secretary Reed "rode along to observe the process of gathering ballots from drop boxes, sorting, counting and security of the election system --says... ballots are safe and the results are accurate."' The Chief Elections Official in the state partnered with the Deschutes County Clerk's Office on a media tour because of the office's reputation for providing consistently accurate, transparent and compliant elections. The County Clerk's Office is honored to build on these successes and continue its dedication to quality public service to the voters of Deschutes County. ' Snavely, Brooke. (2025, May 14). Oregon Secretary of State tours Deschutes County's voting system ahead of May 20 election. Central Oregon Daily. h1Yp;�wwt�_��n�ralc,regd�(y.ccfeuv Leiec�n larear-gray 29na4�(etL voting- -4Qf8--b3b5 2c_Q2a33 26fQ_ tMt Page 2 of 9 Key Findings and Responses from the Audit: 1. Security Concerns Audit Finding: Incomplete cooperation with the audit regarding information security of the Clear Ballot system. "Scope Impairment: Auditor Cannot Draw Conclusions Related to Information Security." Response: With election infrastructure and systems under constant attack from state and non -state actors, it is more imperative than ever to safeguard the federal and state election security measures established to protect our election systems. In accordance with ORS 254.074 and OAR 165-007-0310, the County Clerk's Office develops and maintains a comprehensive Election Security Plan addressing various components. At a minimum, the plan must include the following components: (a) Ballot security at the printer; (b) Ballot storage security; (c) Ballot security during transport to inserter (if applicable), to the county, or to the post office; (d) Ballot security during insertion; (e) Ballot security at dropsites; (f) Security of voted ballots awaiting verification; (g) Security of voted ballots verified and awaiting inspection; (h) Security of voted ballots opened and inspected; (i) Facsimile ballot security; (j) Ballot tally system; (k) Early scanning procedure (if applicable); (1) Preventing the premature release of vote tally; (m) Post election security; and (n) Information about whether or not secrecy envelopes or sleeves will be used. The County Clerk's Office is mandated by Oregon Revised Statutes, Oregon Administrative Rule, and Secretary of State's Critical Directive 2022-3 to keep the Election Security Plan and information pertaining to it confidential and free from public disclosure. Secretary of State's Critical Directive 2022-3 (See attached) addresses Critical Infrastructure Security. This includes but is not limited to the physical security of elections offices, secure ballot storage, ballot scanning and tabulation machines, vote -by -mail infrastructure, information processing systems, communications systems, and elections security plans. The U.S. Department of Homeland Security has designated elections as Critical Infrastructure. To safeguard this infrastructure, the Clerk's Office maintains strong partnerships with the Secretary of State, OACC, the FBI, and local law enforcement to protect personnel, facilities, and systems. This collaboration also ensures adherence to federal guidelines and best practices. Additionally, the Clerk's Office has had multiple assessments by Homeland Security to ensure its facilities are safe. Upon receiving the Internal Auditor's request to access this Election Security Plan, the County Clerk deliberated, after thorough consultation with the State Elections Division of the Secretary Page 3of9 of State, the County Legal Department, other County Clerks throughout the state, and the Oregon Association of County Clerks (OACC), and concluded to safeguard the Election Security Plan from the public processes of the Internal Auditor. The County Clerk's Office could not provide the Internal Auditor the Election Security Plan or information pertaining to it without risk of violating the aforementioned laws and directives — a decision that was unanimously shared by County Clerks throughout Oregon. While the Election Security Plan remains confidential, the Clerk's Office has been fully transparent with all other information requested by the Internal Auditor. The details provided confirm that the office: Complies with legal requirements and regulations in conducting elections. Maintains robust procedures. Conducts regular audits of election results to ensure all systems are working as designed. • Provides public access to information. • Is transparent in communication. Permits public observation, enabling the public to monitor processes for fairness and accuracy, demonstrating a transparent environment open to scrutiny and verification. • Actively engages with community organizations to foster inclusive participation. Engages in public education initiatives to inform voters about their rights and the voting process. • Receives feedback from voters and stakeholders to provide feedback and report issues. 2. Ballot Drop Box Accessibility Audit Finding: Ballot drop boxes exceeded the height and had gaps, making them non -compliant with accessibility standards. "Ballot Drop Boxes Not Fully Accessible." Response: Deschutes County is deeply committed to ensuring accessibility and legal compliance across its voting infrastructure, reflecting a dedication to inclusivity and equity. By offering solutions for different access needs, such as designing drive -through ballot drop boxes for vehicle access and walk-up boxes with pedestrian -friendly routes, the county addresses specific user requirements and complies with federal and state guidelines. This approach ensures all voters, especially those with disabilities, can participate effortlessly, showcasing Deschutes County's proactive stance in maintaining functional integrity and enhancing the overall voting experience. Additionally, vote -by -mail significantly enhances the accessibility of Deschutes County's election system by allowing all voters the convenience of returning their ballots, postage -paid, through the mail. Furthermore, the Secretary of State's Online Ballot -Marking Tool provides voters with disabilities and qualified military and overseas voters an alternate -format ballot that is fully accessible with screen -reader systems. These options eliminate the need to travel to drop sites, thereby accommodating individuals with mobility challenges, transportation issues, or scheduling conflicts. By ensuring every voter receives a ballot by mail, the county provides a flexible and inclusive option that aligns with Oregon's vote -by -mail system, further promoting civic engagement and participation across diverse populations. Page 4of9 The County's Internal Auditor erroneously applied a US DOJ Checklist to judge accessibility of the County's drive -through ballot drop boxes. The US DOJ Checklist referenced by the Auditor is specific to Polling Places and walk-up ballot drop boxes. Deschutes County has one Polling Place and that is within the County Clerk's Office. This Polling Place is fully compliant with applicable ADA laws. The United States Department of Justice Civil Rights Division details the American Disability Act requirements for accessibility. The 2010 ADA Standards for Accessible Design Section 228 Depositories, Vending Machines, Change Machines, Mail Boxes, and Fuel Dispensers states: "228.1 General. Where provided, at least one of each type of depository, vending machine, change machine, and fuel dispenser shall comply with 309. EXCEPTION: Drive -up only depositories shall not be required to comply with 309."2 Section 309 mandates that operable parts such as depositories need to meet certain clear floor space, height, and force specifications3. ADA Section 228 clearly exempts drive -through depositories from the Section 309 requirements referenced in DOJ Checklist the Auditor used to judge the county's drive -through drop boxes. Despite bringing this information to the Auditor's attention, the Auditor chose to keep this error in the report. Deschutes County Clerk's Office ensures compliance with ADA guidelines through close coordination with the County's Facilities Department. Inspections of each drop box occur before, during and after each election cycle confirm their operational integrity and accessibility. During the Audit Committee Meeting held on October 10, 2025, County Facilities Director Lee Randall clarified his department's ADA acumen and familiarity with ADA standards. Director Randall stated a distinction should be made between a drive -through and a walk-up ballot drop box. Drive -through ballot drop box (Drive Aisle) • Drive aisles are designed solely for vehicular use and not intended for pedestrian foot traffic. • Drive -through drop boxes are exempt from ADA Section 309 requirements. Walk-up ballot drop box (Accessible Route) • Must maintain an accessible route for pedestrians and be designed to ensure inclusivity and compliance with legal requirements, enabling individuals with disabilities to navigate public spaces safely and efficiently. 2 (2010, September 15). 2010 ADA Standards for Accessible Design. ADA.GOV. ttttp_s:1Zwvvw.ada.gQvltaw=and.- regs/de�igr�ta�darc�l.241�?-5ttis/#�e�tion�4 1(2010, September 15).2010ADA Standards for AccessibleDesign. ADA. GOV.https:/-/www,ada..ggv/tawand g , - standaCds12010,stdsl#30.Sp�rab�-pacts Page 5of9 Director Randall further clarified that since °Accessible Route" is specifically for pedestrians, he would not apply [accessible route requirements] to a drive up box. "They (walk-up and drive -up boxes) are mutually exclusive: you would never route an accessible pedestrian route through a drive by where vehicles use it. We would not even want to encourage people to use a drive up box. The height standards vary due to pavement variability.... If it met the lowest standard of a walkup box which this checklist applies to, it would actually be too low to use from a vehicle."' The reach range for a walk-up depository is 48-15 inches. If a drive -through drop box had a handle and opening at 15 inches above the ground, Director Randall is affirming this would be too low to use from a vehicle. Director Randall emphasized this point further by stating, "We work with the ADA every day. We have an in-house expert who [has] a master's degree in architecture. I asked him to review this [and] he came to the same conclusion that this standard would apply to the walk-up boxes that we have but not to the drive up."5 The Internal Auditor is incorrectly applying the US DOJ Checklist to the County's drive -through drop boxes, falsely stating that they fall out of ADA compliance. What is even more concerning is the Auditor's decision to continue apply this non -applicable standard despite being informed of the error on multiple occasions. In the same section regarding drop box accessibility, the Auditor states, "locations had only one box without a designation." It should be noted that the Clerk's Office publishes locations and details regarding each dropsite on its website and in the Voters' Pamphlet. The Office also partners with the County Facilities Department to deploy ample traffic signage for every ballot drop box throughout the county. These efforts exceed state requirements. If the issue at hand is signage or communication regarding drop boxes, the Auditor should have simply stated this request rather than conflate it with ADA walk-up drop box requirements. The Clerk's Office is committed to continuous improvement and will enhance its processes and checklists to ensure that all components of the drop boxes are thoroughly examined during routine checks. 3. Voter Accommodation Awareness Audit Finding: Limited awareness of available voter accommodations and translations. "Accommodations Offered, but Outreach Could Be Improved." Response: Deschutes County Clerk's Office ensures compliance with federal and state voting accessibility requirements by providing diverse resources and accommodations. The Voters' Pamphlet is distributed to all registered voters and is available online67. An audio version is also available and posted online to assist visually impaired individuals. For non-English speakers, the pamphlet contains links to translated versions on the Secretary of State's website. The county website enhances accessibility further with a translation feature that supports nine languages, addressing (2025, October 10). Audit Committee Meeting. Deschutes County. i�ttfzsl+'rYkht.es.cc,-b-acLid.L: ommfttee-meeting-7 (2025, October 10). Audit Committee Meeting. Deschutes County. I�ttAs1%rw,descQrgLt�c-LeLsusl�t cgm m ittee-m-eatjng_Z 1(2023). Chapter 251 -Voters' Pamphlet. Oregon Legislature. helps;LLrr��rego�.kegi��ature,g�ibi��lau��'c: �1:�s25�h�mt (2025, October 28). Secretary of State Elections Division - Chapter 165.Oregon Secretary of State Tobias Read. OAR 165-02211tt �seeo Mate,ce,us(o dfOESIa'Chp�erRul.act.is�rt.',.e4td�h_nt�«r-;3 Page 6 of 9 the linguistic diversity. This robust approach fosters an inclusive voting environment, ensuring that all voters, regardless of language or ability, have access to critical election information. The Auditor did not provide specific information on what standard she is measuring Deschutes County against. The County Clerk's Office has not received feedback of any kind from the public regarding communication about available accommodations. The Auditor somehow received feedback from unknown "representatives from the disability community' who said "there was not enough awareness about available accommodations. The report goes on to walk back this statement by stating, "the problem was not specific to Deschutes County, but that Multnomah County did a better job of promoting accommodations." It is unreasonable to compare these two counties given the vast differences in population, demographics and budgetary resources. If the standard of measure is Multnomah County instead of federal and state law, the Deschutes County Clerk's Office asks for a more reasonable measurement. In a similar fashion, the Auditor referred to feedback provided by "the Latino community' but would not provide additional information when requested by the County Clerk. Missing from the audit report was the fact that the Clerk's Office makes significant efforts to conduct various outreach initiatives despite limited funding and resources. Below are examples of how the Clerk's Office disseminates and promotes accurate information regarding voter registration, elections, and voting: • Website Management: Maintain a website with up-to-date election information. • Public Communication: Collaborate with the County Communication Team to share key dates and processes through county social media and press releases. • Voters' Pamphlet Distribution: Create and distribute a Voters' Pamphlet for every election, sent to every household during countywide elections. Contents include: • Access to translated information • Key dates and deadlines • Voting Information: • Qualifications and procedures for registration • Registration deadlines and contact info • Voting Instructions • List of ballot drop sites and locations • Overview of the election process • Information about candidates and measures • Additional necessary information • Media Engagement: Conduct interviews and participate in podcasts and spotlight articles with the County Public Information Officer (PIO). • Public Engagement: • Provide office tours office and processes for interested parties. • Present to groups upon request. • Conduct "Election Observer" training during primary and general elections to educate those interested in the overall process. • Youth Engagement: Organize art and coloring contests, including an 1 Voted" sticker contest, to engage and educate youth about voting. • Educational Programs: Present at the County College program to explain the election process. • Community Involvement: Volunteer at the county booth during fairs when available. Page 7 of 9 This comprehensive approach shows the commitment of the Clerk's Office to providing transparent and accessible voting information to the community, while managing resource constraints effectively. Additional interest might focus on exploring innovative digital outreach techniques or partnerships to enhance voter engagement and education. This approach is regularly reassessed to identify opportunities for improvement. This continuous improvement process ensures that outreach efforts remain effective, relevant, and responsive to community needs. 4. Other Concerns with Audit Report Audit statement: The electoral process is increasingly scrutinized and public confidence in elections has lost ground. In Deschutes County, the responsibility to uphold the integrity of elections is more vital than ever. Response: The audit was initiated at the County Clerk's request in an effort to enhance transparency in response to public concerns about election integrity. However, the focus on inaccuracies rather than the election process may have hindered potential benefits. By concentrating on the mechanics of what the County Clerk's Offices does and how the department consistently achieves accuracy, this audit could have provided more substantial insights into the reliability of election systems. While some counties face audits after costly errors, proactive auditing of successful processes ensures continuous improvement without financial repercussions. Addressing how the County Clerk's Office maintains secure and accurate elections time and again would offer deeper value and reinforce public confidence. Audit statement: Previous findings related to information security also contributed to a heightened sense of risk in this area. During a 2024 integrated audit, auditors found that Clerk's Office recording staff not elections staff disabled supervisor review and segregation of duties controls in software to make it easier to void receipts and to circumvent review processes. Staff were also using shared logins due to a perception that logging in and out of shared workstations took too much time. We recommended the Office either resolve these control issues or formally accept the risk of not implementing controls. Staff chose to resolve the controls issues. We also found that software access rights had not been updated during a 2008 cash handling audit. Response: The County Clerk's Office requested that this paragraph be removed since its topic is unrelated to the scope of work of the elections audit. This paragraph highlights past information security issues that were acknowledged and resolved last year as part of a different audit. There is no apparent direct link between last year's control issues and the specific objectives of this election audit; consequently its important to recognize that off -topic references such as references to past, resolved audits, could indirectly influence public trust in the Clerk's Office. This, in turn, might affect perceptions of election integrity. The Auditor denied the request of the Clerk to remove this paragraph from the report. Audit statement: The Americans with Disabilities Act, National Voters Registration Act, and Voting Rights Act require assistance and translation for registering and voting. Response: This statement is not true. Neither the National Voter Registration Act (NVRA) nor the Voting Rights Act (VRA) requires translation for registration and voting nationwide. Only specific jurisdictions must provide translated materials and assistance, based on demographic criteria set by the VRA. Page 8 of 9 Audit statement: Election staff have the authority to interpret voter intent. If staff abuse this authority it could result in reduced confidence in elections. Response: The suggestion that the Clerk's Office staff might "abuse this authority," leading to reduced confidence in elections, is unwarranted and does not reflect the commitment and integrity that team consistently demonstrates. Staff adhere to strict guidelines from the Oregon Vote by Mail Manual for interpreting voter intent. Training is provided to ensure they follow procedures accurately. Ballot interpretation guidance is clearly laid out, and staff follow these protocols diligently to uphold electoral integrity. Ballot adjudication follows a strict two -person integrity policy where staff different political party affiliations work together to verify the voter intent of ballots that contain overvotes, undervotes, write-in names, and stray marks. Additionally, adjudication is done in a secure room under camera surveillance. Control processes, consistent with federal and state best practices for election security, abound here. The Clerk's Office team is highly trained and dedicated to maintaining the electoral process's integrity, ensuring transparency and accountability at every step. Any implication otherwise fails to recognize the robust checks and balances in place that support fair and accurate election outcomes. These practices ensure that every vote is counted as intended, reflecting the team's unwavering commitment to a fair and transparent electoral process. Audit statement: The Clerk's Office website did not include information about accommodations or translatiorWriterpretation. Response: This statement is not true. Information about accommodations and links to translated materials are provided in each Voters' Pamphlet created by the Clerk's Office. These pamphlets are also posted on the election webpage for each election. Closing Comments In response to the audit report's concerns, it is crucial to address the vague reference to the "disability community" and "representatives from the Latino community" by seeking clarification from the Auditor as well as highlighting the Clerk's Of rice's proactive outreach and accessibility (such as ADA-compliant facilities and accessible voting machines). The lack of specific ORS and OAR citations in the report necessitates a request for these details to ensure compliance with laws such as the ADA and Help America Vote Act (HAVA). The efforts of the Clerk's Office already exceed statutory requirements through enhanced election worker training, user-friendly voting guides, and collaboration with community organizations. However, budgetary and staffing constraints limit initiatives, despite the office's efficient use of resources to maximize accessibility benefits. The Clerk's Office maintains a strong commitment to accessibility, with plans for future enhancements contingent on resources, and seek ongoing engagement with advocacy groups for guidance. This situation underscores the need to explore additional funding opportunities, examine best practices from other jurisdictions, and ensure alignment with evolving needs in the disability community. Page 9of9 CHAPTER 2.14 COUNTY INTERNAL AUDITOR 2,14.001 Office f n Internal Audit 2,14.010 Appointment Or Dismissal Of County Internal Auditor 2.14,020 Qualifications Of County Internal Auditor 2,14,025 Independence 2,14.030 Authori y / Scope Of Audits 2.14.040 Internal Audit Schedule 2,14.050 Funding 2.1 p�oygea, Records And Property 2.14.070 Audit Report�g And Records 2.14.080 Contract Auditors, Consultants And Experts 2.14.090 Quality Assurance Review 2.14 1 {RRe a ed} .14 1 Office Of County Internal Audit The Office of County Internal Audit is created and the person holding that office shall act as the head of internal audit for the County. The office consists of the County Internal Auditor and such subordinate employees as the Board of County Commissioners may provide. The purpose of having the Office is to provide independent objective assurance and consulting services designed to add value and improve Deschutes County's operations through improved performance and enhanced control environment thereby providing greater accountability to its residents. The County Internal Auditor is the Chief Audit Executive for the County and shall perform all day-to-day functions necessary for the administration and management of the Office of County Internal Audit. Such duties include but are not limited to: A. Develops and implements policies and procedures for the Office of County Internal Audit in compliance with the government auditing standards. B. Directing all internal audit activities for the County and is responsible for the most difficult assignments requiring a higher level of responsibility, applying advanced subject knowledge, and exercising significant independent judgement and oversight over staff. C. Advises the Board of County Commissioners, County Administrator, and County department/offices on the continuous improvement of County governance, risk management, and financial control processes. D. Selects, appoints, directs, supervises, disciplines, and dismisses all Office of County Internal Audit staff consistent with County policies and procedures and for the efficient and effective administration of the affairs of the office. This chapter established the general authority and responsibility of the Office of County Internal Audit. HISTORY Adopted by Ord. 2018-007 § 1 on 121412018 Amended by Ord. 2022-008 §1 on 111812022 2.14.010 Appointment Or Dismissal Of County Internal Auditor The County Internal Auditor shall be appointed by or dismissed by the County Administrator in consultation with a majority of the public members of the County Audit Committee and an affirming majority vote of the BOCC. HISTORY Adopted by Ord. 002 5-014 §1 on 1112812005 Amended by Ord. 2,Q13-004 §1 on 4181201 Amended by Ord. §1 on 111812022 2.14.020 Qualifications Of County lnterngI �,�aditor The County Internal Auditor shall possess adequate professional proficiency, demonstrated by relevant certification, such as CPA (Certified Public Accountant), CIA (Certified Internal Auditor), CGAP (Certified Government Auditing Professional) or a combination of education and experience as would be desired by the County. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 2.14.025 IndeRendence A. The County Internal Auditor has neither a management nor a policy role; and no operational authority nor responsibility. Rather, the Office of County Internal Audit provides independent and objective information about County programs and services. B. The County Internal Auditor governs the office by adherence to the government auditing standards issued by the Comptroller General of the United States. The office will work to be independent as defined by that framework and shall remain free of influence by any organizational elements. C. The County Internal Auditor reports functionally to the County Audit Committee and administratively to the County Administrator. HISTORY Adopted by Ord. 2022-008 §1 on 111812022 2,14.030 Authority I -Scope Of Audits A. The Office of County Internal Audit shall establish internal auditing policies and procedures to assure that audit work is completed in accordance with those standards. Any audit work that is undertaken not in compliance with standards shall be disclosed in the Auditor's report. B. The Office of County Internal Audit shall have authority to conduct financial, attestation, and performance audits of all departments, offices, boards, activities and agencies of the County in order to independently and objectively determine whether: 1. activities and programs being implemented have been authorized by County Code or adopted policy, state law or applicable federal law or regulations; 2. activities and programs are being conducted as prescribed by management/governing body to accomplish the objectives intended by County Code, state law or applicable federal law or regulations; 3. activities or programs efficiently and effectively serve the purpose intended by County Code, state law or applicable federal law or regulations; 4. activities and programs are being conducted and funds expended in compliance with applicable laws; 5. revenues are being properly collected, deposited and accounted for; 6. resources, including funds, property and personnel, are adequately safeguarded, controlled and used in an effective and efficient manner; 7. financial and other reports are being provided that disclose fairly and fully all information that is required by law, that is necessary to ascertain the nature and scope of programs and activities and that is necessary to establish a proper basis for evaluating the programs and activities; 8. there are adequate operating and administrative procedures and practices, systems or accounting internal control systems and internal management controls which have been established by management; and 9. there are indications of fraud, abuse or illegal acts, which need further investigation. C. The Office of County Internal Audit may also provide non -audit services (consulting) that are not covered by governmental auditing standards. Non -audit services differ from audits in that the Office of County Internal Audit may 1. Perform tasks requested by management that directly support the entity's operations; 2. Provide information or data to a requesting party without providing verification, analysis or evaluation. These non -audit services should be approved by the County Administrator, after consultation with the Audit Committee. The Office of County Internal Audit should continue to work independently (in fact and appearance) when performing non -audit services. The County Internal Auditor will decide and advise the County Administrator if the non -audit work may jeopardize independence and whether the work should be performed. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2022-00$ §1 on 111812022 2.14.040 Internal Audit Schedule At the beginning of each calendar (or fiscal) year, the Office of County Internal Audit shall submit a one to five-year audit work schedule to the Audit Committee for approval. This audit work schedule should incorporate information from multiple sources including the Office of County Internal Audit's assessment of significant risks to the organization and input from Management, Audit Committee, and the Board of County Commissioners. The schedule shall include the proposed plan for auditing departments, offices, boards, activities, subcontractors and agencies for the period. The schedule may be amended. Additionally, the County Internal Auditor (for cause) may spontaneously initiate and conduct any other audit deemed necessary. Any significant changes (an expectation of scope of work changing by more or less than 150 hours) to the workplan for audit or non -audit projects should be approved in advance by the County Administrator and the Audit Committee. In the selection of audit areas and audit objectives, the determination of audit scope and the timing of audit work, the Office of County Internal Audit should consult with external auditors so that the desirable audit coverage is provided and audit effort is properly coordinated. HISTORY Adopted by Ord. 2005-014 §1 on 1112612005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2022-008 §1 on 111812022 2.14.056 Funding The County shall provide sufficient funds to enable the Office of County Internal Audit to carry out the responsibilities specified herein subject to annual appropriation by the BOCC. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 201 -004 § 1 on 41812013 Amended by Ord. 2022-008 §1 on 111812022 2.14.060 Access To Employees, Records And PrQpldy. A. All officers and employees of Deschutes County shall furnish the Office of County Internal Audit with unrestricted access to employees, information and records (including electronic/computerized data) within their custody regarding powers, duties, activities, organization, property, financial transactions, contracts and methods of business required to conduct an audit or otherwise perform audit duties. In addition, they shall provide access for the Office of County Internal Audit to inspect all property, equipment and facilities within their custody. A discussion of appropriate access should occur with County Counsel if access to documents is restricted by applicable law. B. Further, all contracts with outside contractors and subcontractors shall provide the Office of County Internal Audit access to the contractually related financial and performance -related records; property, equipment and services purchased in whole, or in part, with governmental funds C. If such officers, employees or contractors fail to produce the aforementioned access and/or information, the Office of County Internal Audit with the aide of County Legal Counsel may initiate a search (or obtain a subpoena) to obtain exhibit copies (physical or electronic) from computerized systems, book, paper or record of any such official or employee, or outside contractor or subcontractor, in accordance with state law or the applicable contract. D. Subject to public records laws, the Office of County Internal Audit shall not publicly disclose any information received during an audit that is considered confidential by any local, state or federal law or regulation. The Office of County Internal Audit shall maintain the confidential status of information and records furnished by County officers and employees to the extent allowable under public records laws. HISTORY Adopted by Ord. 2005-014 § 1 on 1112812005 Amended by Ord. 2013-004 §1 on 41812013 Amended by Ord. 2 22-008 §1 on 111812022 2.14.070 Audit Reporting And Records A. Each audit will result in a report containing relevant background information and findings and recommendations, and shall communicate results to the Board of County Commissioners, Audit Committee, and appropriate management. Subject to applicable public records laws, the report shall also be available for public examination. If certain pertinent information is prohibited from general disclosure, the audit report should state the nature of the information omitted and the requirement that makes the omission necessary. B. The Office of County Internal Audit should follow state archive guidelines as appropriate and as identified under OAR 166-150-0005(4) (currently - a retention schedule of 10 years). C. The Office of County Internal Audit should periodically report to the Audit Committee (and Board of County Commissioners) on the work performed and any significant findings, which have not been fully addressed by management. D. The Office of County Internal Audit shall follow-up on audit recommendations, as practical, to determine if management is implementing corrective action as identified in their response to the audit report findings and recommendations. The Office of County Internal Audit may request periodic status reports from auditees regarding actions taken to address reported deficiencies and audit recommendations. HISTORY Adopted by Ord. 2005§1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2Q22-008 § 1 on 111812022 2.14.080 Contract Auditors, Consultants And Experts A. Within budget limitations and approval by the County Administrator, the Office of County Internal Audit may obtain the services of Certified Public Accountants, qualified management consultants, or other professional experts necessary to perform auditor duties. An audit that is performed by contract must be conducted by persons who are independent of the governmental unit and its officers. The Office of County Internal Audit will coordinate and monitor auditing performed by public accounting, professional experts, or other organizations employed under contract by Deschutes County. B. The Office of County Internal Audit may participate with the Audit Committee in the selection of qualified finalists for the provider of Deschutes County's annual financial audit. The Audit Committee shall select a provider from the finalists. This selection shall be presented to the Board of County Commissioners for review and approval. The process will follow Deschutes County's contracting processes. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2022-008 §1 on 11/8/2022 2.14.090 Quality Assurance Review A. The audit activities of the Office of County Internal Audit shall be subject to quality review in accordance with applicable government auditing standards by a professional, non -partisan objective group (such as the Association of Local Government Auditors (ALGA)). A copy of the written report of this independent review shall be furnished to the Audit Committee and the Board of County Commissioners. This report shall be available to the public. B. The quality control review shall determine compliance with government auditing standards and the quality of the audit effort and reporting, including: 1. general standards such as competence, professional judgment, and quality assurance; 2. fieldwork standards such as planning, supervision, and evidence; and 3. reporting standards such as report content, timeliness and distribution. C. The County shall reimburse the costs of the quality control review team from funds budgeted in the Office of County Internal Audit's budget. Within available time constraints, members of the Office of County Internal Audit may reciprocate with other organizations by participation in quality control teams. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2022-008 §1 on 111812022 2.14.100 (Repealed_) HISTORY Adopted by Ord. 2005-0 4 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Repealed by Ord. 2013-004 §1 on 41812013 2.14 001 Office Of County Internal Audit 2.14.010 Appointment Or Dismissal Of County Internal Auditor 2.14 020 Qualifications Of County Internal Auditor 2.14.025 Independence 2.14.030 Authority / Scop_e Of Audits 2.14.040 Internal Audit Schedule 2.14.050 Funding 2 14.060 Access To Employees, Records And.Property 2.14.070 Audit Reporting And Records 2.14.080 Contract Auditors, Consultants And Experts 2.14.090 Quality Assurance Review 2.14.100 (Re Baled PWM�Mwlue The Office of County Internal Audit is created and the person holding that office shall act as the head of internal audit for the County. The office consists of the County Internal Auditor and such subordinate employees as the Board of County Commissioners may provide. The purpose of having the Office includes 1 to identify risk factors for fraud, waste and noncompliance with_ap�licable laws and regulations, (2) to ascertain if department programs -and -operations are achieving their objectives and desired outcomes; (3) to ascertain if department services are provided effectively, efficiently, economically,. ethically, and equitably, and 4 to provide departments with reasoned best practice operational recommendations (BPORng that the departments will determine if, how and whenretro{ifto implement the BPOR. At all times while performing these tasks. the Office of County. Internal Audit and the County Internal Auditor will utilize independent iudgment. Deschutes County's operations through improved performance and enhanced controt environnteM Performance of these functions_will afford greater oversight and increase public confidence thereby residents. The County Internal Auditor is the Chief Audit Executive for the County and shall perform all day-to-day functions necessary for the administration and management of the Office of County Internal Audit. Such duties include but are not limited to: A. Develops and implements policies and procedures for the Office of County Internal Audit in compliance with Deschutes County Code (DCC) and thre government auditing standards. B. Directing all internal audit activities for the County and is responsible for the most difficult assignments requiring a higher level of responsibility, applying advanced subject knowledge, and exercising significant independent judgement and oversight over staff. C. Advises the Board of County Commissioners, County Administrator, and County department/offices on the continuous improvement of County governance, risk management, and financial control processes. D. Selects, appoints, directs, supervises, disciplines, and dismisses all Office of County Internal Audit staff consistent with County policies and procedures and for the efficient and effective administration of the affairs of the office. This chapter establishesd the general authority and responsibility of the Office of County Internal Audit. HISTORY Adopted by Ord. 2018-007§1 on 121412018 Amended by Ord. 2022-008 §1 on 111812022 The County Internal Auditor shall be appointed by or dismissed by the County Administrator in consultation with a majority of the public members of the County Audit Committee and an affirming majority vote of the BOCC. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2013-004 §1 on 41812013 Amended by Ord. 2022-008 §1 on 111812022 The County Internal Auditor shall possess adequate professional proficiency, demonstrated by relevant certification, such as CPA (Certified Public Accountant), CIA (Certified Internal Auditor), CGAP (Certified Government Auditing Professional) or a combination of education and experience as would be desired by the County. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 A. The County Internal Auditor has neither a management nor a policy role; and no operational authority nor responsibility. Rather, the Office of County Internal Audit} in conformance with the -provisions of DCC, provides independent and objective information about County programs and services. B. The County Internal Auditor operates gove" the office by adherence to applicable provisions of DCC, and the government auditing standards issued by the Comptroller General of the United States. The office will work to be independent as defined by that framework and shall. - the Audit Committee fl -11 Vviling con remain free of influence by any organizational elements. C. The County Internal Auditor reports functionally to the County Audit Committee and administratively to the County Administrator. HISTORY Adopted by Ord. 2022-008 §1 on 111812022 A. The Office of County Internal Audit, in conformance with the provisions of DCC shall establish internal auditing policies and procedures to assure that audit work is completed in accordance with those standards. Any audit work that is undertaken not in compliance with standards shall be disclosed in the Auditor's report. B. The Office of County Internal Audit. in conformance with the provisions of_DCC shall have authority to conduct financial, attestation, and performance audits of all departments, offices, boards, activities and agencies of the County in order to independently and objectively determine whether: 1. activities and programs being implemented have been authorized by County Code or adopted policy, state law or applicable federal law or regulations; 2. activities and programs are being conducted as prescribed by management/governing body to accomplish the objectives intended by County Code, state law or applicable federal law or regulations; 3. activities or programs efficiently and effectively serve the purpose intended by County Code, state law or applicable federal law or regulations; 4. activities and programs are being conducted and funds expended in compliance with applicable laws; 5. revenues are being properly collected, deposited and accounted for; 6. resources, including funds, property and personnel, are adequately safeguarded, controlled and used in an effective and efficient manner; 7. financial and other reports are being provided that disclose fairly and fully all information that is required by law, that is necessary to ascertain the nature and scope of programs and activities and that is necessary to establish a proper basis for evaluating the programs and activities; 8. there are adequate operating and administrative procedures and practices, systems or accounting internal control systems and internal management controls which have been established by management; and 9. there are indications of fraud, abuse or illegal acts, which need further investigation. C. The Office of County Internal Audit may also provide non -audit services (consulting) that are not covered by governmental auditing standards. Non -audit services differ from audits in that the Office of County Internal Audit may 1. Perform tasks requested by management that directly support the entity's operations; 2-.—Provide information or data to a requesting party without providing verification, analysis or evaluation. M 3. These non -audit services should be approved by the County Administrator, after consultation with the Audit Committee. The Office of County Internal Audit should continue to work independently (in fact and appearance) when performing non -audit services. The County Internal Auditor will decide and advise the County Administrator if the non -audit work mayjeopardize independence and whether the work should be performed. D. The Office of County Internal Audit vifi t is authorized to administer the Deschutes County Whistleblower Hotline.. When assigned this function by Order of the Board of County Commissioners tThe Auditor shall review all reports of fraud, waste, abuse, or other types of misconduct. -Listed in ORS 297. 760, and if sufficient_ predication exists, they will be investigated. In circumstances where there is a potential crime, the appropriate taw enforcement agency will be involved prior to an investigation. In circumstances where there is the aotential_of a personnel investi _ation, Human Resources Administration and Legal will be involved prior to any investigation. Once an investigation is completed, the County Internal Auditor is_responsble for providing a written determination of any investigations completed and include: the nature of the report whether the report was founded or unfounded, and anv applicable recommendations concerning appropriate resolution of the concerns arising in the report. The written determination may qualify as is a public record, in which case it might -_ be exem t from disclosure under Oregon public records taw , Upon conclusion of an investigation, recommendations may be -made to department management where appropriate to minimize future risk. Department management retains final authority for determining how or if to implement sufficient and appropriate controls to prevent recurrence. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2022-008 §1 on 111812022 A. At the beginning of each calendar (or fiscal) year, the Office of County Internal Audit shall submit a one to five-year audit work schedule to the Audit Committee for approval. This audit work schedule should incorporate information from multiple sources including the Office of County Internal Audit's assessment of significant risks to the organization and input from Management, Audit Committee, and the Board of County Commissioners. T __ he schedule shall include the proposed plan for auditing departments, offices, boards, activities, subcontractors and agencies for the period. The schedule may be amended. Additionally, the County Internal Auditor, in consultation with the Audit Committee Chair, and for cause shown (for eaas-e) may spontaneously initiate and conduct any other audit deemed necessary. Any significant changes (an expectation of scope of work changing by more or less than 150 hours) to the workplan for audit or non -audit projects should be approved in advance by the County Administrator and the Audit Committee. In the selection of audit areas and audit objectives, the determination of audit scope and the timing of audit work, the Office of County Internal Audit should consult with external auditors so that the desirable audit coverage is provided and audit effort is property coordinated. A.B. The proposed objective -of any audit of a count department (whether headed by an elected official or appointed department head) must first be presented to and approved by the Audit Committee at a duly noticed public meeting. The elected official / appointed de ay attend the meeting and request that the o ective of the audit be modified from that proposed by the County Internal Auditor. In the case of a county department headed by an appointed department head the decision of the Audit Committee as to objective is final. In the case of a county department headed by an elected official, the elected official may challenge the decision of the Audit Committee to the Board of County Commissioners. The Board of County Commissioners will affirm, reverse, or modify the decision of the Audit Committee. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2022-008 §1 on 111812022 The County shall provide sufficient funds to enable the Office of County Internal Audit to carry out the responsibilities specified herein subject to annual appropriation by the BOCC. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2013-00.4 §1 on 41812013 Amended by Ord. 2022-008 §1 on 111812022 A. , Subject to reasonable department operational needs, staffin and scheduling, legal mandates and limitations, and in conformance with DCC 2.14.04duties outlined in DCC 2.14.030, aAll officers and employees of Deschutes County shall furnish the Office of County Internal Audit with unrestricted access to employees, information and records (including electronic/computerized data) within their custody and authority_ regarding powers, duties, activities, organization, property, financial transactions, contracts and methods of business required to conduct an audit or otherwise perform audit duties. In addition, and within authority, they shall provide access for the Office of County Internal Audit to inspect all property, equipment and facilities within their custody. A discussion of appropriate access should occur with County Counsel if access to documentss_roe_rty,equipment, and/or facilities is asserted to be restricted by applicable taw. B. Further, all contracts with outside contractors and subcontractors shall provide the Office of County Internal Audit access to the contractually related financial and performance -related records; property, equipment and services purchased in whole, or in part, with governmental funds C. If such officers, employees or contractors fail to produce the aforementioned access and/or information, the Office of County Internal Audit, upon obtaining written approval and consent •}'� �'�� - of County Legal Counsel, may initiate a search (or obtain a subpoena) to obtain exhibit copies (physical or electronic) from computerized systems, book, paper or record of any such official or employee, or outside contractor or subcontractor, in accordance with state law or the applicable contract. D. Subject to public records taws, the Office of County Internal Audit shall not publicly disclose any information received during an audit that is considered confidential by any local, state or federal law or regulation. The Office of County Internal Audit shall maintain the confidential status of information and records furnished by County officers and employees to the extent allowable under public records laws. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2013-004 §1 on 41812013 Amended by Ord. 2022-008 §1 on 111812022 A. Each audit and substantiated investigation will result in a report containing relevant background information and findings and recommendations, and shall communicate results to the Board of County Commissioners, Audit Committee, and appropriate management. The report shall specify, as to each finding/recommendation, whether the finding/recommendation is based on applicable county code._countv__policy, state law, federal law or regulation, ofr whether it is stniply-a BPOR. Subject to applicable public records laws, the report shall also be available for public examination. If certain pertinent information is prohibited from general disclosure, the audit report should state the nature of the information omitted and the requirement that makes the omission necessary. B. The Office of County Internal Audit should fellow state archive guidelines as appropriate and as identified under OAR 166-150-0005(4) (currently -a retention schedule of 10 years). C. The Office of County Internal Audit should periodically report to the Audit Committee (and Board of County Commissioners) on the work performed and any significant findings, apart from BPOR. _ , �ativ which have not been fully addressed by management. D. The Office of County Internal Audit shall follow-up on audit recommendations,_apart from BPOR. . as practical, to determine if management is implementing corrective action as identified in their response to the audit report findings and recommendations. The Office of County Internal Audit may request periodic status reports from auditees regarding actions taken to address reported deficiencies and audit recommendations. HISTORY Adopted by Ord. 2005 =014 §1 on 1112812005 Amended by Ord. 2011-004.§1 on 412712011 Amended by Ord. 2022-008 §1 on 111812022 A. Within budget limitations and approval by the County Administrator, the Office of County Internal Audit may obtain the services of Certified Public Accountants, qualified management consultants, or other professional experts necessary to perform auditor duties. An audit that is performed by contract must be conducted by persons who are independent of the governmental unit and its officers. The Office of County Internal Audit will coordinate and monitor auditing performed by public accounting, professional experts, or other organizations employed under contract by Deschutes County. B. The Office of County Internal Audit may participate with the Audit Committee in the selection of qualified finalists for the provider of Deschutes County's annual financial audit. The Audit Committee shall select a provider from the finalists. This selection shall be presented to the Board of County Commissioners for review and approval. The process will follow Deschutes County's contracting processes. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2022-008 §1 on 111812022 A. The audit activities of the Office of County Internal Audit shall be subject to quality review in accordance with applicable government auditing standards by a professional, non -partisan objective group (such as the Association of Local Government Auditors (ALGA)). A copy of the written report of this independent review shall be furnished to the Audit Committee and the Board of County Commissioners. This report shall be available to the public. B. The quality control review shall determine compliance with government auditing standards and the quality of the audit effort and reporting, including: 1. general standards such as competence, professional judgment, and quality assurance; 2. fieldwork standards such as planning, supervision, and evidence; and 3. reporting standards such as report content, timeliness and distribution. C. The County shall reimburse the costs of the quality control review team from funds budgeted in the Office of County Internal Audit's budget. Within available time constraints, members of the Office of County Internal Audit may reciprocate with other organizations by participation in quality control teams. HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2022-008 §1 on 111812022 i HISTORY Adopted by Ord. 2005-014 §1 on 1112812005 Amended by Ord. 2011-004 §1 on 412712011 Repealed by Ord. 2013-004 §1 on 4/8/2013 2.15.001 Purpose 2.15.010 Authorit 2.15.020 Composition 2.15.000 Meetings 2.15.040 Responsibilities The Board of County Commissioners have formed the Audit Committee to advise the Board on fulfilling its responsibilities for financial reporting, internal controls, and compliance with laws, regulations, and ethics within the County. The Audit Committee provides oversight to auditing (external and internal) for the County. The audit committee receives and reviews County information on: A. financial condition; B. the accuracy of financial record keeping; C. compliance with applicable laws, policies, guidelines, and procedures; and D. efficiency and effectiveness of operations. The Audit Committee strengthens the independence of auditing by serving as a transparent third -party review body. HISTORY Adopted by Ord. 2018-007 §2 on 121412018 A. The Board of County Commissioners ("Board") hereby establishes the Audit Committee as an advisory committee. The committee shall advise the Board and County Administrator on significant audit matters including, but not limited to: 1. The selection, compensation, and removal of external auditors hired to audit the financial statements for the County and its related entities; 2. Consultation with the County Administrator or Board regarding the appointment or dismissal of the County Internal Auditor should include a consultation with a majority of the public members of the audit committee; 3. Increases and decreases to the requested budget for the internal audit program; and 4. The work plan for internal audits performed under DCC 2.14.040, and the objective of department whether headed bean elected official or appointed department head) audits under_DCC 2.14.040B., and subieetto-t� iTnlltcam-t'i'6'r�eu-nt-:_oind in, nnn n n nnc B. HISTORY Adopted by Ord. 2008-002 §1 on 811812008 Amended by Ord. 2013-004 §1 on 41812013 A. The audit committee shall be comprised of not less than seven or more than nine members appointed by the Board. B. Each member shall be appointed to serve a term of two years. Upon initial formation of the committee, the Board may appoint any member to a shorter term. A member may be appointed to more than one term. The Board may remove a member of the committee at any time. In the event of a vacancy on the committee the Board shall, as soon as practicable, appoint a person to serve the unexpired portion of the former member's term. C. The committee shalt consist of one (1) member county commissioner, two (2) county department head members, and four (4) to six (6) public members. The County Administrator shall be an ex-officio nonvoting member. D. A public member shall be a registered voter within Deschutes County. The chair of the committee shall be a public member and shall be selected by a majority of the public members. The chair shall serve a one-year term and may be selected for additional terms. If the public members cannot decide upon a chair, the larger committee shall decide. The chair shall preside over meetings, as well as provide input on topics for the agenda. HISTORY Adopted by Ord. 2008-002 §1 on 811812008 Amended by Ord. 2009- 111 §1 on 8/12/2009 A. The audit committee shall meet as the committee deems necessary. A quorum shall constitute a majority of the members appointed. Vacant positions shall not be considered in determining whether a quorum exists. Minutes shall be prepared in accordance with the Oregon Public Meeting Law. The committee may require certain County management attend meetings to address reports being discussed. Auditee departments will be invited to meetings where their internal audit report is discussed. B. A department head audit committee member shall not vote on an issue relating to an audit directly pertaining to his or her department. If there is any question as to whether audit committee members should recuse themselves from a vote, the committee should vote to determine whether the member should recuse himself or herself. C. The County Internal Auditor shall facilitate and coordinate such meetings, as well as provide ancillary support to the committee, as time permits. HISTORY Adopted by Ord. 2008-002 §1 on 811812008 Amended by Ord. 2009-011 §1 on 811212009 A. Overseeing the independent audit of the County's financial statements, including: 1. Overseeing the selection, renewal or removal of the independent external auditor by making a recommendation to the Board for final approval; 2. Meeting with the external auditors during planning of the audit, presentation of the audited financial statements, and discussion of the letter to management on recommendations; and 3. Overseeing the resolution of audit findings in, areas such as internal control, legal and regulatory compliance, and ethics. B. The committee shall work to assure coordination between the internal and external auditors, management, the County Administrator and Board. C. The audit committee shall ensure the Office of County internal audit performs its function. The committee shall: 1. Review the internal audit ordinance (DCC 2.14) at least every other year; 2. Revi-Approve-Aprp ove 9-as-ee}-the internal audit work ptan(s) as proposed or modified. including authorizing the objective.of any county department audits under 61 AMUMMIRM 3. Review the budget and staffing levels of the Office of County Internal Audit (DCC 2.14.050); 4. Review internal audit reports and other communications developed for the County; 5. Review and provide input on Office of County Internal Audit goals; and 6. Review any quality assurance reviews created pursuant to DCC 2.14.090. 7. Discuss and provide input o =tPerform the County Internal Auditor's performance review each year, and thereafter, forward to the Board of County Commissioners for review, consideration, and final action. D. The committee shall make appropriate recommendations concerning the Office of County Internal Audit based upon the reviews that it conducts pursuant to subsection C of this section. E. The committee shall make an annual report to the Board summarizing the committee's activities and recommendations. The report may be delivered at an audit committee meeting attended by the Board or may be scheduled for a regularly scheduled meeting of the Board. F. The committee shall perform other activities related to this chapter as requested by the Board. HISTORY Adopted by Ord. 2008-002 §1 on 811812008 Amended by Ord. 2011-004 §1 on 412712011 Amended by Ord. 2013-004 §1 on 41812013 Amended by Ord. 2022-008 §2 on 11/8/2022 \XvTES CO C. G 2� BOARD OF COMMISSIONERS BOARD OF COUNTY COMMISSIONERS MEETING 1:00 PM, MONDAY, DECEMBER 1, 2025 Allen Room - Deschutes Services Building - 1300 NW Wall Street - Bend (541) 388-6570 1 www.deschutes.org MEETING FORMAT: In accordance with Oregon state law, this meeting is open to the public and can be accessed and attended in person or remotely, with the exception of any executive session. Members of the public may view the meeting in real time via YouTube using this link: http://bit.ly/3mminzy. To attend the meeting virtually via Zoom, see below. Citizen Input: The public may comment on any topic that is not on the current agenda. Alternatively, comments may be submitted on any topic at any time by emailing citizeninput@deschutes.org or leaving a voice message at 541-385-1734. When in -person comment from the public is allowed at the meeting, public comment will also be allowed via computer, phone or other virtual means. Zoom Meeting Information: This meeting may be accessed via Zoom using a phone or computer. • To join the meeting via Zoom from a computer, use this link: http://bit.ly/3h3ogdD. • To join by phone, call 253-215-8782 and enter webinar ID # 899 4635 9970 followed by the passcode 013510. • If joining by a browser, use the raise hand icon to indicate you would like to provide public comment, if and when allowed. If using a phone, press *9 to indicate you would like to speak and *6 to unmute yourself when you are called on. • When it is your turn to provide testimony, you will be promoted from an attendee to a panelist. You may experience a brief pause as your meeting status changes. Once you have joined as a panelist, you will be able to turn on your camera, if you would like to. Time estimates: The times listed on agenda items are estimates only. Generally, items will be heard in sequential order and items, including public hearings, may be heard before or after their listed times. CALL TO ORDER CITIZEN INPUT The Board of Commissioners provides time during its public meetings for citizen input. This is an opportunity for citizens to communicate to the Commissioners on matters that are not otherwise on the agenda. Time is limited to 3 minutes. The Citizen Input platform is not available for and may not be utilized to communicate obscene or defamatory material. Note: In addition to the option of providing in -person comments at the meeting, citizen input comments may be emailed to citizeninput@deschutes.org or you may leave a brief voicemail at 541.385.1734. COMMISSIONER ANNOUNCEMENTS AGENDA ITEMS 1:05 PM 2. 1:15 PM 3. 2:00 PM 4. 2:10 PM 5. 2:15 PM OTHER ITEMS Consideration of termination of the Solid Waste Franchises for the collection of solid waste in the unincorporated areas of Deschutes County Presentation: Oregon Department of Transportation (ODOT) US 97 / Baker Road Interchange Area Management Plan Discussion of possible appointment to the Deschutes County Budget Committee Work Session - Consideration of Document No. 2025-935 - Improvement Agreement for Phase E1 of the Caldera Springs Destination Resort Role, Purpose and Oversight of the Deschutes County Office of Internal Audit These can be any items not included on the agenda that the Commissioners wish to discuss as part of the meeting, pursuant to ORS 192.640. EXECUTIVE SESSION At any time during the 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; ORS 192.660(2)(b), personnel issues, or other executive session categories. December 1, 2025 BOARD OF COUNTY COMMISSIONERS MEETING Page 2 of 3 Executive sessions are closed to the public; however, with, few exceptions and under specific guidelines, are open to the media. �Wreiljjg Deschutes County encourages persons with disabilities to participate in all programs and activities. This meeting/event is accessible. Accommodations including sign and other language interpreter services, assistive listening devices, materials in alternate formats such as Braille, large print, electronic formats, or language translations are available upon advance request at no cost. Please make a request at least 24 hours in advance of the meeting/event by calling Brenda Fritsvold at (541) 388-6572 or send an email to brenda.fritsvold@deschutes.org. El condado de Deschutes anima a las personas con discapacidad a participar en todos los programas y actividades. Esta reunion/evento es accesible. Hay �» disponibles servicios de interprete de lengua de sehas y de otros idiomas, dispositivos de escucha asistida, materiales en formatos alternativos como braille, letra grande, formatos electronicos, traducciones o cualquier otra adaptation, con solicitud previa y sin ningun costo. Haga su solicitud al menos 24 horas antes de la reunion/el evento Ilamando a Brenda Fritsvold al (541) 388-6572 o envie un correo electronico a brenda.fritsvold@deschutes.org. December 1, 2025 BOARD OF COUNTY COMMISSIONERS MEETING Page 3 of 3