HomeMy WebLinkAboutAppendix B - Technical Memoranda #1 Through #4EXHIBIT C ORDINANCE 2012-005 Page 1 of 56
APPENDIX B – TECHNICAL MEMORANDA #1 THROUGH #4
STAFF REPORT
TO: Deschutes County TSP Update Technical Advisory Committee
FROM: Peter Russell, Senior Transportation Planner
DATE: April 21, 2009
SUBJECT: Technical Memo #1, TSP Assessment
______________________________________________________________________
PURPOSE
As part of the update of the Deschutes County Transportation System Plan (TSP), this memo reviews
the significant changes in Deschutes County since the plan’s 1999 adoption. Topics covered include
population, destination resorts, changes to TSP’s in urban areas, different performance standards for
state highways, revisions to the state’s bicycle and pedestrian plan, rise of destination resorts, and
differing financial assumptions.
Technical Memo #1 analyzes these changes in a broad approach. The memo is organized by chapter and
captures general themes with specific supporting examples. The assessment follows the same order the
materials were presented in the previous TSP.
The introductory chapter requires several revisions that range from general policy to specific factual data.
CHAPTER 1, INTRODUCTION
1.1 Setting
The population figures for Deschutes County and its cities of Bend, Redmond, and Sisters need revision
and add the data for the new City of La Pine. Insert a reference of the amount of commuters who
arrive in the county from Prineville. Similarly, discuss rise of destination resorts as only Black Butte,
Eagle Crest, and Sunriver were in existence then but resorts now include in 1999
1.2 Transportation System Plan Requirements
The summary of the Transportation Planning Rule (TPR) remains valid. The goals and objectives of the
TPR have not changed, but the administrative rule language has been slightly modified and the update
will need to reflect those changes. The plan will reference that Bend, Redmond, and Sisters have all
updated their TSP’s as well.
Another TPR change relates to population growth in that Bend has become a Metropolitan Planning
Organization (MPO). Changes in the Deschutes County TSP Update will have to be then amended into
the BMPO Regional Transportation Plan (RTP).
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1.3 Developing a Transportation System Plan
The review process for the TSP update differs slightly from the 1999 plan. There is no longer a County
Transportation Advisory Committee (CTAC); the update includes a Technical Advisory Committee
(TAC), a Steering Committee (SC), a Stakeholders Group (SG), and work with the Deschutes County
Bicycle and Pedestrian Advisory Committee (BPAC), county staff, and the general public.
In terms of forecasting future traffic volumes for the next 20 years, I’ll add language about ODOT’s
efforts to develop a rural travel demand model for Deschutes County and how that incorporates the
Bend and Redmond models. The horizon year now shifts from 2016 to 2030.
For the Public Transportation Needs section, add verbiage about Bend’s fixed-route system, Cascades
East Transit, and park and more on Commute Options, especially the demand for increasing capacity at
park and ride lots and adding new ones.
The plan drew heavily upon ODOT’s 1991 “Bicycle and Pedestrian Plan” which has been revised. Also
incorporate work with BPAC, Senator Wyden’s Central Oregon Recreation Assets Committee’s work
on bicycle routes, and the Road Department’s pavement management system policy and practices. The
latter have been revamped to be more bike friendly.
The Financing Plan has changed dramatically. The county has seen a loss of timber funds, the Board of
County Commissioners (BOCC) has adopted a moratorium on no new County roads as a result, and
the Board has adopted a countywide system development charge (SDC) as well as increasing tipping fees
at the Knott Landfill to close the funding gap.
CHAPTER 2, INVENTORY AND BACKGROUND
2.1 Existing Transportation Goals and Objectives
The County is simultaneously updating the 1979 comprehensive plan so the section on the Comp Plan
will need to be revised to reflect how these parallel processes are coordinating.
The paragraph on the Major Roads Capital Improvement Program (MRCIP) dates from 1996. The
section and associated tables will be updated to remove completed projects, cites the most current CIP,
and reference post-1998 Board policies which relate to no longer accepting new roads into the county
jurisdiction due to loss of federal timber revenues (BOCC Resolution 2006-049).
Deschutes County Bicycle and Pedestrian Advisory Committee (BPAC) is working with County staff for
a proposed system of designated bicycle routes. Additionally, the 1998 TSP’s bicycle elements were
almost exclusively based on ODOT’s 1992 Bicycle and Pedestrian Plan, which has since been updated.
Additionally, the cities of Bend, Redmond, and Sisters have all updated their TSP’s and those changes will
need to be captured in the County TSP update. Redmond Airport has updated its master plan, but the
Bend Airport plan remains the status quo. This could change as the City desires to develop more
aviation-related or supportive land in proximity to the airport and the Board also has suggested the City
update the Bend Airport master plan.
The 1992 Oregon Transportation Plan (OTP) was superseded by the 2006 version. The OTP provides
guidance to ODOT on how to provide a multimodal transportation system, including financial
assumptions. The agency states the OTP “provides a framework to further these policy objectives with
emphasis on maintaining the assets in place, optimizing the existing system performance through
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technology and better system integration, creating sustainable funding and investing in strategic capacity
enhancements.” A plain English translation is reportedly in the works.
One of the most dramatic changes is the 1999 Oregon Highway Plan (OHP), which had wholesale
revisions from the 1991 OHP. The 1999 OHP altered ODOT’s performance standards, modified the
functional classification scheme, added several overlay classifications, and incorporated changes to the
OAR’s dealing with access management.
The TSP update will need to replace LOS on the state system with Volume/Capacity (v/c) Ratios. The
level of importance (LOI) classification system has been refined to include classification for specific
segments by mile point instead of a single designation for a route’s entire length. The OHP has added
segment overlays such as Expressway, Freight Route, and Special Transportation Area (STA).
The TSP describes ODOT’s previous access management policy under OAR Chapter 734, Division 50
which was arranged by Category 1 through 4 for highways. Since then ODOT has overhauled its
access management policies and implements them through OAR Chapter 734, Division 51 and the 1999
OHP. Access management now depends on functional classification, posted speed, and overlay
designations.
It’s unclear the status within ODOT of the Access Oregon Highway (AOH) system, corridor plans and
strategies, the Governor’s (Kitzhaber) Transportation Initiative and how or whether the TSP Update
will need to address any of these items.
Similarly, ODOT will need to provide guidance on an Oregon Transportation Commission (OTC) set a
goal that by 2010 that 96% of all Oregon highways be able to accommodate trucks of less than 80,000
pounds. The County would need to know if that goal has been met and can be dropped from the TSP
or altered or replaced. The Oregon Freight Advisory Committee has dealt with many issues since the
TSP’s 1998 adoption and the agency can share with the County any policy implications or goals. The
TSP update should identify the barriers that length restrictions on O’Neil Highway, a state facility, and
weight restrictions on Smith Rock Way, a County facility, present to the movement of freight originating
in western Crook County and bound markets in Deschutes County.
I would recommend keeping the summary of ODOT’s Statewide Transportation Improvement Program
(STIP) in the TSP, but deleting the table with current STIP projects. The TSP is a 20-year document so
the projects in the current three-year STIP should be identified in an appendix.
The 2000 Oregon Aviation System Plan (OASP) referenced in the 1998 TSP was redone in 2007 and
renamed the Oregon Aviation Plan (OAP). Deschutes County incorporated many of the goals of the OASP
in its development code in Title 18 to ensure airport-land use compatibility, imaginary surfaces, and height
restrictions. The 2007 OAP at Table 1.1 would indicate the county is consistent with the aviation plan.
The 1995 Oregon Bicycle and Pedestrian Plan is currently under revision. The County will update the
bike and pedestrian topics with the newer information that pertains to accommodating bicyclists and
pedestrians in rural areas and urban unincorporated communities.
The conclusions of the Central Oregon Area Commission on Transportation (COACT) regarding at-
grade rail crossings in Deschutes County needs to be added to the TSP update.
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Finally, the current 2.1 concludes with a brief description and summary of the 1996 Oregon Travel
Behavior Summary. I would defer to ODOT on whether we want to include similar verbiage for the
development of the traffic model for the Deschutes County TSP.
2.2 Existing Transportation System and Current Needs
The mileage figures for existing county-maintained roads has decreased from 943 total miles to 830 total
miles. The amount of paved miles has decreased from 750 in 1998 to 700 in 2009 while unpaved miles
have dropped from 193 to 130 miles. The change is due to a combination of county turning over
jurisdiction to cities as their UGB’s expand and from paving rural roads.
I’ll summarize the findings of the Technical Memo #2, “Existing Conditions,” and add it to this section.
In the subsection under types of roads, include language about BOCC Resolution 2006-049 in which the
Board said the county would longer accept new roads into county jurisdiction due to the loss of timber
revenues.
The 1998 TSP has a mix of terms such as Principal Arterial, Primary Arterial, Urban and Rural Major
Arterial, Urban and Rural Minor Arterial, Urban and Rural Collector, etc. The update will standardize
the classification terms.
Powell Butte Highway is no longer a state highway.
Several road segments will be upgraded from collector to arterial as part of the Bend and Redmond
UGB expansions. In the Bend area the reclassifications from collector to arterial include Deschutes
Market, Hamby, Ward, O.B. Riley, an extension of Cooley west across U.S. 20, and a future arterial in
northwest Bend. Redmond saw Helmholtz and Northwest Way upgraded from collector to arterial.
Under traffic control devices there is now a signal at Burgess/Day and the county has conceptually
agreed to rural roundabouts, including the intersections of Powell Butte Highway/Butler Market and
Powell Butte Highway/Nelson. The flashing beacon at Deschutes Market/97 has been replaced with a
grade-separated interchange. Similarly, the beacon at South Century/97 was replaced with a grade-
separated interchange. The Burgess/Huntington traffic signal being installed this spring will replace the
beacon at that location. The County has added an all-way flashing red beacon to Neff/Hamby
intersection, which is at the eastern edge of Bend, and flashing red lights to the stop signs at
Coyner/Northwest Way, which is between Terrebonne and Redmond.
Traffic volumes will be updated to reflect 2008 data on both the State and County systems. Add
verbiage summarizing the changes or trends since 1998. The bulk of the County system does not carry
significant daily volumes, i.e., greater than 3,000 ADT. Update information in Table 2.2.T4 (Top County
Rural Road Volumes and Estimated LOS) of what percentage of the 404 county-maintained arterials and
collectors has more than 1,500 ADT.
Augment the discussion of LOS, which the County still uses, with volume/capacity, which the state now
uses. Take the v/c explanation from the OHP, and then try to modify Table 2.2.T3 (Generalized County
Road Highway ADT/LOS) to reflect these changes. Similarly, Table 2.2.TF (ODOT 1996 Highway
Volumes and Estimated LOS) needs to be updated for both volumes and analysis methodology.
Update crash history information for most recent year available and identify locations that for highways
either exceed the statewide average for similar facilities or are Safety Priority Indexing Sites (SPIS). For
county roads, identify those that have crash rate of more than 1.0 per million entering vehicles (MEV).
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Update Figure 2.2.F14 (High Accident Locations) and tables 2.2.T6 (Top County Road Accident
Locations 1991-1996) and 2.2T7 (Top Highway Accident Locations, 1991-1996). This work was
originally performed under a Safe Communities grant from the federal government.
Calculate percentage of unpaved County collectors.
Update Table 2.2.T10 (County Bridges) in terms of weight limits and costs to upgrade.
Replace Table 2.2.T9 (Current County Road Standards) with Table A (Rural County Roads) from
Deschutes County Code (DCC) 17.48.160.
Bike facilities have been incorporated in Table B and DCC 17.36.140 and 17.48.140 to accommodate
bikes on County and private roads; bike parking requirements are found in 18.116.031 and 035. Replace
Table 2.2.T12 (Current County Bikeway Design Standards) with Table B.
Additionally, county staff is working with the Deschutes County Bicycle and Pedestrian Advisory
Committee (BPAC) on a bike system with prioritized improvements. Finally, County staff and BPAC are
coordinating with Senator Ron Wyden’s (D-OR) on his Central Oregon Recreation Assets proposal as
it relates to bicycling opportunities.
Add language referencing bike and sidewalk requirements in Terrebonne and Tumalo that was
completed after 1998. Add BPAC language about alternative routes to U.S. 20 between Bend and
Sisters.
Propose to eliminate section detailing bike facilities in resort communities, except for retaining policy
language that resort bike facilities “…shall meet County standards construction standards and shall not
impede movement within the countywide system.”
In the pedestrian/sidewalk section, again refer to Table B and add language about the non-motorized
transportation plans for Terrebonne and Tumalo that were adopted post-1998.
Public transportation has substantially changed since the 1998 plan was adopted. Greyhound no longer
fetches passengers, but several shuttles still provide service from Central Oregon to the Willamette
Valley. COIC is running Cascades East Transit, which provides service in the tri-county area to Bend.
Bend now has fixed route service with Bend Area Transit (BAT).
Localized demand response has expanded to include Green Energy Transport and High Desert
Wheelchair Transport in addition to dial-a-ride services in the tri-county area through either the City of
Bend or COIC.
The number of park and ride lots has expanded to include Bend, La Pine, Prineville, Sunriver, and
Terrebonne. There are still several informal locations along U.S. 97 in South County.
Railroad ownership has changed with Union Pacific purchasing Southern Pacific. The Central Oregon
Area Commission on Transportation (COACT) has requested the counties and cities of Deschutes,
Crook, and Jefferson along with ODOT conduct a long-term strategy to address at-grade railroad
crossings in Central Oregon. The study found it was mot feasible to relocate the BNSF line east of
Bend and Redmond. The study is now prioritizing the list of at-grade crossing for upgrading to grade-
separated crossings or closures; the work will also include cost estimates for these upgrades. The Baker
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Road crossing of the BNSF tracks just west of the on/off ramps to U.S. 97 was ranked first among rural
crossings in Deschutes County by Deschutes County planning and Road Department staff.
U.S. 97 and U.S. 20 are designated Freight Routes whereas the previous TSP had not state-designated
truck routes.
For airports, since 1998 the County has developed code to protect the operations of existing airports
and ensure land use compatibility via DCC 18.76 and 18.80. The former applies only to development at
the Bend Municipal Airport. The airport safety (AS) zoning applies to the to the Bend, Redmond,
Sisters, and Sunriver airports as well as the Cline Falls and Juniper airparks.
Update Table 2.2.T13, Roberts Field Emplanements, 1998-2008. Redmond has expanded service to
Denver, Las Vegas, and Los Angeles.
Section 2.3 Existing Land Use, Population, and Employment
Maintain the focus on MUA-10 and RR-10 zones as this is where the bulk of the developable land lies in
the county and a secondary emphasis on rural industrial, urban unincorporated, and lands mapped for
destination resorts in close proximity to U.S. 97.
Urban Unincorporated Community delete La Pine. Existing destination resorts add Caldera Springs,
Pronghorn, Tetherow, and Thornburgh (approved, appealed, unbuilt), and reference to the destination
resorts in western Crook County that add traffic to Powell Butte Highway and OR 126.
Update Table 2.3.T1 (Unincorporated Community Summary) that displays total existing lots, developed
lots, number of lots with development constraints, and provides potential new development by both lots
and acreage.
Potential Impact Development Analysis (PDIA) work was not used by ODOT and should be omitted.
Update future traffic volumes in “Development Constraints” subsection with TPAU’s modeling
information as it becomes available.
Table 2.3.T4 (Deschutes County Population) needs to be revised with most recent data as well as
updating 1996 employment data.
The 1990 Census data on “journey to work” mode needs to be revised and displayed in Table 2.3.T6.
Update Table 2.3.T7 (Travel Time to Work).
Propose to either nix Oregon Travel Behavior Summary or update information with the sampling and
modeling techniques used by TPAU for development of the Deschutes County travel demand model.
CHAPTER 3, TRANSPORTATION FORECAST
3.1 General Background
Major difference is the development of a traffic forecasting model for the areas of the county outside of
land covered by the Bend MPO and Redmond traffic models. Previously, the TSP used a combination of
straight-line traffic projections, land absorption rates, developable lots. Lastly, the TSP utilized an early
1990’s attempt by ODOT to forecast how land use supply could affect generally affect highway segments
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or intersections. This was called Potential Development Impact Analysis (PDIA), but the agency did not
continue to pursue this approach. References to PDIA will be dropped or dramatically shortened and
replaced with background information on the new ODOT traffic model for Deschutes County.
3.2 Population and Employment Forecast
Update Tables 3.2.T1-T8 dealing with population in cities and unincorporated areas as well as employees
in those same categories. Redo text to reflect building trends from 1998-2008 for homes built annually
in rural county. Confirm assumptions about vacancies for houses on rural or unincorporated land due
to seasonal, second, or vacation homes remains valid.
3.3 Traffic Forecast
Previous forecast was based on 8 trips per housing unit, a trip generation rate that was taken from
ODOT’s travel behavior work in the county in the 1990s. Replace that information with background
detail from ODOT’s development of the Deschutes County traffic model.
The bulk of 3.3 will be taken from Tech Memo #3, Future Conditions, which will be done later in the
TSP update process. Include explanation of volume/capacity (V/C) ratio which ODOT now uses,
replacing the Level of Service (LOS). The County continues to use LOS.
Provide discussion of the differences of analyzing segments of roads vs. specific intersections. Identify
segments and/or intersections that will not meet the county and ODOT performance standards in 2030
or will be approaching failure.
Update County and State volume traffic volume tables, 3.3.T1 and 2.
CHAPTER 4, TRANSPORTATION NEEDS ANALYSIS
4.1 Transportation Facility Deficiencies
Insert conclusions from Tech Memo #3 and Tech Memo #4, Transportation Mitigations Alternatives
Analysis.
4.2 Public Involvement and Interagency Coordination
Document public meetings, Deschutes County Bicycle and Pedestrian Advisory Committee (BPAC), La
Pine Transportation Advisory Group (LPTAG), Technical Advisory Committee (TAC) and Steering
Committee (SC) meetings, stakeholders group, and work sessions with Deschutes County Planning
Commission and the Board of County Commissioners.
Provide specifics of the above with revised Table 4.2T1 (Public Outreach). These would include public
meetings; BPAC meetings; TAC, SC, and stakeholder meetings; and Planning Commission and BOCC
work sessions and meetings.
Of the four intersections identified with traffic congestion, two have been improved with interchanges
(Deschutes Market/U.S. 97 and South Century Drive/U.S. 97) another has had a traffic signal installed
(Venture Lane/South Century Drive by Sunriver Business Park) while Cook-O.B. Riley/U.S. 20 in Tumalo
continues to have congestion problems. Additionally, Baker Road between the U.S. 97 ramps and
Brookswood Boulevard in southern Bend has congestion issues as does Lower Bridge Way/97 at the
north end of Terrebonne.
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The 1998 plan list two dozen intersections or road segments with safety issues. Of those nine have
already been addressed by constructed or programmed improvements.
Deschutes Market/U.S. 97 – Interchange built, second phase being done in 2009
U.S. 20/OR 242 in Sisters – Median and turn pockets constructed
Burgess/U.S. 97 – Realignment completed
Rosland/Wickiup Junction frontage road – Constructed
South Century/U.S. 97 southbound decel lane – Improved
Deer migration across U.S. 97 south of Bend – Divided highway with wildlife undercrossings
programmed for construction 2009-12(?)
Helmholtz/OR 126 – Channelizations improvements
Burgess/Huntington – Flashing light added
Burgess/Day Road – Westbound right turn lane added; eastbound left turn bay still needed
Secondary access from Deschutes River Woods to U.S. 97 – Emergency gated access built
During the public involvement process, several other intersections not previously mentioned in the
document were identified as sites of concern. Also crash data from the Road Department identified
intersections with crash rates of higher than 1.0 per million entering vehicles (MEV), which is an
accepted indicator of a problematic location.
The public identified the following areas of concern:
Deschutes Market Road/U.S. 97 ramps – The southbound on and off ramps are too short as is
the northbound off ramp; there is no room for drivers to decelerate off of the main travel lane
Gift-Pleasant Ridge/U.S. 97 intersection – Rising volumes on the highway make this a difficult
intersection to turn from U.S. 97 onto the highway and difficult to cross the highway.
Erickson-Torkleson/U.S. 20 – Located east of Bend, this intersection is just west of the Powell
Butte Highway/U.S. 20 intersection and drivers often mistake the former for the latter, leading
to sudden maneuvers; signing for Powell Butte and Bend Airport adds to the confusion
Lower Bridge Way/31st – Poor visibility makes it hazardous to pull out onto Lower Bridge
Lower Bridge/43rd – Poor visibility makes it difficult to pull out onto Lower Bridge
Lower Bridge Way/97 – Skewed geometry and higher volumes on both Lower Bridge and the
highway makes this a difficult intersection to use. ODOT does have a project programmed to
improve the geometry.
For long term needs, add language on ODOT’s bypass policy to the discussion of new routes around the
east side of Bend, La Pine-Wickiup Junction, Redmond, and Sisters. OHP Policy 1H: Bypasses, did not
exist in 1998, and discusses measures that must be be taken before the state will even consider a bypass.
Policy 1H has language about protecting existing bypasses, but Deschutes County has none.
Transit needs portion will be revised to reflect Cascades East Transit (CET) is now providing service to
Bend from the tri-county area with connections to Bend’s fixed-route service. There is still no public
transit to the Redmond Airport.
The 1998 plan had a long section on Regional Problem Solving, which dealt with secondary access to
rural subdivisions in South County. The update will include future road alignments identified by the La
Pine Transportation Advisory Group to provide emergency egress to those areas.
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CHAPTER 5, TRANSPORTATION SYSTEM PLAN
Change the reference to reduce reliance of “single-occupant vehicle” to current TPR language about
strive to prevent becoming overly reliant on any single mode of transportation.
Add language about Bend now is a Metropolitan Planning Organization (MPO) and include map showing
which county lands are now in the BMPO. Revise to include advances in transit since the 1998 plan was
finished.
Document the prioritization process for ranking projects into high (0-5 years), medium (6-10 years) and
low (10-20 years) categories.
5.1 Coordination and Implementation of the Transportation System Plan
Review Goals and Policies to at conclusion of TSP Update and change as needed.
In Goal 1, Policy 1d, correct to read ODOT’s Statewide Transportation Improvement Program (STIP).
5.2 Arterial and Collector Road Plan
Again, some of the language we won’t if it is still correct until TPAU’s traffic forecasting is completed.
The 1998 concluded the County transportation system would have adequate capacity until 2016 and
that most improvements would be tied to safety, not operational needs with a few exceptions on the
rural-urban fringe.
Add language to policy 8 referencing BOCC Resolution 2006-049 where the county will no longer
accept any new roads to maintain due to loss of federal revenue from timber.
State highway section replace references to 1991 OHP and its policies, classification schemes, and
performance standards with the references to the 1999 OHP on these same topics. Delete all
references to Category 1-4 highways as the agency has replaced that hierarchy. Delete all references to
Access Oregon Highway (AOH) for similar reasons.
1998 TSP has strict language saying traffic signals outside of UGB’s with the exception of Terrebonne or
La Pine. Delete La Pine reference. Pending discussion with ODOT and further work in TSP update, the
language may need to be further refined to either add Tumalo or delete Terrebonne or stay status quo,
except for La Pine.
Expand “four-phase approach” of improving two-lane rural highways to ultimately four-lane facilities with
divided lanes, medians, grade-separated interchanges, and frontage roads to include U.S. 20 and OR 126.
South Century interchange has been built, removed it from bulleted list.
Identify Quarry Road as the reference point for a future grade-separated interchange between Yew
Avenue in southern Redmond and Deschutes Market Road.
The 1998 TSP alludes to the then-under way “Salem-Bend OR 22/U.S. 20 Corridor Strategy.” As
ODOT never adopted the strategy and no longer uses this type of facility management planning tool,
how should this document’s recommendations be addressed?
In the U.S. 20 section, add references to upcoming refinement plans by ODOT for the segment
bounded by Deschutes River and Gerking Market Road; compile a prioritized list of geometrically flawed
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intersections and whether these will be improved, closed, or upgraded to higher level of traffic control.
Add language regarding the need for a parallel, off-highway bicycling route between Sisters and Bend.
In the OR 126 section add relocation of highway to north of Runway Protection Zone for Redmond
Airport to bulleted list; add reference to Eastside Framework Plan and future plans for highway.
Revise LOS table to reflect ADT intervals for county roads. Defer edits to County and highway
segments approaching capacity until Tech Memo #3 is completed.
Goal 10, Policy 31 add La Pine to listed cities with which the county coordinates for transportation
solutions.
For truck section, update to identify Freight Route designations on state highway. Doubt 1998 plan
language of restricting trucks to arterials is legal. Soften to say encourage to use arterials.
In the facility/safety improvements, all the text is from a Safe Communities grant from the mid-90’s.
Replace with data collected from Road Department for county roads for crash rates per million entering
vehicles for intersections, data for fatal and serious injury non-intersection crashes, and ODOT’s SPIS
for state highways.
Functional classification needs to be redone to distinguish between county classification and the federal
scheme. County scheme has Primary Arterial (U.S. 97, U.S. 20, OR 126, etc.), Rural Arterial (Deschutes
Market Road, Old Bend-Redmond Highway, River Summit Drive, etc.), Rural Collector (Indian Ford
Road, Lower Bridge Way, La Pine State Rec Road, etc.), and Forest Highway (Cascade Lakes Highway,
China Hat Road, Paulina Lakes Road, etc). The county does have a Local Road classification, but the TSP
focuses on collectors and above. The exception are Local Roads needed for emergency secondary
access for isolated rural subdivisions.
Changes to Functional Classifications Since 1998:
County staff is in the process of amending the TSP map to add 19th Street, a future arterial between
Bend and Redmond.
Bend area: Collector>Arterial: Deschutes Market, Hamby, Ward, Cooley, O.B. Riley roads or portions
thereof and future arterial in NW Bend between current UGB and Johnson Road.
Redmond Area: Collector>Arterial: Future extension of Helmholtz to a future interchange at
Quarry/97.
Other issues that remain unresolved is a secondary access to Crooked River Ranch to Lower Bridge
Way.
Update Road and Streets Standards to reflect Title 17 and 18.
5.3 Public Transportation Plan
Add text about Bend fixed-route service and development of Cascades East Transit from outlying areas.
A 1997 survey found County residents wanted a fixed-route service. In June 2007 another survey was
done for the tri-county Mobility Consortium. That survey also found a strong preference for fixed-
route transit (58% very likely or somewhat likely to use such a service for their commute) or shuttle
service (53% very likely or somewhat likely to use to commute).
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Update text to indicate ride share lots in Bend, Redmond, Sisters, La Pine, and Prineville.
Update text to indicate presence of Hawthorne Center on BAT system. Add text indicating COIC is
coordinating local demand-response service outside of Bend.
5.4 Bikeway and Pedestrian Plan
The first few pages of the current plan are specific to Deschutes County, then the remainder is
essentially ODOT’s 1992 Bicycle and Pedestrian Plan. I’d proposed maintaining the Deschutes County
specific materials, amend those materials to include the bicycle and pedestrian positions provided by
BPAC regarding designated bike routes and future pedestrian trails, and dramatically condense the rest.
I’d keep the language about bikeways and how those those are different from bike lanes, that the bulk of
pedestrian issues seem to be crossing county roads, and the ped needs within communities such as
Terrebonne and Tumalo, and work to designate a county bike system on selected county arterials.
The BPAC suggestions call for 1) policy language toward the goal of paving USFS Road #41 between
Bend and Sunriver; 2) paving Ponderosa, Savage, and Winchester between Spring River subdivision and
La Pine; 3) maintain Huntington, South Century, and Riverview to the level seen on Old Bend-Redmond
Hwy; 4) explore a paved connection between Sisters and Bend other than U.S. 20; 5) widen roads in the
Tumalo Road Reservoir area (Johnson Market, Couch, PInehurst, Tyler, and Tweed) to aid cyclists; 6)
pursue Oregon Scenic Bikeway designation for selected route; and 7) Redmond-Smith Rock pathway
using North Canal Irrigation District ditch rider roads in interim then pave Antler and 33rd for a paved
route to Smith Rock State Park.
The remaining non-motorized issue is the desire to utilize the Trans-Canada Pipeline right of way to the
east of Bend as a corridor to access North County and Smith Rock State Park.
5.5 Airport Plan
The Redmond Airport has updated its master plan and thus will need to change the Redmond section in
the TSP. Bend and Sisters have not updated their plans, but it has become a rising issue for Bend.
Finally, the question of a public airport in the La Pine/Wickiup Junction area has taken off again.
The county updated its development code since 1998 to include an Airport Safety Combing Zone (AS)
zone at DCC 18.80. This code protects Bend, Redmond, Sisters, and Sunriver airports and Cline Falls
and Juniper airparks from land use encroachments or incompatible uses. DCC 18.80 was created in
response to changes in OAR’s related to aviation after the 1998 plan was completed.
The relationship between the Powell Butte Highway and expansion at the Bend Municipal Airport is an
topic that will be addressed in the update to the TSP and the Bend Airport master plan. Similarly, the
future of OR 126 and runway expansion to the north is a critical issue for the Redmond Airport.
5.6 Rail Plan
Incorporate the conclusions of the priority list for improving, closing, or relocating at-grade crossings as
suggested by Central Oregon Rail Plan being done under the auspices of the COACT. Deschutes
County staff and elected officials are participating in the study at the technical and policy level. This plan
also deals with the potential for an intermodal reloading facility in the tri-county area, but focusing in
particular on O’Neil Junction. A complementary study for COACT is an Economic Opportunity
Analysis (EOA) for developing rail-dependent industrial lands in Central Oregon. Those conclusions will
EXHIBIT C ORDINANCE 2012-005 Page 12 of 56
also be added to this section to the TSP Update as again county staff and elected officials have
participated at both the technical and policy levels.
5.7 Water Plan
No change as there continues to be a drought of waterborne transportation in rural Deschutes County.
5.8 Pipeline Plan
No change other than the above reference as the potential use of the Trans-Canada natural gas pipeline
for a non-motorized corridor to North County or Smith Rock State Park.
5.9 Transportation System Management (TSM) and Transportation Demand Management
(TDM)
Everything remains relevant. Add language discussing the addition of park and ride lots since 1998 and
the opportunity for even more. Discuss rise of rural shuttle service and how that can be tied to Bend’s
fixed-route service. Add language about encouraging economic development in South County to reduce
employment-based commuting trips from La Pine to Bend. See if the proposed changes to the
destination resort legislation that requires TDM measures and worker housing and include or exclude,
accordingly.
5.10 Deschutes County Transportation Project List
Update based on final analysis of TSP Update by prioritization filters. Remove already completed
projects that were once listed as future long-term projects in Table 5.11.T1 (Transportation Project
List). Short-term is defined as one to five years, midterm is six to 10 years, and long-term is 11-20
years. These correspond to high, medium, and low priorities. Update project costs.
5.11 Short-term Improvement Projects
Update based on final analysis of TSP Update by prioritization filters. Remove already completed
projects that were once listed as future short-term projects in Table 5.11.T1 (Transportation Project
List). Short-term is defined as within one to five years and a high priority. Update project costs.
CHAPTER 6. TRANSPORTATION FINANCE PLAN
The majority of the finance chapter remains relevant in terms of state and federal funding such as gas
taxes, vehicle registration fees, weight-mile fees, and grants as funding sources. The costs of projects
identified in the TSP as well as costs to operate and maintain the road system will need to be updated.
The COACT board has discussed a regional gas tax given the state gas tax has not been increased since
1993. The major financial changes are the loss of federal timber revenues and the county’s subsequent
adoption of a South County SDC which was then supplanted by a countywide SDC.
Deschutes County was hard hit by the loss of federal funds tied to timber and the replacement federal
funding when federal environmental protection led to the steep decline in logging. The county’s Road
Department received approximately $3.0 million annually under the Secure Rural School and
Community Self-Determination Act of 2000. The program provided bridge funding at a declining rate to
soften the loss of timber revenues, but is due to end.
As a result, the BOCC passed Resolution 2006-049 which stated the County would no longer accept
new roads into the system of County-maintained roads. The moratorium lasts until replacement
EXHIBIT C ORDINANCE 2012-005 Page 13 of 56
funding, in the BOCC’s opinion, has been restored to adequate levels as timber revenues and their
replacement constituted approximately a third of the Road Department’s budget.
The county passed a limited SDC in March 2006 for four future signals in South County
(Burgess/Huntington; 1st/Huntington; 1st/97; and Finley Butte/97) in July 2006. The SDC, Resolution
2006-010, only applied to lands from La Pine State Rec Road south. The 1st/Huntingon signal was
completed in 2006 and Burgess/Huntington will be done in 2008. With the incorporation of La Pine in
November 2006, the county no longer collected SDC’s from lands lying within Oregon’s newest city.
The county in July 2008 adopted a countywide SDC with Resolution 2008-059. The SDC applies to all
lands outside of the Bend, Redmond, Sisters, and La Pine UGB’s. Fees are collected no later than the
issuance of certificate of occupancy. The BOCC set a phased approach, beginning at 85% of the full
SDC and increasing it by 5% every July 1 until the full amount is collected beginning in 2011.
EXHIBIT C ORDINANCE 2012-005 Page 14 of 56
STATE OF OREGON INTEROFFICE MEMO
Department of Transportation
Transportation Development Division File Code:
Mill Creek Office Park
555 13th Street NE Suite 2
Salem, Oregon 97301-4178
(503) 986-4112 FAX (503) 986-4174 Date: July 24, 2009
TO: Peter Russell
Community Development Department
Planning Division
FROM: Thanh Nguyen, PE, Senior Transportation System Analyst
Joseph L. Meek III, PE, Transportation Analyst
Transportation Planning Analysis Unit
SUBJECT: Deschutes County Transportation System Plan Update (TSP)
Technical Memo # 2 - Existing Traffic Conditions
The purpose of this technical memorandum is to describe and analyze the current (2008) traffic
conditions in Deschutes County, including safety conditions and capacity deficiencies. The
roadway system in Deschutes County is dominated by six state highways providing connections
between Bend, Redmond, Sisters and La Pine. The jurisdiction of roadways studied includes
Oregon Department of Transportation (ODOT) and Deschutes County. No city entities were
included.
The functional classification of roadways provides guidelines for safe and efficient movement of
people and goods between cities. Roads are categorized based upon the level of access and/or
mobility provided. Functional classification of a roadway system involves determining what
function each roadway should be performing with regard to travel between and through cities.
The intent of a functional classification system is the creation of a roadway hierarchy that
collects and distributes traffic from local roadways and collectors to arterials in a safe and
efficient manner. Such classification aids in determining appropriate roadway widths, speed
limits, intersection control, design features, accessibility and maintenance priorities. Functional
classification helps to ensure that non-transportation factors, such as land use and development,
are taken into account in planning and designing of the roadway system.
A balanced system is desired, yet not always attainable. The criteria of the functional
classification system are guidelines to be applied when planning for the construction of a
classified route. Roadways with similar design characteristics may have different functional
classifications. Some roadways, for a short segment, may carry higher volumes than a higher
classification roadway. The two major considerations in the classification of roadway networks
are access and mobility. Mobility is of primary importance on arterials, thus limitation of access
is a necessity. The primary function of a local roadway, however, is the provision of access,
EXHIBIT C ORDINANCE 2012-005 Page 15 of 56
which limits mobility. The extent and degree of access control is a very important factor in the
function of a roadway. The classifications are dependent upon one another in order to provide
a complete and functional system.
Figure 1 illustrates roadway jurisdiction and functional classification of Deschutes County. For
the existing traffic condition analysis, rural principal arterials (state highways), rural minor
arterials, rural major collectors and some urban collectors requested by Deschutes County
have been studied. The requested urban collectors were Baker Road (from the US97
northbound ramps west to Brookswood Boulevard), and Burgess Road (from US97 west to
Day Road). Figures 2 and 3 show state highways designated as National Highway System (NHS)
highways and expressways, respectively.
The Deschutes County road network consists of two-lane roadways with turn lanes at some
critical locations. The majority of traffic controls are stop signs with a mix of four -way stops,
three-way stops and two-way stops. There is only one signal in the county at South Century
Drive and Venture Lane intersection in the Sunriver resort community. All arterials and
collectors in the county are paved except for the following roads:
Buckhorn Road is a graveled surface from OR126 to NW Lower Bridge Way.
Huntington Road: A portion of Huntington Road is gravel, from Riverview Drive (S) to
Riverview Drive (N), (approximately 2.3 miles). Currently, all traffic uses Riverview
Drive. The County is planning to realign Huntington Road at these two intersections
and pave Huntington Road so it is the main road and Riverview Drive will be a “T-type”
intersection.
McGrath Road: There is a portion of McGrath Road that is not constructed (approx. 1.7
mi.) from the south boundary of the Boonesborough Subdivision to the entrance to the
City of Bend treatment plant.
Rickard Road: The last 1.8 miles of this road are gravel from end of pavement to the
intersection with US20.
Wilt Road: The last 4.5 miles of this road are gravel from end of pavement to the
County line.
Capacity Analysis
Transportation System Plans (TSPs) are to identify needs/risks of transportation systems.
Instead of detailed project level analysis outlined in Transportation Planning Analysis Unit’s
Analysis Procedure Manual (TPAU’s APM), a system-level analysis was used for the Deschutes
County TSP update. The analysis is based on the Deschutes County travel demand model along
with other data to estimate deficiencies with a high, medium and low ranking. A high rank
indicates a near-term project will be needed with a combination of the available funding.
Medium and low ranks show need of a refinement plan for mid-term and long-term projects to
be amended back into the TSP.
Capacity analysis of the TSP’s roadways was performed using the Highway Economic
Requirements System – State Version (HERS-ST). HERS-ST can be used in “need” analysis,
program development or establishing performance objectives. HERS-ST analytical procedures
rely on a Highway Performance Monitoring System (HPMS) database.
EXHIBIT C ORDINANCE 2012-005 Page 16 of 56
State highways used existing 2006 HPMS data from ODOT’s Integrated Transportation
Information System (ITIS).
County roadways use HPMS data developed from the base Deschutes County travel
demand model (e.g. Annual Average Daily Traffic (AADT) volumes, speeds, number of
lanes), data provided by Deschutes County (e.g. truck percentages), an assumed average
K-factor of 15 percent and some national default values in the HERS-ST analytical
program for unattainable data.
For county roads, the AADT volumes in HPMS were developed by post-processing the base
2003 Deschutes County Model (DCM) link’s AADTs. Most of the base DCM link’s AADTs
were calibrated to reflect field counts, however some areas lack field counts, so those areas
were adjusted using engineering judgment. Automatic Traffic Recorders (ATR) on state
highways within Deschutes County shows a decreasing volume trend between 2004 and 2008.
The cause may be from a combination of higher fuel prices and a slowing economy. County
roads would likely follow the same decreasing trend, so the existing year volumes would be
approximately equal to 2006. To obtain the 2006 AADTs for county roads, the base DCM
link’s AADT were adjusted based on a growth factor developed from Deschutes County field
counts. For county roads without a growth factor, a two percent annual growth rate was
applied.
The state highway mobility standards and the Deschutes County operational standards were
used to rank segment deficiencies by high, medium and low. A process based on ODOT’s
Preliminary Signal Warrants (PSW) was used to rank intersections. Segments and/or
intersections may have capacity, geometry or safety issues to be addressed in more detail in
projects or refinement plans.
State Highway Segments
State highway mobility standards were developed for the 1999 Oregon Highway Plan (OHP) to
measure traffic flow of state highways. The mobility standards are based on volume to capacity
ratios. For a system-level TSP analysis, the estimated results for state highway segments should
be ranked based on a range of the mobility standards between 0.60 and 0.80 (based on
engineering judgment) in a format below:
v/c < or = 0.60: Low risk
0.60 < v/c < 0.80: Medium risk
v/c > or = 0.80: High risk
For existing conditions, the state highway analysis shows that no segments are at the High risk
level, most are at the Low risk level (See Figures 4). Table 1 shows segments at the Medium
risk level.
EXHIBIT C ORDINANCE 2012-005 Page 17 of 56
Table 1. Medium Risk State Highway Segments
Highway Name Beginning
Mile-point
Ending Mile-
point
Average
AADT1
Ranking
Level
Functional
Class
US97
(Hwy No. 4 - The
Dalles – California)
115.23 117.34 16,300 Medium
Rural
Principal
Arterial
US97
(Hwy No. 4 - The
Dalles – California)
151.05 153.08 17,100 Medium
Rural
Principal
Arterial
US20
(Hwy No. 17 -
McKenzie – Bend)
14.48 14.72 14,700 Medium
Rural
Principal
Arterial
Hwy No. 370 – O’Neil 0.78 0.86 2,300 Medium
Rural
Principal
Arterial
Hwy No. 372 –
Century Drive 10.62 11.75 2,500 Medium
Rural
Principal
Arterial
Hwy No. 372 –
Century Drive 18.77 18.81 1,050 Medium
Rural
Principal
Arterial
1 Average AADT estimated from 2006 HPMS database of records for state highways.
Deschutes County Road Segments
For existing Deschutes County roadways, the County operational standards are based on delay
at the Level of Service D (LOS D). However, the Average Daily Traffic (ADT) thresholds for
LOS D are 5,700 and 9,600. Therefore, roadway segments under the Deschutes County
jurisdiction:
Below LOS D threshold: Low risk
Within LOS D: Medium risk
Above LOS D threshold: High risk
Majority of existing Deschutes County roadway segments are at a Low risk level. Figure 4
shows the level of ranking for Deschutes County roads. Table 2 summarizes segment locations
AADT, functional class and ranking.
EXHIBIT C ORDINANCE 2012-005 Page 18 of 56
Table 2. High and Medium Risk Deschutes County Segments
Segment or Roadway
Name From To Ranking AADT1 Functional Class
Lower Bridge Way 31st Street 43rd Street Medium 5800 Rural Collector
Deschutes Market Rd. Dale Rd Hamehook Rd Medium 5800 Rural Collector
Baker Rd Iroquois Circle Apache Rd Medium 5800 Urban Collector
Baker Rd Apache Rd Cinder Butte Rd Medium 6800 Urban Collector
Baker Rd Cinder Butte
Rd
Southbound US97
Ramps Medium 8800 Urban Collector
Baker Rd Southbound
US97 Ramps
Northbound US97
Ramp Medium 9300 Urban Collector
Knott Rd Northbound
US97 Ramp China Hat Rd Medium 6700 Urban Arterial
South Century Dr Spring River Rd Venture Ln Medium 6000 Rural Arterial
Burgess Rd Huntington Rd Day Rd Medium 7400 Urban Collector
1 AADT estimated from 2003 Deschutes County Model Version dated 3/23/09.
Intersections within the Deschutes County TSP analysis network
ODOT’s Preliminary Signal Warrant (PSW) is used to evaluate signalization at an ADT level for
an unsignalized intersection. Meeting the warrant does not mean a signal will be installed, but it
indicates that the minor approaches will experience excessive delay or have substantial difficulty
in entering or crossing the major street at an unsignalized intersection. As a part of the system
analysis for the TSP, the PSW process was used to rank unsignalized intersections based on the
approach’s ADT volumes. Exceeding certain thresholds could indicate when an intersection
improvement (not just including signals – i.e., roundabouts, turn restrictions, interchanges, etc.)
would be necessary. Because of the sensitivity of the model volumes and the normal
fluctuations in volumes, the following warrant thresholds to rank deficiency were used:
Between 60% and 80% of threshold: Low risk
Between 80% and 100% of threshold: Medium risk
Greater than 100% of threshold: High risk
Figure 5 shows intersections with different levels of delay from minor approaches. The South
Century Drive and US 97 intersection was fixed by a new interchange and the South Century
Drive and Abbott Road interchange was fixed with a roundabout. Table 3 summarized
intersection locations and their level of ranking.
EXHIBIT C ORDINANCE 2012-005 Page 19 of 56
Table 3. Intersection Risk Ranking
Intersection Locations Ranking
Old Bend-Redmond Hwy / US20 High
Powell Butte Hwy / US20 High
US97 SB On/Off Ramp / Baker Rd High
Knott Rd / US97 NB Off Ramp / Baker Rd High
Cook Ave / US20 / O B Riley Rd High
Neff Rd / Powell Butte Hwy / Alfalfa Market Rd High
SW/NW Helmholtz Way / OR 126 High
Pershall Way / US97 / O. Neil Hwy High
US97 / Vandevert Rd High
US97 / Lower Bridge Way High
US97 / South Century Dr1 High
Butler Market Rd / Powell Butte Hwy Medium
South Century Dr / Abbott Rd2 Medium
Dalles California Hwy / Smith Rock Way Medium
Fremont Hwy / Dalles California Hwy (US97) Medium
Tumalo Rd / Cline Falls Hwy / Cook Ave Medium
Hamby Rd / US20 Low
South Century Dr / Vandevert Rd Low
South Century Dr / Spring River Rd Low
US97 / Tumalo Rd / Deschutes Market Rd Low
1 This intersection has been fixed by a new interchange.
2 This intersection has been fixed by a new roundabout.
Safety Analysis
A segment and intersection safety analysis was performed to identify poor geometric or
operating conditions outside of capacity-related elements. Poor conditions are often indicated
by patterns in the type of crash or level of severity. This analysis is based on official reported
crash data from ODOT (there may be crashes not accounted for in ODOT data). Differences
between state and local data are because of the investigative agency that reported to the crash
scene or the crash not being reported by citizens involved.
State Highways
The crash data was analyzed for type, severity, location, crash rates, and the Safety Priority
Index System (SPIS). SPIS was developed in 1986 by ODOT for identifying potential safety
problems on state highways, where safety money may be spent to the highe st benefit. The
crash rate, expressed in crashes per million vehicle -miles traveled, is used to compare the
crash experience of one roadway segment to another. This rate expresses how many crashes
might be expected of vehicles traveling through a particul ar section of roadway for a
cumulative total of one million miles. The SPIS score is calculated based on three years of
crash data and considers crash frequency, crash rate, and crash severity. The SPIS score is
computed for a roadway segment that is one tenth of a mile in length. A roadway segment
becomes a SPIS site if:
EXHIBIT C ORDINANCE 2012-005 Page 20 of 56
A location has three or more crashes; or
One or more Injury-A (life-threatening); or
A fatal crash over the three year period.
For state highways, a Crash Summary Database (CSD) program is created annually by ODOT.
It is used in evaluating sections of highways and yields information for sections of highways
regarding highest and lowest SPIS values, crash rates, traffic information and number and type of
crashes. The analysis of the CSD program is based on three years of crash data (2005 – 2007).
The CSD crash rates will be compared to a three year (2005 – 2007) average of the published
rural highway system rates by functional class. Tables 4 and 5 summarize the crash rates, SPIS
and the important patterns that emerged. Figure 6 shows 2005 – 2007 crashes and Top 10%
SPIS sites on state highways.
Deschutes County classifies all state highways as rural principal arterials. For the purpose of the
crash analysis, state classifications on state highways will be used.
Of the 626 reported crashes on state highways in Deschutes County between 2005 and 2007,
the majority of crashes were fixed object collisions (44%). These fixed object crashes may be
caused by lack of illumination, poor pavement conditions, poor weather c onditions, driver
fatigue, etc. Other collision types ranged from 5 to 20 percent. The vast majority (79%) of
crashes were under daylight conditions. About half of the crashes occurred under snow, ice, or
wet conditions. About a quarter of crashes occurred at intersections. The total crashes
involving trucks were eight percent.
Outside of UGBs, there are four top 10% SPIS sites on state highways in Deschutes County,
one on US20 (McKenzie – Bend) and three on US97.
US 20, MP 14.53 and 14.71: This intersection of US20 at Bailey Road/7th Street is in the
community of Tumalo. Of the seventeen 2005 – 2007 reported crashes, eight were
turnings, six were angles, one was rear-end and two were fixed objects. There were
also three severe Injury-A crashes. Right–in/out or other turn restrictions should be
considered to improve safety.
US97, MP128.49 - 128.67: This intersection of US97 at 61st Street/Deschutes Pleasant
Ridge Road has 12 crashes reported between 2005 and 2007, 42 percent were rear-end,
26 percent were turning and 16 percent were angle and sideswipe-overtaking. The crash
severity includes one fatal, and two Injury-As. Countermeasures could include an over-
crossing or right-in-right-out turn restrictions.
US97, MP 146.39 - 146.56: Of the six 2005 - 2007 reported crashes, there were two
head-ons, two rear-ends, one sideswipe-overtaking and one fix-object. The crash
severity includes one fatal and one Injury-A. Raised median barriers should be
considered to improve safety at this location.
US97, MP 168.10 - 168.28: This intersection of US97 at 6th Street divides Deschutes
County and City of LaPine jurisdictions. Two out of seven 2005 – 2007 reported
crashes were angle crashes, and the rest were turning crashes. The crash severity
includes one fatal and one Injury-A. This location is within a transition of rural and urban
areas. These type of crashes occur when drivers from the crossroad misjudge oncoming
EXHIBIT C ORDINANCE 2012-005 Page 21 of 56
vehicle speed on the highway because highway vehicles speed up as they enter the rural
area. Modification to the current striping and signing to warn drivers the changes in
travel lanes and in the culture on US97 have already been considered at this location.
Table 4. 2005 - 2007 State Highway Crash Rates1
Segment ADT6
CSD
3-yr
Crash
Rate
Averaged
Rural
Hwy
System
Rates
Type of Crash
Head
On Angle Turn Rear
End
Side
Swipe
Fixed
Object Misc5
US97 Hwy No. 4 - The Dalles – California
MP 112.86 - 119.02 14,400 0.55
0.712
4 4 12 20 2 6 5
MP 124.41 - 130.18 29,400 0.30 2 3 4 13 8 16 9
MP 130.18 - 132.19 27,500 0.30 2 1 1 5 1 5 3
MP 132.19 - 133.56 27,500 0.24 2 0 1 0 2 2 3
MP 142.24 - 143.47 22,200 0.37 0 1 2 2 2 2 2
MP 143.47 - 150.71 17,100 0.40 4 1 0 5 5 33 6
MP 150.71 - 162.67 13,250 0.59 7 4 12 17 11 43 8
MP 162.67 - 164.19 9,400 0.45 0 0 1 0 2 2 2
MP 168.18 - 169.68 6,650 1.10 1 2 4 1 1 3 0
OR242/126 Hwy No. 15 - McKenzie
MP 77.14 - 91.11 535 1.34 1.173 1 1 1 1 2 5 0
MP 93.38 - 107.77 5,150 0.55 0.71 1 0 7 6 2 19 10
MP 107.77 - 110.15 11,000 0.94 0 4 9 6 0 4 4
US20 Hwy No. 16 - Santiam
MP 90.85 - 92.85 5,100 1.34
0.71
1 0 1 3 1 8 1
MP 92.85 - 94.95 6,550 0.60 0 0 0 2 0 4 3
MP 94.95 - 100.12 10,400 0.61 1 2 2 5 4 17 5
US20 Hwy No. 17 - McKenzie - Bend
MP 0.00 - 4.04 8,700 0.57
0.71
0 0 2 4 2 8 6
MP 4.04 - 5.30 8,700 0.67 0 0 0 3 0 4 1
MP 5.30 - 7.87 8,700 0.90 0 1 0 6 2 9 4
MP 7.87 - 9.72 9,100 1.19 2 0 1 4 1 9 5
MP 9.72 - 12.28 9,500 0.64 0 0 2 4 2 5 4
MP 12.28 - 14.30 9,500 0.33 0 0 1 1 0 3 2
MP 14.30 - 17.48 13,600 0.84 1 7 12 3 3 7 7
OR31 Hwy No. 19 - Fremont
MP 0.00 – 2.31 1,900 1.46 0.994 0 0 0 2 0 4 1
OR126 Hwy No. 41 - Ochoco
MP 2.32 - 3.58 8,100 0.45 0.71 0 0 0 2 0 3 0
US20 Hwy No. 7 - Central Oregon
MP 3.05 - 4.80 12,450 0.59
0.71
1 4 4 1 0 1 3
MP 4.80 - 9.16 3,250 0.97 0 5 1 1 0 5 3
MP 9.16 - 20.56 2,600 0.18 0 0 1 0 0 3 2
MP 20.56 - 35.65 1,550 0.35 0 0 0 0 2 6 1
MP 35.65 - 42.64 1,500 0.35 0 0 0 0 2 2 0
MP 42.64 - 69.25 1,500 0.39 0 0 0 1 0 12 4
EXHIBIT C ORDINANCE 2012-005 Page 22 of 56
Segment ADT6
CSD
3-yr
Crash
Rate
Averaged
Rural
Hwy
System
Rates
Type of Crash
Head
On Angle Turn Rear
End
Side
Swipe
Fixed
Object Misc5
Hwy No. 370 – O’Neil
MP 0.00 - 3.84 1,950 1.10 0.994 0 2 2 0 0 3 2
Hwy No. 372 – Century Drive
MP 4.63 - 7.19 8,500 0.25
0.99
1 0 0 1 0 4 0
MP 7.19 - 8.43 3,750 0.98 1 0 0 2 0 2 0
MP 8.43 - 11.43 2,500 1.34 1 0 0 1 2 5 2
MP 11.43 - 16.87 2,100 1.04 0 1 0 2 1 7 2
MP 16.87 - 19.19 2,100 1.50 0 1 1 2 0 4 0
MP 19.19 - 21.98 2,000 1.64 0 0 3 0 2 5 0
1 Black shaded cells indicate that the three year average of the published rural highway system crash rates were exceeded.
2 Three year average of the published rural highway system crash rates for rural principal arterials.
3 Three year average of the published rural highway system crash rates for rural major collectors.
4 Three year average of the published rural highway system crash rates for rural minor arterials.
5 Miscellaneous crashes also include pedestrian, backing, parking, and non-collision crash types.
6 The ADT is taken from the middle year of the three years of data reviewed.
Table 5. 2005 - 2007 State Highway Crash Severity
Segment1 Crash Severity
PDO2 INJ3 FAT4
US97 Hwy No. 4 - The Dalles – California
MP 112.86 - 119.02 25 26 2
MP 124.41 - 130.18 28 26 1
MP 130.18 - 132.19 7 11 0
MP 132.19 - 133.56 6 4 0
MP 142.24 - 143.47 6 5 0
MP 143.47 - 150.71 30 22 2
MP 150.71 - 162.67 48 50 4
MP 162.67 - 164.19 6 1 0
MP 168.18 - 169.68 5 5 2
OR242/126 Hwy No. 15 - McKenzie
MP 77.14 - 91.11 7 4 0
MP 93.38 - 107.77 24 21 0
MP 107.77 - 110.15 9 18 0
US20 Hwy No. 16 - Santiam
MP 90.85 - 92.85 9 6 0
MP 92.85 - 94.95 6 3 0
MP 94.95 - 100.12 20 16 0
US20 Hwy No. 17 - McKenzie - Bend
MP 0.00 - 4.04 11 11 0
MP 4.04 - 5.30 4 4 0
MP 5.30 - 7.87 7 15 0
MP 7.87 - 9.72 12 9 1
MP 9.72 - 12.28 10 5 2
MP 12.28 - 14.30 5 1 1
EXHIBIT C ORDINANCE 2012-005 Page 23 of 56
Segment1 Crash Severity
PDO2 INJ3 FAT4
MP 14.30 - 17.48 18 22 0
OR31 Hwy No. 19 - Fremont
MP 0.00 – 2.31 4 3 0
OR126 Hwy No. 41 - Ochoco
MP 2.32 - 3.58 2 3 0
US20 Hwy No. 7 - Central Oregon
MP 3.05 - 4.80 6 8 0
MP 4.80 - 9.16 6 8 1
MP 9.16 - 20.56 3 3 0
MP 20.56 - 35.65 4 5 0
MP 35.65 - 42.64 2 2 0
MP 42.64 - 69.25 8 9 0
Hwy No. 370 - O’Neil Highway
MP 2.32 - 3.58 5 4 0
Hwy No. 372 – Century Drive
MP 4.63 - 7.19 3 3 0
MP 7.19 - 8.43 4 1 0
MP 8.43 - 11.43 9 2 0
MP 11.43 - 16.87 6 7 0
MP 16.87 - 19.19 6 2 0
MP 19.19 - 21.98 7 3 0
1 Black shaded cell indicates the segment is a Top 10% SPIS site.
2 PDO = Property Damage Only
3 INJ = Injury
4 FAT = Fatality
Two segments on the McKenzie Highway, one on OR242 and one on OR126 east of Sisters,
have CSD three year crash rates exceeding three year average of the published rural highway
system rates.
OR242, MP 77.14 - MP 91.11: The majority of crashes on this rural major collector
occurred on wet and icy roadway conditions. Weather advisory signs/message boards
should be considered.
OR126, MP 107.77 - MP 110.15: This roadway is a rural principal arterial and within the
urban fringe area of Redmond. The majority of crashes on this segment were angle, turn
and rear-end collision types which occurred during good weather with a dry roadway
surface condition and at intersections and accesses. Consolidated accesses, channelized
turn bays and raised median barriers should be considered for this segment.
US 20, MP 90.85 - MP 92.85, west of Sisters: This rural principal arterial exceeds the three year
average of the published rural highway system rates. A majority of crashes were rear -end and
fixed object collisions. Thirteen out of fifteen total crashes occurred on wet, snowy or icy
roadway surface conditions. Weather advisory signs/message boards should be considered for
this segment.
EXHIBIT C ORDINANCE 2012-005 Page 24 of 56
US 20, MP 5.30 - MP 9.72, east of Sisters: This rural principal arterial exceeds the three year
average of the published rural highway system rates. Thirty out of forty-two total crashes
occurred under dry conditions. Majority of crashes were rear-end, side-swipe and fixed objects.
One head-on fatality crash occurred during dry daylight conditions. Errors in the crash reports
included: followed too close, driving too fast, fatigued, careless driving, and inattention. Law
enforcement and speed advisories should be considered for this segment. Raised barriers may
also be considered to eliminate the potential head-on crash potential.
OR31, MP 0.00 - MP 2.31: This rural minor arterial exceeds the three year average of the
published rural highway system rates. Four out of the seven total crashes were fixed object
collisions. The majority of crashes were related to driving too fast and following too close. Law
enforcement and speed advisories should be considered for this segment.
US 20, MP 4.80 - MP 9.16, east of Bend: This rural principal arterial exceeds the three year
average of the published rural highway system rates. One-third of the total crashes were angle
and fixed objects. Seventy five percent of crashes occurred during dry conditions. Driver’s
errors included: driving too fast, following too close, and improper turning. Law enforcement
and speed advisory should be considered for this segment.
OR370, MP 0.00 - MP 3.84, O’Neil Highway (Hwy 370): This rural minor arterial exceeds the
three year average of the published rural highway system rates. Most of the nine total crashes
involved driving too fast and alcohol. Law enforcement and speed advisory should be considered.
Century Drive (Hwy 372), MP 8.43 - 21.98: This rural minor arterial exceeds the three year
average of the published rural highway system rates. Of the 42 crashes, 21 were fixed object
crashes. Thirty-six crashes occurred with wet, snowy or icy roadway surface conditions.
Weather advisories should be considered for this segment.
Deschutes County Roads
The county crash data is obtained from official ODOT crash reports, as with the state
highways. However, due to the lack of accurate crash locations on county roadways, crash data
were reviewed and located on the county road network in large segments. In addition,
legislative changes to the Department of Motor Vehicles crash reporting requirements, effective
January 1, 2004, may result in less Property Damage Only (PDO) crashes being eligible for
inclusion in the Statewide Crash Data File. County crash analyses were conducted at
intersections and on roadway segments. Analyzed intersection crashes were not included on
segment analysis to avoid duplication. Figure 7 shows 2002 – 2006 crashes on roadways under
Deschutes County jurisdiction.
Intersections under Deschutes County Jurisdiction
Table 6 summarizes intersections with crash rates greater than 0.50. The intersection crash
rate, expressed in “crashes per million entering vehicles”, is used to compare the crash rate of
one intersection to another. Intersection crash rates greater than 1.0 indicate potential safety
issues and the need for further investigation.
EXHIBIT C ORDINANCE 2012-005 Page 25 of 56
Table 6. 2002 - 2006 Deschutes County Intersection Crash Rates1
Intersection Location Intersection
Crashes
Entering
ADT
Intersection
Crash Rate
Hamby Rd & Neff Rd 21 4150 2.77
Coyner Ave & Northwest Way 8 3550 1.24
Old Bend-Redmond Hwy & Tumalo Rd 9 4550 1.08
South Century Dr & Spring River Rd 6 5050 0.66
Neff Rd & Powell Butte Hwy & Alfalfa
Market Rd 10 9050 0.61
Gosney Rd & Rickard Rd 2 2150 0.52
Hamehook Rd & Deschutes Market Rd 4 4350 0.51
Butler Market Rd & Powell Butte Hwy 7 7650 0.50
1 Black shaded cell indicates the intersection exceeds a crash rate of 1.0.
The three intersections shown below exceeded the 1.0 crash rate threshold.
NE Neff Road at Hamby Road. There were a total of 21 crashes at this location between
2002 and 2006:
33% (7) fatal crashes
10% (2) Injury-A crashes
39% injury crashes (including A)
29% Property Damage Only (PDO) crashes
86% occurred in daylight conditions
81% (17) were angle collisions
19% (4) were turn movement
No pedestrian crashes
A high number of crashes occurred in 2002, with an average of five crashes per year
from 2003 to 2006. The crash data shows that the vast majority of the crashes
occurred in dry daylight conditions. Over a third of the crashes occurred between 9:00
AM and 12:00 PM. All of the collision types were angle or turning. Angle collisions (17)
included seven fatalities and one Injury-A crash. The four turning collisions included two
fatalities and one Injury-A crash. All of the crashes occurred because the drivers failed
to yield the right-of-way. Improvements have already been made at this intersection in
the form of installing four-way stop control. This should improve the safety of the angle
or turning maneuvers. If needed, additional countermeasures may include clearing sight
distance and roadside shoulders.
Coyner Road at Northwest Way. There were a total of 8 crashes at this location
between 2002 and 2006:
EXHIBIT C ORDINANCE 2012-005 Page 26 of 56
13% (1) fatal crashes
25% (2) Injury-A crashes
38% injury crashes (including A)
50% Property Damage Only (PDO) crashes
100% occurred in daylight
75% (6) were angle collisions
No pedestrian crashes
Three crashes or less occurred per year from 2002 to 2006. All of the crashes occurred
under dry daylight conditions. About two-thirds of the crashes occurred in the
afternoon peak period from 3:00 PM to 6:00 PM and three-quarters occurred in the last
half of the week.
The single fatality was an angle collision that occurred in 2002 when a driver failed to
stop at a stop sign. One Injury-A crash was a turning collision, a vehicle improperly
overtook another. The other Injury-A crash was a rear end collision. The inattentive
driver was traveling too fast for conditions, but not exceeding the posted speed. The
impacted vehicle was forced into the vehicle in front. Improvements have already been
made at this intersection, in the form of installing flashing lights to the stop signs. If
needed, additional countermeasures may include clearing sight distance and roadside
shoulders.
Old Bend-Redmond Highway at Tumalo Road. There were a total of 9 crashes at
this location between 2002 and 2006:
22% (2) fatal crashes
11% (1) Injury-A crashes
56% injury crashes (including A)
44% Property Damage Only (PDO) crashes
78% occurred in daylight
11% (1) were rear-end collisions
22% (2) were turn movement
11% (1) were fixed object collisions
56% (5) were angle collisions
No pedestrian crashes
EXHIBIT C ORDINANCE 2012-005 Page 27 of 56
There have been two to three crashes per year from 2002 to 2006. The crash data
shows that half of the crashes occurred in the afternoon peak period between 3:00 PM
and 6:00 PM, and that two-thirds occurred in the last half of the week. About two-thirds
of the crashes occurred in dry conditions and over three-quarters in daylight.
One fatality was an angle collision. One vehicle failed to stop at a stop sign in the early
morning on a dry roadway. The other fatality was a fixed object collision where the
vehicle was traveling too fast for the icy conditions, but was not exceeding the posted
speed. The Injury-A crash was a rear-end collision, under dry, daylight conditions where
the driver was following too closely and could not respond quickly enough (cell -phone
use involved) to livestock blocking the roadway.
Deschutes County Roadway Segments
Table 7 summarizes Deschutes County roadway segments with crash rates greater than
0.50 by functional class.
Table 7. 2002 - 2006 Deschutes County Roadway Segment Crash Rates1
Road Name Crash
Total
Weighted
ADT
Roadway
Length
Crash
Rate Functional Class
Pershall Way 6 650 3.3 1.56 Rural Major Collector
North Canal Blvd 2 300 3.0 1.35 Rural Major Collector
Hamby Rd 14 1250 4.8 1.27 Urban Collector
Canal Blvd 25 2150 6.8 0.94 Rural Major Collector
Johnson Ranch Rd 2 150 8.0 0.93 Rural Major Collector
Burgess Rd 59 3600 10.2 0.89 Urban Collector
Paulina Lake Rd 2 50 34.8 0.85 Rural Major Collector
Wilcox Ave 2 250 5.5 0.81 Rural Major Collector
Alfalfa Market Rd 30 1200 18.9 0.73 Rural Major Collector
Coyner Ave 4 1350 2.5 0.66 Rural Major Collector
Cannal Blvd 1 1950 0.4 0.64 Urban Minor Arterial
Huntington Rd 11 1250 7.8 0.63 Rural Major Collector
Butler Market Rd 13 2750 4.8 0.55 Rural Major Collector
Skyliners Rd 5 350 15.4 0.53 Rural Major Collector
Deschutes Market Rd 33 4200 8.4 0.51 Rural Major Collector
South Century Dr 17 4300 4.3 0.51 Rural Minor Arterial
1 Black shaded cells indicate that the 2007 published rural/urban area’s highway system crash rates were exceeded.
Based on Table 2 on page 7 of the 2007 State Highway Crash Rate Table (five-year
comparison of state highway crash rates), the 2007 published rural/urban area’s highway
system crash rates are:
1.24 for rural major collectors
0.86 for urban collectors
These 2007 published rural/urban area’s highway system crash rates were compared to
Deschutes County roadway segment crash rates. Any county roadway segment crash
rate greater than the 2007 published rural/urban area’s highway system crash rates for
that classification indicates potential safety issues that need further investigation.
EXHIBIT C ORDINANCE 2012-005 Page 28 of 56
Burgess Road (from US97 to Ponderosa Way). The Burgess Road segment
outside of the La Pine city limits has a large number of fatalities (9). The crashes are
mostly angle, turning, and rear-end collisions with about half occurring at intersections
and about half occurring under winter conditions. Trends show that the number of
crashes will increase with time. There are two high crash locations within this segment:
Burgess Road, where it abruptly curves from an east/west to a
southeast/northwest orientation, has been the scene of several crashes. The
curve occurs between Sunrise Boulevard and Primrose Lane. This section should
be investigated for geometric improvements.
The intersection of Day Road and Burgess Road is incurring multiple crashes.
The turning fatality crash occurred on a dry surface in daylight hours. The driver
did not yield the right-of-way. There were no pedestrian collisions. The Injury-A
crash was a fixed object collision that occurred on ice in the early morning.
Countermeasures could include: limiting street access/turns, improved
intersection traffic control, constructing medians, and improving roadway
geometrics (shoulders, clear zones, sight distance, etc).
Deschutes County Public Works specifically requested that the section of Burgess Road
within the La Pine UGB be analyzed without splitting the Huntington Road/Burgess Road
intersection out, deviating from the TSP safety analysis procedures and methodology.
There are a large number of crashes on Burgess Road inside the La Pine UGB.
However, the majority (27 of 34) of crashes occurred at the intersection of Burgess
Road and Huntington Road. On Burgess Road, two crashes occurred between the La
Pine UGB and Huntington Road and four were between Huntington Road and US97.
At the intersection of Burgess Road and Huntington Road, four of the six fatal crashes
were turn collisions. All fatal and Injury-A crashes occurred during daylight hours. One
fatal crash and half of the turning crashes occurred in inclement conditions. The causes
were mainly failure to yield the right-of-way or traveling too fast for conditions. There
were no pedestrian collisions. Deschutes County plans to signalize this intersection
which should reduce the severity and number of turning crashes.
Hamby Road. There were fourteen crashes in this section, most of them occurring in
dry, dark conditions. None of the crashes involved a fatality. All but four of the segment
crashes were fixed object crashes. Of the four, two were pedestrian crashes; the other
two were angle and rear-end crashes. The crashes were attributed to some form of
improper driving, speeding, following too closely or inattention. Alcohol was only
involved in one of the crashes. Countermeasures including recoverable slopes, clear
zones and shoulder improvements should be considered.
Pershall Way. There were six crashes on this roadway. Two were fixed object
collisions, two were non-collision crashes (phantom vehicle) and two were rear-end
collisions. All but the fixed object crashes were Property Damage Only (PDO)
collisions. There were no fatalities. The weather was clear for all crashes. Icy roadways
were a factor in two crashes. All but one crash occurred in daylight. The crashes were
attributed to improper driving, reckless driving, speeding, following too closely and
EXHIBIT C ORDINANCE 2012-005 Page 29 of 56
inattention. Recoverable slopes absent of rocks, fences or other obstacles would have
been of benefit to half of these crashes.
North Canal Boulevard. Two crashes occurred on this roadway, both under clear
dry daylight conditions. A fixed object crash near US97 was caused by driving too fast
for conditions. The other crash on this roadway was a sideswipe-overtaking crash
attributed to improper passing.
cc: Peter Schuytema, TPAU Devin Hearing, Region 4
Mark Devoney, Region 4 File
EXHIBIT C ORDINANCE 2012-005 Page 30 of 56
STATE OF OREGON INTEROFFICE MEMO
Department of Transportation
Transportation Development Division File Code:
Mill Creek Office Park
555 13th Street NE Suite 2
Salem, Oregon 97301-4178
(503) 986-4112 FAX (503) 986-4174 Date: July 12, 2010
TO: Peter Russell
Deschutes County Planning Division
FROM: Thanh Nguyen, PE, Senior Transportation System Analyst
Transportation Planning Analysis Unit
SUBJECT: Deschutes County Transportation System Plan Update (TSP)
Updated Technical Memo # 3 – 2030 Future Traffic Conditions
The purpose of this technical memorandum is to update and document the results for
the 2030 future traffic conditions by ranking roadway network intersections and
segments by low, medium, and high. The ranking process was introduced in Technical
Memorandum # 2 - Existing Traffic Conditions, dated 7/24/2009.
Travel Demand Forecasting Model
The Deschutes County travel demand model relies on socioeconomic data (e.g.,
population and employment) to determine travel demand and system attributes (e.g.,
capacity, speeds, distances) to represent the transportation supply. The Deschutes
County travel demand model has a base year of 2003 and a horizon year of 2030.
Deschutes County provided base and horizon years’ population and employment
information. The horizon year (2030) population and employment forecast distributions
were derived by the land use model – LUSDR (Land Use Scenario DevelopR) developed
by ODOT. Two guiding assumptions for the Deschutes County modeling effort greatly
simplified the land use model:
1) The future population and employment allocations for Bend, Redmond and
Sisters are assumed as given in their models.
2) It is assumed that there will be no increase in employment outside of the
urban model areas except in destination resorts.
Given these assumptions, the land use model for Deschutes County simplifies to that of
allocating residential dwelling units to Transportation Analysis Zones (TAZ) located
outside of the urban model areas. The Deschutes County land use model also accounts
for the development of recreational and second homes in destination resorts and
elsewhere in the study area. For the model area, there is an estimation of 134,655
future households which were synthesized from the future population that was from the
official Office of Economic Analysis projections. The development of recreational and
second homes is estimated about 13.7 percent of the total future households in the
EXHIBIT C ORDINANCE 2012-005 Page 31 of 56
study area. These developments significantly contribute to vehicle travel and also to the
amount of employment occurring in destination resorts and need to be modeled.
The Deschutes County land use model also makes general allocations of households and
employment to Crook and Jefferson counties. The transportation model includes those
areas in order to provide better traffic predictions at the Deschutes County boundary.
These counties are also important to the allocation of recreational and second home
development since Deschutes County is part of the overall Central Oregon market for
these types of developments. However, the forecasts are not made at the geographic
level of detail of places within Deschutes County because it is unnecessary to do so in
order to achieve the above objectives.
The Deschutes County LUSDR model generated 30 different population and
employment forecast distributions (scenarios) for 2030. These were then input into the
2030 Deschutes County travel demand model to determine the traffic demand on the
various links for each of the 30 scenarios. Coefficients of variation were calculated for
each link. The coefficient of variation measures how much a particular link volume
changes over the different land use scenarios. In order to do this, each scenario was run
in the model to distribute the 2030 population and employment forecasted numbers and
to create link volumes. A coefficient of variation of up to ten percent is desirable. Figure
1 shows the distribution of the link’s coefficient of variation. On links with coefficients of
variation over ten percent, further investigations indicated that those links have low
annual average daily traffic volumes (See Figure 2) and the majority of these links are off
of the transportation system plan (TSP) study network. On roads with low volumes, any
change can yield a high variation. The analysis results indicated no significant impacts on
link demand among the 30 distributions, so they were averaged together into a single
future scenario to be used in the 2030 Deschutes County demand model for future
analysis.
Future Average Annual Daily Traffic Forecast
The future average annual daily traffic (AADT) forecasting process was based on the
Deschutes County travel demand model. The future AADTs were developed by
following the NCHRP Report 255 difference method outlined in ODOT’s Analysis
Procedure Manual. An AADT difference for each link was calculated from comparing
the Deschutes County base year and horizon year demand models. The future AADTs
are the sum between the base existing condition AADTs (from Technical Memorandum
# 2) and the calculated links’ AADT differences. The future AADTs forecasts allow an
assessment of potential roadway capacity issues.
Future Traffic Conditions
The year 2030 traffic projections are used as a planning tool to help test the ability of
existing roadways to accommodate 2030 AADTs. In addition to the number of lanes,
the daily capacity of any individual roadway segment is based upon many factors, for
example, number of lanes, number of access points per mile, and percent of truck traffic.
For planning purposes on Deschutes County roadways, the analysis uses generalized
volume to capacity (v/c) ratio thresholds for state highway segments, generalized AADT
thresholds for the Deschutes County roadways, and preliminary signal warrants (PSW)
thresholds for intersections.
EXHIBIT C ORDINANCE 2012-005 Page 32 of 56
For state highway segments should be ranked based on a range of the mobility standards
between 0.60 and 0.80 (based on engineering judgment) in a format below:
v/c < or = 0.60: Low risk
0.60 < v/c < 0.80: Medium risk
v/c > or = 0.80: High risk
For county roads, the County’s operational standard is based on delay. The County
defines Level of Service (LOS) D as acceptable for existing County roads. The County
for a roadway segment defines LOS D as between 5,700 and 9,600 ADT. Therefore,
roadway segments under the Deschutes County jurisdiction:
Below LOS D threshold: Low risk
Within LOS D: Medium risk
Above LOS D: High risk.
ODOT’s Preliminary Signal Warrant (PSW) is used to evaluate signalization at an ADT
level for an unsignalized intersection. Meeting the warrant does not mean a signal will be
installed, but it indicates that the minor approaches will experience excessive delay or
have substantial difficulty in entering or crossing the major street at an unsignalized
intersection. As a part of the system analysis for the TSP, the PSW process was used to
rank unsignalized intersections based on the approach’s ADT volumes. Exceeding
certain thresholds could indicate when an intersection improvement (not just including
signals – i.e., roundabouts, turn restrictions, interchanges, etc.) would be necessary.
Because of the sensitivity of the model volumes and the normal fluctuations in volumes,
the following warrant thresholds to rank deficiency were used:
Between 60% and 80% of threshold: Low risk
Between 80% and 100% of threshold: Medium risk
Greater than 100% of threshold: High risk
These thresholds are qualitative measures describing operational conditions within a
traffic stream, generally in terms of speed and travel time, freedom to maneuver, traffic
interruptions, and comfort and convenience.
State Highway Segments
The review of the future v/c ratios on state highways as tested against the generalized
v/c thresholds indicates that many state highway segments are in high need of future
capacity improvements. Table 1 summarizes state highways segments at the high and
medium needs level. Figures 3-8 show the level of ranking for State Highway segments.
State highways are principal arterials and have a function of accommodating larger
volumes of traffic and at higher speeds; therefore ODOT needs to identify a near/mid
term projects list for capacity improvements for segments in the high and medium needs
category for inclusion in the Deschutes County TSP. Corridor refinement plans could
also assist in identifying projects list for segments in high and medium needs category. A
plan for capacity improvements does not only include adding lanes or changing physical
geometry on state highways but also manages accesses along these state corridors.
Access to such facilities must be limited in order to protect the integrity of the roadway.
As numerous studies have shown that as the density of access increases, whether public
EXHIBIT C ORDINANCE 2012-005 Page 33 of 56
or private, the traffic carrying capacity of the roadway decreases and the vehicular crash
rate increases. Additionally, ODOT in the Oregon Highway Plan (OHP) at 3B calls for
raised medians when ADT exceeds 28,000 vehicles as a countermeasure to prevent
certain types of crashes, primarily head-ons as well as broadsides from turning
movements. Several multilane portions of US 97 will exceed that threshold, while
remaining at adequate through capacity.
EXHIBIT C ORDINANCE 2012-005 Page 34 of 56
Table 1. Need Ranking on State Highway Segments
Highway Name Beginning
Mile-point
Ending
Mile-point From To
Directional
Number of
Lanes
AADT1 V/C
Ratio2
Ranking
Level
Functional
Classification
US 20 (Hwy No. 7) -
Central Oregon Highway
3.01 3.22 Providence Drive 0.35 mi west of Hamby Road 1 15900 0.97 High Urban Arterial
3.22 3.58 0.35 mi west of Hamby Road Hamby Road 1 12400 0.83 High Urban Arterial
US 97 (Hwy No. 4) -
Dalles California Highway
114.24 115.19 Wimp Way Lower Bridge Way/11th Street (North) 1 17600 0.95 High Rural Arterial
115.19 115.5 Lower Bridge Way/11th Street (North) E Avenue 1 22700 1.07 High Rural Arterial
115.50 115.66 E Avenue C Avenue 1 21800 1.08 High Rural Arterial
115.66 115.83 C Avenue 0.08 mi north of 11th Avenue (South) 1 24700 1.18 High Rural Arterial
115.83 115.91 0.08 mi north of 11th Avenue (South) 11th Avenue (South) 1 23400 1.10 High Rural Arterial
115.91 117.43 11th Avenue (South) Galloway Avenue 1 25100 1.19 High Rural Arterial
117.43 118.53 Galloway Avenue Pershall Way/O'Neil Highway 1* 24400 1.15 High Rural Arterial
151.05 153.05 SB Off Ramp at Cottonwood Road South Century Drive 1* 23200 1.19 High Rural Arterial
153.05 155.48 South Century Drive Vandevert Road 1 19100 1.02 High Rural Arterial
155.48 160.56 Vandevert Road LaPine State Recreation/Fish Hook Rd 1 16400 0.95 High Rural Arterial
160.56 162.64 LaPine State Recreation/Fish Hook Rd Pine Crest Lane 1 14400 0.86 High Rural Arterial
162.64 164.17 Pine Crest Lane Drafter Road 1 15100 0.87 High Urban Arterial
OR 126 (Hwy No. 15) -
McKenzie Highway
99.90 101.91 Quail Tree Drive 2 mi east of Quail Tree Drive 1 7300 1.18 High Rural Arterial
107.98 110.27 Cline Falls Highway Ramps NW Helmholtz Way 1 18900 1.00 High Rural Arterial
110.27 110.77 NW Helmholtz Way 35th Street 1 21000 1.03 High Rural Arterial
US 20 (Hwy No. 17) -
McKenzie Bend Highway
12.26 13.7 Couch Market Road Gerking Market Road 1 13800 0.82 High Rural Arterial
13.70 14.57 Gerking Market Road Bailey Road/7th Street 1 15600 0.90 High Rural Arterial
14.57 15.43 Bailey Road/7th Street 0.76 mi south of OB Riley Road 1 19200 1.03 High Rural Arterial
OR 126 (Hwy No. 41) -
Ochoco Highway
2.32 3.05 Sherman Road 0.73 mi east of Sherman Road 1 16900 0.97 High Rural Arterial
3.05 3.62 0.73 mi east of Sherman Road County Line (1.30 mi east of Sherman Road) 1 16600 0.95 High Rural Arterial
Highway No. 370 -
O'Neil Highway 0.40 0.9 Yucca Avenue NE 5th Street 1 3000 0.94 High Rural Arterial
US 20 (Hwy No. 16) -
Santiam Highway
92.76 98.22 Hawks Beard Tollgate 1 9900 0.83 High Rural Arterial
98.22 99.54 Tollgate Rail Way 1 11900 0.98 High Rural Arterial
US 20 (Hwy No. 7) -
Central Oregon Highway 3.58 4.77 Hamby Road Powell Butte Highway 1 10700 0.74 Medium Rural Arterial
US 97 (Hwy No. 4) -
Dalles California Highway
128.49 131.89 Deschutes Pleasant Ridge 0.45 mi north of Fort Thompson Lane 2 46300 0.67 Medium Rural Arterial
131.89 133.02 0.45 mi north of Fort Thompson Lane Bowery Lane 2 45200 0.62 Medium Rural Arterial
133.02 133.64 Bowery Lane Grandview Drive 2 50500 0.69 Medium Urban Arterial
168.21 169.65 6th Street Highway 31 1 12200 0.76 Medium Rural Arterial
169.65 169.84 Highway 31 Masten Road 1 9500 0.65 Medium Rural Arterial
169.84 172.17 Masten Road County Line (0.9 mi South of Jackpine Loop) 1 8200 0.64 Medium Rural Arterial
EXHIBIT C ORDINANCE 2012-005 Page 35 of 56
OR 126 (Hwy No. 15) -
McKenzie Highway
94.16 96.47 Creekside Court Camp Polk Road 1 6700 0.64 Medium Rural Arterial
96.47 97.10 Camp Polk Road Cloverdale Road 1 7700 0.68 Medium Rural Arterial
97.10 99.90 Cloverdale Road Quail Tree Drive 1 7200 0.63 Medium Rural Arterial
101.91 104.32 2 mi east of Quail Tree Drive Buckhorn/Barr Road 1 7300 0.63 Medium Rural Arterial
106.26 107.79 101st Street Oaisis Drive 1 7700 0.64 Medium Rural Arterial
107.79 107.95 Oasis Drive Cline Falls Highway Ramps 1 8400 0.62 Medium Rural Arterial
US 20 (Hwy No. 17) -
McKenzie Bend Highway
0.37 4.77 Desperado Trail Cloverdale Road 1 8700 0.68 Medium Rural Arterial
4.77 4.91 Cloverdale Road Gist/Cloverdale Road 1 11700 0.71 Medium Rural Arterial
4.91 7.49 Gist/Cloverdale Road Plainview Road 1 10000 0.70 Medium Rural Arterial
7.49 7.82 Plainview Road Fryrear Road 1 11200 0.68 Medium Rural Arterial
7.82 10.03 Fryrear Road Tweed Road 1 12400 0.76 Medium Rural Arterial
10.70 12.26 0.67 mi eat of Tweed Road Couch Market Road 1 12500 0.77 Medium Rural Arterial
US 20 (Hwy No. 16) -
Santiam Highway
90.76 90.78 County Line (0.02 mi north of Mcallister
Rd) Mcallister Road 1 5500 0.67 Medium Rural Arterial
90.78 92.76 Mcallister Road Hawks Beard 1 6800 0.67 Medium Rural Arterial
US 97 (Hwy No. 4) -
Dalles California Highway
124.43 128.49 Redmond City Limits Deschutes Pleasant Ridger 2 32150 0.44 Low Rural Arterial
142.25 143.29 Bend City Limits Baker Road Interchange 2 30400 0.415 Low Urban Arterial
1 AADT estimated from 2030 Deschutes County Model Version dated 07/01/2010.
2 HERS-ST calculated directional v/c ratios. The reported v//c ratios were averaged for both directions.
* Current STIP projects to fix.
EXHIBIT C ORDINANCE 2012-005 Page 36 of 56
Deschutes County Road Segments
The future planning-level AADTs on Deschutes County roads as tested against the
generalized AADT thresholds indicate the majority of Deschutes County roadway segments
are in the low need improvement category. There are few short segments of roadways such
as Baker Road, Burgess Road, Canal Boulevard, Cline Falls Highway, Deschutes Market Road,
and Northwest Way in the high need category.
There is a long stretch of Helmholtz Way between Maple Avenue and Canal Boulevard in the
high need category. The future travel demand model indicates that the trips on Helmholtz
Way accessing US97 through Sixty-first Street and Sherwood Road. Sixty-first Street and
Sherwood Road are not included in the study because of their local county functional
classification. The future AADTs on these two roadways are in 13000 vehicle range.
Deschutes County needs to upgrade the future functional classification of these two
roadways.
Figures 3-8 show the need ranking for Deschutes County roads. Table 2 summarizes segment
locations AADT, functional class and ranking. Access to these segments would experience
greater delay in the future.
19th Street new connection: The future travel demand model was rerun with the new 19th Street
connection eastside of the railroad track and between Deschutes Market Road and SW
Mountain Parkway. It has one lane in each direction and its speed is 55 mile per hour. The
travel demand model indicates that only a half of one percent of US97 traffic will be diverted
to it. Its AADT is around 230 vehicles. It has minimal benefit on the Deschutes County TSP
network especially US97.
EXHIBIT C ORDINANCE 2012-005 Page 37 of 56
Table 2. Need Ranking on Deschutes County Segments
Segment or Roadway
Name From To Ranking AADT1 LOS Functional
Classification
Baker Rd Apache Rd Cinder Butte Road High 11100 E Urban Collector
Burgess Rd Meadow Ln Huntington Rd High 11200 E Urban Collector
Burgess Rd Day Rd Meadow Ln High 9800 E Urban Collector
Canal Boulevard 61st Street/Quarry Ave Helmholtz Way High 16500 F Rural Collector
Cline Falls Hwy Nutcracker Dr Southwest ramps terminal of OR
126 (Hwy No. 15) High 11900 E Rural Arterial
Deschutes Market Road Hamehook Rd Margaret Lane High 10600 E Rural Collector
Helmholtz Way Canal Blvd Elkhorn Ave High 14200 E Rural Collector
Helmholtz Way Elkhorn Ave Coyote Ave High 11400 E Rural Collector
Helmholtz Way Coyote Ave 0.25 miles north of Wickiup Ave High 14700 E Rural Collector
Helmholtz Way 0.25 miles north of Wickiup Ave Highway 126 - The McKenzie
Hwy High 17000 F Rural Collector
Helmholtz Way Highway 126 - The McKenzie Hwy 0.25 miles north of Highway 126
- McKenzie Highway High 19700 F Rural Collector
Helmholtz Way 0.25 miles north of Highway 126 -
McKenzie Highway 0.25 miles north of Antler Ave High 14000 E Rural Collector
Helmholtz Way 0.25 miles north of Antler Ave Maple Avenue High 12000 E Rural Collector
Northwest Way Maple Ave 0.5 miles north of Maple Ave High 17500 F Rural Collector
Northwest Way 0.5 miles north of Maple Ave Upas Ave High 10800 E Rural Collector
Baker Rd US 97 (Hwy No. 4) Northbound
Ramps Scale House Road Medium 7100 D Urban Arterial
Burgess Rd Antler Lane Highway 97 Medium 6000 D Urban Collector
Butler Market Road Hamehook Rd Silver Rd Medium 6600 D Rural Collector
Butler Market Road Silver Rd Powell Butte Hwy Medium 6200 D Rural Collector
Canal Boulevard Elkhorn Ave 39th St Medium 7800 D Urban Arterial
Cline Falls Hwy Cook Ave Tumalo Road Medium 7100 D Rural Arterial
Cline Falls Hwy Coopers Hawk Dr/Falcon Crest
Dr Nutcracker Dr Medium 6700 D Rural Arterial
Cook Ave OB Riley Rd Cline Falls Hwy Medium 7000 D Rural Arterial
EXHIBIT C ORDINANCE 2012-005 Page 38 of 56
Deschutes Market Road Margaret Lane Dale Rd Medium 6200 D Rural Collector
Knott Rd Scale House Road China Hat Rd Medium 6800 D Urban Arterial
Lower Bridge Way 43rd St 31st St Medium 8800 D Rural Collector
Lower Bridge Way 31st St US 97 (Hwy No. 4)/ 11th St Medium 6600 D Rural Collector
Neff Road Glacier Ridge Road Hamby Road Medium 5800 D Urban Arterial
Northwest Way Coyner Ave Montgomery Ave Medium 6000 D Rural Collector
OB Riley Rd Old Bend Redmond Hwy Destiny Ct Medium 8000 D Rural Collector
Old Bend Redmond Hwy OB Riley Rd Highway 20 - McKenzie Highway Medium 6900 D Rural Collector
Powell Butte Highway US 20 (Hwy. No. 7) - Central
Oregon Highway Neff Rd/Alfalfa Market Rd Medium 7800 D Rural Arterial
Powell Butte Highway Neff Rd/Alfalfa Market Rd Butler Market Rd Medium 6400 D Rural Arterial
Powell Butte Highway Butler Market Rd McGrath Road Medium 8400 D Rural Arterial
Powell Butte Highway McGrath Road Morril Rd Medium 7600 D Rural Arterial
Powell Butte Highway Morril Rd County Line Medium 6700 D Rural Arterial
South Century Dr Lazy River Dr Vandevert Rd Medium 7100 D Rural Collector
South Century Dr Spring River Rd Abbott Road Medium 8700 D Rural Collector
Spring River Rd Solar Dr South Century Dr Medium 5700 D Rural Arterial
1 AADT estimated from 2030 Deschutes County Model Version dated 07/01/2010.
EXHIBIT C ORDINANCE 2012-005 Page 39 of 56
Intersections within the Deschutes County TSP analysis network
Preliminary signal warrants thresholds were used to rank intersections’ deficiencies.
Figure 9 shows intersections with different levels of delay from minor approaches. Table
3 summarized intersection locations and their ranking. All of these intersections are in
the rural area. For intersections between Deschutes County roadways, roundabouts or
additional lane channelizations could improve circulation and reduce delay in the future.
For intersections between state highways and Deschutes County roadways, grade
separated, additional lanes channelization, or right in – right out options would improve
the intersections’ function.
Table 3. Intersection Need Ranking
Intersection Locations Ranking Entry
AADT1
Old Bend-Redmond Hwy / US20 (Hwy No. 17) High 28639
Powell Butte Hwy / US20 (Hwy No. 7) High 12648
Hamby Rd / US20 (Hwy No. 7) High 12978
US97 SB On/Off Ramp / Baker Rd High 13476
Knott Rd / US97 NB Off Ramp / Baker Rd High 11148
Butler Market Rd / Powell Butte Hwy High 10385
Hamehook Rd / Deschutes Market Rd High 10208
Cook Ave / US20 (Hwy No. 17) / O B Riley Rd High 23474
Neff Rd / Powell Butte Hwy / Alfalfa Market Rd High 10829
Canal Blvd / SW Helmholtz Way High 16918
OR126 (Hwy No. 15) / SW Helmholtz Way / NW
Helmholtz Way High 38992
O. Neil Hwy / Pershall Way / US97 High 28168
US97 / Vandevert Rd High 19772
US97 / Lower Bridge Way High 23465
South Century Dr / Spring River Rd High 10026
OR31 (Hwy No. 19) / US97 High 12250
Old Bend-Redmond Hwy / O B Riley Rd Medium 9859
South Century Dr / Vandevert Rd Medium 8410
Butler Market Rd / Hamehook Rd Medium 8533
Coyner Ave / Northwest Way Medium 7617
US97 / Smith Rock Way Medium 25437
US20 (Hwy No. 17) / Cloverdale Rd Medium 11064
1 AADT estimated from 2030 Deschutes County Model Version dated 07/01/2010.
One important note, an intersection of Sherwood Road and US97 is not included in the
study because Sherwood Road is a local county road. However as mentioned under the
“Deschutes County Road Segments”, Sherwood Road will carry around 13000 vehicles
per day, so the intersection of Sherwood Road and US97 will have a high ranking and its
entry volumes per day is about 46000.
If you have any comments or questions please contact me at 503-986-4108.
c: Peter Schuytema, TPAU
James Bryant, Region 4
Mark Devoney, Region 4
EXHIBIT C ORDINANCE 2012-005 Page 40 of 56
STATE OF OREGON INTEROFFICE MEMO
Department of Transportation
Transportation Development Division File Code:
Mill Creek Office Park
555 13th Street NE Suite 2
Salem, Oregon 97301-4178
(503) 986-4112 FAX (503) 986-4174 Date: January 10, 2011
TO: Peter Russell
Deschutes County Planning Division
FROM: Thanh Nguyen, PE, Senior Transportation System Analyst
Transportation Planning Analysis Unit
SUBJECT: Deschutes County Transportation System Plan Update (TSP)
Technical Memo # 4 – Mitigation Alternative Analysis
This technical memorandum summarizes an analysis of proposed alternatives to address
deficiencies identified in Technical Memorandum #3, 2030 Future Traffic Conditions.
Numerous transportation improvements, including facility upgrades, widenings and road
extensions, were considered to address the capacity needs of the motor vehicle. These
improvements are summarized in Table 1. Overall, the planning level analysis indicates
that these proposed mitigations would improve the efficiency of the transportation
system in the future, especially for the state highways. However, a few of the proposed
mitigation projects cause increased trips at some intersections and segments, potentially
resulting in the need for additional improvements at those locations.
Table 1. Proposed Transportation Improvements
Proposed Mitigation Projects Project Description
State Highways
Central Oregon Hwy # 7 (US20):
MP 3.01 to MP 3.58 Additional travel lane in each direction
Santiam Hwy #16 (US20):
MP 92.76 to MP 99.54 Additional travel lane in each direction
McKenzie-Bend Hwy # 17 (US20):
MP 12.26 to MP 13.70 Additional travel lane in each direction
The Dalles-California Hwy # 4 (US97):
MP 115.91 to MP 118.53 Additional travel lane in each direction
The Dalles-California Hwy # 4 (US97):
MP 151.05 to MP 164.17
Additional travel lane in each direction,
disconnect Pinecrest Ln from US97
McKenzie Hwy #15 (OR126):
MP 99.90 to MP 101.91 Additional travel lane in each direction
McKenzie Hwy #15 (OR126):
MP 107.98 to MP 110.27 Additional travel lane in each direction
Ochoco Hwy #41 (OR126):
MP 2.32 to MP 3.62 Additional travel lane in each direction
EXHIBIT C ORDINANCE 2012-005 Page 41 of 56
Proposed Mitigation Projects Project Description
O’Neil Hwy #370 (OR370):
MP 0.40 to MP 0.90
Geometric improvements and access
management
Deschutes County Roadways
Burgess Rd: from Day Rd to Huntington Rd Add a center left-turn lane
Canal Blvd: from 61st St to Quarry Ave Add a center left-turn lane
Cline Falls Hwy Disconnect Nutcracker Dr from
Cline Falls Hwy
Helmholtz Wy:
from South Canal Blvd to Elkhorn Ave Add a center left-turn lane
Helmholtz Wy: from Elkhorn Ave to Maple Ave Add travel lane in each direction and add
a center left-turn lane
Northwest Wy: from Pershall Wy to Maple Ave Add travel lane in each direction and add
a center left-turn lane
Intersections
McKenzie-Bend Hwy # 17 (US20)/
Cook Ave/O.B. Riley Rd
An overpass with jug handles connected
to the highway by right-in-right-out (This
is the preliminary preferred alternative
from the US20/Tumalo Project
Development Team)
The Dalles-California Hwy # 4 (US97)/
O’Neil Highway # 370 (OR370)/Pershall Wy Grade separation by a simple overpass
McKenzie-Bend Hwy # 17 (US20)/Old Bend
Redmond Hwy
Grade separation by a simple overpass
or a full interchange
Central Oregon Hwy # 7 (US20) /
Hamby Rd/Ward Rd A rural roundabout
Central Oregon Hwy # 7 (US20)/
Powell Butte Hwy A rural roundabout
The Dalles-California Hwy # 4 (US97)/
Lower Bridge Wy
Grade separation by a simple overpass
or a full interchange
The Dalles-California Hwy # 4 (US97)/
Vandevert Rd Disconnect Vandevert Rd from US97
The Dalles-California Hwy # 4 (US97)/
Fremont Hwy #19 (OR31) A directional interchange
McKenzie Hwy #15 (OR126)/Helmholtz Wy Signalized
Butler Market Rd/Powell Butte Hwy A rural roundabout
Neff Road-Alfalfa Market Rd/Powell Butte Hwy A rural roundabout
Hamehook Rd/Deschutes Market Rd A rural roundabout
Canal Blvd/SW Helmholtz Wy A rural roundabout
South Century Dr/Spring River Rd A rural roundabout
EXHIBIT C ORDINANCE 2012-005 Page 42 of 56
Travel Demand Model Aspects
Mitigation projects may affect the traffic patterns on the transportation network. In
particular, grade separation by a simple overpass or a full interchange (such as a
diamond interchange) proposed at the Old Bend-Redmond Highway intersection with
the McKenzie-Bend Highway No. 17 (US20) or the Lower Bridge Way intersection with
The Dalles-California Highway No. 4 (US97) could greatly affect the traffic patterns on
the transportation system plan (TSP) network. The Deschutes County travel demand
model was used to study these effects. Two TSP network scenarios were tested with
the model to investigate the traffic patterns. Scenario 1 has two simple overpasses at
these two locations, while Scenario 2 has two full diamond interchanges.
The full interchange attracts more traffic to the state highways while the simple
overpass forces traffic to route to Deschutes County roadways to get to their specific
destinations. Comparisons of model Average Annual daily Traffic (AADT) between the
scenarios and the baseline (the baseline is the model 2030 no-build network) and
between the scenarios themselves, indicates that the simple overpass pushes more
traffic off of the state highways onto the local facilities versus the full interchange (See
Exhibits 1, 2, and 3). This is apparent especially on US20 between the Old Bend-
Redmond Highway and the Bend Urban Growth Boundary, where the simple overpass
at the Old Bend-Redmond Highway pushes more than 5,000 trips off of US20 onto O.B.
Riley Road versus the full interchange. Also, the simple overpass with right-in-right-out
jug handles at the O.B. Riley Road/Cook Avenue intersection with US20 also moves
more than 2,500 trips from US20 to O.B. Riley Road.
The future AADT for these proposed mitigations was based on the Deschutes County
travel demand model runs (Scenarios 1 and 2). For each scenario, a factor was
calculated for each link by dividing the scenario AADT by the future baseline model
AADT. Each link’s future post-processed AADT (which was used for the analysis in
Technical Memorandum #3) was then multiplied by this factor to obtain post-processed
2030 AADT’s for each scenario.
Grade Separation Analysis
A grade separation reduces conflict points and provides uninterrupted flows on a
roadway segment. However, depending on the type of grade separation, it may or may
not be a viable option for the TSP network. There are many factors that need to be
assessed before deciding what type of grade separation would bring a sustainable
solution for the system. These can include cost, topography, local property impacts, and
volumes among others. Grade separations affect the traffic patterns beyond the
interchange onto the surrounding area. For example, a full interchange could make the
state highways more congested by encouraging local traffic to use the state highways
while the simple overpass could make certain county roadways more congested by re-
routing local traffic using the Deschutes County roadway network.
EXHIBIT C ORDINANCE 2012-005 Page 43 of 56
1) A simple overpass or a full interchange at the Lower Bridge Way intersection with US97:
The travel demand model runs indicated that the traffic volumes would be
diverted from one route to another between Scenarios 1 and 2. This makes
sense because most drivers want to access state highways at these two
intersections. With a simple overpass, these drivers must divert to other local
roads that connect to state highways, which can create capacity issues at other
locations.
At the Lower Bridge Way intersection with US97, if the full interchange were
built instead of the simple overpass, the interchange would attract more trips
from other routes such as 31st Street, Ice Avenue, 11th Street, and C Avenue.
This would relieve potential capacity issues at Ice Avenue and C Avenue
intersections with US97, and Helmholtz Way intersection with Maple Avenue.
However, it would create potential capacity issues on US97 between C Avenue
and Lower Bridge Way or at Smith Rock Way and A Avenue intersections with
US97; or further out to the system such as the OR126/Helmholtz Way
intersection, Canal Boulevard intersection with Helmholtz Way, and Quarry
Avenue or 61st Street intersections with US97. (See Exhibit 3)
At this point, because data is lacking for a detailed operational analysis, it is
difficult to identify which scenario (a simple overpass or a full interchange) would
be the best option for this intersection. It is recommended that the simple
overpass and the full interchange proposed mitigations for this intersection be
studied farther in a refinement plan.
2) A simple overpass or a full interchange at the Old Bend-Redmond Highway intersection with
US20:
As stated previously, the travel demand model runs indicated that the traffic
volumes would be diverted from one route to another between Scenarios 1 and
2. With a simple overpass, these drivers must divert to other local roads that
connect to state highways, which can create capacity issues at other locations.
At the Old Bend-Redmond Highway intersection with US20, if the full
interchange were built instead of the simple overpass, some of the trips would
be diverted to the interchange from Tumalo Road, Gerking Market Road,
Connarn Road, and O.B. Riley Road. It also would create a potential capacity
issue on US20 from the east side of the interchange to inside the Bend UGB.
(See Exhibit 3)
At this point, because data is lacking for a detailed operational analysis, it is
difficult to identify which scenario (a simple overpass or a full interchange) would
be the best option for this intersection. It is recommended that the simple
overpass and the full interchange proposed mitigations for this intersection be
studied farther in a refinement plan.
EXHIBIT C ORDINANCE 2012-005 Page 44 of 56
3) A directional interchange at the Fremont Highway (OR31) intersection with US97:
At this intersection, the total entry AADT is about 12,000 vehicles in which only
10 percent would use the directional flyover. The directional interchange would
not be an appropriate option for this intersection because of its high cost. This
intersection currently does not have any safety issues. The only future issue is
the OR31 approach will experience greater delay as US97 traffic increases over
time. Currently, this approach only has a single shared left/right lane. The
majority of traffic on this approach turns right onto US97 northbound. The
greater delay occurs when a vehicle on this approach waits for an acceptable gap
to turn left onto U97 southbound. The more US97 traffic increases, the longer
this left turn vehicle will have to wait for an acceptable gap. This could create
capacity issues on the OR31 approach. A channelized left turn lane on this
approach is recommended as a viable project for this intersection. A detailed
operational analysis should be studied for its design. However, depending on
future strategies for US97 south of City of La Pine that ODOT/Region 4
pursues, the directional interchange at this intersection could be an option for
highway to highway movements.
4) A simple overpass at The Dalles-California Highway # 4(US97) /O’Neil Highway #
370(OR370)/Pershall Way intersection:
A simple overpass would improve safety at this location by eliminating a direct
access to US97. This intersection is only 0.75 mile from the northern
interchange in Redmond, so all trips currently accessing the state highway at this
intersection could access at the interchange instead. However, this would make
some of the trips travel out of direction.
EXHIBIT C ORDINANCE 2012-005 Page 45 of 56
Exhibit 1: Model AADT Differences1 between Scenario 1 versus Baseline
a) A simple overpass at the Lower Bridge Way and O’Neil Highway # 370
(OR370) intersections with US97
1 Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
b) A simple overpass at the Old Bend-Redmond Highway intersection with US20
and a simple overpass with right-in-right-out jug handle at O.B. Riley Road and
Cook Road intersection with US20.
1 Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
0
-3
2
-6
193
-140
4
-2 14
8
22
7
216
351
-7
2
96
10
3
-141
12
-774744
-53
-14
267
16
558
31
8
-48
-4
45
2
10
56
69
968
57
-1
1
-21
1
56
6
-10
219
3
1
1
57
6
1
4
9
0
24
0
1
0
2
0
46
-32
-73
21
-4
4
21
6
7
4
1
6
-28
20
35
8
377
-
1
7
4
4
378
42
-7
-218
-2
5
6
2
-1
7
3
-114
-74
-102
-32
3-311
6
102
29
34
-8
-
1
5
2
0
1290
51
12
0
8
12
5
6
24
-5
0
59
-
4
9
13
56
2
1
4
9
2
102
2
-4
3
9
9
8
1
-26
-52
86
20
3
0
268
-12
95
0
98
0
15
0
-5
27
0
171
84
8
264
93
4
-451
-2
9
5
1
2
6
0
1097
2
1
7
4
-2
8
0
-
1
7
4
3
13
1
6
-214
15
2
4
31
7
73
-56
21
7
3
12
7
4
5
9
6
4
15
-
1
7
5
8
-5
5
9
-9
7
4
14
2
0
-2
2 47
0
3
0
2
2
222
0
4
0
1
1
1
4
1 2
1
0
7
0
1
-40
2
-48
2
1
2
2
11
2
0
34
2
0
0
2
0
2
0
0
0
2
2
69
0
2
2
4
-6
44
2
2
1
0
-74
Redmond
³
Legend
City Limits
Scenario1VersusBaseline
-1000 > VolDiff
-1000 < VolDiff < 0
0 < VolDiff < 1000
1000 < VolDiff
1
47
44
14
-77
16
35
-74
51
59-4
3
9
9
-1
5
2
0
45
2
5
9
6
4
-9
7
16
Redmond
12
-6
69
1
1
2
-1
7
3
-1020
102
4
42
-5
1
5
7
86
20
3
0
-2
5
6
2
17
27
0
171
41
6
20
8
5
42
7
-56
30
-2
7
0
2
2
2
2
2
6
40
0
41
718
-5
-
2
3
1
4
717
-3
0
1
-28
9
-6
-26-4
-22
-12
-10
1
5
4
9
714
38
4
2
9
-20
42
27
2
12
15
7
6
30
7
8
2
2
3
-
9
3
3
6
-362
265
-3
3
3
-145
7
6
5
4
2
2
8
-
4
9
3
6
4789
4
2
3
1
2217
15
9
0
17
18
4
9
-1
3
3
8
30
6
18
-17
-304 -94
-
9
4
0
4
0
0
-6
-4
0
0
-4
-12
Bend
³
Legend
City Limits
Scenario1VersusBaseline
-1000 > VolDiff
-1000 < VolDiff < 0
0 < VolDiff < 1000
1000 < VolDiff
EXHIBIT C ORDINANCE 2012-005 Page 46 of 56
Exhibit 2: Model AADT Differences1 between Scenario 2 versus Baseline
a) A full interchange at the Lower Bridge Way and O’Neil Highway # 370 (OR370)
intersections with US97
1 Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
b) A full interchange at the Old Bend-Redmond Highway intersection with US20
and a simple overpass with right-in-right-out jug handle at O.B. Riley Road and
Cook Road intersection with US20.
1 Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
0
62
4
-4
-2 14
8
1
22
7
-6
215
36
194
2
-27
97
10
3
-7527
21
-9
10
-8
-53
-65
252
-1
-2
8
44
-49
-99
716
2
1
7
31
810
6
56
69
9
57
-5
0
26
0
50
6
219
-24
4
1
1
66
0
-166
-
4
3
5
24
2
46
-30
47
-74
-4
4
12
4
7
6
1
0
35
8
377
-
2
2
1
-7
-251
-1
4
4
7
-3
2
-1
7
3
22
0
-102
108
-125
1
2
5
3
103
3
29
24
1041
13
25
7
31
7
32
20
2
9
249
-38
-14
40
4
25
1
1
0
2
883
84
1
-113
86
8
14
9
-
4
3
4
6
-5
27
0
171
74
2
378
38
5
-61
82
4
36
3
10
1
-2
9
7
1089
-5
9
5
-2
8
0
38
146
-246
74
-52
30
-
1
1
4
-3
0
4
12
-34
8
1
8
51
-6
0
9
33
8
-5
4
0
0
0
1
69
2
2
2
2
1
0
1
0
2
0
2
103
2
2
-4
2
2
2
0
2
4
4
2
-52
29
0
2
0
-74
2
0
0
7
377
0
1
0
1
2
2
0
4
0
0
-2
7
2
-2
8
0
0
1
2
2
10
3
4
2
-2
36
0
46
Redmond
³
Legend
City Limits
Scenario2VersusBaseline
-1000 > VolDiff
-1000 < VolDiff < 0
0 < VolDiff < 1000
1000 < VolDiff
0127
10
-2
7
-75
-2
8
50
6
716
4
-2
24
2
-3
2
-1
103
3
29
1041
36 -113
8
1
8
-5
4
-2
8
-2
7
36
Redmond
1
1
2
69
-1
7
3
0
103
-102
-4
0
4
2
-166
20
2
9
27
0
171
4
146
20
8
5
62
1
358
30
-2
7
-163
2 69
1
0
-2
-12
-
2
7
5
9
-8
-27
23
5
11
248
236
-15
19
-9
2
0
7
3
251
23
20
7
0
3
2
1
3
-1
8
4
-
3
7
0
8
1
3
-26 249
-18
-119
17
1167
-1
2
0
5
9
-
2
3
8
8
2
0
6
2
-11
1750
-8
8
0
20
8
0
22
9
1
7
1
5
21
5
3
2
1
5
1
-23
-150 -95
10
35
9
405
1
0
2
7
-156
1
0
0
1
0
-2
-2
Bend
³Legend
City Limits
Scenario2VersusBaseline
-1000 > VolDiff
-1000 < VolDiff < 0
0 < VolDiff < 1000
1000 < VolDiff
EXHIBIT C ORDINANCE 2012-005 Page 47 of 56
Exhibit 3: Model AADT Differences1 between Scenarios 1 and 2
1 A simple overpass versus a full interchange at the Lower Bridge Way intersection with US97
Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
1 A simple overpass versus a full interchange at the Old Bend-Redmond Highway intersection with US20
Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
0
-2
1
-1
51
-65
4
91
4
9
44
2
25
15
-45
-8
4
20
92
0
333
8
-1
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Legend
City Limits
Scenario1VersusScenario2
-1000 > VolDiff
-1000 < VolDiff < 0
0< VolDiff < 1000
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1 18
469
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Legend
City Limits
Scenario1VersusScenario2
-1000 > VolDiff
-1000 < VolDiff < 0
0< VolDiff < 1000
1000 < VolDiff
EXHIBIT C ORDINANCE 2012-005 Page 48 of 56
Intersections and Segments Analysis
1) Intersections Analysis:
Exhibit 4 shows all the intersections that have proposed treatments, needed
treatments, and additional operational problems.
a) Roundabouts: Roundabouts were proposed at a few intersections as outlined in
Table 1. Table 2 summarizes the entry AADT’s at these locations for scenarios 1
and 2. Most of these intersections have the same entry AADT’s for scenarios 1 and
2 except Canal Boulevard/Southwest Helmholtz Way intersections. The percentage
of left turns is the same between Scenarios 1 & 2 for these intersections.
Table 2. Entry AADT’s of proposed roundabout intersections
Intersections
Scenario 1 Scenario 2
Entry
AADT
Left
turn1 %
Entry
AADT
Left
turn1 %
Powell Butte Hwy / Central Oregon
Hwy 12,650 33 12,650 33
Hamby Rd / Central Oregon Hwy 13,000 8 13,000 8
Butler Market Rd / Powell Butte Hwy 10,400 27 10,400 27
Hamehook Rd / Deschutes Market Rd 10,250 11 10,250 11
Neff Rd / Powell Butte Hwy / Alfalfa
Market Rd 10,850 19 10,850 19
Canal Blvd / SW Helmholtz Way 18,050 8 17,050 8
South Century Dr / Spring River Rd 13,900 29 13,900 29
1 Source: Travel demand model runs (Visum version); Req20100908_Scen2_DCM2030_07_01_10.ver, and
Req20100908_Scen1_DCM2030_07_01_10.ver
As a planning level analysis, the Federal Highway Administration (FHWA) has a
procedure which is offered as a simple, conservative method for estimating
roundabout lane requirements. Exhibit 5 presents ranges of entry AADT thresholds
to identify scenarios under which one-lane and two-lane roundabout may perform
adequately or more detailed analysis is required. In order to determine number of
lanes for a roundabout, draw horizontal and vertical lines associated with the entry
AADT and the left turn percentage, and the intersection of these two lines would
suggest the number of lanes depending on its location under the curves in Exhibit 5.
EXHIBIT C ORDINANCE 2012-005 Page 49 of 56
Exhibit 5: Roundabout Planning Level Entry AADT Thresholds1
1 Figure 5 on Page 9 of FHWA-SA-10-006 Roundabout document.
http://safety.fhwa.dot.gov/intersection/roundabouts/fhwasa10006/#s5
The entry AADT’s at these intersections vary between 10,250 and 18,050 vehicles.
The left turn percentages vary between 8% and 33%. Based on Exhibit 5, single lane
roundabouts are likely to operate acceptably for these intersections except the
Canal Boulevard intersection with SW Helmholtz Way which might need additional
analysis.
The Powell Butte Highway and Hamby road intersections with Central Oregon
Highways currently have left turn channelizations on Central Oregon Highway. A
single lane roundabout would be a potential mitigation for these two intersections.
Radii design should be big enough to accommodate large trucks but it should not be
too big because cars might improperly overtake trucks that cause the conflicts
within the circulating roadway. However, in order to have sustainable mitigations for
these two intersections, more data need to be collected and analyzed to address
more detail aspects in a refinement plan.
b) Signalization: The McKenzie Highway # 15 (OR126) /Helmholtz Way intersection
was proposed to be signalized. The entry AADT at this intersection is 40,150
vehicles and 39,200 vehicles for Scenario 1 and Scenario 2 respectively. For the
purpose of planning analysis, the entry AADT of 40,150 which provides a worse case
would be used for the analysis. As a planning level analysis, the entry AADT of each
approach was converted to peak hour turn movement volumes by using a K factor
assumption of 10 percent and the travel demand model AADT turn factors. Then
the turn volumes were input into the Highway Capacity software with an
assumption that all approaches would have an exclusive right and left turn lane and
permitted left turn signal phasing. The signal would operate acceptably with a
EXHIBIT C ORDINANCE 2012-005 Page 50 of 56
planning v/c ratio of 0.67. However, detailed analysis should be performed for its
specific design.
c) Additional caveats for intersections on County roadways: The proposed grade
separations on McKenzie-Bend Highway # 17 (US20) at the Old Bend-Redmond
Highway and Cook Avenue/O.B. Riley intersections would result in two additional
County intersections to need mitigation because of rerouting traffic. A single lane
roundabout would be a potential solution for these two intersections. The two
intersections which need improvements are the Old Bend-Redmond Highway/O.B
Riley Road and O.B Riley Road/Cooley Road. These two intersections did not show
up as a high need for improvements in Technical Memorandum 3. The grade
separations cause more traffic to be rerouted to O.B. Riley Road. Any minor
approaches that are connected to O.B Riley Road would experience longer delays
or operational problems. Table 3 summarizes their entry AADT’s in each scenario.
These intersections were evaluated against the preliminary signal warrants. ODOT’s
Preliminary Signal Warrant (PSW) is used to evaluate signalization at an ADT level
for an unsignalized intersection. Meeting the warrant does not mean a signal will be
installed, but it indicates that the minor approaches will experience excessive delay
or have substantial difficulty in entering or crossing the major street at an
unsignalized intersection. As a part of the system analysis for the TSP, the PSW
process was used to rank unsignalized intersections based on the approach’s ADT
volumes. Exceeding certain thresholds could indicate when an intersection
improvement (not just including signals – i.e., roundabouts, turn restrictions,
interchanges, etc.) would be necessary. Because of the sensitivity of the model
volumes and the normal fluctuations in volumes, the following warrant thresholds to
rank deficiency were used:
Between 60% and 80% of threshold: Low risk
Between 80% and 100% of threshold: Medium risk
Greater than 100% of threshold: High risk
Table 3. Additional Intersections Needing Mitigation
Intersections Entry AADT
Scenario 1 Scenario 2
Old Bend-Redmond Hwy / O B Riley Rd 13,400 11,400
O B Riley Rd / Cooley Rd 14,850 9,450
EXHIBIT C ORDINANCE 2012-005 Page 51 of 56
Exhibit 4: Intersections
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Deschutes County
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EXHIBIT C ORDINANCE 2012-005 Page 52 of 56
2) State Highway Segments:
At the planning level, state highway segments should be evaluated based on a range
of acceptable volume to capacity ratios (v/c) between 0.60 and 0.80 (based on
engineering judgment). For Scenarios 1 and 2, the state highway segments planning
v/c ratios were calculated for proposed mitigations (as outlined in Table 1) on state
highways by HERS-ST (Highway Economic Requirements System – State Version).
The AADT’s on state highways do not vary that much (mostly less than 10%)
between both scenarios except one segment on US20 between Old Bend-Redmond
Highway and the City of Bend urban growth boundary. The review of planning v/c
ratios of proposed mitigations of two scenarios on state highways as tested against
the range of the acceptable v/c ratios indicates that those proposed mitigations
would operate acceptably. However, two segments are still in need for
improvements for both scenarios.
One segment is on McKenzie-Bend Highway # 17 (US20) between milepoints 14.57
and 16.58. This segment has two travel lanes in one direction and one travel lane in
the opposite direction. Its planning v/c ratio for the direction that has one travel lane
is 0.84. The roadway curvature highly affects its operation. However, there is a
contingent project at the McKenzie-Bend Highway # 17 (US20)/Cook Avenue/O.B.
Riley intersection, so its recommended treatment may be proposed from that
project.
Another segment is on The Dalles-California Highway # 4 (US97) between
milepoints 114.24 and 115.91 around Lower Bridge Way. This segment has an
AADT of about 20,000, one travel lane in each direction at lower speed and multiple
access points. This segment should be studied further in a refinement plan. Exhibit 6
shows ranges of v/c ratios on state highways for Scenarios 1 and 2.
EXHIBIT C ORDINANCE 2012-005 Page 53 of 56
Exhibit 6: Scenarios 1 and 2 V/C Ratio1 Ranges on State Highways
1 V/C ratios were calculated by HERS-ST
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Legend
Deschutes County
City Limits
TSP Network
V/C Ratio Ranges
v/c < 0.60
0.60 < v/c < 0.80
v/c > 0.80
EXHIBIT C ORDINANCE 2012-005 Page 54 of 56
3) Deschutes County Segments:
Most of Deschutes County roadway segments operate within the County’s
acceptable operational measures in Scenarios 1 and 2 (See Exhibit 7). However,
there are a few segments that need attention, as discussed below.
a) Additional travel lane in each direction: Currently, the County defines Level of
Service (LOS) D with a range of AADT between 5,700 and 9,600 vehicles as
acceptable for County Roads. However, this is only applicable to two lane roadways.
For a four-lane roadway, the range of AADT for LOS D will be higher.
Based on the Highway Capacity Manual, with an assumption of the proportion of
AADT during peak hour (K) of 10 percent, a directional proportion of 55 percent, a
truck percentage of 10 percent, a base free-low speed of 55 mile per hour, and
rolling terrain type, the range of AADT for LOS D for a four lane roadway would be
between 32,800 and 42,900 vehicles. The proposed mitigations of adding travel lane
in each direction works well for the Helmholtz Way segment between Elkhorn
Avenue and Maple Avenue, and for the Northwest Way segment between Pershall
Way and Maple Avenue. Their post-processed 2030 AADTs vary between 13,200
and 21,000 vehicles on the Helmholtz Way segment and between 11,300 and 18,700
vehicles on the Northwest Way segment.
b) Adding a center turn lane: There are three segments proposed to add a center
turn lane (a third lane) as described in Table 1; Burgess Road (2030 AADT =
11,000), Canal Boulevard (2030 AADT = 16,600), and Helmholtz Way (2030 AADT
= 14,350). These segments would be called two-way median left-turn lane (TWLTL).
The County does not define LOS for this type of roadway. When evaluating these
TWLTL’s post processed 2030 AADTs against the current County’s acceptable LOS
D, these segments show a need for improvements. However, on two-lane roadways
having sizable left-turn traffic, a single travel lane in each direction often experiences
long delays as vehicles await to turn left. By providing a center turn lane, the two-
way left-turn lane can help to maintain through traffic capacity.
EXHIBIT C ORDINANCE 2012-005 Page 55 of 56
Exhibit 7: Scenarios 1 and 2 Deschutes County Roadways
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Legend
Deschutes County
City Limits
TSP Network
Deschutes County Roads
Good
Acceptable
Improvements Needed
c) Additional caveats for segments on County roadways: Because of proposed mitigations,
some additional County roadways need improvements in Scenarios 1 and 2 when evaluating
their post-processed 2030 AADTs against the current County’s acceptable LOS D. These
additional segments include Deschutes Market Road between Margaret Lane and
Hamehook Road, South Century Drive between Spring River Road and Abbot Drive, and
O.B. Riley Road between Destiny Court and Cooley Road. An additional travel lane in each
direction for these segments would be favorable. Table 4 summarizes their AADT’s along
with LOS.
For the Deschutes Market Road segment between Margaret Lane and Hamehook Road, the
City of Bend will extend Cooley Road to Deschutes Market Road somewhere between
Margaret Lane and Hamehook Road in its Metropolitan Transportation Plan. This will allow
an additional east-west connection between commercial areas along US97 and residential
areas to the east.
The South Century Drive segment between Spring River Road and Abbot Drive, was shown
to operate acceptably in Technical Memorandum 3. However, the proposed mitigation of
disconnecting Vandevert Road from US97 reroutes Vandevert Road traffic to South
Century Drive and causes this segment to have an operational problem.
The O.B Riley Road between Destiny Court and Cooley Road operates acceptably in
Technical Memorandum 3. However, the proposed grade separations on US20 at the Old
Bend-Redmond Highway intersection and at the O.B. Riley Road/Cook Road intersection
cause more traffic on O.B Riley Road (See Exhibits 1 & 2). This causes O.B. Riley road to
have an operational problem.
Table 4. Additional Segments
Segment or Roadway
Name From To AADT1 LOS
Deschutes Market Road Margaret Lane Hamehook Road 10,700 E
South Century Drive Spring River Road Abbot Drive 12,700 E
O.B Riley Road
(Scenario 2 only) Destiny Court Old Bend –
Redmond Highway 9,750 E
O.B Riley Road
(Scenario 1 only)
Old Bend-
Redmond Highway Cooley Road 13,050 E
1 AADT estimated from Req20100908 _ 2030 Deschutes County Model Runs Version for Scenarios 1 and 2
If you have any comments or questions please contact me at 503-986-4108.
cc: Peter Schuytema, TPAU
James Bryant, Region 4
Mark Devoney, Region 4
File