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Home My WebLink About2011-09-19 Business Meeting Minutes Minutes of Board of Commissioners’ Business Meeting Monday, September 19, 2011 Page 1 of 5 Pages Deschutes County Board of Commissioners 1300 NW Wall St., Bend, OR 97701-1960 (541) 388-6570 - Fax (541) 385-3202 - www.deschutes.org MINUTES OF BUSINESS MEETING DESCHUTES COUNTY BOARD OF COMMISSIONERS MONDAY, SEPTEMBER 19, 2011 _____________________________ Commissioners' Hearing Room - Administration Building - 1300 NW Wall St., Bend __________________________ Present were Commissioners Tammy Baney, Alan Unger and Anthony DeBone. Also present were Erik Kropp, Deputy County Administrator; Laurie Craghead, County Counsel; Tom Anderson, Nick Lelack and Peter Gutowsky, Community Development; media representative Hillary Borrud of The Bulletin; and four other citizens. Chair Baney opened the meeting at 10:00 a.m. __________________________ 1. PLEDGE OF ALLEGIANCE 2. CITIZEN INPUT None was offered. 3. Before the Board was a Public Hearing (continued from May 23 and June 27) and Consideration of First Reading of Ordinances No. 2011-001 and 2011-002, Modifying the Comprehensive Plan Map and Zoning Map regarding Areas Eligible for the Destination Resort Overlay. Peter Gutowsky brought the item up to date since the last public hearing. A transportation impact analysis was provided by Oregon Department of State Lands as an addition. Over 91,000 acres would be removed from the map. There was an appeal to LUBA, which was affirmed in favor of the County, and later appealed to a higher court, which was also affirmed in favor of the County. Minutes of Board of Commissioners’ Business Meeting Monday, September 19, 2011 Page 2 of 5 Pages 17,506 acres are still eligible, and 31,087 are grandfathered at the request of property owners, although the properties may not be eligible. A few sites were added. The 1984 map showing areas of sensitive big game habitat was submitted into the record as well. Mr. Gutowsky suggested that if anyone opposes the map amendment and wishes to speak today, the individual should be very specific so this can be addressed by staff at the local level. Laurie Craghead added that very specific information needs to be given if anyone challenges the Ordinances, to help the Board make the appropriate decision. Steve Holtberg from Ball Janik Attorneys came before the Board. He wanted to be sure an additional piece, the transportation plan and two exhibits, are included. He urged the Board to move this forward. Paul Dewey, representing Central Oregon Landwatch, asked that he be able to review the information that was just submitted. He spoke about the ownership of Thornburgh, and wanted to refresh everyone’s memory on that issue. He asked for a week or two to be able to review new information and respond to it. Commissioner Unger asked what timeframe staff has anticipated on this item. Mr. Gutowsky stated that no information has been received since June until today, so other than the new submission, there has been a lot of time for Mr. Dewey and others to review the previous information. Steve Holtburg said that the information submitted included two traffic reports from other properties as a supplement to the transportation plan that is already in the record. This is just supporting evidence that has been a part of other land use issues. Mr. Gutowsky said there is no recommendation from staff and is up to the Board to decide when to proceed. Commissioner Unger said he would support waiting a week to allow everyone to review the new information. Chair Baney said that she is open to comments on the new information but not on what is already in the record as of June. Mr. Gutowsky stated the report is from Kittleston and the transportation planning rule, plus the 1984 map of sensitive wildlife areas. The written record was kept open until Friday, September 23, 2011 at 5:00, and the hearing was continued until Monday, September 26, 2011. Minutes of Board of Commissioners’ Business Meeting Monday, September 19, 2011 Page 3 of 5 Pages Before the Board was Consideration of Approval of the Consent Agenda. Commissioner DeBone wanted to clarify the work session minutes with an addition. DEBONE: Move approval of the Consent Agenda with the exception of the minutes of the September 14 work session. UNGER: Second. VOTE: UNGER: Yes. DEBONE: Yes. BANEY: Chair votes yes. Consent Agenda Items 4. Approval of a Business Development Forgivable Loan to Geo-Spatial Solutions, Inc. for $20,000 5. Approval of Minutes: Board Meeting of September 14, 2011 Work Sessions of September 14, 2011 CONVENED AS THE GOVERNING BODY OF THE 9-1-1 COUNTY SERVICE DISTRICT 6. Before the Board was Consideration of Approval of Weekly Accounts Payable Vouchers for the 9-1-1 County Service District in the Amount of $27,884.24. DEBONE: Move approval, subject to review. UNGER: Second. VOTE: UNGER: Yes. DEBONE: Yes. BANEY: Chair votes yes. CONVENED AS THE GOVERNING BODY OF THE EXTENSION AND 4-H COUNTY SERVICE DISTRICT 7. Before the Board was Consideration of Approval of Weekly Accounts Payable Vouchers for the Extension/4-H County Service District in the Amount of $520.90. Minutes of Board of Commissioners’ Business Meeting Monday, September 19, 2011 Page 4 of 5 Pages DEBONE: Move approval, subject to review. UNGER: Second. VOTE: UNGER: Yes. DEBONE: Yes. BANEY: Chair votes yes. RECONVENED AS THE DESCHUTES COUNTY BOARD OF COMMISSIONERS 8. Before the Board was Consideration of Approval of Weekly Accounts Payable Vouchers for Deschutes County of $751,204.15. DEBONE: Move approval, subject to review. UNGER: Second. VOTE: UNGER: Yes. DEBONE: Yes. BANEY: Chair votes yes. 9. ADDITIONS TO THE AGENDA Erik Kropp said there is a meeting on October14 regarding the: loss of County timber payments; he wanted to find out if the Board is going or if some County representatives should attend. Commissioner Unger feels this is a fact-finding attempt by the State. Commissioner DeBone is not available that day. It is likely one Commissioner will attend. A brief discussion took place regarding the recruitment process for County Administrator. Chair Baney has a few comments and changes to discuss at this afternoon’s work session. Commissioner Unger will be unable to attend the afternoon meeting. The Commissioners discussed their upcoming calendars. Being no further items to come before the Board, the meeting adjour ned at 10:25 a.m. DATED this (&~ Dayof O~ 2011 for the Deschutes County Board of Commissioners. Tamm~ Anthony DeBone, Vice Chai? ATIEST: Alan Unger, Commissioner ~~ Recording Secretary Mi nutes of Board of Commissioners' Business Meeting Monday, September 19,2011 Page 5 of 5 Pages Deschutes County Board of Commissioners 1300 NW Wall St., Bend, OR 97701-1960 (541) 388-6570 -Fax (541) 385-3202 -www.deschutes.org BUSINESS MEETING AGENDA DESCHUTES COUNTY BOARD OF COMMISSIONERS 10:00 A.M., MONDAY, SEPTEMBER 19, 2011 Commissioners' Hearing Room -Administration Building -1300 NW Wall St., Bend 1. PLEDGE OF ALLEGIANCE 2. CITIZEN INPUT This is the time provided/or individuals wishing to address the Board, at the Board's discretion, regarding issues that are not already on the agenda. Citizens who wish to speak should sign up prior to the beginning ofthe meeting on the sign-up cards provided. Please use the microphone and also state your name and address at the time the Board calls on you to speak. PLEASE NOTE: Citizen input regarding matters that are or have been the subject ofa public hearing will NOT be included in the record ofthat hearing. 3. A PUBLIC HEARING (continuedfrom May 23 and June 27) and Consideration of First Reading of Ordinances No. 2011-001 and 2011-002, Modifying the Comprehensive Plan Map and Zoning Map regarding Areas Eligible for the Destination Resort Overlay Suggestion Motion: After hearing, move first reading by title only of Ordinance No. 2011-001; and Move first reading by title only ofOrdinance No. 2011-002. CONSENT AGENDA 4. Approval of a Business Development Forgivable Loan to Geo-Spatial Solutions, Inc. for $20,000 5. Approval of Minutes: • Board Meeting of September 14, 2011 • Work Sessions of September 14,2011 i 1 I Board of Commissioners' Business Meeting Agenda Monday, September 19,2011 Page 1 of 4 Pages 1 J CONVENE AS THE GOVERNING BODY OF THE 9-1-1 COUNTY SERVICE DISTRICT 6. CONSIDERATION of Approval of Weekly Accounts Payable Vouchers for the 9-1-1 County Service District CONVENE AS THE GOVERNING BODY OF THE EXTENSION AND 4-H COUNTY SERVICE DISTRICT 7. CONSIDERATION of Approval of Weekly Accounts Payable Vouchers for the Extensionl4-H County Service District RECONVENE AS THE DESCHUTES COUNTY BOARD OF COMMISSIONERS 8. CONSIDERATION of Approval of Weekly Accounts Payable Vouchers for Deschutes County 9. ADDITIONS TO THE AGENDA PLEASE NOTE: At any time during this meeting, an executive session could be called to address issues relating to ORS 192.660(2) (e), real property negotiations; ORS 192.660(2) (h), litigation; ORS I 92.660(2)(d), labor negotiations; or ORS 192.660(2) (b), personnel issues. Deschutes County meeting locations are wheelchair accessible. Deschutes County provides reasonable accommodations for persons with disabilities. For deaf, hearing impaired or speech disabled, dial 7-1-1 to access the state transfer relay service for TTY. Please call (541) 388-6571 regardi ng alternative formats or for further information. Board of Commissioners' Business Meeting Agenda Monday, September 19,2011 Page 2 of 4 Pages FlITURE MEETINGS: (Please note: Meeting dates and times are subject to change. All meetings take place in the Board of Commissioners' meeting rooms at 1300 NW Wall St.• Bend. unless otherwise indicated.lfyou have questions regarding a meeting. please call 388-6572.) Monday, September 19 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session -could include executive session(s) Monday, September 26 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session -could include executive session(s) Wednesday, September 28 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session -could include executive session(s) Monday, October 3 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session -could include executive session(s) Wednesday, October 5 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session could include executive session(s) Thursday, October 6 8:00 a.m. Joint Meeting with the Sisters City Council, (Sisters City Hall) Monday, October 10 All Day Association of Oregon Counties' Legislative Committee Meetings (Salem) Board of Commissioners' Business Meeting Agenda Monday, September 19,2011 Page 3 of 4 Pages Wednesday, October 12 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session could include executive session(s) Monday, October 17 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session could include executive session(s) Monday, October 24 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session could include executive session{s) Wednesday, October 26 10:00 a.m. Board of Commissioners' Meeting 1:30p.m. Administrative Work Session -could include executive session{s) Monday, October 31 10:00 a.m. Board of Commissioners' Meeting 1:30 p.m. Administrative Work Session -could include executive session{s) Wednesday, November 2 10:00 a.m. Board of Commissioners' Meeting 1:30p.m. Administrative Work Session -could include executive session{s) Deschutes County meeting locations are wheelchair accessible. Deschutes County provides reasonable accommodations for persons with disabilities. For deaf, hearing impaired or speech disabled, dial 7-1-1 to access the state transfer relay service for TTY. Please call (541) 388-6571 regarding alternative formats or for further information. Board of Commissioners' Business Meeting Agenda Monday, September 19,2011 Page 4 of 4 Pages 1 BOARD OF COMMISSIONERS' MEETING REQUEST TO SPEAK Agenda Item ofinterest: '])1.. ~i~ Date: '" \,,\ , \\ Name S~\1lA \t~rff Address 15 ~v...) Cv~ 1+ 3> ~0 I OR q,JO} Phone#s ________________________________________________ E-mail address ___________________________________________ I2§ In Favor D NeutrallUndecided D Opposed Submitting written documents as part of testimony? DYes D No If so, please give a copy to the Recording Secretary for the record. BOARD OF COMMISSIONERS' MEETING REQUEST TO SPEAK Agenda Item of Interest: ___________ Date: 9/'1/'1 Address _______15~3~~__~~~_~_·__v~'I~,<_k~c~~~c~'J~----------------______ Phone #s ~l..{l-3 r'7 -rG Cj..3 ------~~~~~~------------------------------ E-mail address __----\...~-.=.d=6=.\N=E.T.1..£;IZ-::........:::Io.-=-Oj.=.1d.::::....(;:..::c..=G~(= ...-=:<4=""'"=:........-____________________ D In Favor D NeutrallUndecided 0' Opposed Submitting written documents as part of testimony? [2] Yes D No If so, please give a copy to the Recording Secretary for the record. Peter Gutowsky From: PARKER Douglas <douglas.parker@state.or.us> Sent: Thursday, September 08,2011 2:10 PM To: Peter Gutowsky Cc: PARKER Douglas; RUSSELL John; kameron@bendcable.com Subject: FW: DSL Properties Attachments: 11844Figure01.pdf; 11844Draft.doc Peter, Please accept this e-mail as the official submittal of a traffic analysis and map in support of the Destination Resort Overlay Map Amendment proposal which includes the DSl Cline Buttes property which is currently leased by Thornburgh proponents. Please do not hesitate to contact me if you have any questions. Thanks, Doug Doug Parker Asset Planner Oregon Dept. of State Lands 775 Summer St. NE, Suite 100 Salem, OR 97301 503. 986-5246 -office douglas.parker@state.or.us From: Joe Bessman [mailto:jbessman@kittelson.com] Sent: MondaYI August 29, 2011 4:39 PM To: shultberg@balljanik.com Cc: PARKER Douglas Subject: DSL Properties Good afternoon Steve, Attached is a draft memorandum for the DSl parcels adjacent to the Thornburg resort. let me know if you have any thoughts or suggestions to further strengthen our arguments, thanks! Take care, Joe Joe Bessman, PE, PTOE Senior Engineer Kittelson & Associates, Inc. Transportation Engineering / Planning 354 SW Upper Terrace Dr, Suite 101 Bend, Oregon 97702 541.312.8300 (503) 997-4473 (cell) Streetwise I!ilitt~J: f.il.~_~QQQk 1 SITE VICINITY MAP DESCHUTES COUNTY, OREGON IjfJ KrrTELSON & ASSOCIATES, INC. ~TRANSPORTATION ENGINEERING/ PLANNING I (~ KITTELSON & ASSOCIATES, INC. TRANSPORTATION ENGINEERING I PLANNING ~ 354 SW Upper Terrace Drive, Suite 101, Bend. Oregon 97102 P 541.312.8300 ,.-541.312.4585 DRAFT MEMORANDUM Date: August 29, 2011 Project #: 11844.0 To: Doug Parker, Deparhnent of State Lands From: Joe Bessman, PE, PTOE & Julia Kuhn, PE Subject: Destination Resort Mapping TPR Compliance This memorandum addresses the requirements of OAR 660-12-0060 (TPR) as part of the proposed Deschutes County Destination Resort Overlay (DRO) Mapping process for the Deparhnent of State Lands (DSL) Cline Buttes properties located near Eagle Crest Resort. The parcels are currently zoned Exclusive Farm Use -Sisters/Cloverdale and comprise nearly 364 total acres between five parcels. Figure 1 illustrates the general location of the parcels. Project Literature Review A variety of studies have been conducted in the vicinity of the four DSL parcels. The following subsections provide an overview of these studies and how each relates to this Destination Resort Mapping TPR Compliance effort. Thornburgh Resort Transportation Impact Analysis (TIA) The Thornburgh Resort TIA was conducted by Group Mackenzie and completed in December 2004. This study focused on the transportation related impacts of the proposed 1,900 acre Thornburgh site by evaluating existing conditions (2004), 2009 Pre-and Post-Development, and 2015 Pre-and Post-Development scenarios. At the time of the analysis, full build out of the site was expected by 2015. However, no construction has occurred on the Thornburgh site to date. For analysis purposes, the development of the Thornburgh site was split into two phases. Below is a summary of the identified improvements necessary to mitigate potential project impacts. • Phase 1 (Assumed complete in 2009): o Pay a fair share contribution towards the installation of a traffic Signal at the US 20/Cline Falls Highway (Cook Avenue) intersection. In 2004, this contribution was deemed to be 23 percent. This intersection was previously identified as exceeding I I t ODOT mobility standards under existing conditions by the Eagle Crest III study. FILENAME: C:\DOCUMENTS AND SETTINGS\PETERG\LOCAL SETTINGS\TEMPORARY INTERNET FILES\CONTENT. OUTLOOK\A V4C3DP7\11844DRAFT. DOC Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29, 2011 Page 2 Figure 1: Site Vicinity Map Kittelson & Associates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29,2011 Page 3 o Construct a northbound left-turn storage lane and a southbound right-turn deceleration lane on Cline Falls Highway at the Cline Falls Highway/Southeast Site Access intersection. • Phase 2 (Assumed complete in 2015): o Improvements may be required at the US 20/Cline Falls Highway (Cook Avenue) intersection at project build out. This would depend on the ultimate design of the proposed signalized intersection at this location. o Construct a westbound left-turn lane at the Eagle Crest Boulevard/OR 126 intersection. However, it should be noted that this improvement was included as a condition of approval for the Eagle Crest ill proposal. As such, the Thornburgh TIA assumes this improvement is already constructed. City of Redmond Transportation System Plan (TSP) The current City of Redmond TSP was adopted in 2008. While this document does not explicitly evaluate the impacts of specific destination resorts, an emphasis was placed on creating a transportation system that could accommodate growth that is expected to occur outside city limits, including growth of destination resorts. The future travel demand models used for TSP forecasting efforts are noted to account for assumed growth in other communities and destination resort development, though the magnitude of the growth assumed is not stated. The City's TSP identified numerous transportation improvements that would be required on the west side of the City, such as improvements to Helmholtz Way to provide a five-lane north south west side arterial from Maple A venue to Elkhorn A venue. Also, the plan noted needed improvements along the OR 126 corridor at Helmholtz Way, 35 th Street, 27th Street, and Rimrock Road, representing the first major intersections within the urban area when traveling from the west towards the city center. Cascades Academy of Central Oregon The Cascades Academy of Central Oregon (CACO) was recently approved by Deschutes County. At the request of the County, the Transportation Impact Analysis prepared for the site assessed the US 20/Cook A venue intersection and found that it continued to exceed OOOT mobility standards under current year 2010 conditions. Summary of Previous Studies The City of Redmond TSP, the Thornburgh Resort TIA and the CACO TIA provided a long-term assessment of transportation system needs within the vicinity of the DSL Lands as well as within the City of Redmond. Per the previous studies, the following intersections within proximity of Kittelson &ASSOCiates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29,2011 Page 4 the DSL lands will require improvements to meet applicable standards within the next twenty years: • US 20/Cline Falls Highway (Cook Avenue) • Eagle Crest Boulevard/OR 126 • OR 126IHelmholtz Way • OR 126/35th Street • OR 126/27th Street • OR 126/Rimrock Road IMPACT OF PROPOSED MAPPING ON TRIP GENERATION POTENTIAL Existing EFU Zoning The existing zoning for the DSL properties is Exclusive Farm Use Sisters/Cloverdale (EFU-SC), which is intended for farmland preservation and allows a minimum lot size of 63 acres for irrigated land and 80 acres for non-irrigated parcels. Deschutes County Code 18.16 describes allowable uses within the EFU zoning. Of the outright allowable uses, the most intense land uses include farming uses or rural fire stations. Because of the low intenSity uses allowed, the trip generation potential for this zoning is considered minimal and for TPR purposes was conservatively assumed to be zero. Proposed Destination Resort Zoning The intent of the destination resort zoning is to preserve open space and enhance and diversify recreational opportunities. As such, it was assumed that an overall density of up to 1.5 units per acre could be developed, allowing 546 residential units throughout the 364 acres of the Cline Butte site. To quantify the impacts of this level of development, traffic engineers and local and state review agencies commonly rely upon information contained in the Institute of Traffic Engineers (ITE) Trip Generation (Reference 1) for estimating trip generation rates. However, the data contained in Trip Generation it is based on a collection of national studies that may not represent specific developments or local conditions. Within Trip Generation, the data related to resorts is fairly limited and dated. The most similar land use category to the proposed development, Recreational Homes, contains data from two studies, one in Oregon conducted in 1977 and another in New York conducted in 1985. Neither of these studies reflect current destination resort land use requirements or amenities. Supplemental local data is also limited because prior to 2003, resort data was not collected in Central Oregon due to the limited number of fully built resorts. However, as part of land use applications submitted within the past five years, a database of local trip generation Kittelson & ASSOCiates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29, 2011 Page 5 characteristics has been created for Central Oregon resorts. Based on this datal, the anticipated trip generation is 0.32 p.m. peak hour trips per residential unit. The resultant trip generation potential is summarized in Table 1. Table 1 Estimated Trip Generation Potential Weekday PM Peak Hour Trip Generation Land Use Units Rate Total In Out Destination Resort 546 0.32 trips/unitt 175 87 88 1 Trip rate based on Eagle Crest Resort Trip Generation Study. For comparison, the Thornburgh Resort TIA (which relied on non-local trip generation data) assumed that Phase 1 and Phase 2 of the t200 acre project (with 1,270 resort units and other amenities) could generate 655 external p.m. peak hour trips. While the study parcels are expected to generate significantly less external trips during the p.m. peak hour than the overall resort, the intersection of US 20/Cline Falls Highway was previously identified as exceeding mobility standards under existing conditions. As such, the addition of any measurable amount of trips associated with development of the DSL parcels would result in a significant impact at that location, per the TPR. EFFECT ON DESCHU"rES COUNTY TRANSPORTATION SYSTEM PLAN The Deschutes County Transportation System Plan is currently in the process of being updated and will identify transportation system needs for the year 2030. The currently adopted TSP assesses year 2020 system needs, which is beyond the assessment completed for the Thornburg resort as the original study had only assessed through year 2015. For the purposes of lPR compliance any assessment of the DRO mapping should be consistent with the adopted TSP horizon year of 2020. As highlighted above, there are several improvement needs identified in the previous studies within the vicinity of the subject parcels that have not been constructed yet. At this point, the County has not identified any financing mechanisms to ensure construction of these improvements by the year 2020. As the impacts of additional development of the DSL properties 1 As part of previous land use applications in Central Oregon, trip generation was collected at two local resorts, Black Butte Ranch and Eagle Crest Resort. These resorts included typical amenities, contained a mix of primary and secondary residences, and have been in operation for at least ten years. To identify the trip generation potential of the resorts, twenty-four hour tube counts were collected on three consecutive weekdays at each ingreSS/egress route serving the resorts in order to measure daily resort trip rates and changes in resort trip generation over the course of a day. Additionally, peak period tuming movement counts were conducted on three consecutive days between 3:00 p.m. and 7:00 p.m. at each ingreSS/egress route to measure trip rates during the weekday p.m. commute period. Review of this data identified that Eagle Crest contained higher trip rates than Black Butte Ranch, with 0.32 weekday p.m. peak hour tripS/residential unit. I Kittelson & Associates, Inc. Bend, Oregon I t Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29, 2011 Page 6 will further degrade already deficient intersections a significant effect will occur if the resort were to be constructed without some type of mitigating measures. A listing of significantly affected intersections, those that have previously been identified as deficient, relevant improvement/mitigation plans, and potential improvement options are summarized below in Table 3. Kittelson & Associates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29,2011 Page 7 Table 3 Summary 0 f System Needs Intersection Previously Identified as Deficient? Previous Mitigation Options OR 126/ Eagle Crest Blvd Yes 1 Construct a westbound left-tum lane US 20/ Cook Avenue Yes l •2 Signalization l OR 126/ Helmholtz Avenue Yes 3 Widen OR 126 to three lanes, signalize and add turn lanes OR 126/ 35th Street Yes3 Widen OR 126 to five lanes OR 126/ 27th Street Yes3 Widen OR 126 to five lanes OR 126/ Rimrock Road Yes3 Widen OR 126 to five lanes, add turn lanes 1 As identified in the Thornburg Transportation Impact Analysis. 2 As Identified In the CACO Transportation Impact Analysis. 3 As identified In the City of Redmond Transportation System Plan. As summarized in Table 3, the previously completed transportation studies and plans highlight the need for additional transportation system improvements to ensure acceptable operations on the surrounding system. TRANSPORTATION PLANNING RULE COMPLIANCE As previously documented, development of the DSL parcels as a destination resort could create a significant effect on the transportation system. Mitigation measures at the US 20/Cook Avenue and additional intersections along the OR 126 corridor entering Redmond would be required. These measures have no guarantee of construction by the relevant plan year. Per the TPR, the mapping of these properties to accommodate destination resort uses can be considered an amendment to a comprehensive plan that would significantly affect an existing or planned transportation facility. Under the TPR, local governments are required to put in place measures to assure that allowed uses are consistent with the identified function, capacity, and performance standards (e.g., level of service, volume to capacity ratio, etc.). To enable the mapping to occur, Deschutes County will have to utilize one or more measures set forth in OAR 660-12-0060(2) to assure proper function of transportation facilities. Kittelson & ASSOCiates, Inc. Bend, Oregon \ f j I Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29, 2011 Page 8 OAR 660-12-0060(2)(a)-(e) provides as follows: Where a local government determines that there would be a significant effect, compliance with section (1) shall be accomplished through one or a combination of the following: (a) Adopting measures that demonstrate allowed land uses are consistent with the planned function, capacity, and performance standards of the transportation facility. (b) Amending the TSP or comprehensive plan to provide transportation facilities, improvements or services adequate to support the proposed land uses consistent with the requirements of this division; such amendments shall include a funding plan or mechanism consistent with section (4) or include an amendment to the transportation finance plan so that the facility, improvement, or service will be provided by the end of the planning period. (c) Altering land use designations, densities, or design requirements to reduce demand for automobile travel and meet travel needs through other modes. (d) Amending the TSP to modify the planned function, capacity or performance standards of the transportation facility. (e) Providing other measures as a condition of development or through a development agreement or similar funding method, including transportation system management measures, demand management or minor transportation improvements. Local governments shall as part of the amendment specify when measures or improvements provided pursuant to this subsection will be provided. In the absence of improvements at the OR 126 intersections entering Redmond and the US 20/Cook A venue intersection in Tumalo, the significant effect associated with the DRO mapping of the DSL Parcels can be mitigated by prohibiting future development until such time that a comprehensive transportation study is completed and financing mechanisms are in-place to ensure completion of the identified improvements. Because it is impossible to predict at the present time when, and to what extent, the property may develop as a destination resort, and because it is unclear where additional development in the region may occur or whether additional transportation improvements may be made, this condition of approval would require additional TPR-Ievel transportation improvements at such time as a resort is developed. We note that SB 1031 (2010) imposes such a requirement. A future application to permit a destination resort within these parcels will be required to include a traffic study that analyzes the impacts of the specific proposal and its planned density on affected transportation facilities. As a destination resort is a conditional use within the EFU zoning per Deschutes County Code Section 18.16.035, this process will allow the destination resort overlay mapping to be implemented while specific transportation details are addressed at the time of master plan application. Kittelson & ASSOCiates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 August 29, 2011 Page 9 This process will require that the applicant bear the burden of proof and costs associated with mitigation for their specific proposal. Further, it will allow the planning of supporting transportation system infrastructure at a time when specific information about the location, proposed vehicular access, and resort size are known. Please call us at (541) 312-8300 if you have any questions. Sincerely, KITIELSON & ASSOCIATES, INC. Joe Bessman, PE, PTOE Julia Kuhn, PE Senior Engineer Principal Engineer Attachments: 1) Thornburgh Resort TIA 2) Cascades Academy of Central Oregon TIA 3) City of Redmond TSP Excerpts Kittelson & Associates, Inc. Bend, Oregon -- Thornburgh Continued from A1 Loyal Land did not obtain water rights to the property, the attorney said, and without them. development as a destination re sort would not be possible under county rules. Attorneys for Loyal Land can not discuss the case, according to a person answering the phone Wednesday at the Portland of fice of Perkins Coie. Wednesday's sale was the latest action in Kameron Delashmutt's efforts to develop his grandfa ther's land near Cline Buttes into a resort featuring 950 homes, 475 overnight lodging units and three golf courses. Delashmutt, Thornburgh's general manager, filed a master plan for the proposed resort in February 2005. Deschutes County approved a preliminary plan, and opponents appealed it all the way to the stale SupreIne Court. which decIinedto hear the case, accord ing to The Bulletin's archives. In October 2010. a notice of default was filed with the Des chutes County. Clerk's Office, stating $12.1 million was owed on the property in principal, in terest, late charges and advanc es, according to the notice. The 1,350 acres covered by the notice was scheduled for auction several times, but Thornburgh filed for bankruptcy in March, stopping tbe foreclo$ure sale and pla~tbe prOperty under the jurisdiCtion of the bankruptcy court. InJune,U.S.~Judge Trish Brown ~the court's protection.'~ the land to be sold alter ~ngto court records. ap_ pealed the ' to the U.S. Dis trict Court, w . Ptftdizut'. After the b~judge's ruling. however, ~and Loyal Land, which court records say is solely owned by Pennsyl vania resident Thrrence Larsen, began to negotiate, Scharff said. They need each. other ..eventu ally develop the ~re sort, the attorney said, ~ it would not be anytime soon. Plenty of destination resort property remains on the market now, he said, but if Thornburgh and Loyal Land can develop a relationship, they could work together on the project after the market recovers. "It's an attractive property," Scharff said. "We know the time will come. People come from all over the world to Central Oregon." --~-----------~~= L ~d. \..lJ.::.:td." ~')(. \",., "'" :<\ MEMORANDUM TO: Deschutes County Board of County Commissioners FROM: Steven Hultberg DATE: June 22, 2011 RE: Deschutes County Destination Resort Mapping--Transportatlon Planning Rule Findings 1. Introduction The Oregon Transportation Planning Rule ("TPR"), OAR 660-012-0060, requires local governments to determine whether amendments to their acknowledged comprehensive plan will "significantly affect" existing or planned transportation facilities. If a "significant effect" is found, then local governments are obligated to put in place one or more measures to assure that allowed land uses are consistent with the identified function, capacity, and performance standards of the facility. There has been a considerable amount of litigation regarding the proper application of the TPR, most recently In Klamath County, where LUBA remanded the county's new destination resort map, in part, based on the county's failure to properly comply with the TPR. Root v. Klamath County, Or LUBA_ (LUBA No. 2010 078, April 19, 2011). The following findings address the TPR in light of the Klamath County case, and the Oregon Court of Appeals decision in Willamette Oaks v. City of Eugene, 232 Or App 29, 220 P3d 445 (2009). 2. Requirements of the TPR A. Step One In the Willamette Oaks decision, the Court of Appeals held that the City of Eugene was required to determine whether a zone change would significantly affect transportation facilities prior to the approval of the zone change. In other words, the court held that the city could not defer a finding of significant effect until a later date, presumably in connection with development of the underlying property. The TPR is essentially a two-step process. The first step is to determine whether there is a significant effect, while step-two identifies the various measures local governments may take to assure that allowed land uses are consistent with the identified function, capacity, and performance standards (e.g. level of service, volume to capacity ratio) of the facility. Willamette Oaks dealt only with step one of the TPR. The court expressly held that LUBA erred in holding that the city could permissibly grant the zone change without first evaluating, pursuant to OAR 660-012 0060(1), whether the change would significantly affect transportation facilities. OAR 660-012-0060(1) provides: Where an amendment to a functional plan, an acknowledged comprehensive plan, or a land use regulation would significantly affect an existing or planned transportation facility, the local government shall put in place measures as provided in section : : OOMA\PCOOCS\PORTLAN 0\766291 \2 .' "". (2) of this rule to assure that allowed land uses are consistent with the identified function, capacity, and performance standards (e.g. level of service, volume to capacity ratio, etc.) of the facility. A plan or land use regulation amendment significantly affects a transportation facility if it would: (a) Change the functional classification of an existing or planned transportation facility (exclusive of correction of map errors In an adopted plan); (b) Change standards implementing a functional classification system; or (c) As measured at the end of the planning period identified in the adopted transportation system plan: (A) Allow land uses or levels of development that would result in types or levels of travel or access that are Inconsistent with the functional classification of an existing or planned transportation facility; (B) Reduce the performance of an existing or planned transportation facility below the minimum acceptable performance standard identified in the TSP or comprehensive plan; or (C) Worsen the performance of an existing or planned transportation facility that is otherwise projected to perform below the minimum acceptable performance standard identified in the TSP or comprehensive plan. To satisfy step one of the TPR, the county must make a specific finding, based on substantial evidence in the record, whether the comprehensive plan map amendment will "significantly affect" a transportation facility. The record in this case Includes a Memorandum from Kittelson & AssOCiates, Inc. (the "Traffic AnalYSiS," Exhibit A) which concludes that the proposed amendments will significantly affect transportation facilities. In particular, the Traffic Analysis concluded that the amendments adding the Pine Forest and Belveron properties (referred to in the Traffic AnalYSis as the "Forest Service" parcel) would reduce the performance of the South Century Drive/Spring River Road and US 97/Vandervert intersections below the minimum acceptable performance standard identified in the TSP or comprehensive plan. This conclusion results in a finding of significant affect under OAR 660-012-0060(1)(c)(B). In the Root case in Klamath County, LUBA held that the county's cursory findings regarding significant effects under OAR 660-012-0060(1) were insufficient, primarily because the county's adopted findings did not attempt to analyze or evaluate how destination resorts allowed under the plan amendment would significantly affect any transportation facilities In any of the ways set out in OAR ::ODMA \PCDOCS\PORTLAND\766291 \2 2 660-012-0060(1); it simply assumed that there would be a significant effect on unspecified transportation facilities If some unspecified portion of the 90,000 acres were developed with an unspecified number of destination resorts of an unspecified size at unspecified locations. Root, _ Or LUBA _(Slip Op at 24). Here, in contrast, the Traffic Analysis has evaluated how destination resorts will significantly affect transportation facilities. In particular, the Traffic Analysis developed a reasonable worst case development scenario for the Pine Forest and Belveron parcels proposed to be added to the Destination Resort map. Based on applicable destination resort development standards, the Traffic Analysis determined the maximum number of units which could be permitted on each property at full development, assumed that the resorts would be built, and then assigned a trip generation amount based on the trip factor for destination resorts set forth in the county's adopted Transportation SOC Study, SOC Calculation. The Traffic Analysis then identified potentially affected transportation facilities, applied the potential trip generation from the subject properties and concluded that at full development one or more transportation facilities would be significantly affected by resort development. In other words, the Traffic Analysis concluded that the County's remapping would "significantly affect" one or more transportation facilities under OAR 660-012-0060(1). B. Step Two Upon concluding that an amendment to an acknowledged comprehensive plan or land use regulation would significantly affect a transportation facility, the local government must put into place measures to assure that allowed land uses are consistent with the identified function, capacity, and performance standards of the facility. In particular, OAR 660-012-0060(2) provides: Where a local government determines that there would be a significant effect, compliance with section (1) shall be accomplished through one or a combination of the following: (a) Adopting measures that demonstrate allowed land uses are conSistent with the planned function, capacity, and performance standards of the transportation facility. (b) Amending the TSP or comprehensive plan to provide transportation facilities, improvements or services adequate to support the proposed land uses consistent with the requirements of this division; such amendments shall include a funding plan or mechanism consistent with section (4) or include an amendment to the transportation finance plan so that the facility, improvement, or service will be provided by the end of the planning period. (c) Altering land use designations, densities, or design requirements to reduce demand for automobile travel and meet travel needs through other modes. [ : :ODMA\PCDOCS\PORTLAND\766291 \2 3 l (d) Amending the TSP to modify the planned function, capacity or performance standards of the transportation facility. (e) Providing other measures as a condition of development or through a development agreement or similar funding method, including transportation system management measures, demand management or minor transportation improvements. local governments shall as part of the amendment specify when measures or improvements provided pursuant to this subsection will be provided. C. Data Gaps The County's map amendment does not permit any resort development and, at the current time, no resort is proposed for any of the subject properties. Absent speCific resort proposals, it is impossible to perform detailed traffic analysis at this juncture. Indeed, many required components of traffic studies which would be required at the time of development are unknown at the present time. Consequently, the Traffic Analysis made certain assumptions for each property (e.g., density, trip generation), and based the significant affect and mitigation on these assumptions. A more detailed transportation analysis is simply not possible at this pOint. For example, under ODOT's 2005 Development Review Guidelines (Exhibit B), the following components are required for a traffic impact study, none of which are known at the present time: • Traffic volumes in the year of opening without resort development • Traffic operations in the year of opening without resort development • Traffic volumes in the year of opening with the resort development • Traffic operations in the year of opening with the resort development • TraffiC volumes at the end of planning period without resort development • Traffic operations at the end of the planning period without resort development • Traffic volumes at the end of the planning period with resort development • Traffic operations at the end of the planning period with resort development. Because these factors are unknown-primarily because it is impossible to predict at the present time the size of any particular resort, when it is planned to open, or whether there will be intervening development which would affect the transportation analysis-it is impossible to specifically identify the precise measures which would be required at the time of resort development to assure that resort development is consistent with the identified function, capacity, and performance standards of all potentially affected transportation facilities, as required under OAR 660-012-0060(1). The mitigation identified in the Traffic Analysis would be sufficient to remedy the identified significant effects If the subject properties were developed today with resorts generating the traffic identified in the Traffic AnalYSis. Because, however, It is Impossible to know at the present time whether, when and to what extent the subject properties will be developed for resorts, it Is appropriate to : :ODMA\PCDOCS\PORTLAND\766291 \2 4 -...... -t- impose certain conditions of approval to ensure that when and if resorts are developed, they are developed conSistent with the planned function, capacity, and performance standards of affected transportation facilities. D. Conditions of Approval Because the Traffic Analysis concluded that the proposed map amendments would significantly affect several identified transportation faCilities, under Step Two, the county must impose one or more measures identified in OAR 660-012-0060(2) to assure that allowed land uses are consistent with the identified function, capacity and performance standards of the affected facility. Pine Forest recommends that the county impose the following condition of approval pursuant to OAR 660-012-0060(2)(a) and (e): 1. Deyelopment prohibition. The Belveron, Pine Forest and DSL properties1 may not be developed with a destination resort until a traffic Impact study is performed which fulfills OAR 660 Division 12 Transportation Planning Rule requirements. If the traffic impact study required by this condition of approval demonstrates that the resort will significantly affect an existing or planned transportation facility, resort development may not proceed until measures are in place as described in OAR 660-012-0060(2) to assure that resort development is consistent with the identified function, capacity, and performance standards of affected transportation facilities. E. Condition Analysis This condition does not defer TPR compliance In violation of the Willamette Oaks decision. As set forth above, the County has completed the TPR analysiS for each of the newly mapped sites as part of the present amendments to the Destination Resort maps. There is substantial evidence in the record which demonstrates that, at full build out, each of the properties would Significantly affect transportation facilities. In response to that finding, the County has identified specific mitigation which would alleviate any significant affect. Given that it is impossible to accurately determine the specific impacts of resort development given the uncertainty of timing and scope of any particular proposal, this condition is essentially a back-up condition which will prohibit resort development (and therefore any affect on transportation facilities) until such time as a more detailed and focused transportation analYSis is completed. It may be possible that a specific resort has fewer impacts than identified in the Traffic Study. The oppOSite may also be true. This condition recognizes each possibility, and prohibits resort development on the subject properties until such time as a resort is proposed. While any resort applicant will be required to proceed through a new TPR-Ievel transportation study at the time of resort development, a second TPR-Ievel study does not equate to deferral of the TPR in violation of Willamette Oaks. Moreover, under SB 1031 (2010), any resort proposal will be required to provide a traffic impact analysis which includes mitigation measures to either avoid or mitigate a proportionate share of adverse effects of transportation on state highways and other transportation facilities affected by the proposed development. In large part, this condition of approval merely restates the reqUirements of SB 1031. By imposing this condition of approval, which prevents the addition of any resort-related trips to the transportation 1 The DSL property is the subject of a second transportation analysis. This condition is equally applicable to the DSL property. : :ODMA\PCDOCS\PORTLAND\766291 \2 5 I system-thereby ensuring that transportation facilities operate consistent with their planned function-the County has complied with the TPR and the requirements of Willamette Oaks. : :ODMA\PCDOCS\PORTLAND\766291 \2 6 EXHIBIT A KITTELSON & ASSOCIATES, INC. TRANSPORTATION ENGINEERING I PLANNING 364 SW Upper TeIT8Ce Drive, Suite 101, Bend, Oregon 97702 541.312.8300 641.312.4585 MEMORANDUM Date: June 22, 2011 Project #: 11844.0 To; Steve Runner From: Joe Bessman, PE, PTOE & Julia Kuhn, PE Subject: Destination Resort Mapping TPR Compliance The purpose of this memorandum is to address the requirements of OAR 660-12-0060 (TPR) as part of the proposed Deschutes County Destination Resort Overlay (DRO) Mapping process for the Pine Forest Property and Forest Service Parcels II A" and liB" (Forest Service Parcels). As shown in Figure 1, the subject parcels are located south of Sunriver resort on Deschutes County lands currently zoned Forest Use (F2). The subject parcels encompass approximately 904 acres in total. PRIOR STUDIES Development of these parcels has been previously considered in both the December 2004 approved Caldera Resort Transportation Impact Analysis (TIA) and an ODOT study of the Century Drive interchange. A summary of relevant highlights from each of these studies is provided below. US 97 at South Century Drive As part of the environmental assessment prepared in 2003, ODOT analyzed year 2027 transportation conditions related to a variety of alternatives considered for a potential interchange at the US 97/Century Drive intersection (Traffic Analysis Narrative as prepared by ODOT Transportation Planning and Analysis Unit, October 2003). FILENAME: H:\PRO)FILE\11844 -PINE FOREST DESTINATION RESORnREPORnFINAL\SUNRIVERDRO.DOC Forest Service J:>wv!...rlu June 2011 (NO SCALE) SPRING RIVER RD a: o rr ~ o CIJ ""~§b DIy)S CENTURY DR ,-/ ,-/ DESCHUTES COUNTY ,-/ ,-/ SITE VICINITY MAP DESCHUTES COUNTY, OREGON -KIlTELSON • ASSOCIATES,INC. ~'i'RANSPORTATION PlANNING I TiW¥iC I;NOINEEAlNG Destination Resort Mapping TPR Compliance Project #: 11844.0 June 22, 2011 Page 3 The ODOT analysis assumed that the subject properties would develop with 360 single family homes (not second homes), 170 acres of golf course, 10 acres of business park and a 300-room hotel within the "land swap area" plus an additional 20 single family homes in the adjacent properties. This level of growth was more intense than assumed in the Caldera Resort application and equated to a total of 789 p.m. peak hour trips generated by the subject parcels in the year 2027 (see ODOT study Table 02, zones 8 and 9). These growth assumptions result in annual growth rates of 4.7 percent at the S Century Drive/Abbott Drive intersection and 9.1 percent at the Spring River Road/S Century Drive intersection through the year 2027. To accommodate year 2027 conditions, the following transportation improvement needs were considered in the proximity of the subject parcels within this study: • Construction of a single lane roundabout at the South Century Drive/Abbott Drive intersection. The future roundabout should be designed to accommodate a westbound right-turn bypass lane. A roundabout has subsequently been constructed at this intersection and is in operation today. • Spring River Road/South Century Drive should be constructed as a single-lane roundabout. It was projected to operate near-capacity as a single-lane roundabout with no development of the Forest Service lands and over-capacity if the Forest Service property is developed. The assessment recommended the ability to widen the roundabout to accommodate a multi-lane design long-term. A roundabout has not been constructed at this intersection. • US 97Nandervert -an eastbound left-turn lane should be constructed at this intersection to address failing conditions anticipated by year 2007. This improvement has not been completed. • Vandervert/South Century Drive -this intersection was forecast to operate at level-of service "E" in the year 2027. A signal is not warranted and no mitigation measures were identified. Caldera Resort Transportation Impact Analysis (December 2004) A transportation impact analysis was prepared for the Caldera Resort property by Kittelson & Associates, Inc. in 2004. The study assessed year 2004 and year 2020 transportation needs to accommodate build-out of a 500 unit destination resort with a 9-hole golf course, a 5,OOO-square foot restaurant, and a 15,000 square foot recreational facility. The Caldera Resort TIA buildout assumptions resulted in 310 weekday p.m. peak hour trips at buildout. This is less than half of the trip generation used in the ODOT study. In addition to year 2020 conditions, the study also analyzed year 2027 conditions to ensure that any recommendations were consistent with the long-term needs of the facilities. These 2027 conditions were based on traffic volume forecasts developed by ODOT for the US 97 at South Century Drive study and included development on the Pine Forest lands. Kittelson & Associates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 June 22, 2011 Page 4 To accommodate growth in the year 2020 and year 2027, the following recommendations were included in this study: • S Century DrivefUS 97: "this intersection will be reconstructed as a diamond interchange. According to the Oregon Department of Transportation (ODOT) Statewide Transportation Improvement Program (STIP) and the interchange Memorandum of Understanding, this improvement is funded and scheduled to begin in 2005." An interchange has been constructed at this location and is in operation today. • Abbot Drive/S Century Drive: "this intersection needs to be constructed as a single lane roundabout within the next 1 2 years. The roundabout should be designed to allow the flexibility of adding a westbound slip lane in the future. This slip lane is not necessary to accommodate buiIdout of the planned resort but is necessary to accommodate the year 2027 traffic volume projections developed by ODOT./I A roundabout has been constructed at this location and is in operation today. The roundabout has been designed to enable the addition of a slip-lane in the future, when warranted. • Spring River Road/S Century Drive: /l a northbound left-turn lane is needed at this intersection to facilitate buildout of the resort. This improvement should be made prior to 75 percent buildout of the resort (estimated at year 2016). Over the longer term (beyond buildout of the proposed resort), the intersection will warrant the installation of a roundabout in accordance with year 2027 traffic volume projections developed by ODOT./I The northbound turn lane has been constructed at this intersection. The roundabout has not been constructed. The Vandervert/South Century Drive intersection was shown to operate at a level-of-service liD" in the year 2020. No mitigation measures were identified to be needed at this intersection. Summary of Previous Studies Both the ODOT and the Caldera studies provided a long-term assessment of transportation system needs within the vicinity of the Pine Forest Lands. Both studies evaluated year 2027 conditions assuming an intense level of development on the subject parcels. In the year 2027, this equated to a weekday p.m. peak hour trip generation rate of 789 trips. The Caldera Resort was assumed to build out by the year 2020 and result in only 310 weekday p.m. peak hour trips. Both studies identified that the transportation system is forecast to operate unacceptably per ODOT and Deschutes County standards in the future if additional improvements are not made. Since the completion of the studies, some of the improvements identified have been completed. Those that remain to be complete include: • Spring River Road/South Century Drive -construction of a single-lane roundabout that can ultimately be expanded to a double-lane roundabout. • US 97Nandervert -construction of an eastbound left-turn lane. Kittelson & Associates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 June 22,2011 Page 5 IMPACT OF PROPOSED MAPPING ON TRIP GENERATION POTENTIAL Existing F2 Zoning The existing zoning for the Pine Forest and Forest Service properties is Forest Use Zone (F2), which is intended for forestland preservation. Based on review of Deschutes County Code 18.40, the trip generation potential of the existing F2 zoning outright allowable uses is minimal. Accordingly, the trip generation potential for Transportation Planning Rule (TPR) analysis purposes was assumed to be zero. Proposed Destination Resort Mapping If the Forest Service and Pine Forest properties were developed as destination resorts, a range of densities could be provided. As the intent of the destination resort zoning is to preserve open space and enhance and diversity recreational opportunities it was assumed that an overall density of up to 1.5 units per acre could be developed, allowing 1,356 resort homes throughout the 904 acres of the Pine Forest and Forest Service Parcels. Although this density is higher than assumed in either the Caldera Resort or US 97 at South Century Drive studies, the resultant trip generation is lower than the OOOT study, as discussed below. To quantify the impacts of this level of development, traffic engineers and local and state review agencies commonly rely upon information contained in the Institute of Traffic Engineers (ITE) Trip Generation (Reference 1) for estimating trip generation rates. Although the ITE data is typically used as a standard reference for trip generation, it is based on a collection of national studies that may not represent specific developments or local conditions. Within Trip Generation, the data related to resorts is fairly limited and dated. The most similar land use category to the proposed development, Recreational Homes, contains data from two studies, one in Oregon conducted in 1977 and another in New York conducted in 1985. Neither of these studies reflects current destination resort land use requirements or amenities. Supplemental local data is also limited because prior to 2003, local resort data was not collected in Central Oregon due to the limited number of fully built resorts in the area. However, as part of land use applications submitted within the past five years, a database of local trip generation characteristics has been created for Central Oregon resorts. Based on this data 1, the anticipated 1 As part of previous land use applications in Central Oregon, trip generation was collected at two local resorts, Black Butte Ranch and Eagle Cnest Resort. These resorts Included typical amenities, contained a mix of primary and secondary residences, and have been in operation for at least ten years. To identify the trip generation potential of the resorts, twenty-four hour tube counts were collected on three ronsecutive weekdays at each ingreSS/egress route serving the resorts in order to measure daily resort trip rates and changes In resort trip generation oller the rourse of a day. Additionally, peak period turning movement counts were conducted on three consecutive days between 3:00 p.m. and 7:00 p.m. at each ingress/egress route to measure trip rates during the weekday p.m. commute period. Review of this data Identified that Eagle Crest contained higher trip rates than Black Butte Ranch, with 0.32 weekday p.m. peak hour tripS/residential unit. Kittelson 8. Associates, Inc. Bend, Oregon i I I t 1 1 I Destination Resort Mapping TPR Compliance Project #: 11844.0 June 22, 2011 Page 6 trip generation is 0.32 p.m. peak hour trips per residential unit. This value is consistent with the approach taken by the Deschutes County SDC ordinances for destination resorts. The resultant trip generation potential is summarized in Table 1. Table 1 Estimated Trip Generation Potential Land Use Units Trip Generation Rate Weekday PM Peak Hour Total I In I Out Destination Resort 1,356 0.32 trips/unit' 434 I 217 I 217 Note: 1Assumed based on Eagle Crest Resort Trip Generation Study As discussed above, the ODOT study applied a trip generation of 789 weekday p.m. peak hour trips in the assessment of the transportation system needs. The Caldera Study used a trip generation rate of 310 pm peak hour trips. The assignment of these trips on to the transportation system is expected to follow similar patterns to that assumed in both of the previous studies. The ODOT and Caldera studies highlighted the need for additional transportation system improvements to ensure acceptable operations. Given that the development of the properties consistent with the destination resort mapping is anticipated to yield similar trip generation and assignment to that used in both of the past studies, it can be reasonably concluded that the development of the subject parcels as a destination resort would require the same level of improvements identified in these previous studies. AFFECT ON DESCHUTES COUNTY TRANSPORTATION SYSTEM PLAN The Deschutes County Transportation System Plan is currently in the process of being updated and will identify transportation system needs for the year 2030. The currently adopted plan assesses year 2020 system needs, consistent with the analysis year of the Caldera Resort Transportation Impact Analysis. For the purposes of TPR compliance any assessment of the DRO mapping should be consistent with the adopted TSP horizon year of 2020. As highlighted above, there are two improvements identified in the previous studies within the vicinity of the subject parcels that have not been constructed yet. At this point, the County has not identified any financing mechanisms to ensure construction of these improvements by the year 2020. We anticipate that the County will re-evaluate the timing of these improvements as part of the TSP update. TRANSPORTATION PLANNING RULE COMPLIANCE As previously documented, development of the Pine Forest Resort and Forest Service Parcels as a destination resort would create a significant affect on the transportation system. Improvement measures at the US 97 N andervert and Spring River Road/South Century Drive are necessary to meet applicable performance standards. These measures have no guarantee of construction by the year 2020. Per the TPR, the mapping of these properties to accommodate destination resort uses can be considered an amendment to a comprehensive plan that would significantly affect an Kittelson & Associates, Inc. Bend, Oregon Destination Resort Mapping TPR Compliance Project #: 11844.0 June 22, 2011 Page 7 existing or planned transportation facility. Under the TPR, local governments are required to put in place measures to assure that allowed uses are consistent with the identified function, capacity, and performance standards (e.g., level of service, volume to capacity ratio, etc.). To enable the mapping to occur, Deschutes County will have to utilize one or more measures set forth in OAR 660-12-0060(2) to assure proper function of transportation facilities. OAR 660-12-0060(2)(a)-(e) provides as follows: Where a local government determines that there would be a significant effect, compliance with section (1) shall be accomplished through one or a combination of the following: (a) Adopting measures that demonstrate allowed land uses are consistent with the planned function, capacity, and performance standards of the transportation facility. (b) Amending the TSP or comprehensive plan to provide transportation facilities, improvements or services adequate to support the proposed land uses consistent with the requirements of this division; such amendments shall include a funding plan or mechanism consistent with section (4) or include an amendment to the transportation finance plan so that the facility, improvement, or service will be provided by the end of the planning period. (c) Altering land use designations, densities, or design requirements to reduce demand for automobile travel and meet travel needs through other modes. (d) Amending the TSP to modify the planned function, capacity or performance standards of the transportation facility. (e) Providing other measures as a condition of development or through a development agreement or similar funding method, including transportation system management measures, demand management or minor transportation improvements. Local governments shall as part of the amendment specify when measures or improvements provided pursuant to this subsection will be provided. In the absence of improvements at the South Century Drive/Spring River Road and US 97Nandervert intersections, the significant effect associated with the ORO mapping of the Pine Forest and Forest Service Parcels can be mitigated by prohibiting future development until such time that a comprehensive transportation study is completed and financing mechanisms are in place to ensure completion of the identified improvements. Because it is impossible to predict at the present time when, and to what extent, either property may develop as a destination resort, and because it is unclear where additional development in the region may occur or whether additional transportation improvements may be made, this condition of approval would require additional TPR-level transportation improvements at such time as a resort is developed. We note that SB 1031 (2010) imposes such a requirement. A future application to permit a destination resort within these parcels will be required to include a traffic study that analyzes the impacts of the specific proposal and its planned density on affected transportation facilities. As a destination resort is a conditional use within the F2 Kittelson & Associates, Inc. Bend, Oregon • Destination Resort Mapping TPR Compliance Project #: 11844.0 June 22, 2011 Page 8 zoning per Deschutes County Code Section 18.40.030, this process will allow the destination resort overlay mapping to be implemented while specific transportation details are addressed at the time of master plan application. This process will require that the applicant bear the burden of proof and costs associated with mitigation for their specific proposaL Further, it will allow the planning of supporting transportation system infrastructure at a time when specific information about the location, proposed vehicular access, and resort size are known. Please call us at (541) 312-8300 if you have any questions. Sincerely, KITTELSON & ASSOCIATES, INC. 4' 13.~~n............ (---~~,----{~~~--~Bessman, PE, PTOE J ia Kuhn, PE nior Engineer rincipal Engineer Attachments: 1) 2004 Caldera Resort Transportation Impact Analysis Kittelson & Associates, Inc. Bend, Oregon EXHIBIT B Z005 Deyelopment Reyjew GyideUnes Whichever is Greater Whichever is Greater Plan Year of Planning Year of Planning Horizon Amendments Horizon for for Transportation and Zone Transportation System System Plan or 15 Changes Plan or 15 Years, Years, Whichever is Whichever is Greater1 Greater1 1This is policy: see OHP Action 1F.2 3.3.05 Components of Traffic Impact Studies The APM should be consulted for guidance on technical procedures that are common to planning and project analysis as well as analysis for a TIS. The general outline of a TIS document will include most or all of the following elements: 1. Executive Summary 2. Introduction 3. Existing Area Conditions a. Traffic Volumes -Year of Opening without the Development b. Traffic Operations -Year of Opening without the Development c. Roadway characteristics 4. Site Trip Generation, Distribution and Assignment a. Traffic Volumes -Year of Opening with the Development b. Traffic Operations -Year of Opening with the Development c. Traffic Volumes -Future Year without the Development d. Traffic Operations -Future Year without the Development e. Traffic Volumes -Future Year with the Development f. Traffic Operations -Future Year with the Development 5. Technical Analysis a. Capacity Analysis b. Peak Hour Factors and Design Hour Factor c. Signalized Intersections d. Unsignalized Intersections e. Roundabouts f. Capacity Analysis Documentation Requirements g. Queue Length Analysis h. Intersection Sight Distance i. Right/Left Turn Lane Warrants j. Transportation Demand Management k. Turning Conflict Analysis I. Access Management 6. Mitigation Alternatives 7. Conclusions and Recommendations 8. Appendices including all data sheets 861Page Traffic Impact Analysis Proposed Deschutes County Resort Deschutes County, Oregon December 2004 EXHIBIT_...I:I__ Traffic Impact Analysis Proposed Deschutes County Resort Deschutes Oounty, Oregon Prepared For: Sunriver Resort LP P.O. Box 3589 Sunriver, OR 97707 (541) 593-4682 Prepared By: Kittelson & Associates, Inc. 610 SW Alder, Suite 700 Portland, OR 97205 (503) 228-5230 Project Manager: Julia Kuhn, P.E. Project No. 6717 December 2004 Decemb9r 2004 Proposed Deschutes County Resort Table of Contents Section 1 Section 2 Section 3 Section 4 Section 5 Section 6 Appendix A AppendixB Append1xC AppendixD Table of Contents Table of Contents .................. " .. """.... " ... ~ ..".... " ........11 "' ........................................... i .................................... Executive Summary ................................................................................................ 5 Introduction ............................................................................................................. 8 Existing Conditions ............................................................................................... 11 Traffic Impact Analysis ......................................................................................... 17 Conclusions and Recommendations ...................................................................... 26 Traffic Count Data 2004 Existing Conditions Level-of-Service Worksheets Year 2020 Background Traffic Level-of-Service Worksheets Year 2020 Total Traffic Level-of-Service Worksheets I I i I I i ! i ! f Kittelson & Associates, Inc. l December 2004 Proposed Deschutes County Resort Table of Contents List of Figures Figure 1 Site Vicinity Map .............................................................................................................. 9 Figure 2 Existing Lane Configurations and Traffic Control Devices ............................................ 12 Figure 3 2004 Existing Traffic Conditions, Weekday PM Peak Hour .......................................... 14 Figure 4 Year 2020 Background Traffic Volumes and LOS .......................................................... 19 Figure S Estimated Trip Distribution ............................................................................................. 23 Figure 6 2020 Site-Generated Traffic and Total Traffic Conditions, Weekday PM Peak Hour ...................................~ ................................................................... ; ......... 24 Kittelson & Associates, Inc. Ii December2004 Proposed Deschutes County Resort Table of Contents List of Tables Table 1 Existing Transportation Facil1ties 3Ild Road\vay Designations .............. u •• ~ .........~o.H.,....uH •• l1 Table 2 Intersection Crash Rate Summary (1999-2003) .................................................................. 15 Table 3 Estimated Trip Generation .................................................................................................. 20 Kittelson & Associates, Inc. I l I Section 1 Executive Summary t I I i I , I I I I I t Proposed Desohutes County Resort December 2004 i I Executive Summary Sunriver Resort LP is proposing to develop a destination resort to the south of Sunriver and east of Crosswater Resort in Deschutes County, Oregon. The proposed resort may include up to 500 residential units, a 9-hole golf course, an approximately 5,000 square foot restaurant, and a variety of recreational and retail uses that will only be primarily open to resort owners and guests. Primary access to the resort will be provided via South Century Drive to the south of the Spring River Road intersection. Secondary access to the resort will be provided into the Sunriver Business Park near the recycling station. A summary of the needed intersection improvements is provided below. • S Century DrivelUS 97: this intersection will be reconstructed as a diamond interchange. According to the Oregon Department of Transportation (ODOT) Statewide Transportation Improvement Program (STIP) and the interchange Memorandum of Understanding, this improvement is funded and scheduled to begin in 2005. • Abbot DrivelS Century Drive: this intersection needs to be constructed as a single lane roundabout within the next 1 - 2 years. The roundabout should be designed to allow the flexibility of adding a westbound slip lane in the future. This slip lane is not necessary to accommodate buildout of the planned resort but is necessary to accommodate the year 2027 traffic volume projections developed by ODOT. • Spring River Road/S Century Drive: a northbound left-turn lane is needed at this intersection to facilitate buildout of the resort. This improvement should be made prior to 75 percent buildout of the resort (estimated at year 2016). Over the longer term (beyond buildout of the proposed resort), the intersection will warrant the installation of a roundabout in accordance with year 2027 traffic volume projections developed by ODOT. No additional intersection mitigation measures are anticipated as part of the resort development. Over the long-term, S Century Drive will operate acceptably with the Venture Lane traffic signal and roundabouts constructed at the Spring River and Abbot Drive intersections. This configuration is consistent with guidelines and practices contained in the Federal Highway Administration (FHWA)'s Roundabouts: An Informational Guide. In addition to the intersection improvements at Spring River Road and Abbot Drive, the following measures are recommended to facilitate buildout of the proposed resort: • A southbound left-turn lane on S Century Drive should be provided at the resort access. • All minor street approaches intersecting with the principle roadways in the resort should be stop sign controlled. • Advisory speed signs of 25 miles per hour should be posted alongside the principle on-site streets, as per a residential neighborhood. • A comprehensive bicycle and pedestrian pathway system should be developed as part of the resort. ! I Executive Summary I 5 ! g;KITTELSON & ASSOCIATES, INC. ~~ANSPORTATION PI.ANNINGJT!'lAFFIC ENGINEERII I Section 2 Introduction I I ! f I I I ! i ! Proposed Deschutes County Resort December2004 Introduction PROJECT DESCRIPTION Sunriver Resort LP is proposing to build a destination resort in Deschutes County. The resort will include a mixture of permanent and secondary homes, a golf course, a restaurant, and a variety of recreationaVretail amenities. Figure 1 provides a map of the site vicinity. SCOPE OF THE REPORT This report outlines the transportation-related impacts associated with the development of the proposed resort. The affected study area was identified through a review of the local transportation system and per direction provided by the Oregon Department of Transportation (ODOT) and Deschutes County staff. Per the jurisdictions' staff, the study includes an analysis of year 2004 and projected year 2020 traffic operations at the following intersections: • Abbot DrivelS Century Drive • Venture Lane/S Century Drive • Spring River RoadlS Century Drive • Vandervert RoadlS Century Drive I • US 97/S Century Drive • Future Resort access pointlS Century Drive This report addresses the following transportation issues: • Year 2004 existing transportation system conditions within the site vicinity for the 30th highest hour; • Planned developments and transportation improvements in the study area; • Forecast year 2020 background traffic conditions; • Trip generation and distribution estimates for the proposed development; and • Forecast year 2020 total traffic conditions with full build-out of the resort. In accordance with Deschutes County standards, this report analyzes transportation conditions anticipated at buildout of the proposed resort development (year 2020). As part of the US 97/S Century Drive interchange construction project, ODOT has developed year 2027 traffic volumes for the study intersections. Two sets of projections were prepared and both include buildout of the subject resort property. One projection assumes that the adjacent Forest Service lands will remain undeveloped; the other assumes a land transaction will occur that would enable a future resort development on the Forest Service lands. The second scenario would require land use approvals from Deschutes County. An analysis is presented in this traffic impact study to demonstrate that the mitigation measures proposed as part of resort development are consistent with and supportive of the longer term needs of S Century Drive. Introduction I 7~KITTELSON & ASSOCIATES, INC. ~TRANSPORTATION PLANNINGITRAFI'IC ENGINEER" Proj~D":I~d Deschutes County Resort December 2004 a (NO SCALE) SPRING RIVER RD a:. o ~ ~ w o CI) /' /' DESCHUTES COUNTY /' /' SITE VICINITY MAP DESCHUTES COUNTY, OREGON m KITTELSON & ASSOCIATES, INC. ~TI\AHSPORTATlON PIAANING /TRAFFIC ENeiNEERING .' Section 3 Existing Conditions 1 1 I I i I ) Proposed Deschutes County Resort December2004 Existing Conditions The existing conditions analysis identifies site conditions and the current operational and geometric characteristics of roadways within the study area. The purpose of this section is to set the stage for a basis of comparison to future conditions. The site and vicinity of the proposed Deschutes County resort were visited and inventoried in September 2004. At that time, infonnation was collected regarding existing traffic operations and transportation facilities in the study area. SITE CONDITIONS AND ADJACENT LAND USES The proposed site is currently vacant and has destination resort overlay zoning. as stipulated by the Deschutes County Destination Resort Ordinance. TRANSPORTATION FACILITIES Roadway Facilities As indicated in Figure 1, the site is provided with regional access via US 97. Access to the Mount Bachelor recreational area is provided via Spring River Road. Within the direct vicinity of the site, access to the resort wil1 be provided via S Century Drive. Table 1 provides a summary of the facilities included in this analysis and Figure 2 identifies the existing lane configurations and traffic control devices at the study intersections. Table 1 Existing Transportation Faollities and Roadway Designations ! Roadway Classification Cross Section Speed Limit Side walks Bloycle Lanes On-S Parking US 97 PrIncipal Arterial 2-3 lanes 55 No No No S Century DrIve Rural Collector 2-3 lanes 45-55 Path No No Abbot Drive Local Street 2 lanes 25 Path No No Spring River Road Rural Collector 2 lanes 45 No No No Venture Lane LocslStreet 2 lanes 20 Path No No Vandervert Road Rural Collector 2 lanes NP No No No NP =not posted Existing Conditions I 10 ~KITTELSON & ASSOCIATES. INC. ~TNAN5FOATAT10N FLANN1NGITFlAFFIC ENG1Nee~1I -- tIJ Proposed Deschutes Courrty Resort December 2004 ~ ~ ~ B (NO SCALE) SPRING RIVER RD !\. tIJ tl" :.. -STOP SIGN EXISTING LANE CONFIGURATION -TRAFFIC SIGNAL AND TRAFFIC CONTROL DEVICES DESCHUTES COUNTY OREGON ~KITTELSON & ASSOCIATES, INC. ~TRANSF'ORTATION piAN_a I TRAFFIC ENGINEERING I Proposecl Deschutes County Resort December2004 Pedestrian and Bicycle Facilities The Sunriver community has an extensive system of trails for pedestrians and bicyclists. This system provides convenient access between residential, commercial and recreational areas. As a result, Significant pedestrian and bicycie travei occurs throughout the year. The new resort is also planned to include a comprehensive system of bicycle and pedestrian trails. Transit Facilities Currently, there is no regularly scheduled public transit service within the study area. Commensurate with the Sunriver Resort, on-demand shuttle' service to major destinations in the area, such as the airport, may be provided in the future. The trip generation estimates included in this report do not include any reduction for this type of service. TRAFFIC VOLUMES AND PEAK HOUR OPERATIONS As part of the environmental work recently completed for the US 97/S Century Drive interchange, ODOT measured year 2002 weekday pm peak hour (i.e., 30th highest hour) volumes at each of the study intersections (US 97 at South Century Drive, ODOT Transportation Planning Analysis Unit (TPAU), October 2003). To ensure consistency with this study, these volumes were factored by three percent per year to reflect year 2004 volumes for analysis for the Deschutes County resort. Figure 3 shows the resultant weekday evening peak hour traffic volumes at the study intersections. Appendix "A" contains the 3dh Highest Hour Volumes from the ODOT study. Current Levels of Service All level-of-service analyses described in this report were performed in accordance with the procedures stated in the 2000 Highway Capacity Manual. Figure 3 summarizes the level of service results for the study intersections during the 30th highest hour. As shown in the figure, the study intersections are currently operating acceptab1y, with the exception of the US 97/S Century Drive intersection. In addition, the Abbott DrivelS Century Drive intersection is operating close to capacity today. The construction of a single lane roundabout at this location will be needed within the next two years. Appendix "B" includes the year 2004 existing conditions level-oj-service worksheets. Existing Conditions I 12 ~KITTELSON & ASSOCIATES, INC. ~TIlANSPORTATION PLANNING/T~AFFIC ENGINeeR" a (!) it ~ ~ .s- O:: ~ .~ .., e ~ ~ ~ ;;; u ~ PrDl'DSe!d Deschutes Resort December 2004 0"'U""'" ..,," ¥'+~ 195 ..Jf CM=EBTL '-5 lOS=!' <5...... 091->50 +-<5 65~ V/C=>1.0 r<S (NO SCALE) CM=SBlT lOS=!' Oel.>5O v/C=O.8IJ SPRING RIVER RD lOS=B 081=16.9 VIC=O.40 CM~NB lOS-B Oel=12.1 V/C=0.26 " I' g :il ~ ~~ +~ CM"WB lOS.. B Oela13.5 V/C-O.30 tl' '-20 CM =CRITICAL MOVEMENT (UNSIGNALIZED) LOS =INTERSECTION LEVEL OF SERVICE (SIGNALlZED)/CRITICAL MOVEMENT LEVEL OF SERVICE (UN SIGNALIZED) Del =INTERSECTION AVERAGE CONTROL DELAY (SIGNALlZED)/CRITICAL MOVEMENT CONTROL 2004 EXISTING TRAFFIC CONDITIONS DELAY (UN SIGNALIZED) WEEKDAY PM PEAK HOUR VIC =CRITICAL VOLUME·TO·CAPACITY RAnO DESCHUTES COUNTY, OREGON m KIlTELSON & ASSOCIATES, INC. ~TRANSPORTATION PLANNING I TRAFFIC ENGINEERING I 1 Proposed Deschutes County Resort December2004 1 Traffic Safety I I The crash histories of the respective study intersections were reviewed in an effort to identify potential intersection safety issues. Crash records were obtained from the Oregon Department of Transportation for the five-year period from January 1, 1999 through December 31, 2003. ODOT did not have any records available for the period after December 31,2003. A summary of the crash history at the study intersections is summarized in Table 2. Table 2 Intersection Crash Rate Summary (1999-20Q3) l Interseotlon flot Crashesl ! Crashes Year 'rEV' MEvt Crashesl MEV Abbot DrivelS Century Drive No Crashes Reported In ODOT's database Venture LanelS Century Drive 2 < 1 10,970 20.0 0.10 Spring Alver Aoad/S Century Drive 3 1 7,950 14.5 0.21 Vandervert Aoad/S Century Drive No Crashes Reported in ODOT's database US 97IS Century Drive 15 3 20,110 36.7 0.41 1. TEV -Total Entenng VehIcles (per day) 2. MEV -Million Entering Vehicles (per intersection over five years) As shown in Table 2, all of the intersections experienced a low frequency of crashes (relative to other locations throughout the state) during the five-year period that was analyzed. Over time, a number of 1 " crashes have occurred at the US 97/S Century Drive intersection during inclement weather. This intersection is scheduled for reconstruction as a grade-separated interchange to mitigate existing safety and operational deficiencies. No additional safety-related mitigation measures are needed at the study intersecti ons. Existing Conditions I 14~KITTELSON & ASSOOIATES, INO. ~TRANSPORTATION PLANNINGITRAFFIC ENGINI!ERII Section 4 Traffic Impact Analysis Proposed Deschutes County Resort December 2004 Traffic Impact Analysis Per the Deschutes County Code, this section of the report identifies how the study area's transportation system is forecast to operate in year 2020, which is when the resort is Hkely to be fully built out and operational. Per state and county requirements, the transportation-related impacts of the proposed resort were analyzed according to the methodology outlined below. • Planned developments and transportation improvements in the site vicinity were identified and reviewed. • Background weekday p.m. peak hour traffic conditions for the year 2020 were analyzed. An annual growth rate of three percent was applied to existing traffic volumes to account for regional growth in the site vicinity. • Future evening peak hour site-generated trips were estimated for resort build-out. • A trip distribution pattern was derived through a review of existing traffic volumes, local transportation facilities, the anticipated market area of the proposed resort, and direction provided by jurisdiction staff. • Predicted site-generated traffic from the destination resort was added to the background traffic volumes to evaluate total traffic operations at the study intersections during the weekday p.m. peak hour. 2020 BACKGROUND TRAFFIC CONDITIONS The resort will likely take 10 -15 years to be completely built and operational. For this reason, year 2020 conditions were analyzed to comply with Deschutes County Code. A background traffic analysis was conducted to evaluate how the affected transportation system is anticipated to operate in year 2020 without buildout of the resort. This background analysis accounts for regional growth in the study area as well as previously approved, but not yet constructed developments. To account for regional growth in the site vicinity. a three percent annual growth rate was applied to the existing traffic volumes at the study area intersections. This growth rate has been used in other Deschutes County land use applications and was approved by jurisdiction staff. The US 97/S Century Drive intersection will be reconstructed as a grade-separated diamond interchange. The construction of this project is scheduled for year 2005, according to the ODOT Statewide Transportation Improvement Program (STIP). This construction will commence prior to any development at the resort. For this reason, the improvement was included in the year 2020 analyses. According to the STIP, there is a portion of the construction funding that will be obtained from the County, the Federal Forest Highway Program, and existing private developments in the area, such as Sunriver. The Memorandum of Understanding (MOU) to allocate funding responsibilities for the interchange improvement is currently being finalized between the affected parties. According to discussions with County and ODOT staff and the MOU, construction will begin in 2005 as specified in the STIP. This construction is scheduled prior to the construction of the resort. For this reason, the improvements will be in-place to adequately support buildout of the resort. Tramc Impact Analysis I 16 KITTELSON & ASSOCIATES, INC. TRANSPORTATION PLANNINGfTRAFFIC eNGINEER/! Proposect Deschutes County Resort December 2004 ------------~------------------------------------- Assuming a three percent annual growth rate and the construction of the S Century DrivelUS 97 interchange, Figure 4 illustrates the forecast year 2020 background traffic volumes and resultant level of-service. Appendix "e" contains the year 2020 background level-oJ-service worksheets. As shown in Figure 4, all of the intersections are anticipated to operate acceptably in year 2020 without development of the resort, with the exception of Abbot DrivelS Century Drive. To restore operations at this location, a single lane roundabout should be constructed at this location. PROPOSED DEVELOPMENT PLAN The key elements of the resort development are still being finalized and will include a variety of housing, lodging, open space amenities, recreational amenities, and an eating establishment. To ensure a conservative analysis, the resort is assumed to include 500 residential units, a 9-hole golf course and an extensive trail system, a 5,000 square foot restaurant, and a recreational center. The restaurant will likely be open to the public. The golf course may be limited and the recreational and retail amenities will only be open to resort visitors and guests and potentially to guests of the Sunriver Resort (only the Resort not the overall Sunriver community). Given the private nature of these amenities, the trip generation estimates assume that 80 percent of the recreational center trips will be "internal" to the resort. Primary access to the resort will be provided at a location on S Century Drive opposite the entrance to Cross water. Secondary access to the resort will be provided via the Sunriver Business Park. TRIP GENERATION Trip generation estimates for the proposed resort were derived from empirical observations at other similar facilities throughout the United States. These observations are summarized in the standard reference manual, Trip Generation, 7 th Edition, published by the Institute of Transportation Engineers, 2003. Table 3 summarizes the proposed land uses and daily and weekday p.m. peak hour trip generation estimates for the proposed resort. For the purposes of this analysis, the following assumptions were made about the resort: • The 75 cottages with lock-off rooms will total 150 "recreational homes" • The 350 single family homes will be modeled as 42 percent permanent residents and 58 percent secondary homes. This allocation is based on current estimates of home ownership in Sunriver. This equates to 147 single family homes and 203 recreational homes. • The recreational/retail activities are only open to resort members and guests (likely to include Sunriver Resort guests, owners and their guests, and members) and therefore are assumed to include 80 percent "internal" trips. It was assumed that these activities would constitute up to 15,000 square feet of building space. The HealthlFitness Club category within the ITE Manual was used to approximately the trips associated with this use. This category accounts for facilities with fitness facilities, pools, racquetball and tennis courts, retail, recreational classes, etc. • It is likely that the golf course will also only be open to resort members and guests (as described above) although no internalization rate was applied to the golf course uses at this time. Table 3 shows the resultant trip generation. Traffic Impact Analysis I 17~KITTELSON &. ASSOCIATES, INC. ~TR"NSPO~TATION PLANNINGITAAFFIC ENGINEEAJI PI'OiOOSj~d Deschutes Resort December 2004 (;M>oS8HT Los-B 0eIa13.3 VIC..o,56 B (NO SCALE) -+-75r5 LOs..C 081-20.6 WC-O.62 S CENTURY DR' CM=SBLT LOs..F 0eJ->50 Wc,.,.1.0 SPRING RIVER RD CMaNB LO&CC DeI-2206 VIC..o.62 ~ I' !il ~ In re~ +'" CM-WB LOS..o 08i.0;27.3 VIC..O.65 tl' fIn",..,CDeM =CRITICAL MOVEMENT (UNSIGNALlZED) IN LOS" INTERSECTION LEVEL OF SERVICE (SIGNAUZEDVCRITICAL MOVEMENT LEVEL OF SERVICE (UNSIGNALIZED) Del = INTERSECTION AVERAGE CONTROL DELAY (SIGNALIZED)/CRrnCAL MOVEMENT CONTROL YEAR 2020 BACKGROUND TRAFFICDELAY IUNSlGNALlZED) VOLUMES AND LOS V1C= CRrnCAL VOLUME·TO-CAPACITY RATIO DESCHUTES COUNTY, OREGON m I(IlTELSON & ASSOCIATES, INC. ~TRANSPORTATION PlANNING I TAAFl'1C ENGINEERING ~ t!J Li: ~ , ~ 1ii ~ t. §. :t Proposed Deschutes County Resott December2004 Table 3 Estimated Trip Generation Land Use Size Weekday PM Peak Hour Total In Out Single Family Homes 147 homes 150 95 55 Recreational Homes 353 homes 90 35 55 Golf Course 9 holes 25 10 15 Ouallty Restaurant 5,000 sq ft 35 25 10 Recreational Facll!ty (less 80 pem;ent Internal trips) 15,000 sq ft 60 (50) 30 (25) 30 (25) Totsl Trips 310 170 140 TRIP DISTRIBUTION The distribution of site-generated trips onto the roadway system within the study area was estimated based on the existing traffic patterns at study intersections, direction provided by jurisdiction staff, and the location of major trip destinations within the area, such as Mount Bachelor (via Spring River Road), the Sunriver Business Park and Village, and the Bend area. The estimated trip distribution is illustrated in Figure 5. Based on the estimated trip distribution pattern, Figure 6 shows the anticipated site generated traffic at each of the study area intersections. 2020 TOTAL TRAFFIC CONDITIONS The site-generated traffic volumes shown in Figure 6 were added to the background volumes shown in Figure 4 to estimate year 2020 total traffic volumes during the weekday p.m. peak hour. The resultant volumes and intersection levels-of-service are shown in Figure 6. Appendix "E" contains the 2020 total traffic level-of-service worksheets. As shown in Figure 6, the following intersection improvements are needed to facilitate buildout of the resort: • S Century Drive/Abbot: a roundabout should be constructed at this intersection. This improvement is needed within the next two years and should include provisions for a future westbound right-turn slip lane. Without the slip lane, the volume-to-capacity ratio is estimated at 0.77; with the slip lane, it is estimated at 0.69. ! . i As shown in Figure 6, the proposed resort represents 8.5 percent of the total entering vehicles at this location in year 2020. • S Century Drive/Spring River Road: a northbound left-turn lane should be constructed at this location as an interim improvement. This improvement is estimated to be needed in 2016 (or at 75 percent buildout of the site). In year 2020, this improvement would result in a volurne to-capacity ratio of 0.79 for the northbound left-tum movement. All roundabout analyses described in this report were performed using the Federal Highway Administration (FHWA) methodology rather than the analyses methodologies contained in the SIDRA Traffic Impact Analysis I 19gjKITTELSON & ASSOCIATES, INC. ~"TR....NSPORT....TlON PLANNINGlTR....FFIC ENGINEER II Proposed Deschutes County Rescrt December 2004 software. The FHW A procedure yields more conservative results and recent national research has found that it more accurately reflects conditions being observed at recently constructed roundabouts in the U.S. LONG-TERM OPERATIONS An additional analysis was conducted to confirm that the Abbot Drive, Spring River Road and Venture Lane intersections operate acceptably through the year 2027. This analysis is not required according to Deschutes County requirements but was completed to ensure that the improvements identified in this report are consistent with the longer term needs of the facilities. To complete this analysis, year 2027 conditions (per the volumes contained in the study conducted by ODOT) were analyzed assuming the construction of roundabouts at Spring River Road and Abbot· Drive. These conditions assume an aggressive buildout scenario of south Deschutes County and include a 9.1 percent annual growth rate at the Spring River Road/S Century Drive intersection and 4.7 percent growth rate at the Abbot DrivelS Century Drive intersection. Volumes projections for two 2027 scenarios were prepared by ODOT staff. The first assumed that the Forest Service lands remain undeveloped but assume an aggressive buildout of south Deschutes County. The second scenario assumes that a "land swap" will occur that will enable resort development on the Forest Service lands. This second scenario would require land use approvals from Deschutes County. Both ODOT scenarios assume that the proposed Deschutes County resort (Le., Harper) is developed at a higher density than is proposed as part of this land use application. The results of the 2027 analysis are summarized below. • Spring River RoadiS Century Drive: a single-lane roundabout is forecast to operate at a volume-to-capacity ratio of 0.95 if the land-swap area is not included and overcapacity if the land-swap is included. For this reason, it would be advisable to construct the roundabout in a single lane configuration with the flexibility to convert to a double-lane roundabout when needed. With a double-lane roundabout, the intersection is forecast to operate at a volume-to capacity ratio of 0.68 with the land-swap and 0.58 without the land-swap. The construction of a northbound left-turn lane, as proposed by the resort developers, is an appropriate interim solution for this intersection prior to construction of a roundabout. As discussed previously, a roundabout is not needed to accommodate resort buildout. • Abbot DrivelS Century Drive: a single lane roundabout with a westbound right-turn slip lane is forecast to operate at a volume-to-capacity ratio of 0.88 if the land-swap area is included and 0.78 if the land-swap area is not included. For this reason, it is recommended that Sunriver Resort LP construct a single lane roundabout with the provisions to add the westbound right-turn slip lane in the future. • Venture Lane/S Century Drive: the existing signalized intersection will operate at a volume to-capacity ratio of 0.77 with the land swap and 0.72 without the land swap. Therefore, no improvements are required at this location over the longer term. • S Century Drive will operate acceptably with the Venture Lane traffic signal and roundabouts constructed at the Spring River and Abbot Drive intersections. This Traffic ImpactAnalysis I 20~KITTEl.SON & ASSOCIATES, INC. ~TRANSPOI'lTATION PLANNtNGrrRAFFtC ENGINEER" 1 Proposed Dsschutes County Resorl December 2004 configuration is consistent with guidelines and practices contained in FHW A's Roundabouts: An Informational Guide. '. As discussed above, all of the intersections will function acceptably through the year 2027. For this reason, no additional mitigation measures are needed to accommodate long-term travel patterns within the vicinity of the site. Specifically, the "dog-leg" option investigated by ODOT is not necessary to meet future capacity needs of the area. Under this option, a new roadway would be extended from Spring River Road from its intersection with S Century Drive, through the property, over the railroad tracks.to a new intersection on S Century Drive to the west of the US 97 interchange. This roadway would travel across the subject property and would be constructed partially on rural lands. This dog-leg option was originally included in the US 97/S Century Drive Environmental Assessment (EA) but has been dropped from consideration within the EA. This potential roadway is also not included in the County's Transportation System Plan and would require a goal exception by the County and the state given the need to traverse rural lands. The burden of proof required to support the goal exception would need to demonstrate that no feasible options are available to constructing a new roadway on rural lands. As described above, with the identified improvements, the intersections along S Century Drive are forecast to operate acceptably without the dog-leg and therefore it would be very difficult to demonstrate that a goal exception is needed. ACCESS OPERATIONS For safety reasons, it is recommended that a southbound left-tum lane be constructed on S Century Drive at the site access. In addition, the site access roadway should include a westbound left-tum lane and a right-tum lane at the intersection with S Century Drive. As shown in Figure 6, this configuration will ensure adequate access operations for the resort. INTERNAL VEHICULAR, PEDESTRIAN AND BICYCLE CIRCULATION It is recommended that all of the roadways within the proposed resort be constructed to meet applicable Deschutes County minimum standards for private streets. In addition, the following recommendations should be implemented, to ensure that appropriate operations and safety are maintained within the site. ~ • All minor street approaches intersecting with the principle roadways in the resort should be stop sign controlled. • Advisory speed signs of 25 miles per hour should be posted along side the principle streets, as per a residential neighborhood. • A comprehensive bicycle and pedestrian pathway system should be developed as part of the resort. SIGHT DISTANCE An analysis of sight distance at the proposed accesses is addressed within the Burden of Proof for the Land Use Application, as prepared by W &H Pacific. Trafflo Impaot Analysis I 21 ~KITTELSON & ASSOCIATES, INC. ~TRANSPORTATION PLJ\N"IINGfTRAFFIC ENGINeeR II i Proli:lOSEW Deschutes Resort December 2004 a {NO SCALE) SPRING RIVER AD ~~b.% 0Il 0,.. S CeNTURY DR ESTIMATED TRIP DISTRIBUTION PATTERN DESCHUTES COUNTY, OREGON ~KmELSON & ASSOCIATES,INC. ~TRANSPORTATiON PlAHNING f TRAFfIC ENGINEEflING r I • f f " I i I !, f i ADDED TRAFFIC eM-we lOS"O Del=28.T VIC=O.fi7 CM., CRITICAL MOV~MENT (UNSIGNALIZEO) LOS ., INTERSECTION LEVEL OF SERVICE Del =INTERSECTION AVERAGE CONTROL DELAY DELAY (UNSIGNAUZED) VIC = December 2004 B (NO SCALE). . SPRING RIVER RD (SIGNALlZEO)ICRITICAL MOVEMENT LEVEL OF SERVICE (UNSIGNAUZED) (SIGNAUZEO)ICRITICAL MOVEMENT CONTROL SITE~GENERATED AND TOTAL TRAFFIC CONDITIONS, YEAR 2020 WEEKDAY PM PEAK HOUR CRITICAL VOLUME·TOCAPACITY RATIO DESCHUTES COUNTY OREGON CM"SBlT LOs-F 0e1->50 V/c->1.0 ~KmeLSON & ASSOCIATES, INC.~TRANSPORTATlON PLANNlIIG {TRAFFIC ENGINEERING I I " .' " " Section 5 Conclusions and Recommendations ---------------- Proposed Deschutes County Resort December2004 Conclusions and Recommendations Based on the results of this traffic impact analysis, the proposed resort can be developed while maintaining acceptable levels of service at the affected intersections. The primary findings and recommendations included in this study are summarized below. FINDINGS • Under existing conditions, all of the study area intersections operate acceptably, with the exception of the S Century Drive/US 97 intersection. Construction of a grade-separated interchange on US 97 will begin in year 2005. This improvement will enable the interchange to function acceptably throughout the planning horizon. • The Abbot DrivelS Century Drive intersection will require improvements in the short-term, even if the resort is not developed. A single lane roundabout should be constructed at this location within the next two years. Further, it is recommended that the roundabout be designed to allow for a westbound right-turn slip lane in the future. The roundabout will enable the intersection to function acceptably past the year 2027. • A northbound left-turn lane needs to be constructed at the Spring RiverlS Century Drive intersection prior to 75 percent buildout of the resort (estimated at year 2016). Over the longer term (beyond year 2020), a roundabout should be constructed at this intersection. • S Century Drive will operate acceptably with the Venture Lane traffic signal and roundabouts constructed at the Spring River and Abbot Drive intersections. This configuration is consistent with guidelines and practices contained in the FHWA Roundabout manual. RECOMMENDATIONS • A single lane roundabout should be constructed at the Abbot Dri ve/S Century Drive intersection in the next two years. • A northbound left-turn lane should be constructed at the Spring River RoadlS Century Drive intersection prior to 75 percent buildout of the resort. • A southbound left-turn lane should be constructed on S Century Drive at the proposed resort access upon resort buildout. • All minor street approaches intersecting with the principle roadways in the resort should be stop sign controlled. • Advisory speed signs of 25 miles per hour should be posted along side the principle streets, as per a residential neighborhood. • A comprehensive bicycle and pedestrian pathway system should be developed as part of the resort. Conclusions and Recommendations I 25 ~KITTELSON & ASSOCIATES, INC. ~TRANSPORTATOON PI.ANNINGfTAAFFIC ENGINEERfi \ Appendix A TraffIc Count Data II - I III . ~-lIZ \ • b..NO SCALE. 'J \... f$.. ~ NOTE: The counts that were tak.en In August fall in the peak month of the year, so no seasonal adjustments are needed. System Peak Hour is between 5:00-6:00 PM OREGON DEPARTMENT OF TRANSPORTATION TPA:V TllAHSPOlITATlOII fUHH1i'IJ: oUfALYSlSll/IIT US 97 AT SOUTH CENTURY DRIVE NOBUILI lS.C....'Y... FIGlrRE,nc, II•..,.....'"T.'"""""'I 2002 Balanced 30tl: Highest Hour Volumes ,."" ,..~ II·....... '"~...-, Ai A2 NO SCALE ~180 980 · l:iQI)t Tbe proposed USF5-Coulfty Land-Swap OD the west side or us 97, bordered by South Century Drive and Vandevert Road will add/drop traffic between Spring River Road and Vandevert Road. The volumes between tbese intersections on South Centllry Drive will not balance as a result. OREGON DEPARTMENT OF TRANSPORTATION US 97 AT SOUTH CENTURY DRIVE NOBUILE I...."<-,, n....-'" '·~""""'II·F1GURE A3 2027 Balanced 30th Highest Hour Volumes· IDATE: IMllI03 Ill!.t'I.WtdIlY'~~UYI.m'J. I A4 ! i i I f I ~ NOSCALB WITHOUT LANDSWAP AREA OREGON DEPARTMENT OFTRANSPORTAll0N '!PAU US 97 AT SOUTH CENTURY DRIVE 2027 Balanced 30th Highest Hour Volumes 2 ( US97 AT SOUTH( CENTURY DRIVE ( / I BEND, OREGON DESCHUTES COUNTY The Dalles-California Highway No.4 Mile Point 151.00 to 156.00 OCTOBER 2003 ---------_._--.--_.. _-' Transportation Planning Analysis Unit Transportation Development Branch, Salem, Oregon US97 AT SOUTH CENTURY DRIVE TRAFFIC ANALYSIS NARRATIVE Oregon Department of Transportation Transportation Planning Analysis Unit 555 13 th Street NE, Suite 2 Salem, Oregon 97301-4178 TA8LE OF C0N1JENTS EXECUTIVE SUMMARY .......................................................................... 8 BACKGROUND INFORMATION ............................,........................." ........ 9 'NO-BUILD ANALYSIS ............................................................................. 13 Crash Analysis ................................................................................ 13 30th Highest Hour Volume Development .................................................. 13 No-build Analysis Results ................................................................. 13 Queue Analysis .............................................................................. 16 BUILD ALTERNATIVES ........................................................................ '" 18 Build Alternative Analysis Results....................................................... 20 ALTERNATNE SUMMARY ...................................................................... 25 RECOMMENDATION ........................................................................ 25 APPENDIX A .........................................................,.......... '" ...................Al No-build Lane Configurations & Design Hour Volumes APPENDIX B .......................................................................................... Bl Alternative 2b Lane Configurations & Design Hour Volumes APPENDIX C .......................................................................................... Cl Alternatives Considered But Dismissed APPENDIX D ..........................................................................................01 Traffic Development APPENDIX E .......................................................................................... El Analysis Methodology APPENDIX F .......................................................................................... FI EIS Data APPENDIX G ..........................................................................................Gl Crash Data Transportation Planning Analysis Unit October 2003 US97 at South Century Drive TABLE OF FIGURES Figure 1 Vicinity Map ........................................................................ 11 Figure 2 Study Area ............................................................................ 12 Figure 3 Build Alternative 2b .................................................................. 19 Figure A 1 No-build 2002 Balanced 30th Highest Hour Volumes .......................... A2 Figure A2 No-build 2007 Balanced 30 th Highest Hour Volumes .......... '" .............. A3 Figure A3 No-build 2027 Balanced 30th Highest Hour Volwnes ........................... A4 Figure BI Alternative-2b (Option 1) 2007 Balanced 30th Highest Hour Volumes ...... B2 Figure B2 Alternative-2b (Option I) 2027 Balanced Design Hour Volwnes ............ B3 Figure B3 Alternative-2b (Option 2) 2007 Balanced 30th Highest Hour Volwnes ...... B4 Figure B4 Alternative-2b (Option 2) 2027 Balanced Design Hour Volumes ............ B5 Figure B5 Alternative-2b (Option 3) 2007 Balanced 30th Highest Hour Volumes ..... B6 Figure B6 Alternative-2b (Option 3) 2027 Balanced Design Hour Volumes ............ 'B7 Figure C 1 Alternative 1 (Option 1) 2007 Balanced 30th Highest Hour Volumes ........ C8 Figure C2 Alternative 1 (Option I) 2027 Balanced Design Hour Volumes ............. C9 Figure C3 Alternativel (Option 2) 2007 Balanced 30th Highest Hour Volumes ........ ClO Figure C4 Alternative 1 (Option 2) 2027 Balanced Design Hour Volumes ............. CII Figure C5 Alternative I (Option 3) 2007 Balanced 30th Highest Hour Volumes ....... Cl2 Figure C6 Alternative 1 (Option 3) 2027 Balanced Design Hour Volumes ............... C13 Figure C7 Alternative-2a (Option I) 2007 Balanced 30 th Highest Hour Volumes ...... Cl7 Figure C8 Alternative-2a (Option 1) 2027 Balanced Design Hour Volumes ............. CI8 Figure C9 Alternative-2a (Option 2) 2007 Balanced 30th Highest Hour Volumes ....... C19 • Transportation Planning Analysis Unit October 2003 US97 at South Century Drive ---------------------------------------------- TABI.iE OF FIGURES Figure CIO Alternative-2a (Option 2) 2027 Balanced Design Hour Volumes ............. C20 Figure Cl1 Alternative-2a (Option 3) 2007 Balanced 30th Highest Hour Volumes ....... C21 Figure Cl2 Alternative-2a (Option 3) 2027 Balanced Design Hour Volumes ............. C22 Figure C 13 Alternative-2c & 3 (Option 1) 2007 Balanced 30th Highest Hour Volumes ............................................................. C26 Figure Cl4 Altemative-2c & 3 (Option 1) 2027 Balanced Design"Hour Volumes ...............................................................C27 Figure CIS Alternative-2c & 3 (Option 2) 2007 Balanced 30th Highest Hour Volumes ............................................................. C28 Figure Cl6 Alternative-2c & 3 (Option 2) 2027 Balanced Design Hour Volumes ...............................................................C29 Figure C17 Alternative 4 (Option 1) 2007 Balanced 30th Highest Hour Volumes ........ C3S Figure CI8 Alternative 4 (Option 1) 2027 Balanced Design Hour Volumes .............. C36 Figure C19 Alternative 4 (Option 2) 2007 Balanced 30\11 Highest Hour Volumes ........C3 7 Figure C20 Alternative 4 (Option 2) 2027 Balanced Design Hour Volumes .............. C38 Figure C21" Alte~ative 4 (Option 3) 2007 Balanced 30th Highest Hour Volumes ........C39 Figure C22 Alternative 4 (Option 3) 2027 Balanced Design Hour Volumes .............. C40 Figure Dl Zones Around The Study Area ............................................. D4 Figure D2 Study Area Raw Manual Counts .................................................. D7 FigureD3 Project Peak Hour (5 - 6 PM) Manual Counts ................................... D8 Figure Fl No-build E.I.S Section Numbers ..................,............. '" ............... F2 Figure F2 2007 Build E.I.S Section Numbers ...............................................,F5 Figure F3 2027 Build E.I.S Section Numbers ................................................F8 Transportation Planning Analysis Unit iii October 2003 US97 at South Century Drive TOLE OF 'FARDES Table I 1999·2001 Crash Summary ....................................................... 13 No-build Table 2 No-build Preliminary Signal Warrants Met ...................................... 14 Table 3 No-build Mainline Intersection vic Ratios............ .......................... 15 Table 4 No-build Sunriver Intersection Level Of Service ............................... 15 Table 5 No-build Mainline vic & Percent Time Spent Following (PTSF) . . .... . . . . . 15 Table 6 No-build Cottonwood Road Interchange vic........... .............. ......... . 16 Table 7 No-build Queue Length (Feet) .................................................... 16 Table 8 No-build Access Management Spacing ........................................... 17 Build Alternative Table 9 Alternative 2b Preliminary Signal Warrants .....................................20 .... ............ .. .. .. ....... .. .... ............ 21 Table 10 US 97 Interchangellntersection vic Table 12 Table 13 2027 Mainline Queue Length ......,............................................... 22 ..........................................., .. 23 ....................................................... 23 ..................................................... 24 Table 14 Build Access Management Spacing Table 15 Alternative 2b LOS and vic Table 16 Alternative 2b Queue Lengths Appendix C Table C-l Table C-2 Table C-3 Table C-4 Table c-s Table C-6 Table C-7 Alternative 1 Off-system Network 2027 South Century Drive MergelDiverge vic for One Lane In Each Direction on US 97 ..................................................... '" 22 South Century Drive MergelDiverge vic for Two Lanes Table 11 In Each Direction on US 97 ....................................................... 22 Alternatives Considered But Dismissed Alternative 1 Preliminary Signal Warrants Met .................................C3 Cottonwood Road Interchange vic........ .. .... ............ ..... .. ... ...... . . ... C3 Cottonwood Road Interchange MergelDiverge VIC for Two Lanes in Each Direction on US 97 .............................. C4 Intersection vic Ratios.. .. . .. ... . . .. ...... ...... ....... .. .. ... ..... .. .. ..... .. .. ... C4 2027 Queue Length in Feet .........................................................CS Alternative 1 Off-system Network LOS & vic..... .. .... .. .... .. . .. ...... ..... CS Queue Length in Feet ................................................................C6 Transportation Planning Analysis Unit iv October 2003 US97 at South Century Drive TABLE OF TABLES Table C-8 Alternative 2a Preliminary Signal Warrants ...................................... C14 Table C-9 Alternative 2a LOS and vic ........................................................ CI5 Table C-lO Alternative 2a Queue Length ..................~ ....................................C 16 Table C-II Alternative 2c Preliminary Signal Warrants .........,........................... C23 Table C-I2 Alternative 2c LOS and vic............. ... . .. ........ .. .. ............... .... . .... C24 Table C-l3 Alternative 2c Queue Length in Feet .............................................C24 Table C-I4 Alternative 4 Preliminary Signal Warrants ....................................... C3I Table C-t5 Cottonwood Road Interchange vic ............................................... C31 Table C-I6 Vandevert Road Ramp Tennini vic .............................................. C32 Table C-I7 Vandevert Road MergelDiverge vic For One Lane in Each Direction on US 97 ...................................... C32 Table C-18 Vandevert Road MergelDiverge vic For Two Lanes in Each Direction on US 97 ..................................... C32 Table C-I9 2027 Queue Length in Feet ..........................................,..............C32 Table C-20 Alternative 4 Off-system Network LOS & vic................................. C33 Table C-21 Alternative 4 Off-system Network 2027 I,Queue Length in Feet ....................................................." ........C34 Appendix D Tramc Development f Table 0-1 Manual Count Locations ............................................................D2 Table 0-2 Zonal Trip Generation (PM Peak Hour) .......................................... D5 I I I f f I f I I, Transportation Planning Analysis Unit v October 2003 US97 at South Century Drive EXEOUTIVE ,8tJMMARY The US 97 at South Century Drive project is in Deschutes County, about ten miles south of Bend, Oregon. The study area is bordered by Cottonwood Road on the north, Vandevert Road on the south, US 97 on the east and the Deschutes River on the west (Figures 1 & 2). South' Century Drive is the primary access to residential and recreational areas in southern Deschutes County. The purpose of the US 97 at South Century Drive project is to provide safe access to US 97 from the Sunriver area and other recreational areas in southern Deschutes County. The US 97 at South Century Drive intersection has a high crash rate, especially in the winter because of its location in a heavy snow zone. The major safety issue is with the east to north turning movement, from South Century Drive to US 97, which is difficult because of the high volumes on US 97. The limited opportunity to enter the highway from South Century Drive tempts drivers to enter US 97 even with insufficient gaps in traffic. With the anticipated growth in southern Deschutes County and increase in through traffic on US 97, intersection operation will continue to deteriorate. The existing study area roadway network has numerous capacity and safety issues that occur now or before the project design year (2027). • The intersection of South Century Drive with US 97 currently fails to meet the 1999 Oregon Highway Plan (OHP) mobility standards. • The intersection of Vandevert Road with US 97 will fail to meet the 1999 OHP mobility standards in 2007. • The current queue on Vandevert Road waiting to turn onto US 97 extends over the Burlington Northern Santa Fe railroad crossing creating a serious safety problem. • The through lanes on US 97 are over or near capacity through the study area. • The southbound Cottonwood Road interchange on-ramp is controlled by a stop sign which will exceed capacity by 2027. • By 2027, all county road' intersections in the study area will fail to meet the Deschutes County Level of Service (LOS) standard. Five interchange alternatives, including a no-build, were evaluated. Alternative 2 was selected as the preferred alternative by the Stakeholders, the Project Team, and the Steering Team Committee. Alternative 2 builds a diamond interchange at or near the existing South Century DrivelUS 97 intersection with some minor realignment of South Century Drive in Phase 1. Phase 2 of the project adds a bypass to move through traffic away from the locally congested Sunriver commercial area (Figure 3). The current project budget limits the improvements to the South Century Drive I US 97 intersection. Improvements at Cottonwood Road, Vandevert Road, US 97 through lanes, and other study area county road intersections will need to be funded as separate projects. Transportation Planning Analysis Unit October 2003 US97 at South Century Drive BACKGROUND .INFORMAT-ION The US 97 at South Century Drive project is in Deschutes County located about ten miles south of Bend, Oregon. US 97 is designated as a Statewide Highway (NHS) Freight Route and is the main north-south corridor in central Oregon. In 2000, the Oregon Transportation Commission (OTC) made the decision to designate US 97 between Madras and the California state line as an expressway, with breaks in some urban areas. Conversion to an expressway-type facility would require eventual elimination of all direct at-grade access and the development of an interchange and frontage road system. South Century Drive serves as the primary access to the Sunriver and other recreational areas in southern Deschutes County. Currently, South Century Drive experiences poor operating conditions at the intersection with US 97. With the anticipated growth of southern Deschutes County and through traffic on US 97, the operating conditions will worsen. There has been a high crash rate at this intersection because of the conflicting tum movements and insufficient gaps for left turns from South Century Drive onto US 97. The project is needed to correct the existing and future traffic safety and operational problems at the US 97 at South Century Drive intersection. The project involves construction of a solution that creates a safe environment for vehicles entering and leaving US 97 at South Century Drive, the primary access point off US 97 to Sunriver. Five alternatives, including a no-build. were considered and compared to the project goals and objectives, which are to: • Reduce congestion and safety conflicts. • Coordinate project timing and mutual goals in order to minimize cumulative traffic and environmental impacts resulting from mUltiple projects proposed within the project area. • Ensure effective use of public and private funds within budget limits. • Ensure effective emergency access and exits routes within the project area. • Minimize wildlife/vehicle collisions and adverse impacts to deer and wildlife migration within the project area. • Minimize impacts to public lands (National Forest land) and private land. • Minimize direct, adverse impacts to recreational and economic resources and improve access to these resources where possible. • Provide for needs of pedestrians and bicyclists on adjacent roadways. • Minimize adverse impacts to visual resources and to the National Monument. • Address issues pertaining to all US 97 traffic, including freight traffic. • Ensure consistency and compatibility with the Oregon Highway Plan, applicable objectives of ODOT's US 97 Highway strategy, and the Expressway Designation of US 97. • Ensure project compatibility with long-term land use plans east and west of US 97. t t• Provide positive aesthetic value. This traffic narrative includes an evaluation of the traffic related goals and objectives. The 1999 Oregon Highway Plan (OHP) volume-to-capacity (vic) ratio for a Statewide (NHS) Freight Route Highway for the existing and future No-build conditions is 0.70. The Highway Transportation Planning Analysis Unit 2 October 2003 US97 at South Century Drive I Design Manual (HDM) vIc ratio for the same highway segment is 0.60 for the build alternatives. All county roads are covered by Deschutes County's Level of Service (LOS) standard, which is LOS D for both the no-build and build conditions. Transportation Planning Analysis Unit 3 October 2003 US97 at South Century Drive NO SCALE OREGON DEPARTMENT OF TRANSPORTATION US 97 AT SOUTH CENTURY DRIVE VICINITY MAP 4 IOREGON DEPARTMENT OF TRANSPORTATION US 97 AT SOUTH CENTURY DRIVE STUDY AREA IFILE: S. C_" Dr lI,,"pand By: T. N. NGUYEN11 FIGURE I II ""riewtcl By: r. SchuyI_1 ?ATE : 10lOllO3 ,1: ~ 5 Crasb Analysis The three-year crash history (1999 -2001) shows a total of 50 crashes in this five-mile section of state highway (Table 1). With an annual average daily volume (AADT) of 15,000, the highway segment between M.P 151 and M.P 153.08 (South Century Drive) has a crash rate of 0.88 crashes per million-vehicle miles (30 crashes). This is slightly above the five-year average of comparable rates for rural, primary, non-freeway roads (0.87). The highway segment between M.P 153.09 and M.P 156 has crash rate of 0.63 crashes per million-vehicle miles (20 crashes) with a 10,000 AADT. This is below the five· year average of comparable rates for rural, primary, non-freeway roads (0.87). The crash severity has about 54% of the crashes involving property damage only. One-fifth of the total crashes are at M.P 153.08 (South Century Drive) because of vehicles turning right too fast onto South Century Drive in icy conditions. The right tum vehicles have to be separated out of the high-speed traffic stream and slowed down to an appropriate speed before approaching to the intersection to address the crash problem. Table 1. 1999-2001 Crasb Summary (Tbe Dalles-California Hwy No.4, MP 151.0-156.0) &p~!f?l1'}''''1!'if~!l!r''f.' '~r~"r ~~~";rnf"f!~1i.!j\~,:·;rif;:'~··'~~ 1're:~~~~tE1l'1'/~if~.~;~ Pi J'.M1 '·'it,·I.~""'"J"~"4t.:o..."" ,~ '''''S!CJ",,:to: ~!:'. U" ",r ~1 &&';.J~5 ,:.~" ~~,.., "*" ~a ;1-[1",.,.u~\,a.",~l"Y '"-~ :.t:.sa...;«;l'( • 1999 0 7 9 16 2000 0 9 13 22 2001 0 7 5 12 Total 0 23 27 50 30th Higbest Hour Volume Development The 30th highest hour volume was developed based on the traffic counts, the Transportation Volume Tables, ODOT's permanent recorder stations, and a cumulative analysis. The traffic counts indicated that the project peak period was between 5 - 6 PM. The traffic counts were taken when the 30th highest hour occurs, so no seasonal adjustment was needed. The future traffic volumes were developed using the cumulative analysis method which uses the existing traffic volumes, historic growth patterns, and planned land uses to predict future development growth. Appendix A shows the existing and future no-build volumes. Appendix D details the development of the existing and future traffic volumes. No-build Analysis Results Often time, traffic signals are proposed at high crash location. Preliminary Signal Warrants were checked for all existing unsignalized intersections within the study area (See Table 2). Meeting preliminary signal warrants does not guarantee that a signal will be installed. Before any signals are installed on the state system, Region 4 needs to perform a field warrant analysis. If the actual traffic signal warrants are met, the State Traffic Engineer can consider an approval of the signals along with other factors. The approval must be obtained before a signal may be installed. If the proposed signal were on the local system, a complete warrant analysis needs to be completed and approvals done by the appropriate officials. Transportation Planning Analysis Unit 6 October 2003 US97 at South Century Drive I Table 2 shows that all intersections meet preliminary signal warrants in 2027. The US97 I South Century Drive intersection currently meets preliminary signal warrants while the US97 Vandevert Road intersection will meet them around year 2010. Signals are strongly discouraged on rural highways, so signals should not be placed on this section of US 97. The Deschutes County intersections of South Century Drive with Vandevert Road, Spring River Road, and Abbott Drive will meet preliminary signal warrants within 10 years. Table 2. No-build Preliminary Signal Warrants Met l • 2 70 percent of standard warrants because of speed in excess of 40 mph or an Isolated area under 10.000 nomllallcm 2 Meetmg preliminary signal warrants does not guarantee that a signal will be installed. Before a signal can be installed a traffic investigation must be conducted or reviewed by the Region Traffic Manager. Traffic signal warrants must be met and the State Traffic Engineer's approval obtained before a traffic signal can be installed on a state highway All of the intersections in the study area are unsignalized except at the South Century Drive/Venture Lane intersection. This signal controls the traffic in and out of the Sunriver Business Park. See Figures A4 -A6 in Appendix A for the lane configurations and 30th highest hour volumes. Table 3 shows that the South Century Drive leftlthrough movement at the US 97 intersection is currently over capacity with a vic ratio exceeding 2.0. Vic ratios in excess of 2.0 mean that vehicles may take unacceptable gaps to tum into traffic and increases the potential for crashes. The Vandevert Road eastbound approach at the US 97 intersection exceeds the 1999 Oregon Highway Plan (OHP) vic standard in 2007 and will be over capacity in the future. The US 97 ICottonwood southbound connection exceeds the OHP vic standard in 2019 and is over capacity by 2027 because the through lanes of US 97 will also be over capacity. The capacity constraints on US 97 will limit the ability of the Cottonwood interchange to provide safe highway access in the future. Table 3. No-build Mainline Intersection vic Ratios Transportallon Plannmg AnalYSIS Unit i October 2003 l'S9i al South Century Dnve Table 4 shows the LOS of controlling movements on the county road system. The Abbot Drive intersection with South Century Drive currently exceeds the county LOS standard. All county road intersections in the study area fail by 2027 except for the Crosswater Resort access. Table 4. No-build Sunriver Intersection Level of Service Table 5 shows the mainline segment vIc. US 97 in the study area was broken into four sections due to different lane configurations. North of Cottonwood Road, US 97 has two northbound lanes and one southbound lane. The vIc ratio of the southbound single~lane section currently exceeds the 1999 OHP vic mobility standard. The Cottonwood Road to South Century Drive section has a single lane in each direction. The South Century Drive to Vandevert Road section, the northbound direction has a climbing lane in addition to the travel lane while the southbound direction only has a single lane. The southbound direction is very near to the 1999 OHP vIc standard in 2007. South of Vandevert Road, US 97 has a single lane in each direction and will meet the 1999 OHP standard in 2025. Table S. No-build Mainline vlc l Table 6 shows the vic of the Cottonwood Road interchange. Its ramp terminal intersections will function acceptably through the design year except the eastbound right tum (US97/Coltonwood southbound connection) which will exceed the 1999 Oregon Highway Plan (OHP) vIc standard in 2019 and exceed capacity in 2027. Transportation Planning AnalysIs Unn October 20m US97 al SQuth Century Drive Table 6. No-build Cottonwood Road Interchange vlc l Queue Analysis Table 7 shows the queue lengths of the controlled movements at unsignalized and signalized intersections in the study area. The existing distance between the US97 J Vandevert Road intersection and the railroad is 141 feet which is currently less than the estimated queue for the Vandevert Road eastbound approach. This is a serious safety problem at this location because the queue extends over the railroad crossing. Queues at the South Century Drive intersections with Abbott Drive, Venture Lane, and Spring River Road currently exceed the available tum lane storage and will back into the through lanes. The short spacing on Venture Lane between South Century Drive and the business park loop road is currently exceeded, so that queues are impeding traffic movement around the business park. Table 7. No-bUild Queue Length l Table 8 shows a comparison with the existing intersection I interchange spacing with the 1999 OHP spacing standards. The section between the US 97/Cottonwood southbound interchange connection and South Century Drive currently does not meet the OHP spacing standards. Transportation Planning AnalYSIS Unit October 2(lO} US97 al South Century Drive Table 8. No-build Access Management Spacing BUILD }\LTERNATIVES Four conceptual alternatives were developed for the US 97 at South Century Drive project and presented to the Steering Committee, the Project Team, the Stakeholders Committee, and the general public. The traffic pattern is not much different for the Sunriver off-system network between the four alternatives. The evaluation criterion used to evaluate the initial alternatives were: • Highway Design Manual (HDM) and Deschutes County LOS Standards. The HDM mobility standards set a maximum vic ratio of 0.60 for US 97. The Deschutes County LOS standards are LOS D. • 1999 Oregon Highway Plan (OHP) and Division 51 Spacing Criteria. The OHP and Division 51 require three miles between interchanges for all rural expressways (NHS) on Statewide, Non-Freight Route Highways. The reason for three mile spacing is to provide the desirable long term operational safety. The spacing distances given in the OHP ensure that both adequate acceleration and deceleration ramps are constructed and that vehicles entering and leaving the roadway have the distance to complete weaving maneuvers safely. • Design constraints such as geometry of the highway and the structures. Although all of the alternatives have the potential to meet the purpose and need of this project, Alternatives 1,3, and 4 fail to meet many of the goals and objectives set forth by the Stakeholders and Steering Committee, and have been dropped from further consideration. The decision to drop these alternatives is based on input received between May 2002 and January 2003 from the Steering Committee, the Project Team, the Stakeholders Committee, and the general public. The specific reasons for not advancing these alternatives is provided in Appendix C. TransportatIOn Plannmg Analysis Umt 10 October 2003 lJS97 at South Century Drive I t f I I NO SCALE OREGON DEPARTMENT OF TRANSPORTATION TPA..U TRANSPORTATION PLANN'NG ANALV51S11Nn US 97 AT SOUTH CENTURY DRIVE ALTERNATIVE 2b 3 II Alternative 2 is the preferred alternative for US 97 at South Century Drive intersection. This alternative will be advanced for analysis in the Environmental Assessment (EA). Alternative 2 would be built in two phases. Phase I builds a new interchange at South Century Drive. In Phase II, improvements would be made to the Deschutes County network. Alternatives 2a, 2b, 2c differ in the routing of traffic from the interchange on US 97 to Sunriver area, Spring River Road, and South Century Drive (South of Spring River Road). Alternative 2a keeps the existing configuration of county roads and Alternative 2b builds a bypass of the Sunriver area connecting South Century Drive with Spring River Road, while Alternative 2c is a modification of Alternative 2b by removing South Century Drive east of Abbot Drive to new alignment. Although all three of the alternatives have the potential to meet the purpose and need of the off system network, Alternatives 2a, and 2c have been dropped from further consideration by the Project Team. Alternatives 2a, 2b, and 2c have the same lane configurations and traffic control at the ramp termini, the US 97 N andevert Road intersection, and on US 97 (See Appendix C). These three alternatives also have the same operations on US 97. Appendix B shows Alternative 2b traffic volumes and lane configurations. Alternative 2b builds a new interchange at South Century Drive and a bypass of the Sunriver area by connecting South Century Drive to Spring River Road (See Figure 3). Three options were considered, they differed based on the traffic control at the various intersections. Option I (Figures B 1 -B2) has stop control at Abbott Drive and the bypass, and a signal at Spring River Road. Option 2 (Figures B3 -B4) had all Sunriver intersections signalized while Option 3 (Figures B5 -B6) has roundabouts at these same intersections. Adding a left tum lane eastbound at US 97Nandevert Road adds capacity by separating aJI left turns out to prevent blocking the right turns which need shorter gaps to tum. Build Alternative Analysis Results Table 9 shows preliminary signal warrants for Alternative 2b's intersections in the build year (2007) and the design year (2027). Only South Century Drive intersections at Spring River Road and at Bypass meet the preliminary signal warrants in 2027. Table 9. Alternative 2b Preliminary Signal Warrants l • 2 70 percent standard warranlS excess mph or an lsolated area under 10.000 populallon. 1 Meeting preliminary signal warranlS does nol guaranlee that a signal will be installed. Before a signal can be installed a traffic mvestigallon must be conducted or reviewed by the Region Traffic Manager. Trame SIgnal warranlS must be fOCt and the Slate Traffic Engineer's approval obtained before a traffic signal can be Installed on a state highway I i i I Transponation Planning AnalySIS Unit 12 October 2()0;1 US97 at South Century Dnve Mainline Network (US97) The US 97 operational analysis includes US 97 from the Cottonwood Road interchange to the Vandevert Road intersection. Table 10 shows the interchange and intersection vic ratios on US 97. The traffic operation at US 97/Cottonwood Road interchange does not change over the no build since no major improvement occurs at this location. The US 97 ICottonwood southbound connection fails in 2027 and exceeds mobility standards in 2016. All diverge and add lane points have vIc ratios that exceed the HDM vic standard in the year 2027. The Vandevert Road intersection with US 97 exceeds capacity before 2027 with a vic ratio over 2.0. Volume to capacity ratios in excess of 2.0 mean that vehicles may take unacceptable gaps to tum into traffic, increasing the crash potential. At the US 97/South Century Drive interchange, US 97 operation depends on the operation of the merge and diverge influence areas. The interchange has the northbound off-ramp and southbound on-ramp on a grade; the northbound off-ramp is in the middle of the climbing lane, and the ramp tennini have stop-controls. The South Century DrlUS 97 northbound ramp tenninal operates within the HDM vic standards through the year 2027. The South Century Dr IUS 97 southbound ramp terminal has a "free right", meaning that the right tum vehicles will merge into the South Century Drive westbound traffic flow rather than being part of the stop-controlled intersection. The vic of the merge influence area of South Century Dr and the "free right" of the South Century Dr IUS 97 southbound ramp terminal is at the HDM mobility standard in 2027. Table 10. US 97 Interchange/Intersection v/c l Gray the potential for crashes is highly increased. The no-build analysis showed that the existing US 97 exceeds the capacity of two lanes. For the build alternative, US 97 would need to be widened to four lanes in year 2002. The project budget prevents widening US 97 and building the interchange simultaneously, so the widening will need to be phased. If the interchange at South Century Drive has only two lanes on US 97, Table 11 shows the US 97 southbound diverge vic exceeds the HDM vIc standard and the US 97 southbound merge vic is at the HDM vIc standard in year 2007. However, the US 97 northbound divergelmerge v/c's are within the HDM vic standard in year 2007. In year 2027, the US 97 all merge/diverge points are Transportation Planning AnalySiS Unit 13 October 2003 US97 at South Century Drive over the HDM vIc standard except for the northbound diverge. The US 97 northbound diverge vIc depends on the distance between the merge point of the climbing lane back into one travel lane and the US 97 northbound diverge influence area. The northbound climbing lane will end within the interchange area. This merge point wiIJ create a bottleneck that generates a shock wave in the traffic stream back into the northbound diverge influence area. Table 11. Soutb Century Drive MergelDiverge vIc for One Lane in Eacb Direction on US97 1 ·Lotation 2027 US97 NB Diverge 0.20 0.28 US97 NB Merge -jUS97 SB Diverge ,.."\::; US97 SB Merge _. I Gray-shaded cells indicate that the HOM mobility standard is exceeded. Black shaded cells indicate that the vIc is over 1.0 If the interchange at South Century Drive has four lanes on US 97, all of the merge/diverges operate acceptably through year 2027 except for the southbound diverge. The US 97 southbound diverge vIc exceeds the HDM vic standard in year 2024. In this scenario. the four lanes will taper back into the existing lane configuration, and the Highway Design Manual indicates the merge merge distance is about 1500 feet. The four-lane portion in advance of the interchange northbound and southbound needs to be about 1500 feet. Table 12 shows MergelDiverge vlcs of the interchange for this scenario. Table 12. Soutb Century Drive MergelDiverge vIc for Two Lanes in Eacb Direction on US97 1 Table 13 shows the queue lengths of the controlled movements at unsignalized intersections in the study area mainline network. The major left and minor approach queue lengths at unsignalized intersections were estimated based on the AASHTO "Two-Minute Rule", The existing distance between the US97 I Vandevert Road intersection and the railroad is 141 feet which is greater than the current estimated queue for the Vandevert Road eastbound left. Transportallon Planning Analysis Unit 14 October 2003 US97 at South Century Drive Table 13. 2027 Mainline Queue Lengtbs OlITlONl Intersections ::~i . Movement 2027· Queue" " (ft)..'. .~, US97 NB off-ramp/South Century Dr US97 NB Off-ramp 50 US97Nandevert Rd EB Left 75 Table 14 shows a comparison of OHP spacing standards with the build alternative. The spacing between Cottonwood Road interchange and South Century Drive interchange still does not meet the OHP spacing standards. Table 14. Build Access Management Spacing Cottonwood Road Interchange ~ South Century Drive Deschutes County Network Analysis Results Table 15 shows the LOS and vic ratios for Alternative 2b's three options. Option 1 is unacceptable because of the failing LOS and vic ratios. Option 3 meets the LOS D standard in 2027, but exceeds the 0.80 vic requirement for good roundabout operation at the Spring River/South Century intersection. Option 2 is the best option for this alternative even though the South Century DrNandevert Rd intersection still exceeds the County's LOS standard in 2027. Transponallon Planning AnalysIs Unil t 5 October 2003 tJSI)7 at SOUlh Century Drive I 1 I The roundabout option works well with superior operation (lower LOS and vIc and shorter queues when compared to signalized options) except for the Spring River Road intersection with South Century Drive. Table t 6 shows the 2027 queue lengths of critical movements at each intersection in Alternative 2b. In these options, no queues blocked adjacent intersections. Generally, the roundabouts in Option 3 have the shortest queues except at the Spring River ISouth Century intersection while the signals in Option 2 have the longest queues. Transportation Plannmg Analysis Unit US9i at South Century Drive 16 October 2003 Table 15. Alternative 2b LOS and vIc' South Century at Bypass South Century at Abbot Rd South Century at Venture Lane South Century At RiverRd South Century at Crosswater Resource South Century at Vandevert Rd B (0.31) B C (0.39) B Gray County's LOS Im'IU"ilru 1 Level of Service is based on aaSIDRA 1 VIC ratio IS between aaSlDRA and German G2 Method C (0.78) B D (0.91 ) A (0.30-0.44) A A (0.38-0.55) A • In the above table, the Option 3 analysis assumed a single lane roundabout with single approach lanes. The Spring River Road intersection with South Century Drive works well with: • One-lane roundabout with two approach lanes (LOS Band 0.39 for vic from aaSIDRA). • Two-lane roundabout with two approach lanes (LOS Band 0.40 for vic from aaSIDRA). Table 16. Alternative 2b Queue Lengths '~. <, :\'!',.0PTION Jl" ,. "i:,:'2i .,i.aPaJlQN.2( '" .... ·".(})PfrION 3 ':Movement'i"':2027~Movemenfi;':'~::';2Ul1;t.;; t:ii':MoveDleDt.; :'2027 ",i,t .:} ~":,' :I, • : '.(ttl:):;':~~J,:!;.~,,,:c;•.. , /;;;i i(ft)~':~:.;/;,:":' (i ' . " tCt) . South Century Dr/Vandevert Rd Spring River Rd/South Century Drl East East East i25 125 ~____..... :h . __AH~~il£~__ ..... Approach 325 250 575 7::' South Century Dr!Vcntun: Lane So lith South t' 17'" South. 150 1 75 _~~JPToach AEJlroacJ_l ___.. ~ ... ___~roacll._-.,.-.......------J North 100 North.' 100 North j South Century Dr/Abbot Rd South Century Dr!BY'Pass Approach Approach I Approach i Approach . _. -------~. East iSB Left Approach West I 125 West Approach "_.-_~oa<:L EB , 125 East 175 East .,. ) 100 --- ISO AjJp!~~<:h 1---ApPIV<lch South South ....,,!.-____-----l-.-.-. ..--- l.ertRight I Approach 200 Approach 75 1 In Optl(m 1. the qUCllC, at the "pnn!! f{1\cr i{odd micrsl:clllln With South (enrurv Drive ape hased on a smgle lane rnundahHlI with smgh: approach ianes analvsl' l'ollllWHli' are qucue, In fcet lor nnrth. south, ca.,\. west JPPHladH;'; rcspecuvely 11)0.15. lliil, is baq,d on or1(:·lanc' roundahout \\llh IWO approach lanes anah,5ls 51;, 5(,. ~'. -''i hascd llT1 I\\'(\-Iane roundabolll with TWO approach lane.' analv,iI\ A;LTERNATIVE SUMMARY The malllimc analysis of Altcmatin: 2b lI1dicates that: • The Cottonwo()(l Road interchange ramp lerminal inlersections will functloll acecptahl~ thrnugh the deSign year except tht.: easthound nght tum \\'hich will exceed the HDr-.1 ViC stalldard in 20\() and fail in 2027, US 97 will he nn.T capacity and will limit the ahilltv DC the Cottonwood intcrehan~l: to provide safe access to the highway in tll\: future. 'ran.,porldliOn 1'lJTll1l1h' \n•.lh·", \ Ill< ,'S')-ill ".Hilh ( cntur\ IJrII': • The South Century Dr IUS 97 northbound ramp tenninal operates within the 0.60 vIc standard through 2027. The interchange at South Century Drive will operate better with four lanes on US 97. The South Century Dr IUS 97 southbound ramp tenninal has a "free right" onto South Century Drive. • The Vandevert Road intersections with US 97 and South Century Drive will sti II exceed the HDM vic standard and the Deschutes County LOS standard, respectively, in 2027. Alternative 2b with the bypass, adds one more intersection to the road system. The through traffic between US 97 and Spring River Road and southern South Century Drive diverts to the bypass. Local trips use the old South Century Drive alignment. Adding the bypass potentially increases safety for pedestrians and bicyclists using or crossing South Century Drive between Sunriver and the Business Park by removing the through traffic. Alternative 2b, Option 2 (signalized intersections) works acceptably through year 2027. Option 2 also has the longest queues of any of the Alternative 2b options. However, adding signals at all the intersections changes the old South Century Drive alignment to a urban feel which may be a detriment to the character of the area that may not mesh well with the Sunriver community vision. Alternative 2b, Option 3 works well as a single lane roundabout with two approach lanes or a two-lane roundabout with two approach lanes at the Spring River Road intersection with South Century Drive, Roundabouts are much safer than the standard unsignalized or signalized intersection and would fit well in the Sunriver area as Sunriver does have a number of semi roundabouts that drivers are familiar with, Roundabouts do take up more right-of-way and adding more lanes will increase the footprint. RECOMMEN'DATION As above summary, Alternative 2b. Option 3 with a two-lane roundabout at Spring River Road/South Century Drive intersection is superior to Option 2. Option 3 has lower level of service, vic ratios and queuing and has been recommended as the best option, Option 2 would also work if roundabouts are not desired 'j ranspllrtaiioll Pi.mnmj.: AnalYSIS \ 1111 I~ \'5<)-.It SU\I1I1 ( cnlur, lln'.l' APPENDIX C Alternatives Considered But Dismissed ·1 r~lllsl'PrLlIl"11 l'i~Hmllh' AI1:;]\SI'; llnll ( . (Icluher 2111." I .~()-~Il SolHh ~ cnhJr', [Jrl\ C Alternative J Alternative I improves the interchange at Cottonwood Road, builds a back age road on the west side of US 97 to connect South Century Drive to Cottonwood Road, and disconnects South Century On ve to US 97 but allows a right in-right out for Lava Cast Forest Road. This alternative was dropped from further consideration because it: • Poorly handles future volumes at the interchange and may have 110 viable off-system options. • Would not provide effective access for long-term land use plans in the project area and therefore. does not ensure effective use of public and private funds • \Vould not improve direct access to Forest Service lands and recreational lands • \Vould not reduce (and may increase) congestion in the Sunriver area • \Vould result in out-of-direction travel for local residents and tourists • Would not provide effective emergency access and exit roules WIthin the project area • Would not ImproVt;) access to recreational resources in the project vicinity • Requires a new 2-milc long frontage road on public land that: • Would result in loss of trees and would convert huge acres of Forest Service land into transportation corridor. • 1\.1a1' result in increased wildli fCiveillcle collisions and adverse impacts to deer and local wildlife • Would require additional funds for maintenance and snow removal. • \Vould he visihle from Lava Butte and therefore, does !lot minimize adverse impacts to visual resources and to the NatIOnal Monument • Would adversely impact recreational opportunities between Cottonwood Road and South Century Drive (mallY locals use the forest service roads in this area for mOllntain hiking). Analvsis Results Alternativc I IS analy/etl without a hypass around thl: Business Park in the Sunriver area. If this alternative is analyzed with a hyVass, the traffic operation is the same as Alternative 2h that is descrihed in the mam body or the narrative. The intersections of Abbot Drive and Spring Rivcr Road with South Century Drive arc stop-controllctl (Option 1). signal controlJed (Option 2), or roundahout controlled (Option 31 Sec Figures C I through C(l. Tahle CI shows preliminary signal warrants for Alternative 1's intersections in the huild year (2007) and the design year (2027). 'Irjn:>p"nall[\I1I'I,mJlI!)~ ,\11,11,,1 j·nll , :~(' ".•Ii \oulh I l'ntur~ 1)1 \\ C NO SCALE ~".-2.15 \ . \ 75 40 330 165 310 Ii n 210 \,. 265'" <5 310 ~ 50S " 285,/ 1 475 <5 .. ~45 ) 80 ~ i..J~iI (4S /}'o Option 1: Existing traffic controls ! 10 315 65. -95•220 25 r .! <:> or. or. , 890 590 1-10 ] '175-1J ·<5 <5790 •<5 -~80 , I <5: "-"'-. <~ , 85 525 20 -)-<5 OREGO,," DEPARTMENT Of' TRANSPORTATION I~'(LI: . S.l ....., D, II r ...p....d By: T. N. NGUYENIIUS 97 AT SOUTH CENTURY DRIVE (Alt. # 1) .. FIGURE C1 .2007 Balanced 30th Highest Hour Volumes IIIr ("IT£ :IO:OI/OJ II Rn'n,td 8)'~ t.rE.s~h.uytf'm.'1 I NO SCALE 170450 65 10 -zo no 160 \-40 / 255~;~\ l' ~ \ I"" <5 i )--..270 30 \40 ~ I '", '<5 Y ,,~-,~//, , 270\ ',,-All' 30 ~ <5•SO-'V'" <5 I <5 I 35 <5--.,. t , <5 <5 25 525 20 -~;-<5/ Option 1: Stop controls at Abbot Dr and Spring River Road OREGON DEPARTMEJ'Io'T OF TRANSPORTATION US 97 AT SOUTH CENTURY DRIVE (Alt. # 2a) 2007 Balanced 30th Highest Hour Volumes II FILE, ,. (_"" D,]E"'d By; T, N, NGUYENI I Ifj 03 Ira.....",.d By: 1',5<...)1...., IDATE: 10 11 Pt:, FIGURE ('17 C7 l NO SCALE ,. 270 '" 30 ~ 415 .... j; <s" ... 5 160375 \j 160 i ,.>...;I 455 150/• <51"'85 /" 50 .... ~ _ <" f • ; ~, , Ii] 195 • 'i'-175 '-:;2:.:.:.:.:Ii;~~~:';"'--~"I---..r. / "155 22f: I 18S 135",(''''! . 1,,,,,L 90 IIG ! ALTERNATIVE 3 • ) , ••.-< 135 135 . 40-.,'-70/ __~_..Jl_<-'" h --" Option 1: Signalized Spring River Rd/South Century Dr and Venture Lane/South Century Dr : 65 intersections~j ,': \0 180 " 175·:, " -<5 / " l! 790 ..--:5 ; -20 35 • <5 .. '" ,220 25. <;5 , 170 525 160 20 -,: -<5 ~-40 OREGON OEPARTMENT OF TRANSPORTATION TP.A..U 11tANsrOR:iATIOf'll Pl.ANNf:"tC; ANALYSts ~;l't1T US 97 AT SOUTH CENTURY DRIVE (Alts. # 2c & 3) It'lU;: s, l ..,u., Dr II Pn:p.,'" 8y: T. N. NGI'\'ENI FIGURE Z007 Balanced 30th Highest Hour Volumes II II Rtv,*wtd By; P. SCI!UYlmI:a'1J)Al'~: IO!OII03 . PI: C!3 NO SCALE If..... 370 170 kl1l5 : t \ 125 765-ii t . 375 65, . _) 10 /~7;;/ I l-2110 106 \/ 375 ( •...•.. i~ 2115 J S9(t,.j/ , '5 <5 30 ~ Option 1: Existing traffic controls <5 3}O <5_~.. -~~... <5 OREGON DEPARTMENT OF TRANSPORTATION TP.A..U TIlAN.SPORTATIOlltl'\..ANN,NCANAlYSlSliNIl US 97 AT SOUTH CENTURY DRIVE (Alt. # 4) 2007 Balanced 30th Highest Hour Volumes I FILE: s. t ......, Dr 11""p"""By' T. N. NGUVliN11 I II R.._Cd lIy' 1'. sd'uY' .... ··1 _ I),\TE :IOIOMll ._ PI:. • FIGURE C35 APPENDIX D Traffic Development T ransport3tioll Planmnj.! AnalY:;ls linlt ( 'S'I-al Smtih ( cnturv III liT TRAFFIC DEVELOPMENT Base and future year traffic data used for the transportation analysis was developed from the following: • Traffic Counts • Transportation Volume Tables • ODOT's Pennanent Recorder Stations • Cumulative Analysis Traffic Counts Manual traffic counts, which include IS-minute interval data and full federal classification breakdowns. were taken by ODOT staff in August, 2002 at the locations in Table Dl and shown in Figure D2. Table D1. Manual Count Locations ,; ", '," 'Dg:' '."~;:~:'" "; ,/, " " .' ~':::.. lJoc,ti~n' ',»*",:0. US 97 / South Century Drive 08/08-09/2002 14 hour US 97/ Vandevert Road 08/22-23/2002 14 hour -~~-'-~-~' South Century Drive / Vandevert Road 08/22-23/2002 14 hour ~---~ ----, I08/22-23/2002 14 hour South Century Drive / Sjlring River Road 08/15-16/2002South Century Drive / Venture Lane 14 hour -, South Century Drive I Abbott Drive 08/01-02/2002 14 hour 08/08/2002South Century Drive 1 Crosswater Resort Access 3 hour The US 97 I Cottonwood Road interchange ramps were counted using hose tubes. The traffic counts indicated that the project peak period was detennined to be between 5 PM - 6 PM (Sec Figure D3), Transportation Volume Tables ODOT's Transportation Volume Tables contain tabulation listings of ADT values for state highways. Information from these tables provide information on current ADT values and historic growth trends. The future traffic volumes were developed using the cumulative analysis method, The cumulative analysis method uses existing traffic volumes, historic growth patterns, and planned land uses to predict future development growth and to forecast the traffic generated from that development. The existing and future developments were based on information obtained from Deschutes County's GIS database. ODOT's Permanent Recorder Stations Data available at the 120 Automatic Traffic Recorder Stations on the state system includes 30thAverage Daily Traffic (ADT), Maximum Day, Maximum Hour. loth, 20 th . Highest Hour shown as a percentage of ADT, Historical Annual Average Daily Traffic (AADT) hy year, Transponation Planning AnalYSIS Unl! n:: Octobcl 200; US97 at South Century Dnve directional traffic splits, and seasonal variations in Iraffic. General seasonal adjustments were derived from an average of ATR 's that have operational characteristics similar to the studied area. The counts were taken during the time when the 30th highest hour occurs, so no seasonal adjustments are needed. Cumulative Analysis A cumulative analysis was performed to obtain the 2007 and 2027 no-build volumes. From the review of land use patterns, locations, densities and types of deVelopment, staff is able to analyze the future travel patterns in the study area and the transportation needs of the residents. A key element in this analysis is the identification of all vacant developable land and currently platted parcels in the study area. Developable land in the study area occurs in several different land-use categories that the cumulative analysis was applied to predict development growth and the resulting generated trips. The study area was divided into 12 zones (See Figure 01.) where substantial numbers of vacant lots exist. Following is general zone descriptions: • Zone 1 -Sunriver (all -map cuts off top half) ;as confined by the railroad, USFS lands, the river, and South Century Drive • Zone 2 -Spring River; generally bordered by USFS on the west and Deschutes River on the east • Zone 3 -Lower Bridge; bordered by USFS on the west and Deschutes River on the ea<;t, south of Spring River development • Zone 4 -South Century; bordered on south by South Century Dnve, on north and west by the Deschutes River, and on the east by Crosswater Resort and the Little Deschutes River. • Zone 5 -Lower South Century; bordered on north by South Century Drive, south by USFS, west and east by the Deschutes and Little Deschutes Rivers • Zone 6 -Huntington West; bordered on west by the Little Deschutes River, on east by Huntington Road, on north by South Century Drive, on south by LaPine State Park Recreation Road. • Zone 7 -Huntington East; bordered on the west by Huntington Road, on east by the railroad, on south by LaPine State Park Recreation Road. • Zone 8 -Vandevert; bordered on west by South Century Drive and Little Deschutes River, on east by the railroad, on the north by Vandevert Road • Zone 9 -Crosswater East; bordered on west by South Century Drive, on east by the railroad, on the south by Vandevert Road • Zone 10 Sunriver Business Park; bordered on north and west by South Century Drive, on east by the railroad • Zone II -Railroad; bordered by the railroad on the west, US97 on the east, Vandevert Road on the north and LaPine St. Park Rec. Road on the south. • Zone 12 -Crosswater; bordered by South Century Drive on the east, Spring River Road on the north, and Zone 4!Deschutes River on the west. TransportatIOn Planning AnalYSIS Unit (), October 200:; CS97 al Soutrl Cenlury Dmc Figure DI. Zones around the study area Railroad Vandevert Rd The study area includes Sunriver which is an unincorporated area, which has developed and remained as local-serving commercial LlSCS, providing goods and services geared specially' for the surrounding rural residential and fanning uses. All vacant parcels of land that, once developed, could impact the study area were identified and grouped using Deschutes County's GIS data. The number of lots is based on current building trends and is the number of lots likely developeJ in the next 25 years. Table D2 summarizes the zonal estimated current vacant lots, estimated building rates, and trip generation. Average trip generation rates are from the Sixth Edition of Trip Generation from the Institute of Transportation Engineers (ITE). All vacant lots were assumed single family detached housing lots (ITE Code 210) except Zone 9 is a land-swap between USFS and private developers. Zone 9 is a resort area and was assumed to be built out in year 2027 with 360 houses (ITE Code is Transpol1ation Planning Analysl' l ;n1l October 2()(j~ liS'!; at South Cemur: Dr Ive 210), 170 acres golf course (lTE Code 430), 10 acres Business Park (lTE Code 770), and a 300 room hotel (ITE Code 310), Table 02. Zonal Trip Generation (PM Peak Hour) 360 houses, I 70 Land-Swap, acrs golf course, 10 BuiltN/A N/A 766 (3811386) Area acrs Business Park, out351.68 Acres 300~room Hotel * Assumed not available by year 2007 Future through (external~external) trips were estimated using the 20-year historical growth rates on US 97 and on the county roads. It was assumed that the only true external-external trips were on US 97 as the highway has smallest travel time of all routes in the study area. All other external trips were assumed to be traveling to or from internal destinations in the study area. The trip generation for new residential and commercial trips was applied to each zone as appropriate. The new trips (internal-external and external-internal) were distributed in a matrix among the external stations based on the relative size of each zone and the total amount of trips at each external station. The external stations are located on: • US 97 (North of Cottonwood Road interchange) • US 97 (South of V and evert Road) • Spring River Road (West of South century Drive) • South Century Drive (South of Vandevert Road) The total amount of external-internal and internal-external trips was summed and compared to the original total trip generation for each zone. The difference was the total amount of internal internal trips for each zone. It was assumed that the majority of the internal trips were traveling between residential and commercial areas. The internal trips were distributed among the six zones based on the relative size of the origin or destination zone depending on whether the trip was inbound or outbound. Trallsponatlon Plannmg Analvsls Unit D5 Octnber zon., l'S')' at South Century ()mc The four trip types were assigned to the roadway network based on the smallest travel time between the origin and destination. Combinations of routes were used if travel times were similar. The assignments ~ere reduced to turn movements and became the future no-build volumes. After all trips had been assigned except for the internal-internal trips, capacities were checked. TransportallOn PlalllHl1g :\nalysis l ;1111 October 2no) 1';';'17 al South ( enturv [lf1\(' I