HomeMy WebLinkAboutChapter 5 - Planned ImprovementsEXHIBIT C ORDINANCE 2012-005 Page 153 of 268
CHAPTER FIVE
PLANNED IMPROVEMENTS AND POLICIES
5.1 Purpose of the Transportation System Plan
The purpose of the Transportation System Plan (TSP) is to guide the development of a safe, convenient
and efficient transportation system that promotes economic prosperity and livability for all County
residents. The TSP process identified current and future deficiencies or gaps, selected solutions,
prioritized the projects, and provided a planning-level cost estimates. This was done for all modes. The
end result is a transportation system equipped to serve the mobility needs at the state, county, and local
scale for the movement of people, goods, and services.
The TSP balances the need to reduce the reliance on single occupant vehicles while recognizing the
County’s geography, transportation needs, and residents’ modal (type of travel) preferences and
demography. Additionally, the TSP recognizes the County and State’s responsibility to solve safety and
operational problems on roads and highways. The TSP encourages ridesharing, telecommuting and
transit as potential tools to delay the construction of additional roadway infrastructure.
The TSP contains brief descriptions of the required facilities and issues, followed by a complete listing of
goals and policies that cover the following areas:
• Coordination and Implementation of the Transportation System Plan;
• Arterial and Collector Street Plan including road network policies, Access Management,
Functional Classifications, Road and Street Standards, Level of Service and Capacity, and
Facility/Safety Improvements;
• Public Transportation Plan;
• Bicycle / Pedestrian Plan;
• Air/Rail/Water/Pipeline Plan;
• A Transportation System and Demand Management Plan (TSM & TDM).
The TSP includes goals and policies as well as identified projects for the next twenty (20) years.
Projects were prioritized as high (0-5 years); medium (6-10 years); or low (11-20 years). The
prioritization was based on the combination of factors listed below:
• Evaluating the capacity of the County road system and the state highway network within
Deschutes County
• Functional classification
• Current and future traffic volumes
• Crash history analyses based on the County and State database
• Input from Deschutes County BPAC on bikeways
• Gaps in sidewalk networks and proximity to schools
• Discussions with the County Road Department
• Efforts to enhance alternative modes of transportation through compliance with the TPR.
• Input received from the citizen review committee (Deschutes County Planning
Commission) and the public outreach process in general.
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5.2 Coordination and Implementation of the Transportation System Plan
Rather than being a final document, Deschutes County intends for the TSP to be a living document with
timely updates as circumstances dictate. By continuing to monitor and plan the transportation network
for all modes, the County can meet the mobility needs of residents, visitors, and businesses/shippers.
The following goals and policies are intended to achieve that aspiration.
COORDINATION AND IMPLEMENTATION GOALS AND POLICIES
Goal 1
1. Achieve an efficient, safe, convenient and economically viable transportation and communication
system. This system includes roads, rail lines, public transit, air, pipeline, pedestrian and bicycle
facilities. The Deschutes County transportation system shall be designed to serve the existing
and projected needs of the unincorporated communities and rural areas within the County. The
system shall provide connections between different modes of transportation to reduce reliance
on any one mode.
Policies
1.1 Deschutes County shall protect approved or proposed transportation project sites through:
a. Access control measures;
b. Review of future large development and transportation projects that significantly affect
the County’s transportation system;
c. Requirement of conditions of approval on developments and transportation projects
that have a significant effect on the County’s transportation system.
d. Collection of transportation System Development Charges (SDCs) for approved land
uses as proscribed under BOCC Resolution 2008-059
1.2 The lead agency for review of transportation projects in Deschutes County shall be:
a. Deschutes County for projects completely outside UGBs;
b. The affected city for projects within its UGB; and
c. The State of Oregon, Deschutes County and affected cities on projects involving state-
owned facilities that are both inside and outside of a UGB.
Goal 2
2. The Deschutes County TSP shall be continually updated in a timely fashion in order to ensure
the transportation system serves the needs of County residents, businesses, and visitors.
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Policies
2.1 Deschutes County shall:
a. Identify local, regional and state transportation needs;
b. Develop a transportation plan that shall address those needs;
c. Review and update the plan at least every five years;
d. Continue to coordinate transportation planning with local, regional and state plans by
reviewing any changes to Deschutes County local transportation plans, regional
transportation plans, the Oregon Transportation Plan and ODOT’s State
Transportation Improvement Program (STIP); and
e. Continue public and interagency involvement in the transportation planning process.
2.2 Transportation Projects
a. The County shall have a list of transportation projects, adopted by the Board of County
Commissioners in accordance with the policies set forth below.
b. The initial Transportation Project List shall be set forth in Table 5.3.T1 of the
Transportation System Plan adopted as part of the Resource Element of the
Comprehensive Plan. The Board shall update the Transportation Project List
periodically by resolution adopted by the Board, without need of a formal amendment
to the TSP.
c. New transportation projects shall be included on the County’s Transportation Project
List. A transportation project proposed for addition to the list shall be subject to an
individual land use review only if applicable administrative rules or land use regulations
require such review.
d. Transportation or development projects that require a plan text amendment or a
conditional use permit may be required to fulfill conditions or implement mitigation
measures before approval is granted. Mitigation and conditions may include, but are not
limited to:
• Improvement of surrounding roads;
• Limits on level of development;
• Revision of development placement;
• Addition or redesign of access;
• Addition of traffic management devices such as traffic signals, medians, turn lanes
or signage; and/or
• Improvements that reduce transportation impacts.
e. Deschutes County acknowledges that land use designations have a significant impact on
the overall transportation system and any alterations shall be completed with
consideration to traffic impacts on the County road system and consistency with the TPR.
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Goal 3
3. The transportation plan and facilities of Deschutes County shall be coordinated with the plans and
facilities of incorporated cities within Deschutes County, adjacent counties and the State of Oregon.
Policies
3.1. Deschutes County shall notify ODOT concerning:
a. All land use proposals or actions that would create access onto a state highway or add
>100 ADT to any County road intersection with a state highway;
b. Any proposed land use or development within 500 feet of a state highway or public use
airport within the County; and
c. Require ODOT road approach permits.
3.2. Deschutes County shall coordinate local plans and land use decisions with state transportation
plans, including the Oregon Transportation Plan, the Oregon Highway Plan and other modal
plans. These plans provide ODOT policies and performance standards for State Highways
within Deschutes County. These ODOT plans also provide the framework for access
management on state facilities to protect the capacity and function of the highways.
3.3 The findings of compliance with applicable statewide planning goals, acknowledged
comprehensive plan policies and land use regulations, shall be coordinated with the preparation
of any Environmental Impact Statement (EIS) required for a proposed transportation facility that
is identified on the Deschutes County Transportation System Plan.
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5.3 Arterial and Collector Road Plan
Road Network
Whether County roads or State highways, the road network provides the crucial framework for
livability, economic development, and the delivery of goods and services. Simply put, whether it’s a
snowboarder headed to Mount Bachelor, a worker commuting from Prineville, or long-haul trucker
making his way to California, a functioning road network is essential. Even a person or a product
arriving by air or rail will reach the ultimate Deschutes County destination by the road network via car,
bike, or bus. Improvements came from Tech Memo #4, Mitigation Alternatives in Appendix B.
The Transportation System Plan (TSP) Project list identifies $306.2 million worth of projects in the next
20 years. Improvements on State Highway segments or intersections total $240.6 million and County
road or intersection projects total $61.3 million. County bridge projects are estimated to cost $3.4
million and bicycle and pedestrian improvements total approximately $571,000. See Table 5.3.T1 for
complete lists of specific projects. See Figure 5.3.F1 for planned travel and turn lane improvements and
Figure 5.3.F2 for planned intersection improvements.
However, the Road Department is facing an austere financial future. The Road Department’s challenges
are tied to declining revenues from gas taxes, vehicle registration fees, and lower than expected
amounts from transportation system development charges (SDCs).
The major historical sources for funding road projects, the federal government and ODOT, are facing
their own financial perils. The federal Highway Trust Fund continues to contract and ODOT has
projected revenue decreases due to a combination of people driving less, driving more fuel efficient
vehicles, a rise of electric vehicles, and inflation. All of these erode the ability of the federal government
and ODOT to fund large-scale highway projects for at least the next several years.
Overview of County Roads
The findings in this Plan conclude that the County road network currently in place, except for several
specific road segments and intersections, should be adequate to serve the County needs over the next
twenty (20) years. The few problematic areas are on western fringe of Redmond, the eastern periphery
of Bend, and the west margins of northwest La Pine.
Given the rural zoning of Deschutes County and the fact that the majority of new development will take
place on existing lots with existing access, few additional roads are anticipated. New road corridors to
isolated subdivisions and new roads linking urban and rural areas are the main exceptions. Any new
roads that will be created most likely will be the result of new developments and would therefore be
part of land use development review or would be for secondary access or emergency ingress/egress to
isolated subdivisions.
In the past destination resorts had an adverse affect upon County roads that then required mitigation at the
time of development. The market for destination resorts has ebbed in recent years and many in the industry
do not foresee a return to the pace of development from the mid-1990s to 2007. Additionally, Deschutes
County has reduced the lands eligible to become a destination resort by approximately 80 percent.
The majority of upcoming road-related projects will consist of safety-related or other upgrades,
maintenance and repair. Upgrades, maintenance and repair should be actively pursued to maintain the
integrity of the system and not jeopardize the current conditions.
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Table 5.3.T1
County Road and Highway Projects
Road Name Location Func.
Class. Project Estimated Cost Rank
County Intersections
Powell Butte Hwy Neff/Alfalfa Market Arterial Roundabout $900,000 High
Powell Butte Hwy Butler Market Arterial Roundabout $900,000 High
Burgess Road Day Road Art/Coll Turn lanes $281,250 Med.
Old Bend-Redmond
Hwy Tumalo Road Art/Coll Turn lanes $250,000 Med.
Baker Road Cinder Butte Rd Art/Coll Roundabout $900,000 Med.
Canal Blvd Helmholtz Art/Coll Roundabout $900,000 Med.
Deschutes Mkt Rd Hamehook Art/Coll Roundabout $900,000 Med.
South Century Spring River Art/Coll Roundabout $900,000 Med.
Huntington Road South Century Collector Roundabout $900,000 Low
Northwest Way Coyner Road Collector Turn lanes $250,000 Low
Subtotal $7,081,250
County Road Segments, New
Road Name From To Functional
Class Project Est. Cost Rank
Hunnell Road Cooley Rodgers Collector New Road $752,500 High
Cooley Road 18th St Des Mkt Arterial New Road $653,413 Low
Crooked River
Dr Wilcox
Smith Rock
Way Collector New Road $198,000 Low
Unnamed Masten 6th St Collector New Road $1,485,000 Low
Britta Extension Britta US 20 Collector New Road $375,000 Low
Subtotal $3,463,913
County Road Segments, Existing
Deer Run Lane Pinecrest Huntington Local Reconstruct/Pave $314,820 High
Foster Road So. Cent. La Pine Rec Collector Reconstruct/Pave $3,125,000 High
Hunnell Road Rogers Tumalo Collector Reconstruct/Pave $2,525,000 High
Huntington Riverview Riverview Future Coll Reconstruct/Pave $1,448,575 High
Rickard Road Groff US 20 Collector Reconstruct/Pave $772,000 High
Canal Blvd 61st/Quarry Helmholtz Arterial Add center turn ln $508,875 High
Helmholtz Elkhorn Maple Collector
Add travel lanes;
center turn lane $6,132,500 High
Burgess Day Huntington Arterial
Add center lane;
widen bridge $1,084,594 High
5th Street Amber State Rec Collector Widen/Overlay $256,250 Med.
17th St NE Negus O’Neil Hwy Collector Widen/Overlay $312,500 Med.
W. Antler Ave. NW 35th Helmholtz Collector Widen/Overlay $159,375 Med.
N. Canal Blvd City Limits US 97 Collector Widen/Overlay $434,375 Med.
Gosney Rd US 20 COID bridge Collector Widen/Overlay $321,875 Med.
Lower Bridge 43rd St Holmes Collector Widen/Overlay $2,653,125 Med.
Negus Way City Limits NE 17th St Collector Widen/Overlay $453,125 Med.
Buckhorn Lower Br. OR 126 Collector Reconstruct/Pave $1,708,000 Med.
NW Way Coyner Maple Collector
Add travel lanes;
center turn lane $2,923,875 Med.
31st St Sedgewick Lower Br. Arterial Widen/Overlay $312,500 Low
35th St Hemlock Upas Collector Widen/Overlay $490,625 Low
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County Road Segments, Existing
61st St S. Canal US 97 Collector Widen/Overlay $665,625 Low
Almeter NW Way Sedgewick Arterial Widen/Overlay $165,625 Low
Bailey US 20 Tumalo Res. Collector Widen/Overlay $306,250 Low
Bear Creek City Limits US 20 Collector Widen/Overlay $868,250 Low
China Hat Knott End main. Collector Widen/Overlay $573,438 Low
Cinder Butte Baker Minnetonka Collector Widen/Overlay $440,625 Low
Cooley Road US 20 OB Riley Collector Widen/Overlay $98,438 Low
Helmholtz Antler NW Walnut Collector Widen/Overlay $728,125 Low
Helmholtz Antler OR 126 Collector Widen/Overlay $156,250 Low
Huntington So Century Burgess Collector Widen/Overlay $2,782,500 Low
Obsidian City Limits UGB Collector Widen/Overlay $315,625 Low
Smith Rock Wy US 97 BNSF Xing Arterial Widen/Overlay $96,875 Low
Stevens Road City Limits Ward Collector Widen/Overlay $325,000 Low
Tumalo Res. OB Riley Collins Collector Widen/Overlay $1,440,625 Low
Wickiup Helmholtz SW 58th Collector Widen/Overlay $159,375 Low
Bozeman Trail Chisolm Tr Rickard Local Reconstruct/Pave $297,000 Low
Cline Falls Nutcracker Nutcracker Arterial
Disconnect
Nutcracker $75,000 Low
Subtotal $35,432,114
Federal Forest Highways
Road Name From To Func.
Class
Project Est. Cost Rank
Skyliners Bend UGB
End Co.
Maint. Collector Reconstruct/Pave $11,250,000 High
Burgess Pringle Falls So. Century Collector Reconstruct/Pave $4,125,000 Low
Subtotal $15,375,000
County Intersections $7,081,250
County Road Segments, New $3,463,913
County Road Segments, Existing $35,432,114
Federal Forest Highways $15,375,000
Total of County Road Projects $61,351,778
Highway Intersections
Highway Location Func. Class. Project Est. Cost Rank
US 20 Cook-OB Riley
Principal Arterial – Art
– Collector
Overpass with jug
handles $15,500,000 High
US 97 Lower Bridge
Principal Arterial –
Arterial Grade separation $21,000,000 Med.
US 97* Wickiup Jct
Principal Arterial –
Arterial
Grade separation,
phase I $30,000,000 Med.
US 97 O’Neill Hwy-Pershall
Principal Arterial –
Principal Arterial -
Collector Overpass $9,500,000 Med.
OR 126 Helmholtz
Principal Arterial –
Collector Traffic Signal
$1,250,000
City of Redmond Med.
US 97 Quarry Road
Principal Arterial –
Local Grade separation $15,000,000 Low
US 97 Vandevert
Principal Arterial –
Collector
Disconnect
Vandevert from 97 $2,300,000 Low
US 20 Hamby-Ward
Principal Arterial –
Collector Roundabout $1,000,000 Low
EXHIBIT C ORDINANCE 2012-005 Page 160 of 268
Highway Intersections
Highway Location Func. Class. Project Est. Cost Rank
US 20 Powell Butte Hwy
Principal Arterial –
Arterial Roundabout $1,000,000 Low
OR 31 US 97
Principal Arterial –
Principal Arterial
Turn lanes, then
grade separation $19,000,000 Low
Subtotal $115,550,000
Highway Segments
Highway From To Func Class Project Cost Est. Rank
US 97 11th Av., S O’Neil Hwy Princp. Art. Add travel lanes $9,000,000 High
US 97 South Century La Pine State
Rec
Princp Art Add travel lanes $25,300,000 High
OR 370 US 97 O.5 mi to W Princp Art Overpass of RR $26,100,000 High
US 97 La Pine State
Rec
Drafter Princp Art Add travel lanes $11,800,000 Med
US 20 Hawk’s Beard Rail Way Princp. Art. Add travel lanes $20,000,000 Med
US 20 Couch Market Gerking Mkt Princp Art Add travel lanes $4,900,000 Med
US 20 OB Riley Cooley Princp Art Add travel lanes $2,400,000 Med
US 20 Providence Hamby Princp Art Add travel lanes $2,000,000 Med
OR 126 Quail Tree 2 mi to E Princp Art Add travel lanes $7,900,000 Med
OR 126 Cline Falls Hwy Helmholtz Princp Art Add travel lanes $9,600,000 Med
OR 126 Sherman Crook Co line Princp Art Add travel lanes $6,100,000 Med
Subtotal $125,100,000
Highway Intersections $115,550,000
Highway Segments $125,000,000
Total for Highway Projects $240,650,000
Bike and Pedestrian Projects
Road From To Func Class Project Cost Est. Rank
--------
Tumalo State
Park Riverview --------
10’ multi-use trail,
a/k/a Tumalo Trail $160,000 High
7th St,
Tumalo US 20 Cook Ave Collector
5’ sidewalks on both
sides $10,625 Med.
4th St,
Tumalo Wood Ave Bruce Ave Local
5’ sidewalks on both
sides $13,125 Med
5th St,
Tumalo Wood Ave Cook Ave Local
5’ sidewalks on both
sides $26,250 Med.
5th St,
Terrebonne B Ave C Ave Local
5’ sidewalk on east
side only $11,250 Med.
C Ave,
Terrebonne 6th St US 97 Local
5’ sidewalks on both
sides $45,000 Med.
B Ave,
Terrebonne 5th St 6th St Local
5’ sidewalk on north
side only $5,875 Med.
A Ave,
Terrebonne 11th St 15th St Local
5’ sidewalks on both
sides $50,000 Med.
Smith Rock
Way,
Terrebonne 11th St 15th St Arterial
5’ sidewalks on both
sides $50,000 Med.
C Ave,
Terrebonne US 97 16th St Collector
5’ sidewalk on south
side only $38,750 Low
EXHIBIT C ORDINANCE 2012-005 Page 161 of 268
Bike and Pedestrian Projects
Road From To Func Class Project Cost Est. Rank
11th St S,,
Terrebonne Central Ave US 97St Collector
5’ sidewalks on both
sides $81,250 Low
11th St S,,
Terrebonne
Central Ave US 97St Collector
5’ sidewalks on both
sides $81,250 Low
8th St,
Tumalo Cook Ave Riverview Local
5’ sidewalk on both
sides $17,500 Low
Canal “H,”
Terrebonne 13th St 12th -------l 10’ soft trail $1,875 Low
Canal “H,”
Terrebonne 12th St
400’ south of
A Ave -------------- 10’ soft trail $6,875 Low
B Ave,
Terrebonne
East end of B
at base of
plateau
West end of B
atop plateau ------------- 300’ stairwayl $26,250 Low
4th St,
Terrebonne
North end of
4th on ridge
Forster
DriveWest ------------ 300” stairway $26,250 Low
Subtotal $570,875
County Bridge Projects
Location Sufficiency
Rating
Posting
Required Project Cost Estimate Rank
Tetherow Rd. at
Deschutes River 32.4 Yes New Bridge $1,582,500 High
Cascade Lakes
Hwy at Fall River 46.6 Yes New Bridge $796,250 High
Gribbling Road
at Canal 24 Yes New Bridge $225,000 Low
Wilcox Ave at
Canal 47.2 Yes New Bridge $150,000 Low
Sisemore Road
at Upper
Tumalo Rsrvr 49.1 No New Bridge $687,500 Low
Subtotal $3,441,250
Transportation System Management (TSM) and Transportation Demand Management (TDM)
Regional TDM
program Countywide
County share of funding Commute
Options at $8K per year $160,000 High
Regional TDM
program Countywide
Install ride share lots at future
locations based on 2011-12 study $45,000 Medium
Subtotal $215,000
Total for County Road Projects $61,352,000
Total for Highway Projects 240,650,000
Total for Bike/Ped Projects $570,875
Total for County Bridge Projects $3,441,250
Total for TDM and TSM Projects $215,000
GRAND TOTAL FOR ALL PROJECTS $306,229,125
*Project is within the boundaries of the City of La Pine; however, the City does not yet have a TSP. Once the City
of La Pine TSP is completed the project will be removed from the County TSP. The project will not be used in the
calculation of the County’s transportation System Development Charge (SDC).
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Table 5.3.T2
Illustrative List of Unfunded Highway Projects
Highway Location Func. Class. Project Estimated Cost Rank
US 97 1.3 mi south of Vandevert Princ. Art. Grade separation $27,000,000 Low
US 97 OR 31 Princ. Art. Grade separation $19,000,000 Low
US 20 Old Bend-Redmond Princ. Art. Grade separation $23,000,000 Low
Subtotal $69,000,000
The County recognizes timely maintenance is the most financially responsible manner to manage a road
system to benefit all modes over the long-run. Besides cars and trucks, bicycles and transit benefit from
wider, smoother roadways. Motorists and cyclists will continue to share the roadway in heightened
numbers as cycling continues to increase in economic importance in the region. Improved and well-
maintained roads assist that blending of those users, resulting in a County road system that is safer and
more efficient.
The County’s position is that the main purpose of the County-owned road network is to move people
and goods as efficiently and safely as possible between and to the incorporated cities in the County, not
as a means of increasing urban scale developments in the unincorporated communities of the County.
The County recognizes the importance of having a natural and seamless transition of jurisdiction for
County roads as they enter urban growth boundaries. The County will also pursue jurisdictional
transfers, allowing cities to take over once-County roads as cities expand their UGBs.
Overview of State Highways
The overwhelming majority of deficiencies in the County will occur on the State highway system and
where County roads intersect the State system. The major north-south highway on the east side of the
State, US 97, will become congested from Crooked River Gorge to Redmond and Sunriver to La Pine.
Even the segments of US 97 that are meeting the State’s volume/capacity (v/c) ratio will have high
enough volumes that they will likely require a raised median for safety reasons. US 20 will fail between
Black Butte Ranch and Sisters and in the Tumalo area. OR 126 east and west of Redmond will also not
meet ODOT’s performance standards.
ARTERIAL AND COLLECTOR ROAD PLAN GOALS AND POLICIES
Goal 4
4. Establish a transportation system, supportive of a geographically distributed and diversified economic
base, while also providing a safe, efficient network for residential mobility and tourism.
Policies
4.1. Deschutes County shall:
a. Consider the road network to be the most important and valuable component of the
transportation system; and
b. Consider the preservation and maintenance and repair of the County road network to
be vital to the continued and future utility of the County’s transportation system.
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4.2 Deschutes County shall not add any miles of new arterials or collectors to the system unless the
following issues are satisfied:
a. The need for the road can be clearly demonstrated;
b. The County can financially absorb the additional maintenance requirements;
c. The condition of the road proposed for acceptance into the County system must meet
County road standards;
d. An accrued benefit can be shown to the County’s economic growth;
e. The Board determines there have been adequate replacement revenues to off the loss
of timber payments from the federal program;
f. An overall increase in efficiency in the County road network can be demonstrated.
4.3 Deschutes County shall make transportation decisions with consideration of land use impacts,
including but not limited to, adjacent land use patterns, both existing and planned, and their
designated uses and densities.
4.4 Deschutes County shall consider roadway function, classification and capacity as criteria for plan
map amendments and zone changes. This shall assure that proposed land uses do not exceed
the planned capacity of the transportation system.
4.5 Roads in Deschutes County shall be located, designed and constructed to meet their planned
function and provide space for motor vehicle travel and bike and pedestrian facilities where required.
4.6 Deschutes County shall manage the development process to obtain adequate street right-of-way
and improvements commensurate with the level and impact of development. New development
shall provide traffic impact analysis to assess these impacts and to help determine transportation
system needs. The guidelines for traffic impact analysis shall be located within DCC
Chapter 17.48. Deschutes County Road Design and Specification Standards.
4.7 Transportation system improvements in Deschutes County shall comply with the Americans
with Disabilities Act.
4.8 Transportation safety in Deschutes County shall improve for all modes through approved design
practice and sound engineering principles.
4.9 Deschutes County shall acquire the necessary right-of-way through the development process to
correct street intersections, substandard road geometry or other problems in order to improve
the safety of a road alignment, consistent with constitutional limitations.
4.10 Deschutes County shall support efforts to educate the public regarding hazards related to travel
on the transportation system.
4.11 Deschutes County shall support public and private efforts to acquire right-of-way for new
secondary access roads to isolated subdivisions.
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Future State Highway Projects and Policies
Chapters Three and Four summarized the deficiencies and potential solutions for the ODOT facilities in
Deschutes County. As traffic volumes rise and the State highways begin to degrade, ODOT has outlined a
policy to improve rural two-lane highways through a “four-phase approach.” Deschutes County supports
this strategy. The four phases take place incrementally and proceed through the following levels:
1. Addition of passing or climbing lanes
2. Widening to a four-lane section
3. Adding grade-separated interchanges and raised medians
4. Develop full grade-separated interchanges and frontage roads
Through a coordinated analysis effort between ODOT and County staff, the probable locations of future
passing and climbing lanes on the state highways in Deschutes County were identified. Also identified were
the probable locations of future grade-separated interchanges. The projected highway lane additions and
interchanges, shown on Figures 5.2.F1 and 5.2.F2, are in conceptual form. Actual locations and design would
be the result of detailed engineering work occurring during project development.
No signals are appropriate on State highways outside of UGBs or in the unincorporated communities of
Terrebonne and Tumalo. Drivers on high-speed rural highways do not expect to encounter traffic
signals and thus run red lights. In Terrebonne and Tumalo the highway volumes are so high that
stopping highway traffic would result in queues on the highway blocking County roads. The queues
would thus defeat the purpose of the traffic signal, which is to accommodate side street traffic to cross
or enter the highway. Instead, as intersections develop safety or operational problems, they shall be
grade-separated, restricted or closed (where there is alternative access). If ODOT chooses to pursue
traffic signals in Terrebonne and Tumalo, the agency will need to conclusively demonstrate County
roads will not be adversely affected.
The following descriptions identify the roles the state highways are expected to play in Deschutes
County over the next 20 years.
US 97
As described in Chapter Two, US 97 is the principal north-south route through Central Oregon, linking
Oregon to California and Washington state. The traffic volumes and the sheer number of tractor-
trailers attest to the route’s primacy. While the highway has been relocated from the centers of Bend
and Redmond, US 97 remains the main thoroughfare in Terrebonne and La Pine. The City of La Pine, in
the area once known as Wickiup Junction, has the only remaining site in all of Oregon where a
Statewide Highway crosses a mainline railroad at-grade. US 97 crosses the BNSF tracks near Burgess
Road. Outside of urban areas, a mix of two-, three-, and four-lane sections characterize US 97. (The
three-lane sections have passing lanes in one direction only.)
By 2030 the anticipated volumes in the rural areas, as reported in Technical Memo #3, will approach:
• 17,600 at the County’s north edge;
• 25,000 in Terrebonne;
• 46,300 north of Bend;
• 23,200 south of Sunriver;
• 15,100 by Wickiup Junction; and
• 12,200 by OR 31 at the County’s south edge.
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The long-term plan to handle these volumes, which are approximately a 33 percent to 50 percent
increase over existing volumes, is to make US 97 a divided four-lane highway throughout the County.
Planned improvements for US 97 include $52.8 million in lane additions, $69.6 million in overpasses and
grade-separated interchanges, and $80 million to realign US 97 as the second phase of the Wickiup
Junction interchange.
There in one location where the four-phased approach will not be followed. Deschutes County and
ODOT have agreed US 97 will remain a three-lane cross-section in Terrebonne. The reason is due to
significant residential development on both sides of the highway, the elementary school on the west
side, commercial development along the flanks of US 97, and the observed high demands to cross the
highway. Traffic calming and pedestrian safety are more important than through traffic movement.
Improvements to US 97 in the Terrebonne area will focus on non-widening options such as access
management, a couplet, traffic signals, or a bypass. The intersection of Lower Bridge Way/US 97 will
have either a simple overpass or a grade-separated interchange. The time of delay of driver trying to get
through Terrebonne is insignificant to the overall travel time along the corridor.
ODOT and Deschutes County will conduct a refinement plan for Terrebonne based on the goals and
objectives of the adopted Terrebonne Community Plan, the goals and objectives of the Oregon Highway
Plan, and additional public input and outreach. From a County planning perspective, this is a high-
priority project.
In the Redmond area, the three main projects are: (1) addressing O’Neil Junction by adding an overpass
over US 97 that disconnects O’Neil Highway and Pershall Way from the highway; (2) determining the
southern terminus of Redmond Re-Route Phase II; and (3) developing a conceptual footprint of the
US 97/Quarry Road interchange including how Helmholtz Way will connect on the west end.
Between Bend and Redmond the traffic volumes will exceed the threshold ODOT has set for triggering
a raised median. The County supports a raised median on US 97, provided an adequate system of
frontage road(s) or parallel local alternate routes precede the raised median’s installation.
In the Bend area the major issues of ODOT selecting a preferred alternative for US 97 at the north end
of Bend (a draft Environmental Impact Statement [EIS] was issued summer 2011). Once a preferred
alternative is approved, the County TSP will likely need to be amended. The other Bend area issue is at
the opposite end of the City, completion of the Lava Butte project to separate the travel lanes of US 97.
The project is due to be completed in 2012 and median barrier is planned for 2015.
The volumes, both current and forecast, are lower between Bend and Klamath County than those from
Bend to Redmond. Still, there are capacity issues and safety concerns, particularly in winter. US 97 will
ultimately be a divided four-lane facility on the rural lands between Bend and Klamath County. The City
of La Pine TSP will address the highway in the urban or urbanizing areas from the Wickiup Junction area
south to the end of La Pine.
EXHIBIT C ORDINANCE 2012-005 Page 166 of 268
US 20
US 20 is the principal east-west route through Central Oregon, tying the Mid- and Upper Willamette
Valley to the High Desert. The highway sees a fair amount of truck traffic and recreational traffic in both
winter and summer. The majority of US 20 is two lanes with the majority of the passing lane sections
located between Bend and Sisters; there are a few passing lanes between Sisters and the County line. East
of Bend there are passing lanes tied to topography where the highway crosses Horse Ridge.
The 2030 higher volumes will range from 11,900 by Tollgate to 19,200 in the Tumalo area to 15,900 at
the east edge of Bend. These are substantially higher than existing (2009) volumes, but less than on
US 97. The 2030 volumes will be below ODOT’s threshold for a raised median which under Oregon
Highway Plan Police 3B is 28,000 ADT. However, US 20 at the western edge of the County does have a
history of weather-related crashes in winter, so four-phased improvements will be needed for safety
reasons. Policy 3B under Action Item 3B.3 calls for raised medians when the crash rate exceeds the
statewide average for similar facilities.
Planned improvements for US 20 include $31.9 million in additional travel lanes and $43.9 for
intersection improvements, including overpasses, grade-separated interchanges, and roundabouts. (The
County recognizes ODOT has reversed its position while the TSP was being developed, and the agency
now has qualms about roundabouts. The County acknowledges ODOT can choose a different form of
intersection improvements, but the County will base its financial contribution on a rural roundabout.)
There are two projects proposed for US 20 that drew unfavorable comments from the public. The first
is the passing lanes between Black Butte Ranch and Sisters and the second is the long-term
improvement at Cook Avenue-OB Riley in Tumalo (see Chapter 4 for a fuller discussion of the relevant
issues). The County, ODOT, City of Sisters, and the public attempted to identify mutually agreeable
“triggers” for the passing lanes during the public hearings.
Volumes between Sisters and Bend are low enough that no additional lanes are needed except for the
segment Couch Market and Gerking Market roads. The lack of parallel local road will make reducing
the number of direct driveway accesses onto US 20 a challenge.
In the Bend area, the planned improvements are additional lanes from Providence Drive to Hamby Road
and intersection improvements at Old Bend Redmond Highway, Hamby-Ward, and Powell Butte
Highway. These are related to traffic increases on both US 20 and the connecting arterial or collector.
For Old Bend Redmond ODOT and the County will need to conducts a refinement plan to determine if
the solution is a simple overpass or a grade-separated interchange. The crash history at this location is
what is driving the improvement as drivers unsuccessfully attempt to cross the highway or turn onto the
highway. The County is proposing roundabouts on US 20 at Hamby-Ward and the Powell Butte
Highway (see Chapter Four for discussion of the issue).
OR 126
OR 126 passes west to east through Sisters and Redmond and on to Prineville, before connecting to US
Highway 26 and on to eastern Oregon. In Deschutes County OR 126 has lower volumes than US 20,
reflecting the degree of magnitude in the population difference of Bend and Redmond. In 2009 the
volume near Cline Falls, which is the highest on the rural portion, was 8,500 ADT which in 2030 will
grow to 18,900. The segment leading to the Deschutes/Crook County line will increase from 7,000
ADT to 16,600.
EXHIBIT C ORDINANCE 2012-005 Page 167 of 268
With the completion of the Cline Falls interchange in 1997, there are few transportation issues
remaining or anticipated on this facility in the rural areas. The only improvements needed in 2030 are
passing lanes just to the east and west of Redmond and a traffic signal at OR 126 and Helmholtz.
Congestion on OR 126 within Redmond will cause drivers to divert to Helmholtz to go south, which
will require improvements to Helmholtz and South Canal Boulevard.
As is the case with US 20 between Bend and Sisters, there are really no parallel local roads to provide
drivers and cyclists with an alternative to the highway.
OR 31
The Fremont Highway angles through the Basin and Range country to US 395 in Lake County. There
are no capacity issues on the highway, including the few miles that lie within Deschutes County. The
intersection of US 97/OR 31 does have capacity issues by 2030 as high through volumes on US 97 will
thwart drivers on OR 31 wishing to turn left to head south to OR 58 or Klamath Falls. While the
ultimate solution would be a grade-separated interchange, separate left and right turn lanes on OR 31
will likely be sufficient for the planning horizon.
OR 27
A scenic route between OR 126 in Prineville and US 20 east of Millican, there are no capacity issues or
safety issues. The section in Deschutes County is gravel, but given the ADT there is no reason to pave
this District-level highway.
OR 370
The issues on the O’Neil Highway are not about total traffic volume. To the immediate east of US 97
the existing ADT is 1,900 ADT which will become 3,000 ADT by 2030. However, the O’Neil Highway
carries a significant amount of truck traffic, particularly from the aggregate sites in western Crook
County. Additionally, there are safety problems where the O’Neil Highway, rarely known by its
numeric designation of OR 370, intersects US 97.
The flashing yellow beacon will be replaced by a simple overpass, disconnecting the O’Neil Highway
from US 97 while simultaneously providing a direct link to Pershall Way on the west side. As part of
the overpass project, the Board of County Commissioners will have to approve disconnecting Pershall
Way, a County road, from US 97.
The O’Neil Highway has curve restrictions on the Crook County and also just west of US 97 as O’Neil
crosses the multiple tracks of the BNSF and the Prineville Railway. A combination of a grade-separation
and realignment of the O’Neil Highway will correct the problem.
OR 372
Known as Cascade Lakes Highway, there are no capacity issues on this highway. The state highway ends
at Mount Bachelor and the County portion of the road is seasonally closed at the snow gate near
Dutchman Flat Sno-Park.
EXHIBIT C ORDINANCE 2012-005 Page 168 of 268
OR 242
No capacity or safety issues; the highway is seasonally closed at the snow gate from October to
whenever the snow is finally removed. The McKenzie Highway has opened for vehicular traffic as early
as the beginning of May and as late the end of July.
County Roads
The vast majority of the County’s arterials and collectors have sufficient capacity to accommodate the
forecast 2030 traffic volumes. The following descriptions identify the few segment roles that will require
improvement; most of the needs are on the urban fringe.
Baker Road
The segment near the US 97 interchanges climbs from 6,174 ADT to 11,100 ADT. This segment is
complicated by proximity to the BNSF tracks and local circulation patterns.
Burgess Road
The section lies to the west of the City of La Pine and requires adding a center turn lane and widening
the bridge over the Little Deschutes River.
Canal Boulevard
In the area between 61st Street/Quarry to Helmholtz the ADT changes from a high of 4,910 ADT to
16,500 ADT, necessitating a center turn lane to remove left turns from the travel lanes.
Cline Falls Highway
The improvements are tied to a combination of increased ADT on OR 126 and Cline Falls Highway,
both of which result in longer lines of vehicles waiting to enter the highway or the County road. The
solution is to disconnect Nutcracker Drive from Cline Falls Highway due to Nutcracker’s close
proximity to the OR 126 ramps. Nutcracker serves the northern area of Eagle Crest, but there is
reasonable alternate access via the main entrance to the resort.
Deschutes Market Road
The update reclassified Deschutes Market back to its original designation of rural arterial. Near Hamehook
the existing ADT is 5,592, but in 2030 it is forecast to reach 10,600 for this same area. That future volume,
however, is predicated on Cooley Road being extended from 18th Street to Deschutes Market. Until that
happens, the proposed rural roundabout at Deschutes Market/Hamehook will not be necessary.
Helmholtz Way
As congestion increases on OR 126 and 5th and 6th streets in downtown Redmond, drivers on the west
side of Redmond will begin to increasingly use this north-south corridor. Current volumes on
Helmholtz range from 1,188 ADT near Coyner to 2,909 just north of OR 126. The forecast 2030
volumes range from 12,000 near Maple Avenue to 19,700 by OR 126. The growth in traffic and the
EXHIBIT C ORDINANCE 2012-005 Page 169 of 268
need for a viable west side ring road for Redmond means adding travel lanes and a center turn lane from
Elkhorn to Maple, a center turn lane from South Canal to Elkhorn, and a rural roundabout at SW Canal.
Northwest Way
The current ADT is 2,244 but in 2030 that becomes 10,800 as Northwest Way is parallel local
alternative to US 97 between Redmond and Terrebonne as well as OR 126 and the north edge of
Redmond. The planned improvement is to add travel lanes and a center-turn lane between Pershall and
Maple Avenue.
Powell Butte Highway
This County arterial provides access to the Bend Airport, US 20, and is a major commuting route
between Bend and Prineville. At US 20 the current ADT is 5,346 and in 2030 it will become 7,800 and
at the Deschutes/Crook County line the ADT grows from 3,617 to 6,700. While the increase will not
require adding capacity to the Powell Butte, the volumes on the Powell Butte and the several
intersecting County roads and US 20 will require improvements. The planned improvements will be at
Butler Market and Neff-Alfalfa roads as well as the previously discuss rural roundabout at US 20.
South Century Drive
The segment near Spring River Road, which is at the south edge of Sunriver, has a current ADT of
nearly 4,500 which by 2030 will become 8,700. Spring River will go from approximately 4,000 ADT to
5,700. The result is the need for a rural roundabout at South Century/Spring River.
Access Management Policies
Roads accommodate two types of travel: local travel and through traffic. Arterial streets are intended
for through movement of traffic at higher speeds while local roads are designed to give direct access to
the abutting properties. Collector roads provide a link between the local and arterial roads, balancing
accessibility and function. Historically, the state and local governments corrected many congestion
problems by constructing new bypasses, grade separations or major street improvements. However,
such solutions are expensive and are fast becoming infeasible under current funding levels.
Arterial roads without access management can over time become overused for short distance trips and
local access to property. Land use changes along these overburdened arterials results in increased trip
generation and traffic conflicts, as businesses normally desire to locate on high traffic arterials. The lack
of adequate access management and insufficient coordination of land use development, property division
and access review can contribute to the deterioration of both the arterial and collector road network.
Traffic signals, new road approaches and driveways can decrease speed and capacity, and increase both
congestion and hazards. Access management includes the control of vehicular access to major
roadways. Partial access control, which is often found on major arterials and highways, is provided by
limiting or prohibiting driveway access, left turn movements and cross traffic at intersections. These
limitations increase the capacity of an arterial to carry through traffic at the desired speeds without
requiring the addition of more travel lanes. Coordination, planning and proper policies can help avoid
these problems and costly solutions.
EXHIBIT C ORDINANCE 2012-005 Page 170 of 268
ACCESS MANAGEMENT GOALS AND POLICIES
Goal 5
5. Maintain an access management system adequate to protect the quality and function of the
arterial and collector street system.
Policies
5.1 Deschutes County shall designate access and land uses appropriate to the function of a given
road.
5.2 Deschutes County shall require new development to minimize direct access points onto
arterials and collectors by encouraging the utilization of common driveways.
5.3 Wherever practical, access to state highways shall be provided via frontage roads, alternative
local roads or other means, rather than direct access to the highway.
5.4 A non-traversible median on state highways shall be installed by ODOT when operational or
safety issues warrant installation as set forth by Policy 3B: Medians in the Oregon Highway Plan.
Directional breaks in the median may be allowed as needed, provided traffic operations are still
safe.
5.5 Access requests onto Deschutes County arterials and collectors for new partitions, subdivisions
and commercial and industrial development shall be processed with the following access
management classification system in mind:
a. Public road access spaced at no less than every 500 feet on arterials and 300 feet on
collectors.
b. If either safety or environmental factors, or the unavailability of adequate distance
between access points requires placing access points at lesser intervals, then access shall
be denied or the best alternative placement shall be chosen. On road segments that are
already severely impacted by numerous access points or on road segments which abut
exception areas, adherence to the above standards may be either unreasonable or
counterproductive to infill of exception areas. In such cases, these standards may be
relaxed by the County Road Department Director to accommodate the
aforementioned special conditions.
Functional Classification
Functional classification describes how the public road system should operate. Roads are grouped by their
similar characteristics in providing mobility and/or land access. Within the County, there are nine road
classifications: primary arterial i.e., State highways, rural arterial, urban arterial, future rural arterial, rural
collector, urban collector, future rural collector, forest highway and local road. Continuing coordination is
needed between the County and cities in Deschutes County regarding the functional classification of
County roads within city limits and urban growth boundaries. The County prefers cities be the road
authority and maintain, operate, and plan for all roads within their city limits and UGBs.
EXHIBIT C ORDINANCE 2012-005 Page 171 of 268
Currently, the County maintains approximately 21 miles of roadway within city limits and urban growth
boundaries. The County lacks funds to upgrade these roads to city urban standards. Strengthening and
revising Urban Growth Management agreements with cities may be an effective way to pursue tight
coordination on this important issue and reduce the long-term financial burden to the County. As an
example, the County and the City of Bend agreed that as of July 1, 1998, all roads within the Bend UGB
will become the responsibility of the City of Bend. This shift reduced the County’s urban road mileage by
approximately 70% at the time.
The Deschutes County Comprehensive Plan Map will be retained in official replica form as an electronic
map layer within the County Geographic Information System and is adopted as part of this Plan. The
TSP map is shown as Figure F5.3.F14.
Bend TSP
The City of Bend is responding to the State’s remand of the City’s proposed UGB expansion. The City
expects to submit a revised proposal by late 2012. Given the uncertainty about which geographic
direction the UGB will expand and what the subsequent transportation effects will be, it would be
imprudent to amend the Deschutes County TSP at this time for Bend area roads. Once the City of
Bend has a formal UGB proposal the County will amend the County’s TSP to be consistent with the
City’s proposal. This will include road improvements, future road corridors, reclassifications, etc.
In the Bend area the County has made reclassifications based on discussions with County and City staff.
They are discussed in the County Roads section that follows the City TSP summaries.
Redmond TSP
The 2008 Redmond TSP at Figure 9-1 and Page 9-3 lists a series of functional reclassifications. The
following County roads within the Redmond UGB will need to be reclassified in order for the plans to
be consistent. The City has major and minor subcategories for arterials and collectors. The County
does not have these classifications. The designation of County roads outside of UGBs shall remain
consistent with the County functional classes of Rural Arterial and Rural Collector. The County shall
require at least a four-foot shoulder bikeway along those sections of road within the County that are
extensions of designated Minor Arterials and Major Collectors on the Redmond Plan.
Rural Collector to Rural Arterial:
• Helmholtz Way: (43rd St.) Between NW Maple Avenue and South Canal Boulevard
• Northwest Way: Maple Avenue to future west extension of Pershall Way.
• NW Maple Avenue: between Helmholtz Way (43rd St. ) and Northwest Way (27th St.)
Local to Rural Collector:
• Elkhorn Avenue: SW Helmholtz to 39th St.
• NW Spruce: UGB Boundary to Northwest Way
EXHIBIT C ORDINANCE 2012-005 Page 172 of 268
Other Changes:
• Pershall Way: Future Urban Arterial extending west to Helmholtz Way
• Pershall Way: Rural Collector to NW 19th St once Pershall Extension is constructed
• Northwest Way: Future Urban Arterial extending from NW Maple south to NW 27th St
• Northwest Maple: Future Urban Arterial extending west from NW 35th St to
NW Helmholtz Way
• Quartz: Show Future Collector extending west from SW 37th St. to Helmholtz Way
Sisters TSP
No changes to existing County roads, no new County roads proposed.
La Pine TSP
The City has not yet begun its TSP planning process. County staff is willing to assist the City once La
Pine begins the effort. The chief goal for the County is preparing a Joint Management Agreement (JMA)
and having the City take over maintenance of the roads within the City’s UGB.
County Roads
Based on conversations with County Planning and Road Department staff; conversations with staff from
Bend, La Pine, Redmond, Sisters and ODOT; review of current and future traffic volumes; and the
distribution of arterials and collectors the County determined several roads are in need of
reclassification. The following roads need to be reclassified.
Rural Collector to Rural Arterial:
• Deschutes Market Road: Bend UGB north to Deschutes Junction interchange
• OB Riley: Cooley Road south to Bend UGB
• Hamby Road: Butler Market Road south to US 20
• Ward Road: US 20 south to Stevens Road
Future Rural Collector to Future Rural Arterial:
• Cooley Road Extension: US 20 west of OB Riley then back east to Glen Vista
Rural Collector added to system the following road that was built since 1998 adoption
• Skyline Ranch Road: Skyliners Road to Century Drive
Other Road Issues
Several rural subdivisions in South County border forests but lack any secondary access. Figures 5.3.F3
through 5.3.F11broadly identify potential solutions. These secondary accesses would be gated and are
intended only for emergency evacuations. Due to the swampy terrain several will require bridges. In
some cases a dirt road currently exists, but does fall within a dedicated right-of-way or an easement
across public land. The emergency secondary access roads or corridors listed in Figures 5.3.F3-F11 are
all subject to future engineering and design, rather than specific alignments. They would be built to the
County’s standard for a 20’ foot local road.
Deschutes County functional classification goals and policies are as follows.
EXHIBIT C ORDINANCE 2012-005 Page 173 of 268
FUNCTIONAL CLASSIFICATION GOALS AND POLICIES
Goal 6
6. Designate access and land uses appropriate to the function of a given road.
Policies
6.1 Deschutes County shall:
a. Coordinate the County Transportation System Plan with the transportation system
plans of the cities of Bend, La Pine, Redmond and Sisters. The County shall emphasize
continuity in the classification of roads and appropriate design standards for roads that
link urban areas with rural areas outside the urban growth boundaries. The County and
affected city shall agree on the functional classification and design standards of County
roads within the proposed UGB area.
b. Request the transfer, or an agreement to transfer with specific timelines and milestones,
jurisdiction of County roadways within the urban growth boundaries to their respective
cities at the time of annexation. County policy also directs that any developer of
property who proposes annexation and who has frontage on a road that does not meet
city standards shall have the primary responsibility for upgrading the road to applicable
city specifications. Roads shall be upgraded prior to or at the time of annexation, or the
developer shall sign an agreement with the city to upgrade the road, at the time of
development. Transfer of road jurisdiction shall require the approval of both the
County and affected city in accordance with the provisions in ORS 373.270.
c. Future roads outside of city limits but within Urban Growth Boundaries shall have right of
dedications sufficient to meet the relevant city standards, but the road shall be constructed
to County standards. The County will support a developer who chooses to build the road
to the full urban standards of the relevant city instead of to County standard.
d. Coordinate the County Transportation System Plan with surrounding County TSPs.
Road and Street Standards
Historically, County road and street standards and specifications had been located in various places
throughout the County Zoning and Subdivision Ordinances, making it a difficult task to implement
standards uniformly and update them as needed. In the 1998 TSP the County decided to create a
specific section in the development code for road and street standards, thus ensuring they could be
modified without requiring an amendment to the Comprehensive Plan.
The County’s road and street standards are contained in DCC Chapter 17.48, Design and Construction
Specifications and summarized in Table A (roads) and Table B (bike and pedestrian facilities). DCC
Chapter 17.48 reflects the County’s desire to no longer have urban road standards, only rural road
standards, including specific standards for the unincorporated communities of Terrebonne and Tumalo.
EXHIBIT C ORDINANCE 2012-005 Page 174 of 268
ROAD AND STREET STANDARDS GOALS AND POLICIES
Goal 7
7. Update as needed DCC Chapter 17.48, Design and Construction Specifications, to ensure all
aspects of construction related to roads, pedestrian walkways and bicycle facilities occurring
outside designated urban growth boundaries in Deschutes County are adequate to meet the
needs of the traveling public.
Policies
7.1 Any new or reconstructed rural roads shall be built to the standards set forth in DCC Chapter
17.48, Table A. Bicycle and pedestrian facilities shall be built to the standards set forth in DCC
Chapter 17.48, Table B.
7.2 Road, pedestrian and bicycle projects occurring in unincorporated areas within urban growth
boundaries shall be governed by the respective city’s road and street standards. Those
requirements shall be coordinated between the city, the County and the applicant during the
land use process according to procedures to be identified in the Deschutes County Road
Standards and Specifications document.
7.3 Review every three to five years the adopted criteria in DCC 17.16.115 for the requirement of
various levels of traffic analysis for each new rural development.
Road Management System
The roads in Deschutes County are maintained with funds from state motor vehicle revenue (gas tax,
vehicle registration, and truck tax) and federal forest receipts from timber sales in the Deschutes
National Forest. These funds are dedicated for expenditure on roads and restricted by state law to use
only on those roads that have been established by the Board of County Commissioners as "County
Roads." The Road Department maintains more than 830 miles of County Roads in rural Deschutes
County. Of those miles, nearly 700 are paved and almost 140 miles are unpaved.
The Deschutes County Road Department through its pavement management system annually assesses
the condition of the County-maintained roads. The Road Department also collects information on
traffic volumes on the County system, counting the major roads on average once every two to four
years. Through an orderly scheduling of pavement preservation, maintenance, repairs and small-scale
improvements, the Road Department attempts to assure the County Road system meets physical
standards and Level of Service (LOS) for operations. Deschutes County Road Department crews carry
out routine maintenance activities daily and other tasks on a seasonal basis (vegetation control, pothole
patching, painting strips on the road, or snow plowing for example). Road sections requiring more
extensive work are prioritized with those larger improvements are put out to bid for private
contractors to perform (road paving, road construction, turn lanes, traffic signal installations, etc., are
examples of work put out to bid).
In addition to County-maintained roads, there are public rights-of-way where the public has the right to
drive on the road, but the road is not maintained by any jurisdiction. There are an additional 376 miles
of roads in rural Deschutes County that are dedicated to the public, meaning the general public has the
right to drive on them, but these roads are not maintained by any government jurisdiction. Known as
EXHIBIT C ORDINANCE 2012-005 Page 175 of 268
“local access roads,” they are the maintenance responsibility of the abutting property owners. The
traffic volumes are low on these roads, but even at low volumes they present a maintenance challenge
for the adjoining property owners. Also as they are public rights-of-way, drivers outside the area can
travel on these roads.
Unfortunately, the County’s limited resources do not provide adequate funding to improve or maintain
these local access roads. Property owners have several options available to maintain or improve their
local access road:
• Informally collect money from the area residents and hire a contractor to perform road
maintenance
• Form a Special Road District to tax area residents for road maintenance
• Previously, property owners would form a Local Improvement District to then improve the
roads to County standards for acceptance into the County-maintained road system. However,
following the loss of timber funds, the County in 2006 approved a road moratorium on
accepting any new roads into the County-maintained system. In 2009 the Board of County
Commissioners approved a revised ordinance that allowed the County to consider collectors
and arterials into the County-maintained system, but the moratorium on establishing new local
roads into the County-maintained system continues.
ROAD MANAGEMENT SYSTEM GOALS AND POLICIES
Goal 8
8. Maintain the County road network pavement in good to excellent condition.
Policies
8.1 Deschutes County shall continue to maintain and preserve the County road network through its
pavement management system which guides a program of paving, repairing, reconstruction,
drainage clearance and vegetation control.
8.2 After safety-related issues, the highest volume road segments shall be the next priority for
County road maintenance and repair.
8.3 If and when gravel or dirt roads are paved by the County, the main controlling criteria shall be:
re-establishment of adequate funding for long-term maintenance, density of surrounding
development, traffic volumes, road classification, gap filling, potential school bus routing
efficiency and emergency evacuation potential.
Performance Standards
The County and ODOT have adopted performance standards for their respective roads and highways.
Deschutes County uses Level of Service (LOS) while ODOT adheres to Volume/Capacity (V/C) ratios.
The intent is to set a clear and objective standard to ensure the roads and highways are safe, efficient,
and economical. The standards are applied during land use review and when developing improvement
projects. The standards also ensure roads and highways are not overbuilt and remain in the appropriate
context of their surroundings.
EXHIBIT C ORDINANCE 2012-005 Page 176 of 268
Level of Service (County roads)
Levels of service (LOS) describe the service quality on two-lane roads or highways as determined by
average travel speed, percent of time delay due to the inability to pass, roadway capacity utilization, type
of terrain (level, rolling, or mountainous) or intersection delay. LOS ratings apply to County roads only.
LOS is defined by a range of designations from “A” to “F”. LOS A is completely unimpeded traffic flow
while F is highly congested. Table 5.3.T2 identifies the relationship between two-way average daily traffic
volumes, level of service and the percentage of daily traffic that occurs during the peak travel hours of the
day (K factor). Deschutes County sets a standard of LOS D for existing roads and LOS C for new roads.
While several road segments are expected to reach LOS E by 2030, the overwhelming majority of
County roads will be at LOS D or better as long as population growth does not exceed the projections.
The projects previously listed in Table 5.3.T1 are intended to return those roads that exceed LOS D
back to LOS D or better.
Table 5.3.T3
Deschutes County Roads Maximum Average Daily Traffic by Levels of Service
K Factor Level of Service
A B C D E
10% 1,700 3,400 5,700 9,600 16,300
PERFORMANCE STANDARDS GOALS AND POLICIES
Goal 9
9. Maintain a level of service of “D” or better during the peak hour throughout the County arterial
and collector road system over the next 20 years.
Policy
9.1 Deschutes County shall continue to monitor road volumes on the County arterial and collector
network. The County Road Department shall continue to be the department responsible for
monitoring volumes and shall strive to count each arterial and collector at least once every four
years. The Road Department shall periodically examine the traffic volumes to identify level of
service deterioration.
Volume/Capacity ratio (State highways)
While LOS utilizes perceived delay, V/C uses observed traffic volumes divided by the theoretical
carrying capacity of a highway segment or intersection. When a County road and a State highway
intersect, ODOT’s V/C ratio is the controlling performance standard.
ODOT sets the V/C ratio at Table 6 Oregon Highway Plan for a highway segment or intersection based
on roadside context (urban vs. rural), posted speed, and classification of the highway. The applicable
V/C ratios for roads in rural Deschutes County can range from 0.70 V/C to 0.80. Projects listed in
Table 5.3.T1 will return segments or intersections forecast to fail in 2030 to acceptable V/C ratios.
EXHIBIT C ORDINANCE 2012-005 Page 177 of 268
Goal 10
10. Maintain the current arterial and collector system in the County and prevent degradation of the
capacity of the system.
Policies
10.1 Deschutes County shall monitor County arterials and collectors to help in the determination of
when road improvement projects are necessary.
10.2 Deschutes County shall continue to work with the ODOT, the Cities of Bend, La Pine,
Redmond and Sisters, and neighboring counties to coordinate solutions to highway and non-
highway road issues that cross over jurisdictional boundaries.
10.3 The County shall establish requirements and adopt standards for secondary access roads to
isolated rural subdivisions.
Bridges
Deschutes County owns and manages approximately 120 bridges throughout the County. The County
Road Department performs routine maintenance and repairs as necessary. Due to structural deficiency
several bridges are signed for weight limitations based weight, tractor-trailer combinations, and number
of axles.
BRIDGES GOALS AND POLICIES
Goal 11
12. Maintain a safe and efficient network of bridges on County roadways.
Policy
11.1 Deschutes County shall monitor the condition of County bridges on a regular basis, and
perform routine maintenance and repair when necessary. The County shall also explore
additional funding sources when major reconstruction or replacement of bridges is necessary.
Truck Routes
The Oregon Highway Plan designates both US 97 and US 20 as Freight Routes. Both ODOT and the
County prohibit trucks from certain highway or roadway segments only due to length of the truck and
trailer or selected bridges due to the weight of the load. Oregon is one of the few states that currently
allows oversized tractor-trailer vehicles referred to as Longer Combination Vehicles (LCVs) on certain
highways. Two types of LCVs, triple trailers and heavier double trailers (105,000-lb weight limit) are
allowed to operate in Oregon without a special permit. Truck traffic is generally confined to industrial
and commercial areas or surface mines and national forests.
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The majority of truck traffic in the County travels on State highways although truck will travel on
County and City roads to reach local origin and destinations or USFS roads to timberlands. The County
shall continue to designate State highways as the desired through truck routes in the County. Outside
of the State highway system, trucks should be limited to travel only on arterial roads unless there is no
other reasonable alternative or there is a local origin or destination.
There are federal protocols for designating truck routes based on either cargo (for example, not
allowing explosives to be transported through tunnels) or special populations located adjacent or in
close proximity to the roadway (schools, convalescent homes for example) or deficiencies in the
infrastructure (load-rated bridges or sharp curves, for example). Outside of these limited instances,
however, a legal load can travel any State highway or County road.
TRUCK ROUTES GOALS AND POLICIES
Goal 12
12. Develop a plan of designated truck routes on County arterials.
Policies
12.1 Deschutes County shall designate that long-haul, through trucks, be limited to operating on
Principal Arterial and Rural Arterial roads as designated in the County transportation network,
except in emergency situations and when no reasonable alternative arterial road is available for
access to commercial or industrial uses.
12.2 Deschutes County shall support economic development by encouraging ODOT to prioritize
modernization, preservation, and safety projects on highways designated as Freight Routes over
Non-Freight Routes
Facility / Safety Improvements
Deschutes County and ODOT track crashes on their respective facilities. The data include location,
time, whether there were fatalities and severity of injuries, type of collision, weather, etc. This
information is then utilized to determine appropriate countermeasures to prevent or reduce the
number of future crashes based on the crash rate per ADT. A location with very high traffic volumes
and a high accident rate may be safer than a location with low volumes but a high accident per average
daily trip (ADT) rate. The “high priority” projects in the Project List subsection of this Plan includes
improvement projects recommended to improve safety.
FACILITY/SAFETY MANAGEMENT GOALS AND POLICIES
Goal 13
13. Maintain a safe and efficient network of roadways.
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Policy
13.1 Deschutes County shall develop and maintain a prioritized inventory of safety-deficient facilities
on the County road network and give highest priority to correcting safety issues.
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5.4 Public Transportation Plan
As detailed in Chapter 2, several providers offer public transportation services in Deschutes County.
Cascades East Transit (CET) offers regularly scheduled services throughout the tri-county area,
coordinating schedules with the fixed-route services of Bend Area Transit (BAT). Hawthorne Station at
Third Street (Business US 20) and Hawthorne is centroid for CET, BAT, and other public transportation
servers.
Central Oregon Intergovernmental Council (COIC) was recently awarded two grants, one is to develop
a long-range public transportation plan for Central Oregon and the other is to determine where to
expand the region’s park and ride lot system. The Bend Metropolitan Organization (BMPO) is starting a
long-range transit plan for the MPO. The County will participate on technical and steering committees
for these plans. Once the plans determine their final alternatives, the TSP can be amended as needed to
incorporate the plans’ recommendations.
Both the previously discussed Central Oregon Rail Plan and the COIC public transportation study will also
revisit the issue of passenger rail. ODOT’s 1992 Oregon Rail Passenger Plan determined passenger rail was
not cost-effective for Central Oregon. The County will participate in the re-examination of the topic.
PUBLIC TRANSPORTATION PLAN GOALS AND POLICIES
Goal 14
14.1 Enhance the opportunity for intermodal connections throughout the County transportation
system, and actively support the provision of public transportation throughout the County.
14.2 Increase the existing level of special services provided.
14.3 Establish rural transit service for Deschutes County residents.
14.4 Decrease barriers to the use of existing public transportation services.
Policies
14.1 Deschutes County shall work with ODOT, the cities of Bend, La Pine, Redmond and Sisters,
and transit service providers to study countywide rideshare facility needs, and investigate public
transit possibilities including potential transit stops for a regional or commuter-based transit
system. Those possibilities shall include bus and rail, and if economically feasible, the County
shall seek such services as are found to be safe, efficient, and convenient in serving the
transportation needs of the residents of Deschutes County.
14.2 Deschutes County shall continue to work with special service providers, ODOT, and the cities
of Bend, La Pine, Redmond and Sisters to secure additional funding as well as increase
promotion of those special transit services that may be underutilized.
14.3 Deschutes County shall identify and monitor the needs of the transportation disadvantaged and
attempt to fill those needs.
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5.5 Bikeway and Pedestrian Plan
Deschutes County recognizes the economic and health benefits of planning for cycling and walking.
Many individual riders pedal the County road system and there are numerous organized rides and races
that use the County road system. While cyclists can be found on almost any paved County road,
pedestrians are primarily concentrated in the unincorporated communities, particularly Terrebonne and
Tumalo. Both cyclists and pedestrians can face challenges when trying to cross State highway or higher-
volume County roads.
Kreg Lindberg in his “Economic Impact Study: 2009 USA Cycling Cyclocross National Championships,
Bend, OR” document the economic effects of two organized events. He found riders, support staff, and
spectators spend $1.08 million directly over four days. The same study also reported participants and
observers of the 2009 USA Cycling Junior/U23/Elite National Road Race Championships directly spent
$1.44 million over a week. Those dollars are then multiplied through the community.
The organized events have had adverse localized effects on rural subdivisions. The County continues to
work with the Deschutes County Bicycling and Advisory Committee (BPAC) to ensure area residents,
motorist, and cyclists understand one another and the legal rights and responsibilities of all. The
County recognizes cyclists are legal users of the road network, but must also obey the rules of the road
just as motorists must.
Based on need and road characteristics, all roads open for public use should be considered for the
potential to improve bicycling and walking. Facilities should safely accommodate the majority of users.
Roads designed to accommodate cyclists with moderate skills will meet the needs of most riders; special
consideration should be given close to school areas, where facilities designed specifically for children
should be provided. Roads designed to accommodate young, elderly and disabled pedestrians serve all
users well.
The Oregon Bicycle and Pedestrian Plan provides further guidance regarding accommodating bicyclists and
pedestrians on County roads and State highways. All traffic devices used in conjunction with bikeways
are required to meet the standards set forth in the national Manual on Uniform Traffic Control Devices
(MUTCD).
Rural Bikeways
The rural roads in Deschutes County, except for the urban fringe, tend to have low traffic volumes and
the intersections of public streets or driveways are spaced much farther apart than found in cities.
Terrebonne and Tumalo have a denser road network with more connections. Therefore on most rural
roadways, shoulder bikeways are appropriate as they accommodate cyclists. The County’s minimum
shoulder widths in Table A and the bike and sidewalk requirements in Table B ensure adequate shoulder
widths to make County arterials and collectors suitable for bicycle travel. See Tables 2.2.T10-T12 for
County shoulder standards for rural roads and roads within Terrebonne and Tumalo. See Table 2.2T15
for the County’s specific bikeway design standards.
The County has designated a system of County bikeways on selected arterials based on coordination
with BPAC, Bend, La Pine, Redmond, Sisters, and the Road Department. Additionally, the County in
coordination with Sen. Ron Wyden, D-OR, has worked to develop a series of loop rides that would
merit inclusion in the State’s scenic bikeway program. The loops are known as the “Three Sisters
EXHIBIT C ORDINANCE 2012-005 Page 182 of 268
Scenic Bikeway” and are displayed at Figure 5.5.F1. For the designated County bikeways, see the Figures
5.5.F2-F5.
Shared roadways are adequate on low-volume rural roads, where motor vehicle drivers can safely pass
bicyclists due to the low likelihood of encountering on-coming traffic. Shoulder bikeways can be added
to roads with high bicycle use, such as in semi-rural residential areas or close to urban areas. It may be
appropriate to stripe and mark shoulders as bike lanes near schools or other areas of high use. Even
adding minimal-width shoulders can improve conditions for bicyclists on roads with moderate traffic
volumes. On roads with high use, it may be necessary to add full-width shoulders in areas of poor
visibility due to topography.
The County has also changed the way it applies chip sealing to accommodate cyclists. The County has
gone to a smaller rock (3/8”) which is also washed and sealed. The County only chip seals the travel lanes,
not the shoulders. This should address the cyclists’ concerns about having an acceptable riding surface.
Rural Walkways
In sparsely populated areas, the shoulders of rural roads usually accommodate pedestrians. Roadways in
unincorporated communities such as US 97 in Terrebonne or Cook Avenue in Tumalo have existing or
developing urban roadside character that creates the needs for sidewalks. Both communities have higher
density residential patterns more characteristic of a small town and a recognizable commercial core. In
Terrebonne’s case, US 97 and 11th Street define the community’s core, whereas Cook Avenue forms the
spine of Tumalo’s core. Figure 5.5.F6 deals with Terrebonne while Figure 5.5.F7 focuses on Tumalo.
How and where pedestrians cross State highways and major County roads is potentially more important
than pedestrian travel along those roads. Traffic volumes will dictate at what locations special pedestrian
treatments may be warranted. It is anticipated that much of the focus will be on the State highways as
they travel through rural communities. These locations have the highest concentrations of pedestrians and
activity centers. Pedestrian treatments will be analyzed in concert with traffic calming strategies on the
highways. Raised medians wide enough to afford a pedestrian refuge, bulb outs, textured crosswalks, and
similar pedestrian enhancements are appropriate tools. Where sidewalks are not provided, paved
shoulders should be wide enough to accommodate both pedestrians and bicyclists. Paved multi-use paths
provided on one or both sides of a roadway in a rural community may be appropriate for providing access
to schools. These paths will also serve the needs of young bicycle riders.
Through the site plan review process, the County shall continue to monitor pedestrian facility design, and
require appropriate facility designs to comply with provisions of the Americans with Disabilities Act (ADA).
This Plan identifies policies, bike and pedestrian facility classifications, design standards and construction
and maintenance guidelines. Many of the design standards apply to urban rather than rural areas.
However, they are in this plan because they may apply to specific projects, new neighborhoods, or
urban unincorporated communities. This TSP contains a list of suggested improvements on the
Deschutes County Road System to accommodate bike and pedestrian facilities. Completion of these
projects will considerably enhance the network of bike and pedestrian facilities throughout the County.
While Deschutes County does not have a Parks Department nor does the Road Department have the
equipment, staffing, or expertise to build or maintain trails, the County supports the development of a
trail system. The County would support grant applications by third parties to build and maintain trails,
particularly for the following:
EXHIBIT C ORDINANCE 2012-005 Page 183 of 268
• Tumalo Trail on the west bank of the Deschutes River between Tumalo State Park and the
unincorporated community of Tumalo
• Bend to Smith Rock State Park along the Trans-Canada pipeline and other applicable ditch
rider road
• Redmond to Smith Rock State Park across County-owned land
• Bend to Sisters along the old Brooks-Scanlon logging road
• South Deschutes County to Bend, with connections to Sisters, Redmond and Smith Rock
State Park.
See Figures F5.5.F8 and F5.5.F9 for the Bend area trails and the Bend-Redmond trails.
On-Road Route Selection
The integrity and usefulness of the bicycle system mandates that future development is designed with
bicycling in mind. The County will strive to provide a road system that allows cyclists the ability to
easily travel between communities and minimizes out-of-direction travel.
Off-Road Route Selection
On-road bike facilities including shoulder bikeways and bike lanes are generally preferred by more
experienced cyclists and can have a lower initial construction cost; maintenance can be included with the
adjacent roadway. However, paved and unpaved off-road bike paths can cater more to the recreational
and fitness riders, and also offer a mostly automobile-free route for cyclists who are either
inexperienced, younger, or older; essentially these riders feel more comfortable riding with no or few
automobiles present. Well-placed paths could also serve commuting cyclists; these routes or paths have
the most potential when they serve origins and destinations effectively. Designing off-road trails to
connect urban trails with rural trails is often a challenge. A paved multi-use path should meet ODOT
guidelines and be of sufficient width to accommodate multiple user types (e.g. cyclists, walkers, strollers,
etc.). The opportunity exists in Deschutes County to create off-road, separate multiple-use paths in
several circumstances, including but not limited to:
• Along irrigation district maintenance “ditch rider” roads adjacent to irrigation canals.
• Major utility easements.
• Short connector routes between adjoining subdivisions, and between subdivisions and
adjoining commercial areas, schools, parks, public lands, and between rural and urban trail
systems.
• Abandoned roadways and rail lines.
• Additional bicycle paths within destination resorts and new recreational communities now in
the planning stage.
• Heavily used and impacted forest trails that could benefit from the additional armoring that
a widened pavement surface provides.
Bike Facility Requirements
The TPR has various requirements relating to bicycle facilities such as bike parking amounts and areas, and
employee considerations such as shower and changing facilities. These requirements have already been
implemented through Deschutes County ordinances, but are reinforced here with goals and policies.
EXHIBIT C ORDINANCE 2012-005 Page 184 of 268
BIKEWAY AND PEDESTRIAN PLAN GOALS AND POLICIES
Goal
15.1 Review every three to five years the adopted Countywide system plan for bike and pedestrian
facilities to ensure continued access to various destinations within unincorporated communities and
between urban areas and unincorporated communities.
15.2 Provide and maintain a safe, convenient and economical bicycle and pedestrian system that is
integrated with other transportation systems.
15.3 Support bicycle safety, education and enforcement programs for all ages, improve riding skills,
achieve observances of traffic laws, increased awareness of cyclists and pedestrians’ rights, and
monitor and analyze bicycle accident data to determine safety problem areas.
15.4 Coordinate on-road County bikeways with known existing and proposed state and city
bikeways.
15.5 Work with BPAC to identify a system of off-road paved and non-paved shared-use paths to be
included in the County transportation system.
15.6 Maintain the existing development requirements for bicycle facilities in Deschutes County.
Policies
15.1 Deschutes County shall coordinate local plans for pedestrian and bicycle facilities with the most
current edition of the Oregon Bicycle and Pedestrian Plan. The statewide plan provides a
framework for a local bicycle and pedestrian system and design standards.
15.2 Deschutes County shall require bike facilities at locations that provide access within and
between residential subdivisions, schools, shopping centers, industrial parks, and other activity
centers when financially feasible.
15.3 Deschutes County shall:
a. Balance the plan with a variety of facilities to meet the needs of different cyclists;
b Plan for bicycle access between the County’s urban and rural areas;
c. Develop a bikeway system, to be updated semi-annually and including a map for the
public that describes the opportunities for bicycling in Deschutes County;
d. Establish priorities for facility construction and maintenance based on need and resource
availability;
e. Evaluate the plan regularly to monitor how well the facilities meet the goals of the Plan;
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f. Upgrade rural road shoulder widths to County standards during road modernization or
maintenance projects involving overlays as funding allows, provided no additional
purchase of right-of-way is required or substantial cut and fill or grading is needed;
g. Require bicycle and pedestrian facilities to satisfy the recreational and utilitarian needs of
the citizens of Deschutes County;
h. Make potential use, safety and the cost of bikeway construction, the primary
considerations when designing specific bikeways;
i. Emphasize the designation of on-road bikeways, where conditions warrant due to safety
reasons and the cost of construction and maintenance of separate bike paths;
j. Expend resources for the maintenance of existing bikeways and to keep pace with the
development of new bikeways;
k. Designate that the Deschutes County Bicycle and Pedestrian Advisory Committee
facilitate the coordination of all bicycle and pedestrian planning in the County to assure
compatibility;
l. Designate that the Deschutes County Bicycle and Pedestrian Advisory Committee
assure that the Plan remains up-to-date and that implementation proceeds according to
the Plan;
m. Work with affected jurisdictions to acquire, develop, connect, and maintain a series of
trails along the Deschutes River, Tumalo Creek, and the major irrigation canals so that
these features can be retained as a community asset;
n. Adopt standards for trail system right-of-ways and trail improvements that are based on
the type of planned trail use and reflect the standards of the most recent version of the
Oregon Bicycle and Pedestrian Plan;
o. Pursue grant opportunities to plan or construct the Tumalo Trail between Tumalo State
Park and the unincorporated community of Tumalo;
p. Work cooperatively with City parks and recreation districts to support grant
applications to build or maintain trails in the rural County whether on public or private
lands; and
q. Support the implementation of the Three Sisters Scenic Bikeway plan.
15.4 New public and private land developments in Deschutes County shall accommodate and tie into the
bicycle system, and shall provide their residents and employees with appropriate bicycle facilities.
15.5. County arterials and collectors may use shoulder bikeways or shared roadways. These bikeways
shall be upgraded to bike lanes when highway reconstruction occurs and the traffic volumes
warrant lanes.
15.6 Deschutes County shall facilitate safe and direct bicycle and pedestrian crossings of arterial roads.
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15.7 On-road bikeways shall be constructed in accordance with the specifications set forth in
DCC Chapter 17.48, Table A.
15.8 Developers in Deschutes County shall be encouraged to design paths that connect to the
countywide bikeway system and that provide the most direct route for commuters. In some
cases, it may be appropriate to relax a requirement, such as for a sidewalk on one side of a
residential street, in favor of a comparable and relatively parallel bike path within the
development. However, the developer’s provision of a bike path shall not change the on-road
bikeway requirement for arterials and collectors.
15.9 Deschutes County shall facilitate the development of mountain bike routes and the creation of
paved off-road shared-use paths. The County shall work with its public agency and non-profit
partners and the County Bicycle and Pedestrian Advisory Committee (BPAC) to identify such
routes and incorporate them into its transportation system where appropriate. Particular
attention shall be given to obtaining and keeping rights-of-way for uninterrupted routes linking
various residential, commercial, resort, and park areas within the County. Linear corridors such
as rivers, irrigation canals, ridges and abandoned roadway and rail lines shall receive special
attention. Proposed developments may be required to provide such identified trail and path
rights-of-way as part of their transportation scheme in order to maintain the integrity and
continuity of the Countywide system.
15.10 The County shall work with local agencies, jurisdictions, and affected property owners to
acquire, develop, address trail-connectivity issues and maintain only those sections of trail that
are located outside of UGBs that are consistent with the County’s TSP, but are part of a trail
plan or map that has been adopted by the local jurisdiction and/or the County. Staff will work
with local, state, federal agencies, and BPAC to determine the priority for trails that connect
urban and rural areas.
15.11 Off-road paved shared-use paths shall be constructed in accordance with the guidelines set forth
in the most current edition of the Oregon Bicycle and Pedestrian Plan.
15.12 Deschutes County shall maintain and update as necessary, the existing ordinance requirements
for bicycle facilities found in DCC 18.116.031 and DCC Chapter 17.48, Table B, or such other
location that it may be moved to within the Deschutes County Development Code.
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5.6 Airport Plan
Airport Overview
The continued operation and vitality of airports registered, licensed or otherwise recognized by the
Department of Transportation is a matter of State and County concern. The County protects the
operations of airports through the Airport Safety Combing Zone (DCC Chapter 18. 80) to ensure safe
operations of aircraft and that nearby land uses are compatible. DCC Title 18 also requires the Federal
Aviation Administration (FAA) be notified of land use applications within the AS zone.
There are currently 18 registered airports in Deschutes County. Four of these are public use airports;
two of which, Bend Municipal and Redmond Municipal-Roberts Field are publicly owned while Sisters
Eagle Air and Sunriver airports are privately owned. These airports have improved (paved) runways,
and offer a range of services, from the availability of commercial passenger flights arriving and departing
daily at Redmond Municipal Airport, to the Sisters (Eagle Air) Airport which offers no services or
runway navigational aids. Cline Falls Airport, Juniper Airpark and Pilot Butte Airport are privately
owned private use airports with more than three based aircraft. There are three heliports: St. Charles
Medical Center, La Pine and Cinder Butte, all with fewer than three based aircraft. The eight remaining
airfields; Don Stevenson Ranch, Fall River Fish Hatchery, Gopher Gulch, Pine Ridge Ranch, The Citadel,
Whippet Field, Freight Wagon and Sage Ranch Airports are all privately owned, private use airfields with
2 or fewer based aircraft.
The Redmond Airport Master Plan will guide the future use of the airport in terms of runway and
terminal expansions as well as operational decisions. Similarly, the Bend Airport Master Plan, which is
currently being updated, will detail the future of that airport. Land uses at the Bend Airport must go
through the Deschutes County land use process. The County and the City have continued to ensure
adjacent residents have been involved in the Bend Airport Master Plan update in order to incorporate
and address their concerns about airport operations, particularly noise. No changes or expansions to
the Sisters and Sunriver airports are envisioned at this time, although planning staff occasionally meets
with Sisters airport owners and representatives, including City of Sisters staff, about different
improvement options for that facility. At some point, the Sisters airport may need to develop its own
airport master plan and seek inclusion in the Sisters UGB.
The possibility of a new public general aviation airport located in the South County has been discussed
and analyzed in a March 2002 feasibility study. The airport would be funded by private interests and the
site most often mentioned, south of Rosland Road between US 97 and the BNSF railroad, would lie
within the City of La Pine. The proposed Bird Field would thus require land use decisions by the City of
La Pine, not Deschutes County, and would need to comply with the Oregon Department of Aviation’s
requirements for establishing a new airport. See Oregon Administrative Rule (OAR) 738-020-0025 and
OAR 660-013 for further information.
AIRPORT PLAN GOALS AND POLICIES
Goal 16
16. Protect the function and economic viability of the existing public-use airports, while ensuring
public safety and compatibility between the airport uses and surrounding land uses for public use
airports and for private airports with three or more based aircraft.
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Policies
16.1. Deschutes County shall protect public-use airports through the development of airport land use
regulations. Efforts shall be made to regulate the land uses in designated areas surrounding the
Redmond, Bend, Sunriver and Sisters (Eagle Air) airports based upon adopted airport master
plans or evidence of each airports specific level of risk and usage. The purpose of these
regulations shall be to prevent the installation of airspace obstructions, additional airport
hazards, and ensure the safety of the public and guide compatible land use. For the safety of
those on the ground, only limited uses shall be allowed in specific noise impacted and crash
hazard areas that have been identified for each specific airport.
Continuing the protection of the privately owned, private-use airports, with three or more based
aircraft, is also accomplished by the AS overlay zone. AS also protects the function and economic vitality
of privately owned, private-use airports with two or fewer based aircraft. Each airport’s specific level
of risk and usage shall be used to guide the continued safe aeronautical access to and from these
airports considering the type of aircraft approved to use the airfield.
16.2 Deschutes County shall:
a. Continue to recognize the Redmond (Roberts Field) Airport as the major
commercial/passenger aviation facility in Deschutes County and an airport of regional
significance. Its operation, free from conflicting land uses, is in the best interests of the
citizens of Deschutes County. Incompatible land uses shall be prohibited on the County
lands adjacent to the airport;
b. Cooperate with the cities of Bend, Redmond and Sisters in establishing uniform zoning
standards, which shall prevent the development of hazardous structures and
incompatible land uses around airports;
c. Take steps to ensure that any proposed uses shall not impact airborne aircraft because
of height of structures, smoke, glare, lights which shine upward, radio interference from
transmissions or any water impoundments or sanitary landfills which would create
potential hazards from waterfowl to airborne aircraft;
d. Allow land uses around public-use airports that shall not be adversely affected by noise
and safety problems and shall be compatible with the airports and their operations;
e. Work with, and encourage airport sponsors to work with the Federal Aviation
Administration (FAA) to enforce FAA-registered flight patterns and FAA flight behavior
regulations to protect the interests of County residents living near airports.
f. Adopt regulations to ensure that developments in the airport approach areas shall not
be visually distracting, create electrical interference or cause other safety problems for
aircraft or persons on the ground. In addition, efforts shall be made to minimize
population densities and prohibit places of public assembly in the approach areas;
g. Continue efforts to prevent additional residential encroachment within critical noise
contours or safety areas without informed consent;
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h. Specifically designate any proposed airport facility relocations or expansions within
County jurisdiction on an airport master plan or airport layout plan map, as amended,
and establish the appropriate airport zoning designation to assure a compatible
association of airport growth with surrounding urban or rural development;
i. Maintain geographic information system (GIS) mapping of the Airport Overlay Zones
and provide timely updates;
j. For those airports in Deschutes County without adopted master plans, the County
shall, as a minimum, base any land use decisions involving airports on DCC Chapter
18.80 and Oregon Administrative Rule Chapter 660, Division 13, Airport Planning;
k. Participate in and encourage the County-adoption of airport master plans for all public
use airports and at least an airport layout plan for the remaining State-recognized
airfields in Deschutes County;
l. Encourage appropriate federal, state and local funding for airport improvements at
public-owned airports; and
m. Discourage future development of private landing fields when they are in proximity to
one another, near other public airports and potential airspace conflicts have been
determined to exist by the Federal Aviation administration (FAA) or the Oregon
Department of Aviation.
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5.7 Rail Plan
A trio of railroad issues predominates planning for rail in the region: safety of existing at-grade rail
crossings, access to the national freight rail system, and the potential of passenger rail service. The
Central Oregon Area Commission on Transportation (COACT) conducted a study in 2009 that
analyzed all three issues. Additionally, ODOT issued a statewide Rail Study in 2010 to augment the
agency’s Oregon Rail Plan (2001) and Oregon Passenger Rail Plan and Policy (1992). The presence of a
viable rail network could extend the capacity of State highways by shifting freight from trucks to rail or
by having rail haul trailers to distribution points. Passenger rail could perform a similar function by
serving commuters in the Madras-La Pine corridor. Rail offers an alternative to road construction to
reduce highway congestion and simultaneously provide freight and passenger mobility.
Rural Deschutes County has nine (9) existing at-grade rail crossings, listed from north to south:
• NW Eby/NE 9th (Terrebonne)
• Smith Rock Way (Terrebonne)
• NE O’Neil Highway (just north of Redmond)
• Baker Road (south edge of Bend)
• Benham Falls Road (north edge of Sunriver)
• Vandevert Road (south of Sunriver)
• State Rec Road (between Sunriver and La Pine)
• Prairie Road (between Sunriver and La Pine)
• Pinecrest Drive (north of La Pine)
Based on functional classification of the surface street, daily traffic volumes, and topography, the
COACT study ranked all 41 at-grade crossings in the tri-county area in terms of high, medium, and low
for closing or grade-separating. The study ranked seven at-grade crossings rated as high in Crook,
Deschutes, and Jefferson counties. Within Deschutes County, the study ranked two at-grade crossings
as high, NE O’Neil Highway and Baker Road. The goal is to grade separate at least five of the seven at-
grade crossings ranked as high by 2029.
The City of Prineville Railway (CoPR) is a short-line railroad that accesses the mainline tracks used by
Burlington Northern and Union Pacific. Prineville Junction is a railroad wye to the immediate east of
O’Neil Junction where US 97, O’Neil Highway, and Pershall Way intersect. The Prineville Junction site
offers incredible potential as a multimodal site or a reload location (trucks to freight cars or vice versa)
due to its proximity to US 97 and Redmond’s current east side arterial network and future west side
ring road. While the BNSF and UP prefer to run large unit trains with single cargos for long distances
such as Portland-Los Angeles, the “hook and haul” approach works against rail-dependent economic
development in Central Oregon.
The CoPR’s strength is its ability to collect and distribute small loads from local shippers to the BNSF
network. The COACT Rail Plan’s intent is to have the CoPR assemble enough local freight at Prineville
Junction that BNSF would provide regular freight service to the region. Rail is a vital component for
industries that deal in or produce large volume, large weight, but lower value goods. Rail is the best
mode to move such goods for intermediate to longer ton-miles (cost to move 2,000 pounds or one ton
for a distance of one mile).
While historically passenger trains served the area for decades, currently the closest passenger rail
service is the Amtrak depot in Chemult with connecting bus service to Bend. Several ODOT studies,
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including the 2010 Rail Plan, have examined the possibility of passenger rail. The Central Oregon
Intergovernmental Council (COIC) is going to add to that bibliography in the next two years as COIC
examines public transportation options, including passenger rail. Central Oregon’s relatively small
population and low population density make passenger rail problematic during the next 20 years.
RAIL PLAN GOALS AND POLICIES
Goal 17
17.1 Maintain the existing levels of freight rail activity throughout the County while also encouraging
expanded usage by commercial and industrial companies.
17.2 Increase the safety of existing at-grade crossings and work towards the eventual replacement of
all at-grade crossings with gate-protected or grade-separated crossings according to the
prioritized list from the 2009 Report on Central Oregon Rail Planning
17.3 Re-establish passenger rail service to Central Oregon as soon as practical
Policies
17.1 Deschutes County shall:
a. Work cooperatively with affected local jurisdictions and railroad operators to reduce
land use conflicts and increase safety at all at-grade crossings;
b. Encourage efforts to improve the condition of rail lines throughout the County in order
to retain the effectiveness and competitiveness of freight rail;
c. Not endorse the abandonment of any rail lines unless they are to be converted to trail
use through the federal “Rails to Trails” program. Once converted, the trails shall be
incorporated into the County Bikeway/Trail System;
d. Not endorse any activities that would diminish existing rail service; and
e. Work cooperatively with affected local jurisdictions, businesses and railroad operators
to protect all rail spurs that currently serve businesses or have the potential to serve
freight rail uses from abandonment or incompatible zoning.
17.2 Deschutes County shall work cooperatively with ODOT, area cities, and rail providers to
identify and prioritize the actions needed to provide passenger rail service on the US 97
corridor.
5.8 Water Plan
A water-borne transportation plan is not applicable in Deschutes County.
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5.9 Pipeline Plan
Many miles of pipeline in Deschutes County currently carry power transmission lines, cable television,
telephone, natural gas, water and sewage. The County encourages the continued use of pipelines to
carry goods across County boundaries and for distribution within the County.
5.10 Transportation System Management (TSM) and Transportation
Demand Management (TDM) Plans
Although not urban lands, Deschutes County still has the potential to use several TSM and TDM
strategies in order to help preserve the function of major County roads and state highways. The TDM
strategies can also be utilized by employers whose businesses occupy rural lands.
Transportation System Management (TSM)
TSM improvements focus on optimizing the carrying capacity of roads by alleviating congestion and
reducing accidents. Examples of TSM strategies include:
• Minimizing the number of access points
• Channelization of turning movements
• Creation of continuous turning and merging lanes
• Raised medians
• Signalization
An important aspect of TSM is that public agencies work closely with affected businesses to fully
evaluate impacts from changes to access. In addition, TSM must account equally for the needs of all
modes of travel, particularly that bike, pedestrian and transit movements and safety are not
compromised in exchange for improving roadway capacity.
Transportation Demand Management (TDM)
Unlike TSM strategies, which focus on physical changes, TDM targets driver behavior, mode choice and
employers to lower the traffic demands on the roads, especially during the peak travel times of the day.
Examples of TDM strategies include:
• Alternative or flexible work schedules
• Ridesharing/carpooling
• Transit use
• Bicycling/walking
• Parking management
• Working at home/telecommuting (teleworking)
TDM strategies often involve and education and promotion effort to encourage changes in single
occupant driving behavior. Therefore, TDM strategies require a concerted community and/or employer
effort and commitment to realize the greatest results. Also significant is that, of all the different
strategies used to relieve congestion, TDM efforts in Bend, La Pine, Redmond, Sisters, Prineville, and
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Madras can all affect the County and each city because of the employee commute patterns throughout
the tri-county area.
TRANSPORTATION SYSTEM AND TRANSPORTATION DEMAND MANAGEMENT GOALS AND POLICIES
Goal 18
18.1 In order to optimize the carrying capacity of the County road system, provide cost effective
transportation improvements and implement strategies that shall improve the efficiency and
function of existing roads.
18.2. Reduce peak hour traffic volumes on County roads and diminish the exclusive use of single-
occupant vehicles.
Policies
18.1. Deschutes County shall adopt land use regulations to limit the location and number of
driveways and access points on all collector and arterial roads;
18.2 Deschutes County shall ensure that land use actions support the access management policies of
the Oregon Department of Transportation (ODOT) along State highways.
18.3 Deschutes County shall implement transportation system management measures to increase
safety and reduce traffic congestion on arterial and collector streets, and protect the function of
all travel modes.
18.4. Deschutes County shall promote safety and uninterrupted traffic flow along arterials via the
following planning considerations:
a. Clustering of all types of development and provisions for an internal traffic circulation
pattern with limited arterial access shall be encouraged;
b. A minimum setback of 50 feet from arterial rights-of-way shall be required;
c. Recommendations on speed limits shall be forwarded to the State Speed Control Board.
18.5 Deschutes County shall:
a. Encourage businesses to participate in transportation demand management efforts
through the development of incentives and/or disincentives. These programs shall be
designed to reduce peak hour traffic volumes by encouraging ridesharing, cycling,
walking, telecommuting, alternative/flexible work schedules and transit use when it
becomes available;
b. Work with business groups, large employers and school districts to develop and
implement transportation demand management programs;
c. Continue to support the work of non-profit agencies working towards the same TDM
goals as Deschutes County;
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d. Encourage programs such as van or carpooling (rideshare) to increase vehicle occupancy
and reduce unnecessary single-occupant vehicle travel;
e. Continue to pursue the development of park and ride facilities and consider the siting of
a rideshare facility, based on identified needs, when realigning County roadways,
considering the sale of surplus property, or reviewing land use applications for
developments that could benefit from such a facility;
f. Pursue the development and utilization of telecommunication technologies that facilitate
the movement of information and data;
g. Support efforts to educate the public regarding the actual costs related to travel on the
transportation system and encourage transportation demand management alternatives;
and
h. Establish and make available a transportation demand management program to County
employees, to serve as a role model for the community.